FM 3-16 THE ARMY IN MULTINATIONAL OPERATIONS (APRIL 2014) - page 4

 

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FM 3-16 THE ARMY IN MULTINATIONAL OPERATIONS (APRIL 2014) - page 4

 

 

Civil Affairs Operations
z
Acting as an interface with the military at the theater level.
9-42. Often the lead agencies coordinate field activities through field offices of another agency or
organization. Although the latter is from UN High Commissioner for Refugees or the World Food
Programme, nongovernmental organizations such as Save the Children have filled this role in the past.
Lead agencies have also contracted other intergovernmental organizations and nongovernmental
organizations to implement health, food, or transportation programs or to operate refugee camps. The
International Organization for Migration has assisted in these areas. The International Committee of the
Red Cross performed its activities with the other agencies in this field. In such situations, nongovernmental
organizations operate under legal agreements involving them as partners with the host nation government
and a UN agency. The relationship between the coalition and the lead agency is critical. A memorandum of
understanding between the multinational force and the lead agency is a useful to make the relationship
work.
TYPES OF ORGANIZATIONS
9-43. Three principal types of civilian organizations operate outside formal national government structures:
intergovernmental organizations, nongovernmental organizations, and international and national donor
organizations. Paragraphs 9-44 - 9-50 explain each type and their roles and mandates.
Intergovernmental Organizations
9-44. Intergovernmental agreements establish intergovernmental organizations and operate at the
international level such as the various UN organizations and the Organization for Security and Cooperation
in Europe. The major UN organizations involved in humanitarian relief are the—
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UN High Commissioner for Refugees.
z
UN Office for the Coordination of Humanitarian Affairs.
z
UN High Commissioner for Human Rights.
z
World Food Programme.
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UN’s Children Fund.
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International Organization for Migration.
9-45. Intergovernmental agreement did not establish the International Committee of the Red Cross. This
organization is impartial, neutral, and independent. Its humanitarian mission is to protect the lives and
dignity of victims of war and internal violence and to provide them with assistance. It directs and
coordinates the international relief activities performed by the International Red Cross and Red Crescent
Movement in situations of conflict and the aftermath. The International Committee of the Red Cross has a
distinct status. It fulfills a role conferred upon it by international treaties such as the Geneva Conventions of
1949 (and the additional protocols of 1977) to which virtually all countries in the world are party, and the
Statutes of the International Red Cross and Red Crescent Movement adopted by the states party to the
Geneva Conventions in 1986.
Nongovernmental Organizations
9-46. Governments do not always fund nongovernmental organizations because those organizations are
voluntary. Nongovernmental organizations are primarily nonprofit organizations independent of
government, intergovernmental organizations, or commercial interests. While many nongovernmental
organizations come to the area of operations
(AO) from foreign nations, local nongovernmental
organizations may also operate. A nongovernmental organization legally differs from UN agencies and
other intergovernmental organizations because each writes its own charter and mission. Nongovernmental
organizations fall into one of two categories:
z
Mandated. The lead intergovernmental organization has officially recognized mandated
nongovernmental organizations in a crisis and authorized these mandated organizations to work
in the affected area.
z
Nonmandated. A nonmandated nongovernmental organization has no official recognition or
authorization and works as a private concern. An intergovernmental organization or a mandated
8 April 2014
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Chapter 9
nongovernmental organization could contract or subcontract these nongovernmental
organizations. In other cases, these nonmandated nongovernmental organizations obtain funds
from private enterprises and donors.
9-47. An implementing partner denotes a nongovernmental organization, local or international, mandated
and contracted by a UN lead organization or other donor or intergovernmental organization to carry out
work on its behalf.
9-48. The number of nongovernmental organizations and levels of sophistication are increasing. In any
potential AO, there are hundreds of these organizations. A nongovernmental organization generally
remains strongly independent from political control to preserve its independence and effectiveness. In
many cases, the nongovernmental organization’s impartiality is a great benefit, forming the only available
means of rebuilding relations when political dialogue has broken down. A nongovernmental organization is
often highly professional in its field, extremely well motivated, and prepared to take physical risks in
appalling conditions. Host nations will usually accredit a nongovernmental organization before it is
authorized to operate in the country. However, when a nongovernmental organization is not accredited by
its host nation it can create local tensions.
International and National Donor Organizations
9-49. The following international and national donor organizations are responsible for funding, monitoring,
and evaluating development programs:
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U.S. State Office of Population, Refugees, and Migration.
z
U.S. Agency for International Development.
z
Department for International Development (UK).
z
Canadian International Development Agency.
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Australian Agency for International Development.
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European Commission’s Humanitarian Aid Office.
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World Bank.
9-50. These donors are present during humanitarian emergencies and work with the lead agency or with
the civil administration or government.
ADDITIONAL AGENCIES
9-51. Civilian development and human rights agencies are also important.
Civilian Development Agencies
9-52. Some civilian organizations are concerned mainly with reconstruction. The civilian organizations
provide technical assistance to developing countries. The United Nations Development Programme
administers and coordinates most development technical assistance provided through the UN system. These
agencies spend a longer time in the affected area than the military. In these cases, the civil affairs
operations staff identifies any need for military involvement in reconstruction with the local government
and lead agencies to enable the organizations to begin work and continue under the most favorable
conditions. The reconstruction agencies allocate resources to plan and develop projects throughout the
affected area based on need.
Human Rights and Democratization Agencies
9-53. The primary agencies in this area are the United Nations High Commissioner for Human Rights and
the Office for Democratic Institutions and Human Rights of the Organization for Security and Cooperation
in Europe, although the latter only operates in Europe. These agencies protect human rights in states where
abuses are rampant. These agencies seek to instill democratic values and the rule of law at all levels of
government. Additionally, the Organization for Security and Cooperation in Europe has the ability to
arrange for and monitor elections and coordinate programs instilling democratic institutional values.
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8 April 2014
Civil Affairs Operations
RELATIONSHIPS BETWEEN CIVIL ORGANIZATIONS,
GOVERNMENTS, AND THE MILITARY
9-54. Governments handle humanitarian needs in their own countries. Civil organizations establish
contacts with government and local authorities to develop their activities. The military works closely with
the civil organizations, national governments, local authorities, or a combination of these organizations in
civil affairs operations. In some cases, the military only plays a supporting role. In other situations, civil
affairs operations participation and coordination is the main focal point to establish and develop the
necessary initial contacts. This type of situation occurs when no civil authority is in place, which is a
common occurrence.
9-55. Military forces, intergovernmental organizations, nongovernmental organizations, government
donors, and the UN contain their own organizational cultures characterized by national, professional, and
institutional differences. The degree of involvement, liaison, and influence of each organization vary
greatly depending on the situation. The various organizations have difficulty achieving cooperation and
consensus due to the requirement for each one to maintain relationships on three levels:
z
In the field, relationships are maintained at the tactical level.
z
Between national parties (host government or authorized governmental body), relationships are
maintained at the operational level.
z
For the international community and supporting donors, relationships are maintained at the
strategic level.
9-56. The military commander has a legal responsibility for matters relating to the relief activities in the
joint operations area where the law of occupation applies. With this responsibility comes the legal authority
to regulate the activities of relief and civil agencies. A commander has this authority in operations
performed under Chapter VII of the UN charter where “all necessary measures” are authorized and
humanitarian assistance is part of the mandate. At all times however, the civil affairs teams conduct civil
affairs operations as consultative and cooperative as far as possible.
UNDERSTANDING NONGOVERNMENTAL ORGANIZATIONS
9-57. Nongovernmental organizations are concerned with protecting civilians during conflict. These
organizations become frustrated when the military cannot afford adequate protection to all civilians,
particularly if there is a perception that force is being applied selectively. At times, nongovernmental
organizations also feel that the military uses inappropriate tactics, techniques, or procedures to support the
humanitarian mission. This compromises the organization by association.
9-58. Common problems shared by both the military and nongovernmental organizations include the
following:
z
Working in an environment with limited or no overarching international political or strategic
direction.
z
Operating in a very crowded operational theater where little or no infrastructure exists to support
operations.
z
Making difficult moral choices.
z
Experiencing frustration over an inability to fix serious problems.
z
Ensuring the safety of their personnel.
z
Competing for local resources.
9-59. The military and nongovernmental organizations often see each other from their own perspectives.
They have been distilled from expert commentators who state that relationships between the parties are
based on mutual respect and understanding. Many nongovernmental organizations have considerable
resources that support the mission and avoid creating any long-term dependency on the military forces.
9-60. The military views itself as a structured and well-resourced organization with a good understanding
of the large political picture. The military also believes its presence is the only means of stopping the
violence and this sets the conditions for ending the crisis. The nongovernmental organization sees the
military as politically compromised and not neutral, deployed on a basis of strategic interests rather than
8 April 2014
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Chapter 9
humanitarian need with hidden political and economic interests, and using mandates viewed as restrictive
or narrowly interpreted. The military views protection as the first priority and does not develop the
competence of the local public security structures. The nongovernmental organization believes the military
is unable to understand the local cultural context and can be confrontational. The civil-military operations
center is a one-way communication, military to civilian, peripheral to military decisionmaking, and has
limited information to share. The presence of the military in an area brings with it the perception of
corruption, trafficking, and prostitution with the potential to compromise humanitarian aid.
9-61. The nongovernmental organization community emphasizes its self-mandating and idealistic view.
Nongovernmental organizations believe they are efficient and close to the civilians and represent them. The
military attitude toward nongovernmental organizations may be that some are highly competitive and self
interested and unable to speak with one voice or through one forum. Nongovernmental organizations are
viewed as lacking discipline with no understanding of the broader issues. They are also seen as
opportunistic rather than principled, sometimes wasteful and amateurish, playing with danger, and lacking
in cultural sensitivity applying what is perceived as simplistic (inadequate) fixes to complex problems. The
mere presence of nongovernmental organizations also involves them in a conflict, notwithstanding a self-
view or mandate of impartiality and neutrality.
SECURITY
9-62. Security adds complexity to the military-civil relationships in peace operations. There are many
nongovernmental organization players and no one speaks for them all. Nongovernmental organizations
believe that the military should not be seen as the sole authority in security management. Most
nongovernmental organizations have security plans and processes. The military characterizes these plans
and processes as poor quality and lacking drill and discipline. In certain circumstances, nongovernmental
organizations use the military for emergency rescues on an opportunistic basis. Nongovernmental
organizations develop more competence in security management due to the rapid increase in security
incidents in the 1990s. As a result of these security incidents, there were casualties in most danger zones
where aid workers were present. However, the cause of most incidents is crime. Using armed protection by
peacekeeping forces is controversial in the aid community. Nongovernmental organizations see the need
for security information sharing valuable for threat and incident analysis. Contemporary challenges in
security management for the nongovernmental organization community include field training and
headquarters expertise.
9-63. In relations to the military, there are three possible security strategies for nongovernmental
organizations:
z
Developing security plans and accepting risk on their own. This the preferred option. Most
nongovernmental organizations offer this as a long-term solution that helps them remain close to
civilians.
z
Relying on local security forces for protection.
z
Asking the multinational force to provide protection.
