Department of the Navy

Marine Corps Combat Development Command

Quantico, VA

25 July 1997

A Concept for Future Military

Operations on Urbanized Terrain
The tide of expanding urbanization in the developing world
has increased the likelihood that Marines will again be called
upon to operate in urban areas. Such evolutions will pose
many challenges. A Concept for Future Military Operations
on Urbanized Terrain addresses these challenges by explor-
ing the application of the tenets of maneuver warfare to an
environment which has traditionally been characterized by at-
trition-style combat. By combining this new intellectual ap-
proach with emerging technology, Marines will exploit the
unique characteristics of urban settings. A Concept for Fu-
ture Military Operations on Urbanized Terrain will guide
the process of research and experimentation by which we will
discern required operational capabilities and potential solu-
tions.

PAUL K. VAN RIPER

Lieutenant General, U.S. Marine Corps
Commanding General
Marine Corps Combat Development Command
United States Marine Corps Emerging Operational Concepts

Intentionally Blank

III-2
 Future Military Operations on Urbanized Terrain

A Concept for Future Military

Operations on Urbanized Terrain

INTRODUCTION

CITIES AND WARFARE

Traditionally, military planners have viewed cities as “centers of gravity.”

Cities are population centers, transportation hubs, seats of government,
sources of wealth, centers for industry, and key nodes for communication
and information networks. These characteristics are likely to remain as
important in the future as they have been throughout history, and will
perhaps grow even more important as human society becomes increas-
ingly reliant upon the technologies which are the trademark of city life. It
is thus evident that, as urbanization increases, the military significance of
cities will likewise increase.

By their nature as focal points of population, commerce, and govern-

ment, cities are likely points of interface between US interests and the
interests of foreign governments or non-state entities. In the still-
emerging post-Cold War international security environment, cities have
proven to be a locus for US military intervention. American forces have
conducted major operations in Panama City, Port-Au-Prince, and Moga-
dishu, and noncombatant evacuation operations in Tirana, Kinshasa,
Monrovia, and Freetown. Clearly, the likelihood is high that in the fu-
ture, the National Command Authorities will again commit Marines to
missions in urban areas.

TRENDS IN URBANIZATION

According to United Nations estimates, the urban population of devel-

oping countries worldwide increases by about 150,000 people each day,
with the most pronounced growth occurring in Africa and Asia. By the
year 2025, three-fifths of the world’s population—five billion people —
will live in urban areas.

III-3
United States Marine Corps Emerging Operational Concepts

1950 1990 2015

“MILLION CITIES” 50 270 516
[pop.>1 million]
“MEGACITIES” New York Worldwide: 21 Worldwide: 33
[pop.>8 million] London Developing World: 16 Developing World: 27
[Source: World Resources 1996-97, A Guide to the Global Environment]

As cities become physically larger and more populous, urban terrain

grows more complex. Buildings increase in number, as well as in size.
Road networks become more extensive, to include heavy-duty, multi-lane
highway systems. Subterranean infrastructure expands as subways and
storm sewers reach out to service broader areas. Urbanization spreads
like an oil stain, creating broad and complex “transition zones” consisting
of suburbs and industrial areas which separate the city core from its rural
surroundings.

In some developing nations, the pace of urban population growth may

exceed the development of city services. Housing, water, and jobs will
be in short supply, giving rise to poverty, disease and crime. Over-
crowded conditions will create an environment of social and economic
tension which might eventually find an outlet in the form of violence.

THE CHALLENGE

Added to the friction, uncertainty, fluidity and disorder which character-

ize war, the demands peculiar to the urban environment are especially
challenging. Urban terrain is an extraordinarily intricate blend of hori-
zontal, vertical, interior, and exterior forms superimposed upon the land-
scape’s natural relief, drainage, and vegetation. The average city in-
cludes many styles of construction using a multitude of different building
materials, each with its own texture and strength. Urban terrain influ-
ences the conduct of military operations to a greater degree than does
any other terrain type. Unique to MOUT is the phenomenon that the
conduct of operations can radically alter the physical nature of the terrain
in ways and to an extent not experienced in other environments. Some
buildings suffer damage, with collapsed walls or roofs, while others are
razed completely, leaving only a pile of rubble. These effects can be
militarily significant, as some key terrain features disappear altogether
and fields of fire open and close.

