By Richard Andres, PhD; Christine Zaino, Research Assistant;
Kevin Ostlie, Research Assistant
Energy and Environmental Security Policy Program
For the first time, the Department of Defense (DoD) has published a comprehensive strategy for operational energy. Energy for the Warfighter: Operational Energy Strategy, published by the newly established Office of the Assistant Secretary of Defense for Operational Energy Plans and Programs (ASD(OEPP)), was released last month. Initial reactions to the document were mixed: some welcomed the inaugural strategy, while others felt it lacked specific goals and performance measures. The criticisms, however, are misplaced. The strategy is an important and appropriate first step to improving and unifying DoD energy policy. The new strategy sets the stage for OEPP, mandated by Congress in 2009, to harmonize operational energy policy under an ASD-level office and allows greater opportunities for the military to act as a leader and first mover in the advancement of energy efficiency endeavors and technologies.
The Operational Energy Strategy (OES) focuses on operational energy use – “energy used by military forces in execution of their day-to-day missions.” This focus on operations rather than domestic installations is important because the Services—with the notable exception of the Marine Corps—have often placed greater emphasis on installations than operations. The OES, on the other hand, attempts to “guide the Department of Defense in how to better use energy resources to support the Department’s operational needs and the Nation’s strategic energy security goals.” As the strategy points out, it is important that DoD align its energy policy with its core mission to ensure American security. Suboptimal energy use in the field contributes to vulnerabilities – more than 3000 military personnel were casualties of attacks on supply lines in Iraq and Afghanistan between 2003 and 2007. The volatility of energy prices and global competition for scarce energy resources like petroleum also underscores the need to reduce energy consumption. Operational energy took up 75% of all U.S. military energy used in 2009, making it a crucially important focus in energy planning.
Beyond increasing the Department’s focus on operations, the new strategy also plays an important role in helping to coordinate action across the Services. As the leader and underwriter of global security across “the five domains” – air, land, sea, space and cyberspace – the U.S. military relies on energy to achieve its core mission. Before the creation of OEPP, each branch of the military had established energy visions that were compatible, but rarely synchronized. The OES builds on existing approaches by the Army, Navy, Air Force, and Marine Corps but is unique in that it provides direction across the Department.
In terms of its content, the new Strategy lists “3 Principle Ways” to improve DoD energy policy. These include: “More Fight, Less Fuel,” which addresses reducing energy demand; “More Options, Less Risk,” which focuses on diversifying energy sources; and “More Capability, Less Cost,” which emphasizes that future planning on “force structure, posture and strategy” should be done with energy in mind. These are all compatible with the key points of the military’s energy vision. The Army, Navy, Air Force, and Marine Corps all focus on using energy more effectively in order to serve their national security mission by increasing efficiency and curtailing use when possible to reduce demand, securing access to energy supplies including the development of alternative sources, and looking to the future – “serv[ing] as a model to the nation,” being “resilient to any potential energy future,” inspiring “cultural change,” and “instilling a warrior ethos” that values energy as a weapon of war, respectively.
While the OES has been criticized as too vague, the document should be understood as the first piece in the overall energy plan. As the OEPP’s inaugural strategy issuance, it lays the groundwork necessary for future undertakings of the office. For the past few years, the Services have frequently replicated each other’s work and failed to field promising new technologies—often simply due to a lack of coordination between Services and between domestic institutions and warfighters. Among other things, the OES will help to optimize energy initiatives across the Services by lowering the chances of duplication of efforts and by highlighting and filling in the gaps that have resulted from stovepiped programs. In addition to providing an overarching direction for DoD energy projects, merging these efforts under the responsibility of OEPP will provide a level of transparency in energy policy that has not been prevalent in DoD culture. The new strategy is a step toward treating energy with the same respect that is given to other tools of war. New energy initiatives across the Services and in the civilian world can be better leveraged under a coordinated energy strategy. Successes like the Marine Corps’ SPACES technology (backpack-portable solar power units that can recharge batteries, lightening a soldier’s load by 10 pounds or more, and reducing the need to resupply) and promising advances like the Navy’s 50/50 bio-fuel/JP-8 blend jet fuels are more likely to be shared and diffused throughout the Department under a unified strategy.
It will be important to see how OEPP builds upon the foundational Operational Energy Strategy with its forthcoming implementation plan. Intended to be released 90 days following the OES, the implementation plan is slated to contain a set of goals with performance measurements and timetables. The OES indicates that the two documents should move forward together to create both short-term and long-term visions for operational energy, while establishing a viable roadmap containing the concrete goals and processes necessary to drive operational energy to the more efficient, diversified, and less costly institution conceptualized by the OES. Hopefully the implementation plan will address the criticisms voiced about the vagueness of the strategy.
The emphasis on long-term goals in the OES is a signal from OEPP that new ways of thinking about energy won’t be institutionalized overnight. The framework presented in the strategy is designed to be incorporated into training and curricula at the senior-level service schools so energy considerations become one of the routine factors of everyday decisions, evidenced under the third theme, which aims to include energy considerations in all future planning and training. General David Petraeus emphasized this approach when he issued a memorandum to the U.S. forces in Afghanistan that encouraged commanders to be mindful of routine energy consumption and ordered them to make “energy-informed” decisions in order to prevent energy consumption from limiting combat capabilities. The OES encourages this kind of attitude from high-level commanders across all Services and operations.
Although it was released months after its initial due date, the timing of the OES’s release may in fact be advantageous. One of the pressing issues facing new Secretary of Defense Leon Panetta is how to reduce the budget without reducing the capability and effectiveness of the U.S. military. Both Congress and President Obama have requested that DoD reduce expenditure both immediately and in the long-term, putting Panetta in a challenging situation. Finding more efficient, long-term energy solutions could become a significant factor in the budget equation. Given his energy conscious stances, Panetta is likely to make energy savings a high priority.
The release of the U.S. military’s first comprehensive Operational Energy Strategy will prove a valuable first step to increasing mission effectiveness in both the short and long terms. The forthcoming implementation plan is likely to do more. At the end of the day, what is most critical is that the new OEPP office acts as a coordinating force with and between the services that focuses on minimizing duplication, facilitating diffusion of new technology and techniques to the joint warfighting community and institutionalizing the Services’ successes. All of this requires a light touch and an emphasis on the long game and the new strategy takes precisely this approach.
Dr. Richard B. Andres is Professor of National Security Strategy at the National War College and Chair of the Energy & Environmental Security Policy Program at National Defense University.
Christine Zaino is a Research Assistant with the Energy & Environmental Security Policy Program at National Defense University. She is currently pursuing her MA in International Affairs at the Elliott School of International Affairs at The George Washington University.
Kevin Ostlie is a Research Assistant with the Energy & Environmental Security Policy Program at National Defense University. He is currently pursuing his MA in Public Policy, concentrating in International Security and Economic Policy, at the University of Maryland School of Public Policy.