The MBSFA: Implications for Manning, Equipping, Training, and Employing Combat Advisors

The summer of 2009 represented a significant shift in the advisory effort in Iraq. On 17 September, the last class of combat advisors destined for Iraq graduated from Fort Riley. These combat advisors represented a transition point between the legacy externally sourced transition teams, such as military transition teams (MiTTs), border transition teams (BTTs), and federal police transition teams (FPTTs), and the new stability transition teams (STTs) forming under the modular brigade augmented for security force assistance (MBSFA) concept. The STT concept was developed based on guidance from the theater commander to provide increased unity of effort between deployed U. S. Army brigade combat teams (BCTs) and transition teams operating in the BCT’s operating environment (OE). His vision pictured the STTs as an extension of the BCTs and subordinate battalion task forces (TFs). The first STTs began training at BCT home stations, combat training centers (CTCs), and Fort Riley in the summer of 2009, and deployed in August that same year. The Ar my Force Generation (ARFORGEN) process and recommended training continuum, designed for greater interaction between the STTs and the BCT, preclude a concise residential training curriculum in conjunction with ongoing 162d Infantry Brigade training at Fort Polk. These factors call for anew paradigm in manning, equipping, training, and employing combat advisors, as outlined in this article. Manning Manning of STTs occurs in two phases and for best results, should be accomplished no less than 60 to 90 days prior to the BCT’s CTC rotation. Early in the STT personnel-fielding process, this goal was unachievable, resulting in execution of the training continuum outside the recommended model. Due to initial startup costs, BCTs only formed 8 to 10 STTs, but in full swing, some BCTs will be expected to form as many as 24 STTs. The first phase of STT manning is the assignment of augmented advisors. Two field grade officers, the augmented advisors (AAs) for each team, are assigned from across the Army by the Human Resource Command (HRC). The second phase of STT manning occurs within the BCT and consists of task organization of two additional elements, which includes the functional area specialist (FAS) team and the personal security detachment (PSD). The core advisor Implications for Manning, Equipping, Training, and Employing Combat Advisors by Captain Daniel Bolton team must be augmented with a FAS team organic to the BCT to properly advise across Iraqi Security Force (ISF) warfighting functions (WFF). A recommended FAS team consists of advisors for intelligence, fires, operations, communications, and logistics, at a minimum, while other considerations include attachment of law enforcement professionals (LEPs) and human intelligence (HUMINT) collection teams (HCTs). These teams must consist of soldiers with enough rank and experience to gain rapport with and influence senior ISF officers who may have considerably more combat experience than members of the STT. The final element of the STT is the PSD, which is typically a scout, tank, infantry, or artillery platoon or section. The FAS team and the PSD may be tailored as the BCT commander sees fit, based on analysis of his OE. A comparison of a legacy brigade MiTT to an example STT is shown in Figure 1. While the optimum STT contains elements of augmented advisors task organized with a FAS team and a PSD, BCT commanders may choose not to augment teams in this fashion. In fact, a spectrum exists in which some BCT commanders choose to fully augment their STTs, some choose to augment only for specific mission sets, and others choose not to augment at all and use their STTs in a liaison-type role. This decision clearly depends on mission, enemy, terrain and weather, troops and support available, time available, civil considerations (METT-TC).

