Provincial Reconstruction Team (PRT) Playbook
Handbook 07-34
September 2007
Best Practices
Appendix D
Governance and Rule of Law
Provincial government (PG) mentorship program
How does the provincial reconstruction team ( PRT ) develop/influence leaders at the PG to practice good governance and to accelerate reconstruction and development?
Provinces often lack enough qualified people to fill positions in the PG. The basic executive, managerial, and technical skills required for provincial ministerial director positions often need to be developed on the job. As a result, the PRT must build the needed institutional capacity within the existing PG.
PRTs can address this problem by creating a mentorship program. This program would link peer mentors (select members of the PRT and the adjacent maneuver unit staffs) with key members of the PG.
Program managers can be selected from both the PRT and PG staffs to shape the mentorship program and scope the main objectives. The PRT must conduct an internal talent assessment to inventory available skills and experience available within the PRT and adjacent maneuver units. The PRT and maneuver unit commanders, working with the governor if possible, can then assess the PG to establish a priority of effort targeted at key positions. The program managers then develop a structured plan and match available resources to PG staff for capacity building.
Suggested approach
Develop the scope of the program, select your team, and gain PG buy-in.
• Selecting a program manager. Select a program manager early within the PRT to shape the program and guide its initial launch. Although the PRT commander should provide his intent and shaping guidance, he should not take the lead on this project. Launching and running a successful program will require significant effort that will likely conflict with the PRT commander’s other activities. Ideally, a counterpart within the PG should co-lead the program. This could be the governor, the chief of administration, or someone within a staff that has significant knowledge of and influence over peer directors.
• Assess internal resources (talent inventory). Assess internal resources to determine available skill sets. Consider personnel outside the PRT organization, expanding the screening process to co-located maneuver and support units or nearby forward operating bases.
• Gain PG buy-in. This program requires “top-down” support from the provincial governor and key ministry directors. However, the program manager and PRT commander should understand their available resources and skill sets before approaching the provincial governor with this program. Using output from the skills inventory, a detailed understanding of available PRT and maneuver unit staff will allow the PRT to set realistic expectations and help guide the subsequent matching of mentors with appropriate provincial staff. This initial analysis supports the first discussions and manages expectations of the governor and key PG staff on the scope of the mentoring program and level of expertise available at the PRT and nearby military units.
• Assess PG and key staff. When making this assessment, the program manager should consider both the available staff and the province’s critical needs. Assessing the critical needs of the province includes key ministry directors and their respective capacities.
• Launching the program. Once the PG agrees with the scope, approach, and goals of the program, implementation of the mentorship program can begin.
• Kick-off meeting. Launching the program with clear direction and a robust plan increases the likelihood of success. It is important to ensure the program objectives are clear and shared, roles are defined, and both mentors and counterparts understand the processes for interaction.
• Initial meetings. Matching mentors with the appropriate counterparts is a key initial task. As the host country has a specific type of society, culture, and education level, consideration should be given to matching mentors with appropriate counterparts. Matching a younger Soldier or staff with a much older counterpart is unlikely to be effective. These relationships would be better positioned from the outset as supporting or technical-skills-transfer relationships rather than as management-mentor relationships.
• Coordination with governor. Throughout the entire process, the PRT coordinates all efforts with the PG to ensure unity of effort. Additionally, the PRT can use this event as a teaching and mentoring tool to show the PG that local leaders can solve key issues of importance to the PG and the local people.
• Ongoing collaboration. One approach is to focus the collaboration around a specific project. However, the mentor should resist the urge to take over doing the work. The mentor should help his counterpart to develop and consider options for solving problems.
• Program evaluation and internal reviews. The program manager should set out a system to evaluate progress against established and agreed-to criteria. Effectiveness of the mentor-counterpart relationship is assessed by the provincial governor, PRT commander, the PG, and PRT program manager.
