Professional Documents
Culture Documents
In June 2009 the future Chief of the Defence Staff, General Sir David Richards,
gave a speech at the Royal United Services Institute in which he spoke of the
major challenges that lay ahead for the British armed forces. Richards discussed
the shape of the forces, the likely nature of the threats they would face in the
future and the requirement for military reform. As his point of reference, he took
the remarkably rapid transformation that has allowed the US armed forces to
meet the challenges presented by Iraq and Afghanistan and the more fundamental
changes in warfare that these conflicts presaged. While Richards did not advocate
simply copying American innovation, he argued that a paradigm shift was occur-
ring in modern warfare, that this was ‘our generation’s horse and tank moment’,
and that the British armed forces also had to transform if they were to survive
and flourish in this new military environment. In short, Richards argued that
British forces, like the American armed forces before them, needed to harness the
creative energies and experiences of front-line soldiers to carry out a fundamental
‘transformation in contact’.1
Richards’s ‘transformation in contact’ and the US armed forces’ ‘transforma-
tion’ are military innovation by other names. There are four main schools of
thought about military innovation, each of which places disproportionate weight
on top-down initiatives. They put forward either ‘civil–military relations, interser-
vice politics, intraservice politics [or] organisational culture’ as the main source
of innovation,2 and, in each case, take a hierarchical approach where significant
change is driven from above. Barry R. Posen’s civil–military model focuses on the
relationship between empowered external agents, primarily civilian statesmen,
and creative insiders, or ‘maverick’ senior officers.3 Interservice models focus on
the competition dynamics between the military services within a state, often as
* The authors gratefully acknowledge the support of the UK Ministry of Defence (MOD) in granting access to
key organizations and personnel. The analysis, opinions and conclusions expressed or implied in this article
are those of the authors and do not necessarily represent the views of the Joint Services Command and Staff
College, the UK MOD or any other government agency.
1
Gen. Sir David Richards, ‘Twenty-first century armed forces: agile, usable, relevant’, speech to the RUSI
Land Warfare Conference, London, 23–25 June 2009, http: //www.rusi.org/events/ref: E496B737B57852/
info: public/infoID: E4A4253226F582/, accessed 30 Dec. 2010.
2
Adam Grissom, ‘The future of military innovation studies’, Journal of Strategic Studies 29: 5, Oct. 2006, p. 908.
3
Barry R. Posen, The sources of military doctrine: France, Britain and Germany between the world wars (Ithaca, NY:
Cornell University Press, 1984).
4
See e.g. Deborah D. Avant, Political institutions and military change: lessons from peripheral wars (Ithaca, NY:
Cornell University Press, 1984).
5
Stephen P. Rosen, Winning the next war: innovation and the modern military (Ithaca, NY: Cornell University Press,
1991).
6
See e.g. Theo G. Farrell and Terry Terriff, The sources of military change: culture, politics, technology (Boulder, CO:
Lynne Rienner, 2002).
7
Grissom, ‘The future of military innovation studies’, p. 930.
8
See e.g. Theo Farrell, ‘The dynamics of British military transformation’, International Affairs 84: 4, July 2008,
p. 806.
9
The importance of learning in wartime has been well highlighted in innovation literature. Perhaps the best
example of this is John A. Nagl, Learning to eat soup with a knife: counterinsurgency lessons from Malaya and Vietnam
(Chicago: University of Chicago Press, 2002).
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‘Transformation in contact’
British armies are able to capture not just tactical adaptation,10 but the true innova-
tion that is occurring at the front, and to disseminate these new ideas effectively
throughout the armies. Without the structural changes enacted by senior leaders
in both armies, front-line innovation would have remained local and would not
have led to improved performance throughout both organizations.
Thus, CALL receives its lessons directly from individuals and units still in or
recently returned from the field, ensuring that the most up-to-date knowledge is
transferred from the operating force to the generating force. While any individual
or unit can submit an OIL, the revised AR 11-33 requires all units of brigade size
or larger to submit a detailed after-action review (AAR) to CALL for analysis.25
Moreover, units are required to submit to CALL all TTPs and training materials
so that these can be analysed by CALL for lessons.
Indeed, the effect of the revised AR 11-33 was to centralize the lessons-learned
process within the US army to an unprecedented extent. It is now CALL’s
responsibility to analyse all this material and determine which issues can be dealt
(Leavenworth, KS: US Army War College, Jan. 1990), pp. 7–15; Colonel Anthony C. Funkhouser, ‘Efficient
or effective? An assessment of the army lessons learned program’, US Army War College Strategy Research
Project (Leavenworth, KS: US Army War College, 30 March 2007), pp. 2, p. 4.
