Noncombatant Evacuation Operations (NEO) This brief is
classified: UNCLASSIFIED Major S.C. Bair, USMC TEMPEST EXPRESS-25
12 June 2014
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UNCLASSIFIED To provide an overview of the United States
government concept of NEO from the planning perspective. What a
member of a planning staff needs to know about NEO. 2 Purpose
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UNCLASSIFIED References DOD Directive 3025.14, Noncombatant
Evacuation Operations (5 Nov 1990) CNA report on Operation: Eastern
Exit (Oct 1991) JP 3-68, Noncombatant Evacuation Operations (23 Dec
2010) Multinational Force SOP v2.9 (Oct 2013) GAO report on July
2006 Evacuation of US Citizens from Lebanon (7 Jun 2007) CJCSI
3500.05A, Joint Force Headquarters Master Training Guide (1 Sep
2003) 3
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UNCLASSIFIED 1)Overview of US Government NEO 2) NEO Tools and
Terms 3)NEO doctrine Joint: - JP 3-68, Noncombatant Evacuation
Operations (23 December 2010) Multinational: - MNF SOP v2.9
(October 2013) 4) Examples of real-world NEO 4 Outline
UNCLASSIFIED The term NEO means noncombatant evacuation but
refers to Military Assisted Evacuation Operations. Most of the time
the State Department of a nation executes evacuation operations
without any military assistance but when called upon, it is almost
always within a crisis response time sensitive situation. The order
to evacuate is always a political decision with extensive
ramifications. NEO Overview - Definition (MNF SOP) 6
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UNCLASSIFIED Since 1988 263 Drawdowns 23 Military assisted 18
Post closures US NEO Overview - History
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UNCLASSIFIED During NEOs the US ambassador, not the combatant
commander (CCDR) or subordinate joint force commander (JFC), is the
senior United States Government (USG) authority for the evacuation
and, as such, is ultimately responsible for the successful
completion of the NEO and the safety of the evacuees. The decision
to evacuate a US embassy and the order to execute a NEO is
political. The combatant commander may decide to create a Joint
Task Force to conduct a NEO or may task a Component Commander to
conduct the NEO. US NEO Overview - Authority (JP 3-68) 8
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UNCLASSIFIED Multinational Forces (MNFs) Ambassador, CCDR, and
JFC may consider the possibility of operating with MNFs. Approval
for US participation in a multinational NEO will come only from
POTUS. Many situations that would cause the United States to
initiate a NEO would likely cause other countries to react
similarly. It may be politically or militarily expedient to employ
a MNF. The difficulties of obtaining unity of effort within a MNF
may cause serious difficulties in a time-sensitive NEO.
Coordination may better be accomplished through LNOs. US NEO
Overview Multinational NEO (JP 3-68) 9
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UNCLASSIFIED NEO Tools F-77 Data Warden System Emergency Action
Plan (EAP) NEO Terms AA - Assembly Area FCE - Forward Command
Element ECC - Evacuation Control Center ISB - Intermediate Staging
Base Safe Haven 10 US NEO Tools & Terms
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UNCLASSIFIED Each US embassy or consulate is required to submit
to the Dept of State an annual report, on 15 December, of the
estimated number of potential evacuees in its assigned area. A copy
of the most recent report must be filed with the embassy Emergency
Action Plan (EAP). F-77 reports are available on the secure US
network. The accuracy of the report depends on the general level of
interest in the potential for an evacuation. The fear that an
evacuation may be required is often the most powerful motivator to
get an accurate evacuee estimate. These counts are only yearly
estimates. The accuracy of the estimate will vary with the speed
and severity of the crisis. If the whole population of a country
suddenly perceives a deadly threat, evacuee numbers and panic will
be abnormally high. US NEO Tools F-77 Data (JP 3-68) 11
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UNCLASSIFIED US NEO Tools Smart Traveler Enrollment Program
(STEP)
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UNCLASSIFIED 13 US NEO Tools - Examples of F-77 Data SIPRNET
http://ses.state.sgov.gov/f77/http://ses.state.sgov.gov/f77/
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UNCLASSIFIED The US ambassador can order the evacuation of USG
personnel and dependents other than uniformed personnel of the
Armed Forces of the United States and designated
emergency-essential DOD civilians who are not under the authority
of the US ambassador. While the US ambassador cannot order the
departure of private US citizens, the ambassador can offer them US
Govt evacuation assistance. US NEO Terms Chief of Mission Authority
(JP 3-68) 14
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UNCLASSIFIED Communications with potential evacuees may be via
a warden system. Notification system used to communicate to the US
population through wardens using telephones, faxes, emails, and
direct personal contact. The wardens prepare, update, and maintain
a list of phone numbers and addresses of US citizens residing in
their assigned areas. It is US Government policy that there shall
be no double standard to important security threat information,
including criminal information: Generally, if the Department shares
information with the official U.S. community, it should also make
the same or similar information available to the non-official U.S.