• Transition plan. Ideally, mentor-counterpart relationships should be transitioned to incoming PRT and maneuver units based an internal assessment of the people on the new team (see “Assess internal resources” above). Priority should be to cover the key positions in the PG, as significant benefits come from continuity in coaching PG members to be better managers. Specific technical subject-matter expertise for mentoring line ministry skills may not be available in the next PRT . The PRT should maintain awareness of other experts within the wider community (other PRT staffs, Combined Joint Task Force [CJTF] and other staffs, as well as in the interagency community). However, the main focus of the mentoring program involves the transfer of basic management skills. As this basic mentoring does not require specific subject-matter expertise, it should be possible to match incoming staff with current PG staff counterparts for continuity of key relationships. This may mean shifting mentor roles to tenant units. When possible, mentor roles and activities should be covered during the “right-seat, left-seat ride” transition.
Measures of effectiveness
• Numbers of key PG staff covered by program (e.g., number of officials with assigned mentors)
• Role profiles developed
• Self-assessment and individual development plans
• Self-assessed progress against development plan
• Objective assessment against development goals (mentor +)
• Internal staff effectiveness goals and measurement means developed
Leadership Engagement Under Difficult Conditions
How can the PRT advance its long-term mission of enhancing good governance when the current key leaders (provincial governor and police chief) are corrupt and/or ineffective, all while maintaining an objective position? What levers are available to the PRT to influence better behavior and performance?
The reality on the ground is that some provincial officials will not act in the people’s best interest due to corruption, incompetence, or both and, at times, may be uncooperative. The coalition’s goal is to enhance good governance and encourage transparency. Although the PRT would prefer to avoid associating with corrupt, ineffective government leaders, in the short term, the PRT is required to maintain a professional level of engagement with the existing government. A principal PRT mission is to influence good governance, assist in building institutional governance capacity, and support strategic reconstruction in its area of responsibility ( AOR ). In order to accomplish this mission, the PRT needs to engage continually with the provincial leadership and increase access to other ministry directors to build institutional capacity.
One way to address this problem is by maintaining a working relationship with the governor and police chief while simultaneously engaging the PG at multiple levels across key provincial line ministries. Regardless of the quality of key provincial leaders, PRTs need to continually engage with key leaders while expanding knowledge and relationships across the government. The PRT must employ practical techniques to build governmental capacity.
• Use access to wider PG contacts to communicate (re-emphasize) coalition policy on corruption and counter-narcotics; deliver similar messages in public forums.
• Diplomatically deliver consistent message in private forums, reminding government officials of their duty to uphold the rule of law and govern in the interest of the people.
• Always maintain a dialogue for information sharing on security matters and reconstruction planning. Avoid reconstruction support unless controls are in place (see “Life cycle project management” below).
• Provide assessments of key leaders through command channels to influence the central government to make changes in the key provincial leaders.
Suggested approach
Assess the PG (line directors and staff). In most cases, some line ministry directors are ready to work with the PRT . Department of State (DOS) representatives can help maintain the relationship map of provincial officials.
Use available resources (time, Commander’s Emergency Response Program [CERP] funding, and associations) to influence and reinforce good behavior:
• CERP projects. Work with PG line ministry staff to address projects that can provide timely impacts and be visible to the people. PG directors who are ready to work transparently and to the benefit of their constituents are rewarded with follow-on funding for projects of similar merit. Look for opportunities to engage with less-effective PG staffs during the process. Encourage the PG staff to participate in the progress. Manage possible obstacles to progress closely.
• Developing institutional capacity. Collaborating on a specific project or program with a line ministry director and staff can be an effective vehicle for building capacity. Mentoring programs can help build skills with other PG members, after gaining buy-in from the governor and line directors to work with their staff.
• Consider phased development/investment to control funds. Phased project execution allows the PRT to invest in projects that are being managed with transparency and effectiveness. Involving local leaders in shaping projects and creating local work crews can yield the optimum economic benefits while putting in place good project controls for CERP funds. This phased approach also allows adequate time for teaching.
Update assessment of PG staff and progress:
• Reassess the PG. As the PRT continues to engage the PG, subsequent assessments should be made periodically. These assessments should be based on the criteria established in the original assessment of the province.
Measures of effectiveness
• Level of engagement with extended PG, including key line directors for progressing reconstruction and development
• Number of effective relationships across the PG
• Level of collaboration on reconstruction planning; number of PG staff members engaged for mentoring and training
• The number of reconstruction projects completed in collaboration with PG directors
• Frequency and effectiveness of the collaboration on security matters
Conduct and Sustain Religious Leader Engagement
How does the PRT influence people?