22
Wallace, ‘Victory starts here!’, p. 64.
23
US Army, ‘Army regulation 11–33: Army lessons learned program (ALLP)’, 17 Oct. 2006, pp. 4–5 (emphasis
added). Definitions for OIL are: ‘observations describe the conditions experienced by military forces during
war or training’; ‘insights describe issues that arose while conducting military operations or training’; and
‘lessons provide potential solutions to the problems experienced under a set of military conditions’ (p. 9).
24
‘AR 11–13’, p. 1.
25
On AARs, see US Army, FM 7–1: battle focused training (Washington DC: Department of the Army, 2003),
appendix C. US ARRs are submitted on completion of the unit’s tour.
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Robert T. Foley, Stuart Griffin and Helen McCartney
with within the army and which ones need to be sent to the joint arena.26 CALL
now chooses which ‘proponent’ within the army is best able to address a particular
OIL,27 and works directly with this proponent on an action plan to address the
OIL and transform it into a ‘lesson learned’.28 CALL is also required to liaise with
the joint community to resolve OILs that cannot be dealt with by the US army
alone. Referring OILs to army proponents or to the joint realm for solution can
be a lengthy process, so CALL also uses a ‘rapid lessons-learned process’ to speed
the dissemination of ‘critical’ knowledge to the operating and generating forces.
In responding to the need to spread best practice rapidly the US army has
embraced the use of the internet. In the late 1990s it began developing Army
Knowledge Online, a secure website on which information can be exchanged.
CALL makes extensive use of this site, as well as the US army’s open website, to
disseminate its products. The Center runs a ‘Digital Public Library’ on which a
variety of publications are held.29 These can be quite imaginative and instructive.
An example of this is Nightmare on Wazir Street, an updated version of The defence
of Duffer’s Drift, which takes the reader through the best practice of combat in
built-up Baghdad by means of a series of nightmares experienced by the narra-
tor.30 Others are more practical handbooks, such as the Commander’s guide to money
as a weapons system.31
However, it is not just products of the formal lessons-learned system that are
important for the ‘continual transformation’ of the US army. Journals, such as
Military Review and Parameters, produced by the US army’s Combined Arms Center
and War College respectively, have played a key role in disseminating knowledge
throughout the army, as well as in providing forums for critiques of existing
doctrine or procedures. Importantly, these journals are readily available for all to
read online. The army also makes extensive use of online ‘communities of practice’,
within which military professionals can discuss and exchange ideas and knowledge
about recent operations.32 Perhaps the best example of such a community of
practice is CompanyCommand. This site was initially established in 2000 by then
Majors Nate Allen and Tony Burgess as a place where young company commanders
could discuss issues unique to their positions. In 2002 the US army recognized the
importance of the site and brought it into Army Knowledge Online.33 The site
26
The ALLP is designed to fit into the joint lessons learned programme outlined in Chairman of the Joint Chiefs
of Staff Instruction (CJCSI) 3150.25B, ‘Joint lessons learned program’, 15 Feb. 2005.
27
An army ‘proponent’ is the officer with responsibility for development of a particular area within the army.
See US Army, ‘Army regulation 5–22: the army force modernization proponent system’, 19 Aug. 2009.
28
CALL uses the joint definition of ‘lesson learned’ laid out in CJCSI 3150.25B: ‘Results from an evaluation
or observation of an implemented corrective action that produced an improved performance or increased
capability. A lesson learned also results from evaluation or observation of a positive finding that did not
necessarily require corrective action other than sustainment.’
29
See http: //usacac.army.mil/cac2/call/archives.asp.
30
‘Nightmare on Wazir Street’, CALL Newsletter 08–39, June 2008.
31
‘Commander’s guide to money as a weapons system’, CALL Handbook 09–27, April 2009.
32
Major Steve Schweitzer, ‘Communities of practice in the US Army’ (West Point, VA: Center for the
Advancement of Leader Development and Organizational Learning, US Military Academy), http: //www.
csci.psu.edu/seminars/fallnotes/cop1.pdf, accessed 14 Nov. 2010.