9-64. These latter two strategies do not reduce the threat and have the risk of disrupting relationships with
the local population. Military deterrence as a strategy poses a risk to the image of humanitarian aid and
increases the risk to aid workers.
ORGANIZATIONAL STRUCTURE
9-65. There is a perception of increased competition among nongovernmental organizations due to the
need for funding. This perception accentuates the idea of a lack of structure in the nongovernmental
organization community. Nongovernmental organizations cooperate at the local level and civil affairs
teams need to develop this further. Civil affairs teams persuade nongovernmental organizations by reason
and not by authority with an emphasis on networking and building multinational relationships.
9-66. Intergovernmental organizations and nongovernmental organizations that operate in the multinational
force’s area of responsibility and influence are integral players in these initiatives. These organizations
have long-standing relationships in the area of responsibility, have conducted their operations well before
multinational operations began, and continue during and remain after coalition operations conclude.
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8 April 2014
Civil Affairs Operations
9-67. Intergovernmental organizations and nongovernmental organizations either support the multinational
force’s mission or are neutral or hostile. Their disposition towards the mission and initiatives may be
inconsistent or fluid. Organization structure, management, and finances drive these attitudes.
9-68. Intergovernmental organizations have the following characteristics:
z
Large with vertical management structures.
z
Well established and long standing managerial chains of command and corporate institutional
social structures.
z
Personnel who started with the organization at an entry-level position and worked up a
progressive chain of responsibility with an increased loyalty to the principles and practices of the
intergovernmental organization corporate culture.
z
Larger budgets and resources than nongovernmental organizations.
z
Less flexibility and responsiveness to fluid and dynamic situations than a nongovernmental
organization due to institutional size and procedures.
z
Less susceptibility to fluctuations or shifts in public opinion and financial support due to size,
structure, and institutional systems.
9-69. Nongovernmental organizations have the following characteristics:
z
Horizontal management structures.
z
Smaller with less established managerial chains of command and corporate institutional social
structures.
z
Staffs that are generally more independent.
z
Smaller budgets and fewer resources than the intergovernmental organizations.
z
Flexibility and responsiveness to fluid and dynamic situations due to size and independence.
z
Sensitivity to the attitudes of financial contributors. Due to not having smaller reserve assets,
contributors have more influence on allocating contributions.
9-70. Commanders consider these capabilities, limitations, and influences of organizational structures
when working alongside or with intergovernmental organizations and nongovernmental organizations.
Commanders and civilians on the battlefield remember that regardless of the person or organization,
commanders provide protection. Commanders and planners know that there may not be nongovernmental
organizations to fill significant gaps in civil affairs operations with regard to assisting the host nation in
restructuring or rebuilding. There are aspects for which no voluntary donor base exists such as
rehabilitating prisons and reestablishing police forces and judiciaries. There are issues involved in a
particular environment that cause the nongovernmental organization relief to focus its effort towards one
set of victims or party to a conflict. These gaps fall to the military element to fill on an interim basis.
UNITED NATIONS
9-71. For more information on the UN, go to the United Nations website. For UN information dealing with
civil affairs operations, go to Relief Web website. For further details on multinational operations and peace
operations, see JP 3-07.3 and JP 3-16.
LOCAL AUTHORITIES
9-72. Local authorities are important to the civil affairs operations effort. They coordinate civilian support
to military operations and provide military support directly to the local civilian community. The role of
local authorities is factored into the relationship between the military and the humanitarian participants in
the joint operations area.
MILITARY CIVIL AFFAIRS FORCES
9-73. Military forces bring capabilities to the civil affairs operations effort that are the main resource for
the implementation of the commander’s civil affairs operations plan. These forces include civil affairs
operations staffs and civil affairs troops.
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Chapter 9
9-74. Each headquarters should have a civil affairs operations staff cell that plans and executes the
commander’s civil affairs operations plan. The staff cell includes the following:
z
Civil affairs units that are part of a national organization. Civil affairs units are likely to contain
or call upon expertise in the following areas:
„ Civil administration (including security and law and order).
„ Civil infrastructure.
„ Humanitarian aid.
„ Economic and commercial structures.
„ Cultural affairs.
„ Functional specialists. Functional specialists carry out tasks identified through assessment.
Again, their number and area of expertise vary according to both need and availability. These
specialists are employed for the duration of the specified task and are either military or civilian.
The legal requirements of the donor nation determine the terms under which the latter are
employed. However, they must be under readiness states that enable them to deploy when
required. Civil affairs units contain many military personnel capable of carrying out civil affairs
operations functional activities. Nations have sources of functional specialists who together
provide a pool of expertise.
z
Commanders also task units (general troops) under their command to carry out civil affairs
operations tasks.
MILITARY SUPPORT TO THE CIVILIAN COMMUNITY
9-75. The military supports the civilian community in several ways. This is discussed in paragraphs 9-76-
9-83.
CAPABILITIES
9-76. Multinational forces have a wide range of protection, mobility, and survivability capabilities that
enable the force to carry out its mission. These include fighting troops for protection and survivability
tasks; naval and air assets for protection tasks; transportation of civilians and vital stores; and using
engineers to provide essential services such as water, electrical power, sanitation, and shelter and mobility
tasks. U.S. forces are prohibited by law from performing humanitarian demining operations; however,
special operations forces, engineers, and explosive ordnance disposal (EOD) personnel may be involved
with training others to perform these critical missions. The military forces of other nations are not
constrained in this fashion. Additional capabilities include—
z
Medical elements for saving lives and limiting the spread of disease.
z
Logistics units to provide road transport and vital stores such as food and medical supplies.
z
Communication units to enable the passage of information.
z
Military police and legal elements enforce the rule of law according to international law, rules,
and conventions.
9-77. Some of these capabilities could be employed on civil affairs operations tasks.
TASKS
9-78. Depending on the nature of the military activity, civilian agencies require any of the capabilities in
paragraph 9-75 for civilian affairs operations activities. However, the military is only responsible for
providing security related tasks and emergency relief to support the appropriate civil authority—and only
within the available military capacity. In the first instance, military support tasks could include, but are not
limited to—
z
Protection of helpless population.
z
Transport to safe havens.
z
Provision of essential services such as clean water, sanitation, and shelter.
z
Provision of limited medical life-saving support.
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FM 3-16
8 April 2014
Civil Affairs Operations
9-79. The military provides support when the resources to do so are available and its provision is in concert
with the military commander’s overall plan. This support should not be at the expense of achieving the
overall military objectives for which the multinational forces deployed. The responsibility for civil-related
tasks are handed over to the appropriate civil authority or agency as soon as practical.
9-80. Demand for military services exceed the resources available based on experience. The military
applies limited resources to the highest priorities. Agencies that seek military support must understand and
apply the agreed mutual guidelines for the provision of support to ensure that scarce resources are applied
to the higher priority tasks. These agencies give early warning to allow the necessary planning to occur in a
timely and efficient manner.
GUIDELINES
9-81. Military assets support military missions, but under certain circumstances, these assets are deployed
to support other missions when there is a need consistent with accomplishing the military mission. This
includes saving lives and providing essential infrastructure.
9-82. The civil population depends on the military. Nongovernmental organizations depend on the
resources provided by the multinational forces, particularly security and logistics resources. Multinational
forces discourage this dependency. Multinational forces provide advice and technical assistance rather than
taking ownership of the problem. Multinational forces achieve this by acting primarily as coordinators and
channeling military support as a last resort through a civil affairs operations organization such as civil-
military cooperation centers, civil-military operations centers, or liaison officers.
9-83. Military resources are available with early notice. Multinational forces are less flexible than other
providers because resources must be redirected from their primary tasks to provide civil affairs operations
support. Civil affairs operations staffs anticipate requests and know the concept of operations to ensure that
required resources are available without detriment to other aspects of the mission.
MILITARY PLANNING IN CIVIL AFFAIRS OPERATIONS
9-84. Civil affairs operations planning occurs in the preoperational, operational, and transitional stages of
any multinational operation. These planning phases are concurrent. Transition phase consideration occurs
during the preoperational stage. Early engagement of the transitional authority is imperative. The
commander includes the civil affairs operations staff in both the operation planning staff and the initial
reconnaissance.
PREOPERATIONAL STAGE
9-85. At the earliest opportunity, civil affairs operations staff prepares the coalition force for civil
dimension. This includes planning, advice and education, and training. Civil affairs operations staff analyze
the courses of action and produce a civil affairs operations/civil-military operations annex. This provides
civil affairs operations input to the main operation plan. Inputs are based on reconnaissance and detailed
assessment where possible. Planning factors for civil affairs operations include the following:
z
Food and water.
z
Public health.
z
Shelter.
z
Movement of civil population (such as displaced persons and refugees).
z
Detainee handling.
z
Public security.
z
Infrastructure support and rehabilitation.
z
Interim administrative support and action.
9-86. Coordination and information exchange occurs with the following specialist areas. The order of the
following starts with the essential elements and moves to the least essential. For example:
z
Information operations.
z
Public relations and public affairs.
8 April 2014
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9-13
Chapter 9
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Engineers.
z
Health.
z
Logistics.
z
Intelligence.
z
Legal.
z
Police.
z
Chaplains.
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Relevant government departments.
OPERATIONAL PHASE
9-87. The core civil affairs operations task throughout operations is to secure effective civil-military
cooperation to support the commander’s mission. To do this, relations with a wide range of civil bodies are
established and maintained. These relationships, along with numerous stability tasks, are identified through
continuous assessment. Centralized coordination of civil-military operations tasks through the J-3 across
the AO ensure that relationships do not conflict with the commander’s mission.
TRANSITION PHASE
9-88. The overarching objective of civil affairs operations is to achieve civil primacy. In the transition
stage, civil affairs operations/civil-military operations help the civil authorities to function without coalition
forces in the AO. As the military force reduces the number and scope of its responsibilities, civil affairs
operations help transfer any civilian responsibilities that the force assumed. Transition is either an
international
(UN) or local civil authority. The effective transfer of responsibilities depends on the
deployment of an international capability or standing up a local capability.
PREDEPLOYMENT TRAINING
9-89. Before deploying to the AO, troop-contributing nations must be trained in civil affairs operations,
especially in assessing their country’s capability requirements. These requirements include—
z
Troop awareness. All Soldiers know the multinational force stability tasks policy to ensure they
provide assistance according to that policy.
z
Staff capability. This is an enhanced level of training. Staffs are trained to plan and coordinate
stability tasks.
z
Tactical capability. This involves using dedicated units at the tactical level to execute stability
tasks.
z
Training level. This will vary between nations and regular (active duty) and reserve forces
within nations.
9-90. If there is a perceived need for a stability tasks capability, commanders do not train all personnel.
Commanders focus on jobs in coordination, planning, and executing stability tasks. Training begins with
the higher levels headquarters and proceeds to lower levels as the need and the resources become available.
Resources are expanded by having personnel trained to educate others.