The PRT can engage key populace groups by using religious leaders. Religious leaders are key members of society and can influence the actions and opinions of the local population. The PG and the PRT need to engage this group in a forum to understand their perceptions, build trust, improve perceptions, and proactively respond to their concerns.
Religion is an important factor in the modern culture. Although religion is important to many in our society, it is usually quite separate from our government and educational systems. To truly understand some cultures, one must fully grasp the importance religion plays in almost every aspect of life. Religious leaders hold positions of power, are much respected, and have the ability to heavily influence their followers’ lives. Building a good relationship with them in your province is essential for the coalition. The PRT is in the best position to establish this relationship in conjunction with the PG. Failure to understand and respect the religious culture could have serious repercussions (e.g., an act, intentional or not, that might be repugnant to Muslims could be mitigated if there is a good relationship with the mullahs in your province). By building relationships with religious leaders, the PRT can understand their perceptions, build their trust, positively influence their perceptions, and proactively respond to their issues. It is important to involve the PG when interacting with religious leaders. This involvement will encourage both the PG and religious leaders to participate in civil society by reaching out to the local population.
Building relationships with religious leaders can provide a variety of positive effects for the PRT . Including religious leaders in the reconstruction decision-making process can positively focus their energies and give legitimacy to the projects. Additionally, there will be improved relationships with the religious community and, consequently, with the populace. These relationships will increase the awareness of the PRT on sensitive religious issues. Once good relationships have been established with these leaders, the PRT ’s influence with those that wield the most power in the community will increase. Good relationships encourage all parties, the PRT , the religious leaders, and the PG to consider all the issues.
The PG needs to engage religious leaders and draw them into civil society activities:
• Invite the religious community in the province to a meeting called by the governor. By having the PG invite them, religious leaders are protected from the perception that they are collaborating with the coalition. It is important to clearly identify your audience and where they come from regionally. Knowing your audience is important to any successful engagement.
• Attend the meetings with a minimum number of military and U.S. Government ( USG ) personnel. Use one scribe so the PRT commander can maintain maximum eye contact and gauge the crowd. Bring interpreters to the meetings to catch sidebar conversations. Have the interpreters take any photographs because religious leaders often think that the U.S. military is taking pictures for intelligence-collection purposes.
• Use the initial forum to explain coalition objectives and review reconstruction activities, while reminding the group of the positive contributions the coalition reconstruction efforts are making.
• Allow religious leaders to vent their grievances; at the same time use the forum to encourage them to act.
• Maintain follow-up contact and begin to develop an actionable plan to address possible negative perceptions. For follow-on meetings, an agenda including both the coalition’s and mullahs’ topics should help guide and control the length of the meeting.
Suggested approach
The PRT should enlist the help of PG members (e.g., provincial governor and director from Ministry of Religious Affairs) to convene the meeting. Encourage the participation of all key religious leaders in the province. Work with the provincial director of religious affairs to plan the event and agenda format. Ensure the agenda is circulated among invitees prior to the event. Remember that meetings often get off track and will go longer than anticipated if you do not have someone controlling the meeting. Select a secure venue, preferably a local government site and not the PRT or U.S. military site. It is polite to serve refreshments or lunch for all attendees. To transition this to the next PRT set up a meeting of the primary attendees and introduce the new PRT during the relief-in-place (RIP) process. It is important to relay as much information as possible about the religious leaders to the incoming PRT members.
PRTs should introduce incoming commanders and/or civil-military operations center (CMOC) chiefs to the PG. Provide background on the PG (can use DOS profile). It is important to transition working relationships to the incoming team.
Measures of effectiveness
Although there are not specific objectives to measure success, the following areas can give indications that conditions are getting better. Even though the first meeting may have a large audience of religious leaders, the attendance at meetings that follow will indicate your success. The number of civic disturbances involving religious issues should decrease with positive interaction with local religious leaders. The tone of the meetings should shift from violent shouting or indifference to meaningful dialogue and interaction. An increase in the number of meetings initiated by religious leaders via a request to the governor would be another sign of success.
Conducting Information Operations Using the Local Media
How does the PRT reach the populace in the province with targeted messages that build awareness and support for the local government and the coalition’s effort?
