Military

6-24.   The CA role in FNS is one of support to the commander's logistics function. General CA soldier tasks include-

• Identifying or validating sources of FNS.
• Consulting, enforcing, or monitoring existing FNS agreements.
• Assisting in the agreement process where no FNS agreements currently exist or modification is needed.
• Tracking costs associated with use of FNS assets.
• Performing quality-control assessments of FNS products, services, and associated costs.
• Assisting in the arbitration of problems arising from the use or misuse of FNS.

6-25.   CA specialties that participate in FNS include international law, public administration, public health, transportation, civilian supply, economic development, food and agriculture, environmental services, and others according to METT-TC. Appendix H provides a more detailed look at CA strategic, operational, and tactical considerations in FNS. The following examples describe coordination at the tactical level for various services.

POPULACE AND RESOURCES CONTROL

6-26.   Military operations are rarely conducted in a vacuum that is free of civilian presence or influence. No matter the operational environment, combat operations can be disrupted by-

• Uncontrolled and uncoordinated movement of frightened civilians about the battlespace.
• Uncontrolled and uncoordinated movement of civilians conducting legitimate activities.
• Illegal or illegitimate activities such as insurgent operations or black-market activities.

6-27.   The PRC activity consists of two distinct, yet linked, components: populace control and resources control. These controls are normally a responsibility of indigenous civil governments. They are defined and enforced during times of civil or military emergency. For practical and security reasons, military forces employ populace control measures and resources control measures of some type and to varying degrees in military operations across the spectrum of operations. PRC operations are executed in conjunction with, and as an integral part of, military operations.

6-28.   These provide security for the populace, mobilize human resources, deny personnel to the enemy, and detect and reduce the effectiveness of enemy agents. Populace control measures include curfews, movement restrictions, travel permits, registration cards, and resettlement of villagers. DC operations and NEOs are two special categories of populace control that require extensive planning and coordination among various military and nonmilitary organizations.

6-29.   These regulate the movement or consumption of materiel resources, mobilize materiel resources, and deny materiel to the enemy. Resources control measures include licensing, regulations or guidelines, checkpoints (for example, roadblocks), ration controls, amnesty programs, and inspection of facilities.

6-30.   The CA role in PRC is one of support to the commander's operations function. General CA soldier tasks include-

• Identifying or evaluating existing HN PRC measures.
• Advising on PRC measures that would effectively support the commander's objectives.
• Recommending command guidance on how to implement PRC measures.
• Publicizing the control measures among indigenous populations and institutions.
• Assessing the effectiveness of the measures.
• Participating in the execution of selected PRC operations and activities, as needed or directed.
• Assisting in the arbitration of problems arising from the implementation of PRC measures.

6-31.   CA specialties that participate in PRC include international law, public administration, public safety, transportation, public works and utilities, civilian supply, economic development, food and agriculture, civil information, cultural relations, DCs, emergency management, environmental services, and others according to METT-TC. Appendix H provides a more detailed look at CA strategic, operational, and tactical considerations in PRC.

6-32.   DC operations pertain to those actions required to move civilians out of harm's way or to safeguard them in the aftermath of a disaster. The disaster may be natural, as in a flood or an earthquake, or man-made, as in combat operations, social or political strife, or technological hazard emergency.

6-33.   DC operations include the planning and management of DC routes, assembly areas, and camps. They also include the HA support to the affected populace. Appendix I discusses techniques in DC operations.

6-34.   DC operations may occur in conjunction with military (combat) operations. They may also occur as a separate CMO mission supporting civil administration operations.

6-35.   In all DC operations, controlling agencies must care for the basic needs of the DCs-food, water, shelter, sanitation, and security. Controlling agencies also must be prepared to prevent or arrest the outbreak of disease among the DCs. This last point is important for the health of the populace, as well as the health of military forces.

6-36.   During military operations, U.S. forces must consider two distinct categories of civilians-those who remained in place and those who are dislocated. The first category includes the civilians who are indigenous to the area and the local populace, including civilians from other countries. The civilians within this category may or may not need help. If they can take care of themselves, they should continue to remain in place.

6-37.   DCs are civilians who left their homes for various reasons. Their movement and physical presence can hinder military operations. They most likely require some degree of aid, such as medicine, food, shelter, clothing, and similar items. DCs may not be native to the area or to the country in which they reside. DC is a generic term that is further subdivided into five categories. These subcategories are defined by legal and political considerations as follows:

• Displaced person: A civilian who is involuntarily outside the national boundary of his country in time of war.
• Refugee: A civilian who has left home to seek safety because of real or imagined danger.
• Evacuee: A civilian removed from his place of residence by local or national military order.
• Stateless person: A civilian who has been denationalized or whose country of origin cannot be determined or who cannot establish his right to the nationality claimed.
• War victim: A classification created during the Vietnam era to describe civilians suffering injuries, loss of a family member, or damage to or destruction of their homes as a result of war. War victims may be eligible for a claim against the United States under the Foreign Claims Act.

