JP 3-57 Doctrine for Joint Civil Affairs - BITS95).pdf · PREFACE i 1. Scope This doctrine addresses the use of military civil affairs assets in planning and conducting joint CA activities

Doctrinefor

Joint Civil Affairs

Joint Pub 3-57

21 June 1995

PREFACE

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1. Scope

This doctrine addresses the use of militarycivil affairs assets in planning and conductingjoint CA activities across the range of militaryoperations. Additionally, it:

a. Identifies the sources of policy andauthority for the use of military CA assets.

b. Identifies the objectives of CA activities.

c. Delineates CA activities with relation toCivil-Military Operations.

d. Describes military CA assets, the typeof CA activities they perform, and theiremployment in support of military operationsas follows:

• General purpose operations.

• Special operations.

• Civil administration programs.

• DOD enemy prisoner of war or civilianinternee programs.

• DOD foreign humanitarian and domesticrelief operations.

e. Outlines CA responsibilities of principalDOD and non-DOD authorities and agencies.

f. Identifies the organization, commandrelationships, and/or coordination betweencombatant and subordinate JFCs, other DODelements, USG agencies, multinationalforces, and international nongovernmental orprivate voluntary organizations necessary toexecute their respective CA responsibilities.

g. Identifies considerations for employmentof military CA assets in collateral missionactivities supporting DOD missions in foreignhumanitarian assistance and domestic reliefoperations.

2. Purpose

This publication has been prepared underthe direction of the Chairman of the JointChiefs of Staff. It sets forth doctrine andselected joint tactics, techniques, andprocedures (JTTP) to govern the jointactivities and performance of the ArmedForces of the United States in joint operationsas well as the doctrinal basis for US militaryinvolvement in multinational and interagencyoperations. It provides military guidance forthe exercise of authority by combatantcommanders and other joint force commandersand prescribes doctrine and selected tactics,techniques, and procedures for jointoperations and training. It provides militaryguidance for use by the Armed Forces inpreparing their appropriate plans. It is not theintent of this publication to restrict theauthority of the joint force commander (JFC)from organizing the force and executing themission in a manner the JFC deems mostappropriate to ensure unity of effort in theaccomplishment of the overall mission.

3. Application

a. Doctrine and selected tactics, techniques,and procedures and guidance established inthis publication apply to the commandersof combatant commands, subunifiedcommands, joint task forces, and subordinatecomponents of these commands. Theseprinciples and guidance also may apply whensignificant forces of one Service are attached

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to forces of another Service or whensignificant forces of one Service supportforces of another Service.

b. The guidance in this publication isauthoritative; as such, this doctrine (or JTTP)will be followed except when, in thejudgment of the commander, exceptionalcircumstances dictate otherwise. If conflictsarise between the contents of this publicationand the contents of Service publications, thispublication will take precedence for theactivities of joint forces unless the Chairman

of the Joint Chiefs of Staff, normally incoordination with the other members of theJoint Chiefs of Staff, has provided morec u r r e n t a n d s p e c i f i c g u i d a n c e .Commanders of forces operating as part of amultinational (alliance or coalition) militarycommand should follow multinationaldoctrine and guidance ratified by the UnitedStates. For doctrine and procedures notratified by the United States, commandersshould evaluate and follow the multinationalcommand’s doctrine and procedures, whereapplicable.

WALTER KROSS Lieutenant General, USAF Director, Joint Staff

For the Chairman of the Joint Chiefs of Staff:

TABLE OF CONTENTS

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EXECUTIVE SUMMARY .......................................................................................... vii

CHAPTER IINTRODUCTION

• General..................................................................................................................... I-1• Authority .................................................................................................................. I-1• Civil-Military Operations (CMO).............................................................................. I-1• Civil Affairs Activities .............................................................................................. I-3• Policies..................................................................................................................... I-3• Principles .................................................................................................................. I-5• Civil Affairs Assets................................................................................................... I-6• Operational Parameters............................................................................................ I-6• Objectives of CA Activities....................................................................................... I-7

CHAPTER IICIVIL AFFAIRS SUPPORT TO MILITARY OPERATIONS

• General.................................................................................................................... II-1• Command and Staff CA-Relevant Functions............................................................ II-1• CA Support to Military Operations.......................................................................... II-3• Support to Special Operations (SO)........................................................................ II-14• Support to Joint and Multinational Exercises.......................................................... II-14• Civil Affairs and Psychological Operations (PSYOP)............................................ II-14• Intelligence Requirements of Civil Affairs Activities.............................................. II-15

CHAPTER IIIRESPONSIBILITIES FOR CIVIL AFFAIRS

• General ................................................................................................................. III-1• Chairman of the Joint Chiefs of Staff (CJCS)......................................................... III-1• Joint Force Commanders........................................................................................ III-1• Commander in Chief, United States Special Operations Command (USCINCSOC) III-3• Common Service Responsibilities.......................................................................... III-3• Chief of Staff, US Army......................................................................................... III-4• Chief of Naval Operations and Commandant of the Marine Corps......................... III-4• Chief of Staff, US Air Force................................................................................... III-4• USG ....................................................................................................................... III-4

CHAPTER IVORGANIZATION AND COMMAND RELATIONSHIPS

• General ................................................................................................................. IV-1• Designation of Civil Affairs Forces as Special Operations Forces........................... IV-1

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• Assignment of Civil Affairs Forces to USSOCOM................................................. IV-1• Command Relationships........................................................................................ IV-1• Organizational Relationships.................................................................................. IV-2• Organization for Civil-Military Operations............................................................. IV-2• Availability of Civil Affairs Forces......................................................................... IV-5

CHAPTER VCIVIL AFFAIRS ACTIVITIES PLANNING AND COORDINATING

• General ................................................................................................................... V-1• Deployment and Employment Planning................................................................. V-1• Other Operational Planning Factors and Constraints............................................. V-4• Inter-Service Support.............................................................................................. V-5• Interagency Coordination....................................................................................... V-5• Theater-Unique Procedures..................................................................................... V-6• Oversight of CA Planning and Activities................................................................ V-7

APPENDIX

A Civil Affairs Responsibilities of Other US Departments and Government Agencies........................................................................................................ A-1B Civil Affairs Staff Relationships......................................................................... B-1C Civil Affairs Functional Specialty Skill Areas..................................................... C-1D Civil Affairs Directives and Agreements............................................................ D-1E Service-Unique Civil Affairs Forces, Capabilities, and Missions......................... E-1F References.......................................................................................................... F-1G Administrative Instructions................................................................................ G-1

GLOSSARY

Part I Abbreviations and Acronyms.................................................................... GL-1Part II Terms and Definitions.................................................................................GL-3

FIGURE

I-1 Additional Characteristics of Civil Affairs Activities...................................... I-4I-2 Principles of Civil Affairs Activities............................................................... I-5I-3 Objectives of Civil Affairs Activities............................................................... I-8II-1 Civil Affairs Relevant Functions....................................................................II-2II-2 Civil Affairs in Military Operations Other Than War....................................II-6II-3 Civil Affairs Administration..........................................................................II-8III-1 Civil Affairs Responsibilities of Commander in Chief,

United States Special Operations Command............................................ III-3IV-1 Joint Civil-Military Operations Task Force (JCMOTF)............................... IV-6IV-2 Civil-Military Operations Center (CMOC)...................................................IV-7V-1 Civil Affairs General Planning Considerations.............................................. V-1

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V-2 Civil Affairs Planning Considerations for Military Operations Other Than War........................................................................................ V-2

V-3 Theater-Unique Procedures........................................................................... V-6

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EXECUTIVE SUMMARYCOMMANDER’S OVERVIEW

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Provides An Introduction to Joint Civil Affairs

Discusses Civil Affairs Support to Military Operations

Covers the Responsibilities for Civil Affairs

Provides An Overview of the Organization and CommandRelationships

Discusses Civil Affairs Activities, Planning, and Coordination

Civil affairs (CA)encompasses theactivities that militarycommanders take toestablish and maintainrelations between theirforces and the civilauthorities and generalpopulation, resources,and institutions infriendly, neutral, orhostile areas where theirforces are employed.

Mission, policy determinants, and the relation of thegovernment of the country concerned to the United Stateshave an influence on civil affairs (CA) and the commander’smilitary operations. Civil-military operations is a broad,generic term used to denote the decisive and timelyapplication of military capabilities to enhance therelationship between the military and civilian populace inorder to ensure accomplishment of the commander’smission. Civil affairs activities range from advice andassistance to welfare, stability, and security of friendlygovernments and their population. The pattern andobjectives of CA activities in friendly, neutral, hostile, oroccupied countries in any given area should correspond withapplicable international and domestic law. Certain generalprinciples apply to all CA activities including mission,command responsibility, continuity and consistency ofpolicy, reciprocal responsibilities, economy of personneland resources, and humanitarian considerations.Operational parameters of CA include the threat,relationships within the US, its territories and possessions,and relationships in foreign countries. Effective CAactivities will assist commanders in accomplishing assignedmissions, regardless of the operational area.

Joint Civil Affairs

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The National CommandAuthorities policyguidance and missionorders to militarycommanders willdetermine the objectivesand scope of joint CAactivities.

Commander’s CArequirements in warinclude activities moreoften associated withpeacetime militaryoperations.

Civil affairs activities are controlled or accomplishedthrough one or more of the following CA-relevantfunctions: supporting, assisting, advising, coordinating,analyzing, informing, planning, preparing, training,supervising and evaluating. Types of operations supportedby CA during military operations other than war includenation assistance operations, foreign humanitarianassistance, civil administration, humanitarian and civicassistance, support to displaced persons, domestic supportoperations, noncombatant evacuation operation, peaceoperations, insurgency and counterinsurgency, counterdrugoperations, combatting terrorism and other missionsincluding democratization support missions and disasterpreparedness planning surveys.

Humanitarian assistance, noncombatant evacuation,and infrastructure recovery and restoration are usedduring war as well as in peacetime. The rapidly movingcharacter of modern warfare and the use of weapons ofmass destruction magnify problems associated withdislocation or distress of civilian populations, resources,and institutions or services. However, the increased tempoof these operations, particularly those requiring agreementswith host-governments covering civil-military relationshipswill likely employ more extensive CA forces thanrequired for military operations other than war . Inaddition, CA activities will shift focus to transition,stabilization, and restoration programs. Planning for post-crisis or conflict CA activities requires continuousplanning and regional expertise, and should begin inconjunction with pre-crisis operation planning. Support tospecial operations, joint and multinational exercises, civilaffairs and psychological operations, and intelligencerequirements of civil affairs activities all involve the use ofCA resources.

Civil Affairs Support to Military Operations

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Executive Summary

The Chairman of theJoint Chiefs of Staff,joint force commanders,the Commander in Chief,United States SpecialOperations Command,and the Chiefs of theServices all have theresponsibilities in thearea of civil affairs.

Civil affairs activitiesrequire a responsive andunified command andcontrol structure toensure timely andeffective commandactions in attainingestablished objectives.

The Chairman of the Joint Chiefs of Staff helps obtainand interpret policies as they pertain to CA while ensuringthat all plans, resources and policies are adequate and upto date. The joint force commanders (JFCs) plan,integrate, and monitor the employment of available CAfunctional assets in appropriate operational areas and takeactions necessary to control dislocated civilians, maintainorder, prevent and treat disease, provide relief of civiliansuffering, and provide maximum protection andpreservation of property and other resources. TheCommander in Chief, United States Special OperationsCommand (USCINCSOC) is responsible for thedevelopment of strategy, doctrine, and tactics for joint CA.As heads of their respective Services, the Chiefs of theServices (US Army, Navy, Marine Corps, Air Force) havethe capability to support United States Governmentagencies, Office of the Secretary of Defense, other Services,and multinational and US combatant commanders withappropriate forces or specialists capable of performing CAactivities.

The combatant commander is responsible for theorganization and centralized direction of CA activitiesin the assigned operational area. Although civil affairsforces are designated as special operations forces, this doesnot alter relationships or principles of organization andemployment regarding CA forces’ support to militaryoperations. All US Army CA forces stationed in thecontinental United States (CONUS) are assigned by theSecretary of Defense to USCINCSOC who hascombatant command (command authority) overassigned forces. The US Army Reserve CA forces areseparately organized into commands, brigades, andbattalions. The CA organizational relationships andstructure should parallel the necessity of CA organizationalintegrity, unity of effort, and available forces. A tailoredcivil-military organizational structure may beestablished by combatant commanders, JFCs, joint forcespecial operations component commanders, or Service orfunctional component commanders to command and controlcivil-military operations. The CA force structure containsActive and Reserve components (volunteers, activationor mobilization of reserve forces).

Responsibilities for Civil Affairs

Organization and Command Relationships

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Civil affairs planning is based on national policy andreflects a variety of legal obligations such as theprovisions of the US Constitution, statutory law, judicialdecisions, Presidential directives, departmental regulations,and the rules and principles of international law. Jointoperation planning and execution systems integrate allelements of deliberate or crisis action CA planning.Inter-Service support, interagency coordination, and theater-unique procedures must be planned and coordinated in orderto support CA activities.

This publication addresses the use of military civil affairsassets in planning and conducting joint CA activities acrossthe range of military operations. It covers civil affairssupport to military operations and lays out the overallresponsibilities for planning and conducting civil affairs.It also provides an overview of civil affairs organizationand command relationships.

Planning and Coordination of Civil Affairs Activities

CONCLUSION

Planning for, andcoordination of, CAactivities facilitatesmission accomplishment.

CHAPTER IINTRODUCTION

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1. General

Civil Affairs (CA) is an inherentresponsibility of command. CA encompassesthe activities that military commanderstake to establish and maintain relationsbetween their forces and the civil authoritiesand general population, resources, andinstitutions in friendly, neutral, or hostileareas where their forces are employed.Commanders plan and conduct CAactivities to facilitate military operationsand help achieve politico-military objectivesderived from US national security interests.Establishing and maintaining military-to-civil relations may entail interactionbetween US, multinational, and indigenoussecurity forces, and governmental andnongovernmental agencies as part of missionstasked to a joint force commander (JFC).These activities may occur before, during,subsequent to or in the absence of othermilitary actions.

2. Authority

a. A commander’s authority forundertaking CA activities in support of allmilitary operations can stem from a varietyof sources. Factors such as mission, policydeterminants, and the relation of thegovernment of the country concerned to theUnited States have an influence on civilaffairs.

b. The authority to conduct CA activitiesor exercise controls in a given area orcountry may arise as a result of successfulmilitary operations, international cooperativeagreement, or from an agreement betweenthe United States Government (USG), ormilitary commander, and the government ofthe area or country in which US forces maybe employed.

c. International law , including the law ofarmed conflict, affords occupying powerscertain rights and responsibilities. Theseinclude the authority to establish civiladministrations and to control or conductgovernmental matters both during and afterhostilities.

3. Civil-MilitaryOperations (CMO)

The term “civil-military operations” is abroad, generic term used to denote thedecisive and timely application of militarycapabilities to enhance the relationshipbetween the military and civilian populacein order to ensure accomplishment of thecommander’s mission. CMO range fromsupport to combat operations to traditionalnonmilitary roles assisting countries inbringing about political, economic, and socialstability.

a. CMO are undertaken to encouragethe development of a country’s material

“The world has grown smaller, in recent years ever more rapidly. It is hard todivorce our country from a number of conflicts to which years ago we wouldhave hardly paid any attention. While we cannot engage ourselves in allconflicts, we now have a choice...[in civil affairs] have a tool which can helpin the early resolution of enormously difficult, potentially intractablesituations...”

Ambassador T.R. Pickering(remarks to a NDU conference)

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and human resources to assist in achievingUS and host-government political, economic,and psychological objectives. CMO involveliaison and coordination among US,multinational, and indigenous security forces,and among US forces and other governmentagencies as well as nongovernmental (NGO)or private voluntary organizations (PVO). Avariety of types of units, including engineer,medical, intelligence, security, special forces,psychological operations, civil affairs,

communications, and transportation providecapabilities, in varying degrees, to plan andconduct CMO and achieve political,economic, and psychological objectives.Dedicated CA forces, by virtue of their areaand linguistic orientation, cultural awareness,experience in military-to-host-nationadvisory and assistance activities, as well asin civil-oriented functions parallelinggovernmental functions, can be essential inCMO designed to secure support from thecivilian population, fulfill essential civilrequirements consistent with militarymissions, and create as positive an effect aspossible on friends, allies, and host-nationcounterparts and governments.

b. As a fundamental precept, CMO shouldbe closely coordinated with the CountryTeam and other USG agencies. Mostmilitary responses or efforts, especially thosein military operations other than war, requirethe military-civil partnership that successfulCMO provide. CMO also may be manifestedthrough activities associated withhumanitarian assistance, civil defense,counterdrug (CD) operat ions, andcounterterrorism. Normally, CMO does not

connote activities pertaining to enemyprisoners of war (EPW), civilian internees(CI), or other detainees. Successful CMOshould use military CA functional specialtyskills, as identified in Appendix C, “CivilAffairs Functional Specialty Skill Areas,” butdo not necessarily require their use. In allcases, actions by the Armed Forces of theUnited States should support the host orfriendly country’s control over CMOprograms and enhance popular perceptions ofits stability and legitimacy. Additionaldiscussion of CMO is contained in Joint Pub3-07, “Joint Doctrine for Military OperationsOther than War.”

Security is a fundamental objective during the initial stages of civil-militaryoperations.

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4. Civil Affairs Activities

Civil affairs activities are inherently civil-military in nature. While they may beintegral parts of both Military Civic Action(MCA) and CMO, they are not synonymouswith either.

a. Civil affairs activities in support ofMCA are described in Chapter II, “CivilAffairs Support to Military Operations.”

b. As part of CMO, civil affairs activitiesrange from advice and assistance to civilianauthorities and a population concerning theirrelationship with military forces to those thatpromote the welfare, stability, and security offriendly governments and their population.Civil affairs activities assist and coordinatemilitary efforts to strengthen host-government legitimacy and help to preventor reduce violence by bridging critical gapsbetween the civil and military sectors. Useof dedicated CA forces, and the conductof CA activities, will enhance plannedCMO by helping to ensure civil orindigenous understanding of, and compliancewith, controls, regulations, directives, or othermeasures taken by commanders toaccomplish the military mission and attainUS objectives.

c. Civil affairs activities , however, aredistinguishable from CMO insofar as theformer are characterized by applicationsof functional specialties (see Appendix C,“Civil Affairs Functional Specialty SkillAreas”) in areas normally the responsibilityof indigenous government or civil authority.Civil affairs activities may extend toassumption of governmental functionsrequired in an occupied territory during orimmediately subsequent to hostilities.

d. Civil affairs activities are furthercharacterized by the items listed in Figure I-1.