SUPPORT TO INFORMATION OPERATIONS AND TARGETING
9-91. Civil affairs operations personnel support both information operations and targeting. Targeting is the
process of selecting and prioritizing targets and matching the appropriate response to them, considering
operational requirements and capabilities (JP 3-0). Each of the civil-military operations players is a source
of information sharing. Each player is reluctant to share information with the other players. The military is
concerned about compromising sources and information. The other players are concerned about
compromising their neutrality. Players share information when they perceive a common interest. Stability
tasks personnel build on these common interests and ensure that information sharing is receiving and
giving. Each group’s concerns need to be addressed and respected. Properly executed, information sharing
is a force multiplier for operations. Chapter 7 discusses information operations.
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FM 3-16
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Civil Affairs Operations
9-92. The stability tasks staff helps targeting by ensuring that targeting does not create additional
problems. The stability tasks staff notifies the commander of the locations of all the civil-military projects,
personnel, and nongovernmental or private volunteer organizations operating in the AO and participating in
the intelligence preparation of environmental process. The stability tasks staff interacts with other stability
tasks players and the civilian community to maintain the moral authority of the commander in relation to
targeting. The stability tasks staff gauges the moral impact of targeting on these groups. Additionally, the
civil-military operations staff provides areas of cultural and religious significance that must not be targeted
except under extreme circumstances because of the negative moral impact.
CHECKLIST
9-93. Commanders and staffs participating in multinational operations should be able to answer the
following questions with respect to civil affairs operations.
z
Is there a comprehensive campaign plan? Does it address civil affairs operations issues?
z
Have civil affairs operations planners been included in the assessment team for the operation?
z
What areas of civil affairs operations come under multinational force control? What areas
remain national issues?
z
What are the political and civil implications of the desired strategic and operational end states?
z
What are the civil end states implied by the military end states?
z
What are the civil centers of gravity that need to be addressed? What are the associated decisive
points?
z
What are the civil affairs operations culminating points?
z
Have measures been established to synchronize the civil-military cooperation activities with the
campaign plan’s line of operation?
z
What are the required civil and military resources to achieve the operational objectives?
z
What key civil organizations will be operating in the AO? Has an analysis been performed on
their respective end states, cultures, languages, customs, religious, objectives, and methods?
How will these organizations affect military operation?
z
What structures, reinforcements, policies, committees, and liaison are needed at the strategic
level to support the operational commander?
z
Are sufficient resources available to sustain the force where the operational commander is reliant
on host nation support? Are memorandum of understandings and technical agreements for this
support in place? How will this impact the local economy as human and personnel resources are
drawn to military host nation support?
z
Is the national civil-military plan coordinated with the other governmental departments?
z
Have national civil-military plans been coordinated with multinational force headquarters?
z
Has the multinational force headquarters established a relationship with multinational
ambassadors and, if a UN operation, the special representative of the secretary-general?
z
Is the civil administration sound or will one be established? If the latter, what resources are
required?
z
What are the requirements for restoring or rebuilding the local infrastructure?
z
What are the requirements for restoring or providing essential services in the short-, medium-,
and long-term? The short-term tasks (such as urgent provision of shelter, water, sanitation, and
power) may become military tasks. The military will need to plan accordingly.
z
What support is required to help or establish the host nation civilian law and order system?
z
Has a civil affairs operations operational estimate been performed?
z
Are there adequate civil affairs operations personnel available to help planners?
z
Has a civil-military operations center been established at the appropriate level to coordinate civil
affairs operations?
z
Is there a lead agency or lead agencies for humanitarian assistance such as UN or International
Committee of the Red Cross?
8 April 2014
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Chapter 9
z
What intergovernmental organizations, nongovernmental organizations, and international and
national donor agencies operate in the joint operations area?
z
Is there a process in place for the commander to address
“rogue” nongovernmental
organizations? Is it linked to a lead agency?
z
What is the policy for dealing with intergovernmental organizations or nongovernmental
organizations that are political or economic fronts to corporations, political action groups, rogue
nations, allies of the combatants, criminal organizations, or terrorist groups?
z
What legal authority does the commander have to take a more prescriptive approach to civil
affairs operations if this should be necessary?
z
Is there a synchronization plan that articulates a common operational effect across boundaries
(such as military, social, political, cultural, religious, media, security or economic boundaries)?
z
What areas of civil affairs operations support can nations provide and what areas can nations not
provide?
z
Do all participating nations understand civil affairs operations or civil-military cooperation?
z
Do all nongovernmental organizations subscribe to the code of conduct for the International Red
Cross and Red Crescent Movement and nongovernmental organizations in disaster relief?
z
Is there a need for mine awareness and unexploded explosive ordnance training for civilians in
the AO?
z
What other civil affairs operations engineering requirements exist in the theater of operations?
z
Is there separate funding to support these requirements?
9-16
FM 3-16
8 April 2014
Chapter 10
Resource Management Challenges in Multinational
Operations
This chapter discusses the importance and challenges of resource management in
multinational operations and interorganizational resource guidance. It then discusses
interagency funding and control processes and reimbursement procedures. Lastly, the
chapter provides a checklist for commanders and staffs.
MULTINATIONAL RESOURCE MANAGEMENT
10-1. Resource management focuses on supporting local procurement efforts, funding and tracking
operations costs, and providing military pay support. Finance elements help access host nation and other
support by—
z
Paying for contracts.
z
Providing cash to agents making local purchases.
z
Providing military pay support.
z
Providing limited support to other services such as cashing checks and currency exchange for
individuals.
z
Preparing and instructing paying agents to disburse funds for purchases and or services.
z
Identifying funding sources external to national funding of participating nations.
z
Determining policy and procedures for operationally related funding.
10-2. Resource managers obtain obligation and expenditure authority. They also focus on tracking the
costs of the operation. Finance elements provide essential input into the accounting systems to support cost
capturing. Accurate, detailed costs are needed to report dealings with multinational partners to determine
how costs have been or should be apportioned.
MULTINATIONAL RESOURCE MANAGER
10-3. The multinational force develops a policy for funding the operation. Commanders understand the
importance of integrating resource management with mission needs to execute multinational operations. A
variety of funding sources and authorities are required to accomplish every mission to include
peacekeeping, noncombatant evacuations, and foreign humanitarian relief efforts. The G-8 is the special
staff officer responsible for leveraging resources to support the multinational operation. The G-8 is the
commander’s principal resource advisor who is responsible for—
z
Coordinating with other staff sections to develop resource requirements.
z
Providing guidance, determining requirements, identifying sources of funding, distributing and
controlling funds, determining and tracking costs, determining cost capturing procedures, and
establishing management control.
z
Serving as multinational force principal resource management advisor.
z
Representing the commander in identifying multinational resources and financing country needs
to the national authorities, national components, and others as required.
z
Establishing resource management responsibilities for the area of operations (AO). This includes
designating lead agents for resource management functions or special support requirements.
z
Providing estimates of resource requirements to the national authorities, national component
commands, and others as required.
z
Establishing positive controls over resources and funding authority received.
8 April 2014
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Chapter 10
z
Coordinating with adjacent staff for managerial controls to prevent fraud, waste, and abuse.
z
Coordinating with the staff judge advocate on funding authority issues.
z
Handling reimbursement for nations providing services to multinational forces and others.
z
Preparing finance and disbursing policies, procedures, and guidelines for the personnel annex of
the operation plan or operation order.
10-4. For more information on G-8 responsibilities, see FM 1-06.
10-5. Each level of resource management develops resource requirements. The G-8 uses the same process
to receive guidance, determine total resource requirements, apply available resources to those requirements,
and identify unresourced requirements. All levels of resource management determine what resources are
required and available to support the mission and meet the commander’s intent.
INTERORGANIZATIONAL RESOURCE GUIDANCE
10-6. Resourcing guidance comes from multiple sources. It is the G-8’s responsibility to—
z
Provide consistent resource management guidance to defense support of civil authorities. This
includes G-8 involvement in running estimates, development of the operation plan or operation
order and, when necessary, performing an economic analysis of the area of operations (AO).
z
Ensure consistency of financial service support. The Department of Defense (DOD) and the
military services financial managers coordinate with the G-8 to ensure that consistent financial
services are provided to all personnel assigned to the joint force commander. This includes
making appropriate provisions for military pay and services, payment of travel entitlements, and
cash operations to support service member requirements.
z
Ensure the most efficient use of all available resources. At some level and to some degree,
resources are always limited. The commander considers limitations on available resources when
prioritizing and allocating resources, but not to the detriment of mission accomplishment.
10-7. The G-8, together with the legal advisor, provides the commander with advice and recommendations
on all legal aspects of resource management. This requirement is derived from fiscal law. Preventing
shortfalls during operations presents specific challenges. Every mission requires use of a variety of funding
sources, authorities, assistance, host nation support, and extraordinary reimbursement procedures. The G-8
performs two key functions for the commander:
z
Ensures that resources are available when and where they are needed.
z
Aids the commander in maintaining fiscal responsibilities.
10-8. The staffs and elements or units under the commander determine requirements based on the
commander’s guidance, operation plans, and input from the adjacent staff and subordinate units. The G-8
focuses on the detailed resource requirements for each mission or task (who, what, when, where, why, and
how). Armed with these details, the G-8 uses cost factors—UN, North Atlantic Treaty Organization
(NATO), or multinational approved—to verify and validate event and task costs.
FUNDING
10-9. The commander has numerous sources of appropriated funds available for multinational operations.
These sources include DOD and other federal agency appropriations, as well as UN or multinational
funding authorities. It is critical that the G-8 understands the time, purpose, and amount of each funding
authority. The G-8 understands the prescribed method of obligating funds, tracking costs, and reporting
requirements. The G-8 considers all sources of available funds, with their restrictions and variations, to
effectively and efficiently resource the mission. Doing so reduces the immediate impact on the
commander’s internal funds and maximizes the commander’s flexibility. The G-8 understands the multiple
funding sources or agreements and their numerous national, international, or coalition specific purposes,
availability, and constraints to keep the commander informed. In short, G-8s must understand funding
sources to—
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Resource Management Challenges in Multinational Operations
z
Accomplish the missions.
z
Maximize all resource options.
z
Avoid violations of fraud, waste, or abuse.
z
Determine costs.
10-10. G-8s are responsible to their commander when determining and validating costs to accomplish the
mission. Accurate and detailed determination of costs (by type) enables the G-8 to—
z
Determine a baseline for future planning.
z
Estimate future costs.
z
Properly allocate resources.
z
Develop a baseline for monitoring execution.
z
Report costs.
z
Seek proper reimbursement.
10-11. Preparing budget cost estimates to support the commander’s intent is the same as developing an
operation plan. The G-8 delineates the specified, implied, and essential tasks associated with resources and
understands the mission and commander’s intent two echelons above. The G-8 makes assumptions
concerning a variety of factors (such as the operation’s duration, logistic support, force size, environmental
conditions, transportation, special pay and allowances, multinational participants, and so forth).
Additionally, the G-8 considers the factors of mission, enemy, terrain and weather, troops and support
available-time available and civil considerations
(METT-TC) when developing assumptions and cost
estimates. Several methods are available to determine costs for requirements. The G-8 estimates costs using
standard cost factors or models, historical data, or the best judgment if no standard cost factors exist.