community if the underlying threat applies to both official and
non-official U.S. citizens/nationals. *Source: U.S. Department of
State Foreign Affairs Manual (FAM) Volume 7 Consular Affairs
http://www.state.gov/documents/organization/86560.pdfhttp://www.state.gov/documents/organization/86560.pdf
15 US NEO Tools - Warden System (JP 3-68)
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UNCLASSIFIED 16 NEO Tools - Warden System Emergency Messages
Security Message for U.S. Citizens: Security Situation in Thailand
- May 23, 2014 Emergency Message for U.S. Citizens: Curfew from 10
PM to 5 AM - May 22, 2014 Security Message for U.S. Citizens - May
20, 2014 Emergency Message for US Citizens: Earthquake Damage in
Northern Thailand - May 5, 2014 Security Message for U.S. Citizens:
Security in the Deep South of Thailand - April 11, 2014 Security
Message for U.S. Citizens: Continuing Protest Activity - February
14, 2014 Security Message for U.S. Citizens: Ongoing Tensions and
Possible Incidents of Unrest in Thailand - January 30, 2014
Security Message for U.S. Citizens: Thai Government Invokes
Emergency Decree - January 21, 2014 Emergency Messages Security
Message for U.S. Citizens: Security Situation in Thailand - May 23,
2014 Emergency Message for U.S. Citizens: Curfew from 10 PM to 5 AM
- May 22, 2014 Security Message for U.S. Citizens - May 20, 2014
Emergency Message for US Citizens: Earthquake Damage in Northern
Thailand - May 5, 2014 Security Message for U.S. Citizens: Security
in the Deep South of Thailand - April 11, 2014 Security Message for
U.S. Citizens: Continuing Protest Activity - February 14, 2014
Security Message for U.S. Citizens: Ongoing Tensions and Possible
Incidents of Unrest in Thailand - January 30, 2014 Security Message
for U.S. Citizens: Thai Government Invokes Emergency Decree -
January 21, 2014
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UNCLASSIFIED US embassies and consulates are required to have
Emergency Action Plans (EAP) for the area under their cognizance.