Equipping Because adding augmented advisors to a BCT’s overall endstrength is not supported by the BCT’s modified table of organization and equipment (MTOE), some additional equipment will have to be procured. To properly equip advisors to standard, they will require individual small arms and optics, chemical defense equipment, and the BCT’s standard original clothing and individual equipment (OCIE) menu and rapid fielding initiative (RFI) grid draw. For equipment listed above and beyond the BCT’s MTOE, there are several avenues to properly equip advisors. The BCT may choose to submit an operational needs statement (ONS), request a change in MTOE by submitting DA Form 4610-R, or seek to borrow the equipment through the Army loan program. Training Because STTs are task organized by the BCT during the ARFORGEN cycle, training must be synchronized between the 162d Infantry Battalion, the Department of Defense (DoD) proponent for combat advisor training, and the STT’s parent BCT. The elements of CONUS-based training include the combat training center’s leader training program (LTP), the battle command training program (BCTP) seminar, an advisor academy, BCT-specific individual and collective training, a tactical leader’s seminar, an STT seminar, a validation exercise, and a BCT CTC rotation. This training continuum builds on previous training and provides an opportunity for BCT involvement in planning and synchronizing future training. The BCTP seminar, or in some instances the LTP, is the first opportunity for 162d Infantry Battalion cadre to interface with the BCT and its augmented advisors. During the BCTP seminar, a representative from the 162d Infantry Battalion briefs BCT leaders and any augmented advisors present on the MBSFA concept and the 162d’straining continuum, as shown in Figure 2. This opportunity allows the 162d and the BCT to make necessary coordination for follow-on training. Coordination culminates with a memorandum of agreement, executed between the BCT commander and the 162d Infantry Battalion’s commander, which outlines training and resources along with dividing responsibilities for each unit. The advisor academy is the first block of instruction for augmented advisors and should be conducted once a majority of the advisors have arrived at the BCT. The academy covers a period of 10 days, and can take place either at the BCT’s homestation or at Fort Polk. The majority of the academy is classroom instruction on theater-specific history, culture, language, and religion; advising and influencing; host nation security force structures and staff functions; and use of linguists. Classes during the academy build advisory skills necessary to interface with host nation security force (HNSF) personnel, and advisors are presented with role-played ISF leader engagements to allow practical application of these skills. During the academy, opportunities also exist to conduct a video teleconference with the unit that will be replaced in theater by the STTs, as well as interface with previous advisors to capture tactics, techniques, procedures, and lessons learned. Should training be completed prior to the arrival Figure 1 Example MBSFA Training Continuum Month 1 Month 3 Month 4 Month 2 CTC Rotation Tactical Leaders’ and STT Seminars Validation Exercise Advisor Academy BCTP Seminar BCT Specific Training Window Figure 2 36 Legacy MiTT and STT Comparison Legacy BDE MiTT (10 PAX) Team Chief

35D Intelligence NCO Trainer

90A Logistics NCO Trainer

13A Effects NCO

11/13/19 HRC Provided BCT Provided AAs of all augmented advisors, it can be made up with a later BCT. An example advisor academy layout is shown in Figure 3. Following the example continuum, the next step in advisor training is BCT-specific training. Whereas previous externally sourced transition teams completed all theater-specific training at Fort Riley, advisors assigned to STTs execute non-advisor-specific individual and collective training tasks with their parent BCT. These tasks include weapons qualifications, combat lifesaver qualification, theater-specific individual readiness training (TSIRT), and any other tasks chosen by BCT leaders. Preferably, augmented advisors will complete this training alongside their FAS teams and PSDs, in an effort to build small-unit cohesion, prior to arrival at the CTC. The final training gates, prior to the BCT’s CTC rotation, are the tactical leader’s seminar, STT seminar, and validation exercise. These training events occur at the BCT’s homestation and involve several echelons of BCT and STT leaders. The tactical leader’s seminar focuses on BCT leaders who are not assigned to advisor teams, in the rank of staff sergeant through captain, and covers 3 days of classes on culture, stability operations and counterinsurgency, and partnership with host nation security forces, as shown in Figure 4. This event arms leaders, from squad to company level, with tools to train soldiers in tasks they will encounter during deployment as partners of ISF units. The seminar also re-blues leaders who may not have previously deployed in roles that required ISF partnership. The tactical leader’s seminar also affords the BCT commander the flexibility to hold an executive session with his battalion commanders and discuss graduate-level vignettes on partnership and advising. Should the BCT choose not to execute a tactical leader’s seminar, the executive session can be appended to the STT seminar. The STT seminar runs concurrently with the tactical leader’s seminar and integrates augmented advisors with FAS teams and key leaders of PSDs. As shown in Figure 5, the STT seminar focuses on advanced advisory concepts and specific ISF structures and readiness for units they will advise in theater. The final phase of training prior to the BCT’s CTC rotation is the validation exercise, which is a 2-day exercise that involves a combined planning exercise with role-played ISF officers at echelons similar to those that STTs will advise in theater. The event also requires integration with the BCT and subordinate battalion staffs, a forcing function designed to better prepare the STTs for CTC rotation. An example validation exercise is shown in Figure 6. As discussed earlier, augmented advisors must arrive prior to the BCT’s CTC rotation to allow them to complete this training continuum, build the team, and integrate with the BCT and battalion staffs. At the CTC, the BCT and its STTs will be required to conduct combined targeting, combined planning, and combined Figure 3 37 BCT Event Defense Language Institute (DLI) Leader Meet Security Agreement Welcome/Course Intro Operational Framework,