INTERAGENCY (FUNDING AND CONTROL) PROCESSES
10-12. Multinational commands receive their operating budget in various ways and through numerous
channels such as DOD, Department of State, or UN. Often the responsible executive agency or government
provides coalition operations with internal funds and seeks reimbursement for all appropriate and agreed
upon costs after the initial phases of the operation. Methods of reimbursement vary, but the agencies or
governments require a manual receipt, an approved automated accounting system, and evidence that the
goods or services are used for the intended purpose of the mission. The G-8 must have accurate cost
capturing methods to depict the costs by type for reimbursement.
10-13. Commanders determine how the G-8 distributes and controls funds. However, certain staff
elements direct the G-8 on the use, release, or flow of funds to support the commander’s guidance and
intent. As the commander’s executive agent, the G-8 distributes, controls, and monitors the execution of
resources. The G-8 controls funds by centralized or decentralized methods. Regardless of the method, the
G-8 must have effective and efficient fund certification and control to maintain accuracy, ensure proper
fiscal use, and capture costs.
10-14. Accounting systems track costs (by event, program, unit) based on a fiscal code. G-8s—who must
keep their commanders informed of all aspects of resource management on a daily basis—use the fiscal
code for two main purposes:
z
First, the fiscal code helps track expenditures at a detailed level.
z
Second, the fiscal code helps prepare and present fiscal information to the command and staff,
including the status of funds, mission or event cost, and obligation rates.
10-15. The G-8 establishes cost-capturing procedures for both internal and external reporting
requirements. This provides visibility of estimated and/or actual commitments, obligations, and
reimbursable and future costs. Reporting procedures provide accurate information and remain simple and
flexible.
10-16. In accordance with AR 11-2, all commanders establish and maintain effective management
controls and assess areas of risk. They also identify and correct weaknesses in those controls and keep their
superiors informed. The G-8 coordinates management controls throughout the unit. Management control
provides reasonable assurance that accountability and control procedures comply with applicable laws and
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10-3
Chapter 10
regulations. As it pertains to resource management, the management control program provides reasonable
assurance that obligations and costs comply with international/multinational agreements, that funds are
protected, and that proper accounting is kept of all expenditures. The G-8 establishes management control
as soon as possible, but not at the expense of operational or tactical considerations.
REIMBURSEMENT PROCEDURES
10-17. Reimbursable costs occur during multinational operations because of provided support to other
nations, organizations, units, and other Services or agencies. At the strategic level, reimbursement is
coordinated from the UN, NATO, foreign nations, nongovernmental organizations, or private volunteer
organizations. Usually, costs reimbursed only cover incremental costs to organizations (the percentage over
and above normal operating costs).
10-18. For U.S. forces, Congress authorizes provisions of certain support and legal reviews. Throughout
operations, careful consideration is given to funding, monitoring expenditure authority (see DOD Financial
Management Regulation 7000.14-R, Volume 15), maintaining accountability, tracking costs, and tracking
support received from or provided to the foreign nation, UN, or other designated agencies. This information
determines the detailed costs of an operation or event and supports billing for reimbursement at all levels.
Congress requires detailed reports on the projected and actual costs of operations. Accurate, detailed cost
reports determine what types of goods or services to charge. G-8s capture these costs and provide the
required reports and detailed billings.
10-19. When the commander establishes support agreements, the G-8 ensures the requesting units and
agencies understand what assistance is rendered. If a current agreement exists, the G-8—with legal advice,
if necessary—reviews the agreement for proper procedures and support. If an agreement does not exist, the
G-8 coordinates with the logistics and legal staff counterparts for required support.
CHECKLIST
10-20. Commanders and staffs participating in multinational operations should be able to answer the
following questions with respect to resource management.
RESOURCE MANAGEMENT
z
What are the arrangements to provide or receive multinational support to local procurement?
z
Who is providing check-cashing funding for finance elements of other nations?
z
What are the limitations on the amounts of cash payments (including check cashing) that
Soldiers receive in the AO? Who imposes the limitations?
z
How will the multinational force finance support provide currency exchange?
z
Will contracted subsistence support to the command affect entitlements to personnel?
z
What financial support weapon bounties and claims are needed?
G-8
z
Have support agreements been analyzed for resource management implications?
z
Has an executive agent been designated?
z
Has the resource management appendix to the operation plan been prepared?
z
Have cost capturing mechanisms been established?
z
Will resource management support be required for other agencies (such as morale, welfare,
recreation; International Committee of the Red Cross; nongovernmental organizations; private
volunteer organizations; and public affairs)?
z
If necessary, are specific reimbursement procedures through the UN required to capture
incremental costs?
z
If required, have special appropriations been requested?
z
Have procedures been implemented to track multinational support costs and review billing
procedures?
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FM 3-16
8 April 2014
Chapter 11
Medical Support in Multinational Operations
This chapter begins by discussing the role and principles of Army health system
(AHS) support and continues on to medical staff, command surgeon responsibilities,
command relationships in medical support, medical planning, and health threat
assessment. This chapter then discusses medical support policies and issues,
countermeasures, standards of care, and health service support functional areas.
Lastly, this chapter provides a checklist for commanders and staffs.
ARMY HEALTH SYSTEM ROLE
11-1. The AHS support develops and maintains combat power and is a major factor in achieving strategic
goals. The medical mission is to promote health, prevent casualties, and provide medical units capable of
responding to the challenging worldwide deployments in multinational operations. How AHS support is
delivered in the field is a factor in a particular nation’s decision to participate. Differences in medical
standards, customs, and training require careful coordination and planning.
11-2. The multinational forces commander ensures that forces deliver medical care rapidly, effectively, and
efficiently without interfering with the multinational force’s mission. Medical care is a national
responsibility. The command assesses AHS support requirements and capabilities both quantitatively and
qualitatively and provides guidance to enhance the effectiveness of AHS support through shared use of
assets. Any medical services that a nation cannot provide must be covered by agreements between national
governments of the nations making up the multinational force. This requires coordinating all AHS support
assets, providing a detailed health plan, and performing effective liaison between the senior medical
officers of each nation. The multinational command surgeon plans, coordinates, and synchronizes the AHS
support plan based on actual capabilities of contributing nations with standing medical agreements between
the contributing nations. The concept of one nation’s forces being treated by another nation’s medical
personnel or in another nation’s treatment facilities should be achievable.
ARMY HEALTH SYSTEM PRINCIPLES
11-3. For effective and efficient multinational medical support, personnel must adhere to long established
AHS principles. The following AHS principles should be the focus of each nation’s health service:
z
Conformity with operations and administrative plans.
z
Proximity to forces supported.
z
Flexibility to change with the tactical picture.
z
Mobility to maintain contact with supported units.
z
Continuity of treatment through the casualty management system.
z
Protection and prevention to minimize avoidable casualties.
z
Command and control of health assets clearly defined at an appropriate level.
MEDICAL STAFF
11-4. It is necessary to identify a command surgeon early to oversee and coordinate medical support
activities and to advise the multinational forces commander. This surgeon is involved in planning and
provides a representative to the assessment team.
11-5. The multinational forces surgeon’s office, staffed with representatives from participating nations,
develops the medical plan.
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Chapter 11
11-6. Specific responsibilities of the multinational forces surgeon during force generation include:
z
Identifying the medical support assets (ground and air) to support the planned operation.
z
Determining the disease and nonbattle injury rate for planning purposes.
z
Obtaining the casualty rates from the operations officer.
z
Identifying medical evacuation processes.
z
Developing the multinational forces medical plan.
z
Exploiting medical intelligence data and information derived from national and other service
sources.
z
Advising the multinational forces commander on health risks relevant to the operation.
COMMAND SURGEON RESPONSIBILITIES
11-7. The command surgeon is responsible to the commander for medical support in the area of operations
(AO). The surgeon has direct access to the commander as chief medical advisor. The surgeon understands
the medical capacities and capabilities of all multinational nations. The surgeon deploys medical personnel
early to establish, monitor, and evaluate medical support. The surgeon’s staff has representatives from all
nations.
11-8. The surgeon prepares the medical plan and medical annex to the operation plan or operation order.
This plan—
z
Defines the scope of medical care in detail.
z
Allocates resources.
z
Determines the number of medical personnel required to staff the multinational surgeon’s office.
z
Details the medical resources required to support the operation.
11-9. The surgeon coordinates medical support provided to or received from multinational forces and the
appropriate reimbursements. The surgeon also advises the commander on the following:
z
Medical support to the operation.
z
Intratheater rest, rotation, and reconstitution.
z
Preventive medicine.
z
Dental and veterinary medicine requirements.
z
Other medical factors that affect operations.
11-10. In addition, the surgeon performs the following:
z
Informs the commander on the status of medical support units and assistance required by and
provided to the civilian populace and multinational nationals.
z
Reviews health programs of civilian agencies in the AO to determine the feasibility for
emergency usage.
z
Advises on foreign humanitarian assistance and defense support civil authorities activities in the
AO.
z
Establishes and coordinates a comprehensive medical logistic system for medical materiel, bio-
medical maintenance, blood, and vaccines.
z
Supervises the activities of any medical cells, boards, and centers established by the
multinational forces. For example, the surgeon supervises a patient movement center to identify
bed space requirements and the movement of patients in and out of the AO.
z
Coordinates medical intelligence support for medical support organizations.
z
Develops a preventive medicine program that—
„ Includes pre and postsurveillance programs.
„ Evaluates infectious disease risks.
„ Determines the requirements for an entomologist for vector control.
„ Provides technical assistance and advice to the civil-military operations center.
„ Establishes liaison with each nation’s surgeon.
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FM 3-16
8 April 2014
Medical Support in Multinational Operations
„ Resolves the multinational medical equipment and supply requirement and sustainability
due to the expense, long lead-times, and special handling in procuring CL VIII.
„ Identifies and coordinates appropriate medical treatment facility accreditation and medical
professional certification requirements.
COMMAND RELATIONSHIPS IN MEDICAL SUPPORT
11-11. As a multinational force matures, the members centralize their efforts by establishing a lead nation
command structure. Subordinate national commands maintain national integrity. The lead nation command
establishes integrated staff sections. Leadership determines the composition. A national commander
commands all elements including the supporting medical support system. For command purposes, the
commanders normally delegate command of their assigned medical support resources to their medical
support officer located in the national support element. At each level of command, the medical support
officer must possess the right of direct access to the commander on matters affecting the health of the
command.
11-12. The command relationships in medical support must be clearly defined in the multinational forces.
These relationships are embodied in the command directives. The authority creating the multinational force
issues these directives to each national component commander. Operational (technical) control of national
medical support resources are delegated by the national component commander to the senior medical
officer to facilitate overall coordination of resources in the theater of operations. It may not be possible to
establish mission command over all participants. Some nations have requirements that limit how much
command authority the multinational or national commanders exercise over their forces. Command in its
formal sense does not exist and a system of cooperation exists in its place.
11-13. During operations, the responsibilities of the senior health service support officer at each level
include—
z
Advising the commander on the health of the command.
z
Informing the commander and staff on matters affecting the delivery of healthcare.
z
Developing, preparing, coordinating, and monitoring medical support policy and procedures
with commanders of National Health Service units.
z
Exploiting medical intelligence data and information derived from national and other Service
sources.
z
Monitoring the activities of medical support assets assigned to their command.
11-14. The commander and the senior medical officer of each nation must understand the legal limits of
using non-national medical treatment facilities and supplies, especially blood, by their nations’ forces.
