Functions & Organisation of an MOD

1. Functions & Organisation of an MOD MDWSC Georgia Nov/Dec 2011 Colonel Andrew Cliffe

2. Agenda • Functions of an MOD. • Organisation of an MOD. • UK MOD | Head Office. • UK Defence Reform.

3. Functions of an MOD Functions & Organisation of an MOD

4. Why a Ministry of Defence? • Isn’t Defence a Technical issue? • Don’t decisions have to be taken by Experts? • What can a Ministry, staffed by civilians, add?

5. What are Defence Forces? • They are an Executive Arm of Government. • They implement policy. • They do not make policy.

6. What do Defence Forces Do? • They exist to underpin the domestic & foreign policies of the State with violence or the threat of violence. • They also have other skills that can be used in various contexts.

7. Clausewitz • What he said: • ‘War is a continuation of State policy with the addition of other means.’ • What he meant was: • ‘Any use of military forces must have a purpose’.

8. So What? • Every country (& every government) needs a Defence Policy… • just like it needs a Foreign Policy, a Law & Order Policy & a Health Policy. • Someone needs to be in charge of the policy.

9. Making Defence Policy(1) Political advice Advice about views of other nations Financial & procurement advice Defence Policy Operational & tactical advice

10. Making Defence Policy(1) • Defence is not purely a ‘technical’ subject, of interest to specialists alone… • …policy is always made in a wider context, both domestic & international.

11. Basic Functions of a MOD (1) • Helping the Minister & the government make Defence Policy. • Dealing with the parliamentary & political aspects of Defence. • Ensuring that the government’s policies are carried out. • Assisting the Minister in debates within government.

12. Basic Functions of a MOD (2) • Procurement. • Financial management. • Programme management. • Management of civilian personnel. • Organisation & efficiency. • Public relations.

13. Possible Other MOD Functions • High-level direction of operations & exercises. • Recruitment, training & administration. • Research & development. • Intelligence analysis • Direct command of units.

14. Organisation of an MOD Functions & Organisation of an MOD

15. MODs seem to vary • Foreign ministries & finance ministries are often very similar. • But defence ministries in various countries are often very different • Why is this?

16. Reasons for Variation • Geographic concentration. • Policy-Implementation boundary. • Issues of political interest. • Institutional integrity. • Defence vs single service staff.

17. Policy-implementation boundary • National Military Commander (NMC). • Planning & conducting operations. • Chief of Defence (CHOD): • Provision of military advice on Defence policy. • Levels of activity: • Strategic-Operational-Tactical. • Political interest.

18. Levels of Activity The development of activity to secure national security objectives The development of activity to secure national defence objectives Strategic Planning, management & support to accomplish strategic objectives Campaigns are planned, conducted, & sustained to accomplish strategic objectives Operational Employment of units in combat and where battles are planned and executed Employment of security organisations to deliver specific goals & outcomes Tactical

19. Political interest Low flying Physical training

20. Institutional integrity • Organisation structured to assist in achieving objectives: • Honesty | Fairness | Effectiveness. • Influences: • Previous colonial powers. • Style of wider Government. • Tradition or trend-following. • Availability of civilian cadre.

21. Three types of MOD structure • Parallel structures. • Parallel hierarchies. • Integrated hierarchy.

22. Parallel Structures • National defence HQ: technical military issues. • MOD: largely civilian | deals in policy & finance. MINISTER National defence HQ MOD

23. Parallel Hierarchies • National defence HQ: implements policy. • MOD: separate military & civilian hierarchies | arranged by functional area. MINISTER Military Civilian National defence HQ

24. An integrated hierarchy • National defence HQ: implements policy. • MOD: mixed military & civilian organisations arranged by functional area. MINISTER MOD National defence HQ

25. Integrated military advice:Anti-smuggling example

26. Collective Defence functions • Military input to defence policy. • Size & shape of each Service. • Defence programme & major equipment projects. • Operational planning. • Intelligence. • Logistics & personnel policy.

27. Individual Service functions • Efficiency & operational readiness. • Implementation of centrally-decided policy. • Management of single-Service issues. • Most recruiting & training. • Generation of lower level operational requirements.

28. Integrated military advice • Three options: • Chiefs of Staff Committee. • CHOD with small coordinating staff. • CHOD with integrated defence staff.

29. Overcoming Service Bias • Make clear that the Defence Staff is where decisions are taken: • Send your best staff. • Service in Defence Staff is pre-requisite for promotion. • Large civilian presence. • Transfer loyalty more easily.

30. Working methods | Structure

31. Role of Civilians • Civil servants cannot control the military. • However they represent the voter, citizen & tax-payer. • They represent the bigger picture. • They can work productively with the military & can direct them.

32. Role of military • They are valued technical advisors & implementers of policy. • They do not make policy, any more than a doctor makes health policy or a teacher, education policy.