33
Greg Slabodkin, ‘Army lessons learned’, Federal Computer Weekly, July 2006, http: //fcw.com/articles/2006/07/17/
army-lessons-learned.aspx, accessed 13 Oct. 2010. See also Nancy M. Dixon, Nate Allen, Tony Burgess, Pete
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‘Transformation in contact’
quickly became popular: by 2009 CompanyCommand had some 18,000 members
with more than 60,000 hits per month.34
Naturally, the challenges of transformation across an organization as large and
complex as the US army are significant; but there can be no doubt that the new
lessons-learned system instituted by the army in 2006 helped make this organi-
zation a more flexible and adaptive force. This system ensures that lessons are
collected, analysed and disseminated quickly, and consequently that the US army
has the most up-to-date knowledge of the battlefield possible. The new system
also indicates that the US army is serious about the transformation process begun
by the Bush administration, takes seriously the importance of ‘knowledge’ as a
force multiplier on today’s battlefield and is well on its way towards becoming a
‘knowledge-based’ organization.35
39
Daniel Marston, ‘“Smug and complacent?” Operation TELIC: the need for critical analysis’, British Army
Review, no. 147, Summer 2009, pp. 16–23; Peter R. Mansoor, ‘The British army and the lessons of the Iraq
war’, British Army Review, no. 147, Summer 2009, pp. 11–14.
40
Farrell, ‘Improving in war’, p. 591. See also comments attributed to David Kilcullen and Daniel Marston in
Naylor, ‘Panel gives UK counterinsurgency effort poor marks’.
41
Mungo Melvin, ed., A doctrinal perspective 1988–1998, SCSI occasional paper 33 (Camberley: Strategic and
Combat Studies Institute, 1998).
42
Interview with Head Afghan COIN Centre, Land Warfare Centre, Warminster, 16 Dec. 2010.
43
Markus Mäder, In pursuit of conceptual excellence: the evolution of British military–strategic doctrine in the post-Cold War
era, 1989–2002 (Bern: Peter Lang, 2004).
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‘Transformation in contact’
‘brainpower’ was increasingly absorbed with the challenges of ‘higher-level’
doctrinal and conceptual development and with providing middle- and senior-
ranking army officers with appropriate education within joint establishments. The
denouement came in April 2006 when DGD&D formally ceased to exist after the
Development, Concepts and Doctrine Centre (DCDC) replaced the JDCC and
took over responsibility for all joint doctrine and concepts. As Colonel Alexander
Alderson notes, ‘by committing so much of its capacity so wholeheartedly to the
joint approach, the army was open to criticism that it had “mortgaged its brain”’.44
In the circumstances, it should not have been a surprise when, in the wake of
the invasion of Iraq in 2003, General Sir Timothy Granville-Chapman highlighted
the lack of a formal process within the British army to collect and analyse lessons
from operations. To correct this deficiency he issued the first ‘Land Standing
Order 1118: the lessons process’.45 Responsibility for lessons management was
placed firmly in the hands of a two-star general, Chief of Staff (COS) Land Forces,
and the Mission Support Group (MSG) was strengthened. Central to the MSG’s
work was engagement with every British brigade and supporting unit going to
Iraq. The team conducted thorough analysis of all brigade reports, especially the
crucial post-operation reports. Also, the new order formalized the procedures for
post-operation interviews with brigade commanders and principal staff officers
returning from operations. In 2006 the MSG was folded into the new Warfare
Development Group and the MSG’s size was increased in 2008.
However, despite the big step forward it had taken since 2003, the army’s
lessons-learned process remained underresourced. Moreover, lacking an equiva-
lent of the US army’s TRADOC, the British army’s lessons-learned system faced
difficulties reaching beyond its own tactical realm. Where challenges identified
pertained to the joint environment—and almost every issue with operational
significance did—the army struggled to translate them effectively into wider
defence learning.46
The intensity of the operational pressures facing British forces between 2003
and 2009 clearly acted as the impetus for bottom-up innovation, certainly in
revised army learning mechanisms, but also acted as a brake on the drive for
greater structural change. Unlike the US army transformation going on at the
same time, evolving British army learning mechanisms (reflecting MOD learning
mechanisms more generally) were largely ad hoc, underresourced and structur-
ally ill-conceived: that is to say, they were not underpinned by any systematic
analysis of the requirements for effective knowledge management. In practice,
this meant that once a viable, if limited, process for the collection and analysis of
lessons was in place, the army struggled to disseminate these lessons throughout
its structure and into the wider defence lines of development (DLODs).47 By
44
Alexander Alderson, ‘The army brain’, RUSI Journal 155: 3, June–July 2010, p. 10.
45
Commander-in-Chief Land, ‘Land Forces Standing Order 1118: the lessons process’ (Andover: MOD, 2004).
46
Discussion with PJHQ, J7 Lessons, 14 Jan. 2011. It should be noted that this problem was common to all three
services.
