DTIC ADA515144: Mastering the Art of the Possible. The Air Force Special Operations Command

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by  Defense Technical Information Center

Mastering the Art of the Possible
The Air Force
Special Operations Command
By DOn AlD c . wursTEr
In November 2008, a flight of four CV–22 relief operations. While in Mali, Malian and
Ospreys, along with corresponding mainte- U.S. military personnel conducted Medical
nance/logistics support, deployed to Bamako, Civic Action Programs and Veterinary Civic
Mali, in Africa to participate in Flintlock—the Action Programs aimed at providing select
premier exercise to support future training and medical and veterinary services to rural com-
engagement in the Trans-Saharan region. Not munities in Mali.1
only was this exercise significant in the fact This story provides only one example
that it was the first time U.S. Air Force Special of how AFSOC continues expanding our
Operations Command (AFSOC) CV–22 air- capabilities to provide the combatant com-
craft had deployed across the Atlantic Ocean to mander with the full spectrum of specialized
support special operations forces (SOF), but its airpower. Providing airlift for access to rural
importance lay in the achievement of combat- populations represents a paradigm shift in
ant commander objectives: assisting partner thinking about how SOF airpower is applied
nations in establishing and developing military to meet the commander’s objectives. The
interoperability and strengthening regional context of irregular warfare is expanding per-
relationships in support of future combined ceptions of the term the art of the possible.
humanitarian, peacekeeping, and disaster
Lieutenant General Donald C. Wurster, USAF, is
Commander, U.S. Air Force Special Operations
Command.
Air Force
S.
U.
Malian and Senegalese forces train on 8th Special Operations
Squadron CV–22 Osprey
80 JFQ / issue 56, 1st quarter 2010 ndupress.ndu.edu
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WURSTER
U.S. Air Force Special Operations threats tends to exist where there are common problem: access to the hinterlands in order
Command, the air component of U.S. Special elements that can form the basis for grievance to extend the rule of law. In the IW context,
Operations Command (USSOCOM), is against a government’s legitimacy: poverty, the mobility provided by airlift is key to
engaged in operations around the world. perceived social injustice, corruption, lack building legitimacy, yet hinterland access
Many of these operations support engage- of infrastructure, inability to project the rule has proven a challenge in the past. However,
ment strategies aimed at building relation- of law throughout a nation’s sovereign lands, with the addition of light and medium
ships that will prevent future conflict within an appealing alternate vision of governance, mobility aircraft, AFSOC has anticipated
a region. We employ a dedicated force that competing ideologies, and historic ethnic and and answered the need for austere mobility.
executes the mission areas of SOF mobility; tribal conflict. Along with these causes for The leased and purchased airframes chosen
shaping and stability operations; battlefield grievance or greed that invite instability, other to meet the specific needs of theater require-
air operations; intelligence, surveillance, and conditions typically exist that foster the growth ments and supported SOF forces are based
reconnaissance (ISR); precision strike; agile of insurgent groups, such as sanctuary, outside on commercial, off-the-shelf models and,
combat support; command and control; and funding sources, and access to ungoverned or by virtue of their ubiquity in the civilian
information operations. At the same time, we undergoverned spaces. market, can offer a great range of nation
are pushing the innovation and technology This list describes conditions typically access options.
envelope to develop responsive, relevant, and found in states that could be described as Three new squadrons have been
sustainable capabilities to achieve combatant occupying the “bottom strata” of interna- assigned this mission. Within 2 months of
commander goals within the context of a tional economic development standards for activation of the first of these tailored theater
dynamic security environment. gross national product, unemployment, high mobility squadrons in 2008, aircraft arrived
As an adaptive learning organization, mortality rates, and low individual income. in the Pacific for use by joint task force
AFSOC’s understanding of the nature of this Because insurgent groups formed under such commanders in U.S. Pacific Command. By
dynamic environment has been the catalyst to circumstances tend to tap into extremely June 2009, additional medium-lift aircraft
modify our approach to warfighting. In short, complex social and cultural conditions, they were flying near-daily missions in support
we have evolved our organization and its capa- are inherently complex adaptive systems. of U.S. Southern Command and U.S. Africa
bilities to remain a step ahead in an environ- This interactive complexity inherent in Command requirements, providing airlift for
ment where the only real constant is change. human groups fundamentally differs from up to 25 passengers or 9,000 pounds of cargo.
structurally complicated systems, such as an With their short takeoff and landing capabili-
Nature of the environment enemy Integrated Air and Missile Defense ties suitable for small, remote airfields, these
Since the terror attacks of 9/11 and our System, and requires a different approach.4 aircraft provide the combatant commander a
subsequent experiences in Operations Endur- What was once airpower’s forte—defeating SOF presence in areas previously inaccessible.
ing Freedom and Iraqi Freedom, our nation
has witnessed forms of warfare that are the
the nature of subnational threats is an extension of the places
portent of future conflict. The concept that
and conditions that generate them
the central threat for the foreseeable future
will be of an irregular nature has been recog-
nized by Secretary of Defense Robert Gates in structurally complicated systems such as This new capability in the combatant com-
the 2008 National Military Strategy and has enemy air defense systems—remains a criti- mander’s toolkit extends reach and influence
subsequently been embraced by AFSOC and cal capability even though it is now a problem beyond the airfield limitations of larger, more
the Services at large.2 that we are seemingly less likely to face in the traditional airlift.
