What is a capabilities-based analysis in security cooperation?

Capabilities-Based Analysis (CBA) is a modification of the doctrine used within the DoW, but significantly streamlined and re-focused on SC with foreign security forces. This is not, by any means, the only way planners analyze problems and recommend solutions, but this method has proven successful.

For many SCOs, this may seem a daunting task. Indeed, many SCOs consist of only one or two military service members. It is entirely possible that the Partner Nation needs assistance with one of their services for which the SCO is understaffed. The first stop is to reach out to the SDO/DATT and the military attachés in the Defense Attaché Office (DAO) who understand the Partner Nation’s military and security forces. The SCO can also reach out to the CCMD and its components to bring in experts to help with analysis.

Problem analysis seeks to understand the situation in greater detail. It starts with clearly defining the “desired role” and determining what tasks are needed to achieve that role. During problem analysis, the SCO needs to define the multiple roles that the partner must play to reach the desired end state. This includes defining the primary role. A primary role is the description of a partner organization or unit and the desired actions that directly impact the threat or U.S. ability to directly impact the threat. In addition, the SCO must define the supporting role, or roles, and governance/oversight roles. A support role describes the partner organization or unit and the actions they will take to support the partner organization’s performance of the primary role. For example, a unit may conduct intelligence, surveillance, and reconnaissance or rotary wing lift support to enable the partner organization or unit to conduct interdiction operations.

A needs assessment is an evaluative study that answers questions about Partner Nation conditions that a SC initiative is intended to address and the need for such an initiative. Generally applicable to new or newly envisioned initiatives, needs assessments offer value by providing logical and disciplined methods for collecting useful information and making decisions about possible courses of action based on that information.

While SCO and DAO personnel can provide general assessments, the service component commands play a central role in assessing current capabilities. The services have technical expertise and resources to provide detailed assessments of PN capability. During the planning process, a significant effort should be made to understand the operational environment, to include PN forces, rather than an academic look focusing on open sources and intelligence information. During these assessments, service component commands should apply detailed standards evolved from their own operations (while recognizing varying tactics, techniques, and procedures) to conduct a detailed on-the-ground evaluation of each capability. The delta between required capabilities and those present in the PN forces are the “gaps.”

Once these gaps have been identified, a risk assessment must be performed. When looking at risk, the military planner must first assess the risk posed to the U.S. strategy, i.e., the planned role for the PN if the capability gap persists. If it presents little risk, there is little point in providing the capability, so limited USG resources should be applied elsewhere. If this capability gap presents a major risk to the success of U.S. strategy for the proposed PN role, this indicates a higher priority for resourcing.

Solutions analysis is the longest phase of planning. There are two primary methods for working through a capability to identify alternative solutions to fill the capability gaps: DOTMLPF-P and Joint Functions analysis.

The DOTMLPF-P method gives the planner the clearest and most concrete answers to providing a capability. To apply this paradigm, planners work through each part of DOTMLPF-P, asking what is needed within each domain. For example, to provide a reconnaissance capability, “What additional doctrine is needed? Do PN forces need to be reorganized? What training is needed? What equipment is needed?” Methodically working through DOTMLPF-P often identifies lower-cost solutions before resorting to sometimes costly and, perhaps, inappropriate solutions.

In analyzing alternative solutions, the planner must assess each solution to determine if it is affordable, feasible, and responsive. Thus, in practice, solutions analysis is often iterative with resourcing, as possible solutions succeed or fail to secure funding or manpower.

In the end, the PN must consolidate and prioritize these capabilities across all of the military services. The ability of PNs to conduct CBA and requirements integration varies widely across the globe. Many PNs will not present the SCO with a coherent plan and capability requirements. It will often be left to the country-level planner (CCMD or SCO) to integrate PN joint requirements and determine which best fulfills the strategic requirement.