Counterinsurgency (COIN)/ Stability Overview, Provincial Reconstruction Team (PRT ) Assign Case Studies/Teams Roles/Traits of Advisor Personality Traits Team Dynamics Language/ Culture (DLI) Rapport Building Influence/Negotiations Leader Meet Example Targeting Language/ Culture (DLI) WFF Maneuver/ Staff Planning Interpreter Management Language/ Culture (DLI) WFF Sustainment, Ministry of Defense (MOD)/Ministry of Interior (MOI) Logistics WFF Intelligence Advising Border/Port of Entry (POE) Overview Cultural Meal Fort Polk, LA – Meal Away - Chai Language/ Culture (DLI) Operational Readiness Assessment (ORA) Overview Leader Engagement #2 Intelligence Language/ Culture (DLI)

Leader Engagement #3 Improvised Explosive Device (IED) Cell/Fratricide IP Overview Police Transition Team (PTT) Language/ Culture (DLI) WFF Fires Information Operations, Media Leader Engagement #4 Detainees Language/ Culture (DLI) WFF Protection Preparing American Advisors/Ethics Leader Engagement #5 Indirect Fire/Force Protection Language/ Culture (DLI) Redeploying TT Panel Leader Engagement #6 Corruption Video Teleconference w/Theater Operations, Intelligence, and Environment (OI&E) Brief (BCT Event) Government/HNSF Overview WFF Overview w/Foreign Security Forces (FSF) WFF Intelligence Capabilities Language/ Culture (DLI) Historical Advisory Mission Case Studies Islam/Country History/Culture Culture/Cross Culture Shock Leader Engagement #1 Intro/Ammo Day 6 Day 7 Day 8 Day 10 Day 9 Day 1 Day 2 Day 3 Day 4 Day 5 Example Advisor Academy operations with role-played ISF in a simulated combat environment, necessitating prior execution of the 162d Infantry Battalion training continuum. Employment Considerations Ultimately, employment of STTs within a BCT’s OE is a decision that rests on the shoulders of the BCT commander. However, several factors must be taken into consideration when determining optimal employment. These factors affect how the BCT commander will augment his teams, at what echelon he will employ them, and the command/support relationships he will impose on them. Consideration must be given to available forces, the enemy threat, current level of ISF development, specified ISF development tasks from higher headquarters, and the sheer number of ISF headquarters in the OE. Below are three examples that illustrate the flexibility afforded BCT commanders through use of the STT concept: Example 1. Faced with an OE that encompassed a province with a low enemy threat, a large stretch of national border, two well-developed Iraqi army (IA) divisions, and an Iraqi operations command, one BCT chose to merge its eight sets of advisors into three teams, focused on the ISF operations command, the Department of Border Enforcement (DBE) Region headquarters, and the Provincial Governance Center. Due to the level of ISF development, the BCT commander chose not to augment his teams with FAS team members, using instead the augmented advisors in more of a liaison role between ISF and the BCT. Because he was also employing the teams with higher headquarters, he chose to keep command/support relationships at the BCT level. Example 2. A BCT deploying to a province with a low threat and one well-developed IA division, the BCT commander chose to use his eight sets of advisors in a liaison role, focusing on the Provincial Joint Coordination Center (PJCC), the IA division, and the district joint coordination centers (JCCs). By reducing the number of augmented advisors on the JCC teams, the BCT commander placed more emphasis on his divisional team, which he chose to augment, as necessary, with FAS from his staff. No other teams were augmented; some teams maintained command/support relationships with the BCT, while others were carved down to subordinate battalions. Example 3. A BCT deploying to a densely populated province, with nearly 40 ISF brigade and above headquarters, moderate enemy threat, and moderate ISF development, chose to build full teams with FAS and cover down on all divisions, and above, and ISF brigades as determined by lower development levels. This BCT commander pulled large portions of FAS for his division teams and augmented his brigade teams with more modest portions. Some teams maintained command/support relationships with the BCT, while others established relationships with subordinate battalion task forces. The use of STTs in a BCT’s advisory effort is the way ahead for ISF development. The concept requires a paradigm shift in the way the Army mans, equips, and trains its advisors in preparation for deployment. The 162d Infantry Battalion has developed the necessary training package to support BCTs as they build and train teams to conduct advisory missions in theater. Once formed and trained, the STTs provide great flexibility for the BCT commander when determining the best task organization and employment of his advisor teams, unlike the rigid transition team structure of the past. The STTs serve as an extension of the BCT and subordinate battalion task force leaders better than legacy transition teams due to well-defined command/support relationships. While this concept is currently only being used in Iraq, it also serves as a future model for advisory efforts in Afghanistan. Captain Daniel Bolton is currently the assistant operations officer, 1st Battalion, 353d Regiment (Training), Fort Polk, LA. He received a B. S. from Texas A&M University. His military education includes Armor Officer Basic Course, Scout Platoon Leader Course, Armor Captain Career Course, Cavalry Leader Course, and Airborne School. He has served in various command and staff positions, to include commander, M Company, 3d Squadron, 3d Armored Cavalry Regiment (ACR), Fort Hood, TX, and Tal Afar, Iraq; brigade intelligence advisor, 3d Brigade, 2d Iraqi Army Division MiTT, Qayarrah, Iraq; liaison officer, Iraq Assistance Group, Baghdad, Iraq; XO, C Troop, 1st Squadron, 2d ACR, Baghdad, al Kut, and Fort Polk; and scout platoon leader, C Troop, 1st Squadron, 2d ACR, Fort Polk and Baghdad. Example Validation Exercise Day 1 Day 2 Intro/overview STT and BCT/battalion maneuver and resource planning (STT and BCT leader engagement) Receipt ISF CONOP (STT to HNSF leader engagement STT/BCT brief production Mission analysis (STT and

