Updated October 22, 2021
Defense Primer: Army Multi-Domain Operations (MDO)
As an operational concept, Multi-Domain Operations
media, false narratives, cyber-attacks), and the
(MDO) influence what types of weapon systems and
actual or threatened employment of conventional
equipment the Army procures, what types and numbers of
forces. By creating instability within countries and
soldiers are needed, the organizational structure of the
alliances, China and Russia create political
Army, and what type of training is required—all significant
separation that results in strategic ambiguity
legislative concerns for Congress. As such, an
reducing the speed of friendly recognition, decision,
understanding of MDO could prove beneficial for
and reaction. Through these competitive actions,
congressional oversight activities.
China and Russia believe they can achieve
What Are Multi-Domain Operations
objectives below the threshold of armed conflict.
(MDO)?
How the Army Intends to Compete
According to the U.S. Army’s Training and Doctrine
Arguably, competition is a critical aspect of MDO because
Command (TRADOC):
if it is conducted successfully, conflict might be avoided.
Multi-Domain Operations (MDO) describes how
According to U.S. Army Chief of Staff Paper #2, The Army
the U.S. Army, as part of the joint force [Army,
in Military Competition, dated March 1, 2021, the Army
Navy, Air Force, Marines, and Space Force] can
competes in three ways:
counter and defeat a near-peer adversary capable of
Narrative competition, which is reflected in the rise and
contesting the U.S. in all domains [air, land,
fall of a country’s reputation based on general perceptions
maritime, space, and cyberspace] in both
of its strength, reliability, and resolve. The Army
competition and armed conflict. The concept
contributes by being a lethal, competent, credible force and
describes how U.S. ground forces, as part of the
being recognized as such by allies and partners, as well as
joint and multinational team, deter adversaries and
by adversaries.
defeat highly capable near-peer enemies in the
Direct competition, which encompasses the full range of
2025-2050 timeframe.
competitive activities, from the lowest intensity competition
MDO provides commanders numerous options for
below armed conflict through general state conflict. In
executing simultaneous and sequential operations
direct competition, the objective is to create leverage for the
using surprise and the rapid and continuous
United States and to deny it to the adversary.
integration of capabilities across all domains to
Indirect competition, in which the objective is to gain
present multiple dilemmas to an adversary in order
advantage (or deny it to the adversary). This objective is in
to gain physical and psychological advantages and
contrast to the more forceful concept of leverage in direct
influence and control over the operational
competition. The Army contributes by offering a range of
environment.
credible (low- and moderate-intensity and risk) options for
policymakers.
Why Did the Army Adopt MDO?
MDO is described in detail in a December 2018 Army
Some of these options include activities such as overseas
publication titled The U.S. Army in Multi-Domain
exercises, security cooperation, security force assistance,
Operations 2028. MDO was developed in response to the
military-to-military exchanges, overseas basing,
2018 National Defense Strategy, which shifted the previous
intelligence sharing, and disaster relief. In this regard,
indirect competition is not a “new” operational concept b
focus of U.S. national security from countering violent
ut
extremists worldwide to confronting revisionist powers—
instead more along the lines of a redesignation of traditional
primarily Russia and China—that are said to “want to shape
activities short of armed conflict. Army leadership believes
a world consistent with their authoritarian model—gaining
that if the Army and the other Services prevail in these
veto authority over other nations’ economic, diplomatic,
“competitions,” U.S. national security objectives should be
and security decisions.” According to The U.S. Army in
achieved.
Multi-Domain Operations 2028:
How MDO Is Intended to Work
China and Russia exploit the conditions of the
The Army’s central idea is to prevail by competing
operational environment to achieve their objectives
successfully in all domains short of conflict, thereby
without resorting to armed conflict by fracturing the
deterring a potential enemy. If deterrence fails, Army
U.S.’s alliances, partnerships, and resolve. They
forces—along with the Joint Force—are to:
attempt to create stand-off through the integration
Penetrate enemy anti-access and area denial (A2/AD)
of
diplomatic
and
economic
actions,
systems (layered and integrated long-range precision-strike
unconventional and information warfare (social
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Defense Primer: Army Multi-Domain Operations (MDO)
systems, littoral anti-ship capabilities, air defenses, and
they also relate to the other Services, as well as Allies and
long-range artillery and rocket systems) to enable strategic
Partner Nations.
and operational maneuver of U.S. forces.
(For additional information on Project Convergence, see
Dis-integrate—disrupt, degrade, or destroy A2/AD
CRS In Focus IF11654, The Army’s Project Convergence,
systems to enable operational and tactical maneuver of U.S.
by Andrew Feickert.)
forces.
AimPoint Force Structure Initiative
Exploit the resulting freedom of maneuver to achieve