6-38.   The status of individual DCs is not always clear, even to those in the international community or the UN who routinely address DC problems, as the following examples illustrate:

6-39.   The CA role in DC operations is one of support to the commander's operational function and to the administration of DC control measures. General CA soldier tasks include-

• Identifying or evaluating existing HN and international community DC plans and operations.
• Advising on DC control measures that would effectively support the military operation.
• Advising on how to implement DC control measures.
• Publicizing the control measures among indigenous populations and institutions.
• Assessing the effectiveness of the measures.
• Participating in the execution of selected DC operations and activities, as needed or directed.
• Assisting in the arbitration of problems arising from the implementation of DC control measures.

6-40.   CA specialties that participate in DC operations include international law, public administration, public health, public safety, public communications, transportation, public works and utilities, civilian supply, food and agriculture, civil information, cultural relations, DCs, emergency management, environ-mental services, and others according to METT-TC. Appendix H provides a more detailed look at CA strategic, operational, and tactical considerations in DC operations. Appendix B of FM 41-10 and Appendix I of this FM provide additional information on conducting DC operations. The following examples describe tactical-level coordination for DC operations and control of DC traffic.

6-42.   NEOs refer to the authorized and orderly departure of noncombatants from a specific area by the DOS, DOD, or other appropriate authority. Although normally considered in connection with combat operations, evacuation may also be conducted in anticipation of, or in response to, any natural or man-made disaster in a foreign country, including civil unrest when evacuation to safe havens or to the United States is warranted.

6-43.   DOD defines noncombatant evacuees in two primary categories:

• U.S. citizens who may be ordered to evacuate by competent authority, including-
• Civilian employees of all agencies of the USG and their dependents.
• Military personnel of the U.S. Armed Forces specifically designated for evacuation as noncombatants.
• Dependents of members of the U.S. Armed Forces.
• U.S. (and non-U.S.) citizens who may be authorized or assisted (but not necessarily ordered to evacuate) by competent authority, including-
• Civilian employees of USG agencies and their dependents, who are residents in the country concerned on their own volition, but express the willingness to be evacuated.
• Private U.S. citizens and their dependents.
• Military personnel and dependents of members of the U.S. Armed Forces outlined above, short of an ordered evacuation.
• Designated aliens, including dependents of civilian employees of the USG and military personnel of the U.S. Armed Forces, as prescribed by the DOS.

More information is contained in JP 3-07.5, Joint Tactics, Techniques, and Procedures for Noncombatant Evacuation Operations.

6-44.   NEOs remove threatened civilians from locations in an FN or an HN to safe areas or to the United States. Such operations are conducted under the direction of the DOS. The United States employs military assets in an evacuation only when civilian resources are inadequate. The DOS may request help in conducting evacuations to-

• Protect U.S. citizens abroad.
• Reduce to a minimum the number of U.S. citizens at risk.
• Reduce to a minimum the number of U.S. citizens in combat areas to avoid impairing the combat effectiveness of military forces.

6-45.   NEOs may be ordered for implementation in any of the following environments:

• Permissive. NEOs are conducted with the full help and cooperation of the affected nation. Evacuation of noncombatants is mutually beneficial to friends and allies. The political stability of nations granting authority to evacuate noncombatants is secure. An example of a permissive NEO was the evacuation of Subic Bay and Clark Air Base in the Philippines after the eruption of Pinatubo Volcano.
• Uncertain. NEOs are conducted where overt or covert opposition to the evacuation exists. The opposition may come from the "host" government, from opposition forces, from outside forces, or from all three. Usually, a military show of force is sufficient to maintain control of the situation.
• Hostile. Operations to prevent or destroy the NEO are occurring or can be expected to occur. Forced entry by military forces into the AO may be required, and as a minimum, combat operations to secure some evacuees can be anticipated. A good example of a hostile evacuation is the evacuation of the U.S. Embassy in Saigon, Republic of Vietnam, in 1975.

6-46.   The DOS is the lead agency for planning and conducting NEOs. The Chief of Mission, normally the U.S. Ambassador or other principal DOS officer-in-charge, has the primary responsibility for conducting evacuation operations. Every U.S. Embassy must maintain a NEO plan. DOS in Washington, DC, maintains a copy of these plans. The Washington Liaison Group coordinates evacuation planning between DOS, DOD, and other affected agencies.