5. Policies

The pattern and objectives of CAactivities in friendly, neutral, hostile, oroccupied countries in any given area shouldcorrespond with applicable internationaland domestic law and could depend onsuch variables as US foreign policy, therequirements of the military situation,participation of multinational forces, andother factors. In general, CA assets(personnel and forces) are used to the fullextent of the law to implement US foreignpolicy and achieve US objectives in thecontext of military strategy and forcecapabilities. Specific guidance as to policy,plans, procedures, and doctrine to be followedin any given country may be modifiedduring the onset of hostilities or after theoutbreak of an armed conflict ascircumstances warrant. In the absence ofguidance, military commanders should takethe initiative to request it and be prepared toexecute command CA responsibilities andattain US objectives.

a. Policy Flow. Because of the politico-military nature and sensitivity of CA activitiesundertaken by US commanders, whether in aunified or multinational context, theirconduct should be governed by deliberatepolicy developed and promulgated by theNational Command Authorities (NCA).Policy decisions are generally transmitted tocommanders through command channels.Guidance for specific policies concerning thedegree of civil-military interaction to befollowed in any operational area should betransmitted from the NCA through theChairman of the Joint Chiefs of Staff.

b. US Commanders Serving asMultinational Commanders. Policies arenormally developed by agreement betweenmember nations of a multinational forceand provided to commanders through a

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ADDITIONAL CHARACTERISTICS OF CIVILAFFAIRS ACTIVITIES

The use of forces (units and personnel) possessing an in-depth understanding of politico-military, economic, and socialaspects of countries or regional areas where military forcesare employed.

The capability to enhance and influence the civil-militaryoperational planning and execution by Departmentof Defense (DOD), non-DOD, multinational, nongovernmentalorganizations/private voluntary organizations, and otheragencies through estimates of operational impacts on civilianpopulace, resources, and institutions in areas where militaryforces are employed. As stated above, some or all civil affairsactivities may be part of civil-military operations tasked to ajoint force commander; planned, or executed, by dedicatedcivil affairs forces, or other DOD forces; or a combinationthereof.

The fundamental concept of control of policy at the highestpractical level, coupled with the integration of military andcivilian efforts at the lowest echelon feasible.

The requirement to negotiate with belligerents during peace-enforcement operations.

Figure I-1. Additional Characteristics of Civil Affairs Activities

(EO) or by a policy directive originatingwithin the National Security Council (NSC).Commanders should receive guidancetransmitted through the Secretary ofDefense and the Chairman of the JointChiefs of Staff. Commanders should provideguidance to subordinate commanders,including specific instructions regarding theexercise of authority for CA activities.Commanders need to maintain close liaisonwith US diplomatic representatives abroadto ensure effective coordination anddelineation of CA responsibilities andactivities.

council of ministers or a similar policymakingbody of which the United States is aparticipant. Policy should be transmitteddirectly from the NCA through theChairman of the Joint Chiefs of Staff.Should multinational CA guidance be inconflict with international law or specificnational instructions, commanders shouldrequest guidance from the Chairman of theJoint Chiefs of Staff.

c. G e o g r a p h i c a l C o m b a t a n tCommanders. Policies concerning the scopeof CA responsibility and procedural guidanceare normally covered in an Executive Order

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d. Combatant Commanders having aFunctional Area of Responsibility.Pol ic ies concern ing scope of CAresponsibility and procedural guidance arenormally covered in an EO or by a policydirective originating within the NSC.Commanders should receive guidancetransmitted through the Chairman of the JointChiefs of Staff.

e. Component Commanders. Civilaffairs policy guidance or directives willnormally be provided by the combatantcommander in specific instructions for thedelegation of authority and scope ofresponsibility for execution of CA activities.

6. Principles

Certain general principles apply to allCA activities. They are the basis for initialplanning purposes in the absence of specificguidance. These principles are listed in FigureI-2 and described below.

a. Mission. Civil affairs activities areconducted in support of military operationsto assist commanders in fulfilling obligations

to civilian noncombatants imposed byinternational law agreements that may be ineffect, or to further the national andinternational policies of the United States.

b. C o m m a n d R e s p o n s i b i l i t y .Responsibility for the conduct of CAactivities, including civil administration ifdirected by higher authority, is vested in thesenior military commander, guided bydirective, national policies, military strategy,applicable treaty or agreement, andinternational law.

c. Continuity and Consistency of Policy.Essential to the success of CA activities, inlight of their inherent complexity and politicalsensitivity, is a comprehensive and clearDepartment of Defense (DOD) CMO policytransmitted through command channels.

d. Reciprocal Responsibilities. Thecommander of an occupying force has thelegal right to require the inhabitants withinan operational area to comply with directivesnecessary for mission accomplishment andproper administration of a given area. Inreturn, the inhabitants have the right tofreedom from unnecessary interference withtheir property and individual liberties.

e. Economy of Personnel and Resources.The activities of CA assets should belimited where possible to those involvingcoordination, liaison, and interface withexisting or reestablished civilian authorities.Maximum use of local or indigenousresources should be made consistent withsatisfaction of minimum essential civilrequirements.

f. Humanitarian Considerations. Theuse of force beyond military necessity isprohibited. Military commanders shouldplan operations that include the maximumhumanitarian assistance and the minimumsuffering for noncombatants that abide by,

PRINCIPLES OF CIVILAFFAIRS ACTIVITIES

Mission

Command Responsibility

Continuity and Consistency ofPolicy

Reciprocal Responsibilities

Economy of Personnel andResources

Humanitarian Considerations

Figure I-2. Principles of Civil AffairsActivities

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and exceed if possible, rules of engagement(ROE), law of land warfare, and the GenevaConventions.

7. Civil Affairs Assets

Many DOD organizations have inherentcapabilities to support CA activities andconduct CMO. Combatant commandersmay be supported by any or all of thefollowing military CA assets:

a. Active component (AC) or Reservecomponent (RC) CA forces organized,equipped, and trained to carry out missionsthat specifically include the conduct orsupport of CA activities (RC CA unitsconstitute the vast majority of these forces;as described in more detail in Appendix E,“Service-Unique Civil Affairs Forces,Capabilities, and Missions”).

b. Civil affairs personnel assigned orattached to combatant commands.

c. Other RC personnel possessingfunctional specialty skills applicable to CAactivities (Appendix C, “Civil AffairsFunctional Specialty Skill Areas”) across therange of military operations. RC personnelare available under the authorities stated inJoint Pub 4-05, “Mobilization Planning.”

d. Although not trained in functionalcivilian specialty skills for CA operations,DOD forces and personnel trained in suchmilitary skills as engineer, medical, dental,veterinary, intelligence, military police,communications, logistics, and transportationcomplement CA assets and providesignificant support to CA activities andCMO. Other special operations forces(SOF) elements and personnel with areaorientation, cultural awareness, linguisticcapability, and experience in military andcivilian advisory and assistance activities willordinarily collaborate in CA activities and,in certain cases, conduct CA activities of more

limited scope. The use of a relatively smallnumber of dedicated CA assets can providecommanders an economy-of-forcecapability to achieve assigned objectivesthrough direct interface with civil governmentofficials, agencies, and population.Discussion of Service-unique CA and CMOcapabilities or forces is contained in AppendixE, “Service-Unique Civil Affairs Forces,Capabilities, and Missions.”

8. Operational Parameters

a. Threat. The emergence of a world withshifting military and economic power centers,often with differing or fragmented strategicgoals, will result in the continued highprobability of lethal forms of regional armedconflict. At the same time, however, instancesof instability and conflict that center on thediplomatic, economic, and informational (vicemilitary) elements of national power,involving nonlethal application of militaryforces, are likely to increase. The problem ofachieving maximum civilian support andminimum civilian interference with USmilitary operations will require thecoordination of intelligence efforts, securitymeasures, operational efficiency, and theintentional cultivation of popular goodwill.Failure to use CA assets in the analysis ofpolitical, economic, and social bases ofinstability may result in inadequate responsesto the root causes of the instability and resultin the initiation or prolongation of conflict.

b. Relationships Within the United States, ItsTerritories, and Possessions. In the UnitedStates, Federal law, as implemented by DODdirectives, provides for the primacy of civilauthority . When directed by appropriateauthority during domestic emergencies,commanders may use forces, including CAassets, to provide support to civil authorityto assist in restoring basic services andfacilities destroyed or damaged, help preventloss of life and wanton destruction of property,and protect or restore government

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infrastructure and public order. Duringperiods of hostilities, commanders mayhave added responsibilities. In addition tothe more critical security considerations fortheir personnel, plans, equipment, andfacilities, commanders may have importantsupporting roles for civilian community civildefense, disaster relief, and key facilityprotection measures. In accordance withappropriate DOD directives, accomplishmentof military support to the civil sectorrequires coordination of plans andprocedures between the Department ofDefense and other USG agencies (e.g., FederalEmergency Management Agency (FEMA)).

c. Relationships in Foreign Countries.International law and agreementsnecessitate close coordination with friendlyor multinational countries that may haveUS forces present. Of increasing relevancein today’s changing world are instanceswhere military support or even interventionis required to improve the capability, stability,and image of friendly governments and forceson one hand, or to relieve disease, unduehardship, or unrest on the part of the civilianpopulation on the other. In formerly contestedareas, in addition to inherent antagonismsarising from nationalism, propaganda, orprivation, commanders may be confrontedwith the tremendous complications of ashattered political and economic system.These adverse circumstances may include

extensive shortages and destruction ofsupplies, utilities, and service functions, aswell as numbers of displaced persons cloggingmovement routes, threatening security, andcompeting for existing shelter and supplies.The manner in which civilians are treated,and in which relationships between US forcesand the different political, cultural, andreligious groups are sustained, can tip thescale toward civilian cooperation oractive or covert opposition. Discussion ofconsiderations or factors that may tend tocomplicate or constrain civil-militaryrelationships, as well as the planning andconduct of CA activities, is contained inChapter V, “Civil Affairs Activities Planningand Coordinating.”

9. Objectives of CA Activities

Effective CA activities will assistcommanders in accomplishing assignedmissions, regardless of the operational area.Successful accomplishment of CA objectivesin large part depends on adequate plans andpolicy determinations, an adequate staffcapability, and availability of dedicated CAforces to assist the commander in carryingout responsibilities for CA. Responsibilitiesof commanders at all levels are contained inChapter III, “Responsibilities for CivilAffairs.” Principal objectives of CA activitiesare shown in Figure I-3.

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Facilitate commanders' mission capability by obtaining civilsupport and reducing civilian interference with militaryoperations

Assist commanders' compliance with operational lawrequirements, insofar as military circumstances permit, byproviding those resources necessary to meet essential civilrequirements, avoiding damage to civilian property and usableresources, and minimizing loss of life and suffering

Assist commanders in achieving developmental goals in friendlyor foreign countries by assisting or reinforcing the political andsocio-economic viability or efficiency of public institutions andservices of host forces

Assist or supervise the stabilization or reestablishment of civiladministration, when directed by the National CommandAuthorities, in friendly, neutral, hostile, or occupied territory insupport of US and multinational objectives

OBJECTIVES OF CIVIL AFFAIRS ACTIVITIES

Figure I-3. Objectives of Civil Affairs Activities

CHAPTER IICIVIL AFFAIRS SUPPORT TO MILITARY OPERATIONS

II-1

“Nothing that I have ever been taught prepared me for the mental jumpneeded to go from being Chief of Operations in NATO Army Group to beingChief of Staff of a UN operation, where I had to bring together the staff fromten different nations and staff the deployment in less than three weeks fromthe Security Council Resolution.”

Major General R.S. Cordy-SimpsonUKAR

1. General

a. The NCA’s policy guidance andmission orders to military commanders willdetermine the objectives and scope of jointCA activities conducted.

b. CA activities may range fromcoordinating for the removal of civilians froma combat zone, through efforts to interfacebetween US forces and multinational forces,and host-nation and other governmental ornongovernmental agencies, to the exercise offull military control over an area or hostilegovernment or population. The variety ofCA activities to support the requirementsfor military operations necessitatescorresponding flexibility in CA organization,planning, and execution.

c. Commanders should use CA assetsto coordinate with governmentalorganizations/NGOs, based on missionrequirements and in coordination with theCountry Team.

d. Operational requirements may involveapplication of any combination of thefunctional specialty skills for CA activities(see Appendix C, “Civil Affairs FunctionalSpecialty Skill Areas”).

e. Civil affairs annexes or portions oftheater plans, OPLANs, or operation plans inconcept format (CONPLANs) should bereviewed by competent legal authority forconformance with international and US law.

f. Civil affairs activities require intensiveplanning and maximum adaptation to, andutilization of, local political-social structuresand resources.

2. Command and Staff CA-Relevant Functions

Civil affairs activities, as discussed inChapter I, “Introduction,” are controlledor accomplished through one or more ofthe following CA-relevant functions (seeFigure II-1):

a. Supporting. Provide adequate CAsupport to US forces during combatope ra t i ons in o rde r to m in im izenoncombatant interference with operationsand to minimize impact of operations onnoncombatants.

b. Assisting. Assist US forces, USGagencies, or friendly or host nation(HN) civi l or mil i tary officials withdevelopment and implementation of foreigninternal defense (FID) and other nationassistance programs.

c. Advising. Recommend appropriateactions to commanders to secure and maintainpositive civil-military relationships identifiedas essential for mission accomplishment.

d. Coordinating. Conduct dialogue orother direct interaction on behalf of thecommander with other DOD and/or USGagencies, multinational, or HN governmental

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civil and military authorities, or other civiliangroups, to facilitate a positive and mutualunderstanding of objectives and a concertedaction to achieve these objectives.

e. Analyzing. Perform research,examination, and interpretat ion ofsociological, political, economic, military, andpsychological factors pertinent to a givenregion, country, or operational area. Theanalysis could be used as a basis for areastudies, assessments, or advice provided tocommanders.

f. Informing. Provide the commanderwith area assessments and other political,

economic, and cultural estimates andbackground data required for missionplanning and execution.

g. Planning. Coordinate plans to employCA assets with commands, USG agencies,and HN civil and military authorities todetermine the best method of supportingassigned missions.

h. Preparing. Draft proposed CAestimates, assessments, agreements,OPLAN and CONPLAN annexes, and otherdocumentation relevant to CA support foroperations.

i. Training. Provide instruction to USforces, friendly or HN civil or military officialsand population in identifying, planning, andimplementing programs that are useful to thecivilian population and which strengthen theHN’s internal defense and development.

j. Supervising

• As directed or approved by theappropriate US authority, performoversight of US or foreign personnel oragencies engaged in planning andconducting CA activities.

• Perform oversight and (when directedby NCA) assume many of the functionsnormally performed by civil governmentin those cases where pol i t ica linstitutions, economic systems, or otherprocesses of civil administration aredisrupted or rendered ineffective byhostilities or other emergency conditions.

k. Evaluating. Perform review andanalysis of CA activities to determine andenhance their effectiveness in supportingmilitary operations and achieving USobjectives.

CIVIL AFFAIRSRELEVANT FUNCTIONS

Supporting

Assisting

Advising

Coordinating

Analyzing

Informing

Planning

Preparing

Training

Supervising

Evaluating

Figure II-1. Civil Affairs Relevant Functions

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3. CA Support to MilitaryOperations

Although the types of operations differacross the range of military operations, thebasic CA objectives and CA-relevantfunctions of commanders, staffs, andsupporting CA elements and personnelremain the same as those previouslyidentified.

a. General. The CA functionalcapabilities that span the range of militaryoperations include, but are not limited to, anycombination of the following:

• Preparing CA assessments, estimates,agreements, and annexes in accordancewith the Joint Operation Planning andExecution System (JOPES). Thesedocuments outline the CA elementsgenerated by the political, economic,and cultural environment in whichoperations are likely to occur and theanticipated effect military operations willhave on the civilian population.

• Assisting in the planning andcoordination of logistic activities.Combatant commanders promulgatebasic direction and procedures forcivilian supply operations, includingdetermination or estimates of initialrequirements of military forces as wellas the availability of civilian sectorresources. Civil affairs activities planfor the following logistic activities:

•• Support for military forces fromcivilian resources to include such itemsas subsistence, water, billeting, cargohandling, transportation, limited spareparts, emergency medical support, andboth skilled and unskilled labor.

•• Facilitate host-nation support(HNS) and contracting to US and/orfriendly forces in multinational

operations following guidance andprocedures specified in the commanderof a combatant command’s (CINC’s)OPLAN.

•• Support requirements and sourcing(estimated in OPLAN) for civilianpopulation and agencies. Militarysupply of items necessary for the reliefof civilian distress or the rehabilitationof the economy or infrastructure of acountry in which military forces arepresent is primarily a concern of thecommander’s logistics division.Management of the distribution tocivilians is usually a function of CAforces. Supplies or other logistic supportfor nation assistance operations as partof overall economic aid programs willnormally be governed by US-HNagreements and coordinated by thelogistics division with a variety ofDOD commands and USG agencies.Provision of relief supplies to civilianpopulations will be limited only to theessentials needed to prevent disease,starvation, or such unrest as mightinterfere with military operations.Supplies for civilian relief or economicaid may be procured from militarystocks, purchases within the UnitedStates, offshore procurement, localresource procurement, captured stocks,and the contributions of voluntaryagencies. The determination ofrequirements for such mil i taryprovisions or supplies remains a staffresponsibility and is usually exercisedthrough organic or attached CA forces.

•• Assist, supervise, or control self-supporting civilian sector operations.

• Assisting commanders, in coordinationwith the servicing staff judge advocate,in fulfilling lawful and humanitarianobligations to the civil or indigenouspopulation and ensuring CA activities

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are consistent with international law,including the law of armed conflict, treatyobligations, and US law.

• Minimiz ing loca l popula t ioninterference with US mil i taryoperations by coordinating with civilagencies or authorities to implementpopulation and resource controls.

• Supporting and coordinating CMO,such as humanitarian assistance anddisaster relief, in concert with DODelements, other USG agencies, foreign

or HN authorities, and NGO/PVOs toreduce serious threat to health, life, andproperty and to project positive USinfluence in the operational area.

• Assisting in the establishment andmaintenance of liaison or dialoguewith indigenous personnel, agencies,and/or civilian organizations to supportnational and regional informationprograms and other efforts thatfavorably portray US or multinationalmilitary operations.

CIVIL AFFAIRS IN THE PERSIAN GULF: OPERATIONS

Units from the US Army, US Army Reserve, and the US Marine Corps Reserveprovided the Civil Affairs (CA) support for pre-combat, combat, and emergencyreconstruction missions during Operations DESERT SHIELD and DESERTSTORM in the Kuwait Theater of Operations (KTO). Units involved includedthe Army’s 96th CA Battalion, the only active Army unit, 16 USAR units, andtwo USMC (Reserve) CA groups. Missions included coordinating andfacilitating host-nation support (HNS); emergency services and support to thecivil sector; support to combat operations by minimizing civilian interferenceand casualties; providing for movement and control of civilians; emergencywater, food, shelter, and medical care for displaced civilians and enemyprisoners of war (EPWs); and providing emergency services and reconstructionassistance to the Government of Kuwait in rebuilding its infrastructurefollowing the cessation of hostilities.

In October, the Government of Kuwait requested US government help to planthe Kuwait Emergency and Recovery Program and the State Departmentturned to DOD for assistance. In early December, the Kuwait CA Task Forcewas formed, largely around personnel of the 352nd CA Command, a USARunit from Riverdale, MD. The task force helped marshal resources from boththe private and public sector, which Kuwait needed to restore emergencyservices once the country was liberated. The task force objectives includedmobilizing the Kuwaiti government-in-exile to plan for the necessary services,supplies and equipment. Initially, the task force worked with ministerialrepresentatives of the Kuwaiti government-in-exile to plan and contract forthe necessary services, supplies and equipment needed in the post-combatphase of the operation. The organization deployed to Saudi Arabia in Januaryto complete final civil affairs planning and preparation to execute the plan.