33. Key questions • Which functions will be carried out in the ministry & which elsewhere? • To what extent is it realistic to have integrated military advice? • Have respective roles of military & civilians been sorted out? • Can a single harmonious working culture be created?

34. Keep the CENTRE strong • There must be clear central direction of policy & programme. • This produces a much better result than bargaining or adversarial process. • Civilians & the military must work together.

35. UK MOD | Head Office Functions & Organisation of an MOD

36. UK Defence Statistics • Employment: • 177,840: current full time trained strength | Excludes reserves. • 17,850: women. • 11,380: ethnic minority background. • 85,590: civilians. • Supporting the economy: • 300,000: UK jobs supporting Defence & related industry or Defence exports in 2007/8. • Property: • 240,000: hectares owned by the Ministry of Defence in the UK, making it one of the largest landowners, or equal to 1% of the UK & including 50,000 Service family homes, 120 training areas as well as military bases. • Budget: • £36.9 billion: Departmental Budget in 2010/11.

37. Government Context • Part of Government. • A cog in broader Government machine. • Military Assistance: • Civil authorities can request military assistance. • Cooperation: • Work with others to support their, or deliver Defence, objectives. • Public Expenditure Framework. • Budget & Strategic Objectives set through Government’s Spending Reviews | led by Treasury. • Budget approved by Parliament & subject to legal limits. • Accounts to Parliament for its performance.

38. Vision & Aim • Vision: • Defending UK & its interests. • Strengthening international peace & stability. • Acting as force for good in the world. • Aim: • Deliver security for the people of UK & Overseas Territories by defending them, including against terrorism; & act as a force for good by strengthening international peace & stability.

39. Objectives • Delivering the Defence Aim requires three Departmental Strategic Objectives to be achieved: • Achieve success in the military tasks undertaken at home & abroad. • Be ready to respond to the tasks that might arise • Build for the future.

40. Head Office History 1947-1964 1964+ Admiralty War Office Air Ministry Ministry of Aviation Ministry of Defence Unified Head Office 5 separate Depts of State

41. Defence Ministers Phillip Hammond MP

42. UK MOD Roles • Advising Government on Defence. • Making policy & setting Defence strategy. • Planning & resource allocation. • Management of Defence. • Strategic Direction of military operations.

43. Head Office Organisation

44. UK MOD Departments(1) Military staff Civilian staff 1500 1000 500 500 1000 1500 Human Resources & Corporate Services 1717 43 Chief Scientific Advisor 74 Director General Strategy 127 99 Director General Finance 1076 4 Director Defence Commercial 161 Surgeon General 792 2948 Chief of Defence Intelligence 1669 2799

45. UK MOD Departments (2) Military staff Civilian staff 1500 1000 500 500 1000 1500 Deputy Chief of Defence Staff Personnel & Training 1113 241 Director General Top level Budget 343 5 Director Central Legal services 86 3 Chief Information Officer 168 30 Director Media & Communications 106 31 Director General Security Policy & Deputy Chief of Defence Staff Operations 232 272 Deputy Chief of Defence Staff Capability 104 192

46. Civilian Skills & Benefits • Political-strategic level: • Working with politicians | other government depts & ministries | other nations | media. • Less tactical baggage. • Specialist skills: • Finance | programming | diplomacy | etc. • Continuity. • Cost (to train & ‘X’ Factor).

47. Chiefs of Staff Cttee Defence Crisis Management Organisation Hd Office Permanent Joint HQ Home In Theatre Maritime Land Air Employ military capability Prime-minister & Cabinet Joint Task Force HQ

48. Secretary of State for Defence & Ministers Principal Advisors: CDS & PUS Defence Board Members: VCDS, 2nd PUS, CNS, CGS, CAS, CDM, CSA, Fin Dir & NEDs Head Office TOP LEVEL BUDGETS Trading Funds Met Office Process Owners DSTL Royal Navy Command Land Forces Air Command Permanent Joint HQ Defence Estates Defence Equipment & Support Centre TLB Science, Innovation & Technology Etc Senior Responsible Owners Army Royal Navy Royal Air Force Defence Organisation

49. Expenditure by TLB Ch of Jt Ops (397) Science & Technology (507) All figures in £Millions Administration (2294) Maritime Command (2173) Defence Estates (2715) Land Command (6678) Defence Equipment & support (15195)

50. Defence Storage & Distribution Agency Defence Vetting Agency Met Office MOD Police & Guarding Service UK Hydrographic Office Defence Agencies • Delivering specialist services to Defence & other countries. • Some embedded within Top Level Budgets | others financed by the sale of goods or services to Defence, other Government departments & commercial customers. • Secretary of State has ultimate responsibility & is accountable to Parliament for their activities.