6-47.   NEOs are a political last step because they send a signal to the world that the United States has lost faith in the ability of the foreign government to protect U.S. personnel. The U.S. military plays only a supporting role in the implementation of a NEO. Military commanders have primary responsibility for the military involvement of the operation. This involvement could include support during all phases of a NEO. Military planners must consider the terrain, weather, hydrography, designation and number of evacuees, and other factors of the area, including dissidents.

6-48.   The CA role in a NEO is one of support to the commander's operational function and to the administration of certain aspects of the NEO. General CA soldier tasks include-

• Participating in the writing and coordination of NEO plans.
• Identifying, validating, or evaluating HN and international community resources designated for use in the NEO.
• Participating in the execution of selected NEO activities, as needed or directed.
• Assisting in the arbitration of problems arising from the implementation of NEO plans.

6-49.   CA specialties that participate in NEOs include international law, public administration, public health, public safety, public communications, transportation, civilian supply, civil information, cultural relations, DCs, emergency management, and others according to METT-TC.

HUMANITARIAN ASSISTANCE

6-50.   HA encompasses programs conducted to relieve or reduce conditions that present a serious threat to life or that can result in great damage to or loss of property. These conditions may be the results of natural or man-made disasters, including combat operations, or they may be endemic to an area. Examples of disasters include hurricanes, earthquakes, floods, oil spills, famine, disease, civil conflicts, terrorist incidents, and incidents involving WMD.

6-51.   HA programs are normally the responsibility of the HN civil authorities. In addition to, or sometimes in lieu of, HN HA efforts, literally hundreds of NGOs from around the world respond to disasters to provide HA in various forms and for varied duration.

6-52.   The HA activity refers to the assistance provided by U.S. military forces. HA can occur as part of DSO in CONUS and U.S. territories and possessions. HA in DSO normally involve Army National Guard (ARNG) and Air National Guard (ANG) units operating in their state role. They may also involve Active Army and RC units, including ARNG and ANG units in a federal status, when authorized and directed by the SecDef.

6-53.   To differentiate foreign from domestic HA operations, JP 3-57 and JP 3-07.6, Joint Tactics, Techniques, and Procedures for Foreign Humanitarian Assistance, refer to those operations conducted outside the United States, its territories, and possessions, as foreign humanitarian assistance. This discussion will use the term HA for both domestic and foreign operations.

6-54.   HA provided by U.S. forces is limited in scope and duration and is intended to supplement or complement the efforts of the agencies that have the primary responsibility for providing HA. U.S. military participation in HA operations can range from providing security (allowing civilian agencies to operate safely and uninhibited) to providing specific military capabilities applied in direct disaster relief roles (providing food and medical care, constructing basic sanitation facilities, repairing public facilities, and constructing shelters and temporary camps).

6-55.   HA operations are inherently complex operations that require a significant amount of interagency coordination. HA is directed from the strategic level, coordinated and managed at the operational level, and conducted at a tactical level. HA operations require centralized coordination and control. Two organizations that aid in coordination and control are the HACC and the HOC.

6-56.   The HACC is a temporary center established by a geographic combatant commander to assist with interagency coordination and planning. Much like a CMOC with an HA focus, a HACC operates during the early planning and coordination stages of HA operations by providing the link between the geographic combatant commander and other USG agencies, NGOs, and international and regional organizations at the operational level.

6-57.   The HOC is an interagency policymaking body that coordinates the overall relief strategy and unity of effort among all participants in a large HA operation. The HOC is normally established under the direction of the government of the affected country, the UN, or a USG agency during a U.S. unilateral operation. The HOC should consist of representatives from the affected country, the U.S. Embassy or Consulate, the joint force, the UN, NGOs and international organizations, and other major players in the operation.

6-58.   A special form of HA is HCA. HCA is assistance provided to the local populace by predominantly U.S. forces in conjunction with military operations and exercises supporting TEPs. This assistance is specifically authorized by Title 10, USC, Section 401, and is funded under separate authorities. Assistance provided under these provisions is limited to-

• Medical, dental, and veterinary care provided in rural areas of a country.
• Construction of rudimentary surface transportation systems.
• Well drilling and construction of basic sanitation facilities.
• Rudimentary construction and repair of public facilities.

6-59.   A special condition of HCA operations is that they must fulfill valid unit training requirements. The fact that HCA operations incidentally create humanitarian benefit to the local populace is secondary. These operations are distinctly different from MCA projects, which are discussed later in this chapter.