CA forces contributed to the procurement of HNS by locating and arrangingfor supplies and services from US allies in the region. Initially, the 96th CABattalion, and later USAR CA units, particularly the 304th CA Group, workedin direct support of ARCENT’s 22nd Support Command on HNS matters. Theirefforts helped sustain the force buildup in the KTO.

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CA forces assigned to combat units performed the essential function ofcontrolling and providing humanitarian assistance to displaced civilians,refugees, and EPWs encountered on the battlefield. In doing so, theyminimized the effect these persons had on military operations andsafeguarded them from combat operations. In the rear areas, CA forcesorganized and managed the displaced civilians and refugee collection pointsand camps and assisted the transition of responsibility for these groups frommilitary to international relief organizations.

Deployment of CA forces competed in the early stages of Operation DESERTSHIELD with the urgent requirements for combat capability, including combatforces, and the necessary logistical support units, equipment and suppliesneeded to sustain combat operations. As the force structure to meet tacticalrequirements were met, CENTCOM began to increase priority to post-hostilityconsiderations, including deployment and employment of CA units. Most ofthe CA units were deployed between mid-January and mid-February.

DOD Report to Congress, Conduct of the Persian Gulf War , April 1992.

b. Military Operations Other Than War.Types of operations supported by CA include,but are not limited to, the items shown inFigure II-2 and discussed below.

• Nation Assistance Operations

•• Security Assistance. CA enhancescoordination and liaison activities, offerseconomic advice, and supports US ormultinational cooperative efforts tostrengthen indigenous programs in areasof public health, communications,utilities, safety, administration controls,and civil information.

•• Foreign Internal Defense (FID).CA serves as a critical link between USforces providing support in a host nationand the host nation’s government,military force, and civilian population.CA facilitates the integration of other USsupport missions into the overall internaldefense and development programs of thesupported nation. CA forces do notconduct the actual support missions butserve to assist, advise, coordinate, plan,train, and supervise US efforts. Civil

affairs should be a part of any FID-related mission to ensure adequatecoordination with, and support of, thelocal government and population. InFID operations the host nation has theprimary responsibility and all operationsmust be approved and coordinated withthe appropriate host-nation authorities.CA assets, in consonance with othermilitary specialties and civilianagencies, can support secur i tyassistance, humanitarian assistance(HA), humanitarian and civic assistance(HCA), and MCA programs that promoteFID. Each of these programs arediscussed separately in this section (seealso Joint Pubs 3-07, “Joint Doctrine forMilitary Operations Other than War,” and3-07.1, “Joint Tactics, Techniques, andProcedures for Foreign InternalDefense”).

•• Military Civic Action. Civil affairsactivities in MCA, as part of morecomprehensive USG security andeconomic assistance programs, mayoriginate from a national plan and entailspecific projects, central funding,

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authorization to use indicated resources,and joint participation with other USGagencies. The long-range goal of MCAis to nurture national development.Projects may be in areas closelyparalleling those of the CA functionalspecialty areas shown in Appendix C,“Civil Affairs Functional Specialty SkillAreas.” Projects include, but are notlimited to, those in education, publicworks, agriculture, transportation,communications, health, sanitation, andothers contributing to HN economic andsocial development. The fundamental

tenet of any successful civic actionprogram is civilian self-help. Civilaffairs assets are trained either to planMCA programs or to prov ideprofessional advice and assistance to theHN military forces or agencies inestablishing local expertise andproviding skills and materiel assistancenot available to the local civilianparticipants identified to assume theleadership roles for future long-termdevelopment. Other US military forcesare capable of participating in MCAprograms. Within the scope of theirorganization, funds, mission, and termsof agreements with the HN, these forcescan undertake projects of their own orcan assist and motivate HN counterpartsto develop their own programs and planprojects, procure equipment needed, ortrain participating personnel. Indeveloping countr ies, mi l i taryorganizations often possess a large shareof skilled and semiskilled manpower,mobi l i ty, funds, and technicalequipment essential to socio-economicdevelopment.

• Foreign Humanitarian Assistance.The functional structure of CA forcesand the experience, training, andorientation of CA personnel provide acapability for emergency coordinationand administration where civilianpolitical-economic structures have beenincapacitated. In both foreign HA anddomestic disaster relief operations, thefunctional composition (Appendix C,“Civil Affairs Functional Specialty SkillAreas”) of CA forces permits readytailoring of elements possessing theskills necessary to assist other militaryand/or civil authorities in emergencyrelief and control measures. Althoughpart of humanitarian assistance, civiladministration is discussed separatelybecause of its unique process.

Nation Assistance Operations

Foreign Humanitarian Assistance

Civil Administration

Humanitarian and CivicAssistance

Support to Displaced Persons

Domestic Support Operations

Noncombatant EvacuationOperations

Peace Operations

Insurgency andCounterinsurgency

Counterdrug Operations

Combatting Terrorism

CIVIL AFFAIRS INMILITARY OPERATIONS

OTHER THAN WAR

Figure II-2. Civil Affairs in MilitaryOperations Other Than War

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•• Civil affairs supports HA byassisting in the estimate for requirementsand the coordination for the provision ofsupplies and/or services to promotehuman welfare. Civil affairs forces areespecial ly effect ive in disasterpreparedness planning surveys andtraining programs.

•• DOD involvement in foreign HAand emergency relief operations shouldbe requested by appropriate Departmentof State agencies and approved by theSecretary of Defense.

•• CA provides planning assistance toa foreign government’s disaster plans.A total analysis of disaster and civildefense plans is accomplished throughreviewing existing plans and interviews.A final analysis is prepared and presentedto the government and CINC. Theseplans are a valuable source of information

to a military commander responding to adisaster area.

•• Historically, civil affairs forces havemanaged distribution of reliefsupplies, advised and coordinated onpopulation care and controls, andhelped transition military efforts tocivil agencies for restoration of selectedgovernmental services, i.e., OperationsJUST CAUSE and PROMOTELIBERTY in Panama in 1989-1990.Those CA forces entering KuwaitCity in early 1991 in the aftermathof Operation DESERT STORMcoordinated US and multinational forces’civil support efforts in managing scarceresources, repairing utilities, andrestoring health and sanitation,transportation, and education facilities.Civil affairs forces also have coordinateda variety of military-to-civil supportefforts to an epidemic-stricken populacein Cameroon (1989), to storm victims inBangladesh (Operation SEA ANGEL-1991), to Kurdish refugees in northernIraq (Operation PROVIDE COMFORT-1991), to Haitian migrants inGuantanamo Bay (1992), to victims ofcivil unrest and starvation in Somalia(Operation RESTORE HOPE-1993),and to victims of the 1992 HurricaneAndrew in Florida. As these operationsillustrate, CA activities are integralto the conduct of civil-militaryoperations, integrating military andcivilian management structures,assisting security and developmentcapabilities of friends and allies, andenhancing the image of US forcesworking to achieve theater and nationalobjectives.

• Civil Administration. This is a uniqueaction undertaken by US commandersonly when directed or approved by theNCA. (DODD 5530.3, “InternationalAgreements,” does not delegate authority

Emergency supplies are loaded aboard a C-130aircraft for a resupply airdrop during OperationPROVIDE HOPE.

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to negotiate and conclude agreements;when approved by the NCA, agreementsshould be negotiated and concluded inaccordance with DODD 5530.3) Civilaffairs support consists of planning,coordinating, advising, or assistingthose activities that reinforce or restorea civil administration that supports USand multinational objectives in friendlyor hostile territory.

•• Civil administration missions infr iendly terr i tory are normallyundertaken pursuant to an agreementwith the government of the areaconcerned. This form of civi ladministration is also called civil affairsadministration . Depending on mission

requirements, the full range of CAfunctional specialty skills (Appendix C,“Civil Affairs Functional Specialty SkillAreas”) may be required for the activitiesshown in Figure II-3.

•• In a civil administration by anoccupying power, also called militarygovernment, agreements will containprovisions as to the authorities of theoccupying power and the obligationsof the submitting government.Furthermore, the exercise of executive,legislative, and judicial authority by theoccupying power will be determined bypolicy decisions at the highest level andmay even involve an international policymaking group. Emphasis on CA

Figure II-3. Civil Affairs Administration

Assist foreign or host-nation governments in rehabilitatingand building government and socio-economicinfrastructure

Coordinate and supervise provision of US resources tomeet essential civil requirements

Assist other US Government or foreign/host-nationagencies in providing US resources to meet essential civilrequirements

Oversee contacts between military forces and civilauthority and population to the extent required by themission

Coordinate essential funding programs with appropriateUS Government agencies

Coordinate and assist in the return of government controlsto civil or indigenous authority as soon as practicable

CIVIL AFFAIRS ADMINISTRATION

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activities to implement long-rangeplans increasingly influences orreplaces measures intended to satisfyshort-range needs. Consistent withestablished policy, a sound localadministration is developed, alwayssubject to the authority of the occupyingpower. An informed populace is fosteredthrough news media, public discussion,and the formation of acceptable politicalparties. CA forces are trained to planand conduct essential CA activities toassist commanders in the mosteffective policy implementationc o n c e r n i n g r e o r g a n i z i n g o rreconstituting government structures.More detailed discussion of pertinent CAdirectives and agreements is containedin Appendix D, “Civil Affairs Directivesand Agreements,” and in FM 41-10, “CAActivities.” Additionally, some of thekey planning considerations or factorsthat govern policy implementation andinfluence the character of CA in this formof civil administration during postconflictor consolidation operations are containedin Chapter V, “Civil Affairs ActivitiesPlanning and Coordinating.”

•• Regardless of the program adopted,CA personnel and military commandersshould be aware that the manner in whichthey carry out established policies has asignificant bearing on subsequent coursesof action designed to achieve US securityobjectives.

• Humanitarian and Civic Assistance.These programs are designed to assistthe host nation while improving thereadiness skills of US Service members.HCA programs are undertaken pursuant tostatutory authority (title 10, US Code,section 401) and must be provided inconjunction with joint and multinationalexercises performed in foreign areas.HCA activities have a direct correlationto CA capabilities and are generally

limited to medical, dental, and veterinarycare; construction and rudimentarysurface transportation systems; welldrilling; construction of basic sanitationfacilities; and rudimentary constructionand repair of public facilities. Theseprograms are managed by the Office ofthe Secretary of Defense (OSD).

• Support to Displaced Persons.Displaced persons are a common resultof natural or manmade disasters andmilitary activities across the range ofmilitary operations. CA assists militaryforces in providing or coordinating forthe safety, sustenance, and dispositionof displaced persons.

• Domestic Support Operations. Civilaffairs assets are not organized, trained,or equipped specifically to supportoperational missions in domesticterritory. As national defense assets, CApersonnel and forces may be madeavailable on a situation-specific basis.Accordingly, CA personnel or forces maybe used, where authorized by law, to:

•• Support domestic activit iescoordinated by the DOD ExecutiveAgent, the Secretary of the Army.

•• Assist in planning for USGinteragency (e.g., DOD, FEMA)procedures required in emergencysituations on either a national or regionalbasis.

•• Assist civil-military planning andmilitary support operations associatedwith established joint regional defensecommand and joint state area commandorganizations.

•• As directed, coordinate militaryresource assistance and actions forsupport to the continuity of Federal,state, or local government operations,

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emergency actions to restore or repairvital facilities, and humanitarianassistance measures to alleviate civilsuffering resulting from natural,manmade, or war-related causes.

• N o n c o m b a t a n t E v a c u a t i o nOperations (NEOs). CA forces mayassist commanders in planning andcoordinating a NEO, involving otherDOD elements, USG agencies, andforeign or HN authorities, to facilitatethe proper receiving, screening, andrelocating of threatened civilians.

“It’s like going into a domestic disputebetween husband and wife; when youintervene, they turn on you, when youleave they pick up where they left off—fighting each other.”

Cpl. A. Martin, USMCAmerican Embassy Mogadishu

• Peace Operations. CA support tomilitary forces tasked to plan orconduct peace operations generallycomplements or reinforces politicalor diplomatic and informationalinitiatives arising from or as a basis foragreements or negotiations that leadto agreements. The process ofcoordinating CA activities will varywith the type of peace operation, whichalso affects the military role andobjectives. Planning for CMO, toinclude CA supporting plans, shouldconsider: the role of DOD, Departmentof State (DOS), or other lead agency aspeace operations transition betweenpeace enforcement and peacekeeping;the host nation civilian end states thatdescribe the conditions required fortransitions; and the process required fora military handoff of civil responsibilities.Civil affairs assets normally provideadvice in formulating procedures to helpcreate a basis for cultural accommodationand expediting necessary agreements.

Refer to Joint Pub 3-07.3, “Joint Tactics,Techniques, and Procedures forPeacekeeping Operations,” and othercurrent peace operations policy anddoctrinal guidance.

• Insurgency and Counterinsurgency(COIN)

•• Support to Insurgency. The role ofCA is to provide CA-related training,advice, and assistance to indigenousforces conducting insurgent operationsand to US forces and activities directedby the NCA to assist such operations.

•• Support to COIN. Civil affairssupport for the COIN efforts of a host orfriendly nation is based on the USG FIDstrategy that separates dissidentelements from the population andsupports that nation’s internal defenseand development strategy. Theoperational capabilities of CAelements closely relate to basic aspectsof COIN programs (e.g., sensitivity tothe political climate, social attitudes,economic conditions) and may wellprovide the major noncombat toolsavailable to combatant commanders foreffective support to the multinationalUSG-HN effort. Essential to this supportis the promotion, coordination, andconduct of military civic action programsas a part of CA activities in CMO. Closecoordination between combatantcommanders and the Country Teamshould be accomplished to determine keydirection and appropriate use of CAelements in support of COIN operations.

• Counterdrug Operations. CA forcesmay assist commanders, tasked toperform CD operations, by providinginformation and analyses on the political,economic, and cultural bases of theindigenous drug culture and on theimplications of alternative approaches to

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carrying out assigned counterdrugmissions.

• Combatting Terrorism. Civil affairssupport plays a significant role insupplementing intelligence-gatheringefforts concerning terrorist activitiesthrough planned or incidental contactswith the civilian populace. At the sametime, CA activities in combattingterrorism are generally limited tothose that can be taken:

•• To advise and assist commanders ineffective ways to address political, social,and economic circumstances contributingto the incidence of terrorism and to assistthe local population by enhancing self-and unit-protection measures (support toantiterrorist measures).

•• To advise and assist commanders incarrying out effective incident responseactions (support to counterterroristmeasures).

• Other

•• Democratization Support Missions.CA assists in assessments of appropriatehost-nation projects, disaster assistance orhumanitarian assistance seminars,interagency coordination, foreign liaison,and public information programs.

•• Disaster Preparedness PlanningSurveys. At the request of the CountryTeam, CA teams survey the state ofdisaster preparation in a country, state,or region through interviews, documentreviews, and analysis of civil defenseplans. An organized report on the areasresources available and capabilities torecover from various disasters is preparedfor the host officials, the Country Team,and the combatant commander. Thesurveys have had practical use in severalcontingencies.

c. War. Commanders’ CA requirementsin war include activities more oftenassociated with peacetime militaryoperations, such as humanitarian assistance,noncombatant evacuation, and infrastructurerecovery and restoration. The rapidly movingcharacter of modern warfare and the use ofweapons of mass destruction magnifyproblems associated with dislocation ordistress of civilian populations, resources, andinstitutions or services. However, theincreased tempo of these operations,particularly those requiring agreements withhost-governments covering civil-militaryrelationships (i.e., HNS and populace andresource control measures), will likelyemploy more extensive CA forces thanrequired for military operations other thanwar. In addition, CA activities will shift focusto transition, stabilization, and restorationprograms. JFCs should be prepared toconduct, or assist in, such activities usingorganic or attached personnel. Planning forconflict, conflict de-escalation, and post-conflict CA activities requires continuousplanning and regional expertise, and shouldbegin in conjunction with pre-crisis operationplanning. This will necessitate considerationfor early involvement of appropriate CAassets. CA support in war includes, but isnot limited to, the following:

• Populace-resource control measures toreduce, relocate, or access civilians thatmay impede or otherwise threaten thesuccess of ongoing and follow-on militaryand supporting logistic operations.

• Command responsibilities to a civilianpopulace and resources, prescribed byinternational law, DOD policy or regulatoryguidance, and the principles embodied inapplicable Hague and Geneva Conventions.This includes recommendations regardingsuch places and objects which receivespecial protection against attack, e.g.,historic monuments, works of art, andplaces of worship.

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• R e s o u rc e p r o c u r e m e n t a n ddistribution , rear area and forceprotection, disease controls, andprevention of disaffection.

• Initiation of restorative measures forcivilian government or establishment ofcivilian administration or militarygovernment, in accordance with policydirectives, necessary to stabilize,reinforce, or reconstruct basic servicesand institutions.

• Support to DOD Enemy Prisoner ofWar and Civilian Internees Programs.CA assets may be tasked by commandersto provide technical advice and assistanceto security and law enforcementpersonnel in implementing EPW/CI

operations. Such coordination mayinclude, but is not limited to:

•• Identification of individuals who areEPW, CI, or otherwise detained by theArmed Forces of the United States.

•• Review of EPW/CI plans andoperat ions to ensure detaineeunders tand ing of : (1) Wr i t tenprocedures, rules, and regulations.(2) Administrative and securityrequirements. (3) Food services,hygiene, medical, and other provisions.(4) Labor and other program arrangements.

•• Assistance in liaison with civil-military authorities of a detaining powerwith regard to US captured or detainedEPW/CI.

ENEMY PRISONER OF WAR OPERATIONS

The success of the enemy prisoner of war (EPW) operations during OperationsDESERT SHIELD and DESERT STORM can be attributed, in part, to the lessonslearned in the war in Vietnam. During that conflict, Armed Forces of the UnitedStates dealt with the international transfer of US and Allied EPWs to an ally;conducted military liaison with the EPW camp authorities of that ally;coordinated with the International Committee of the Red Cross (ICRC);determined training requirements for EPW units; and established the need foran enemy prisoner of war information system, centralized management, andaccurate accountability. It is also due in great measure to adherence to thevarious agreements and conventions dealing with enemy prisoners of war,displaced persons and refugees.

The most important requirements of international law pertaining to personscaptured or detained during an armed conflict are detailed in the four GenevaConventions for the Protection of War Victims. Specific requirements for thehumane treatment and full accountability of prisoners of war are found in the1949 Geneva Convention Relative to the Treatment of Prisoners of War (GPW).The 1949 Geneva Convention Relative to the Protection of Civilian Persons inTime of War (GC), governs similar treatment and accountability of civilians.

Treatment and accountability of EPWs generated international interest andconcern. In addition to other concerns, religious and cultural sensitivitieswere a factor. All EPWs and displaced civilians captured by Coalition forcesduring Operations DESERT SHIELD and DESERT STORM were eventuallyturned over to Saudi control to insure that Arab prisoners were treated inaccordance with Arab culture and Islamic religious practice.

