User:Ssolbergj/Command and control structure of the European Union

This article outlines the command and control (C2) structure of the European Union's (EU) missions, which are deployed as part of the Common Security and Defence Policy (CSDP). This C2 structure ranges from the political strategic level to the tactical level. This concept focuses on military C2 aspects of EU-led military CSDP operations and missions, and covers C2 related military definitions and principles, including the C2 operational needs for interoperability. It covers EU Command Options and provides a generic C2 structure for EU-led military operations and missions, including the core responsibilities of the main actors. It describes the C2 aspects of planning and conduct of operations/missions, provides the essential HQ-requirements and criteria, and addresses some general aspects of Civil Military Co-ordination (CMCO).

The EU has established an autonomous capacity to take decisions to launch and conduct EU-led military operations and missions1 within the range of the tasks defined in the Treaty on European Union (TEU). The EU's New Level of Ambition, which came out of the EU Global Strategy (EUGS), has been proposed in the Implementation Plan on Security and Defence by the EU's High Representative of the Union for Foreign Affairs and Security (HR/VP).

The EU does not have a standing military C2 structure for military executive operations, therefore clear and effective C2 arrangements are needed to ensure the successful planning and conduct of military CSDP missions and military CSDP operations. With the creation of the Military Planning and Conduct Capability (MPCC) the EU has a standing military C2 structure for non-executive military CSDP missions. The MPCC, reinforced with augmentees2, should have the ability to plan and conduct one executive military CSDP operation (Ref D), limited to EU Battlegroup size.

This concept should be read in conjunction with the EU Concept for Military Planning at the Political Strategic level (ref. F) and the EU Concept for Force Generation (ref. G).

Terminology

General C2 definitions

• Command is the authority vested in an individual of the armed forces for the direction, co-ordination, and control of military forces.

• Control is the authority exercised by a commander over part of the activities of subordinate organisations or other organisations not normally under his command, which encompasses the responsibility for implementing orders or directives. All or part of this authority may be transferred or delegated.

C2 relationships within EU-led military CSDP operations/missions

• Full Command is the military authority and responsibility of a commander to issue orders to subordinates. It covers every aspect of military operations/missions and administration and exists only within national services.

• Operational Command (OPCOM) is the authority granted to a commander to assign missions or tasks to subordinate commanders, to deploy units, to reassign forces and to retain or delegate operational and/or tactical control as the commander deems necessary.

• Operational Control (OPCON) is the authority delegated to a commander to direct forces assigned, so that the commander may accomplish specific missions or tasks which are usually limited by function, time or location; to deploy units concerned and to retain or assign tactical control of those units. It does not include authority to assign separate employment of components of the units concerned. Neither does it of itself, include administrative or logistic responsibility.

• Tactical Command (TACOM) is the authority delegated to a commander to assign tasks to forces under his command for the accomplishment of the mission assigned by higher authority.

• Tactical Control (TACON) is the detailed and, usually, local direction and control of movements and manoeuvres necessary to accomplish missions or tasks assigned.

Related definitions

• Transfer of Authority (TOA): The act by which national authorities officially transfer the command and/or control of their national forces to the OpCdr / Dir MPCC. The TOA may be subject to national caveats.

• Planning for an operation: Planning enables commanders to translate EU strategy and objectives into unified plans for military action by specifying how operations will be conducted to achieve success within a given time and space.

• Conduct of an operation: Conduct of an operation is the art of directing, co-ordinating, controlling and adjusting the actions of forces to achieve specific objectives.

• Co-ordination: Joint and multinational operations depend on co-ordinated activities to achieve the maximum combined effort. Goodwill, a common purpose, a clearly agreed division of responsibilities and an understanding of the capabilities and limitations of others, are essential elements.

• Interoperability: Interoperability is defined within the EU as the ability of Member State HQs and forces and, when appropriate, HQs and forces of other States to train, exercise and operate effectively together in the execution of assigned missions and tasks.

General C2 structure and definitions

Political control and strategic direction

In accordance with Article 38 TEU and its Terms of Reference (TOR) (ref. H), the Political and Security Committee (PSC), under the authority of the Council, exercises the political control and strategic direction of EU-led military CSDP operations and missions, taking into account advice and recommendations from the EUMC. A Crisis Management Concept (CMC), approved by the Council, provides a conceptual framework describing CSDP activity to address a particular crisis within the EU integrated approach, defines the political strategic objectives for CSDP engagement, and provides CSDP option(s) to meet the EU objectives.