47
The DLODs consist of training, equipment, personnel, information, concepts and doctrine, organization,
infrastructure, logistics and interoperability. See MOD, ‘Acquisition operating framework, version 3.1.4’,
Dec. 2010, http: //www.aof.mod.uk/aofcontent/strategic/guide/sg_dlod.htm, accessed 16 Dec. 2010.
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Robert T. Foley, Stuart Griffin and Helen McCartney
2007–2008, without the breathing space to step back and assess current structures
from first principles, the British army found itself in a catch-22 position. On the
one hand, it had innovated remarkably successfully with regard to its short-term
(or rapid) lessons-learned loop in which TTPs, training and doctrine are constantly
reviewed, revised and updated to counter changes in the enemy’s own tactics (most
notably, the continual revisions of improvised explosive device (IED) planting
and sniper activity),48 and best practice is routinely identified and disseminated.49
On the other, it was clearly struggling to translate battlefield lessons into lasting
and more widespread change in the army.50 Without a coherent command struc-
ture that linked the lessons-learned system with doctrine and force development,
the British army’s lessons system was unable to translate battlefield lessons into
meaningful transformation of the army as a whole. Clearly, a more fundamental
overhaul of the British army’s command structure was necessary.
The British Army Staff Process Review of 2009 was harshly described by
Patrick Little as ‘“reversible” tinkering … [that] has avoided looking more criti-
cally at how it has taken so long to arrive at its principal conclusions’.51 In reality,
this review led directly to the structural changes necessary to place the lessons-
learned process at the heart of transformation in the British army. It resulted in the
establishment of the Force Development and Training Command (FDT), a three-
star command that now sits alongside other core commands reporting directly to
Commander-in-Chief Land Forces.52 By recombining doctrine, development and
training, and placing responsibility for lessons firmly within this organization, the
British army took a conscious decision to make the structural changes necessary
to enable wider army transformation. In essence, the ability to learn from front-
line experience was elevated in status and given greater resources, and its further
development established as a key priority.53
Under Commander FDT sit four main organizations: Logistics, Support
and Equipment; Army Recruiting and Training; the Royal Military Academy
Sandhurst; and the Land Warfare Centre (LWC), where tactical army doctrine
is formulated, concepts are developed and the army’s lessons-learned infrastruc-
ture is situated. The army is also enhancing the comprehensiveness of its learning
infrastructure by creating a virtual organization federating all staff branches with
lessons responsibilities. Provisionally entitled the Centre for Army Lessons and
Safety, its three pillars are the Lessons Exploitation Centre (LXC), responsible for
lessons from operations and training; the Service Inquiries branch of the Direc-
torate of Personnel Support (Army), which also has responsibility for engagement
with coroners’ inquests; and the Chief Environmental and Safety Officer (Army),
48
Farrell, ‘Improving in war’; interviews with SO1 Lessons, Lessons Exploitation Centre, Warminster, 13 Dec.
2010 and Head Afghan COIN Centre, 16 Dec. 2010.
49
Comments on first draft by SO1 Lessons, Lessons Exploitation Centre, Warminster, Jan. 2011.
50
Alderson, ‘The army brain’; Betz and Cormack, ‘Hot war, cold comfort’; Tom Crapper, ‘Enabling operational
management’, RUSI Defence Systems, June 2009, pp. 64–6; Patrick Little, ‘Lessons unlearned’, RUSI Journal 154:
3, June 2009, pp. 10–16.
51
Little, ‘Lessons unlearned’, p. 15.
52
See the Land Forces organizational chart, http: //www.mod.uk/NR/rdonlyres/2D238D96–0BE9–
463D-B15F-54A9880DA7E8/0/20101110_land_forces.pdf, accessed 10 Nov. 2010.
53
Interview with SO1 Lessons, Lessons Exploitation Centre, Warminster, 13 Dec. 2010.
