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Initial United States Forces - Afghanistan (USFOR-A) Assessment

Annex D: Strategic Communication

Background

The information domain is a battlespace, and it is one in which ISAF must take aggressive actions to win the important battle of perception. Strategic Communication (StratCom) makes a vital contribution to the overall effort, and more specifically, to the operational center of gravity: the continued support of the Afghan population. In order to achieve success we must make better use of existing assets and bolster these with new capabilities to meet the challenges ahead. To date, the Insurgents (INS) have undermined the credibility of ISAF, the International Community (IC), and Government of the Islamic Republic of Afghanistan (GIRoA) through effective use of the information environment, albeit without a commensurate increase in their own credibility. Whilst this is a critical problem for ISAF, the consequences for GIRoA are even starker. GIRoA and the IC need to wrest the information initiative from the INS.

Scope

ISAF has undertaken a comprehensive assessment of StratCom objectives, policies, and capability requirements which has resulted in several key recommendations in order to achieve the mission. The command also developed a StratCom Action Plan which details those tasks and activities which must be implemented in order to put the recommendations into effect. This plan is not focused on ISAF in isolation but has been derived from a variety of other planning efforts which have set the framework for this assessment. While the primary focus was on the Afghan environment, some of the actions outlined may have a wider effect in the regional context. The planning process benefitted from the participation of StratCom experts in the 'community of interest', including HQ NATO, SHAPE, and JFC-B as well as the visiting Initial Assessment Team.

Key Findings

DEVELOPING CAPACITY

Apart from improving its own performance, ISAF needs to help ensure that GIRoA receives the necessary partnering, assistance, training and equipment to further develop their own capacity and improve performance. In so doing, we need to be careful that we do not continue to over promise and under deliver across the lines of operation. ISAF needs to be able to support both the NATO strategic centre of gravity, (the maintenance of Alliance cohesion as specified in the ISAF OPLAN), as well as ensure that GIRoA is placed at the forefront of all possible endeavors with its credibility enhanced. Over the years a consistent set of problems have been identified but not adequately addressed, primarily as a result of insufficient coordination and a lack of resources. The key for StratCom is to implement a plan based on these lessons learned. ISAF is not the sole player in the StratCom area. Success also depends on improving the currently inadequate capabilities of other non-military critical players, especially in areas outside security such as the governance, reconstruction, and development arenas.

NEW OBJECTIVES

For success, the following StratCom objectives need to be accomplished in partnership with other key stakeholders:

• Discredit and diminish insurgents and their extremist allies' capability to influence attitudes and behaviour in AFG.
• In partnership, assist GIRoA and the populace in developing a sense of ownership and responsibility for countering violent extremism in order to advance their own security, stability, and development.
• Increase effectiveness of international and GIRoA communications with the Afghan people and the IC.
• Increase AFG political and popular will to counter violent extremism and protect the operational centre of gravity, namely the support of the Afghan people.
• Enhance StratCom coordination with Higher Headquarters (HHQ) and, through them, the troop contributing nations (TCN) in order to support SACEUR's strategic center of gravity which is the maintenance of Alliance cohesion.
• Promote the capability of, and confidence in, the Afghan National Security Forces as a force for good in the country.
• Maintain and increase international and public support for ISAF goals and policies in AFG.

MAIN EFFORT

The StratCom main effort is to maintain and strengthen the Afghan population's positive perception of, and support for, GIRoA institutions and the constructive supporting role played by ISAF and the IC.

Recommendations

Change of Culture

There must be a fundamental change of culture in how ISAF approaches operations. StratCom should not be a separate Line of Operation, but rather an integral and fully embedded part of policy development, planning processes, and the execution of operations. Analyzing and maximizing StratCom effects must be central to the formulation of schemes of maneuver and during the execution of operations. In order to affect this paradigm shift, ISAF HQ must synchronize all StratCom stakeholders. Implicit in this change of culture is the clear recognition that modern strategic communication is about credible dialogue, not a monologue where we design our systems and resources to deliver messages to target audiences in the most effective manner. This is now a population centric campaign and no effort should be spared to ensure that the Afghan people are part of the conversation. Receiving, understanding, and amending behavior as a result of messages received from audiences can be an effective method of gaining genuine trust and credibility. This would improve the likelihood of the population accepting ISAF messages and changing their behavior as a result.

Win the battle of perceptions

ISAF must act to assist GIRoA in the battle of perceptions through gaining and maintaining the Afghan population's trust and confidence in GIRoA institutions. This will help establish GIRoA as a credible government. For GIRoA and ISAF to win the battle of perceptions we must demonstrably change behavior and actions on the ground - our policies and actions must reflect this reality. StratCom should take every opportunity to highlight the protection of civilians in accordance with the revised Tactical Directive dated 1 July 2009, which is a key StratCom tool.

Build AFG capacity and capability

Additional emphasis must be placed on assisting and building AFG capacity and capability so that they are better able to take the lead in StratCom related issues. Better linkages and a robust partnership must be forged with MOD and MOI spokespersons, allowing a supportive and complementary network to be developed. Increasing capacity requires an improved understanding of the environment, better procedures, and additional required equipment and training. The Government Media and Information Centre needs to be expanded to include regional nodes able to disseminate government briefings and releases throughout the region.

Post election engagement

ISAF's engagement with senior GIRoA members should be reassessed following the Presidential Elections, in order to promote the effective coordination of messaging.