• Political Control is the setting of political and strategic objectives and parameters, and the balancing of aims and means to achieve these objectives. It provides the framework within which military operations/missions can take place and defines their nature and scope. Political Control aims at ensuring that the parameters of an operation/mission set by the Council are implemented accordingly.

• Strategic Direction is the translation of political and strategic objectives into guidance, enabling the military operation/mission to be planned and conducted. The PSC exercises Strategic Direction by providing guidance for the development of planning documents for an operation as well as by giving strategic direction during the conduct of the operation.

Military chain of command

The EU military chain of command is the succession of commanders from higher to lower levels through which command is exercised. The Military Chain of Command comprises the strategic, operational and tactical levels of command each represented by a Commander (Cdr) and his/her Headquarters (HQ). Under specific circumstances (e.g. size of the operation / mission, limited spectrum of tasks), responsibility for different levels of command might be taken over by one Cdr / HQ. Key Commanders and HQs are defined below:

Military Strategic Level

• The Operation Commander (OpCdr) is a Commander nominated by the Council or the PSC to conduct a defined military operation and authorised to exercise operational command or operational control over assigned forces. This includes inter alia the responsibility for developing the Concept of Operation (CONOPS) , Operation Plan (OPLAN) ROE, SOR and to perform his/her functions during the Force Generation Process. Moreover, the OpCdr will co-ordinate the deployment, sustainment, re-deployment and termination of the EU-led military force.

• The Operation Headquarters (OHQ) is the static headquarters which supports the OpCdr, located outside the Area of Operations (AOO).

• The Military Planning and Conduct Capability (MPCC) is the static C2 structure at the military strategic level which supports the Dir MPCC , located outside the Area of Operations (AOO).

• The Director MPCC (Dir MPCC) will exercise the functions of commander (under Decision (CFSP)2015/528) and is responsible for the planning and conduct of all EU non-executive military CSDP missions and one executive military CSDP operation limited to EU Battlegroup size operation at the military strategic level.

This includes among others the responsibility for developing the Concept of Operation (CONOPS), the Mission Plan (MPLAN)/ the Operation Plan (OPLAN), ROE, SOR and to perform his/her functions during the Force Generation Process. Moreover the Dir MPCC will co-ordinate the deployment of forces, the sustainment, the termination of the non-executive military mission and/or the executive operation, and the re-deployment of the EU-led military force.

Operational Level

• The Force Commander (FCdr) is the commander of an EU-led military force appointed by the Council or the PSC, acting under the authority of the OpCdr / Dir MPCC to execute a military operation and authorised to command assigned forces within a designated AOO.

• The Force Headquarters (FHQ) is the HQ of an EU-led military force deployed to the AOO. It supports the FCdr in planning, conducting and exercising C2 over the forces deployed within the AOO.

Tactical level

• Component Commanders of an EU-led military force deployed to the AOO: The Component Commanders (CCs) designated by the FCdr or higher authority are given the authority necessary to accomplish missions and tasks assigned by the FCdr. CCs (Air, Land, Maritime and Special Ops), are responsible for making recommendations to the FCdr on the employment of their forces and assets, and for planning, co-ordinating and conducting operations. Additional CCs could be designated for specific functions.

Operational and tactical level

• At the operational and tactical level in theatre, non-executive military CSDP missions shall, when established, be led by an EU Mission Force Commander (MFCdr), who shall act under the command of the Director of the MPCC in exercising the functions of missions' commander (ref. S).

• The Mission Force Headquarters (MFHQ) is the HQ of an EU-led military force deployed to the AOO. It supports the MFCdr in planning, conducting and exercising C2 over the forces deployed within the AOO.

Military C2 structure

The EU-led military operational chain of command is based on vertical top to bottom responsibility. This implies that each level of command is responsible for establishing the necessary links to the immediate subordinate level.

To allow an EU-led military operation or mission to be conducted effectively and efficiently, C2 arrangements should enable the passage of information in a timely manner throughout the chain of command. This will facilitate timely decision taking and implementation at appropriate levels. In addition, C2 should cater for the required co-ordination and co-operation with other actors.

A single, identifiable and clear military chain of command is imperative. The exact C2 arrangements for any EU-led military CSDP operations/missions are mission-dependent. In principle, the chain of command for EU-led military CSDP operations/missions will encompass three levels of command, below the Political Strategic Level.

