The answer is "empower the lowest level".
Local commanders have the best handle of their circumstances. Under mission command, they are offered access to or control of the assets expected to deliver info in time, conduct successful strategic tasks etc. Hence, powerful COIN activities are decentralized, and higher commandants owe it to their subordinates to push whatever number of capacities as could be allowed down to their level. Mission command energizes the activity of subordinates and encourages the discovering that must happen at each level. It is a noteworthy characteristic for a COIN force that can adjust and respond in any event as fast as the agitators.