Irregular warfare’s (IW’s) expected near future. Instead, a new requirement has In addition to expanding the austere
prominence has sparked a paradigm shift in emerged: addressing and adapting to chal- mobility capability, AFSOC is placing high
how AFSOC regards the threat environment. lenges of the human condition. Today, along emphasis on recapitalization of the MC–130
Previous thinking about the employment of with our kinetic ability to deliver “hard” fleet. All MC–130 variants continue as the
SOF tended to focus efforts within a context military power, AFSOC has internalized the workhorses for SOF movement of troops
of nation-state conflict, counterproliferation, concepts of soft power by honing skills for and resupply. This recapitalization effort
and counterterrorism. Tomorrow’s security both coopting and coercing. This is our new will modernize both our Active-duty and
challenge will likely have less focus on nation- security challenge: how can we as Airmen air Reserve airlift fleets, improve sustain-
state peer competitor conflict, and more of an help to prevent or deter future conflict, and ability, and expand AFSOC aerial refueling
emphasis on irregular challenges and issues at what capabilities can we develop and use to capabilities.
the subnational level. operate in the austere challenging environ- Future SOF mobility concepts to address
The nature of these subnational threats ments our mission requires with our available high-end threats will continue to expand
is an extension of the places and conditions total force partners? global accessibility for the warfighter. The
that generate them. Irregular threats, which next-generation mobility platform needs to
can become regional threats impinging on SOF Mobility provide the capability to execute long-range
U.S. national interests, develop within an The first part of the answer has to deal clandestine infiltration, exfiltration, and
environment that facilitates their growth.3 with environments where instability and resupply missions to conduct the full range of
Fertile ground for the development of these conflict are most likely to share a common special operations.
ndupress.ndu.edu issue 56, 1st quarter 2010 / JFQ 81
SPECIAL FEATURE | Air Force Special Operations
Shaping and Stability Operations and aid, which help reduce the likelihood of the squadron size in just the past 3 years,
A dangerous combination that can instability. with the potential to double again in the near
threaten regional stability is a partner nation Beyond partner nation engagement, future.
that has violent extremists in its midst (or AvFID personnel help build the compat-
conditions exist for them to thrive), has the ibility necessary for coalition air operations Battlefield Air Operations
will to suppress or defeat them, yet lacks the at the intrastate level. To execute the mission One of the greatest challenges facing
capacity to do so. Culturally astute, language- of building partnership capacity, 6th SOS an air component engaged in an irregular
trained combat aviation advisors from the 6th personnel, who represent over 30 different war is one of integration with ground forces.
Special Operations Squadron (SOS) execute Our Battlefield Airmen of the 720th Special
the aviation foreign internal defense (AvFID) Tactics Group provide the critical link between
the next-generation mobility
mission, providing unique capabilities to SOF ground forces and the decisive effects
platform needs to provide the
develop and maintain relationships, shape airpower can provide. The Battlefield Airmen
capability to execute long-
the environment, promote regional stability, career fields in AFSOC are combat controllers,
and build partner nation capacity. Habitual range clandestine infiltration, pararescuemen, special operations weather-
training relationships fostered by the 6th SOS exfiltration, and resupply men, and the latest addition: the terminal
allow access, presence, persistence, and influ- missions attack control party. AFSOC’s newest unit
ence in regions that might otherwise fall prey of Battlefield Airmen, the 17th Air Support
to insurgent groups. A unique quality that the Operations Squadron, provides dedicated Joint
AvFID unit possesses is the ability to operate career fields, train on a variety of domestic Terminal Attack Controller support to the U.S.
with a reduced signature, thus mitigating and international airframes while providing Army Rangers and Special Forces units. Our
concerns by some partner nations about training expertise that ranges from aircraft Battlefield Airmen, Active duty and assigned
the perceptions within their populace when maintenance to security, pilot training, sur- Air National Guardsmen, are heavily deployed
ground troops from an outside nation are vival, and life support. The AvFID mission is to meet the insatiable need for their unique
present. AFSOC’s “signature management” is in high demand. The increased requirement skills—whether controlling aircraft, conducting
an enabling capability in retaining America’s from combatant commanders has sparked a personnel recovery, or forecasting environmen-
access to partner nations—allowing influence period of unprecedented growth, doubling tal impacts to the mission.