The challenge is that there may be little in the way of established communications systems and media. PRT commanders can work to enhance public information while enabling their own information operations campaigns. It is important to engage with the local government officials and allow them to deliver a message of progress to the people. Sometimes due to expediency, the PRT commander or a member of his staff may provide the remarks at an event such as school opening or preface the translation of a speech presented by key members of the local government. Regardless of the need (and often encouragement) for U.S. military personnel to deliver these messages, the messages would have a better effect on local readers and listeners if they were delivered by a local government official.
Although information operations may attempt to reach multiple audiences (e.g., U.S. citizens, the international community, deployed coalition forces, and locals), the PRT ’s primary audience is the provincial populace. However, there are limited resources provided to the PRT to reach that audience effectively. A local newspaper, one that focuses mostly on stories of national-level interest and stories that promote coalition efforts, should be engaged. Some regional content can be introduced to provide news and targeted public information in the province. There may be a dearth of local language content available for public information. In the end, the people may have little information about their local government at a time when the government needs to build awareness and engage its people in the civil processes of a democracy. The PRT commander needs to reach out to the local audience. He can do this by contacting the state-run television station operating in the provincial capital.
You can take a state television station’s camera crew to an event to have local media document the engagements and provide commentary for the event. This practice shows the people of the province that their local government is working toward providing better services for its people and explains how the government is accomplishing this enormous task. The coverage should be balanced and fact-based, discussing the challenges the country faces. If the government is not doing a good job, the news report should show that as well. Because the engagements involve the local government and do not revolve around the direct actions of the PRT , this practice helps to dispel many of the myths about coalition forces .
The initial videotaping of a governor’s meeting with religious figures where the PRT commander is also in attendance can receive a lot of attention. The PRT should continue to work with the local government on the concept of providing public service messages. One of the goals would be to work toward collecting revenue based on selling advertising slots. The end result of implementing this practice is the creation of media coverage that will promote the PG’s activities and provide public service information.
Suggested approach
Coordinating the concept:
• Selecting a program manager. To ensure that a coordinated effort is possible, the PRT should select its civil affairs team ( CAT ) team leader to monitor this program.
• PG interest. The PRT commander and the program manager meet with the governor and the director of communications to propose, refine, and agree upon the idea being proposed. At the meeting, present the basic concept and review the media capabilities in the province. The PG should agree that the people have a great interest in what goes on in the province and that a more aggressive plan on managing the message could help the people understand how their government is supporting them. The communications plan could also help in the area of public service messages by addressing such issues as health.
Conducting a provincial media assessment:
• Types and location of media assets. The program manager should work with the director of communications to agree upon a basic coverage concept of the current media facilities and develop a broad vision of where the PG wants to expand its current resources. The PRT AOR may have state-run television and radio, as well as private television stations, that reach a large part of the populace due to high population densities in several key areas. The province may not have local print media.
• Capabilities of the local television station. The PRT can approach state-run television stations and invite them to cover and record events such as project groundbreakings, grand openings, village medical outreaches, and PG-sponsored religious meetings. The television station may be interested in covering these events but lack basic audio/video equipment. The PRT can purchase a small portable video camera and basic video equipment and give it to the station. The station can then send a cameraman out with the PRT to cover key events occurring in the province.
Working with the state-run television station:
• Basic media training. The program manager should work with the local media to help improve their presentation techniques for taped segments. The PRT can encourage the television station to interview members of the PG as part of the film clip introduction. The cameraman can also interview people attending key events to capture their impressions of the event or efforts of the PG. Covering these events leads to more PG involvement and brings a local perspective to the events.
• Preparing the message for radio and print. Another benefit of helping the television station create content is that the same content can be used for radio (audio) scripts and played on the radio across the province. The scripts can also be used for print media. Involving the PG:
• Public service messages. The PRT should work with the director of communications and/or the state-run television station to help it package ideas and promote positive public service messages to the province. One planned campaign idea could be sponsored by the director of health to combat a local epidemic that is a common cause of mortality (e.g., the public service message could help dispel the myth that giving more water to infants with dysentery results in their death due to dehydration). The PRT can also help the communication director or television station make radio and TV spots.
• Expanding media coverage. Current coverage may be limited. The PG has a plan to increase coverage but needs assistance in financing the hardware upgrades. The station could consider selling airtime to businesses for advertising or to nongovernmental organizations to air information and outreach programming (e.g., farm extension programs and teacher training). The PRT could consider buying airtime for public information campaigns highlighting public health and safety issues or for promoting events such as village medical outreach events.