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During Operation DESERT STORM, Coalition forces captured 86,743 EPWs.Approximately 69,822 EPWs and displaced civilians were processed throughUS operated facilities between January, when the first EPW was captured, andMay 1991. (By agreement, the United States also accepted EPWs and displacedcivilians from UK and France and transferred them to Saudi Arabianinstallations.) US forces provided food, shelter, and medical care to both EPWsand more than 1,400 civilian displaced persons or refugees during this period.Eight EPWs died in US custody; all as a result of injuries or sickness contractedprior to capture. Five died from combat injuries, one from malnutrition/dehydration, and two from unknown causes. Three US transferred prisonersdied in Saudi camps due to wounds received while interned in the Saudicontrolled camps. These deaths were investigated and reported throughcommand channels to the ICRC, as required by GPW.

CUMULATIVE EPW AND DISPLACED CIVILIANS CAPTURED/SURRENDERED

United States Forces 63,948*Arab Forces 16,921British Forces 5,005French Forces 869

Total All Forces: 86,743

* Displaced Civilians (1,492) are included in the US Forces numbers.

Interrogations of some detainees initially identified as EPWs determined thatseveral were civilians who had not taken part in hostile actions against theCoalition forces. In some cases, they had surrendered to the Coalition toreceive food and lodging. Under Article 5 of the GPW, tribunals wereconducted to determine whether civilians were entitled to be granted EPWstatus. For those detainees whose status was questionable, tribunals wereconducted to verify status, based upon the individual’s relationship to themilitary and participation in the war. A total of 1,196 tribunal hearings wereconducted. As a result, 310 persons were granted EPW status; the otherswere determined to be displaced civilians and were treated as refugees. Nocivilian was found to have acted as an unlawful combatant.

Centralized EPW management began during Operation DESERT SHIELD andcontinued throughout Operation DESERT STORM. The US National Prisonerof War Information Center (NPWIC) was fully operational before the groundoffensive began, and a new automated program for compiling information onand accounting for captured personnel (as required by the GPW) was fieldedin Operation DESERT SHIELD. Trained Reserve Component (RC) EPW unitswere activated, and camp advisory teams were sent to Saudi Arabia to establishliaison with Saudi units to provide technical assistance, and to maintainaccountability for EPWs and displaced civilians transferred to the Saudis.


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4. Support to SpecialOperations (SO)

Culturally oriented, linguisticallycapable CA assets may be tasked tosupport other SOF that are specificallyorganized, trained, and equipped to conduct,among other missions, FID, unconventionalwarfare (UW), and direct action missions.For a detailed description of these missions,see Joint Pub 3-05, “Doctrine for Joint SpecialOperations.” NCA objectives guiding SO arecoordinated through the DOS with host-governments (FID operations) and withresistance organizations (UW operations).CA support to SO includes, but is notlimited to, the following:

a. FID Operations. Assist other SOF,indigenous forces, and host-governmentagencies in planning and implementingpopulation and resource controls, civic action,security and clearance operations, and otherinitiatives aimed at achieving politicalmobilization and internal stability.

b. UW Operations. Train, advise, andassist other SOF and indigenous forces inplanning and executing programs forpopulation and resource control, civic action,political mobilization, civil administration,and infrastructure development aimed atexpanding their legitimacy within contestedareas.

c. Direct Action. Advise and assist otherSOF and intelligence elements in missionplanning relating to civilian contacts andcontrol, area assessments, ROE, andcompatibility between operational andpostconflict objectives.

5. Support to Joint andMultinational Exercises

CA activities support the combatantcommander’s initiatives to improve

relations with friendly or foreign militaryforces and civilian populations, and regionalstrategy and long-term goals, bystrengthening the capabilities of a hostnation in effectively applying its indigenousresources to mitigate or resolve itsinstability, privation, or unrest. ReserveCA assets have unique interpersonal andcultural skills , derived from their civilianbackground and experience, that can bebeneficial in building good will and mutualrespect among US forces, allies, and hostmilitary and civilian populace. Finally,deployments and exercises producetraining sustainment benefits for CAforces in the form of enhanced languageskills and cultural awareness for applicationin future deployments.

6. Civil Affairs andPsychological Operations(PSYOP)

Civil affairs and PSYOP are mutuallysupportive within CMO. During militaryoperations other than war, PSYOP supportvarious CA activities; establish populationcontrol measures; gain support for thegovernment in the international community;and reduce support or resources to thosedestabilizing forces threatening legitimateprocesses of the HN government. AlthoughCA personnel and forces can advisecommanders on the most effective militaryefforts to support friendly or HN civilianwelfare, security, and developmentalprograms, PSYOP maximize those effortsthrough informational products andprograms. PSYOP publicize the existenceor successes of these CMO activities inorder to generate confidence in, and positiveperception of, US and HN actions to thetarget population. Detailed discussion ofPSYOP is contained in Joint Pub 3-53,“Doctrine for Joint PsychologicalOperations.”

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7. Intelligence Requirements ofCivil Affairs Activities

a. General. Intelligence can providethe commander with an understanding ofenvironmental and political factors, andtrends that could influence courses of actionand shape measures needed to interface with,influence, or control the civilian population.Accordingly, intelligence support to CAactivities requires an expanded focus, withinformation related to political, economic,informational, and cultural aspects of a givenarea.

b. Area Studies. During planning phases,CA forces receive their intelligence supportfrom the joint force or Service componentforce to which they are assigned or attached.The basic intelligence document for CA isthe area study. Area studies, as detailed astime and source material permit, should beprepared on each country or region in whichmilitary operations are contemplated.Requirements will usually exist for finishedintelligence and counterintelligence studiesand estimates. Staffs and CA planners mayfind it necessary to identify CA-relevantessential elements of information (EEI) andprepare the intelligence portions of CA plansfrom finished intelligence and CI products thathave not been written primarily from a CAperspective. At any rate, area studies shouldbe continually reviewed and revised priorto commitment of forces. After operationscommence, these studies should constitute thebasis of the collection of more current andcomprehensive data from on-site surveys andassessments by CA personnel. Examples ofthe CA-relevant EEI that area studies provideon a given region, country, or operational areainclude the following:

• The nature of HN government,background and attitudes of keymembers, and degree of assistance thatcan be expected.

• The nature of the population, includingdemographics, religion, distribution, andattitudes toward the United States and USforces.

• The location and composition ofmaterial stockpiles, availability ofcivilian transportation, and points ofcontact to access these facilities, goods,and services.

• The structure, orientation, capabilities,and reliability of indigenous publicsecurity or safety organizations.

c. Collection Plans and SourceExploitation. The close coordination of CApersonnel with civilian government agenciesand their contacts and association with thecivilian population, including (1) those thathave been employed by or associated withhostile elements; (2) their handling ofdislocated civilians; and (3) their access tocivilian and technical equipment, facilities,or documentary or archival matter allowthem to contribute significantly to thecommander’s collection plan. The sourcesavailable for this plan include, but are notlimited to, classified intelligence channels,DOS post reports, United States Agency forInternational Development (USAID) missiondisaster relief plans, psychological studies, USEmbassy personnel and other US citizenswho have spent time in country, and foreignsources such as third-country nationals.The necessary ongoing relationshipsbetween CA personnel and civilian officialsand institutions allow CA elements to identifyindigenous personnel with skills orbackgrounds that might be of interest toUS staff elements to assist CI supportactivities and facilitate achieving operationaland postconflict consolidation objectives.Conversely, the proximity with civiliansmakes CA elements vulnerable to espionageactivities and imposes a requirement for

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enhanced security awareness and stringentsecurity controls. All CI activities are to becoordinated with either the Task ForceCounterintelligence Coordinating Authorityor the command counterintelligence staffofficer. CI support should be integrated intothe planning and execution process.

d. Tasking and Dissemination. Civilaffairs-relevant EEI and collectionrequirements should be provided to bothsupported and supporting CA forces

through established intelligence channels.These taskings should be coordinated with thecombatant commander’s J-2 to ensure thatthey are prioritized and deconflicted withinoverall theater intelligence requirements. Useof existing automated informationsystems that interface with those of thetheater special operations command andsubordinate Service components willfacilitate dissemination of CA-relevantintel l igence products to supportedconventional and SO forces.

CHAPTER IIIRESPONSIBILITIES FOR CIVIL AFFAIRS

III-1

1. General

This chapter outlines the civil affairsactivities and functions that should beconsidered by the Chairman of the Joint Chiefsof Staff, military commanders, and Chiefs ofthe Services when planning or executing civilmilitary operations.

2. Chairman of the Joint Chiefsof Staff (CJCS)

The Chairman of the Joint Chiefs of Staffshould:

a. Assist CINCs in obtaining andinterpreting DOD policy as it pertains to CAin the CMO role.

b. Issue interim guidance and directiveswhen, in an emergency, required guidance isnot otherwise available.

c. Ensure adequacy of CA planning withinJOPES.

d. Ensure adequacy of CA resourcesfor the combatant commander’s CMOrequirements.

e. Take actions necessary to keep CApolicy up to date with current political,military, economic, and informational trends.

f. Recommend to appropriate authority,when necessary, the establishment of a CMOcommittee at a multinational command leveland provide appropriate US civil affairsrepresentation on that committee.

3. Joint Force Commanders

Joint force commanders should:

a. Plan, integrate, and monitor theemployment of available CA functional assetsin appropriate operational areas. Guidancefor planning CA activities is contained inJOPES and in this and other doctrinalpublications.

b. Comply with national policies, US law,international law (including the law of armedconflict), and agreements with the civilianpopulace and government of a country inwhich US military forces are stationed oremployed.

c. Take actions necessary, in accordancewith formal agreement or specific guidance,to control dislocated civilians, maintain order,prevent and treat disease, provide relief ofcivilian suffering, and provide maximumprotection and preservation of property andother resources usable to achieve US militaryobjectives.

d. Ensure all assigned or attachedpersonnel are fully aware of the importanceof their actions while in contact with or in thepresence of civilian authorities or population.

e. Inform all assigned or attached personnelof indigenous cultural, religious, and socialattitudes or customs and sensitivities and oftheir expected or actual effects on the outcomeof military operations.

“Armed forces abroad are of little value unless there is prudent counsel athome.”

Cicero, (106-43 BC)

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f. Communicate civilian attitudes andneeds to higher command levels andappropriate government and NGO agencies.

g. Secure the understanding, acceptance,and support of indigenous civilians to reduceor minimize frictions inherent in stationingor employing US military forces.

h. Employ CA assets to secure necessaryassistance, supplies, facilities, and laborfrom indigenous sources and to deal withlocal civilians and governments on thecommander’s behalf.

i . Incorporate CA est imates andassessments in developing theater operationplans and campaigns integral to theaterstrategy and US objectives, as appropriate.

j. Ensure staffs and organizations withincommands have sufficient CA representationwith political, cultural, linguistic, andeconomic-related skills to plan and conducteffective CA support.

k. Ensure that employment of CA assetsand conduct of CA activities are coordinated

with respective chiefs of US diplomaticmissions, in-country US agencies andapplicable international and private charitableorganizations, and HN military and civilianauthorities.

l. Implement multinational CA plansconsistent with international law, the law ofarmed conflict, and US law and treatyobligations with the government and civilianpopulation in countries where US forces areassigned.

m. Request guidance from the Secretaryof Defense on implementat ion ofmultinational policies and objectives, asappropriate.

n. Plan for multinational CA activities andassist regional friends and allies in planningand developing the operational skills andinfrastructure necessary to ensure domesticstability.

o. Coordinate CA operational planningwith appropriate multinational commandersand national forces of host countries.

Civil Affairs activities include taking actions necessary to prevent and treatdisease.

III-3

Responsibilities for Civil Affairs

4. Commander in Chief, UnitedStates Special OperationsCommand (USCINCSOC)

USCINCSOC’s responsibilities for thedevelopment of strategy, doctrine, and tacticsfor joint CA are interrelated with those ofthe Chiefs of the Services. Therefore,USCINCSOC coordinates with the Joint Staff,combatant commands, and the Services toensure that all CA requirements are addressed.Additionally, USCINCSOC performs theduties described in Figure III-1.

5. Common ServiceResponsibilities

As heads of their respective Services, theChiefs of the Services have the capability tosupport USG agencies, OSD, the otherServices, and multinational and US combatantcommanders with appropriate forces orspecialists capable of performing CAactivities, as well as with techniques and itemsof equipment typical or peculiar to theirService. Additionally, the Chiefs of theServices should consider the following:

Figure III-1. Civil Affairs Responsibilities of Commander in Chief, United States SpecialOperations Command

Recommends civil affairs policy guidance to the Chairmanof the Joint Chiefs of Staff, the Services, and US militarycommanders, as required

Prepares and provides assigned civil affairs forces to othercombatant commanders for conduct of civil affairs activities,as required

Coordinates with Commander in Chief, US AtlanticCommand (CINCUSACOM) for planning the use of civilaffairs to support continental US disasters or otheremergency relief operations when directed by appropriateauthority 1

1 CINCUSACOM coordinates with Director of MilitarySupport, through the Chairman of the Joint Chiefs of Staff,concerning plans and procedures for providing any or allmilitary assets determined appropriate to support thedomestic civil sector in the continental US ascircumstances require for military support to civilauthorities (DODD 3025.1).

CIVIL AFFAIRS RESPONSIBILITIES OFCOMMANDER IN CHIEF, UNITED STATES

SPECIAL OPERATIONS COMMAND

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a. Structure organizations for mosteffective support of US policy and combatantcommander CA mission requirements acrossthe range of military operations.

b. Direct their respective Services toinclude suff ic ient coverage of CAresponsibilities in Service planning.

c. Make pertinent recommendations to theChairman of the Joint Chiefs of Staffconcerning the adequacy and supportabilityof CA portions or annexes of combatantcommand campaign plans, operation plans(OPLANs), or CONPLANs as a part ofnormal review procedures.

6. Chief of Staff, US Army

In support of CA activities the Chief ofStaff, US Army should consider the following:

a. Provide Army common resources,support, and facilities to Army CAorganizations and elements in support of theUnited States Special Operations Command(USSOCOM) joint CA operational andtraining requirements.

b. Mobilize or activate Army CA units andpersonnel, in coordination with USCINCSOCdeployment requirements, in accordance withArmy Mobilization Operations Planningand Execution System, and implementingthe United States Atlantic Command-USSOCOM agreements.

c. Furnish to other Services, at theirrequest, and in coordination with USSOCOM,qualified personnel for technical assistance inCA functional specialty areas where the otherServices ordinarily do not require or maintaintrained CA personnel.

7. Chief of Naval Operationsand Commandant of theMarine Corps

In support of CA activities, the Chief ofNaval Operations and Commandant of theMarine Corps should be prepared to (SeeAppendix E, “Service-Unique Civil AffairsForces, Capabilities, and Missions,” fordescription of US Marine Corps CA forces):

a. Mobilize, train, and deploy CA elementsand personnel required to support operationsof forces, activities, and facilities of the Navyand the Marine Corps. This also applies tothe Coast Guard when operating as part ofthe Navy in time of war.

b. Furnish to the Chief of Staff, US Army,when requested, specially qualified personnelfor service in Army CA training andoperational units as instructors or specialistsin matters of primary concern to the Navy andMarine Corps.

c. Establish military government, asdirected, pending transfer of this responsibilityto other authority.

8. Chief of Staff, US Air Force

The Chief of Staff, US Air Force, shouldfurnish to the Chief of Staff, US Army, whenrequested, specially qualified personnel forservice in Army CA training and operationalorganizations as instructors or specialists inmatters of primary concern to the Air Force.

9. USG

CA considerations for other DOD andprincipal USG agencies are contained inAppendix A, “Civil Affairs Responsibilitiesof Other Departments and US GovernmentAgencies.”

CHAPTER IVORGANIZATION AND COMMAND RELATIONSHIPS

IV-1

“In Somalia UNITAF operations were, in part, successful because...the UnitedStates set the agenda, and ensured coalition partners agreed to the mission’sobjectives and were prepared to follow the US lead.”

Army-Air Force Center for Low Intensity Conflict

1. General

Pursuant to statutory authority, directionand guidance for the conduct of operationsare transmitted from the NCA to thecombatant commanders, through theChairman of the Joint Chiefs of Staff. Thecombatant commander is responsible for theorganization and centralized direction of CAactivities in the assigned operational area.Civil affairs activities require a responsive andunified command and control structure toensure timely and effective command actionsin attaining established objectives.

2. Designation of Civil AffairsForces as Special OperationsForces

Per Department of Defense Directive2000.13, 27 June 1994, “Civil Affairs,” “USArmy civil affairs forces are designated“special operations forces” under title 10United States Code (USC) 167 ....” Thisaction does recognize the commonalty of CAforce preparation with other SOF, providesincreased emphasis on USCINCSOCoversight and support structure, and integratesCA force initiatives into USSOCOMprograms. Designation of CA forces as SOFdoes not alter relationships or principlesof organization and employment regardingCA forces’ support to military operations.

3. Assignment of Civil AffairsForces to USSOCOM

All US Army CA forces stationed in thecontinental United States (CONUS) areassigned by the Secretary of Defense toUSCINCSOC who has combatant command(command authority) (COCOM) overassigned forces. USCINCSOC normallyexercises COCOM of assigned CA forcesthrough the United States Army SpecialOperations Command, a Major ArmyCommand of the Department of the Army.United States Marine Corps (USMC) CAGroups (CAG) are organic assets to Marineair-ground task forces (MAGTFs) (seeAppendix E, “Service-Unique Civil AffairsForces, Capabilities, and Missions”).

“I think all our conventional leaders andcommanders need to understand andwork more closely with SpecialOperations forces—Special ForcesOperational Detachments, Civil Affairsand PSYOP teams. We cannotsucceed on the modern battlefieldwithout cooperation among theseelements.”

BG L. Magruder, III, USA CG, Joint Readiness Training Center

4. Command Relationships

US Army Reserve CA forces areseparately organized into commands,brigades, and battalions; CA commands and

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brigades do not have organic subordinate unitsand battalions do not have subordinatecompanies. Therefore, time-phased force anddeployment data and task organizations mustspecify all levels of CA commands required.The functional composition of CA forceswill vary with mission, availability,qualifications of CA personnel, and supportedcommand preferences. The supportedcombatant commander should providecentralized control of and guidance to civilaffairs activities. This centralized control isnormally provided by the J-3 who retainsprimary responsibility for supervising CAforces, oversight of their activities, andcoordinating functions identified in ChapterV, “Civil Affairs Activities Planning andCoordinating.”

a. Combatant Command (Command Authority). Unless otherwise directed by theSecretary of Defense, USCINCSOCexercises COCOM of assigned CA forces.If forces are reassigned to another CINC, thegaining combatant commander will exerciseCOCOM over those CA forces. COCOMauthority is further described in Joint Pub0-2, “Unified Action Armed Forces(UNAAF).”

b. Operational Control (OPCON).When directed by Secretary of Defense, thegaining combatant commander of attachedCA forces will normally exercise OPCONof those forces through subordinatecommanders. OPCON authority is furtherdescribed in Joint Pub 0-2, “Unified ActionArmed Forces (UNAAF).”

c. Tactical Control (TACON). TACONof CA forces is inherent in OPCON andmay be delegated to and exercised at any levelat or below the level of a combatant command.TACON authority is further described in JointPub 0-2, “Unified Action Armed Forces(UNAAF).”

d. Support to Multinational Forces.When authorized by the Secretary of Defense,a combatant commander may transfer CAforces to the OPCON or TACON of a UScommander within a multinationalcommand structure.