III-4
 Future Military Operations on Urbanized Terrain
Urban terrain is highly
restrictive, limiting ob-
servation distances, en-
gagement ranges, weap-
ons effectiveness, and
mobility. These factors
tend to force extremely
close combat with troops
fighting from building to
building and from room
to room. Command and
control is difficult, be-
cause small unit leaders
cannot see their troops
and radio communication
is subject to interference
caused by the presence
of structures. Histori-
cally, urban combat has
called for a high degree of initiative by small unit leaders operating with
near-autonomy.

In the future, the urban environment will present Marines with situations
requiring the conduct of many different categories of military activities.

III-5
United States Marine Corps Emerging Operational Concepts
Humanitarian assistance operations, peace operations, and full-scale,
high-intensity combat may occur simultaneously in different neighbor-
hoods. Integrating and coordinating these varying evolutions, each of
which has its own peculiarities, will challenge Marines to use their skill
and determination in innovative and imaginative ways. The presence of
large numbers of noncombatants and the potential difficulty in distin-
guishing these noncombatants from hostile forces will further complicate
the task of operating in the urban environment.

III-6
 Future Military Operations on Urbanized Terrain

THE VISION: FUTURE MOUT

MOUT AND MANEUVER WARFARE

Historically, operational artists and tacticians have viewed MOUT as at-

trition style warfare, which is characterized by the application of fire-
power to achieve the cumulative destruction of the enemy’s materiel as-
sets. The extreme granularity of urban terrain has limited conventional
mobility and tended to “absorb” relatively large numbers of personnel.
Unit frontages have been dramatically diminished, with advances or
withdrawals measured in terms of single buildings or blocks. Troops
expended extraordinary quantities of ammunition in efforts to destroy by
firepower enemy forces protected by the cover of structures and rubble.
Attackers systematically bludgeoned their way from building to building,
while their opponents doggedly defended every cellar and room. Fierce
and continuous close combat resulted in great material destruction, prop-
erty damage, and high casualties among combatants and noncombatants
alike.

Such attrition style

combat can exact a
toll in casualties and
destruction which is
inconsistent with both
our system of values
and our philosophy of
warfare. This is re-
flected in rules of en-
gagement which typi-
cally restrict our use
of lethal firepower.
While such restrictions
heighten the challenge
inherent in urban
combat, they are inte-
gral to the employment of military power in defense of national interests
and will remain a fundamental feature of the circumstances in which we
will operate.

III-7
United States Marine Corps Emerging Operational Concepts
The near certainty that the National Command Authorities will again de-
ploy Marines to urban environments, combined with the mandate to re-
duce casualties and collateral damage, requires that our concept for fu-
ture MOUT address a new vision for these evolutions. Through an un-
derstanding of the reasons why MOUT has typically devolved into attri-
tion-style warfare, we can overcome existing limitations so that in the
future, Marines will apply maneuver warfare to MOUT.

Maneuver warfare is the warfighting philosophy of the Marine Corps. In

maneuver warfare, we apply our strength against the enemy’s weakness,
using tempo as a weapon to shatter his cohesion, organization, command
and psychological balance. We maneuver in time, as well as in space, to
achieve decisive superiority. In future MOUT, Marines will leverage the
peculiarities of the urban environment to develop and maintain tempo,
thereby creating a cascading, deteriorating effect upon the enemy. This
will require new ways of thinking about operations in cities, as well as the
exploration of new technologies to facilitate the conduct of maneuver
warfare in urban conditions. Marines must have the technical capability
and the operational acumen to identify the enemy’s positions of strength
and his critical vulnerabilities, as they exist in the context of a city. In the
attack, instead of grinding their way from house to house, Marines will
deftly maneuver through built-up areas, using new and unorthodox mo-
bility techniques to avoid surfaces and exploit gaps. They will bypass
and isolate the enemy’s centers of resistance, striking killing blows
against those enemy units, positions, or facilities upon which his force
depends. In the defense, instead of focusing efforts on the creation of
heavily defended strongpoints, Marines will drive the enemy into killing
zones , and then will use enhanced mobility in the urban domain to de-
liver counterattacks which will unhinge enemy plans.