Air Force Special Operations Command vice commander speaks with
Peruvian armed forces chief of staff about weapons systems aboard
AC–130U “Spooky” gunship
U.S. Air Force (Jason Epley )
82 JFQ / issue 56, 1st quarter 2010 ndupress.ndu.edu
WURSTER
All Battlefield Airmen are trained to Precision engagement precision fires to SOF in the field as well as
seamlessly integrate with any U.S. or coalition Keeping collateral damage to a bare close air support for troops in contact. AFSOC
SOF team, and to this end, they are taught minimum is a strategy that must be unfail- is currently pursuing outfitting its MC–130Ws
“joint” from day one. Not everyone is suited ingly pursued in most irregular contexts. An with the PSP as an interim measure to rapidly
for such an arduous lifestyle, and the Air errant munition’s impact can go far beyond increase its precision strike capacity until new
Force Special Operations Training Center, collateral damage or civilian casualties; the precision strike aircraft are fielded.
composed of both Active-duty and Reserve strategic communications impact can be
Components, has placed a needed emphasis devastating as well. Precision munitions then Agile Combat Support
on recruiting the right people for grooming become essential for a successful campaign. By their very nature, IW campaigns
into Battlefield Airmen and Air Commandos. AFSOC assets provide combatant com- require that the joint force establish long-
At the completion of the individual career manders with the option of precision fires term presence in multiple countries to build
field training, instruction culminates in the with long loiter times—a combination often the necessary partner nation capability and
operational readiness phase of Special Tactics needed when dealing with subjects who capacity, which extends U.S. operational
Training Squadron. Airmen learn the tactics, attempt to hide among the civilian populace. reach, is a force multiplier, and increases
techniques, and procedures of operating on The AC–130 gunship remains the weapon of options for defeating mutual adversaries.6
the ground inside enemy territory, while choice for SOF troops in close contact with With this in mind, our forces need a robust,
honing the skills that enable airpower’s
success and ultimate achievement of the joint
in an irregular context, intelligence, surveillance, and
force commander’s objectives.
reconnaissance must be used to fill in an additional dimension:
context and meaning
ISR
The irregular warfare conditions SOF
will face in the future require a different 23d Special Tactics Squadron combat
mindset and the hardware to match the needs controller in Afghanistan
of the environment. Conventional ISR activi-
ties typically provided the commander with
raw data about enemy forces—size, number,
location. In an irregular context, ISR must
be used to fill in an additional dimension:
context and meaning.5 Often, killing and
destroying are not the right ways to do busi-
ness in irregular warfare (although those,
too, are sometimes required). AFSOC has
moved ahead full force with the creation
of new squadrons equipped with the latest
unmanned ISR technology to help gain
understanding of the enemy, while maintain-
ing the ability to find, fix, and finish a target
should the mission warrant it.
Not only will AFSOC continue to
ptorrosv, ibduet U alSsSoO, aCsO ofM Ju wlyit 3h1 t, h2e0 0M9Q, w–i1t hP rthede a- S. Air Force
U.
standup of the 33d SOS at Cannon Air
Force Base, New Mexico, the advanced the enemy. When going into an engagement, agile combat support (ACS) capability to
MQ–9 Reaper joined the inventory. With its every special operator wants a gunship over- sustain the myriad new and legacy AFSOC
improved performance and firepower, the head. Their proven lethality and accuracy weapons systems deployed worldwide.
Reaper will provide unparalleled ISR and have made them the most feared aircraft in Whether employing direct combat support
close air support to the warfighter and com- the fight. To improve this critical capabil- activities such as maintenance and logistics or
batant commanders. These platforms, along ity, AFSOC is pursuing several initiatives to other functional areas such as security forces,
with the tireless dedication of the Air Com- recapitalize its aging AC–130 fleet. communications, health services, or opera-
mandos of the 11th Intelligence Squadron, are The core of the recapitalization initia- tions training, ACS plays a significant role
able to develop “pattern of life” intelligence tive’s offensive capability is the Precision in the successful accomplishment of AFSOC
on persons of interest—with the processing, Strike Package (PSP), consisting of a modular missions and is vital to the overall develop-
exploitation, and dissemination necessary set of sensors, fire control systems, and ment and defense posture of a partner nation.