The US ambassador is responsible for the preparation and
maintenance of EAPs, one section of which addresses the military
evacuation of US citizens and designated foreign nationals. EAPs
are not tactical operation plans in the sense that military
planners think of, but they are the reference materials that
support the formulation of an operation plan. A copy of the current
EAP should be on file at the appropriate CCDRs headquarters. US NEO
Tools EAP (JP 3-68) 17
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UNCLASSIFIED Possible courses of action for different threat
environments Location of evacuation sites (landing zones, ports,
beaches) Anticipated number of evacuees (total number by area)
categorized by medical status: Persons not requiring medical
assistance Persons requiring medical assistance prior to evacuation
Persons requiring medical assistance prior to and during evacuation
Persons requiring emergency medical evacuation Location of assembly
areas and major supply routes Location of command posts Key
personnel (name, location, and desired means of contacting them)
Description of the embassy communications system, transportation
fleet, and warden system Quantity of class I (subsistence) supplies
on hand at the embassy Quantity of class III (fuel) Availability of
class VIII (medical supplies) Standard map products of the local
area, with annotations identifying critical landmarks US NEO Tools
EAP Contents (JP 3-68) 18
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UNCLASSIFIED US NEO Tools - EAP Example 19
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UNCLASSIFIED Washington Liaison Group (WLG) Responsible for
coordination and implementation at the national level of emergency
and evacuation plans by DOS, DOD and other USG agencies. Regional
Liaison Groups (RLGs) Collocated with combatant commands to ensure
coordination of emergency and evacuation planning by their
departments in the field. Ensure coordination exists between the
various posts, and between the posts and appropriate military
commands. Emergency Action Committee (EAC) Established at a foreign
service post by the ambassador to direct and coordinate the posts
response to contingencies. The EAC is the focal point for DOS and
DOD evacuation site interface. US NEO Tools DOS/DOD Coordinating
Bodies (JP 3-68) 20
UNCLASSIFIED United States Defense Representative (USDR)
Normally the senior military official assigned to permanent duty
with the mission (usually Defense Attach or SAO). In-country focal
point for planning, coordinating, and executing support to USG
officials for in-country US defense issues and activities that are
not under the purview of the parent DOD components. Security
Assistance Officer (SAO) Maintains liaison with the HN military
forces and is authorized by law to perform certain military
functions with the HN military. Not all embassies have an SAO.
United States Marine Corps Security Guard Detachment Minimum of six
Marines - Commander is normally an EAC member. Part of the embassy
security force and normally will not come under JFC control. US NEO
Tools Key Embassy Personnel (JP 3-68) 22
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UNCLASSIFIED 6. PROCEDURES 6.1. Evacuation of DoD noncombatants
shall generally correspond to protection and evacuation plans
established by the DoS as follows: 6.1.1. Travel Advisory Issued.
When political or military actions within a country create a
potentially dangerous situation for noncombatants, the DoS may
issue a travel advisory to that location. 6.1.2. Standfast. All
noncombatants are required to remain in place and take appropriate
precautions to limit exposure since immediate movement will involve
unacceptable risks. 6.1.3. Authorized Departure. Departure of
noncombatants to an announced safe haven is encouraged and
authorized at Government expense, with return also at Government
expense. 6.1.4. Stop Movement. If the DoS announces an authorized
departure, the Department of Defense issues a stop forward movement
of military dependents, nonessential DoD civilians and their
families, families of essential DoD civilians, and DoDDS staff
and/or faculty. 6.1.5. Ordered Departure. Departure directed by the
DoS to designated safe havens with implementation of the theater
CINC NEO plan. US NEO Terms - Levels (DOD Directive 3025.14)
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UNCLASSIFIED US NEO Terms Definitions of Operational Terms
Forward Command Element (FCE) Coordinates with the ambassador and
members of the country team for information and assistance. Submits
situation reports to the JFC. Evacuation Control Center (ECC)
Conducts processing, screening, and selected logistic functions
associated with emergency evacuation of noncombatants. Size and
composition determined by the number of evacuees, evacuation
environment, and location of the evacuation area. Intermediate
Staging Base (ISB) A temporary location used to stage forces prior
to inserting the forces into the Host Nation. Safe Haven A location
to which evacuees may be moved quickly and easily. Ideally, the
safe haven will be in the United States. An intermediate safe haven
may be a US Navy ship.