Expand reach of messaging

ISAF must extend both the reach and propagation of its message delivery, together with determining the effectiveness of that message. Focus should be on identifying the optimum medium for propagation rather than just on the message alone. The following means will be evaluated:

• Commercial communications systems and systems operated by ISAF and GIRoA must be further developed with the necessary protection for communications infrastructure. ISAF should partner more effectively with the Afghan commercial sector to enhance COIN effects by empowering the population through access to telecommunications and information via TV and radio.
• The use of traditional communications to disseminate messages must be better exploited using both modern technology and more orthodox methods such as word of mouth. These messages should be delivered by authoritative figures within the AFG community, both rural and urban, so that they are credible. This will include religious leaders, maliks, and tribal elders.
• There must be development and use of indigenous narratives to tap into the wider cultural pulse of Afghanistan.
• Increased cultural expertise is required in order to enhance the development and use of StratCom messaging.
• A more comprehensive and reliable system of developing metrics for Communication Measurement of Effectiveness must be developed, to inform ISAF of the perceptions and atmospherics within AFG communities.

Offensive Information Operations (IO)

Offensive IO must be used to target INS networks in order to disrupt and degrade their operational effectiveness, while also offering opportunities for lower level insurgent re- integration. ISAF should continue to develop and implement a robust and proactive capability to counter hostile information activities and propaganda. A more forceful and offensive StratCom approach must be devised whereby INS are exposed continually for their cultural and religious violations, anti-Islamic and indiscriminate use of violence and terror, and by concentrating on their vulnerabilities. These include their causing of the majority of civilian casualties, attacks on education, development projects, and government institutions, and flagrant contravention of the principles of the Koran. These vulnerabilities must be expressed in a manner that exploits the cultural and ideological separation of the INS from the vast majority of the Afghan population.

Agile response to incidents

ISAF, in conjunction with GIRoA, must enhance its responsiveness to incidents. Subordinate echelons must have the authority and freedom to act within an agile, transparent, and unified environment. Information must be widely shared, horizontally and vertically, including with GIRoA and the IC. New Tactics, Techniques and Procedures (TTPs) must be produced to reflect a flatter command philosophy whereby subordinates are expected to act in accordance with the Commander's intent to ensure a swift, effective response to achieve the information initiative against the enemy. In particular, risk mitigation measures in the event of CIVCAS must be widely understood and practiced before the incident and accomplished in a timely manner so that we are 'first with the truth.'

Counter-IED IO focus

The C-IED IO efforts must be fully integrated into the overall StratCom strategy and structures. StratCom must focus on encouraging the population to assist in countering the scourge of IEDs. Effective messaging and offensive Information Operations (IO) are critical to this effort.

StratCom capacity

Throughout the ISAF chain of command StratCom elements must be structured and resourced appropriately, and manned at the requisite levels of expertise to achieve the desired effects. Some of these elements are known to be relatively weak in RC(N), RC(W) and RC(C) and will need augmenting. The inclusion of the critical capabilities provided by Information Operation Task Force (IOTF), Information Operation Advisory Task Force(IOATF), Media Monitoring, STRATCOM Information Fusion Network and CAPSTONE contracts within the StratCom structure should be supported as these will significantly enhance the Directorate's enabling, monitoring, and assessment efforts.

Unity of Command - Unity of Effort

ISAF and USFOR-A StratCom 10 and Public Affairs (PA) components must be fully integrated in order to provide unity of command and effort and enable coherent and rapid messaging. It will be necessary to promote the single ISAF "brand" to multiple internal and external stakeholders.

Refocus Media efforts

ISAF must re-focus its media efforts in the following specific areas:

• Migrate to a 24/7 StratCom operation
• Delegate Public Affairs (PA) release authority to the appropriate level
• Create opportunities for Afghans to communicate as opposed to attempting to always control the message
• Link regional stories back to national Afghan ones
• Concentrate on the youth and those pursuing further education¹
• Orientate the message from a struggle for the 'hearts and minds' of the Afghan population to one of giving them 'trust and confidence'
• Seek ways to reach the INS in Pakistan
• Focus media operations and subsequent analysis on context, characterization and accuracy
• Re-prioritize the policies governing practical support for media in terms of military airlift, credentialing, and embeds

Declassification Authority for ISR/WSV

There has been consistent recognition of problems in using visual imagery, particularly ISR and weapons' system video, and other operational information for StratCom purposes. Every effort must be made to identify, declassify, and exploit such material in a timely manner.

StratCom links

StratCom links to intelligence organizations must be strengthened. This will enable more effective counter-measures to hostile propaganda and provide more detailed network analysis in support of 10 targeting.

New Media

HQ ISAF must understand and adapt to the immediacy of the contemporary information environment through the employment of new/social media as well as cell phones, TV, and radio in order to promote interactive communication between Afghan and international audiences. This will involve a significant investment in technical architecture.

StratCom messengers and partners

ISAF must develop a more widely understood internal communication strategy that enables every member of ISAF to be able to clearly articulate a short narrative of what ISAF wants to achieve in Afghanistan and how it is going to do it. Every soldier must be empowered to be a StratCom messenger for ISAF.

ISAF must strengthen its partnership with relevant IC stakeholders, both within the NATO system and internationally, to improve the flow of information and cooperation both horizontally and vertically. Specifically, in theater communication efforts to coordinate between TCNs must involve the office of the Senior Civilian Representative and HHQs in order to maximize the propagation of COMISAF's intent and help protect NATO/SHAPE's strategic center of gravity in national capitals.

NATO has had consistent problems producing trained personnel in all information disciplines. Significant investment is required to solve both a short-term problem and generate a longer term solution to producing the necessary fully-qualified personnel.

1 - 70% of the Afghan population are under 22 years old.