Exchanging blood between nations is a sensitive issue and must be coordinated early. Mutual medical
support complies with existing legal directives. Coordination for any lead nation, role specialization, or the
acquisition and cross-servicing agreement authority must be addressed during multinational planning.
Casualty evacuation, especially outside the AO, and using non-national medical treatment facilities requires
careful planning and an agreement.
MEDICAL PLANNING
11-15. Medical planning occurs at all levels. Medical planning develops a system that provides the best
possible use of medical support resources in a given situation. Details of medical planning are contained in
American, British, Canadian, Australian, and New Zealand (ABCA) Armies’ Program Publication 256.
Considerations include the operational situation
(commander’s overall mission) and medical threat
information including endemic diseases and climate appropriate to the theater of operations. Planners and
commanders identify issues specific to the operation and consider these issues in planning.
11-16. The following factors are critical aspects of medical planning:
z
Mission and type of operation.
z
Operation concept or plan.
z
Anticipated duration of the operation.
8 April 2014
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11-3
Chapter 11
z
Evacuation policy from the theater of operations to role 4, definite care.
z
Selection and consideration of the AHS support aim.
z
Health threat assessment, including medical countermeasures.
z
Health surveillance.
z
Provision of casualty estimate by the staff and effects on health care delivery.
z
Availability of and restrictions on resources.
z
Availability and access to host nation facilities.
z
Mission command requirements and limitations.
HEALTH THREAT ASSESSMENT
11-17. The health threat assessment is a composite of ongoing or potential enemy actions; adverse
environmental, occupational, and geographic and meteorological conditions; endemic diseases; and
employment of chemical, biological, radiological, and nuclear weapons (including weapons of mass
destruction) that have the potential to affect the short- or long-term health (including psychological impact)
of personnel. This can reduce the effectiveness of the multinational forces through wounds, injuries,
diseases, or psychological stressors.
11-18. The medical threat is a composite of—
z
Infectious disease.
z
Environmental conditions.
z
Occupational health threats.
z
Conventional and irregular warfare.
z
Biological warfare.
z
Chemical warfare agents.
z
Directed-energy weapons.
z
Blast effect weapons.
z
Combat and operational stress.
z
Flame and incendiary weapons.
z
Nuclear warfare.
z
Radiological agents.
z
Accidents.
MEDICAL SUPPORT POLICIES AND ISSUES
11-19. The medical section establishes force medical support policies to cover medical support in
multinational operations. The multinational forces surgeon establishes policies with medical officers of
contributing nations.
11-20. Subject areas for multinational force policy and coordination include—
z
Medical care eligibility for noncombatants, contractors, dislocated persons, refugees, and host
nation civilians plus appropriate reimbursement for nations.
z
Medical support coordination provided to or received from the multinational forces or other
friendly nations including using host nation facilities.
z
Mass casualty response plan.
z
Liaison establishment with each nation’s surgeon.
z
Medical regulating, to include evacuating casualties to non-national medical treatment facilities.
z
Policies on medical countermeasures and vaccinations.
z
Policies on the exchange of medical equipment accompanying patients.
z
Policies on transferring a patient from one nation’s evacuation system to another.
z
Mechanism for returning patients to their parent nations after medical treatment in another
nation’s medical treatment facility.
11-4
FM 3-16
8 April 2014
Medical Support in Multinational Operations
z
Medical support to detainee/enemy prisoner of war operations and facilities.
z
Evacuation system establishment for the theater of operations, including definition of the
theater’s holding and evacuation policy, mission responsibility, and evacuation control system.
z
Medical support reports and returns required, including format, content, and frequency.
z
Clinical documentation, policy format, and the exchange of clinical records that include the
following:
„ Medical records of the clinical condition with treatment of each patient so that continuing
treatment is related to past events and post-deployment actions.
„ Information to notify the patient’s next-of-kin.
„ Information to units for preparing personnel strength returns.
„ Statistical data for planning purposes and historical records.
„ Materials for medical research.
„ Information to track patients whose whereabouts are unknown.
z
Policies on blood supply source, screening standards, storage, and use.
z
Policies on pharmaceutical source, acceptance standards, storage, and use.
z
Policies on sharing and exchange of occupational and environmental health surveillance data.
Data includes—
„ Air, soil, and water sampling.
„ Individual or group exposure results.
„ Any other environmental sampling.
COUNTERMEASURES
11-21. Historically, disease and nonbattle injuries have rendered more Soldiers combat ineffective than
actual operations casualties. Countermeasures reduce disease and nonbattle injuries. The capability to
assess the Soldier’s health continuously and improve Soldier sustainability is required to protect the force.
11-22. The following countermeasures ensure effective force medical protection:
z
A comprehensive medical intelligence system.
z
Continuous health surveillance.
z
Countermeasures, prophylaxis, and immunization policies approved by the multinational forces
commander and implemented by all contributing nations.
STANDARDS OF CARE
11-23. The multinational medical support ensures continuity of patient management at a standard
acceptable to all nations. Achieving the desired degree of patient management depends on the successful
interoperability of treatment principles and clinical policies. As a national responsibility executed under
national standards of care and practice, each nation sets medical policy for its Soldiers. As such,
multinational commanders cannot direct a sovereign nation’s armed forces to adopt a different standard for
sake of uniformity across their command. Patient management is a continuous part of medical care,
increasing in complexity by roles of capability to work with the clinical needs of the patient. While optimal
patient management is never compromised unless dictated by the operational situation, it is also a balance
between many conflicting factors. These factors include the following:
z
Treatment.
z
Evacuation.
z
Resources.
z
Environmental and operational conditions.
11-24. Dental support is arranged in levels, reflecting an increase in capability at each succeeding level.
The functions of each lower level of dental support are contained within the capabilities of each higher
level. A preventive dentistry program is provided in the theater of operations.
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11-5
Chapter 11
HEALTH SERVICE SUPPORT FUNCTIONAL AREAS
11-25. The medical plan will address the following health service support functional areas, as described in
ABCA Publication 256:
z
Preventive medicine.
z
Combat casualty care.
z
Hospital and surgical services.
z
Dental services.
z
Ground and air evacuation.
z
Stress management.
z
Outpatient services.
z
Veterinary services.
z
Medical nuclear, biological, and chemical considerations.
z
Health surveillance.
z
Medical logistics.
z
Blood.
CHECKLIST
11-26. Commanders and staffs participating in multinational operations should be able to answer the
following questions with respect to medical support.
MEDICAL STAFF
z
Has a command surgeon been appointed?
z
Are there health services representatives on the assessment team?
z
Have contributing nations provided staff or liaison to the multinational forces surgeon?
COMMAND AND CONTROL
z
Have national elements appointed senior medical officers?
z
Are the command relationships of medical assets clearly defined?
z
Are there adequate arrangements for coordination and liaison between medical elements?
SUPPORT PLAN
z
Does the health service support plan conform to the operation and administrative plans?
z
Are all forces in reasonable proximity to medical support?
z
What flexibility is there in the medical support plan? Are there medical assets available for surge
situations?
z
Are the medical support assets sufficiently mobile to provide support to the force?
z
Will a casualty receive continuous treatment while in the medical system?
z
Have the following medical protection issues been addressed?
„ Health threat assessment.
„ Medical countermeasures and vaccination.
„ Health surveillance system.
z
Who is entitled to treatment? Are cross-servicing provisions in place?
z
What responsibilities do the multinational forces medical support assets have to noncombatants?
z
What is the response to a mass casualty?
z
How will casualty evacuation be coordinated?
z
Are there sufficient evacuation assets?
z
How will medical regulations, both in and out of theater of operations, be affected?
11-6
FM 3-16
8 April 2014
Medical Support in Multinational Operations
z
What are the multinational forces obligations and responsibilities under the Geneva
conventions?
z
What medical support reports and returns will be available to the commander multinational
forces?
z
What are the arrangements for preventive medicine measures?
z
Are there adequate dental services available?
z
What provisions are there for combat and operational stress management?
z
Who will inspect foodstuffs from a medical perspective?
z
How will units obtain class VIII supplies?
z
How will medical equipment be repaired?
z
What is the blood supply system?
z
Does the support plan include provision of, or access to, limited critical medical equipment such
as magnetic resonance imagery?
z
Does the support plan identify any unusual Soldier physical screening standards necessary for
this operation?
z
What are the medical support requirements for detainee operations and facilities?
MEDICAL
z
What does the status-of-forces agreement (SOFA) with the host nation state in using host nation
medical treatment facilities for the treatment of U.S. personnel?
z
What is U.S. policy on using host nation medical treatment facilities for this operational period?
z
Are medical treatment facilities identified to support the operation?
z
Are chemical weapon threats known?
z
Are troops and medical treatment facilities prepared to cope with their possible use?
z
Are procedures in place to service multinational casualties to include recognizing cultural
differences in dealing with casualties and procedures and policies for local civilians? Have
procedures been coordinated with national commands?
z
What are the other multinational element capabilities and procedures for medical evacuation? Do
they include air and ground capabilities, both intratheater and intertheater, that multinational
forces will be supported by or required to support?
z
What are the sources of medical supply and payment options?
z
What are the procedures for tracking patients?
z
What are the coordination requirements for return-to-duty transportation?
z
What forces have organic role 1, 2, or 3 combat medical support? For those that do not have this
support, what level will other multinational forces provide?
z
What are the policies and procedures for medical personnel to use on role 2 through 4 medical
treatment facilities to provide medical treatment for multinational forces?
z
Who is eligible for medical care, both routine and emergency, and under what conditions? This
must be coordinated with other staff sections.
z
What is the blood policy and distribution system?
z
What is U.S. policy for emergency use of blood from other than U.S. sources, such as host
nation, for this operational period?
z
What is the mass casualty response plan?
z
Is there a medical surveillance program to follow disease trends and detect disease outbreaks?
z
What is the public health policy?
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Chapter 12
Operational Considerations for Multinational Forces
This chapter discusses fire support and engineer support. It then discusses
interoperability and standardization in the multinational forces. Lastly, this chapter
provides a checklist for commanders and staffs.
MILITARY CAPABILITIES
12-1. Military capabilities differ based on national interests and objectives, national character, doctrine,
training, leader development, organizations, and materiel. Some doctrine emphasizes offensive operations
while others emphasize defensive operations. Some nations prepare for highly mobile, mechanized
operations. Other nations are concerned with counterinsurgency operations. The multinational force
commander considers these differences when assigning missions and conducting operations. This chapter
provides operational considerations to improve the effectiveness of U.S. forces when operating with the
multinational force.
12-2. A variety of functions help commanders build and sustain combat power. These are the six
warfighting functions described fully in ADRP 3-0. Army commanders and staffs translate the elements of
combat power into operational functions when conducting missions and tactical operations. The three
operational-level functions discussed in this chapter are firepower, engineer tasks and responsibilities and
engineer support, and interoperability and standardization.
CRITICAL OPPONENTS AT THE OPERATIONAL LEVEL
12-3. At the operational level, mission command, intelligence, and support are critical to build an effective
multinational force. A major weakness in one of these areas is a far greater threat than one in other systems.