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‘Transformation in contact’
responsible for all environmental issues and tasked with the investigation of all
accidents and incidents across the army resulting in death or serious injury.54
‘Army transformation’ is firmly established as a key task of the FDT, which
aims to ‘lead and drive Army learning and rapid adaptation to deliver enhanced
capability through improved doctrine, training, structures and equipment’.55
Further, FDT’s current commander, Lieutenant-General Paul Newton, has
explicitly championed the role lessons learned must play in this transformation:
without the power of lessons as evidence and an agile structure (the current operation is
the biggest experiment we have going), we will not transform to meet the hybrid threats
of the 21st Century. The key is to ‘hunt’ not ‘gather’ lessons, apply them rigorously—and
only when you have made a change have you really learned a lesson. And it applies to
everyone … It is Whole Army business.56
Significantly, the emphasis the MOD has placed upon the rapid development of
a coherent defence-wide lessons management system, with the Defence-wide
Lessons Reference Group pulling the various elements of defence together at
its heart, has added impetus to army innovation.57 This is reflected in the way
the latest iteration of ‘Land Standing Order 1118’ on the lessons process explic-
itly details the whole army lessons infrastructure, identifies Commander FDT as
responsible for the army’s lessons-learned process, and stresses that learning lessons
is core, army-wide business.58
The army’s primary tactical lessons organization, the LXC resides within the
Land Warfare Centre. The brainchild of the Director-General Land Warfare,
Major General Andrew Kennett, the LXC predates FDT by a few months. General
Kennett had secured another incremental increase in resources and instructed his
staff to develop the existing lessons infrastructure further. The LXC was the
result—honing the tactical lessons process already largely in place rather than
replacing it because ‘by now, the Army had already developed a very effective
process’.59 Critically, the Collective Training Group and the Directorate of Force
Development reside within LWC alongside the Land Warfare Development Group
under Director-General Land Warfare, thereby rationalizing force development,
training, lessons and doctrine under a single two-star officer who in turn reports
direct to a three-star officer responsible for the entire FDT Command.60 The core
function of the new LXC is ‘to capture, analyse, fuse, assess, exploit, track and
archive best practice and lessons from operations and training in order to improve
operational performance and inform Force Development’.61 The two teams of the
LXC, an operational fusion team and a lessons analysis team, manage a three-step
54
Comments on first draft by SO1 Lessons, Lessons Exploitation Centre, Warminster, Jan. 2011.
55
FDT Command mission statement.
56
Quote from Lt-Gen. Newton contained in LXC PowerPoint presentation, reproduced by kind permission of
Lessons Exploitation Centre, Warminster.
57
Discussion with PJHQ, J7 Lessons, 14 Jan. 2011.
58
Commander-in-Chief Land, ‘Land Forces Standing Order 1118: the process for learning lessons in the land
environment (5th revise)’, 2010.
59
Interview with Head Afghan COIN Centre, LWC, Warminster, 16 Dec. 2010.
60
Comments on first draft by SO1 Lessons, Lessons Exploitation Centre, Warminster, Jan. 2011.
61
Mission statement for the Lessons Exploitation Centre.
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Robert T. Foley, Stuart Griffin and Helen McCartney
army-wide learning process: step 1 is the hunting and gathering of lessons; step
2 couples collate and fuse with action and track; and step 3 ‘learns’ if the lesson is
within the army’s remit and elevates it if it is not before closing and archiving.62
The reintegration of previously disparate competencies under FDT has inevi-
tably improved knowledge transfer between LXC and other core providers and
users of lessons such as training commands, research and experimentation, and
safety and accident investigation. Their needs and observations are important
sources of lessons generation, which otherwise remains predicated on methods
developed by previous incarnations of the LXC. The tried and tested approach
of after-action reviews and post-operational reports, interviews and presentations
remains prominent, while pre- and mid-tour reporting continues to evolve. An
interesting and successful innovation supplementing this process is the systematic
use of pre-leave presentations by newly returned key personnel, followed up by
two-day post-operational leave mission exploitation symposia.63 These symposia
explore key themes identified not only by the LXC but also by other interested
parties within the army and the defence community more broadly, and provide
a forum through which the most up-to-date knowledge from the battlefield can
be directly and rapidly transferred.64 As a result of their success they have been
formalized and extended.65
The lessons identified are dealt with in a number of ways. As lessons are identi-
fied, the staff of the LXC conform with the central defence-wide lessons process
by assigning them to particular DLOD leads, posting each on the Defence Lessons
Identified Management System (DLIMS), and working with these leads either
to ‘learn’ where a specific lesson is identified or to ‘rationalise and resolve the
immediate problem’ where it is not.66 The LXC also disseminates knowledge in
other ways. For example, it produces short handbooks highlighting issues raised in
training or operations that can be distributed to individual soldiers. These are also
made available, along with other information, on the Army Knowledge Exchange,
a website launched in early 2010 in emulation of US internet-based solutions to the
problem of army-wide dissemination of, and participation in, lessons management
and designed as a ‘“one-stop shop” for all current and future land environment
operations knowledge’.67
Encouragement of wider army engagement in the lessons process is also
gaining momentum, though its impact is uneven. Units on operational tours are
taking lesson-‘hunting’ seriously and constantly reinforcing the army’s lessons
62
Interview with SO1 Lessons, Lessons Exploitation Centre, Warminster, 13 Dec. 2010; discussion with PJHQ,
J7 Lessons, 14 Jan. 2011.