6-60.   The CA role in HA is one of support to the commander's operational function and to the administration of certain aspects of the HA operation. General CA soldier tasks include-

• Participating in interagency assessment, planning, and synchronizing of HA operations.
• Identifying, validating, or evaluating HN and international community resources designated for use in the HA operation.
• Participating in the execution of selected HA activities, as needed or directed.
• Tracking costs associated with execution of HA.
• Performing quality control assessments of HA activities and costs.
• Assisting in the arbitration of problems arising from the execution of HA operations.

6-61.   All CA specialties may participate in HA according to METT-TC. FM 41-10 includes a discussion of the HA environment and the various USG programs under which HA is administered. JP 3-07.6 contains additional information. Appendix H of this FM provides a more detailed look at CA strategic, operational, and tactical considerations in HA. The following examples describe tactical-level coordination for HA operations.

MILITARY CIVIC ACTION

6-62.   MCA is the use of preponderantly indigenous military forces on projects useful to the local population. These projects occur at all levels in such fields as education, training, public works, agriculture, transportation, communications, health, sanitation, and others that contribute to economic and social development of the area. An essential feature of MCA is that the projects also serve to improve the standing of the indigenous military forces and the indigenous government with the population.

6-63.   The MCA activity consists of employing U.S. military forces in a military-to-military role of advising or training foreign military forces in MCA projects in overseas areas. These projects are arranged by international agreement and may be supported by USG programs for HA, as discussed in FM 41-10.

6-64.   MCA projects are divided into two general categories. These categories are explained below:

• Mitigating MCA projects are immediate-response, short-term projects designed to provide emergency assistance to a populace in the wake of a disaster and to reduce further damage or suffering, as in HA. The disaster could be from natural causes, such as earthquake, hurricane, famine, or flood, or from man-made causes, such as civil disturbance, accident, terrorism, or war. Some examples of mitigating MCA projects are-
• Operating an emergency medical clinic.
• Distributing food.
• Building temporary shelter and sanitation facilities.
• Conducting damage clean-up operations, including decontami-nation of HAZMAT spills or release of WMD.
• Developmental MCA projects are long-term projects designed to enhance the infrastructure of a local area. They are often preventive in nature and include any activities that actually eliminate or reduce the probability of occurrence of a disaster. Developmental MCA projects require interagency cooperation and continuous support from government sources to be effective. Some examples of developmental MCA projects are-
• Building or redesigning facilities to reflect better land-use management.
• Building or reinforcing structures to withstand the destructive elements predominant to the area.
• Building or rehabilitating water sources and sanitation facilities to eliminate or prevent the spread of disease.
• Operating a long-term public health campaign to educate the populace on preventive health measures (a medical readiness training exercise [MEDRETE]).
• Conducting some HMA programs.

6-65.   The CA role in MCA is one of support to the commander's operational function. General CA soldier tasks include-

• Identifying, validating, or evaluating MCA project nominations.
• Synchronizing MCA projects with other programs, both military and civilian.
• Participating in the execution of selected MCA activities, as needed or directed.
• Tracking costs associated with execution of MCA projects.
• Performing quality-control assessments of MCA activities and costs.
• Assisting in the arbitration of problems arising from the execution of MCA operations.

6-66.   All CA specialties may participate in MCA according to METT-TC. Appendix H provides a more detailed look at CA strategic, operational, and tactical considerations in MCA.

EMERGENCY SERVICES

6-67.   The emergency services activity, formerly known as civil defense, encompasses the combined emergency management authorities and policies, procedures, and resources of local, state, and national-level governments to mitigate, prepare for, respond to, and recover from disasters of all kinds. In the aftermath of a disaster, this effort includes incorporating voluntary disaster relief organizations, the private sector, and international sources into a national response network.

6-68.   One of the basic responsibilities of civil government is to support its citizens in times of disaster. This responsibility means addressing the complex and constantly changing requirements associated with natural, man-made, and technological disasters: saving lives, protecting property, meeting basic human needs, restoring the disaster-affected area, and reducing vulnerability to future disasters. This responsibility normally begins at the local level and elevates incrementally to the national level. Figure 6-2, depicts a national disaster response network, as described in the Federal Emergency Management Agency (FEMA) national response plan. Natural disasters include the following:

• Hurricanes.
• Tornadoes.
• Floods.
• Earthquakes.
• Volcanoes.
• Forest fires.
• Droughts.
• Severe winter storms.

Man-made disasters include the following:

• Wars.
• Terrorist attacks.
• WMD use.
• Civil disturbances.
• Major transportation (air/rail/sea) accidents.

Technological disasters include the following:

• Nuclear accidents.
• Industrial fires and explosions.
• HAZMAT spill or release.
• Power outages.
• Communications failures.