Combined CONOP brief to BCT commander (w/ISF commander in attendance) Joint planning session/construct briefing (STT with ISF) (STT to BCT leader engagement) BCT commander comments Backbrief maneuver and support plan to ISF commander

Figure 6 Figure 4 Figure 5 38 Example Tactical Leaders’ Seminar Day 1 Day 2 Day 3 Day 3 (CDRs) Welcome / Introduction Arab / Iraqi Culture COIN Overview Integrate WFF as Combat Advisor OI&E Brief (BCT Event) Religion Use of Interpreter with Leader Engagement Practical Exercise (PE) BCT Concept of Operations (CONOPs) for Leadership and Advising Security Agreement History Rapport Building and Influencing Influence WFF Iraq Country Brief Tribes Negotiating After-Action Review (AAR) ISF and WFF Overview SFA and Stability Operations in Partnership Day 1 Day 2 Day 3 Day 3 (CDRs) Welcome / Introduction Know the Enemy WFF Vignettes (6) for advising EAB Integrate WFF as Combat Advisor OI&E Brief (BCT Event) Human Terrain 90 Day “Road to War” based on Operational Readiness Assessment (ORA) / Police Station Monthly Report (PSMR) BCT CONOPs for Leadership and Advising PJCC, Governate Director of Police, IA Division HQs, Operations and Area Command HQs, Brigade HQs Organization / Transition Team Structures Know the Enemy/ Human Terrain Vignettes / PEs (4)

Influence WFF ISF Echelons Above Brigade (EAB) C2 Vignettes / PEs (4) Example STT Seminar