NATO strategy and policy has increasingly focused on incorporating cyber operations to support deterrence, warfighting, and intelligence objectives. However, offensive cyber operations in particular have presented a delicate challenge for the alliance. As cyber threats to NATO members continue to grow, the alliance has begun to address how it could incorporate offensive cyber operations into its strategy and policy. However, there are significant hurdles to meaningful cooperation on offensive cyber operations, in contrast with the high levels of integration in other operational domains. Moreover, there is a critical gap in existing conceptualizations of the role of offensive cyber operations in NATO policy. Specifically, NATO cyber policy has focused on cyber operations in a warfighting context at the expense of considering cyber operations below the level of conflict. In this article, we explore the potential role for offensive cyber operations not only in wartime but also below the threshold of armed conflict. In doing so, we systematically explore a number of challenges at the political/strategic as well as the operational/tactical levels and provide policy recommendations for next steps for the alliance.

2022 14th International Conference on Cyber Conflict: Keep Moving! (CyCon)