When future MOUT occur in the context of military operations other

than war, the philosophy of maneuver warfare will remain an appropriate
approach. Depending on the specific type of such operations, the enemy
might be ill-defined or nearly invisible, yet Marines will still apply the
fundamental notion of developing tempo to control the pace of the un-
folding situation. In urban military operations other than war, Marines
will face uncertainty and friction, just as in high-intensity combat, but of-
ten with missions that are far more complex and with latitude to apply
force that is far more constrained.
III-8
 Future Military Operations on Urbanized Terrain
The Marine Air-Ground Task Force (MAGTF) is well-suited for the
conduct of future MOUT. With a balanced blend of ground combat
power, aviation combat power, and combat service support, linked to-
gether under a single commander, the MAGTF will readily adjust to the
intricacies of urban evolutions. In future MOUT, Marines at every level
will employ the flexibility of the MAGTF to overcome the inherent
“friction” of urban combat, thereby building tempo and controlling the
pace of evolutions.

ENHANCING OPERATIONAL CAPABILITIES

The granularity of urban terrain and the presence of noncombatants will

combine to create friction which can potentially erode the effectiveness
of basic operational capabilities. We will explore means for enhancing
capabilities so as to overcome this erosion. Our efforts must address
seven capability areas:

Command and Control. Command and control systems must adapt

readily to urban terrain. Communication devices must function in multi-
dimensional urban surroundings, ensuring reliable communications be-
tween structures, streets, and sewers. Under circumstances in which unit
boundaries will most likely include a vertical component in addition to
the traditional horizontal limits, commanders must have a mechanism for
identifying appropriate features and expressing plans to subordinates in
three-dimensional terms.

We must overcome the restrictions urban terrain imposes upon the abil-
ity of unit leaders to monitor and direct the activities of subordinates.
Marines must be able to determine and report locations in three-
dimensional terms, with sufficient precision to identify individual rooms
in a building, or even specific locations within rooms. Command and
control mechanisms must display three-dimensional terrain in formats
which enhance understanding and provide the user a “feel” for the
ground. Computer-generated map products will provide a graphic repre-
sentation of urban terrain, reflecting in near-real time changes caused by
combat action (e.g., collapsed structures, flooded subways). Such prod-
ucts will be data-intensive; command and control hardware must be ca-

III-9
United States Marine Corps Emerging Operational Concepts
pable of retrieving, exchanging, storing, displaying, and manipulating
these data in large quantities and at a very-small unit level.
Despite advances in technology, future MOUT will remain clouded by
the fog and friction of war. Commander’s intent, mission tactics, and
implicit communications will remain fundamental to achieving the appli-
cation of maneuver warfare to the urban environment. Command and
control procedures and systems must be flexible and adaptive to account
for the uncertainty inherent in combat.

Mobility/Countermobility. Future MOUT will call for “multi-spectral

mobility,” that is, the capability to move combat power rapidly through
three-dimensional urban terrain. Surface movement will include not only
conventional methods of negotiating roads and reducing obstacles, but
also the means to create -- using special breaching capabilities -- new
lines of communications or avenues of approach through structures
which might be fully or partially intact. Sub-surface movement will ex-
ploit sewers, subway tunnels and other forms of urban subterranean in-
frastructure. Super-surface movement will allow Marines to create and
use of lines of communications and avenues of approach via the upper
stories of buildings, perhaps without the aid of aircraft. Vertical move-
ment will be conducted between the surface, sub-surface, and super-
surface zones. Finally, multi-spectral mobility in future MOUT will in-

III-10
 Future Military Operations on Urbanized Terrain
clude air movement by assault support aircraft. Although a conventional
method of movement, its use in future urban combat environments will
call for special considerations in the selection of landing zones and
routes.