The EU command and control (C2) structure is directed by political bodies composed of member states' representatives, and generally requires unanimous decisions. As of April 2019:

Liaison:       Advice and recommendations       Support and monitoring       Preparatory work     

Political strategic level:[5]

ISS

EUCO Pres. (EUCO)

Chain of command

Coordination/support

SatCen

CIVCOM

HR/VP (FAC)

INTCEN

HR/VP (PMG)

HR/VP (PSC)[6]

CEUMC (EUMC)

CMPD

DGEUMS[3] (EUMS)

Military/civilian strategic level:

Dir MPCC[3] (MPCC)

JSCC

Civ OpCdr CPCC[1]

Operational level:

MFCdr[4] (MFHQ)

HoM[1]

Tactical level:

CC[2] Land

CC[2] Air

CC[2] Mar

Other CCs[2]

Forces

Forces

Forces

Forces

¹ In the event of a CSDP Civilian Mission also being in the field, the relations with the Civilian Planning and Conduct Capability (CPCC) and its Civilian Operation Commander (Civ OpCdr), as well as the subordinate Head of Mission (HoM), are coordinated as shown.

² Other Component Commanders (CCs) and service branches which may be established.

³ The MPCC is part of the EUMS and Dir MPCC is double-hatted as DGEUMS. Unless the MPCC is used as Operation Headquarters (OHQ), either a national OHQ offered by member states or the NATO Command Structure (NCS) would serve this purpose. In the latter instance, Deputy Supreme Allied Commander Europe (DSACEUR), rather than Dir MPCC, would serve as Operation Commander (OpCdr).

⁴ Unless the MPCC is used as Operation Headquarters (OHQ), the MFCdr would be known as a Force Commander (FCdr), and direct a Force Headquarters (FHQ) rather than a MFHQ. Whereas the MFHQ would act both on the operational and tactical level, the FHQ would act purely on the operational level.

⁵ The political strategic level is not part of the C2 structure per se, but represents the political bodies, with associated support facilities, that determine the missions' general direction. The Council determines the role of the High Representative (HR/VP), who serves as Vice-President of the European Commission, attends European Council meetings, chairs the Foreign Affairs Council (FAC) and may chair the Political and Security Committee (PSC) in times of crisis. The HR/VP proposes and implements CSDP decisions.

⁶ Same composition as Committee of Permanent Representatives (COREPER) II, which also prepares for the CSDP-related work of the FAC.

Command options

The choice of Command Option, including the identification of the Operation Commander, will be made by the Council as early as possible, but at the latest when selecting a Military Strategic Option (MSO), in order to better ensure the continuity of the military planning process. The EU has two basic Command Options: autonomous EU-led military CSDP operations and missions, or EU-led military CSDP operations with recourse to NATO common assets and capabilities through the establishment of an EU OHQ at SHAPE.

Autonomous EU-led Military operations and missions

At the military strategic level the main C2 options for executive operations are using either a national OHQ offered by MS (ref. J), or other ad hoc national OHQs (preferably in line with the EU Framework Nation Concept (ref. L or the MPCC , in particular, where additionally a joint civil / military response is required and where no national HQ is identified. The MPCC will continue to be responsible for C2 non-executive military missions.

At the operational and tactical levels the EU may have recourse to HQs (national and multinational) listed in the FC or generate a specific HQ able to conduct joint operations.

EU-led military operations with recourse to NATO Common Assets and Capabilities7

The North Atlantic Treaty Organisation Command Structure (NCS) has the ability to provide the full range of C2 assets and capabilities for an EU-led military CSDP operation in the framework of the tasks defined in the TEU. Ref. P identifies the main elements of the range of command options for EU-led military CSDP operations and describes command arrangements.

Detailed command arrangements for an EU-led military operation with recourse to NATO common assets and capabilities, and the chain of command best suited for the planned mission, will be agreed following consultations between the PSC and the North Atlantic Council (NAC), taking into account European Union Military Committee (EUMC) and NATO Military Committee advice. The EU OHQ would be established at Supreme Headquarters Allied Powers Europe (SHAPE).

The early selection of an OpCdr from NCS must be addressed simultaneously with the provision of an OHQ. In addition, the eligibility and selection of HQs at the various levels must be examined for coherence with the standard EU command structure and procedures, taking account of the functions required and the resource implications.

There is a possibility of a mixed C2 structure composed of HQs provided by MS and by NATO for an EU-led military operation using NATO common assets and capabilities. In this case, the military implications would need to be thoroughly examined by the EU and NATO in order to ensure operational effectiveness and coherence.