All other elements hinge on the effective integration of these three systems. Major differences, real or
perceived among alliance or coalition partners cannot be tolerated. Within these operating systems,
effective liaison and language capabilities make effective operations possible and alleviate friction and
confusion.
FIRE SUPPORT
12-4. The multinational force commander ensures that the force develops good fire support coordination.
This optimizes the effects of fires and minimizes the possibility of fratricide, collateral damage, and
disruption to the civilian populace. Fire support coordination in multinational operations demands special
arrangements with multinational force members and local authorities. These special arrangements include
communications and language requirements, liaison personnel, and interoperability procedures. A standard
operating procedure should be established for fire support to achieve the most effective results for its use by
the multinational force.
12-5. Effective control of multinational force firepower is the key to its use. The staff judges whether
resources and requirements are balanced over the course of a multinational campaign or operation and
ensures the appropriate mix of forces and capabilities exist. Effective joint fire support contributes to
multinational success. Joint detailed integration of joint fire support with maneuver of the multinational
force is critical. See JP 3-09 and ADRP 3-09 for more information.
12-6. The multinational force commander understands the Army relies on space-based capabilities and
systems, such as global positioning system for precision, navigation and timing, communication, weather
satellites, and intelligence collection platforms for success in multinational operations. These systems are
critical enablers for U.S., collation, and multinational forces to plan, communicate, navigate and maneuver,
8 April 2014
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Chapter 12
maintain area of operations (AO) situational awareness, engage the enemy, provide missile warning, and
protect and sustain forces. Operations are enabled by space-assisted tactical planning and support,
expertise, and advice regarding available space capabilities and limitations. Space support planning and
coordination with multinational resources occurs with Army space professionals attached at the corps and
division levels. These professionals provide expertise, advice, and planning to the commander on space
related issues that directly affect multinational operations. Space capabilities provide the accuracy status for
positioning, navigation, and timing for planning operations, capabilities and limitations impacts of space-
based surveillance and reconnaissance, weather, and communications systems. These capabilities notify of
deliberate enemy interference activities such as attempts to jam or spoof friendly communication.
12-7. Space enabled capabilities are ubiquitous and widely used to maintain environment situational
awareness. Space-based systems enable multinational operations during combat and the subsequent stages
of force projection operations by—
z
Providing unclassified, commercial imagery products releasable to multinational forces to
support targeting, fires, and geospatial engineering efforts.
z
Rapid communications that enable a commander to gain and maintain the initiative by
developing the situation faster than the enemy consists of the following:
„ Visualizing the AO and sharing a common operational picture, retaining the ability to
recognize and protect their own and friendly forces, synchronizing and protecting their own and
friendly forces, synchronizing force actions with adjacent and supporting units, and maintaining
contact and coordination critical to multinational operations.
„ Providing update of solar environment and the impact to both terrestrial and space-based
segments of friendly communications systems.
„ Monitoring terrestrial areas of interest through information collection assets to help reveal
the enemy’s location and disposition, reveal route, area, zone, and force reconnaissance, and
attempt to identify the enemy’s intent.
„ Providing global positioning system status and accuracy of positioning, navigation, and
timing for planning and conducting mission and maneuver operations to support fires and
targeting effects.
„ Providing meteorological, oceanographic, and space environmental information which is
processed, analyzed, and leveraged to produce timely and accurate weather effects and impacts
on operations.
ENGINEER TASKS AND RESPONSIBILITIES
12-8. Multinational forces require multinational-level engineers to defense support of civil authorities.
These engineers are responsible for a broad range of technical and dispersed, operational, and tactical tasks.
These tasks are included in the engineer operational environment functions of—
z
Combat engineering (mobility, countermobility, and survivability).
z
General engineering.
z
Geospatial engineering. (This is referred to as geomatic by some multinational forces.)
12-9. See FM 3-34 and JP 3-34 for a further discussion of the engineer operational environment functions
and engineer operations.
12-10. The tasks associated with the three engineer operational environment functions include—
z
Providing a full range of operational and tactical level combat engineering
(mobility,
countermobility, and survivability) support.
z
Providing a full range of general engineering support (including protection construction, diving,
firefighting, facilities engineering, infrastructure, sustainment support, power generation and
distribution, and in some Services or multinational forces this includes explosive ordnance
disposal
[EOD] and chemical, biological, radiological, nuclear, and high-yield explosives
[CBRNE] as well).
z
Providing a full range of operational and tactical-level geospatial engineering support.
12-2
FM 3-16
8 April 2014
Operational Considerations for Multinational Forces
12-11. To ensure efficient and effective engineer effort, the multinational headquarters require both a
senior engineer and a supporting engineer staff to plan and coordinate engineer effort to support the
multinational commander’s plan. The senior engineer and associated staff controls force-level designated
engineer units on behalf of the multinational commander. This control includes—
z
Planning.
z
Setting engineer standards.
z
Supervising and coordinating.
z
Controlling engineer support to the force and, when necessary, to the local population.
z
Potentially performing mission command for other nonengineer capabilities and assets.
12-12. Engineers are also responsible for managing civilian engineer contractors who complete tasks in
the AO. Control of engineer support will be in accordance with the multinational commander’s priorities
and intent. For further operational considerations and details on the employment of engineer assets in a
multinational environment, refer to the American, British, Canadian, Australian, and New Zealand Armies’
Program (ABCA) Multinational Engineer Handbook.
GENERAL PRINCIPLES
12-13. All multinational commanders consider several general principles when employing engineers. Of
these principles, a force engineer commander adheres to centralized control and early warning to give
engineer operations the best opportunity to succeed.
Centralized Versus Decentralized
12-14. When employing engineers, an important principle is centralized command with decentralized
execution of tasks. Force engineer assets are optimized against the multinational commander’s priority of
tasks. These tasks are applied to all units and include missions and tasks as combined arms breaching
operations; gap crossings and other mobility support; support to demining operations; construction of
bridges, roads, base camps, hospitals, or other sites; or other tasks performed directly for the multinational
commander.
Early Warning
12-15. Due to the long lead times necessary to plan, coordinate, purchase, and assemble the necessary
engineer assets and specialized personnel, engineer planning has an early and well-informed warning. Since
much of the necessary information is unavailable, contingency engineer planning is essential for critical
issues and items. Therefore, commanders and staff provide as much guidance as possible. The engineer
commander and staff is proactive and seeks guidance regularly. This results in iterative planning with
engineer estimates initially at plus 50 percent and aiming to reduce to plus five percent as more reliable
information becomes available. For example, engineers consider redeployment issues early—before
deployment takes place—to ensure that critical-path items are considered in a timely manner and that the
necessary engineer assets will be in the AO when required, to include those associated with transitions.
Planners are mindful of the significant difference in the doctrinal traditions between the North Atlantic
Treaty Organization (NATO) allies and former Warsaw Pact militaries, particularly when it comes to the
role of engineer assets in traditional combat engineering functions. While NATO battalion and brigade
combat team commanders are accustomed to the de-centralized integration of engineer operations at the
tactical level, former Warsaw Pact nations have traditionally employed these assets in a much more
centralized manner at the division and corps level. As a result, tactical commanders from engineering tasks
associated with building integrated obstacles and mutually supporting engagement areas at the battalion and
brigade level. An understanding of these tasks and many other differing doctrinal traditions manage
expectations and result in greater integration of multinational forces.
Priority of Work
12-16. Since it is seldom possible to execute all the required engineer tasks simultaneously, the force
commander outlines a clear priority of work after receiving staff and engineer advice. Engineers plan
appropriately and avoid wasting scarce resources on low priority tasks.
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Chapter 12
Economy
12-17. Engineers carry out technical tasks. It is costly to employ them on tasks that carried out by other
arms. Similarly, it is also costly to apply more engineer effort than necessary to complete tasks in the
required time or to use engineer labor on the unskilled aspects of engineer tasks. Economy of force is
facilitated by a good priority of work.
Continuity
12-18. As handovers between engineer units increase the time to complete a task and result oversight, the
unit that performs the task should complete it where possible. This continuity or momentum must be
retained to optimize using engineer assets.
Protection
12-19. Engineers cannot work effectively and protect themselves at the same time. Where possible and
when necessary, engineers need protection.
ENGINEER SUPPORT
12-20. Engineers provide support across the engineer operational environment functions (combat, general,
and geospatial engineering) to support the multinational force. This includes aviation and naval forces. The
following paragraphs provide a summary of the typical tasks performed by engineers in a theater of
operations. All ABCA armies have differences with regard to the responsibilities of their engineers. Liaison
with the multinational force engineer staff is important.
COMBAT ENGINEERING
12-21. Combat engineering includes mobility, countermobility, and survivability and focuses on
supporting combat maneuver forces at the tactical and operational levels of war. It is an integral part of a
combined arms unit’s ability to maneuver. Combat engineering focuses on the support of land component
forces engaged in close combat. Combat engineers support combat engineering tasks. In some cases, these
tasks are performed by general engineering.
GENERAL ENGINEERING
12-22. General engineering, the most diverse of the engineer operational environment functions, are
performed throughout the area of responsibility. General engineering is closely linked to the operational
and strategic levels of war. As one of the areas of logistic support, general engineering is a critical
component of logistic planning and operations. General engineering support—
z
Provides broad mobilization, deployment, employment, sustainment, and redeployment support
to the multinational force.
z
Enhances the combat capability of the multinational force in all phases of a combat operation.
z
Encompasses those engineer tasks that establish and maintain the infrastructure. These
engineering tasks include the construction and repair of lines of communication, main supply
routes, railroads, roads, bridges, ports, airfields, utility systems, logistic facilities, bed down or
base camp facilities, and the provision of environmental services.
z
Includes critical enablers such as firefighting, engineer dive operations, power generation and
distribution, and other specialized capabilities. It also includes support to camouflage,
concealment, and deception at the operational level.
12-23. In some Services and multinational forces, these include aspects of EOD and CBRNE support.
12-24. General engineering tasks are resource and time-intensive, demanding a high degree of
preplanning to meet operational requirements. While general engineering directly supports combat
operations, those engineer tasks performed by general engineering support combat maneuver forces at the
tactical level are often combat engineering tasks. The joint commander depends on a combination of
12-4
FM 3-16
8 April 2014
Operational Considerations for Multinational Forces
multinational engineer units, civilian contractors, and host nation capabilities to accomplish general
engineering requirements.
12-25. General engineering units perform general engineering tasks. Combat engineer units also perform
these tasks in some cases. All engineer units need to execute elements of general engineering tasks
consisting of repair and construction tasks. These operations include both horizontal and vertical
construction and the use of both expedient repair methods and more deliberate construction methods
characterized by the application of design criteria, planning, and preparation depending on the mission
requirements.
GEOSPATIAL SUPPORT
12-26. Engineers provide specialized advice on the effects of terrain, climate, and weather. The successful
conduct of land operations relies on commanders at all levels appreciating the terrain where operations are
conducted. The better the appreciation of this terrain, the greater the degree of certainty of successful
prosecution of operations. Up-to-date and accurate geospatial information enhances geospatial knowledge
and situational understanding. It also helps commanders gain a better appreciation for the influence of
terrain on operations.