The freedom to conduct movement within and between these zones will
be critical to our ability to adapt maneuver warfare to the urban
environment. Marine units will need enhanced mobility characteristics to
facilitate—

• rapid breaching of steel-reinforced concrete walls,

• vertical movement inside structures without the use of existing stair-
cases,
• vertical movement on the outside of structures,
• horizontal movement between structures above ground level, and
• penetration of pavement and building foundations for movement be-
tween surface and sub-surface zones.

Units moving in or between zones must be able to navigate effectively,

and to coordinate their activities with units in other zones, as well as with
units moving outside the city. This navigation and coordination capabil-
ity must be resident at the very-small-unit level, perhaps even with the
individual Marine.

Marines will conduct countermobility evolutions to limit or deny the en-

emy’s freedom to maneuver along urban avenues of approach, which
might include streets, subways, or passages through buildings. In the at-
tack, when Marine units bypass enemy centers of resistance, they will use
countermobility means to contain the enemy within his positions and to
seal potential avenues of approach which might facilitate enemy counter-
attacks. In the defense, countermobility systems and procedures will
form an integral part of the overall plan, limiting the enemy’s maneuver
options and channeling him into killing zones.

III-11
United States Marine Corps Emerging Operational Concepts
Marines must examine mo-
bility in urban terrain as it
impacts evolutions at differ-
ent levels of war. For ex-
ample, at the operational
level, a MAGTF com-
mander will be concerned
with the capability to ex-
ploit a major urban trans-
portation network.

On the other hand, at the tac-

tical level, squad leaders will
focus on procedures for
movement through a small
portion of the same major
network.

Measured Firepower. Future MOUT will call for “measured fire-

power.” Structures and rubble will provide increased cover, requiring
greater firepower to achieve desired effects against the enemy. At the
same time, the potential presence of noncombatants will simultaneously
demand reduced lethality in weapons employment. Measured firepower
must enable Marines to deny the enemy the protection he will seek to
gain from the urban environment. Marines must have the flexibility to
attack targets located within buildings or rubble, and to conduct engage-
ments from surface to sub-surface, and vice versa. Measured firepower
must provide reasonable certainty of achieving the desired effect on the
enemy, but with reduced risk of injury to noncombatants. In some situa-
tions, for example, Marines might be required to “implode” large build-
ings defended by the enemy, without seriously damaging surrounding
structures. In other situations, they might employ nonlethal weapons to
clear structures shared by enemy forces and noncombatants.

III-12
 Future Military Operations on Urbanized Terrain
The nature of urban terrain will present challenges in employing fires.
Limited visibility will affect targeting, fire support coordination, and bat-
tle damage assessment. Tall structures will become intervening crests for
surface-delivered fires. The cover afforded by the terrain will affect
penetration characteristics and fuze functioning, reducing weapons ef-

fects below the threshold for successful engagement. The fire support
system must adapt to these conditions by providing for target location
and designation in three-dimensional terms, extremely precise ordnance
delivery (e.g., to a specific room in a building), munitions with variable
penetration and explosive characteristics, and the coordination of lethal
and nonlethal fires against different targets near one another. Marines
must fully understand the expected effects of ammunition when used
against different combinations of building materials. The capability to
call for and adjust supporting arms in an urban environment must be resi-
dent at the very-small-unit level, perhaps the squad, and Marines at every
level must understand the integration of fire and maneuver in urban ter-
rain.

III-13
United States Marine Corps Emerging Operational Concepts
Survivability. Urban combat has historically resulted in high casualties,
particularly among units attempting to maneuver through streets forming
narrow and exposed avenues of approach, against enemy units en-
trenched in the rugged terrain of the city. Marines will use force protec-
tion measures adapted for future MOUT to facilitate maneuver with re-
duced risk of casualties. Individual and collective protection might serve
to lower the incidence of some types of casualties.

Protective measures required for future MOUT will also include special
medical capabilities. Individual Marines will be exposed to a wide variety
of infectious diseases which breed in the close and heavily populated en-
vironment of a city. This exposure might be limited through means such
as anti-biotic body-covering ointments or personal air filtration systems
which could reduce the probability of inhalation or absorption of disease-
carrying organisms. The nature of the terrain will result in a greater
number of accidental injuries than are normally encountered in other op-
erating environments: Marines will fall from heights, they will suffer cuts
from glass and other sharp objects, and they will be hit by falling debris.
Marines might be wounded while in locations from which it is difficult to
evacuate them: a flooded subway or sewer, a major intersection swept
by enemy fire, the 30th floor of a 40-story building in which the enemy

III-14
 Future Military Operations on Urbanized Terrain
holds many upper and lower floors. Systems must be in place to provide
for prompt and effective care of the wounded under such challenging cir-
cumstances.