to turn data into information. Actionable weapons that can be installed on a number Sometimes nonkinetic engagement
intelligence is the sine qua non of today’s IW of different aircraft types. This system is goes further in securing the peace. AFSOC
fight. designed to provide armed overwatch and deployable medical and surgical teams go to
ndupress.ndu.edu issue 56, 1st quarter 2010 / JFQ 83
SPECIAL FEATURE | Air Force Special Operations
NEW
villages to help treat people who may not have tions are executed. In the IW context, any
from NDU Press
seen a doctor for years. This type of commit- action, even down to the individual Airman,
ment can help change local perceptions of the can have strategic level impact. In this sense,
for the
United States and its military. IW is largely a “battle of the narrative,” each
Center for Technology and While medical teams are significant side working to have the more effective stra-
National Security Policy contributors, in the end ACS will often involve tegic communication effort to capture the
aircraft with unique capabilities. None of the support of the people. In AFSOC, IO dissemi-
manned or unmanned machines or the crews nation is one of the missions of the Pennsylva-
that operate them can benefit a combatant nia National Guard’s 193d Special Operations
commander without the support personnel Wing. The importance of this mission is
and maintainers who keep them operational. reflected on their ramp: the 193d is the first
AFSOC is home to world-class maintenance AFSOC unit to be equipped with the new
professionals, many of whom require special- “J-model” C–130s, upgrading their previous
ized skills that take longer to hone than the EC–130E aircraft into the EC–130J, extend-
time it takes to train the aircrew flying the ing range, altitude, and capability to reach a
aircraft. Their level of dedication and spirit of broader audience. The 193d is in high demand
teamwork are exactly what America has come and remains one of the most deployed units in
to expect from its special operations “quiet AFSOC, and the most deployed air unit in the
professionals.” National Guard.
Command and Control Adaptability Is Key to Airpower
Expanding the global footprint of the When Colonel John Boyd devised
force to meet rising theater demands necessi- his Observe, Orient, Decide, Act Loop to
tated a revised AFSOC approach to command describe how to get “inside” of an adversary’s
and control (C2), ensuring alignment with decision cycle, he was thinking about con-
emerging national military strategy priorities ventional combat against like opponents, not
of IW and building partnership capability. asymmetric and irregular threats that are
Sourcing and sustaining a professionalized complex adaptive systems. Today, “acting
C2 force for each Theater Special Operations quicker” is simply not enough. We must not
Commander (TSOC) must strike the right only be more flexible in our thinking about
operational balance of keeping pace with the future threat, but we must also adapt
programmed platform, aircrew, and operating faster than the enemy does. As worldwide
Defense Horizons 68 locations, while still remaining light, lean, security threats evolve, the capabilities within
Cyberspace and the “First Battle” in 21st- agile, and relevant to the SOF involved. As AFSOC’s missions have rapidly adapted as
century War such, the AFSOC Air and Space Operations well—and will continue to do so for the fore-
Center (AOC) is partnering with AFSOC seeable future. JFQ
Wings/Groups and all the ground control
According to authors Robert A. Miller
and Daniel T. Kuehl, the “first battle” in centers to place small professionalized C2 NOTeS
the 21st century may well be in cyberspace. nodes forward, each tailored to specific TSOC
They remind us that we have already seen mission needs. We refer to this construct 1 U.S. Africa Command Public Affairs,
hints of cyberwar in Estonia and Georgia. as Global SOF Air C2, not only because it is “Government of Mali Hosts Military Exercise in
Coordinated cyber attacks designed to enabled by common systems and tools, sup- Bamako, Mali,” available at <www.africom.mil/
shape the larger battlespace may become ported by 24/7 reachback, but also because it getArticle.asp?art=2220&lang=0>.
the key feature of the next major war. 2 The National Military Strategy of the United
is scalable to handle contingencies within, or
Given the increasing dependence of States of America (Washington, DC: The Joint Staff,
across, theaters. To further sustain this capa-
the U.S. military and society on critical June 2008), 7, 8.
infrastructures, this cyber-based first battle bility during periods of surge, a ready reserve 3 The National Defense Strategy of the United
is one that we cannot afford to lose. force is additionally being integrated into the States of America (Washington, DC: Office of the
AOC. The combined effect of these initiatives Secretary of Defense, June 2008), 2, 3.
is SOF air, communications, and C2 for the 4 See Paul K. Van Riper, “EBO: There Was No
21st century. Baby in the Bathwater,” Joint Force Quarterly 52 (1st
Quarter 2009), 83.
Information Operations 5 James S. Corum, “Getting Doctrine Right,”
Joint Force Quarterly 49 (2d Quarter 2008), 95.
In a globalized world where individuals
6 Department of Defense (DOD), Irregular
with cell phone cameras and a computer con-
Warfare Joint Operating Concept Version 1.0 (Wash-
VisVitis tiht eth NeD NUD PUr ePsrse sWs eWbe sbit sei t e nection can sway the opinion of a population,
forf omr omreo rine fionrfmoramtiaotnio onn o pnu pbulibclaictiaotniosn s ington, DC: DOD, September 11, 2007), 1, 11.
at antd nudpurepsrse.snsd.nud.eud.eudu information operations (IO) become a battle-
field dynamic under which all military opera-
84 JFQ / issue 56, 1st quarter 2010 ndupress.ndu.edu