• Radio distribution. The PRT should have money to distribute radios to areas that the signal covers but where people do not have radios. This will maximize the efforts of getting information to the people.
• Transitioning practice to the next PRT . The PRT must understand that the PG controls many of the media resources. The PRT should monitor the PG’s usage of the systems and suggest modifications to the process when it identifies areas where the PG could benefit.
• Transitioning practice to the PG. The director of communications should develop a media campaign to keep the people informed by having the PRT maintain a good relationship with the director of communications and assist in getting the governor to understand the importance of this communication tool.
Measures of effectiveness
• Number of listeners, watchers, and readers.
• PG establishes public service messages that reach more people in province (coverage).
• PG provides upgrades to the television and radio stations.
• PG establishes a print media capability.
• Television and radio stations start collecting advertising revenue.
Reconstruction and Economic Development
Life cycle project management
How does the PRT manage multiple projects to support reconstruction and development in its AOR ?
The PRT staff must efficiently and effectively manage available resources, including delivering projects at the desired quality levels, building project management capacity in the PG staff, and building capacity in host country enterprises.
One PRT addressed this problem by viewing CERP project management as an end-to-end process from the project formation/generation phase through project closeout and post-delivery monitoring.
The PRT has organized a project delivery cell with defined roles and a mix of technical project management and control skills.
Key supporting processes
• Project generation and nomination process. (see “Collaborative reconstruction planning with provincial and local governments” below)
• Standard design for projects. U.S. Agency for International Development (USAID) and United Nations Office for Project Services (UNOPS) have standard designs that use simple construction techniques and local materials. One PRT keeps an archive of all standard designs for a range of possible projects (e.g., schools, basic health care clinics, and micro-hydroelectric plants).
• Pre-bid supplier conference. Use the conference to describe the project, the expected skills required to deliver, and quality expectations. Set expectations and describe the way PRTs work, progress payments, and the quality dispute process.
• Bidders conference. One PRT expands the pre-bid conference into a training session. The PRT developed a training manual that is distributed at the pre-tender bidders conference. Attendance at the course qualifies the contractor to bid on CERP projects. The certification course aims to orient potential contractors, set their expectations, and prepare them for successful performance on CERP projects.
• Supplier information management. Provide contractor/supplier profile with picture for positive ID. Maintain records on each supplier to include previous work performed and references from other work. Assess and record previous level of performance and capabilities (e.g., trades covered and geographic scope of operations).
• Build detailed request for proposal/quote. State quality expectations in bid documents so cost of quality can be reflected in the contractors’ pricing. Communicate the quality expectations in the request for proposal/quote document. Reinforce the message again during the certification course.
Suggested approach
Organize project delivery cell:
• Develop project documents. Plan project documents in adequate detail to support clear communication with potential bidders (i.e., provide contractors with the scope and requirements for the project). These documents can be used to support the bidders conference and the core of the bid package.
• Plan and hold bidders conference. Organize and hold the conference. Rehearse the presentation of the bid documents with the interpreters to ensure requirements are clearly communicated. Leave enough time for clarifying questions from the contractors. Answer all contractor queries in public, allowing the entire group to hear all questions and the same answers. Explain the ground rules for bid and who is on the selection committee.
• Gathering and managing project and supplier information. In most provinces some line ministry directors are able to work effectively with the PRT . Assess the PG line directors and their staff to determine their willingness to work transparently with the PRT . Use DOS representatives to help assess current PG staff and maintain the influence-relationship map of key provincial officials.
Use available resources (time, CERP funding, and associations) to influence and reinforce good behavior:
• CERP projects. Work with provincial line ministry directors to assess the province’s needs and develop a prioritized development plan. Build sustainable systems by thinking through the resources for construction as well as the operating cost to maintain the system.
• Developing institutional capacity. Collaborative project work and mentoring programs can help build skills with other PG members. After gaining buy-in with staff collaborations from the governor and key line ministry directors, form the appropriate working team to develop and management projects. Ensure the governor and key line ministry directors are kept informed through open progress meetings. By inviting larger participation from the line ministries, the PG can develop greater knowledge and experience in project development and management.