63
The first symposium was conducted on the return of 11 Light Brigade in April 2010 and the intention is to run
them for every brigade and formed HQ.
64
As evidenced by the high level of interest shown by relevant army and MOD personnel (the last post-tour
presentation was attended by over 500 staff ).
65
Discussion with PJHQ, J7 Lessons, 14 Jan. 2011.
66
Interview with SO1 Lessons, Lessons Exploitation Centre, Warminster, 13 Dec. 2010; discussion with PJHQ,
J7 Lessons, 14 Jan. 2011.
67
‘Welcome to the AKX – the Army knowledge exchange’, http: //www2.armynet.mod.uk/akx/index.htm,
accessed 1 Jan. 2011.
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‘Transformation in contact’
learned database (which itself is only a few years old);68 but operational forma-
tions still lack the resources to create a dedicated lessons-learned post. This means
that responsibility for sifting the huge amount of information coming in (and
the problem now is information overload rather than lack of it) remains in the
margins of the workload of overburdened personnel. Rising numbers of users of
the Army Knowledge Exchange provide a rough and ready indicator of increased
interest but beyond that it is difficult to gauge effectiveness at this early stage.69
Vital Ground, for instance, the UK’s answer to CompanyCommand, has so far
proved less engaging than its US counterpart, perhaps because it is too formal-
ized and less like a social networking site where views can be expressed without
prejudice.70 Likewise, and perhaps for similar reasons, critical engagement from
the wider army in print is nowhere near as advanced as in the US. While the US
army provides open access online to its journals, the British Army Review is consid-
ered an internal document and is not readily available outside the armed forces.
Notwithstanding these issues, early signs are that the ability of FDT-generated
lessons to reach into other areas of the army and up into the joint realm is much
enhanced. Certainly, the formal and informal processes by which knowledge is
exchanged between key actors both within and outside the British army are clearer
and oversight of the lessons process is more stringent.71 On the one hand, the
wealth of information providing evidence of lessons is growing, as is wider army
engagement with it. On the other, it is increasingly difficult for a lesson, once
identified, to be sidetracked, dismissed, ignored or, conversely, unfairly privileged
without an audit trail supporting the decision. Both of these developments are
vital ingredients of any good organizational learning culture and indicative of an
increasingly virtuous circle between single-service and defence-wide innovation
in lessons management.72
Although slower off the mark than the US army, the British army has also
integrated a robust lessons-learned process into a transformation agenda. As we
have seen, this was not an easy process. When faced with intense operational
pressures in Iraq and Afghanistan, it scrambled to reinvigorate 1990s initiatives
that had largely unravelled in the face of significant defence reform, but did so in
an ad hoc manner. For several years it was unable to find the time or resources to
examine lessons emanating from the field in a comprehensive manner. As a result,
despite its best efforts, British army learning remained predominantly reactive and
uneven. However, this painful transition period did eventually lead to a major
restructuring of the army command hierarchy to reflect the requirement for a
much heavier and more systematic emphasis on organizational learning.
68
Interview with SO1 Lessons, Lessons Exploitation Centre, Warminster, 13 Dec. 2010.
69
By May 2010, AKX was receiving some 1,700 hits per day. AKX-Evangelist, ‘LWC launch of the Army
knowledge exchange’, post from 25 May 2010, http: //www.arrse.co.uk/staff-college-staff-officers/127859-
lwc-launch-army-knowledge-exchange-akx-3.html, accessed 2 Jan. 2011.
70
Interview with Head Afghan COIN Centre, LWC, Warminster, 16 Dec. 2010.
71
Internally, the Land Environment Lessons Board sits quarterly to monitor lessons progress through the
system; externally, the army is well represented within the defence-wide lessons framework outlined in the
latest UK MOD Defence Information Note (DIN), Defence-wide lessons management (London: MOD, 2011).
72
Discussion with PJHQ, J7 Lessons, 14 Jan. 2011.
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Robert T. Foley, Stuart Griffin and Helen McCartney
73
See US Army, FM 6–01.1: knowledge management (Washington DC: Department of the Army, 2008); US Army,
‘AR 25–1: Army knowledge management and information technology’, 4 Dec. 2008.