5. Organizational Relationships

The CA organizational relationships andstructure should parallel the necessity forCA organizational integrity, unity of effort,and available forces. CA forces possesssufficient flexibility to be tailored intocellular-type teams corresponding tofunctional specialty areas and the supportedforce mission needs. The functionalcomposition of CA forces will vary with themission, availability, and qualification of CApersonnel and supported commandpreferences. CA forces can support a JFC,Joint Force Special Operations CommandCommander (JFSOCC), or a Service orfunctional component commander. CA forcesare attached to subordinate componentcommanders for employment at operationaland tactical levels of command. The attachedCA forces support the various commandersin accomplishing their tasks in support oftheater CMO objectives. Each level ofcommand needs to coordinate withcorresponding levels in the NGO, HNgovernment, and other civilian agencies.

6. Organization for Civil-Military Operations

A tailored civil-military organizationalstructure may be established by combatantcommanders, JFC, JFSOCC, or Service orfunctional component commanders tocommand and control CMO. Regardless ofthe name given this structure (e.g., MilitarySupport Group in the United States SouthernCommand - Operation JUST CAUSE, TASKFORCE FREEDOM in USCENTCOM -

IV-3


Operation DESERT STORM, and Military-Civil Relations Task Force in the United StatesEuropean Command - Operation PROVIDEPROMISE), the concept of CA commandand control (C2) organizations may beorganized in two ways, (names are notionaland used for ease of description):

a. Joint Civil-Military Operations TaskForce (JCMOTF). A JCMOTF isnormally a US joint force organization,similar in organization to a joint specialoperations task force or joint task force,flexible in size and composition dependingon mission circumstances. It may bedeveloped to meet a specif ic CMOcon t ingency miss ion , suppor t i nghumanitarian or nation assistance operations,a theater campaign of limited duration, or alonger duration CMO concurrent with orsubsequent to regional or general conflict,depending on NCA or theater guidance. Inrarer instances, a JCMOTF could be formedas a standing organization, depending on NCAor theater guidance and resource availability.A JCMOTF may be formed in theater, inCONUS, or in both locations, depending onscope, duration, or sensitivity of the CMOrequirement and associated policyconsiderations. Joint commanders mayorganize JCMOTFs to perform some or allof the following CMO-relevant functions:

• Provide C2 or direction of military host-nation advisory, assessment, planning,and other assistance activities by jointUS forces.

• Help establish US or multinationaland military-to-civil links for greaterunderstanding and efficiency ofcooperative assistance arrangements.

• Perform essential coordination orliaison with host-nation agencies,Country Team, UN agencies, otherUSG agencies, and deployed US,

multinational, and host-nation militaryforces and supporting logisticsorganizations.

• Assist in the planning and conduct ofcivil information programs to publicizepositive results and objectives of militaryassistance projects, to build civilacceptance and support o f USoperations, and to promote indigenouscapabilities contributing to recovery andeconomic-social development.

• Plan a n d conduc t j o i n t andmul t inat iona l CMO tra in ingexercises.

• Allocate resources and sustain andcoordinate combat support or combatservice support elements, includingnecessary medical, transportation,military police, engineer, and associatedmaintenance and communicationscapabilities.

• Advise and assist in strengthening orstabilizing civil infrastructures andservices and otherwise facilitatet rans i t ion to peacekeep ing orconsolidation operations and associatedhand-of f to other USG agency,international organization, or host-nation responsibility.

• Assess or identify host-nation civils u p p o r t , re l i e f , o r f u n d i n grequirements to the CINC or JFCcommander for transmission tosupporting CINCs, Military Services, orother responsible USG agencies.

• Advise the CINC or JFC on policy;funding; multinational, foreign, or host-nation sensitivities; and their effect ontheater strategy and/or campaign andoperational missions.

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b. Civil-Military Operations Center(CMOC). A CMOC is the JFC’s nervecenter for CMO and coordination withother non-DOD agencies. CMOC membersare primarily civil affairs personnel

augmented by other DOD and non-DOD (i.e.,DOS, USAID, FEMA) liaison personnel. ACMOC may have functions closelyresembling those listed for a JCMOTF above,but in addition have certain characteristicsdiffering from a JCMOTF, some of which areenumerated as follows:

• A CMOC is flexible in size andcomposition to effectively coordinatemilitary support to humanitarianassistance or associated contingency orcrisis response operations in a given areaor country. Such operations may resultfrom decisions and direction emanatingfrom authoritative US or multinationalpolicymaking bodies or from UnitedNations mandates.

• A CMOC may be the primarycoordinating agency for all internationalorganizations (IO), NGO, USG agenciesduring war or peace operations whereDOD has complete control of the theater.

However, the CMOC may be in asupporting role in military operationsother than war where DOS or otherorganizations share or unilaterally controlthe theater.

• A CMOC may be organized to helpintegrate US military forces into bothmultinational forces and military-civilpartnership efforts. It should coordinateUS or multinational forces’ goals andoperations with those of host nations andappropriate relief or service organizations.A CMOC should serve as a vehicle for theexchange of information amongparticipatory commands and to provideinternational support for assistance tocountries in states of socio-economic orpolitical transition.

• A CMOC may comprise or beaugmented by either or both militaryand civilian personnel representativesof any organization the commander, jointtask force considers necessary toeffectively coordinate CMO.

• Overall management of a CMOC maybe assigned to a multinational forcecommander, shared by a US and a

Department of State personnel brief Haitian refugees on procedures fortransport to safe havens during Operation ABLE MANNER.

IV-5


multinational commander, or shared bya US commander and a civilian agencyhead. In a US military-managed CMOC,the J-3 is normally responsible for themanagement of, or participation in, theCMOC.

• The CMOC may be a suborganizationof the JCMOTF and the CMOC mayhave suborganizations to accommodatemilitary or geographic requirements.

c. Situations in which establishment ofJCMOTFs and CMOCs are considered arehighly scenario-dependent. Figures IV-1 andIV-2 generally depict such arrangements orrelationships, but are intended as illustrativeexamples only.

7. Availability of Civil AffairsForces

The CA force structure contains Activeand Reserve components. Reserve civilaffairs forces are available as volunteers orunder title 10 authority for Presidential

Selective Reserve Call-up (PSRC) andmobilization.

a. Volunteers. US Army Reserve CAavailability is limited and requires advancenotification of volunteers. When dedicatedCA personnel are not avai lable,commanders should plan and conduct CAactivities using organic and attached non-CA personnel.

b. Activation or Mobilization of ReserveForces. Under conditions of PSRC ormobilization, additional US military CAforces are available to supported CINCs andJFCs. Mobilized CA forces should beemployed as cohesive units for effectivecommand, control, and sustainment. Civilaffairs force apportionment and availabilitydata are contained in Annex L (CA) to thecurrent Joint Strategic Capabilities Plan(JSCP).

c. Access. Access to CA forces, oressential CA specialty skill capabilities, iscoordinated through USCINCSOC.

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Ch

ap

ter IV

Join

t Pu

b 3

-57

JOINT CIVIL-MILITARY OPERATIONS TASK FORCE (JCMOTF)

1. Combatant commander or joint force commander may maintain direct control of JCMOTF for a specific contingency.

2. Scenario dependent. Combatant commander may direct formation of a JCMOTF in support of other commands as necessary.

3. Liaison with other US Government agencies, host-nation forces, international organizations, nongovernmental organizations, andprivate voluntary organizations as required. (See Figure IV-2)

STRATEGIC & OPERATIONAL DIRECTIONCOMBATANT COMMAND (COMMAND AUTHORITY)OPERATIONAL CONTROLSUPPORT/COORDINATION

NCA

SOC

JCMOTF

JTF

CJCS

USSOCOM(CONUS)

SERVICECOMPONENTS

SERVICECOMPONENTS

SERVICECOMPONENTS

MULTINATIONALFORCES

GEOGRAPHICCOMBATANT

COMMANDERCJCS Chairman of the Joint Chiefs of StaffCONUS continental United StatesJTF joint task forceNCA National Command AuthoritiesSOC special operations command

1

3

LEGEND

GLOSSARY

Figure IV

-1. Joint Civil-M

ilitary Operations T

ask Force (JC

MO

TF

)

IV-7

Organization and C

omm

and Relationships

Figure IV

-2. Civil-M

ilitary Operations C

enter (CM

OC

)

CIVIL-MILITARY OPERATIONS CENTER (CMOC)

STRATEGIC & OPERATIONAL DIRECTIONCOMBATANT COMMAND (COMMAND AUTHORITY)OPERATIONAL CONTROLSUPPORT/COORDINATION

NCA

SOC

USAMBASSADOR

JCMOTF

CMOC

JTF

CJCS

USSOCOM(CONUS)

SERVICECOMPONENTS

SERVICECOMPONENTS

SERVICECOMPONENTS

DOS

NGO / PVO / IO

OTHER US GOVTAGENCIES

MULTINATIONALFORCES LNO

HOST-NATIONFORCES LNO

GEOGRAPHICCOMBATANT

COMMANDER

CJCS Chairman ofthe Joint Chiefsof Staff

CONUS continentalUnited States

DOS Departmentof State

IO internationalorganizations

JCMOTF Joint Civil-MilitaryOperationsTask Force

JTF joint task forceLNO liaison officerNCA National

CommandAuthorities

NGO nongovernmentalorganizations

PVO privatevolunteerorganizations

SOC specialoperationscommand

USSOCOM US SpecialOperationsCommand

1

2

3

4LEGEND

GLOSSARY

COUNTRYTEAM

1. Coordination in development ofCMOC.

2. Organizations and relationshipsare scenario dependent. (SeeFigure IV-1)

3. Comprises multinational forces,civilian coordinating agencies,and others as the situationdictates.

4. CMOC is operational control tothe JTF if JCMOTF is not

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Intentionally Blank

CHAPTER VCIVIL AFFAIRS ACTIVITIES PLANNING AND

COORDINATING

V-1

“The former supporting functions of civil affairs and psychological operationswill become a much more critical part of your daily responsibilities.”

Anonymous, Operation RESTORE HOPE

1. General

Planning for, and coordination of,C A act iv i t ies faci l i ta tes missionaccomplishment. Civil affairs planning isbased on national policy and reflects a varietyof legal obligations such as the provisions ofthe US Constitution, statutory law, judicialdecis ions, President ia l d i rect ives,departmental regulations, and the rules andprinciples of international law, especiallythose incorporated in treaties and agreementsapplicable to areas where US forces areemployed. Additional guidance to assistcombatant commanders in developing CAplans and annexes is contained in:

a. JSCP (Annex L), JOPES, and applicableService directives.

b. Civil affairs assessments and estimatesthat are prepared for CINCs and subordinate

JFCs in their prescribed format. Generalguidance on CA estimates is contained inJoint Pub 3-07.1, “Joint Tactics, Techniques,and Procedures for Foreign Internal Defense,”Appendix E. CA estimates weigh relevantpolitical, economic, sociological, and militaryfactors to form a basis of CA planning.

2. Deployment andEmployment Planning

Selection of CA forces in support of anOPLAN, CONPLAN, or operation ordershould be based on a clear concept of CAmission requirements. JOPES integrates allelements of deliberate or crisis action CAplanning, and identifies, resources, andphases CA required forces.

a. General planning considerations areshown in Figure V-1.

Figure V-1. Civil Affairs General Planning Considerations

CIVIL AFFAIRS GENERAL PLANNINGCONSIDERATIONS

Administrative, logistic, and communications support requirements ofcivil affairs forces

The need for early employment of civil affairs specialty capabilities

The coordination between civil affairs requirements and campaignplans and strategies

The coordination of civil affairs requirements with other appropriatestaff functions and non-Department of Defense agencies

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b. Military Operations Other Than War.Plans for contingency operations may be joint,multinational, or single-Service. Civil affairs

annexes to such plans should, as a minimum,consider the items listed in Figure V-2.

Figure V-2. Civil Affairs Planning Considerations for Military Operations Other Than War

CIVIL AFFAIRS PLANNINGCONSIDERATIONS FOR MILITARYOPERATIONS OTHER THAN WAR

Extent of US military involvement and role of USGovernment agencies in civil-military operations

Liaison requirements with other Department of Defenseelements; US Government agencies, including theCountry Team; multinational forces; host-nationgovernment officials; other foreign government officials;other civilian organizations; and international public andprivate groups

Additional lead time normally necessary for Reservecomponent civil affairs forces availability

Procedures for transition, continuation, or termination ofcivil affairs-relevant functions of other agencies, asdirected or required

Identification of, and relations with, friendly and hostilepersonalities and groups

Security and hostile force disarmament requirements insemipermissive environments

Organization and degree of effectiveness of the host-nation government, the condition of the economy, thenature of cultural and social institutions, and theprevailing perceptions and attitudes of the population

V-3

Civil Affairs Activities Planning and Coordinating

c. War. The JFC’s need to assumegreater authority for CA activitiesshould be reflected in the planningassumptions; certain areas may bedevastated and lack self-sufficiency infacilities, services, and manpower as aresult of hostilities; US and multinationalforces may be required to provideemergency food, clothing, shelter, andmedical supplies to civilians. At the sametime, identification of CA requirementsderived from analysis of both currentoperational and conflict termination orconsolidation missions may entail anyc o m b i n a t i o n o f t h e p l a n n i n gconsiderations identif ied above forcon t i ngenc ies o r c r i s i s - responseoperations.

d. C o n f l i c t Te r m i n a t i o n o rConsolidation Operations. Planningconsiderations concerning use of CA forcesand personnel include, but are not limitedto, the following:

• The postconflict military mission and USpolicy objectives.

• The need for and roles of integratedmilitary-civilian organizational andoversight elements or agencies.

• The extent of devastation and the potentialof the defeated government to regain itsplace in the family of nations.

• The complexity and duration of stability andreconstitution assistance efforts required tocounteract local violence and mobilizeindigenous resources toward self-sufficiency.

• The availability of indigenous leaders andcivil servants.

• The desi res and object ives ofmultinational governments.

• The degree of US domestic political supportto involve US military in nation buildingactivities, regardless of identified needs.

e. Joint Universal Lessons LearnedSystem. Planners should review CA lessonslearned from previous operations and exercises.

Civil Affairs requirements include restoration of facilities devastated byhostilities.

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3. Other Operational PlanningFactors and Constraints

Some operational and environmentalfactors that may complicate the USmilitary’s relationships with foreigncivilians and constrain the conduct of CAactivities include, but are not limited to, thefollowing:

a. Differing legal institutions, socialrelationships, economic organizations, andconcepts of fundamental rights.

b. Acceptance of gifts and hospitality bylocal officials under circumstances thatmight justify a charge of unethical or evencriminal conduct in the United States; briberyand other forms of malfeasance, thoughprohibited by HN law, may be acceptedpractices as a result of local conditions.

c. Public communications mediacontrolled, censored, or consideredirresponsible by US standards.

d. Universal public education consideredundesirable for economic or cultural reasonssuch as poverty, religion, race, or caste.

e. Disproportionate ownership of land orother forms of wealth-producing property.

f. Religious practices that may be contraryto usual US notions of justice and individualliberty.

g. Lack of adequate education orresistance by affected groups that results inpoor health and sanitation or inefficientagricultural or industrial practices.

h. Effects of labor, procurement, orcontracting commodities upon theindigenous population, economy, andgovernmental services.

i. Dislocation and damage requiringmilitary assistance, especially in areas ofpublic health, displaced persons care andcontrol, civilian supply, public safety, andhumanitarian relief.

j. Humanitarian motives prompting USpersonnel to furnish relief or assistance thatmay run counter to local law, religion, orcultural standards; in some cases, what mayappear to be generosity may upset localeconomic conditions, earn little gratitude, andimpose additional responsibilities on USforces.

k. Availability of US and HN civilcommunications resources to support CAactivities when competed for by informationnews agencies.

CIVIL AFFAIRS IN THE PERSIAN GULF: PLANNING

One of the functions of civil affairs is to assist in integrating US forcessmoothly with the population and forces of the host nation. Deployment oflarge numbers of US forces to Saudi Arabia meant harmonizing our westernculture with the culture of our host. The challenge facing US personnel wasto adapt to the customs of Saudi Arabia so conduct created an impression ofrespect for the Saudis and their culture. A rigorous indoctrination programwas undertaken to orient US personnel on the region’s uniqueness and itshistory, customs, religion, law, and mores.

Civil affairs planners were active in identifying, planning, coordinating, andintegrating host-nation support (HNS) which was crucial to effective militaryoperations. They identified sources of contract labor, services, materials,

V-5


4. Inter-Service Support

Careful coordination is required in suchareas as responsibilities for logisticsupport, channels for civilian supply, andadministrative aspects of attachment of ArmyCA elements to a force of another Service.Coordination is also required to ensureintegration of the efforts of all Services tosupport CA requirements. Army CA forcesare apportioned and available for regional orcontingency support. Marine Corps CAgroups, as integral units of a MAGTF, supportoperations of forces, activities, and facilitiesof the Navy and Marine Corps. This doesnot, however, preclude the assignment offunctional specialists from one of the Servicesto CA organizations of another Service, orthe assignment of Army CA organizationsto other Service components to assist in theconduct of operations. See also CAresponsibilities of the Chiefs of the Servicesand military commanders identified inChapter III, “Responsibilities for CivilAffairs.”

“Under the direction of the President,the chief of mission to a foreign countryshall have the full responsibility for thedirection, coordination, and supervisionof all government executive branchemployees in that country (except foremployees under the command of theUS area military commander).”

22 USC 3827 (A)

and supplies. Civil affairs planners assisted the Saudis in civil defenseemergency planning. They kept the status of the Saudi civil defensepreparedness including dispersal locations, warning systems, shelters, andNBC defense resources for civilians. Prior to offensive operations and at therequest of the US embassy, civil affairs officers met with US civilian nationalsliving and working in Saudi Arabia to assure them of Coalition militarycapabilities so as to relieve some of their anxiety about being in a war zone.


5. Interagency Coordination

Department of State officials and chiefs ofdiplomatic missions, depending on policyguidance and the operational environment,may have a primary or collateral interest inCA activities or requirements entailingcoordination with HN governmentofficials. CA annexes or portions ofcampaign plans, and operation plans shouldclearly delineate responsibilities, reflectconstructive (things that must be done) orrestrictive (things that must not be done)guidance for military forces, and emphasizethe importance of coordinating CAactivities with all concerned.

a. The nature of CA activities, focusingon sociological, economic, and politicalfactors, as well as military missionrequirements in foreign or HN areas whereUS military forces are present, may entailresearch, surveys, planning, andcoordination of both DOD and non-DODorganizations and agencies.

b. Other governmental elements,international agencies, church groups,commercial interests, and private institutionsmay be working toward common orassociated objectives, especially duringconditions other than war and periodsimmediately after cessation of hostilities.Close coordination and cooperation withthese groups should reduce costs, preventduplication, lessen the friction of potential

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rivalry, and improve results. This is as truein military civic action that originate fromUSG country plans as in humanitarian ordisaster relief contingency or crisis-responseoperations. Such activities usually entailsensitivities, political consensus, centralfunding, authorization to use indicatedresources, and joint participation with non-DOD, HN, and international agencies.

c. The nature of CA activities requiresinteragency, and intra-agency, command,control, communication, computer, andintelligence interface with US and HNcommercial networks to augment DODcommunications that are supporting CAactivities.

d. The Country Team is a forum forplanning and control and a means of

generating the close cooperation and liaisonessential for unity, cohesion, and effectivenessof effort.