• Consider phased development/investment to control funds. Phased project execution allows the PRT to invest in projects that are being managed with required transparency and effectiveness. Involving local leaders in shaping projects and creating local work crews can yield the optimum economic benefit while allowing good project controls of CERP funds. This phased approach also allows adequate time for teaching.
Measures of effectiveness
• Number of responsive bidders.
• Number of certified contractors (trained).
• Percentage/number of significant quality issues surfaced on CERP projects. Compare two populations: certified contractors versus uncertified contractors (i.e., set up population samples of projects completed by certified vs. uncertified contractors). Measure frequency and magnitude of quality issues surfaced on projects with certified contractors vs. uncertified contractors.
Collaborative Reconstruction Planning With Provincial and Local Governments
How does the PRT partner with provincial and district officials in order to build organic capacity in the PG?
The PRT needs to encourage ownership of identification, prioritization, and project-shaping steps and ensure that CERP and other available reconstruction and development funds support Coalition Force Command (CFC) lines of operation (LOOs) and Commander, Combined Joint Task Force (COMCJTF) focus areas. The PRT is responsible for making sure that these funds achieve the desired tactical/operational effects in the province.
• Develop a collaborative process working with PG and interagency team to assess needs and develop a prioritized plan. Use forum for project selection and planning.
• Develop an integrated project delivery team by using available resources in PG and districts.
The PRT must develop a structured, collaborative process for province-level planning and prioritization (under constrained scope and resources). The PRT works with the PG to ensure the right stakeholders are engaged and that they take ownership of the planning process. The PRT takes command guidance and applies it to specific AORs to prioritize sectors, geographic areas, and execution timing to optimize effects of delivered projects. The commander and the CAT translate guidance into criteria and steer the PG to desired areas. These criteria manage the expectations of the PG while reducing wasted effort and encourages open exchanges of information on the actions of other development actors working in the province.
Suggested approach
The PRT commander must consider CFC LOOs, specific commander’s intent from COMCJTF priorities, and sectors for investment focus. The PRT commander then takes input from maneuver units to focus areas of particular tactical/operational importance and apply the applicable time windows. The commander then arranges a meeting for all key ministry directors. After this meeting, the commander develops an action plan to prioritize projects.
A good opportunity to test this process is during a CERP campaign plan and broader project plan. The projects selected for a specific campaign should be the outcome of numerous meetings with provincial ministry directors. After intense engagements, a number of directors will develop project lists and, in some cases, have prioritized them. These lists are the basis of the campaign plan.
A host country leads the delivery model, encourages long-term ownership, and builds sustainable capacity in the province.
• CAT and project management cells need to deliver projects to the desired quality standards while building capacity in the provincial and local governments to manage similar projects. The PRT also needs to help develop a pool of contractors and material suppliers in the province that can deliver services and goods of the required quality. Using supplier development techniques via teaching and feedback and upholding quality standards ensures this pool of qualified suppliers is available in the province.
• Once a project is nominated and approved, the CAT engages interested members in the PG to develop the statement of work (SOW) that is included in the request for proposal document. The PG shapes the specific project scope to ensure it meets the intended requirements, thus reducing the risk of change orders after the contract is awarded.
• Once the project scope and high-level SOW is determined, the CAT closely manages the solicitation process. PG officials and PRT government staff interpreters are purposely kept out of the process and information flows during the bidding, evaluation, and selection processes.
• Once the contract is awarded, the PRT team holds an on-the-ground preconstruction meeting with the PG and local officials responsible for assisting with monitoring the construction and accepting the work/asset at completion and turnover.
• CATs are becoming more and more successful in instilling a sense of ownership for projects in local governmental officials. In addition to involving them in the campaign plans, local governmental officials have accompanied CATs to conduct project assessments/site visits. Directors are also taken on weekly quality assurance/quality control (QA/QC) visits of the projects that fall under their purview and are forced to interact with contractors to ensure the project meets their standards. In some cases, the PRT is working through the most competent and motivated directors to execute projects by providing the materials and having the director organize the project, the engineer/expert, and the workforce. This technique further instills a sense of ownership that is critical to ensuring the people associate the director and the local government with the project, rather than the PRT .