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‘Transformation in contact’
necessarily detrimental to its lessons-learned system at present, it does make it
easier for crucial elements of the new institutions to be removed or replaced
in the future. The dangers of removing key institutions that support lessons-
learned systems have been amply demonstrated by the army’s reorganizations in
response to reform of the British defence establishment since the late 1990s. The
consequence was an understaffed, underresourced and undervalued army lessons
process that became less able to deal with either the volume of lessons generated
or the transmission of their findings to the wider army. Perhaps more importantly,
the lack of an effective knowledge-based organization meant that lessons from
the field were not well integrated with wider army doctrinal development and,
ultimately, future capability.74
One of the greatest challenges for both the US and the UK systems is the
identification of the key lessons to be learned. In the first place, the lessons-
learned systems of both armies are reliant on those in the front line putting
their perspectives into the system. This can be inhibited by both structural and
cultural considerations. For example, the lessons-learned systems of both armies
have the objective of creating an army-wide culture of information sharing and
lesson generation.75 Only by collecting a wide variety of opinions from those at
the front can the lessons-learned systems be truly effective. However, creating
lessons-learned cultures is not a simple task in hierarchical organizations that have
not, traditionally, tolerated dissent. Soldiers have to feel comfortable submitting
lessons that may potentially reflect badly on themselves or their unit or their
chain of command and not fear negative repercussions for their careers where
the lessons identified reflect institutional problems rather than personal failings.
Indeed, soldiers need to believe that the army is taking the lessons-learned system
seriously or they will be less likely to engage positively and honestly with the
process.
In these respects, the US army has gone further towards changing cultural
attitudes than the British. First, it has had a more open debate about the challenges
of counterinsurgency operations, analysing where the United States has gone
wrong in the past and how the army needs to change to improve in the future.
Debates in Military Review and Parameters have helped to generate a confidence that
the US army is serious about learning from its past errors, stimulating engage-
ment with the formal lessons process. By contrast, in the British army there has
been a distinct lack of public debate over recent army failures in both Iraq and
Afghanistan.76 When an internal army debate on British performance in Iraq and
Afghanistan was initiated in the pages of the British Army Review in 2009, some
articles were subjected to censorship by Whitehall.77 It is this kind of attitude
that made the former army officer Patrick Little and some of his cohort feel that
74
Alderson, ‘The army brain’, pp. 11–12.
75
‘AR 11–13’, p. 1; LSO 1118.
76
John Nagl, ‘Afghanistan: mission impossible’, Dispatches, Channel 4, 6 April 2009.
77
Adam Holloway, ‘Defence viewpoints’, 29 Dec. 2009, http: //www.defenceviewpoints.co.uk/articles-and-
analysis/the-failure-of-british-political-and-military-leadership-in-iraq; accessed 3 Jan. 2010; Stephen Grey,
‘Retreat from Basra: learning the lessons’, 20 Sept. 2009, http: //www.stephengrey.com/2009/09/retreat-
from-basra-learning-the-lessons/, accessed 1 Jan. 2010.
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Robert T. Foley, Stuart Griffin and Helen McCartney
‘they are not listened to, are largely expendable and … their own hierarchy does
not adequately reflect their concerns’.78 While it is claimed that a ‘new glasnost’
with regard to self-reflection began within the British army in late 2009, culture
does not change overnight.79 The decision by FDT to publish a ‘Comment’ on a
recent article in British Army Review, actively encouraging criticism, is a positive
sign; but much more needs to be done if an army-wide culture of self-reflection is
to be firmly established.80 The legacy of an absence of external debate, combined
with the fact that the positive initiatives now established to address previous diffi-
culties have not been well publicized, means that few soldiers outside the new
FDT recognize that significant progress has been made towards transforming the
learning apparatus of the army.
Although there is still a long way to go before the British army achieves its
aim of engaging the whole army in the lessons-learned process, there are encour-
aging signs that brigade headquarters, in particular, are interacting well with the
new lessons-learned process. Indeed, the last brigade to return from Afghanistan
produced many more observations than its predecessor, enabling the LXC to
garner 50 per cent more lessons from the tour.81 However, with increased engage-
ment comes an increase in the volume of lessons flowing through the system, and
there is a danger that the whole process could be overwhelmed with information.