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UNCLASSIFIED Identify AA Insert FCE Coordinate with EAC Verify
EAP Insert SEC Coordinate with SAO Insert the ECC Muster evacuees
at AA Process evacuees through ECC Move evacuees to ISB
Disestablish ECC, withdraw SEC Proceed to safe haven Mission
Accomplished US Embassy Ambassador s Residence America n School AA
ECC SEC FCE US NEO Terms Definitions of Operational Terms
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UNCLASSIFIED Types of NEO Strategic Planning Considerations JP
3-68 MNF SOP Operational Planning Considerations JP 3-68 MNF SOP
Command & Control (C2) 26 US NEO Doctrine
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UNCLASSIFIED Permissive Environment: No resistance to
evacuation operations is expected. Little or no assembly of combat
forces in country. The JTFs primary concerns may be: Logistics
Emergency medical treatment Transportation Coordination with DOS
and other agencies involved in the evacuation Uncertain
Environment: Host government forces, whether opposed or receptive
to the NEO, do not have total effective control. Planning must
always include the possibility for escalation to a hostile
environment. Hostile Environment: Civil disorder, terrorist action,
full-scale combat. JTF may be required to: Conduct a forcible entry
operation Establish defensive perimeters Escort convoys Personnel
recovery (PR) Types of US NEO (JP 3-68) 27
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UNCLASSIFIED Many service components are capable of conducting
a NEO in a permissive environment. NEO in an uncertain or hostile
environment may require formation and deployment of a JTF. An
US-exception to this is the forward-deployed amphibious
expeditionary strike group (ESG)/Marine expeditionary unit (special
operations capable) (MEU[SOC]). The ESG/MEU(SOC)s organic combat,
combat support, and combat service support forces are trained and
certified to conduct NEO. Military Response to NEO (JP 3-68)
28
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UNCLASSIFIED NEO can further destabilize a crisis situation.
The simple announcement that an evacuation operation is being
considered, planned, or is being ordered can escalate an already
deteriorating situation. NEO planning and coordination can actually
increase the threat to a nation's citizens if handled improperly.
Strategic Planning Considerations (MNF SOP) 29
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UNCLASSIFIED CJCS or CCDR warning order will normally provide
the JFC with a concise statement of the US national interests
including: The safety and welfare of US citizens. The continued
stability of the local government. The maintenance of a firm
posture against terrorism. A demonstration of support for
international commitments. The probable environment in which the
NEO will be conducted. The ambassador should summarize the
political objectives and constraints relevant to the JTFs
assistance, the nuances involved, and any constraints on the use of
force that might be appropriate. While these may be obvious to
those intimately involved with the situation, the JFC will be
better prepared to comply effectively with a request for help if
the reasons have been clearly explained. 30 Strategic Planning
Considerations (JP 3-68)
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UNCLASSIFIED Three Key Operational Decisions 1) What is the
Threat Environment and Evacuation Situation? NEO threat environment
in host nation (Permissive, Uncertain, Hostile) Potential for
escalation Location, numbers and demographics of personnel
requiring evacuation 2) What is the Conceptual Framework for the
Mission? MNF SOP contains detailed information on NEO operational
phasing 3) How does the NEO TF commander ensure OPLAN and OPORDs
are integrated with the existing plans by Foreign Affairs / State
Department agencies? MNF SOP contains detailed information on
B2C2WG structure for MNF NEO Operational Planning Considerations
(MNF SOP) 31
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UNCLASSIFIED NEO Phasing (1 & 2) (MNF SOP) 32
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UNCLASSIFIED NEO Phasing (3 & 4) (MNF SOP) 33
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UNCLASSIFIED US NEO C2 (JP 3-68) 34
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UNCLASSIFIED Although the ambassador(s) is the responsible
national authority for a NEO, during a multinational NEO, the
ambassador(s) does not exercise military command over the MNF. The
primary goal of the MNFC is to support the ambassadors plans and
cooperate with the diplomatic missions without compromising
military mission requirements. The alliance/coalition may request
designation of a lead diplomatic mission within the HN. MNF NEO C2
(JP 3-68) 35
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UNCLASSIFIED NEO execution (and crisis action NEO planning)
signifies the situation has deteriorated to the point that nations