12-27. Multinational force operations are characterized by a level of geospatial information available to
commanders and their staffs. This information comes from the host nation, one or more multinational
partners, or a combination of sources. Potential adversaries likely have access to the same level of
geospatial information plus a far more intimate knowledge of the AO. This information minimizes the
adversary’s advantage gained by local knowledge. These decision support aids help the force commander
to visualize, operate on, and exploit the operational environment. Timely and relevant topographic support
has the potential to be a significant combat multiplier in multinational operations.
12-28. A specialist has the capabilities to quickly acquire and provide appropriate and relevant geospatial
information. This is generally a resource intensive undertaking. Topographic support relies on availability
of a fundamental layer of geospatial information. The nations provide topographic support to its national
component forces, but efficiencies and synergies come from this support. This is particularly true with
acquiring and providing the geospatial data set. As a guiding principle, one nation has lead responsibility to
acquire and provide geospatial information with other nations assigned supporting roles. This division of
responsibilities is a high priority requirement addressed early in the planning.
12-29. The highest level possible coordinates geospatial information because of the complexities involved
with acquiring and providing it. The multinational force engineer commander coordinates geospatial
information. Longer-term information densification and maintenance responsibilities also need to be
addressed early in planning. The multinational force engineer commander has access to an appropriate level
of topographic advice in the engineer staff to assign responsibilities.
12-30. The Army Strategic Forces Command Commercial Imagery Team performs a complimentary
geospatial information and support mission providing commercial imagery data and products to customers
in any multinational environment. This team consists of space experts, satellite communications control
technician, terrain data experts, topographic analysts, and an information systems specialist who produces a
number of different imagery products depending on customer needs that includes image maps, change
detection, terrain categorization, and multispectral analysis. This team coordinates with geospatial support
teams, synchronization managers, and commercial imagery vendors to provide multinational forces with
releasable commercial satellite geospatial product they need.
CIVIL AFFAIRS OPERATIONS SUPPORT
12-31. Engineers are important to supporting civil affairs operations. This support involves the following:
z
Bridging and demining critical civilian areas or routes to enhance mobility.
z
Providing essential services such as power, water, sewage, and decontamination.
z
Firefighting.
z
Providing shelter.
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Chapter 12
12-32. Engineers satisfy the needs of the force as a priority before offering any residual capacity to
civilian authorities. Engineers are limited to only providing advice to the civilian authorities and population
on works completed.
INTEROPERABILITY AND STANDARDIZATION IN
MULTINATIONAL FORCES
12-33. For Army units involved in multinational operations, one of the major operational considerations is
the ability to operate with units of the other nations. Interoperability is the ability to operate in synergy in
the execution of assigned tasks (JP 3-0). Historically, the problems of interoperability have been solved
primarily through trial and error during actual conduct of operations over an extended period of time. To
avoid the problems associated with this method of interoperability, the Army participates in multinational
and bilateral standardization programs.
12-34. The Department of Defense (DOD) achieves the closest practicable cooperation among the
Services and DOD agencies for the most efficient use of research, development, and production resources,
and agrees to adopt on the broadest possible basis using common or compatible procedures, criteria,
corresponding organizational compatibility, sustainment, and logistics.
12-35. The Army participates in two multinational programs that work towards standardization. Those
two programs are NATO and the ABCA. The result of this standardization work is NATO standardization
agreements and ABCA standards.
12-36. Implementation of standardization agreements, either NATO or ABCA, are transparent to U.S.
units. In the case of doctrine, implementation occurs when the content of the standardization agreement is
incorporated into Army field manuals. Additionally, Soldiers of each NATO or ABCA nation use their own
national doctrine and tactics, techniques, and procedures. To them, the interoperability is also transparent.
For example, the NATO and ABCA nations agree to use the same military symbols. (See STANAG 2019.)
This way, participating units passing graphic operational information, such as overlays, understand the
symbols. The Army finds these military symbols in ADRP 1-02. When the nations operate together, there is
no need to develop a common set of military symbols to conduct operations in NATO or ABCA forces.
There are standardization agreements for the five-paragraph operation order, close-air support procedures,
call-for-fire procedures, CBRNE reporting procedures, and numerous other areas.
12-37. Within a coalition, standardization agreements provide a baseline for cooperation. Additionally, in
many parts of the world, there are bilateral interoperability agreements among potential coalition members
in place before the formation of the coalition. Students who attend professional military development
courses in other nations are additional sources for interoperability. However, in most ad hoc coalitions, not
all participants are familiar with such agreements. The multinational commander relies on lead nation or
designated standard operating procedures; good liaison officers; and clearly written, uncomplicated
operation orders.
BIOMETRICS SUPPORT
12-38. Biometrics is the process of recognizing an individual based on measurable anatomical,
physiological, and behavioral characteristics (JP 2-0). It is the enabling technology which cross-cuts many
mission and functions, and can be particularly valuable in stability operations. Intelligence-related
functions that biometrics can support or enhance include intelligence analysis, interrogation and detention
tasks, high value target confirmation, and source vetting. Other missions’ biometrics can support include—
„ Cordon and search operations.
„ Raids.
„ Base access, checkpoints, and protection of critical sites.
„ Area security operations.
„ Border control and ports of entry.
„ Site exploitation.
„ Internment and resettlement operations.
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FM 3-16
8 April 2014
Operational Considerations for Multinational Forces
„ Population census or mapping the civil considerations.
„ Tracking medical records and financial transactions.
12-39. Traditional U.S allies and partner nations employ biometrics in multinational operations with
increasing intensity and improve results to identify known threats, disrupt the threat’s freedom of
movement in the populace, link civilians to events, and verify local and third-country nationals accessing
multinational forces bases and facilities.
12-40. The ability to accurately identify or verify an individual is a critical component of force protection.
Biometrics enhances force protection by positively identifying persons of interest, insurgents, terrorists,
criminals, and others who harm multinational forces and facilities. Regardless of disguises, aliases, or
falsified paper documents, biometrics positively identify the person.
12-41. In traditional conflicts, the identity of individual combatants did not matter as their uniforms easily
identified them as the enemy. However, in counterinsurgency conflicts where combatants and non-
combatants dress the same and live and work together, the positive identification of individual combatants
assumes much greater importance. Future conflicts can be increasingly multidimensional and complex.
Threats will be a hybrid of regular forces, irregular forces, criminal elements, and terrorists operating
among neutral and friendly individuals. The likelihood of future population-centric conflicts, for
adversaries’ blending into the population and employing unconventional means to attack multinational
forces, bears out the need for employing biometrics to increase multinational forces security by denying
anonymity to enemies.
12-42. There is benefit to sharing biometric information with multinational partners, however it can be
constrained by national data protection legislation and requirements data control requirements. In a
multinational forces environment, forces from individual countries collect, process, store, and disseminate
biometric data on separate national systems. To conform to each nation’s legislation, data sharing is
performed at a national level, often to master repositories in host nations, and then disseminated among
nations for use in the operational and tactical environments. Using ratified standards and common
functionality by nations make interoperability between partner nations systems achievable.
SPECIAL OPERATIONS FORCES
12-43. Special operations forces, together with conventional forces, integrate multinational forces. Their
language capabilities, regional expertise, cultural awareness, and experience in working and training with
other countries’ militaries allow the forces to improve coordination and minimize misunderstanding during
multinational force operations. Specifically, special operations forces help the multinational force
commander by—
z
Facilitating the transfer of U.S. defense articles and services under the security assistance
program to eligible foreign government military units engaged in internal defense and
development operations.
z
Assessing foreign military force capabilities and providing direction.
z
Providing recommendations to improve the host nation air/land/sea special operations
employment and sustainment methods.
z
Educating foreign military force senior officers and civilians to use special operations military
power.
z
Training foreign military forces to operate and sustain indigenous air/land/sea special operations
resources and capabilities.
z
Advising foreign military forces and governmental agencies how to employ air/land/sea forces in
operation situations.
z
Facilitating force integration for multinational operations.
z
Providing direct support to host nations by using air/land/sea resources for intelligence,
communications capability, and air or aviation support.
8 April 2014
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Chapter 12
CHECKLIST
12-44. To help commanders and staff in planning operations, the following checklist for fire support and
engineer support is provided.
FIRE SUPPORT PLANNING
z
What is the nature of the multinational operation? For example, is it littoral or land and air
phases?
z
Where does the operation lie in the range of military operations?
z
What is the likely scale of effort?
z
What are the development and dissemination of surface-to-surface and air-to-surface rules of
engagement (ROE)?
z
Are the ROE agreed upon and understood by multinational forces according to national caveats?
z
Are request procedures streamlined and tested?
z
What is the likely duration of the operation? What are the issues of rotation and sustainability?
z
Are there contingency measures to meet the requirement for increased force levels? Will it be
from national backfilling or fall under a call-up of reserves policy?
z
What is the intended end state and exit strategy?
z
What is the commander’s intent?
z
Is the national asset authority understood and agreed upon by multinational forces?
z
Where is the AO? Consider the climatic, terrain, cultural, political, languages, and socio-
economic issues.
z
What is the overall multinational force structure?
z
What capabilities are at the multinational level? Which will provide national support only?
z
What fire support assets are the multinational forces providing? What are their capabilities and
command status?
z
What is the desired fire support organization for early entry forces?
z
What is the deployment timeframe?
z
How will the deployment be carried out (land, air, or sea)?
Surveillance Target Acquisition
z
What situational understandings will the multinational force have?
z
Will there be a common operational picture? How will intelligence, surveillance, target
acquisition, and reconnaissance for maritime, land, and air units contribute to it?
z
How will intelligence, surveillance, target acquisition, and reconnaissance assets be coordinated
and tasked? What are the combat assessment requirements?
z
Is there a policy for unmanned aircraft over-flights of opposing forces before hostilities?
Delivery Systems
z
What is the desired order of arrival of fire support assets?
z
What are the characteristics, capability, and quantity of fire support assets, including range,
tactical, and operational mobility and authorized munitions?
z
What is the multinational policy for survey, meteorology, and calibration?
Weapons
z
What is the capability and interoperability of multinational munitions to include proofing
compatibility and ballistic data contained in fire control computers?
z
What are the planned ammunition stocks and expenditure rates?
z
What are the key interoperability constraints?
12-8
FM 3-16
8 April 2014
Operational Considerations for Multinational Forces
z
Are there any special ammunition handling, storage, and environmental considerations or
limitations?
z
Are the weapons dependent upon global positioning system signals for accuracy?
z
What is the status/accuracy of the global positioning system signal predicted to be during
operations?
z
Are there any occupational health and safety constraints?
z
Are volumetric (blast) munitions available? If so, what are the constraints on their employment?
z
What nonlethal weapons are available?
Command
z
What are the multinational levels of command?
z
What will be the command relationships for fire support assets?
z
What is the command arrangement for conducting multinational decisive and shaping operations
in longer range areas?
z
What are the intercomponent liaison arrangements?
Control
z
Will real estate requirements to support offensive operations be considered in the overall
deconfliction of real estate by the G-3/S-3?
z
What is the requirement for liaison officers on a 24-hours per day basis?
z
What operational environment control procedures deconflict air, aviation, indirect fire, and
unmanned aircraft system (UAS) assets?
z
What operational management requirements exist in relation to electronic warfare?
z
What are the multinational ROE before beginning hostilities and after committing the first
hostile act?
z
What is the policy for using indirect fire systems using nonprecision munitions in the ROE?
z
What is the policy for using obscurants and illumination in the ROE?