Both US and British armies are aware of this possibility, as both lessons-learned
systems are leanly staffed and need to guard against important lessons slipping
through the net.82
The need to move lessons rapidly from the front to the wider armies led both
the US army and the British army to create highly centralized lessons-learned
systems. This means that potential lessons from the front line arrive at a central
location and are first sifted by generalists before being discarded or prioritized
and exported to a specialist branch of the army for action. At this stage, there is
the potential for relevant lessons to be lost because their significance has not been
recognized by generalists.83
Once key lessons have been identified, there is a need to ensure that the lessons
are actually learned. As both organizations note, only when positive change has
been made can a lesson really be said to have been learned. In order to enact
change, lessons-learned systems disseminate lessons to relevant parts of the army
for action. For the US army this is a more straightforward process. CALL has
responsibility for all army lessons at tactical, operational and strategic levels and
thus most lessons are dealt with within one organization.84 For the British army,
78
Little, ‘Lessons unlearned’, p. 13.
79
Grey, ‘Retreat from Basra’.
80
HQ FDT Comment on Capt. John Bethell, ‘Accidental counterinsurgents: Nad E Ali, hybrid war and the
future of the British army’, British Army Review, no. 149, Summer 2010, pp. 16–17.
81
Interview with SO1, Lessons Exploitation Centre, Warminster, 13 Dec. 2010.
82
The LXC has a staff of 21 and CALL has around 150. While CALL is larger, so too is the US army. The US
army has 547,400 on active duty, 358,200 in the Army National Guard and 205,000 in the Army Reserve. By
comparison, the British army has just over 100,000 full-time professionals supplemented by 40,000 reservists.
83
Funkhouser, ‘Efficient or effective?’, pp. 6–7, pp. 13–14.
84
‘AR 11–33’, pp. 4–5.
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‘Transformation in contact’
on the other hand, most operational and strategic lessons are dealt with in a joint
arena and have defence-wide implications. This adds greater complexity to the
act of learning a lesson, as land-environment lessons above the tactical level are
mediated by the needs and perspectives of the Royal Navy and Royal Air Force.
However, just as the army lessons-learned process has undergone reform, there
has also been recognition within the British armed forces that structural changes
are necessary to address the difficulties of learning lessons at the operational and
strategic levels.85 The Ministry of Defence has made significant changes to link
the tactical lessons-learned processes of the individual services with a joint lessons
process. Although these institutional changes are also in their infancy, there exists
a determination to ensure that important lessons are properly addressed once they
reach the joint realm.
Finally, any knowledge-based organization requires its members to have free
access to accumulated knowledge. Both the US and British armies are utilizing
internet and intranet networks to disseminate lessons and allow soldiers to
exchange ideas. However, by their very nature military organizations face issues
of security that can place limits on the availability of information. Both the US
and British armies need to find a balance between ensuring that sensitive informa-
tion is not available to their enemies and at the same time providing their members
with access to the lessons required to change. Both armies have addressed this
challenge with dedicated web presences where knowledge can be exchanged.
These websites are password protected and have different levels of access from
open to secret, which allow access to soldiers but deny it to outsiders. Secrecy,
however, remains an issue for both armies, particularly in the wake of the recent
Wikileaks scandal. How each army chooses to deal with this issue will have an
impact on the effectiveness of both the lessons-learned system and wider discus-
sion and debate of lessons.
Despite these ongoing challenges, the new lessons-learned systems in both the
US and British armies now act as effective mechanisms for transmitting the most
up-to-date knowledge from the front line to the wider armies. Poor performance
on the battlefield drove observers inside and outside the respective systems to call
for change in how the armies learned and operated. This provided the catalyst for
both armies to innovate and to create lessons-learned systems that can function
quickly. In both cases, pressure from below led senior officers to carry out signifi-
cant reform of existing systems. In the case of the US army, reform was largely
incremental: existing institutions, such as TRADOC and CALL, were reformed
in order to move knowledge from the battlefield into the wider army more
efficiently. These reforms were aided by a wider transformation agenda stemming
from the Department of Defense, an agenda that created a coherent intellectual
framework of knowledge management into which battlefield lessons could easily
fit. For the British army, more wide-ranging reform was necessary. Lacking an
organization like TRADOC, it needed to create an institution capable of merging
85
Changes such as the creation of the Defence-wide Lessons Reference Group and increased emphasis on
structural clarity and delineated responsibilities outlined in UK MOD DIN, Defence-wide lessons management.
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Robert T. Foley, Stuart Griffin and Helen McCartney
a lessons-learned system with doctrine, experimentation and force development.
The British army has finally done this with the foundation of the FDT in 2009.
The FDT has allowed lessons learned to be more effectively disseminated to the
army as a whole. In both cases, top-down reforms to the way in which the two
armies learn lessons from the battlefield have institutionalized bottom-up innova-
tion.
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