6. Theater-Unique Procedures

Use of foreign and/or multinationalresources and of US domestic commoditiesmay be required to support militaryoperations and should be in consonance withbilateral or multinational agreement and/orstatutory law. Organizational andoperational procedures that implementthose agreements may vary according totheater (e.g., Civil-military cooperation in theNorth Atlantic Treaty Organization countriesof the US European Command; foreign areanation support and wartime HNS in the USPacific Command) and may include, but notbe limited to, the items listed in Figure V-3.

Figure V-3. Theater-Unique Procedures

Use of host-nation forward logistic sites

Maintenance of host-nation military facilities

General supplies, equipment, and materiel provided atdesignated host-nation aerial and sea terminals

Technical arrangements for support by or use of host-nation transportation, telecommunications, and civil labor

Assistance to host-nation information efforts to ensure thathost-nation authorities and population are aware of thesupport they will be asked to provide

THEATER-UNIQUE PROCEDURES

V-7


7. Oversight of CA Planningand Activities

(See also Appendix B, “Civil Affairs StaffRelationships.”) To establish centralizeddirection and staff cognizance over planning,coordinating, and conducting CA activities,the combatant commander may establisha distinct staff element, usually in theOperations Directorate. The complex natureof CA activities normally requires thedirection and oversight of a full-time staffelement whose concerns include, but are notlimited to, the following:

a. Helping formulate recommendationsfor CA policy and implementing measuresto gain or maintain civil or indigenoussupport of US forces employed.

b. Preparing the CA portion (Annex G)of theater campaign plans, OPLANs, andCONPLANs that are integrated into thetheater joint operation planning process.

c. Preparing CA estimates andassessments of the impact of militaryoperations on the civilian environment; also,planning and conducting surveys as a basisfor these assessments.

d. Identifying and integrating CAsupport and appropriate CA essentialelements of information into commandintelligence programs.

e. Coordinating with legal and otherappropriate staff officers to assist inensuring compliance with legalrequirements, including existing status-of-forces agreement or other internationalagreements that may be in effect;identifying and recording informationassociated with injury, death, or damage toproperty to facilitate the payment ofcompensable claims; and identifying areas

of environmental contamination for futureremediation.

f. Coordinating support for the CountryTeam and other USG agencies andorganizations involved in planning andinterface with the HN for support to CAactivities.

g. Developing recommendationsregarding the FID needs of host nations.

h. Planning and coordinating civilinformation activities , in conjunction withpublic affairs, PSYOP, and other appropriatestaff officers to advance community relationsand international information programssupporting regional and US objectives.

i. Identifying CA requirements andresources to support USG and militarycontingency and crisis-response operations,and civil administration programs, as required.

j . Ass i s t i ng in deve lop ing andcoordinating appropriate CA support tohumanitarian or disaster relief andsecurity assistance programs consistentwith US policy and mission requirements.

k. Arranging for provision of mobile CAsurvey and instructional teams to supportcommand and US security assistancemissions.

l. Determining specific CA assetsrequired to support subordinate joint andtheater Service component headquarters andforces.

m. Coordinat ing wi th theater-apportioned CA forces (see Annex L, JSCP)in order to provide them with mission tasksand training priorities and to schedule theirparticipation in exercises, operations, andoverseas deployment for training programs.

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APPENDIX ACIVIL AFFAIRS RESPONSIBILITIES OF OTHER USDEPARTMENTS AND GOVERNMENT AGENCIES

A-1

1. Department of State

The Department of State is responsible forformulation and implementation of USforeign policy. In a given country, Departmentof State authority is exercised by the US Chiefof Mission (the US Ambassador, seniormember of the Country Team, or principal USdiplomatic officer in country). The Secretaryof State normally provides a senior DOSrepresentative to any interagency orinterdepartmental CA oversight committeethat may be established, as requested by theSecretary of Defense. The Department ofState provides primary policy guidance in thefollowing areas:

a. Matters having an impact on USrelations with other countries.

b. The extent to which the commander willintervene in the government of a particularcountry. (Refer to DODD 5530.3,“International Agreements.”)

c. The level at which the economy of agiven country will be maintained.

d. Matters involving informationalprograms, including supporting psychologicalaspects and attitudes of the indigenouspopulation.

e. The level of subsistence of civilians in acountry in which US forces are stationed oremployed, and by whom such subsistence inpart or in whole must be provided.

f. Plans or procedures for the return of civilgovernment functions to civilian control.

g. Efficacy and costs of programs orprojects undertaken to gain the understanding,

acceptance, confidence, and support of civilpopulation.

2. United States Agency for International Development

a. USAID has primary interest in theprovision of USG assistance to foreigncountries. Plans involving CA assets mustinclude consideration of those USAIDprograms ongoing in a given country andensure that appropriate military programs areproperly coordinated with USAID. Whenrequested by the National Security Council,USAID should provide a senior representativeto any established interagency CA committee.

b. USAID’s Office of Foreign Disaster Assistance(OFDA). As the USG agency responsible forproviding prompt USG assistance to alleviateloss of life and suffering of foreign disastervictims, OFDA may request DOD componentassistance in specific relief operations.Coordination and determination of CA assetsrequired, if necessary, to collaborate withOFDA Disaster Assistance Relief Teams andassist in integrating IO/NGO/PVO into reliefoperations, will normally be accomplishedthrough the Assistant Secretary of Defense(International Security Affairs) and the JointStaff.

3. US Information Agency(USIA)

Operating as the United States InformationService (USIS) overseas, USIA has primaryinterest in the dissemination of informationand related materials about the United Statesto countries throughout the world. The USIAtracks foreign press and media coverage andcan assist in publicizing US military andcivilian achievements in a given foreign

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country. Plans involving CA assets shouldinclude coordination with USIA-USISplanners to assist in providing informationdissemination. When requested by theSecretary of Defense, USIA should provide asenior representative to any establishedinteragency CA oversight committee.

4. Other US Government Departments or Agencies

Other USG agencies are concerned withemployment of CA assets and conduct of CAactivities. Coordination normally involves theexchange of advice, information, andassistance in matters pertaining to theirspecific function. Primary agencies concernedare:

a. National Security Council

• Develops broad policy guidance foremployment of CA assets and conductof CA activities.

• Provides a representative to anyestablished interagency oversight CAcommittee when requested by theSecretary of Defense.

b. Federal Emergency Management Agency.FEMA coordinates Federal, state, and localresources on issues of national securityemergency preparedness, includingmobilization preparedness, civil defense,continuity of government, and technologicaldisasters, within the United States and itsterritories and possessions. The FederalEmergency Management Agency has beendelegated authority by EO 12148 to directDOD assistance to state and localgovernments, under provisions of 42 USC5121-5201 in order to help save lives andprotect property, public health, and safety. CAassets may facilitate FEMA-DOD planningand coordination of assessments and otheractions to minimize loss of life and propertydamage, as well as alleviate suffering,

consistent with established FEMA-DODprocedures and national defense priorities.

c. Department of Transportation(DOT). DOT has technical capabilities andexpertise in areas of public transportation thatmay be available, upon request, for assistanceto specific CA activities.

d. United States Coast Guard (USCG).As a DOT agency responsible for Federalmaritime law enforcement and port andwaterway security in peacetime, and as aMilitary Service under the Department of theNavy in wartime, the US Coast Guard hasexpertise in areas of shipping, commerce, andmarine life industry and conservation. TheUS Coast Guard’s international trainingefforts provide a mechanism for sharing itsexpertise abroad; such expertise can be madeavailable for CA activities, as needed.Additionally, coordinated DOD and/or USCGprojects related to counternarcotics operationsprovide an opportunity for conduct ofappropriate CA activities.

e. Department of Agriculture (USDA).The Department of Agriculture has projectsand activities ongoing in foreign countries andcan provide technical assistance to deployedCA assets, if requested. Additionally,coordinated DOD CA USDA projects can bedeveloped for a given country or region.

f. Department of Commerce. TheDepartment of Commerce has technicalcapabilities and expertise in areas of trade,economics, business regulation, and othersuch areas (e.g., worldwide directory ofcommercial activities), that can be madeavailable to assist CA activities, as requested.

g. Department of the Treasury. TheDepartment of the Treasury has technicalcapabilities and expertise in areas of publicfinance that can be made available to assistCA activities, as requested.

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Civil Affairs Responsibilities of Other US Departments and Government Agencies

h. Department of Justice (DOJ).DOJ employs its international criminalinvestigative assistance program to providelaw enforcement consultants to foreigngovernments. These consultants assist in thetraining of foreign civilian police forces.

i. Drug Enforcement Administration(DEA). DEA has technical expertise andactivities ongoing in foreign areas to (1) assist

in providing legal, self-sustaining, income-earning alternatives to farmers and workersin narcotics agriculture and (2) improveinternational exchange of information aboutsuccessful drug prevention and educationprograms. These activities are compatiblewith several CA functional areas and couldbe coordinated for the benefit of both DODand in a given country or region.

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Intentionally Blank

APPENDIX BCIVIL AFFAIRS STAFF RELATIONSHIPS

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1. General

Officers of joint staffs assist theircommander in planning for assigned broadand continuing CA mission areas. Except forthose functional areas the commander desiresto personally control, joint staff officers ensurethat CA considerations and requirements arecoordinated with and integrated into otherstaff functional areas including, but not limitedto, the following:

a. Personnel Division. For personnelmanagement of indigenous civilian laborresources essential to support militaryoperations.

b. Intelligence Division

• For continuing intelligence studies,assessments, and other area-related datadepicting political, environmental,economic, and sociological factors andtrends influencing military courses ofaction and measures necessary toinfluence or control populations.

• For CA asset support to or fromcounterintelligence activities, includingrequired civil security, censorship,counterdrug, movement controls, andcollaborator and other key personalityidentification.

c. Operations Division

• For execution of plans related to civilianaspects of operations and the mosteffective means of avoiding civiliancasualties and destruction of protected orother civil property (e.g., cultural orhistorical artifacts).

• For conducting and reporting CAparticipation in title 10 Humanitarian andCivic Assistance Programs.

• For determination of the most effectivecourses of action to influence popularperception and acceptance of US militarypresence. (See PSYOP, page II-15, para6.)

• For provision of overall militaryassistance to civilian populace, includingdislocated civilians and maintenance oflaw and order.

d. Logistics Division

• For procurement and management ofindigenous or civil resources, bothmaterial and human, essential to supportmilitary operations.

• For continuing estimates of foreignnation support and HNS requirements,availability, allocations, and priorities.

• For programs for dist r ibut ion,coordination, and control of militaryprovisions to meet essential civilrequirements.

e. Plans, Policy, and Strategy Division

• For review of CA annexes, plans, andoperations to ensure conformance withpolicy and integration with relatedactivities.

• For determination and evaluation ofcourses of action related to civilianaspects of operations and the mosteffective means of avoiding civilian

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casualties and destruction of protected orother civil property (e.g., cultural orhistorical artifacts).

• For planning CA participation in title 10Humanitarian and Civic AssistancePrograms.

• For determination of the most effectivecourses of action to obtain HN supportfor CA activities and US programsconsistent with long-term stability andnational objectives.

• For planning overall military assistanceto civilian populace, including dislocatedcivilians and maintenance of law andorder.

f. Command, Control, Communicationsand Computers (C4). For evaluation ofavailable HN C4 infrastructures and to planand assist in the acquisition andinteroperability of C4 resources to facilitateCA support to military operations.

g. Legal Division

• To ensure CA planning and operationsare in accordance with the spirit,principle, and intent of the law of warwith regard to civilian internees,refugees, dislocated civilians, and otherswho are effected by CA activities.

• For coordination, advice, and assistancein command compliance with laws,regulations and procedures pertaining tosecurity assistance, humanitarian andcivic assistance, and other programsinvolving CA forces’ participation andthe context of environmental and fiscalconstraints.

• For prompt investigation, adjudication,and settlement of claims, whenappropriate, by persons of a foreigncountry that were generated as a resultof property damage, personal injury, ordeath associated with US militaryoperations.

h. Public Affairs Office. For coordination,advice, and assistance relative to conduct ofcommand information and communityrelations programs.

i. Surgeon’s Office. For coordination,advice, and assistance in prevention, control,and treatment of endemic or epidemic diseasewithin the civilian population.

j. Engineer’s Office. For coordination,advice, and assistance relative to construction,maintenance, and use of civilian public orgovernment works, facilities, and surfacetransportation routes for supporting militaryoperations.

APPENDIX CCIVIL AFFAIRS FUNCTIONAL SPECIALTY SKILL AREAS

C-1

1. General

This appendix outlines the functionalspecialty skill areas in which individual CAforces are specially trained to plan and conductCA activities and provide support tocombatant command CA requirements. Eachfunction is related, to a certain extent, to everyother function, and their interconnectingrelationships obviate exclusive interest withinany functional area. At the same time, someof the individual functions imposerequirements for specialist personnel in morethan one skill. As an example, the food andagriculture function may require specialistsassociated with forestry, manufacturing,processing, storage, and distribution.

2. Public Administration SkillAreas

a. Public Administration. Relevant tooperations and/or use of civil agencies andorganizations.

b. Public Safety. Relevant to operationsand/or use of civil law enforcement, security,and emergency services and facilities.

c. Public Health. Relevant to operationsand/or use of civil medical facilities,management of patients and disease controls,and other preventive health measures orsystems.

d. Labor. Relevant to operations and/oruse of civil work force agencies and personnel.

e. Legal

• Relevant to operation of foreign judiciaryand legal systems and to matters relatedto international law that may be in effect.

• Relevant to operation of US lawsgoverning military support to Federal,state, and local authorities.

f. Public Welfare. Relevant to operationsand/or use of civil relief agencies and otherorganizations providing supplies and othersupport to civil population.

g. Public Finance. Relevant to operationsof civil budgetary agencies and to formulationand/or implementation of associated monetaryfiscal policy.

h. Public Education. Relevant tooperations and/or use of civil educationalsystems and programs.

i. Civil Defense. Relevant to operationsand/or use of civil emergency welfare andrelief services; coordinated civil-militarypublic safety; nuclear, biological, andchemical attack warnings; casualty treatmentand evacuation measures; and disaster reliefand recovery actions.

3. Economics Skill Areas

a. Civil ian Supply. Relevant tocoordination, acquisition, and distribution of:

• Civil sector resource support for essentialmilitary needs.

• Military provisions essential to meetminimum civil population needs.

b. Food and Agriculture. Relevant tooperation of civil agricultural training, cropimprovement, and overall food managementand production.

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c. Economics and Commerce. Relevantto (1) operation and/or use of civil governmentprice and commodity controls, rationing, andkey industries; (2) assessments of existingeconomic and commercial structure and itseffects on planned military operations; and(3) rehabilitation and/or reconstruction of theeconomic commercial infrastructure.

d. Property Contr ol. Relevant tooperations, policies, and procedures for useand/or disposition of real civil property,including special consideration or protection.

4. Public Facilities Skill Areas

a. Public Works and Utilities. Relevantto operations and maintenance of civil publicworks and utilities such as gas, waterworks,and sewage or refuse.

b. Public Communications. Relevant tooperations and management of civilgovernment and private postal services,telephone, telegraph, radio, television, andpublic warning systems.

c. Public Transportation. Relevant tooperations and/or use of available civil

transportation assets, including rail, highways,ports, and airfields.

5. Other Functional SpecialtySkill Areas

a. Dislocated Civilians. Relevant tooperations and care and control measures (e.g.,shelter, screening, evacuation) to facilitatemilitary operations and meet humanitarianrequirements.

b. Cultural Affairs. Relevant to policiesand procedures regarding safeguardingsignificant civil cultural traditions andproperties.

c. Civil Information. Relevant to (1)development of effective indigenousinformational institutions and programs and(2) support to US informational programs,including formulation, coordination, anddissemination of information required noticesor proclamations to the civil population.

d. Arts, Monuments, and Archives.Identifying and safeguarding cultural propertythat are of personal, private, or national value.

APPENDIX DCIVIL AFFAIRS DIRECTIVES AND AGREEMENTS

D-1

1. Scope

The discussion in this appendix isapplicable to CA activities and civiladministration missions in hostile territory orterritory occupied by US forces (also knownas military government). Agreements whereUS forces are located in friendly or neutralareas possess variations and complexities insuch detail as to preclude extensiveconsideration in this publication.

2. General

In the course of military operations incircumstances where commanders are taskedto conduct civil administration missions inhostile or occupied territory, it is oftennecessary to issue special directives,proclamations, ordinances, or otherinstructions. Directives issued by militaryauthority are intended to have the force of lawover the entire population of the area for whichthe military commander is responsible. Lawin this sense means all rulings of thelawmaking authority that are enforced by thatauthority. Authority for issuing suchdirectives is based on national policy decisionsgenerally made at the time of use of militaryforce in a given area or country and delegatedby the NCA to the combatant commander tofacilitate mission accomplishment. Effectiveauthority can be exercised over only suchmatters as are clearly recognized by thepopulation as being the legitimate concern ofthe commander. Assertion of authorityoutside of these matters may result inresistance from the population, and themaintenance of such asserted authority mayrequire military resources and energies thatmay be required to support other missions.In conformance to applicable articles of the1949 Geneva Convention Relative to theProtection of Civilian Persons in times of War

(GC) and in occupations not governed bythose provisions (see paragraph 3 below),directives that are binding on the civilianpopulation will be published in written form.Publication in official printed papers willusually satisfy this requirement, althoughposting the directives publicly ordisseminating them via radio, television, orother available media may be necessary toensure effective publicity.

3. Applicable Treaties andRegulations

The following are summaries of provisionsof treaties and regulations that are applicableto CA activities and civil administrationmissions in hostile or occupied areas:

a. Article 64, GC, summarized as follows:

• The penal laws of the occupied territoryremain in force and will be repealed orsuspended by the occupying power onlyin cases where they constitute a threat toits security or an obstacle to applicationof the present Convention.

• The occupying power may subject thepopulation, however, to provisions orcontrols essential to maintain orderlygovernment and ensure adequateprotection of the occupying force, itsinstallations, and its lines ofcommunications.

b. Article 65, GC, summarized as follows:

• The penal provisions enacted by theoccupying power shall not come intoforce before they have been publishedand brought to the knowledge of theinhabitants in their own language.

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• The effect of these penal provisions willnot be retroactive.

c. Article 43, Annex, Hague ConventionNo. IV of 1907, summarized as follows: Thisarticle states that the occupying power, havingassumed the authority of the legitimate power,will take all measures in its power to restoreand ensure public order and safety whilerespecting the laws in force in the country.

d. Article 82, Geneva Convention Relativeto the Treatment of Prisoners of War,summarized as follows:

• A prisoner of war will be subject to thelaws, regulations, and orders in force inthe armed forces of the detaining power.

• The detaining power may takeappropriate judicial or disciplinarymeasures in respect of any offense againstsuch laws, regulations, and orders.

• Acts of an EPW declared punishable willentail disciplinary punishment (definedas minor sanctions) if those same actswould not be punishable if committed bya member of the detaining power’sforces.

