A prayer for Marie: creating an effective African standby force

Parameters, Winter, 2004 by Mike Denning

A Workable Alternative--The Tier One Brigade

Using "speed and teeth" as the core competencies, an African Standby Force could be created to achieve the economies that the G8 desires and meet the sense of urgency that the African security environment demands. This proposal--the Tier One Brigade (28)--calls for creating a single standby brigade, not five, designed for rapid response and Chapter VII capability throughout the continent.

One rapid-response standby brigade capable of Chapter VII peace operations would be a preferable alternative to the AU proposal for several reasons. First, a brigade-sized force is recommended throughout research conducted on the nature of African conflict. Based on historical regional conflict, UN military planners assessed that a brigade is the right-sized force to intervene effectively in most humanitarian crises that have occurred on the continent. (29) Second, a brigade-sized force can be assembled from existing battalions among African militaries. Third, this standby force could be created with much less capital than is currently expended on individual countries' disparate initiatives. And foremost, this force could be operational within one year of the commencement of training--not the five years which the AU plan proposes. The basic concept for the Tier One Brigade is shown in Figure 1.

Organization

While organizing the Tier One Brigade from any single African country would be a daunting challenge, developing it from the composite African community is within reach. While most African countries have limited military capabilities, and few have the capacity to undertake or contribute to a robust peacekeeping or enforcement operation, there are "anchor" countries that can provide the foundation for potential regional capabilities. The Western Region, anchored by the capable Nigerian and Ghana armed forces, has already exhibited the capacity to assemble and deploy effective intervening forces throughout Africa. In the Southern Region, South Africa has significantly increased its peacekeeping presence over the past two years, jumping to the tenth overall largest UN peacekeeping nation. (30) South Africa's entry into the peacekeeping world is significant in that it adds both a considerable amount of resources to the AU and Southern Africa Development Community, and a military force experienced in large-unit operations. And in the Horn of Africa (HOA) region, Ethiopia is considered a "new strategic partner" with the most capable military in that region. (31)

While the African Union will ultimately identify the sourcing countries, the international community should request that the battalions come from "lead nations"--a step the AU included in its initial African Standby Force proposal. US policy in Sub-Saharan Africa under the Bush Administration has been built around developing the capabilities of Nigeria, South Africa, Ethiopia, and Kenya--the United States' choice for lead nations. (32) These countries possess capable militaries and enjoy significant influence throughout their regions. Although the international community has not collectively identified Sub-Saharan lead nations, G8 engagement with these same African nations suggests consensus. Moreover, earmarking a battalion for the Tier One Brigade from a lead nation creates less of a void than would otherwise be created if the battalion were taken from a country with a smaller military.