Integrated self-managed project delivery approach
PRTs must take unique approaches to encourage the PG and local officials to shape and deliver projects independently using host nation local managers and workers. The PRT helps the PG shape the project by providing guidelines on scope and researching resources for the projects (e.g., construction materials). The project is self-managed by PG and local government. The PRT serves as an investor and advisor during the entire project, only stepping into the direct management role when absolutely necessary. The process encourages ownership and problem-solving skills in the PG and local community. When appropriate, the PRT leverages USAID Alternative Livelihoods Program (ALP) cash-for-work labor managed by the local community. The ALP pays the daily wage for manual labor and some skilled labor for projects associated with counter-narcotics efforts, such as rehabilitating the irrigation system or improving roads to facilitate getting legitimate products to market. The PRT uses CERP to purchase the materials and tools for these projects. This method has enabled the PRT to conduct projects through the directors and make CERP money go farther. As more and more projects are completed in this manner pressure is placed on contractors to lower their prices to a more reasonable level.
Benefits
• Builds project delivery/management skills in the PG.
• Puts PG between the contractor and PRT , which engages the PG and builds its leverage with suppliers. The PG collaboration with the PRT also provides a process for building technical and project/contract management skills within the PG.
• Partnering with responsible directors has helped in determining fair market prices for CERP projects. The directors of irrigation and rural rehabilitation and development have been critical partners in keeping the CAT abreast of market prices for well drilling and prices for cement and other materials. Additionally, close relationships with the mayor can result in free access to the fair market price list for all commodities in the bazaar. All prices are controlled (and taxed) by the mayor and therefore he ensures that merchants are not gouging PRT personnel.
Suggested modifications
Where possible, further refine the scope of work and SOW to support the bidding process. A detailed bid document that describes the required work builds capacity in the PG on the type of preparation required to support transparent tenders. It is best to eliminate all possible ambiguity in the bid document. Thorough preparation of bid documents reduces risk of overbidding or underbidding on a project.
Underbidding is particularly risky, causing friction in contracting relationships that could influence quality issues (or in the worst-case scenario, non-performance via default). The site walk with PG officials can easily be done before the scope, design, and statement of work are finalized for the request for proposal document.
Efficient sourcing to maximize scarce resources
PRTs need to use available CERP funds most efficiently as a catalyst for provincial reconstruction and development. The PRT must be aware that paying significantly above-market prices for local goods can create price distortions in the area.
However, the PRT may not have experience in sourcing materials and services in all districts and have neither price benchmarks nor the ability to attract an adequate number of qualified bidders to generate enough competition to get actual market pricing. PRTs can used multiple inputs from trusted PG officials to negotiate the market price. The PG understands that the PRT ’s budget is fixed and that more reconstruction can be done if fair market prices are negotiated for goods and services.
Coordinating Reconstruction and Development With International Organizations and Nongovernmental Organizations
How does the PRT help the PG create a forum to engage with potential donors for situational awareness, sharing of ideas, integrating development plans, and optimizing the use of limited resources?
The PG needs a means to meet and discuss reconstruction and development issues and plans with all external actors (potential donors and implementing partners) concerned with and active in the province. A forum to allow for exchange of information for all parties involved is helpful. The advantage for international organizations (IOs) and nongovernmental organizations (NGOs) is to learn about the needs/plans of the PG and the threat situation within the PG’s area. The forum allows the PG to present its needs/wants to donors. The PRT can use this forum to assist in deconflicting projects between agencies and optimize the use of limited resources. This forum is also an opportunity to increase the types of projects because of the diverse group of donors.
By holding a forum with potential donors, the PG is able to have a larger stake in the selection process. The United States cannot afford to pay for every project that each PG would like to have. There is often distrust by non-military organizations toward the military. Overcoming this distrust can be accomplished by encouraging the PG to take the lead in conducting the meeting. Additionally, sharing this information might break down many of the barriers that have developed between the PRT and non-military organizations because they do not understand each other.
Including all willing donors in the provincial reconstruction and development plan can increase monies, decrease potential conflicts, and provide necessary information that IOs/NGOs need to operate.