Communications and Information Systems
z
How will national communications and information systems be integrated?
z
What multinational bearer communications systems are used?
z
If automatic interfaces are unworkable, what will be the liaison officer requirements? How will
digitized and nondigitized forces operate together?
Logistics
z
What is the multinational policy on battle casualty replacement?
z
Based on identified operations winning equipment, what is the priority for repair of fire support
assets?
z
What will be the intratheater repair policy?
z
How will ammunition be tracked around the operations?
z
What are the national integrated logistics systems?
z
What key integrated logistics systems classify as a multinational system or capability?
z
Are there any commercial or national constraints on employing equipment?
Doctrine
z
Is there a common multinational fire support doctrine, including definitions and fire support
coordination procedures?
z
If no common multinational doctrine exists, what is the lead nation’s fire support doctrine?
z
What are the applicable ABCA armies standards and other standardization agreements?
z
What is the availability of doctrinal publications?
8 April 2014
FM 3-16
12-9
Chapter 12
Organization
z
What is the multinational structure and staffing?
z
What limitations are there on the national contingent structure?
Training
z
When will training occur? At home, en route to operation, or in a concentration area?
z
Will intratheater ranges be available?
z
What will be the policy on test firing weapon systems intratheater?
z
What part will simulators play in the transition to war training strategy?
z
What collective training will occur?
ENGINEER PLANNING
z
What are the engineer multinational tasks and the division of responsibilities to achieve those
tasks?
z
What is the engineer command structure for the mission?
z
Has a force engineer been appointed? What is the command, control, and coordination
authority?
z
What are the mission-specific training requirements and responsibilities?
z
What are the engineer coordination interfaces?
z
When will these coordination measures take effect?
z
What are the capabilities of the allies’ engineer forces? Have these capabilities been passed on to
other multinational forces?
z
Who is the lead nation and what force engineer capabilities are they providing?
z
What capabilities is the host nation providing?
z
What multinational documents and agreements apply to the mission, such as ABCA standards?
z
What are the technical standards for the mission and who is the technical authority?
z
What are the specific AO characteristics that affect interoperability, such as severe climatic
conditions?
z
Who is the lead nation for mapping? Who is maintaining the common map database?
z
What is the threat assessment for the enemy engineer force?
z
Are engineers involved in targeting to assess or estimate the work required to repair
infrastructure and utilities? Are engineers involved in clearing the area and route of mines and
unexploded explosive ordnance at the end of the hostilities?
z
What are the phases and flow of engineer units, capabilities, and materiel to the mission area to
support the plan?
z
Is this flow reflected in the multinational time-phased force and deployment list?
z
Are there any specific multinational engineer capabilities that could facilitate deployment?
z
Is there a clear multinational engineer control structure to facilitate force deployment and
reception?
z
What are the protection requirements?
z
Has a common multinational facilities survey been conducted and coordinated at the force
engineer level?
z
Is an engineer materiel management system in place?
z
What is the agreed command critical engineer resources list?
z
What are the multinational funding arrangements for multinational engineer tasks?
z
Are there engineer contracts with the host nation or other contractors?
z
What is the host nation actually providing in terms of engineer services?
z
How is engineer effort coordinated in the theater of operations?
z
What is the multinational engineer priority of work?
12-10
FM 3-16
8 April 2014
Operational Considerations for Multinational Forces
z
What are the control mechanisms to affect common engineer tasks in the multinational force?
Execution
z
Have the engineer mission, tasks, or both changed?
z
Have there been any modifications to the engineer command structure?
z
What are the ongoing new engineer support agreements?
z
What multinational documents and agreements apply to the mission, such as standardization
agreements and ABCA standards?
z
What are the engineer requirements in the information collection plan?
z
What, if anything, is the impact of nongovernmental organizations and civil affairs operations
activity in the theater of operations on the engineer plan?
z
What are the interoperability disconnects between multinational engineer partners? Are they
being addressed?
z
What are the intratheater engineer coordination mechanisms? Are these mechanisms capturing
lessons learned and informing all nations to allow intratheater adaptations to doctrine and new
problems?
z
Are there any host nation cultural constraints and restrictions that could impact multinational
engineer operations?
Redeployment
z
What are the environmental considerations?
z
What is the remediation plan?
z
How do engineers plan to hand over projects, facilities, and resources?
z
What host nation support or nongovernmental organizations will receive projects and facilities?
z
Is there any change to engineer command or control?
z
Is mission creep occurring in terms of engineer reconstruction tasks?
z
What engineer tasks are needed to facilitate redeployment?
z
What are the legal considerations for facilities and structures handover, taking cognizance of
international agreements, and protocol?
z
What are the civil affairs operations considerations?
z
What is the plan for phasing engineer redeployment?
z
Have the engineer lessons learned been captured, documented, and recorded?
Biometrics Planning
z
What are the national policies on collection, analysis, fusion, and dissemination of biometrics
information? What are the national caveats on data sharing, internally in the multinational force,
and externally with the host nation?
z
Have the biometrics communication and information systems requirements been made known to
the multinational forces planners?
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Who will be responsible for managing AO biometric-enabled intelligence and production of
biometric-enabled watch lists?
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What are the standards, profiles, concept of operations, standard operating procedures,
intelligence reports, and area operation standing orders for biometrics? If not present, who can
provide?
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What type of biometrics training/education, at various administrative levels, exists within the
military formation?
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Will theater of operations biometric information/data be available to support predeployment
training?
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Who will provide the authoritative source for biometrics data?
8 April 2014
FM 3-16
12-11
Chapter 13
Maritime Operations in Multinational Operations
This chapter begins by discussing the characteristics of maritime forces. It then
discusses the employment of maritime forces, maritime constabulary functions, and
operations in wartime. Lastly, the chapter provides a checklist for commanders and
staffs.
CHARACTERISTICS OF MARITIME FORCES
13-1. Multinational maritime operations cover a range of military activities undertaken by multinational
forces, in peacetime or in time of war, to exercise sea control or project power ashore. Maritime forces are
primarily navies. However, these forces also include maritime-focused air forces, amphibious forces, Army
watercraft and port terminal detachments, or other government agencies charged with sovereignty, security,
or constabulary functions at sea. When a situation requires that maritime, land, air, space, or a combination
of forces operate together, the operation is joint.
13-2. The qualities that characterize maritime forces as political and military instruments that support
government policies are readiness, flexibility, self-sustainability, and mobility. Maritime forces reassure or
support allies and friends, deter aggression, influence unstable situations, or respond to aggression.
MARITIME FORCE READINESS
13-3. One of the strengths of maritime forces lies in their availability to respond to contingencies. Maritime
forces provide a wide range of services to support peacetime operations by maintaining proficiency in the
capabilities necessary to resolve major conflicts.
MARITIME FORCE FLEXIBILITY
13-4. Maritime forces resolved many international crises since the end of World War II. The inherent
flexibility of maritime forces permits political leaders and commanders to shift focus on, reconfigure, and
realign forces quickly to handle various contingencies. Maritime forces provide a wide range of weapons
systems, military options, and logistics or administrative skills. Maritime forces control the seas and
provide diplomatic leverage in peace or times of crisis. They perform tasks ranging from forcible entry and
strike operations to noncombatant evacuation operations, disaster relief, and humanitarian assistance. The
excellent strategic and tactical command, control, and communications capabilities of maritime forces
provide for a distinctly controlled force that complements diplomatic efforts. Maritime forces offer
presence without occupation and deterrence without commitment. They represent a worldwide, balanced,
and autonomous intervention capability that employ nationally or multinationally.
MARITIME FORCE SELF SUSTAINABILITY
13-5. Although the nature of the operation and the types of units committed by the participants determine
the degree of self-sustainment achievable by a multinational force, maritime forces operate in forward areas
at the end of long supply lines without significant land-based supply structure. With replenishment-at-sea,
on-station replacement of personnel and ships, and the resilience of ships (their ability to sustain damage
and continue the mission), maritime operations may continue indefinitely.
8 April 2014
FM 3-16
13-1
Chapter 13
MARITIME FORCE MOBILITY
13-6. Maritime forces are less constrained by political boundaries than air or ground forces. Maritime
forces deploy virtually anywhere in the world and transit the seas according to international law. With their
strategic, operational, and tactical mobility, maritime forces—
z
Monitor a situation passively.
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Remain on station for a sustained period.
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Respond to a crisis rapidly.
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Deploy in combat with authority.
13-7. Mobility enables maritime forces to respond from over the horizon, becoming selectively visible and
threatening to adversaries as needed. If diplomatic, political, or economic measures succeed, maritime
forces withdraw without further action ashore. Maritime forces respond to indications of pending crises by
relocating rapidly from one end of the theater of operations to another or from one theater of operations to
another, usually independent of fixed logistics. In combat, the ability to position maritime forces quickly
provides commanders with a significant tactical and operational advantage.
EMPLOYMENT OF MARITIME FORCES
13-8. Maritime forces are forces that operate on, under, or above the sea to gain or exploit command of the
sea, sea control, or sea denial and/or to project power from the sea. These forces ensure continued,
unhindered, and unrestricted use of the sea to further national or shared interests and objectives. The
following paragraphs discuss the nature of maritime force employment in peace and war. The distinctions
drawn between peacetime and wartime operations are not clear-cut in many instances.
OPERATIONS IN PEACETIME
13-9. Maritime forces lend themselves well to various peacetime operations, which differ from wartime
operations in some respects. Although in some situations, peacetime operations influence governments and
military forces (presence and deterrence), these operations influence nonnational entities, such as criminal
organizations and transnational groups. Nongovernmental and nonmilitary organizations have experience
and finances to conduct certain operations and are involved in peacetime operations to varying degrees.
Maritime forces recognize the contributions they bring to an operation. In some contingencies, maritime
forces operate more in a supporting or enabling role, contributing a supply of well-trained and equipped
personnel who adapt and sustain themselves. Peacetime operations have a varying mix of security,
humanitarian, and environmental components and are grouped under the following headings.
Presence and Deterrence
13-10. The presence of maritime forces avoids confrontation and supports political aims without
necessarily violating national sovereignty. Maritime forces strengthen diplomatic efforts by “showing the
flag” (presence) in a benign fashion. This shows interest and latent capability and prevents emerging
conflicts. Alternately, maritime forces deter against specific actions. Maritime forces “shield” states at their
request by establishing an at-sea presence in territorial seas. This provides a “trip-wire” function in
threatened areas. These operations are fraught with danger because not all parties cooperate with or refrain
from challenging such deployments. Nevertheless, using maritime forces is less intrusive than using land-
based forces.
Peace Operations
13-11. Peace operations cover a range of activities including conflict prevention, peacemaking,
peacekeeping, peace enforcement, and peace building. Using maritime forces in peace operations
complement land forces and involve a considerable range of tasks. These tasks include the following:
z
Monitoring or observing cease-fires.
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Interpositioning between the maritime forces of belligerents.
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Establishing disengagement zones.
13-2
FM 3-16
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