Engineers in Counterinsurgency: A Different Approach

Introduction

In the counterinsurgency environment Australian forces are most likely to face, one of the most important contributions to an effective civil affairs program will be military civic action. Although, in its broadest sense, military civic action is a responsibility of every soldier, it is the specialist who will provide the greatest return from a short-term investment.

Civic Action and the Engineers

More than any other corps the engineers can provide the most effective assistance in the material aspects of civic action. No new engineering skills are required. Only the working environment changes. In addition to construction skills, the engineers possess other valuable advantages. Their instructional experience provides opportunities for them to impart basic skills to others more readily and easily. Their military training provides an understanding of the problems of local protection and defence and a sound background knowledge of health and hygiene.

The Current Concept

Currently the engineer squadrons provide the only source of skilled manpower for the implementation of public works programmes. This concept raises important questions. For example (1) Are the engineer squadrons adequately trained to undertake such tasks for the maximum gain? (2) Will the effort be available for the duration of the project? The answer to both questions must be No.

The engineer unit possesses the technical and basic military skills and the administrative backing for such work. It lacks, however, particular skills such as language and comprehensive area familiarisation, essential for effective civic action.

In counterinsurgency operations, particularly in undeveloped areas, very heavy demands will be made on available engineer effort for purely military tasks. It will be a rare occasion when technical manpower can be released for civic action. Again the diversion of committed effort from an incomplete civic action project, because of an urgent unforeseen military requirement, could have a disastrous effect on civil affairs as a whole.

Our army possesses a very small engineer capacity when considered in the light of our commitments. Clearly it would be unwise to plan on diverting a portion of this limited capacity to civic action, no matter how important the particular project may be. A new line of approach is required.

THE REQUIREMENTS FOR AN EFFECTIVE CIVIC ACTION CAPACITY

What are the prerequisites for an effective specialist military civic action capacity? As far as we are concerned the most important considerations are:

• Manpower. We can ill-afford to divert manpower from essential military duties. Any element intended for exclusive employment on civic action projects would need to make very small inroads into our regular manpower strength.
   
• Competence. The sensitive nature of civic action work calls for high standards of professional ability, intelligence and all-round proficiency from those involved. Proficiency in the local language and a thorough understanding of the area concerned are also necessary.

The Specialist Team

There is a definite need in our army for specialist civic action elements. A small, thoroughly trained civic action team could provide a contribution to counterinsurgency operations out of all proportion to its size.

What form should such an element take? I suggest that the best solution is a small, lightly equipped, self-sufficient team. Although the equipment holdings should be kept to a minimum, they should be commensurate with the team’s technical capacity. The team organisation would be:

As far as equipment is concerned the scaling must be such as to make the team self-sufficient and allow it to function within its construction capability. Some reliance must be placed on local resources for such specialist equipment as engineer plant. In addition to tradesmen’s kits and other selected construction equipments and stores, the team would need to carry weapons and ammunition, accommodation stores, medical stores and necessary general stores. To be fully mobile the team would require about five vehicles.

Selection of Personnel

Stringent requirements apply in the selection of suitable personnel for such teams. The team would be expected to operate in comparative isolation, in a primitive and potentially hostile environment. They would be subjected to morale and psychological pressures different from those applicable in conventional organisations.

Training

Training for the civic action specialist would need to be thorough, extensive and set against the background of the most likely area of operations. With thorough crosstraining in trade and other special skills the team’s work capacity and effectiveness could be improved well beyond that of its trade composition.

Because of the peculiar nature of the work, training and general preparation of the team would need to satisfy the following essential requirements:

• Language. One of the keys to the problem, language training to a predetermined standard must be the priority consideration. The course need not be long. An initial period of intensive schooling to conversational standard would be necessary. Proficiency could then be developed with continuous practice and usage throughout the remainder of the training period.
   
• Versatility. Each man should be trained to acquire, as a minimum, proficiency in at least one skill other than his own. For example, a carpenter should be able to perform an electrician’s or plumber’s basic duties if the occasion demanded. A man trained in only one skill would have no place in such a team. Improvisation would be the rule rather than the exception. Consequently, ingenuity in the use of locally available materials would need to be encouraged and developed.
   
• Country Familiarisation. This would include geography, the political and economic structure of the country involved and local materials and construction methods. Emphasis would need to be placed on the laws, culture, customs and problem-areas of the local population. An indoctrination period in counterinsurgency would also be desirable.
   
• Military Training. Additional military training in special techniques would be necessary. These would include village defence, communications, escape and evasion and survival training to name a few.
   
• General. Each team member would need to be proficient in first aid and have a basic knowledge of the health problems of the particular environment. He would also need an understanding of instructional techniques.

Employment of the Specialist Civic Action Team

Having been thoroughly prepared for its role, how should the team be employed?

In the simplest circumstances the team would be part of an Australian force assigned to a particular area or zone of operations. It would be employed under the force commander’s direction in accordance with predetermined national policy guidelines. Its specific task areas would be allotted in the light of overall civil affairs policy. Of necessity the team would work in very close cooperation with the force Civil Affairs section and designated local government authorities.

After receiving its directive the team would then be ready to carry out the work. Once committed to a specific project or task area, it should not be interfered with except in abnormal circumstances. In the execution of the work the team would aim at achieving maximum local participation. Its task would be to assist, supervise and advise rather than complete the work itself.

Effective employment of the team would not be limited to the circumstances depicted above. Its capability is such that it is admirably suited to independent Cold War tasks as well. Properly controlled, such a team would be a valuable asset to Australian standing in any one of a number of undeveloped South-East Asian countries. There are additional problems, however, in this form of employment. These would have to be analysed on the political level and feasibilities determined.

The team as proposed is a complete entity. It should not be split and employed in separate smaller elements. Its effectiveness would depend on its remaining intact.

Finance

Special mention must be made of the finance problem. Without access to project funds or construction materials the team would frequently be rendered inactive. Before committing the team it would be necessary to ensure that arrangements are made for the provision of adequate project funds or construction materials.

Conclusion

Engineer works, by their very nature, usually please and seldom irritate. In undeveloped countries engineer service is urgently needed, gratefully accepted and rarely resented. It can be the goodwill key to many doors. Our present division is the result of a great deal of experience and thought. At minimal cost to the Army as a whole, its capability could be further enhanced by the inclusion of a small number of Specialist Civic Action Teams.