The primary means by which the Army intends to build its
operational and strategic objectives by defeating enemy
MDO capability is through what it calls the AimPoint Force
forces in all domains.
Structure Initiative. According to the Army, the AimPoint
Re-compete—consolidate gains across domains and force a
Force is to be a flexible force structure. While little change
return to competition on favorable terms to the United
is expected at brigade level and below, the Army suggests
States and allies.
major changes will occur at higher echelons—division,
corps, and theater command—that have primarily played a
How Will MDO Change the
supporting role in counterinsurgency operations such as
Organization of the Army?
those in Iraq and Afghanistan. Under MDO, higher field
As part of the release of The U.S. Army in Multi-Domain
headquarters will now be required to take the lead in
Operations 2028, an Army official described to the media
coordinating large-scale campaigns against well-armed
that specific Army echelons will be given different
nation-states such as Russia and China. The Army also
“problems” to address under MDO. Existing Divisions and
notes that the AimPoint Force will be resource-informed,
Corps will be tasked with fighting and defeating specific
meaning it will be subject to budget constraints and
components of the enemy’s system. As such, the Army will
political considerations. Because of the geographic
no longer organize or center itself on Brigade Combat
distinctions between the European and Indo-Pacific
Teams (BCTs) as it did under previous National Defense
theaters, individual higher-echelon AimPoint formation
Strategies. Under the previous BCT-centered organizational
force structure will likely differ by theater as opposed to
construct, Divisions and Corps had a limited warfighting
current one-size-fits-all units.
role, but under MDO, Divisions and Corps headquarters are
As an example, the Army is creating five Multi-Domain
to return to their historic warfighting roles, in which they
Task Forces (MDTFs): two aligned to the Indo-Pacific
employed subordinate units and allocated Corps- and
region; one aligned to Europe; one stationed in the Arctic
Division-level assets to support subordinate units.
region and oriented on multiple threats; and a fifth aligned
According to the online magazine Breaking Defense, MDO
for global response. MDTFs are to be theater-level units
calls for the creation of Field Armies, an intermediate
intended to coordinate effects and fires in all domains
command level between already established Theater
against A2/AD networks so U.S. Joint Forces can conduct
Armies—such as U.S. Army Pacific (USARPAC) or U.S.
their operational plan (OPLAN)-directed roles.
Army Europe (USAREUR)—and Corps. While one Field
Army currently exists—the U.S. 8th Army in Korea—it is
(For additional information on the Army’s AimPoint Force
not known how many more Field Armies are envisioned
Structure Initiative, see CRS In Focus IF11542, The Army’s
under MDO, where they would come from within Army
AimPoint Force Structure Initiative, by Andrew Feickert.)
force structure, and where they might be stationed. These
(For additional information on MDTFs, see CRS In Focus
Field Armies would supposedly be capable of commanding
IF11409, Defense Primer: Army Multi-Domain Operations
multiple Corps against near-peer threats.
(MDO), by Andrew Feickert.)
The Army’s Way Ahead
The Need for a Joint MDO Doctrine?
Army leaders reportedly note that MDO will not only have
Some suggest a shared vision among the Services on multi-
an impact on Army organizations and operations; it will
domain operations is insufficient and a joint doctrine and
drive Army modernization efforts as well, in terms of
warfighting concept for MDO is needed. Such a joint MDO
development and acquisition of supporting capabilities and
doctrine could compel the Services to adopt a coordinated
systems. Army leadership seeks to have MDO become a
approach to MDO and ensure corresponding investments
joint, multiservice operational concept instead of Army-
are made in systems needed to successfully prosecute
centric.
MDO. The last joint doctrine, Doctrine for the Armed
Project Convergence
Forces of the United States (JP-1), was published in 2013
and updated in 2017, but this update did not fully take into
Started in the summer of 2020, Project Convergence is an
account the current National Security or National Defense
Army initiative designed to rapidly merge the Service’s
Strategies’ emphasis on great power competition.
capabilities with Joint Force assets in the air, land, sea,
Reportedly, the new Joint Warfighting Concept (JWC) was
space, and cyber domains. The Army is currently
signed by the Secretary of Defense in June 2021, and the
conducting Project Convergence 2021 in the October-
next step will be to issue strategic directives to define joint
November 2021 timeframe and is planning for Project
requirements for the four key tenets of the JWC: joint fires,
Convergence 2022 as well. Project Convergence is intended
Joint All Domain Command and Control (JADC2),
to inform and test MDO concepts, technologies, force
contested logistics, and information advantage.
structures, and procedures, not just within the Army, but as
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Defense Primer: Army Multi-Domain Operations (MDO)

IF11409
Andrew Feickert, Specialist in Military Ground Forces


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https://crsreports.congress.gov | IF11409 · VERSION 5 · UPDATED

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