Most operations other than war do not involve clear lines of command and control for all agencies (foreign and domestic) participating in the operation. Often military commanders and their units contribute towards the final objective instead of leading the way. In this regard, the concept of unity of command gives way to the concept of unity of effort. All actions by all agencies should support success of the overall mission. The overall goal is for all actions to contribute to unity of the effort.

Legitimacy is relative. Some people will always support a US political-military operation; others will always oppose it. The balance, however, is likely to shift

The way the division conducts its operations will shape both domestic and foreign public opinion. Use of force must be seen as necessary only after peaceful means have been exhausted. The violence employed must be proportional to the threat; it must never be seen as excessive. Military public affairs and PSYOP, through their communications and information channels, can support legitimacy of the division's operation by explaining Army actions.

Equally important is the legitimacy of the host nation government-the willingness of the population to accept the right of the government or other group or agency to make and enforce decisions. Popular vote does not always confer or reflect legitimacy. It derives from the perception that authority is genuine and effective and uses proper agencies for reasonable purposes. Legitimacy is the central concern of all parties directly involved in a conflict. It is also important to parties involved indirectly.

Rules of engagement (ROE), when properly prepared and applied, clarify the proper restraint necessary to aid in accomplishing the mission. ROE may be prepared by the division commander or promulgated by higher authority. They are designed to protect the force, to prevent escalation of hostilities, and to avoid casualties. Although ROE are determined by the factors of METT-T, they may or may not

Operations other than war are normally executed in response to a political directive, such as a resolution of the United Nations Security Council. The directive provides the authority for and limits of military action. The staff judge advocate assists the division commander and G3 in preparation of ROE. His recommendations are based on the authoritative political and appropriate legal directives.

The rules of engagement should provide first for the protection of the force. Then, they should authorize such coercive options as may be required and appropriate while avoiding casualties and unnecessary property damage. Generally the purpose of OOTW is not to destroy an opponent's capability, but to change his behavior, stabilize the situation, and return life to "normalcy."

Regardless of their mission, commanders secure their forces. The presence of division forces in any operation around the world evokes a wide range of actions and

Conflict resolution is a time-consuming process and military support may require a long-term commitment. A conflict may continue for months, years, or decades. Division elements employed in OOTW must exercise patience and perseverance to continue the mission for as tong as it takes.

Operations in an environment of conflict may not lead to a conclusive victory. Instead, such operations may be reduced gradually in scope and eventually ended without significant measurable result. However, even limited success in OOTW is preferable to war. The division must be patient, adaptable, and determined to support national policy for as long as may be necessary. Success of operations in conflict comes from avoiding the pitfalls depicted in Figure 8-3. Success also comes from an understanding of the cause of the conflict, a consistent concern for legitimacy, the determination to persevere for the long haul, the patient use of restraint, and a continuing explanation of Army actions to all interested publics.

Division forces may deploy to support OOTW activities as individual units, or as task forces. The division may deploy as a whole unit during large-scale disaster relief efforts or deploy as a single unit in a peacekeeping operation. Whatever the mission, commanders task-organize their forces for operations, normally as a component of an interagency, a joint, or a multinational operation. The following paragraphs discuss specific considerations within each battlefield operating system.

Tailored Intelligence

In OOTW, as in war, the intelligence cycle continues to be to plan and direct, collect, process, produce, and disseminate information and intelligence products. The division's intelligence staff tailors traditional products to meet specific needs of commanders conducting OOTW missions. Care is taken to ensure intelligence activities do not violate US law pertaining to both military intelligence actions in CONUS and to US citizens overseas.

Greater Human Intelligence

OOTW will often cause a greater reliance on and access to HUMINT. Contacts with host nation, governmental agency, and multinational personnel will result in overtly collected HUMINT intelligence and other information which is of value to commanders.

Sharing of Intelligence

Downgrading and sharing US intelligence with non-DOD US agencies as well as military and non-military multinational organizations challenges commanders and their intelligence staffs at all levels. Special arrangements and specific guidelines must be established to meet this need.

Intelligence Preparation of the Battlefield

Missions in operations other than war, as in war, require intelligence preparation. The IPB process applies in OOTW; however, its focus is on terrain, weather, and socio-political issues as well as on the threat. In some cases, the threat may not be "enemy personnel," but factors such as underlying causes of instability or extant conditions in the host nation.

Training

The division considers training with both US and non-US agencies who will be involved in the operation. This training may occur prior to deployment or in the area of operations after deployment. Such training may include (but is not limited to) tactics, techniques, and procedures; nation assistance; cultural and environmental issues; liaison; and vehicle and equipment maintenance.

Fire Support

Lethal Fires

When considering the use of lethal fires and the deployment of fire support systems, commanders carefully weigh protecting their force with METT-T. OOTW missions rarely lead to the deployment of large amounts of heavy weapon systems. The political nature of OOTW makes precision fires critical and ROE often restrict the use of lethal fires. Planning and delivery of fires must preclude fires on protected targets, unwanted collateral damage, and political ramifications of perceived excessive fire. Mortars, due to their smaller bursting radius, may reduce collateral damage. Mortars may provide illumination rounds to demonstrate deterrent capability, observe contested areas, support friendly base security, or assist patrolling maneuver forces. Division commanders rely heavily on joint fire support and precision munitions, using systems such as AC 130 aircraft, attack helicopters, and tactical air when increased combat power is required to respond to a significant change in the situation.

Nonlethal Fires

Because division activities in OOTW support political objectives, commanders pay close attention to the use of information. Information affects both political and military objectives. Military PSYOP, civil affairs, and public affairs are the division commander's primary means of communicating to foreign and internal

The division considers requirements and augmentation for general engineering. These may include planning for reconstruction and new construction of transportation and public utilities, such as public hygiene facilities, waterworks, sewage treatment, telephone, and power plants and facilities. In some operations, division engineers may be asked to clear mines and provide limited vertical and horizontal engineering construction.