4. Proclamations

Proclamations are public announcementsmade by or in the name of the commanderexercising chief executive authority for all thepeople within an area. They are lawmakinginstruments. Proclamations set forth the basisfor authority and the scope of all thecommanders’ activities and define theobligations, liabilities, rights, and duties of thepopulation affected. Proclamations should beprepared in advance and drafted with care toserve as the basis for the conduct of CAactivities and civil administration missionsand receive DOD approval before publication.A proclamation should only be issued to

announce matters of considerableimportance, such as the following:

a. Formal notice of the fact of occupation.

b. Declaration of the supremacy of themilitary commander and suspension ofpolitical ties and obligations to the hostilegovernment.

c. Retention of local laws, customs, andofficials, unless otherwise directed.

d. Fair treatment and due protection ofthose people respectful of directives, laws, andregulations.

e. Detailed rules of conduct to follow, asapplicable.

f. Handing over of new administrativeresponsibilities to the local or reestablishedgovernment.

g. Place, date, and signature.

5. Ordinances

An ordinance is a rule enacted by the samelawmaking authority discussed above forproclamations, but it is normally of localapplication. Among other matters, ordinancesshould deal with offenses, establishment ofjudicial bodies, currency, and exchange ofregulations, rationing, and price controls.

6. Orders and Instructions

Orders and instructions differ from the otherlegal documents discussed above. They arelocal in scope and provide information oncompliance with proclamations or ordinances,or they will furnish directions to the civilianpopulation and government. They areintended mainly to prevent civilianinterference with military operations. Itemssuch as hours of curfew, travel restrictions,

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Civil Affairs Directives and Agreements

and limitations imposed on operations ofcivilian government are included. Authorityto issue orders and instructions should bedelegated to those subordinate commandershaving CA authority.

7. Other Agreements

Other agreements, such as standardizationagreements, may be negotiated between twoor more parties to cover specified

circumstances and relationships and mayserve as the basis of CA activities planned orconducted in a given operational area. Otherless formal understandings may be reachedbetween commanders and local authorities inthe interest of harmony and minimizingmutual interference. These understandingsmay be written or oral; however, the lattershould be in writing as soon as circumstancespermit.

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Intentionally Blank

APPENDIX ESERVICE-UNIQUE CIVIL AFFAIRS FORCES,

CAPABILITIES, AND MISSIONS

E-1

1. US Army

a. Active Component. USSOCOMmaintains one Army AC CA battalionconsisting of regionally oriented companiesand structured to deploy rapidly and provideinitial CA support to military operations. Itis immediately available for contingencies andis prepared for a variety of operationalenvironments worldwide. The unit’s primaryuse is providing rapid, short-duration CAsupport for nonmobilization contingencyoperations. It is not designed or resourced toprovide the full range of CA functionalspecialty skills outlined in Appendix C, “CivilAffairs Functional Specialty Skill Areas.”Unit organization may be internally modifiedand task-organized to support theater-specificmission requirements.

b. Reserve Component. USSOCOMmaintains more than 95% of its Army CAforces in the RC. RC CA units vary in size,organization, and capability and consist ofcommands, brigades, and battalions. Unitsare headquarters and headquarters-sizeorganizations and are designed aroundprofessional specialties applied to providefunctional assistance, advisory, orcoordinating skills at a level of expertise notstructured in Army organic staffs and units.As with AC units, RC units may be internallymodified and task-organized for specificrequirements. Their functional skills andexperience in advisory and assistance roleswith HN counterparts can be applied toaugment the AC force, support conventionaland SO, and support or conduct civiladministration missions. Upon selectivecallup for contingencies or upon mobilization,RC CA units do not generally requireadditional time to augment or assumemissions initiated by AC elements.

2. US Marine Corps

USMC commands, w i th reserveaugmentation, have the capability to plan andconduct CA activities in contingency or crisisresponse operations. The Marine Corps doesnot maintain AC CA units. Civil affairsactivities are carried out using all assets fromwithin the MAGTF. Civil affairs activities ofUSMC CA units are normally limited to thoseminimum essential civil-military functionsnecessary to support the assigned missions ofa MAGTF, which may be entirely civil-military operational in nature.

a. Within the AC, the Force ServiceSupport Groups, within the Fleet MarineForce, provide CA-trained personnel toMAGTF command elements to assist in theplanning and conduct of CA activities.

b. USMC RC CA units consist of twoCAGs that are organic to and augment thecapability of the MAGTF. The CAGs, whenactivated, are capable only of self-administration and require support from theMAGTF command element’s support unit insuch areas as supply, health services, mess,and transportation.

c. In lower levels of conflict, MAGTF CAactivities will normally be conducted byprimarily command organic assets. This doesnot, however, preclude individual RCpersonnel from volunteering to serve duringnonmobilization contingencies. CA activitieswill normally include civic action, publichealth, disaster relief, and humanitarian-assistance programs. They can be tailored tostability operations to promote HN self-sustaining capabilities and to limited objectiveoperations against specific targets.

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d. In higher levels of conflict, it is likelythat the CAGs would be mobilized anddeployed with the MAGTF command elementto assist in dislocated civilian controls, publichealth and welfare functions, and associatedcivilian sector liaison requirements. MAGTFcommanders will normally establish andmaintain coordination with designated USArmy organizations to ensure consistency andfacilitate transition of appropriate missions toUS Army responsibility.

3. US Navy

The Navy, as well as the Coast Guard whenthey are assigned to the Navy, do not maintainCA units. However, Navy constructionbattalions, legal officers, counterintelligence

special agents, medical personnel, harbordefense, coastal patrol, and port securityresources have capabilities to support orcomplement CA activities.

4. US Air Force (USAF)

The Air Force does not maintain CAunits. USAF AC, RC, and National Guardcommands, however, do have a variety offunctional organizations, including legal,supply, medical, security police, andconstruction resources, with capabilities tosupport or complement CA activities. Inmajor operations, CA liaisons should beprovided to the USAF Headquarters and eachdeployed wing.

APPENDIX FREFERENCES

F-1

1. Purpose. This appendix provides references to aid in the use of this publication.

2. Treaties. Treaty obligations of the United States, to include:

a. The Geneva Conventions for the protection of War Victims of August 12, 1949 (1949GC), which include the following treaties to which the USG is a party:

(1) Geneva convention for the Amelioration of the Condition of the Wounded and Sickin the Armed Forces in the Field (GWS).

(2) Geneva Convention for the Amelioration of the Condition of Wounded, Sick andShipwrecked Members of Armed Forces at Sea (GWS SEA).

(3) Geneva Convention Relative to the Treatment of Prisoners of War (GPW).

(4) Geneva Convention Relative to the Protection of Civilian Persons in Time of War(GC).

b. Hague Convention No. IV Respecting the Laws and Customs of War on Land, October18, 1907.

3. Federal Statutory Laws

a. Goldwater-Nichols Department of Defense Reorganization Act of 1986, PL 99-433(codified in various sections of 10 USC, especially 164 and 167).

b. DOD Authorization Act of 1987, PL 99-661 (codified in various sections of title 10,USC, and other titles).

c. Foreign Assistance Act of 1961, PL 87-195 (codified as amended in various sections oftitle 22 USC).

d. Title 10, USC 401, “Humanitarian and civic assistance provided in conjunction withmilitary operations.”

4. Executive Branch Document. “US Capabilities to Engage in Low Intensity Conflictand Conduct Special Operations,” the President’s Report to Congress, 1987.

5. DOD Directives

a. Directive 2010.1, “Support of International Military Activities.”

b. Directive 2100.3, “US Policy Relative to Commitments to Foreign Governments underForeign Assistance Programs.”

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c. Directive 3025.1, “Military Support to Civil Authorities.”

d. Directive 3025.12, “Military Assistance for Civil Disturbances.”

e. Directive 3025.14, “Protection & Evacuation of US Citizens and Designated Aliens inDanger Areas Abroad.”

f. Directive 5100.1, “Functions of the Department of Defense and its Major Components.”

g. Directive 5100.46, “Foreign Disaster Relief.”

h. Directive 5100.69, “DOD Program for Enemy Prisoners of War and Other Detainees.”

i. Directive 5100.77, “DOD Law of War Program.”

j. Directive 5125.1, “Assistant Secretary of Defense (Reserve Affairs).”

k. Directive 5132.3, “DOD Policy and Responsibilities Relating to Security Assistance.”

l. Directive 5138.3, “Assistant Secretary of Defense (Special Operations and Low-IntensityConflict).”

m. Directive 5166.54, “DOD Key Asset Protection Program.”

n. Directive 5525.1, “Status of Forces Policies & Information.”

o. Directive 5530.3, “International Agreements.”

6. Joint Publications

a. Joint Pub 0-2, as changed, “Unified Action Armed Forces (UNAAF).”

b. Joint Pub 1-01, w/ch 1, “Joint Publication System (Joint Doctrine and Joint Tactics,Techniques, and Procedures Development Program).”

c. Joint Pub 1-02, “Department of Defense Dictionary of Military and Associated Terms.”

d. Joint Pub 2-01.2, “Joint Doctrine and Tactics, Techniques, and Procedures forCounterintelligence Support to Operations.”

e. Joint Pub 3-0, “Doctrine for Joint Operations.”

f. Joint Pub 3-05, “Doctrine for Joint Special Operations.”

g. Joint Pub 3-05.3, “Joint Special Operations Operational Procedures.”

h. Joint Pub 3-07, “Joint Doctrine for Military Operations Other Than War.”

F-3

References

i. Joint Pub 3-07.1, “Joint Tactics, Techniques, and Procedures for Foreign InternalDefense.”

j. Joint Pub 3-07.3, “Joint Tactics, Techniques, and Procedures for PeacekeepingOperations.”

k. Joint Pub 3-53, “Doctrine for Joint Psychological Operations.”

l. Joint Pub 4-0, “Doctrine for Logistic Support of Joint Operations.”

m. Joint Pub 4-02, “Doctrine for Health Service Support in Joint Operations.”

n. Joint Pub 5-0, “Doctrine for Planning of Joint Operations.”

o. Joint Pub 5-00.2, “Joint Task Force Planning Guidance and Procedures.”

p. Joint Pub 5-03.2, “Joint Operations Planning and Execution System, Vol II: (Planningand Execution Formats and Guidance.)

7. Chairman of the Joint Chiefs of Staff Memorandums and Instructions

a. JCS Memorandum 71-87, “Mission and Functions of the US Special OperationsCommand.”

b. JCS Memorandum, “PSYOP and CA Forces in US Special Operations Command.”

c. MCM-57-93, “Implementation of the Unified Command Plan.”

d. MJCS-0124-88, “Implementation of the DOD Law of War Program.”

e. CJSCI 3110.12, Annex L (Civil Affairs) to the Joint Strategic Capabilities Plan.

8. Multi-Service Publications

a. FM 100-20/AFP 3-20, “Military Operations in Low-Intensity Conflict.”

b. FM 33-1/FMFM 3-53, “Psychological Operations.”

c. FM 100-19/FMFM 7-10, “Domestic Support Operations.”

d. AFM 40-8/DA PAM 690-80/NAVSO P-1910/MCO P12910.1, “Use and Administrationof Local Citizens in Foreign Areas During Hostilities.”

9. Department of the Army Publications

a. AR 190-8, “Enemy Prisoners of War, Civilian Internees, Retained Personnel, andOther Detainees.”

F-4

Appendix F

Joint Pub 3-57

b. FM 8-42, “Medical Operations in Low-Intensity Conflict.”

c. FM 19-40, “Enemy Prisoners of War, Civilian Internees, and Detained Persons.”

d. FM 27-10, “Law of Land Warfare.”

e. FM 41-10, “CA Activities.”

f. FM 100-5, “Operations.”

g. FM 100-25, “Doctrine for Army Special Operations.”

10. Department of the Navy Publications

a. Navy and Marine Corps White Paper, September 1992, “From the Sea.”

b. NWP 9/FMFM 1-10, 1989, “The Commander’s Handbook on the Law of NavalOperations.”

11. Department of the Air Force Publications

a. AFDD 36, “Foreign Internal Defense Operations.”

b. AFP 110-31, “International Law—The Conduct of Armed Conflict and Air Operations.”

c. AFI 10-212, “Air Base Operability, Planning, and Operations.”

d. AFI 31-209, “Air Force Resource Protection Program.”

e. AFI 32-401, “Disaster Preparedness Planning and Operations.”

f. AFI 51-4001, “Training and Reporting to Insure Compliance with the Law of ArmedConflict.”

12. USMC Publications

a. NAVMC 2890, “Small Wars Manual.”

b. FMFM 7-34, “Civil Affairs.”

c. FMFRP 7-8-1, “Operations in Low Intensity Conflict.”

d. FMFRP 7-8-2, “Military Operations in Low Intensity Conflict.”

e. FMFRP 7-34-2, “Civil Affairs Operations.”

f. FMFRP 14-3, “Operational Concept for Marine Expeditionary Units (Special OperationsCapable) (MEU (SOC)).”

APPENDIX GADMINISTRATIVE INSTRUCTIONS

G-1

1. User Comments

Users in the field are highly encouraged to submit comments on this publication to theJoint Warfighting Center, Attn: Doctrine Division, Fenwick Road, Bldg 96, Fort Monroe,VA 23651-5000. These comments should address content (accuracy, usefulness, consistency,and organization), writing, and appearance.

2. Authorship

The lead agent for this publication is the US Special Operations Command. The JointStaff doctrine sponsor for this publication is the J-3, Special Operations Division.

3. Change Recommendations

a. Recommendations for urgent changes to this publication should be submitted:

TO: USCINCSOC MACDILL AFB FL//SOJ5-O//FROM: JOINT STAFF WASHINGTON DC//J3-SOD/J7-JDD//

Routine changes should be submitted to the Director for Operational Plans andInteroperability (J-7), JDD, 7000 Joint Staff Pentagon, Washington, D.C. 20318-7000.

b. When a Joint Staff directorate submits a proposal to the Chairman of the Joint Chiefsof Staff that would change source document information reflected in this publication, thatdirectorate will include a proposed change to this publication as an enclosure to its proposal.The Military Services and other organizations are requested to notify the Director, J-7,Joint Staff, when changes to source documents reflected in this publication are initiated.

c. Record of Changes:

CHANGE COPY DATE OF DATE POSTEDNUMBER NUMBER CHANGE ENTERED BY REMARKS_________________________________________________________________

_________________________________________________________________

_________________________________________________________________

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Appendix G

Joint Pub 3-57

4. Distribution

a. Additional copies of this publication can be obtained through Service publication centers.

b. Only approved pubs and test pubs are releasable outside the combatant commands,Services, and Joint Staff. Release of any joint publication to foreign governments orforeign nationals must be requested through the local embassy (Defense Attache Office)to DIA Foreign Liaison Branch, C-AS1, Room 1A674, Pentagon, Washington, D.C.20301-7400.

c. Additional copies should be obtained from the Military Service assigned administrativesupport responsibility by DOD Directive 5100.3, 1 November 1988, “Support of theHeadquarters of Unified, Specified, and Subordinate Joint Commands.”

By Military Services:

Army: US Army AG Publication Center2800 Eastern BoulevardBaltimore, MD 21220-2898

Air Force: Air Force Publications Distribution Center2800 Eastern BoulevardBaltimore, MD 21220-2896

Navy: CO, Navy Aviation Supply OfficeDistribution Division (Code 03443)5801 Tabor AvenuePhiladelphia, PA 19120-5000

Marine Corps: Marine Corps Logistics BaseAlbany, GA 31704-5000

Coast Guard: Coast Guard Headquarters, COMDT (G-REP)2100 2nd Street, SWWashington, D.C. 20593-0001

d. Local reproduction is authorized and access to unclassified publications is unrestricted.However, access to and reproduction authorization for classified joint publications mustbe in accordance with DOD Regulation 5200.1-R.

GLOSSARYPART I-ABBREVIATIONS AND ACRONYMS

GL-1

AC Active component

C2 command and controlC4 command, control, communications, and computersCA civil affairsCAG civil affairs groupCD counterdrugCI civilian internee; counterintelligenceCINC commander of a combatant commandCJCS Chairman of the Joint Chiefs of StaffCMO civil-military operationsCMOC civil-military operations centerCOCOM combatant command (command authority)COIN counterinsurgencyCONPLAN operation plan in concept formatCONUS continental United States

DEA Drug Enforcement AdministrationDOD Department of DefenseDOJ Department of JusticeDOS Department of StateDOT Department of Transportation

EEI essential elements of informationEO executive orderEPW enemy prisoner of war

FEMA Federal Emergency Management AgencyFID foreign internal defense

GC Geneva Convention Relative to the Protection of CivilianPersons in Times of War

GWS Geneva Convention for the Amelioration of the Conditionof the Wounded and Sick in the Armed Forces in the Field

HA humanitarian assistanceHCA humanitarian and civic assistanceHN host nationHNS host-nation support

IO international organizations

JCMOTF Joint Civil-Military Operations Task ForceJFC joint force commander

GL-2

Glossary

Joint Pub 3-57

JFSOCC joint force special operations command commanderJOPES Joint Operation Planning and Execution SystemJSCP Joint Strategic Capabilities Plan

MAGTF Marine air-ground task forceMCA military civic action

NCA National Command AuthoritiesNEO noncombatant evacuation operationNGO nongovernmental organizationsNSC national security council

OFDA Office of Foreign Disaster AssistanceOPCON operational controlOPLAN operation planOSD Office of the Secretary of Defense

PSRC Presidential Selective Reserve CallupPSYOP psychological operationsPVO private voluntary organizations

RC Reserve componentROE rules of engagement

SO special operationsSOF special operations forces

TACON tactical control

UNAAF Unified Action Armed ForcesUSAF United States Air ForceUSAID United States Agency for International DevelopmentUSC United States CodeUSCG United States Coast GuardUSCINCSOC Commander in Chief, United States Special

Operations CommandUSDA United States Department of AgricultureUSG United States GovernmentUSIA United States Information AgencyUSIS United States Information ServiceUSMC United States Marine CorpsUSSOCOM United States Special Operations CommandUW unconventional warfare

GL-3

Glossary

administrative control. Direction orexercise of authority over subordinate orother organizations in respect toadministration and support, includingorganization of Service forces, control ofresources and equipment, personnelmanagement, unit logistics, individual andunit training, readiness, mobilization,demobilization, discipline, and othermatters not included in the operationalmissions of the subordinate or otherorganizations. Also called ADCON. (JointPub 1-02)

antiterrorism. Defensive measures used toreduce the vulnerability of individuals andproperty to terrorist acts, to include limitedresponse and containment by local militaryforces. Also called AT. (Joint Pub 1-02)

civil administration. An administrationestablished by a foreign government in (1)friendly territory, under an agreement withthe government of the area concerned, toexercise certain authority normally thefunction of the local government, or (2)hostile territory, occupied by US forces,where a foreign government exercisesexecutive, legislative, and judicial authorityuntil an indigenous civil government canbe established. Also called CAadministration. (Upon approval of thispublication, this term and its definition willbe included in Joint Pub 1-02)

civil affairs. The activities of a commanderthat establish, maintain, influence, or exploitrelations between military forces and civilauthorities, both governmental andnongovernmental, and the civilian populacein a friendly, neutral, or hostile area ofoperations in order to facilitate militaryoperations and consolidate operationalobjectives. Civil affairs may includeperformance by military forces of activities

and functions normally the responsibilityof local government. These activities mayoccur prior to, during, or subsequent to othermilitary actions. They may also occur, ifdirected, in the absence of other militaryoperations. (Joint Pub 1-02)

civil affairs activities. Activities performedby commanders, staffs, Department ofDefense elements and units, and foreignmilitary forces that (1) embrace therelationship between military forces andcivil authorities and population in areaswhere military forces are present; and (2)involve application of civil affairsfunctional specialty skills, in areas normallythe responsibility of civilian government,which enhance conduct of civil-militaryoperations. (Upon approval of thispublication, this term and its definition willbe included in Joint Pub 1-02)

civil affairs agreement. An agreementwhich governs the relationship betweenallied armed forces located in a friendlycountry and the civil authorities and peopleof that country. (Joint Pub 1-02)

civil defense. All those activities andmeasures designed or undertaken to: a.minimize the effects upon the civilianpopulation caused or which would becaused by an enemy attack on the UnitedStates; b. deal with the immediateemergency conditions which would becreated by any such attack; and c. effectuateemergency repairs to, or the emergencyrestoration of, vital utilities and facilitiesdestroyed or damaged by any such attack.(Joint Pub 1-02)

civil-military operations. Group of plannedactivities in support of military operationsthat enhance the relationship betweenmilitary forces and civilian authorities and