C2 and related responsibilities

Permanent actors at the Political Strategic level with C2-related responsibilities

Permanent actors at the Political Strategic level with C2-related responsibilities are:

Council

The Council has the overall responsibility for the conduct of EU-led military CSDP operations and missions, including the decision to take action as well as to invite Third States, in particular those having a Framework Participation Agreement (FPA) with the EU and regularly contributing to CSDP missions and operations (ref. GG). Related responsibilities can be summarised to include the following:

• approval of the CMC;
• selection of the MSO;
• Decision to establish the Operation / Mission, including the appointment of the OpCdr / Dir MPCC designation of the EU OHQ/MPCC, and, if appropriate the FCdr, MFCdr, the FHQ, the MFHQ, the (F)HQ and the CC and CCHQs;
• approval of the CONOPS, including a Provisional Statement of Requirements (PSOR);
• approval of the OPLAN / MPLAN and the Rules of Engagement (ROE);
• decision to launch, extend or terminate the operation / mission;
• changing of the objectives of the operation / mission.

In specific circumstances, simplified ('fast track') procedures may be applied (ref. Q).

Political and Security Committee

The responsibilities of the Political and Security Committee (PSC) concerning EU-led military CSDP operations and missions are defined in the TEU and its TOR (Ref. H). They can be summarised to include the following:

• exercise of political control and strategic direction, under the responsibility of the Council and the HR;
• provision of the political and strategic framework and guidance for the development of planning documents;
• provision to the Council on the CMC;
• evaluation and recommendation of prioritised MSOs (including the proposed military C2 structure);
• approval of the Crisis Information Strategy;
• submission to the Council of the CONOPS and OPLAN / MPLAN;
• the PSC may be authorised by the Council to take further decisions on its behalf, including amendments to the Chain of Command and the planning documents, as well as review and adaptation of the mission. However, the powers of decision with respect to the objectives of the EU-led military CSDP operations and missions shall remain vested in the Council.

High Representative

The Council will determine the role of the High Representative (HR/VP) in the implementation of the measures falling within the political control and strategic direction exercised by the PSC, which the HR/VP may chair in times of crisis.

Military Committee

The responsibilities of the European Union Military Committee (EUMC) concerning EU-led military CSDP operations and missions are defined in ref. R. The EUMC provides the PSC with military advice and recommendations on the planning and the conduct of EU-led military CSDP operations. It exercises military direction of all related military activities. The EUMC approves the Initiating Military Directive. The Chairman of the EUMC (CEUMC) acts as EUMC spokesman in the PSC and assists the Chairman of the Committee of Contributors (CoC). The CEUMC further acts as the primary point of contact (POC) to the OpCdr / Dir MPCC.

Military Staff

The responsibilities of the European Union Military Staff (EUMS) concerning EU-led military CSDP operations / missions are defined in ref. K and FF and described in F, Q and U. Under the direction of the EUMC, the EUMS conducts military planning at the Political Strategic level within the full range of the tasks defined in the TEU. This is underpinned by military assessment and analysis conducted in accordance with priorities set by the DGEUMS. The EUMS further supports the EUMC in monitoring the proper execution of the operation. The EUMS has a responsibility to liaise and co-ordinate closely with an activated OHQ. This may include, when necessary, the exchange of liaison officers or planning teams between the EUMS and the OHQ in order to enable the smooth transition of military planning and appropriate exchange of information during the execution phase of the operation / mission. In executing these tasks the EUMS works in close conjunction with the appropriate services of EEAS.

Non-permanent actors at the Political Strategic level with responsibilities related to EU-led military operations / missions

Non-permanent actors at the Political Strategic level with responsibilities related to EU-led military operations / missions are:

Committee of Contributors

The responsibilities of the Committee of Contributors (CoC), are defined in ref. V and described in ref. U and W. Although not in the chain of command, the CoC plays a key role in the day-to-day management of an EU-led military CSDP operation / mission, addressing questions relating to the employment of the forces in an operation. The PSC will take account of the views expressed by the CoC. All EU MS are entitled to be present at CoC discussions irrespective of whether or not they are taking part in the operation / mission, but only contributing states will take part in the day-to-day management of EU-led military operations / missions. The CoC is especially important for participating third countries and its meetings need to provide timely and relevant information.

Special Representative

The Council may appoint an EU Special Representative (EUSR) with a mandate related to the specific crisis or region. This mandate may include specific responsibilities in relation to EU-led military operations / missions linked to the co-ordination of EU-related activities in the region. The CMC should underline the EUSR's tasks to help ensure coherence between EU actors. The Council Decision may include a provision entrusting the EUSR with a role in co-ordinating EU efforts, without compromising the military unity of command principle.