Adaptability. Urban terrain will absorb large quantities of manpower

because units will disperse vertically, as well as horizontally, reducing the
lateral frontages they would normally occupy. Additionally, limited visi-
bility and engagement ranges will combine to reduce the ability to cover
by fire the areas between adjacent units. Given the extraordinary size of
some modern urban areas, it is unlikely that Marine Corps forces will be
deployed to a future MOUT situation in sufficient strength to operate in
such traditional fashion. These evolutions will call upon Marines to em-
ploy economy of force, operating in ways which will reduce the tendency
of urban terrain to absorb manpower.

Adaptability is the quality which will enhance our ability to create task
organized combat formations. Marines operating in a city must be
trained, organized, and equipped in such a manner as to facilitate smooth
and rapid transition from one task organization to another. This charac-
teristic will help us to control the tempo of operations and maintain the
initiative. While task organization is a standard practice, it must be car-
ried to the very small unit-level when applying maneuver warfare in an
urban battlespace. Platoon commanders and squad leaders exercising
initiative in pressing the battle against the enemy might find their units
separated from adjacent units or higher headquarters. Small-unit leaders
must be capable of planning and executing independent operations in-
volving employment of special capabilities, as well as integrating sup-
porting arms.

All units must be capable of readily disassembling into a number of inde-

pendently functioning component parts and reassembling again, without
losing momentum. Most important, adaptability calls for the capacity to
rapidly change the organization and capabilities of any unit to gain maxi-
mum advantage as the situation ebbs and flows.

A MAGTF conducting future MOUT will be like a chameleon, effort-

lessly altering its characteristics to best blend with the operational situa-
tion. The MAGTF commander and subordinate leaders at every level
will anticipate the flow of operations, and will adjust the composition of
III-15
United States Marine Corps Emerging Operational Concepts
units accordingly. Squad leaders and platoon commanders will command
mini-task forces which might include tailored packages of dedicated sup-
port assets: tanks, artillery, combat service support, even aviation. As
operations progress, these forces will change shape as special assets shift
from one unit to another. In this way, leaders will smoothly adjust the
focus of effort to maintain pressure against enemy critical vulnerabilities,
while bypassing and isolating the enemy’s positions of strength.

Awareness. Urban terrain will provide superb concealment for units

occupying or moving through structures, subways, sewers, alleys, or nar-
row streets. Not only will this characteristic increase the difficulty of
detecting the enemy, but it will also render our command and control ef-
forts more challenging by screening friendly units from their command-
ers’ observation.

“Awareness” is the ability of an individual Marine or a unit to sense the

battlespace and to accurately assess information regarding the terrain and
the presence of friendly, enemy, and noncombatant personnel. Enhanced
awareness will allow Marines in a built-up area to gather information de-
spite the presence of masking terrain features.

A particularly challenging aspect of urban terrain is the fact that much of

the “volume” of a major city is actually interior -- the space found inside
structures or under the ground. Marines need the capability to “sense
through walls” and to detect
the presence and shape of tun-
nels and sewers. Sensors
should provide for three-
dimensional interior rendering,
with the capability to display,
store, and transfer information
between units. For example, a
patrol operating at surface
level should be able to identify
and report the extent and
shape of the subways and sewers running under their patrol route at the
sub-surface. Other systems should provide a capability for remote interior
sensing, perhaps using equipment mounted on aircraft of the aviation
combat element.
III-16
 Future Military Operations on Urbanized Terrain
Sustainability. Maneuver warfare is based on tempo, and tempo is tied
closely to logistics. Logistics sets the bounds for what is operationally
possible. In future MOUT, the logistics system must adapt to the char-
acteristics of the environment to enhance tempo. The two distinguishing
features of urban operations -- the terrain and the presence of noncom-
batants -- will both impact logistics. Measures which contribute to over-
coming the logistics challenges of the urban battlespace can be said to
enhance “sustainability.”