PART II—TERMS AND DEFINITIONS

GL-4

Glossary

Joint Pub 3-57

population and which promote thedevelopment of favorable emotions,attitudes, or behavior in neutral, friendly,or hostile groups. (Upon approval of thispublication, this term and its definition willbe included in Joint Pub 1-02)

civil requir ements. The computedproduction and distribution of all types ofservices, supplies, and equipment duringperiods of armed conflict or occupation toensure the productive efficiency of thecivilian economy and to provide civiliansthe treatment and protection to which theyare entitled under customary andconventional international law. (Joint Pub1-02)

collateral mission. A mission other thanthose for which a force is primarilyorganized, trained, and equipped, that theforce can accomplish by virtue of theinherent capabilities of that force. (JointPub 1-02)

combatant command. A unified or specifiedcommand with a broad continuing missionunder a single commander established andso designated by the President, through theSecretary of Defense and with the adviceand assistance of the Chairman of the JointChiefs of Staff. Combatant commandstypically have geographic or functionalresponsibilities. (Joint Pub 1-02)

combatant command (command authority).Nontransferable command authorityestablished by title 10 ("Armed Forces"),United States Code, section 164, exercisedonly by commanders of unified or specifiedcombatant commands unless otherwisedirected by the President or the Secretaryof Defense. Combatant command(command authority) cannot be delegatedand is the authority of a combatantcommander to perform those functions ofcommand over assigned forces involvingorganizing and employing commands and

forces, assigning tasks, designatingobjectives, and giving authoritativedirection over all aspects of militaryoperations, joint training, and logisticsnecessary to accomplish the missionsassigned to the command. Combatantcommand (command authority) should beexercised through the commanders ofsubordinate organizations. Normally thisauthority is exercised through thesubordinate joint force commanders andService and/or functional componentcommanders. Combatant command(command authority) provides fullauthority to organize and employcommands and forces as the combatantcommander considers necessary toaccomplish assigned missions. Operationalcontrol is inherent in combatant command(command authority). Also calledCOCOM. (Joint Pub 1-02)

combatant commander. A commander inchief of one of the unified or specifiedcombatant commands established by thePresident. (Joint Pub 1-02)

combat service support. The essentialcapabilities, functions, activities, and tasksnecessary to sustain all elements ofoperating forces in theater at all levels ofwar. Within the national and theater logisticsystems, it includes but is not limited to thatsupport rendered by service forces inensuring the aspects of supply,maintenance, transportation, healthservices, and other services required byaviation and ground combat troops topermit those units to accomplish theirmissions in combat. Combat servicesupport encompasses those activities at alllevels of war that produce sustainment toall operating forces on the battlefield. (JointPub 1-02)

combatting terrorism. Actions, includingantiterrorism (defensive measures taken toreduce vulnerability to terrorist acts) and

GL-5

Glossary

counterterrorism (offensive measures takento prevent, deter, and respond to terrorism),taken to oppose terrorism throughout theentire threat spectrum. (Joint Pub 1-02)

counterintelligence. Information gatheredand activities conducted to protect againstespionage, other intelligence activities,sabotage, or assassinations conducted by oron behalf of foreign governments orelements thereof, foreign organizations, orforeign persons, or international terroristactivities. Also called CI. (Joint Pub 1-02)

counterterrorism. Offensive measures takento prevent, deter, and respond to terrorism.Also called CT. (Joint Pub 1-02)

Country Team. The senior, in-country,United States coordinating and supervisingbody, headed by the Chief of the UnitedStates diplomatic mission, and composedof the senior member of each representedUnited States department or agency, asdesired by the Chief of the US diplomaticmission. (Joint Pub 1-02)

dislocated civilian. A generic term thatincludes a displaced person, an evacuee, anexpellee, or a refugee. (Upon approval ofthis publication, this term and its definitionwill be included in Joint Pub 1-02)

displaced person. A civilian who isinvoluntarily outside the nationalboundaries of his or her country. (Joint Pub1-02)

domestic emergencies. Emergenciesaffecting the public welfare and occurringwithin the 50 states, District of Columbia,Commonwealth of Puerto Rico, USpossessions and territories, or any politicalsubdivision thereof, as a result of enemyattack, insurrection, civil disturbance,earthquake, fire, flood, or other publicdisasters or equivalent emergencies thatendanger life and property or disrupt the

usual process of government. The termdomestic emergency includes any or all ofthe emergency conditions defined below:a. civil defense emergency—A domesticemergency disaster situation resulting fromdevastation created by an enemy attack andrequiring emergency operations during andfollowing that attack. It may be proclaimedby appropriate authority in anticipation ofan attack. b. civil disturbances—Riots, actsof violence, insurrections, unlawfulobstructions or assemblages, or otherdisorders prejudicial to public law andorder. The term civil disturbance includesall domestic conditions requiring or likelyto require the use of Federal Armed Forcespursuant to the provisions of Chapter 15 oftitle 10, United States Code. c. majordisaster—Any flood, fire, hurricane,tornado, earthquake or other catastrophewhich, in the determination of the President,is or threatens to be of sufficient severityand magnitude to warrant disasterassistance by the Federal Governmentunder Public Law 606, 91st Congress (42United States Code 58) to supplement theefforts and available resources of State andlocal governments in alleviating thedamage, hardship, or suffering causedthereby. d. natural disaster—All domesticemergencies except those created as a resultof enemy attack or civil disturbance. (JointPub 1-02)

domestic support operations. Thoseactivities and measures taken by theDepartment of Defense Components tofoster mutual assistance and supportbetween the Department of Defense and anycivil government agency in planning orpreparedness for, or in the application ofresources for response to, the consequencesof civil emergencies or attacks, includingnational security emergencies. (Uponapproval of this publication, this term andits definition will be included in Joint Pub1-02)

Glossary

GL-6

Glossary

Joint Pub 3-57

evacuee. A civilian removed from a place ofresidence by military direction for reasonsof personal security or the requirements ofthe military situation. (Joint Pub 1-02)

executive agent. A term used in Departmentof Defense and Service regulations toindicate a delegation of authority by asuperior to a subordinate to act on behalfof the superior. An agreement betweenequals does not create an executive agent.For example, a Service cannot become aDepartment of Defense Executive Agent fora particular matter with simply theagreement of the other Services; suchauthority must be delegated by theSecretary of Defense. Designation asexecutive agent, in and of itself, confers noauthority. The exact nature and scope ofthe authority delegated must be stated inthe document designating the executiveagent. An executive agent may be limitedto providing only administration andsupport or coordinating common functions,or it may be delegated authority, direction,and control over specified resources forspecified purposes. (Joint Pub 1-02)

expellee. A civilian outside the boundariesof the country of his or her nationality orethnic origin who is being forciblyrepatriated to that country or to a thirdcountry for political or other purposes.(Joint Pub 1-02)

foreign internal defense. Participation bycivilian and military agencies of agovernment in any of the action programstaken by another government to free andprotect its society from subversion,lawlessness, and insurgency. Also calledFID. (Joint Pub 1-02)

host nation. A nation which receives theforces and/or supplies of allied nations and/or NATO organizations to be located on, tooperate in, or to transit through its territory.(Joint Pub 1-02)

host-nation support. Civil and/or militaryassistance rendered by a nation to foreignforces within its territory during peacetime,crisis or emergencies, or war based onagreements mutually concluded betweennations. (Joint Pub 1-02)

humanitarian and civic assistance.Assistance to the local populace providedby predominantly US forces in conjunctionwith military operations and exercises. Thisassistance is specifically authorized by title10, United States Code, section 401 andfunded under separate authorities.Assistance provided under these provisionsis limited to (1) medical, dental, andveterinary care provided in rural areas of acountry; (2) construction of rudimentarysurface transportation systems; (3) welldrilling and construction of basic sanitationfacilities; and (4) rudimentary constructionand repair of public facilities. Assistancemust fulfill unit training requirements thatincidentally create humanitarian benefit tothe local populace. (Joint Pub 1-02)

humanitarian assistance. Programsconducted to relieve or reduce the resultsof natural or manmade disasters or otherendemic conditions such as human pain,disease, hunger, or privation that mightpresent a serious threat to life or that canresult in great damage to or loss of property.Humanitarian assistance provided by USforces is limited in scope and duration. Theassistance provided is designed tosupplement or complement the efforts ofthe host nation civil authorities or agenciesthat may have the primary responsibilityfor providing humanitarian assistance.(Joint Pub 1-02)

internal defense and development. The fullrange of measures taken by a nation topromote its growth and to protect itself fromsubversion, lawlessness, and insurgency. Itfocuses on building viable institutions(political, economic, social, and military)

GL-7

Glossary

that respond to the needs of society. Alsocalled IDAD. (Joint Pub 1-02)

joint regional defense command. A jointtask force headquarters formed on order ofthe Commander in Chief, United StatesAtlantic Command within designatedcontinental United States multistate regionsto command and control execution of landdefense of the continental United States andmilitary assistance to civil authoritymissions. (Upon approval of thispublication, this term and its definition willbe included in Joint Pub 1-02)

joint state area command. A joint task forceheadquarters formed on order ofCommander in Chief, United StatesAtlantic Command within existing stateboundaries to command and control UnitedStates and federalized state elementsdesignated to execute land defense of thecontinental United States, military supportto civil defense, and military assistance tocivil authority missions. (Upon approvalof this publication, this term and itsdefinition will be included in Joint Pub1-02)

joint task for ce. A joint force that isconstituted and so designated by theSecretary of Defense, a combatantcommander, a subunified commander, oran existing joint task force commander.Also called JTF. (Joint Pub 1-02)

military civic action. The use ofpreponderantly indigenous military forceson projects useful to the local population atall levels in such fields as education,training, public works, agriculture,transportation, communications, health,sanitation, and others contributing toeconomic and social development, whichwould also serve to improve the standingof the military forces with the population.(US forces may at times advise or engage

in military civic actions in overseas areas.)(Joint Pub 1-02)

military necessity. The principle whereby abelligerent has the right to apply anymeasures which are required to bring aboutthe successful conclusion of a militaryoperation and which are not forbidden bythe laws of war. (Joint Pub 1-02)

military occupation. A condition in whichterritory is under the effective control of aforeign armed force. (Joint Pub 1-02)

National Command Authorities. ThePresident and the Secretary of Defense ortheir duly deputized alternates orsuccessors. Also called NCA. (Joint Pub1-02)

nation assistance. Civil and/or militaryassistance rendered to a nation by foreignforces within that nation’s territory duringpeacetime, crises or emergencies, or warbased on agreements mutually concludedbetween nations. Nation assistanceprograms include, but are not limited to,security assistance, foreign internal defense,other US Code title 10 (DOD) programs,and activities performed on a reimbursablebasis by Federal agencies or internationalorganizations. (Upon approval of thispublication, this term and its definition willmodify the existing term and its definitionand will be included in Joint Pub 1-02)

occupied territory. Territory under theauthority and effective control of abelligerent armed force. The term is notapplicable to territory being administeredpursuant to peace terms, treaty, or otheragreement, express or implied, with the civilauthority of the territory. (Joint Pub 1-02)

operational control. Transferable commandauthority that may be exercised bycommanders at any echelon at or below thelevel of combatant command. Operational

GL-8

Glossary

Joint Pub 3-57

control is inherent in combatant command(command authority). Operational controlmay be delegated and is the authority toperform those functions of command oversubordinate forces involving organizing andemploying commands and forces, assigningtasks, designating objectives, and givingauthoritative direction necessary toaccomplish the mission. Operationalcontrol includes authoritative direction overall aspects of military operations and jointtraining necessary to accomplish missionsassigned to the command. Operationalcontrol should be exercised through thecommanders of subordinate organizations.Normally this authority is exercised throughsubordinate joint force commanders andService and/or functional componentcommanders. Operational control normallyprovides full authority to organizecommands and forces and to employ thoseforces as the commander in operationalc o n t r o l c o n s i d e r s n e c e s s a r yto accomplish assigned missions.Operational control does not, in and ofitself, include authoritative direction forlogistics or matters of administration,discipline, internal organization, or unittraining. Also called OPCON. (Joint Pub1-02)

peacekeeping. Military or paramilitaryoperations that are undertaken with theconsent of all major belligerents, designedto monitor and facilitate implementation ofan existing truce and support diplomaticefforts to reach a long-term politicalsettlement. (Joint Pub 1-02)

peace operations. The umbrella termencompassing peacekeeping, peaceenforcement, and any other military,paramilitary or nonmilitary action taken insupport of a diplomatic peacemakingprocess. (Joint Pub 1-02)

preventive diplomacy. Diplomatic actions,taken in advance of a predictable crisis,

aimed at resolving disputes before violencebreaks out. (Joint Pub 1-02)

psychological operations. Plannedoperations to convey selected informationand indicators to foreign audiences toinfluence their emotions, motives, objectivereasoning, and ultimately the behavior offoreign governments, organizations,groups, and individuals. The purpose ofpsychological operations is to induce orreinforce foreign attitudes and behaviorfavorable to the originator’s objectives.Also called PSYOP. (Joint Pub 1-02)

refugee. A civilian who, by reason of real orimagined danger, has left home to seeksafety elsewhere. (Joint Pub 1-02)

security assistance. Group of programsauthorized by the Foreign Assistance Actof 1961, as amended, and the Arms ExportControl Act of 1976, as amended, or otherrelated statutes by which the United Statesprovides defense articles, military training,and other defense-related services by grant,loan, credit, or cash sales in furtherance ofnational policies and objectives. (Joint Pub1-02)

security assistance organization. AllDepartment of Defense elements located ina foreign country with assignedresponsibilities for carrying out securityassistance management functions. Itincludes military assistance advisorygroups, military missions and groups,offices of defense and military cooperation,liaison groups, and defense attachepersonnel designated to perform securityassistance functions. (Joint Pub 1-02)

special operations. Operations conducted byspecially organized, trained, and equippedmilitary and paramilitary forces to achievemilitary, political, economic, or psychologicalobjectives by unconventional military

GL-9

Glossary

means in hostile, denied, or politicallysensitive areas. These operations areconducted during peacetime competition,conflict, and war, independently or incoo rd ina t i on w i th ope ra t i ons ofconventional, nonspecial operations forces.Political-military considerations frequentlyshape special operations, requiringclandestine, covert, or low visibilitytechniques and oversight at the national level.Special operations differ from conventionaloperations in degree of physical and politicalrisk, operational techniques, mode ofemployment, independence from friendlysupport, and dependence on detailedoperational intelligence and indigenousassets. Also called SO. (Joint Pub 1-02)

special operations command. A subordinateunified or other joint command establishedby a joint force commander to plan,coordinate, conduct, and support joint specialoperations within the joint forcecommander’s assigned area of operations.Also called SOC. (Joint Pub 1-02)

status-of-forces agreement. An agreementwhich defines the legal position of a visitingmilitary force deployed in the territory of afriendly state. Agreements delineating thestatus of visiting military forces may bebilateral or multilateral. Provisions pertainingto the status of visiting forces may be set forthin a separate agreement, or they may form apart of a more comprehensive agreement.

These provisions describe how theauthorities of a visiting force may controlmembers of that force and the amenabilityof the force or its members to the local lawor to the authority of local officials. To theextent that agreements delineate mattersaffecting the relations between a militaryforce and civilian authorities andpopulation, they may be considered as civilaffairs agreements. Also called SOFA.(Joint Pub 1-02)

terrorism. The calculated use of violence orthreat of violence to inculcate fear; intendedto coerce or to intimidate governments orsocieties in the pursuit of goals that aregenerally political, religious, or ideological.(Joint Pub 1-02)

unconventional warfare. A broad spectrumof military and paramilitary operations,normally of long duration, predominantlyconducted by indigenous or surrogateforces who are organized, trained,equipped, supported, and directed invarying degrees by an external source. Itincludes guerrilla warfare and other directoffensive, low visibility, covert, orclandestine operations, as well as theindirect activities of subversion, sabotage,intelligence activities, and evasion andescape. Also called UW. (Joint Pub 1-02)

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Intentionally Blank

Assess-ments/

Revision

CJCSApproval

TwoDrafts

ProgramDirective

ProjectProposal

J-7 formally staffs withServices and CINCS

Includes scope of project,references, milestones,and who will developdrafts

J-7 releases ProgramDirective to Lead Agent.Lead Agent can beService, CINC, or JointStaff (JS) Directorate

STEP #2Program Directive

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The CINCS receive the pub andbegin to assess it during use

18 to 24 months followingpublication, the Director J-7, willsolicit a written report from thecombatant commands andServices on the utility and qualityof each pub and the need for anyurgent changes or earlier-than-scheduled revisions

No later than 5 years afterdevelopment, each pub is revised

STEP #5Assessments/Revision

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Submitted by Services, CINCS, or Joint Staffto fill extant operational void

J-7 validates requirement with Services andCINCs

J-7 initiates Program Directive

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STEP #1Project Proposal

All joint doctrine and tactics, techniques, and procedures are organized into a comprehensive hierarchyas shown in the chart above. is in the series of joint doctrine publications.The diagram below illustrates an overview of the development process:

Joint Pub 3-57 Operations

JOINT DOCTRINE PUBLICATIONS HIERARCHY

JOINT PUB 1-0

PERSONNELand

ADMINISTRATION

JOINT PUB 4-0 JOINT PUB 5-0 JOINT PUB 6-0

LOGISTICS C4 SYSTEMSPLANS

JOINT PUB 0-2

JOINT PUB 1

UNAAF

JOINTWARFARE

JOINTDOCTRINE

PUBLICATION

Lead Agent forwards proposed pub to Joint Staff

Joint Staff takes responsibility for pub, makesrequired changes and prepares pub forcoordination with Services and CINCS

Joint Staff conducts formalstaffing for approval as a Joint Publication

STEP #4CJCS Approval

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Lead Agent selects Primary Review Authority(PRA) to develop the pub

PRA develops two draft pubs

PRA staffs each draft with CINCS, Services,and Joint Staff

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STEP #3Two Drafts

ENHANCEDJOINT

WARFIGHTINGCAPABILITY

INTELLIGENCE

JOINT PUB 2-0

OPERATIONS

JOINT PUB 3-0

Documents

JP 3-57 Doctrine for Joint Civil Affairs - BITS95).pdf · PREFACE i 1. Scope This doctrine addresses the use of military civil affairs assets in planning and conducting joint CA activities