Military Strategic Level (OpCdr/OHQ)8

The OpCdr's main responsibilities inter-alia are:

• to establish (including manning) ,operate the EU OHQ and facilitate its closure;
• to conduct the Operations Planning at the Military Strategic Level (i.e. CONOPS, SOR, OPLAN and ROE);
• to perform his functions during the Force Generation Process (ref. G);
• to participate in the Info Strategy Team and to plan military information activities, in line with ref. X;
• to conduct EU-led military CSDP operations at the Military-Strategic Level of command;
• to co-ordinate the deployment of forces, the termination of the operation and the re-deployment of forces;
• to report to the EUMC at regular intervals;
• to report to the PSC and CoC, using the CEUMC as the primary point of contact as necessary;
• to co-ordinate, where appropriate, with the following entities/actors:
  • MS and non-EU TCNs
  • Civ OpCdr/CPCC as required
  • EUSR and EEAS
  • EU SATCEN
  • IOs
  • European Commission.
• to conduct, where mandated, Key Leader Engagement (KLE) at strategic level with relevant EU and non-EU stakeholders, within means and capabilities.
• to request, as required, and in accordance with ref. Y, intelligence support from EUMS Int (available SIAC products, liaison with MS Defence Intelligence Organisations, RFI flow facilitation, INT expertise).
• the management and mitigation of risk, based, inter alia, on the existing permanent (24/7) threat and risk assessment and situational awareness capabilities;
• the development of strategic direction and guidance to support the Force Commanders at the operational and tactical level in theatre, as appropriate;
• the responsibility in relation to budget and procurement (responsibilities of Operation Commanders under the Athena mechanism) and conducting force generation (including third states' contributions);
• the mission assessment to continuously ensure the missions are operating in line with the military strategic desired end state and objectives;
• providing an input to the Lessons Learned database for EU Military CSDP operations/missions;
• supporting the coordination / improvement of synergies in the Areas of Operations (AOOs) with other relevant actors.

For the conduct of an EU-led military CSDP operation, the OpCdr will be given the appropriate Command authority, allowing him sufficient flexibility (up to OPCON over forces by Transfer of Authority (TOA) from the contributing MS and non-EU TCN) over forces by Transfer of Authority (TOA) from the contributing MS and non-EU TCN.

Military Strategic Level (Dir MPCC/MPCC)

The MPCC is the static C2 structure at the military strategic level outside the area of operations and is responsible for the planning and conduct of the non-executive military CSDP missions and one executive military CSDP operation, limited to EU Battlegroup size.reinforced with Augmentees. The MPCC shall support the Director of the MPCC in exercising his or her functions as commander, for the planning and conduct of the missions/operations, including the building up, launching, sustaining and recovery of Union forces. When a mission/operation is established, the Dir MPCC will exercise the functions of OpCdr. While respecting the prerogatives of national mandates and caveats Director MPCC will have the appropriate command authority (up to OPCON over forces by Transfer of Authority (TOA) from the contributing MS and non-EU TCN) to assume the necessary functions, roles and tasks in order to exercise C2 at the military strategic level for the planning and conduct of the EU military missions/operation, including:

• operations planning at the military strategic level (e.g. development of the CONOPS/OPLAN/MPLAN, ROE, SOR) and to perform his/her functions during the Force Generation Process;
• the mission conduct (execution) at the military strategic level of command, including:
  • the operation of the MPCC;
  • the intensified coordination between the MPCC and the Civilian Planning and Conduct Capability (CPCC) through the Joint Support Coordination Cell (JSCC)9.
  • the co-ordination of the establishment and launch of the non-executive military CSDP missions and one executive military CSDP operation limited to EU Battlegroup size, the deployment of forces, the termination of the operation/mission and the re-deployment of forces;
  • to report to the EUMC at regular intervals;
  • the direct responsibility vis-à-vis the Council to report to the PSC and the Committee of Contributors on all operational matters related to the missions. CEUMC remains as the primary point of contact as necessary;
  • the management and mitigation of risk, based, inter alia, on the existing permanent (24/7) threat and risk assessment and situational awareness capabilities;
  • the development of strategic direction and guidance to support the Mission Force Commanders / Force Commanders at the operational and tactical level in theatre, as appropriate;
  • the responsibility in relation to budget and procurement (responsibilities of Operation Commanders under the Athena mechanism) and conducting force generation (including Third States contributions);
  • the assessment to continuously ensure the operation/missions are operating in line with the military strategic desired end state and objectives;
  • providing an input to the Lessons Learned database for EU Military CSDP operation/missions;
  • supporting the coordination / improvement of synergies in the Areas of Operations (AOOs) with other relevant actors;
  • interface for coordination and liaison with relevant civ-mil stakeholders in crisis management matters outside the AOOs and at the EU institutional level, such as:
    • MS and non-EU TCNs,
    • CivOpsCdr/CPCC as required,
    • EUSR and EEAS,
    • EU SATCEN,
    • IOs,
    • European Commission
  • the conduct, where mandated, of Key Leader Engagement (KLE) at strategic level with relevant EU and non-EU stakeholders, within means and capabilities;
  • the request for intelligence support from EUMS INT (available SIAC products, liaison with MS Defence Intelligence Organisations, RFI flow facilitation, INT expertise);
  • the call on other EUMS Directorates for functional expertise where needed.