At the tactical level of war, we will conduct combat service support

(CSS) as a subset of logistics operations. Our CSS system must provide
for supply, maintenance, transportation, health services, engineering, and
services under the special conditions of future MOUT. MAGTF Combat
Service Support Elements (CSSEs), as well as unit-level CSS organiza-
tions, must be able to locate and reach dispersed elements of supported
units in “vertical” urban terrain. Functions which occur routinely under
field conditions will take on new dimensions in future MOUT: salvage
and repair of an armored vehicle in a narrow street, evacuation of
wounded Marines from the upper portion of a skyscraper, resupply of
units operating in a storm sewer. The complexity of the environment will
lead to thousands of permutations.

In some cases, the urban environment itself might be subject to exploita-

tion for purposes of CSS. Water, fuel, rations, construction materials,
and medical supplies might be available, either for use by Marine units or
to provide for the needs of noncombatants or enemy prisoners of war.
Local facilities and infrastructure which remain reasonably intact could
serve the needs of the MAGTF: hospitals, vehicle maintenance depots,
and communications systems, for example. Civilian vehicles and heavy
equipment may serve to supplement those of the MAGTF. Subject to
security considerations and the Laws of Armed Conflict, local residents
with special expertise might be able to provide some assistance. The ca-
pability to extract resources from the urban environment must be built in
to the CSS system.

III-17
United States Marine Corps Emerging Operational Concepts

FUTURE DIRECTIONS

Meeting the challenge of future MOUT will be a multi-step process re-

quiring an examination of our doctrine, organization, training and educa-
tion, equipment, and support systems. First, we must study and under-
stand the nature of the urban environment and its implications for opera-
tional- and tactical-level evolutions. This must include consideration of
the terrain, as well as the impact of noncombatant civilian populations on
operations in an urban battlespace.

Second, we must determine the techniques, tactics, and procedures re-

quired to apply maneuver warfare to the urban environment. This proc-
ess will call for a shift in thinking. No longer will Marines systematically
conduct reconnaissance, isolate the city, secure a foothold in the city,
then clear the built-up area. Instead, they will use appreciation of the ter-
rain to identify enemy centers of gravity and critical vulnerabilities as they
appear in the urban venue, then they will conduct evolutions aimed at
unhinging the enemy’s ability to act. Similarly, Marines must learn to
organize and integrate ground and aviation combat power in the city, and
to design and execute the sustainment schemes which will build and
maintain tempo.

Third, we must explore new technologies that will facilitate the conduct
of maneuver warfare in future MOUT. Advanced sensing, locating, and
data-display systems can help Marines to leverage information in ways
which will reduce some of the masking effects of built-up terrain. New
weapons and ammunition can provide the flexibility to engage enemy
forces in urban cover, while limiting noncombatant casualties and collat-
eral damage. Mobility enhancement devices might assist Marines in ne-
gotiating the complex, three-dimensional terrain found in a modern city.

Fourth, we must enhance our ability to train in urban environments. Ef-

fective training for future MOUT must include operational- and tactical-
level evolutions which highlight the many challenges posed by urban ter-
rain. Innovative approaches might include computer simulations or exer-
cises on actual modern urban terrain. Tactical exercises without troops
will aid commanders and staffs in understanding the nature of the urban
environment. With proper coordination, Marines might conduct small-

III-18
 Future Military Operations on Urbanized Terrain
unit exercises in subway systems, abandoned buildings, or on closed
military bases.

Fifth, we must consider potential organizational solutions to the chal-

lenges of future MOUT. The unique characteristics of these operations
may require changes to the composition of some units, or possibly even
the creation of new units.

Finally, we must integrate our approach to the development of our capa-

bilities for future MOUT. There is no single solution -- technological,
doctrinal, organizational or otherwise -- which will fulfill our require-
ments for operations in urban terrain. Only through a blending of many
emerging ideas, will we attain a mature capability to carry maneuver
warfare to the city.

III-19