have lost faith in the host nation's ability to maintain control of
the situation or a clear danger to the evacuees exists. It is
important to recognize that NEO will normally not be executed
within a Coalition /Combined Task Force (CTF) due to the extreme
time sensitive aspects of most NEOs. However, Major NEO operations
are multinational in nature. Lead Nation for coordination may be
identified in lieu of a MNF MNF NEO C2 (MNF SOP) 36
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UNCLASSIFIED In most instances, the evacuation force is
established from a designated MNF component, with other MNF
components in a supporting role. In permissive or uncertain NEO
with noncombatants departing primarily by air, the joint force air
component commander may be designated the evacuation force
commander. Noncombatant Evacuation Operation Coordination Center
(NEOCC) The MNFC might establish a NEOCC within the MNF HQ. A
centralized focal point between the various diplomatic missions and
the MNF. MNF NEO C2 (JP 3-68) 37
UNCLASSIFIED The 2006 Lebanon War was a 34-day military
conflict in Lebanon and northern Israel. Principal parties were
Hezbollah paramilitary forces and the Israeli military. Conflict
started on 12 July 2006, and continued until a United Nations-
brokered ceasefire went into effect on 14 August 2006. Source:
http://en.wikipedia.org/wiki/2006_Lebanon_Warhttp://en.wikipedia.org/wiki/2006_Lebanon_War
US Permissive NEO 39
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UNCLASSIFIED Lebanon 2006 40
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UNCLASSIFIED Lebanon 2006 41
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UNCLASSIFIED Lebanon 2006 42
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UNCLASSIFIED Lebanon 2006 43
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UNCLASSIFIED Lebanon 2006 44
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UNCLASSIFIED A case in point presented to us was that, where
State officials might request 10 planes, DOD officials would want
to know the precise numbers of people and tonnage of equipment to
be transported. DOD would then determine the number and type of
aircraft needed. 45 Lebanon 2006
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UNCLASSIFIED What if the situation degraded? Case Study: U.S.
Embassy Somalia NEO, January 1991 Operation Eastern Exit
Uncertain/Hostile NEO 46
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UNCLASSIFIED 5 December Voluntary (authorized) departure 19
December Official U.S. personnel reduced from 147 to 37. 30
December All official Americans were moved into the Embassy
compound. 2 January Ambassador requests military assistance for
evacuation. 2 January USS Guam and Trenton get under way at 2330. 5
January CH-53Es launch from USS Guam, insert 60-man evacuation
force, and return to USS Guam with 61 evacuees. 6 January CH-46s
evacuate remaining 220 evacuees and 60-man evacuation force. 11
January Evacuees offloaded in Muscat, Oman. Operation Eastern Exit
(Somalia) 1991 47
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UNCLASSIFIED Late on December 31 st, the first warning to
military forces of the threats to the Embassy compound was issued.
COMUSNAVCENT directed in a note on the top of the 31 December
message: "Better have Amphib crowd take a look at a helo NEO of
Mogadishu." The first direct notification of a possible NEO
requirement that arrived on USS Blue Ridge (LCC-19) 1 January -
almost a month after non-essential personnel began to leave
Somalia. Many problems encountered during the operation would have
been avoided if the amphibious forces had begun contingency
planning in early or mid-December Operation Eastern Exit (Somalia)
1991 48
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UNCLASSIFIED The crew of the first AC-130 said they were ready
to fly immediately but were not able to take off due to crew rest
requirements (having landed at 1200 they could not take off until
2400 and could not arrive overhead Mogadishu until approximately
0110). Operation Eastern Exit (Somalia) 1991 49
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UNCLASSIFIED If tasked to plan a NEO, some good places to start
are.. Tools for NEO Planners 50 JP 3-68 Appendices MNF SOP CJCSM
3500.05A Joint Task Force Headquarters Master Training Guide
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UNCLASSIFIED 51 Tools for NEO Planners (JP 3-68) 69. What HN
religious sites, shrines, buildings, facilities, or other locations
do JTF marshalling teams need to be aware of to avoid desecrating
them and antagonizing the populace?
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UNCLASSIFIED 52 Tools for NEO Planners (MNF SOP)
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UNCLASSIFIED 53 Tools for NEO Planners (CJCSI 3500.05A)
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UNCLASSIFIED Questions? Major S.C. Bair, USMC III MEF G5 Plans
Okinawa, Japan E-mail: [email protected] Commercial: +81
(0)98-954-7048 Cellular: +81 (0)80-3751-0546 54