Options for Strategic Lift
13. For operations in Afghanistan and Iraq, Strategic
Lift is provided by either sea or air because of the distances
involved. Strategic land-lift using lorries has been used for
moving equipment and stores, for example during operations in
Bosnia, but is not a viable option for operations in Afghanstan
and Iraq. We asked what were the key factors which were taken
into consideration when choosing between sea-lift and air-lift.
Brigadier Mason, Director Defence Supply Chain Operations and
Movements, told us that:
As long as one has the timelines with the preparation
and planning, and applies an element of foresight to the plan,
one will look at what one can move by sea to the operational theatre,
because that means moving much greater volumes and it is better
value for money. But there will come a time when we are into routine
sustainment where we have to send high priority stores by air
and we will always move Pax [people] by air. I suppose it comes
to the decision points and timelines of planning and operation.[14]
14. It is important that decision-making by the Government
and the military customer is quick enough to allow the option
of using sea-lift as an alternative to air-lift. Brigadier Mason
said that he sought to "influence" the military customer
to make decisions early so that sea-lift could be used. He said
that there had "been occasions when that has been difficult
to do, but in the main we have managed to achieve it". Air-lift
was generally used to transport Urgent Operational Requirements
(UORs) to the operational theatre as they were needed quickly.[15]
15. Strategic
sea-lift enables large volumes of defence equipment and stores
to be transported to operational theatres in the most cost-effective
way, but early political and military decision-making is needed
if sea-lift is to be possible. We recommend that the MoD identify
how the speed of its decision-making could be improved further
in order to maximise the use of sea-lift.
16. One of the Members of the Committee had flown
to Afghanistan earlier in the year on a C-17 transport aircraft
and had been surprised to see that bunk beds and flat packs of
building timber were being transported.[16]
AVM Leeson considered it "highly improbable" that there
would be an emergency requirement for such things because they
were not in short supply, although local sourcing in Afghanistan
was difficult.[17] Brigadier
Mason suspected that the explanation was that "there was
space to be filled and rather than fly fresh air we moved stock".[18]
The MoD subsequently informed us that:
There was a flight on the 15 Feb 07 that contained
cargo that was to be used for Force Protection purposes, including
re-enforced bunk-beds to protect the incumbent in the event of
insurgent indirect fire…. it was determined that the equipment
was required in theatre as quickly as possible and air transport
was the quickest available method.
17. Strategic
air-lift is an expensive option for transporting equipment and
stores when compared with strategic sea-lift, but is the fastest
option for transporting equipment and stores needed urgently in
theatre. When using strategic air-lift, the MoD must ensure that
the lift capacity of aircraft is fully utilised, giving priority
to the equipment and stores urgently needed in theatre. However,
where spare capacity is available, it makes sense to transport
other items which are not needed as urgently, rather than "fly
fresh air".
18. We were surprised to hear that Warrior armoured
vehicles were to be flown to Afghanistan rather than transported
by sea-lift. AVM Leeson acknowledged that using air-lift was an
expensive way to move "sizeable items like heavy armour".
However, he told us that "moving warlike stores through third
countries obviously gives rise to interesting intelligence as
well as political issues and we try to avoid that where we can".[19]
19. We asked about the difficulties of transporting
equipment through third countries. AVM Leeson considered that
our record so far is simply exceptional. We have
had tremendous support significantly from the Kuwaiti and Pakistani
governments in terms of permitting us to operate through commercial
ports, and by and large we use commercial transport arrangements.[20]
The MoD confirmed that there had, to date, been no
significant issues regarding air transport through third parties
and "the same is largely true of shipping". Equipment
transiting Pakistan by road to Afghanistan had generally moved
freely.[21] We
note that the transportation of equipment through third countries
to support current operations in Iraq and Afghanistan has generally
not caused any problems.
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