The division's air defense officer coordinates and recommends to the commander appropriate integration of joint and multinational air defense systems. He should consider the availability, coverage, capability, and interoperability of joint, host nation, and multinational air defense assets. If reliable air defense is available from other sources in country, the commander may choose to rely on them as opposed to deploying additional divisional and nondivisional assets. This is especially useful if an in-country troop ceiling exists. Additionally, the commander ensures that detailed air defense ROE are established and deploying forces undergo specific hostile aircraft identification training.

Combat Service Support

Environmental Conditions

Logistics plays an important role in OOTW. Often OOTW missions occur with short notice and in austere environments. These conditions stress and stretch the division's CSS capabilities.

Transportation Services

Division planners consider requirements and augmentation for transportation services. These services may include

Health Support

Traditionally, OOTW missions require extensive health support. The division plans for increased preventive medicine and veterinarian services. A tailored medical support unit will be configured considering the stated mission and objective within the framework of local as well as US legal requirements. (See Appendix E and FM 8-18.)

Law and Order

OOTW may require additional military police (MP) for the division. When required, the corps MP brigade augments division MPs for law and order support. MPs conduct joint patrols with host nation or multinational forces to maintain order, evaluate host law enforcement operations, as well as conduct security operations. (Note, however, that the Foreign Assistance Act of 1961 forbids the military from training host nation police.) Division MPs will establish liaison with local host nation police.

Funding and Contracting

Funding and contracting for host nation (or another nation's) support require special planning and attention by resource managers, S5 and G5, division staff judge advocate, and the supporting finance battalion commander. Additionally, these officers determine contracting procedures to be used in the assigned AO.

The division contracting officer works closely with the G4, G5, division engineer, and DISCOM commander to determine contracting requirements prior to, during, and after the operation.

Staff Judge Advocate

The division SJA advises commanders and 63 and S3 on legal limitations and Title X restrictions concerning the use of forces. The SJA receives the JTF or corps ROE from the division 03. He recommends changes to the division commander and 03. The SJA works with the division staff and subordinate commanders to ensure that ROE support the operation.

Rules of Engagement

Generally, ROE explain the circumstances and

Detailed ROE and self-protection often appear as an appendix to the division's OPORD. (Additionally, commanders often publish and distribute pocket-sized ROE card for soldiers to carry.) ROE prevent indiscriminate use of force or other violations of law or regulations. ROE and self-protection issues include:

• Proper conduct and regard for the local area population.

• Proper respect and actions regarding private and public property.

• Use of deadly force, appropriate actions prior to using deadly force, and situations where deadly force is not appropriate.

• Use of unattended means of force (such as mines and booby traps).

• Restrictions on employing certain weapons in the area of operation.

• Confiscation and use of non-US weapons and property.

• Use of riot control agents.

• Detention and handling of various categories of people.

Personnel

The 61 continues to provide routine personnel support to the division. For OOTW missions, the 61 initially focuses on unit strengths and low density military occupational specialties (MOSs) that may be critical to the particular mission. Language or specific skills (such as medical, legal, religious, or cultural) may require augmentation.

Logistics

The G4 monitors the division's logistics status. The G4 compiles detailed estimates for all classes of supply and equipment. He determines what prescribed load lists (PLLs) are critical and recommends increases in quantities to the division commander. The G4 also estimates the type and amount of support needed and available from the Army service component command or other agency within the AO.

For disaster relief or humanitarian assistance missions, the G4 may assume a leading role in division. These operations revolve around the distribution of food and supplies, shelter, and medical evacuation and support. The division's logistics system may be required to coordinate with many agencies and distribute large quantities of government and nongovernment supplies.

Civil Affairs Staff

The G5 reviews regional studies of AOs and, through the G3, coordinates for, and recommends to the commander appropriate use of, civil affairs. The G5 also examines needs assessments conducted for the AO to see what units must actually do and requests PSYOP in support of CA-related activities. The G5 identifies the NH agency responsible for the operation, the level of HN participation, and points of contact within the HN government.

Command and Control

Decision Making

Divisions use the military decision-making process described in FM 101-5 as a framework for collecting information, analyzing possible courses of action, and making good decisions. Although operations other than war may differ in orientation from traditional combat missions, the military decision-making process is still used (and may be expanded or modified) to make decisions in an OOTW environment.

Assumptions

The division staff develops assumptions needed to replace necessary, but missing, facts and to facilitate planning. Assumptions developed during the initial

• Limits on deployed personnel.

• Availability and type of transportation assets.

• Force protection requirements.

• Training requirements.

• SOF participation.

• Security assistance organization (SAO) role.

• Use of reserve component forces.

• Other US government agencies' roles.

• Lodgment sites and responsibilities.

• Host nation requirements and expectations (OCONU S).

• Political and social implications of the division's actions.

• Funding and special equipment requirements.

Public Affairs

The role of public affairs and coordination with news agencies will be important to how the division is viewed and to the perceived success of each operation. In OOTW, the PAO may be the centerpiece of the commander's special staff officers because of the nature of OOTW and the principle of legitimacy, which can be greatly influenced in an OOTW environment.

Agency Coordination

Support to US civil authorities, other than counterdrug operations, is usually a crisis response, but in either case, US government agencies may have the lead in planning and employing division assets. Once committed, the divisions normally initiate direct coordination with local government agencies (such as Federal Emergency Management Agency (FEMA), US Forestry Service, US Coast Guard, or Foreign Relief Agency) to analyze their plans, receive their guidance, and make recommendations. This coordination is always performed through the division CMOC.