Whilst he/she will retain responsibility for the Missions/Operation, it is within the remit of the Director of the MPCC to delegate tasks as appropriate.

Operational Level (FCdr/FHQ)

The FCdr and the FHQ will deploy in the AOO, ashore or afloat. The FCdr will be responsible for:

1. providing collaborative planning from a very early stage, in order to assist the development of the CONOPS and the OPLAN at the military strategic level;
2. recommending the most appropriate FHQ structure, the apportionment of forces to CCs and the employment of forces;
3. activating, deploying, establishing, operating and re-deploying of the FHQ;
4. planning and developing the OPLAN at the Operational level and issuing the respective Operation Order (OPORD);
5. conducting the operation in the AOO, directing and controlling the CCs;
6. conducting Reception Staging Onward Movement & Integration of forces (RSOI) (ref. Z);
7. co-ordinating, where appropriate, with

• non-EU entities and actors in the AOO (Host Nation, IOs, NGOs)
• EU SATCEN
• MS Embassies and EU Delegations, EUSR and EU HoM.
• other forces in the AOO.

1. conducting, where mandated, Key Leader Engagement (KLE) at operational level with relevant EU and non-EU stakeholders, within means and capabilities.

• For the conduct of the operation the FCdr will be given the appropriate Command authority, granting him sufficient flexibility (normally OPCON).
• Unless CCs/CCHQs are established, the FCdr/FHQ will assume the tactical tasks described below.

Operational and Tactical Level (MFCdr/MFHQ)

At the Operational and Tactical Level in theatre, non-executive military missions shall, be led by an EU MFCdr, who shall act under the command of the Director MPCC exercising the functions of mission's commander. In theatre, when a mission is established, a Mission Force Headquarters shall assist the EU Mission Force Commander.

Tactical Level (CCs/CCHQ/Forces)

a. When CCHQs are established, the CCs are responsible for commanding and controlling the forces apportioned to them. The Land Component Commander (LCC), Air Component Commander (ACC), Maritime Component Commander (MCC) and possible other component commander (e.g. Special Operations Component Commander - SOCC), are normally located in their respective CCHQ, in the AOO either ashore or afloat. b. For the conduct of the land, air and maritime operations in theatre, the LCC, ACC, and MCC respectively, will be given appropriate Command authority. c. For better co-ordination and more efficiency it might be useful to collocate CCHQs with the FHQ. If CCHQs are not collocated with the FHQ CC, representatives / liaison elements should be provided.

Coordination and liaison

Liaison will be established by Commanders at all levels in order to facilitate the necessary co-ordination and collaboration. As required, they link the military chain of command to other entities as shown in the diagram below. The diagram takes into account the two different categories of actors, on the left the possible non-EU entities and actors and on the right the possible MS and EU entities and actors. Ideally, clearly defined authorization for communication and general information exchange with the respective entities as well as identified actors should be implemented prior to the launch of an operation.

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The EU may use various instruments in response to crises. Those operating in the JOA (military, police or civilian) may be subject to different decision-making procedures. An appointed EUSR may be given a strong coordinating role designed to achieve coherence. However the co-ordination mechanisms should always respect the integrity of the military chain of command.

Integrated Approach:

• The implementation of the Integrated Approach by military and civilian actors of the EU is key to achieving sustainable effects in CSDP operations and missions. Civil-Military co-ordination (CMCO)10 (ref. BB) in EU crisis management, in the field of CSDP, is understood to encompass both civil-civil and civil-military co-ordination internal to the EU actors. It is also understood to be required at all levels of EU Crisis Management. CMCO must not be confused with Civilian Military Co-operation (CIMIC). CIMIC will also need to take into consideration the overall EU Co-ordination of all EU crisis management instruments and EU-led military forces may be authorised to assist EU civil bodies in the execution of tasks in support of independent organisations or populations.
• The co-ordination between the OpCdr / Dir MPCC and EU civilian actors will be ensured through modalities defined on a case-by-case basis and might include the exchange of liaison officers and/or staff-to-staff contacts, without affecting the freedom of action of the OpCdr / Dir MPCC in the fulfilment of his mandated tasks.
• At the operational and tactical levels, co-ordination with EU civilian actors within the JOA is ensured through arrangements to be defined on a case-by-case basis between the EU-led military forces and EU civilian representatives, e.g. the EUSR, EU HoM, EU Delegations and/or Commission representatives.

