Military Aviation: Issues and Options for Combating Terrorism and Counterinsurgency

Publication Date: January 2006

Publisher: Library of Congress. Congressional Research Service

Author(s):

Research Area: Military and defense

Type:

Abstract:

By all accounts, the U.S. military dominates state-on-state conflict. In the past, non-state actors (terrorists, guerrillas, drug traffickers) appeared to be less threatening to U.S. national security than the well funded, well organized, and potent armed forces of an enemy nation-state. The terrorist attacks of September 11, 2001 illustrate, however, that small groups of non-state actors can exploit relatively inexpensive and commercially available technology to conduct very destructive attacks over great distances.

Today's U.S. armed forces were developed principally with state-on-state conflict in mind. Combating non-state actors, however, presents a number of distinct challenges in terms of operations, cost, and mindset. Non-state actors generally strive to hide within civilian populations. While U.S. policy makers typically seek quick and decisive victories, non-state actors seek protracted war. Non-state actors often employ cheap, commercially available weapons, that often result in expensive responses by the United States.

Many of the weapons and methods employed today by U.S. armed forces can be used against non-state actors. Some, however, are more directly applicable than others. U.S. experience in conducting close air support (CAS), employing special operations forces (SOF) and advising friendly governments in using aviation to defend themselves from insurgents and terrorists may form a basis for building capabilities against non-state actors.
Pursuing objectives against non-state actors while "winning the hearts and minds" of local populations, or at least not alienating them, appears to be a key consideration. Recent military action has killed or captured prominent terrorists, but it is unclear whether this action actually degraded the terrorist organization's capabilities. In some cases, these actions may have even strengthened them.

There is a consensus view that airpower is one of the United States' great military advantages. Some are increasingly concerned, however, that military aviation is focused too much on the demands of fighting conventional foes to the detriment of irregular warfare (also called MOOTWA -- military operations other than war), and that the Department of Defense (DOD) must re-shape its aviation forces to increase their relevance in small wars, while maintaining the capability to win major conflicts.

Determination of DOD needs for combating non-state actors and fielding more relevant forces raises a number of acquisition issues. Some argue that DOD's overall acquisition priorities are still too oriented toward large, "high tech" acquisition programs most applicable to fighting or deterring a peer competitor in state-on-state conflict. Equally important, however, are the mindset changes that may be required to transition to a force equally adept at fighting conventional and non conventional foes. These mindset changes could include changes to training, doctrine, planning and organization. This report will be updated as events warrant.