Guidance and reporting

During the conduct of EU-led military CSDP operations/missions, C2 will be exercised providing guidance and reporting within the EU chain of command. The PSC provides strategic direction to the OpCdr / Dir MPCC through the CEUMC as the primary Point of Contact.

Based on guidance received, the EEAS (including the EUMS) will provide the OpCdr / Dir MPCC with:

• updates on the political situation;
• information on other EU activities of relevance to the operation;
• other relevant information.

The reporting by the OpCdr / Dir MPCC will follow modalities to be defined on a case-by-case basis in the IMD and developed in the OPLAN or MPLAN. They may include:

• significant successes or failures of EU-led forces;
• update/assessment of the situation and estimate on short, medium and long term developments, including relevant parties and own forces;
• casualties from EU-led forces and/or from among the civilian population;
• suspected crimes against international humanitarian law and crimes against humanity;
• new and significant deployment or redeployment of EU-led forces;
• proposals on military aspects of an exit strategy;
• proposals/contribution on the adjustment of the military operation/mission;
• proposals/contribution on the transition of the operation from military to post-conflict management;
• co-ordination related to other EU-actors;
• any other intelligence or information of interest.

OpCdr / Dir MPCC is responsible for the definition and application of the modalities of information exchange within the military chain of command, taking also into account the EU principles for security information management.

Requirements for headquarters

Common requirements for OHQ/MPCC and FHQ include:

• the EU OHQ/MPCC and EU FHQ should be both combined and joint headquarters, in accordance with operational requirements;
• the HQs for the EU chain of command will be activated and augmented, in accordance with ref. K, M and CC, to reflect the required multinationality (ref. Q);
• EU concepts and procedures must be applied;
• HQs at all levels of the EU chain of command will be provided, where appropriate, together with dedicated CIS and staff support (ref.CC).

Specific requirements for the EU OHQ/MPCC and EU FHQ are reflected, respectively, in the EU OHQ SOPs/MPCC SOPs and the EU FHQs SOPs, and EU OHQ/MPCC and FHQ Manning Guide (Ref. M, U, and W)11.

Besides the requirements mentioned above, the characteristics and context of HQs for EU-led military CSDP operations and missions may influence the design of an actual EU military chain of command. Therefore the choice of an HQ for the chain of command of a specific EU-led military CSDP operation/mission will be made on a case by case basis.

Requirements for MFHQ will be mission and context dependent, but should include the following:

• Application of EU Concepts and Procedures to their maximum extent;
• CIS support from EEAS to the MFHQ/FHQ in order to ensure communication between the MPCC and the MFHQ/FHQ to be deployed.

Interoperability

In advance, every effort should be made to evaluate and assure the interoperability of forces that could be assigned to an EU-led military CSDP operation/mission. One of the early tasks of commanders, at all levels, is to assess the degree of interoperability between the HQs and forces and to integrate all participating units.

Other aspects of interoperability:

• Interoperability will respect the established rules for the exchange of classified information and the principle of inclusiveness.
• Compatibility with NATO (e.g. NATO Standardisation Agreements (STANAGs) and Allied Publications (AP)) should be sought to the maximum extent possible for all Member States, in an inclusive and transparent manner, fully utilising the provisions of the Article 5b of the agreement between the EU and NATO on security information.
• Standardisation of material, resources, services and procedures have a direct impact on sustainability and effectiveness and should therefore be encouraged.

Finances

Main article: European Peace Facility

The OpCdr / Dir MPCC shall carry out his duties on behalf of Athena or other agreed financial mechanism in relation to the financing of the common costs of the operation / mission and will maintain close contacts with the Athena Administrator or the relevant agreed financial staff concerning the proposals for expenditure and contracts, as set out in ref.DD.

See also

• Structure of the Common Security and Defence Policy
• Command and control
• Structure of NATO
  • Allied Command Operations
  • Allied Command Transformation

References

• A. Consolidated version of the Treaty on European Union (official Journal of the European Union, C 326, 26.10.2012, p.13).
• B. Council Conclusions on implementing the EU Global Strategy in the area of Security and Defence, ST 14149/16, of 14 November 2016.
• C. Implementation Plan on Security and Defence (14392/16, dated 14 November 2016).
• D. Council Conclusions on Security and Defence in the context of the EU Global Strategy (Doc 13977/18 dated 18 Nov 2018)
• E. EU Concept for EU-led military operations and missions ( ST17107/14, dated 19 December 2014)
• F. EU Concept for Military Planning at the Political Strategic level ( ST 6432/15, dated 23 Feb 2015).
• G. EU Concept for Force Generation (ST14000/15, dated 11 Nov 2015).
• H. Council Decision setting up the Political and Security Committee (doc. 2001/78/CFSP, dated 22 Jan 2001).
• I. Council Conclusions on the Integrated Approach to External Conflicts and Crisis (Doc. 5413/18, dated 22 Jan 2018).
• J. Force Catalogue (FC 17) REV 2, ST 6006/18, dated 7 FEB 2018
• K. European Defence: NATO/EU Consultation, Planning and Operations (doc. 13990/1/04 rev 1, dated 7 Dec 2004).
• L. EU Framework Nation Concept ( ST15494/15, dated 18 Dec 2015).
• M. EU OHQ and FHQ Manning Guide ( EEAS01510/14, dated 16 July 2014).
• N. Council Decision on the security rules for protecting EU classified information (2013/488, dated 23 September 2013).
• O. Guidelines for Command and Control structure for EU Civilian operations in Crisis Management (doc. 9919/07, dated 23 May 2007).
• P. Identifying main elements of NATO's European Command Options for EU led Operations, (doc. MCM 028 03).
• Q. Suggestions for crisis management procedures for CSDP crisis management operations (doc . 7660/2/13, dated 18 June 2013).
• R. Council Decision setting up the Military Committee of the European Union (doc. 2001/79/CFSP, dated 22 Jan 2001).
• S. Council Decision 2001/80/CFSP, dated 22 January 2001 on the establishment of the Military Staff of the European Union (OJL 27, 30.1.2001, p.7) as amended by Council Decision EEAS (2019) 468 European Union Military Staff 5/30

EN 2005/395/CFSP, dated 10 May 2005 (OJ L 132, 26.5.2005, p.17) and Council Decision 2008/298/CFSP, dated 7 April 2008 (OJ L 102, 12.4.2008, p.25) on the establishment of the Military Staff of the European Union (doc 2008/298/CFSP, dated 7 April 2008)

• T. Council Decision 2017/971, dated 8 June 2017 determining the planning and conduct arrangements for EU non-executive CSDP missions and amending Decisions 2010/96/CFSP on a European Union military mission to contribute to the training of Somali security forces, 2013/34/CFSP on a European Union military mission to contribute to the training of the Malian armed forces (EUTM Mali) and (CFSP) 2016/610 on a European Union CSDP military training mission in the Central African Republic (EURM RCA).
• U. EU OHQs SOPs ( EEAS(2016)1616, dated 01/12/2016).
• V. Presidency Conclusions of the Nice European Council, dated 7/8/9 Dec 2000.
• W. EU FHQs SOPs (doc.DG3821/10, dated 20 Sep 2010).
• X. EU Concept for Military Information Operations ( 6917/08, dated 9 Feb 2011).
• Y. EU Concept for Military Intelligence Structures in EU Crisis Management and EU-Led Military Operations/Missions, Revision 2 ( 16361/13, dated 18 Nov 2015).
• Z. EU Concept for Reception, Staging, Onward Movement & Integration (RSOI) (doc. 9844/12 dated 11 May 2012).
• AA. Military Rapid Response Concept ( 17036/1/14 dated 8 Jan 2015).
• BB. Civil-Military Co-ordination (CMCO) ( 13218/5/06 REV 5, dated 31 October 2006).
• CC. EU Principles for EU HQs (doc. 9983/14, dated 16 May 2014).
• DD. Council Decision (CFSP) 2015/528 of 27 March 2015, establishing a mechanism to administer the financing of the common costs of European Union operations having military or defence implications (Athena) and repealing Council Decision 2011/871/CFSP, dated 19 December 2011
• EE. EUMC Glossary of Acronyms and Definitions (updated yearly).
• FF. Council Conclusions on the European Union Military Staff (EUMS) Terms of Reference and Organisation (9762/17, dated 9 June 2017).
• GG. Council Conclusions on Security and Defence in the context of the EU Global Strategy (Doc 9178/17 dated 18th May 17)
• HH. Council Conclusions on Security and Defence in the context of the EU Global Strategy (Doc 10246/18 dated 25th June 18)»
• II. EU BG Concept (13618/1/06, REV 1 EXT 1, dated 11 December 2013)

External links

• European Union Concept for Command and Control, European External Action Service

[[Category:Military of the European Union]]