One PRT addressed this problem by getting the PG to host a monthly meeting that brought potential donors together. The governor had some of his directors brief the overall provincial reconstruction and development plan and then asked the donors to come back at follow-up meetings to donate resources to support the PG’s plan. If the PG does not currently hold this type of meeting, the PRT can facilitate such a meeting by providing a basic security briefing for the IOs and NGOs in the province. After donors start attending this meeting, it can be transitioned into a PG-led donor meeting. The PRT must work with the PG to ensure it understands the meeting’s importance and the benefits of advertising their plan to donors instead of trying to get the PRT to lead the effort.
A PRT might assist the governor and the minister of education in developing a media campaign for their trade school. The PRT can get the PG involved at all levels. Flyers can be distributed by members of the national army, national police, ministries, and district leadership. The PG can also select students for each of the classes. A radio message can be developed to disseminate the news. Future coverage of the school can be discussed to ensure that the people know about future classes, and that the PG gets credit for this program.
Suggested approach
Coordinating the concept:
• Getting started. The PRT selects a program lead (someone who is knowledgeable on project management), initiates the CERP planning process, and assesses the reconstruction and development situation in the province. Although USAID has the lead on reconstruction and development, the PRT CMOC team can contribute significantly to this effort and often can provide perspectives on the specific districts throughout the province. The PRT commander must engage with the governor to ensure that he understands the necessity for a coordination meeting that is led by the PG and not the PRT . Some governors understand this so well that they are starting to travel abroad looking for donors to support their reconstruction and development plan. The program lead should compile a list of potential donors within the province, as well as the surrounding provinces. The information from the surrounding provinces is important because they might have a resource needed in your province. This data collection should include donors that were here in the past. This historical information may not be easily available, but when conducting missions, signs are often present that convey who built a particular item and when it was built. The Ministry of Rural Rehabilitation and Development (MRRD) and the United Nations (UN) are good sources for discovering donors currently working in the province. It is possible that some donors avoid working in a province based on an inaccurate perception about the security environment. By guaranteeing the donors’ safety and advertising a true need in the province, the PG might encourage donors to come into their province.
• Provincial reconstruction and development plan. The PRT commander and PRT staff must engage with the PG to determine if there is a plan for reconstruction and development. The easiest thing to start with is the road network. Many PRTs do not receive historical data during their transition; however, the PG should be the main source for the PG reconstruction and development plan. In the absence of a plan, the PRT should not make one. However, the PRT should guide the governor on the subject of reconstruction and development. Ultimately, the reconstruction and development plan is the PG’s responsibility. Delays in the planning process will affect the PRT ’s ability to donate CERP funds. This can be a powerful tool to get the PG into the planning process.
• Gaining donor interest. Without providing any classified information, the PRT should prepare a briefing they can share with IOs and NGOs. These organizations are always concerned with security assessments; therefore, the information available from the PRT provides a carrot to get IOs and NGOs to attend the coordination meeting. It is not a good idea to hold this meeting at the PRT . There is a better chance of IOs and NGOs attending if the meeting is in a neutral location. Some PRTs have held the meeting at a PG building or UN facilities. If no such meeting exists, it is essential that the PRT contact potential donors and offer a security briefing and baseline common operational picture ( COP ). Before providing maps, ensure that you check to see that doing so does not violate any governmental laws or policies. Some regulations prohibit the U.S. military and agencies from providing maps to others. After conducting the meeting a few times, it would be appropriate to start discussing reconstruction and development and see where seams and gaps exist. This helps deconflict support efforts between all these organizations.
Three-phase meeting approach for PGs that currently hold PG donor efforts
Because the nature of providing donations can be potentially embarrassing as well as competitive, it is best if donor efforts are conducted during three separate engagements: PG donor meeting, donor resource meeting, and PRT provincial development meeting.
• PG donor meeting. The governor hosts the meeting at a local government building. The governor or his director of reconstruction and development should discuss the latest PG plan for reconstruction and development. The basic concepts of road networks, district centers, and water should be covered. The plan can grow as the PG comes up with new ideas. The PRT can suggest some areas to cover based on the developmental stage of the province and the background of the PRT ’s USAID , U.S. Department of Agriculture (USDA), and DOS representatives.
• Donor resource meeting. It is best if the UN hosts this at its local headquarters because once again the PRT should not try to take the lead on reconstruction and development—other organizations are better suited to take the lead. At this meeting, donors provide information on what they are willing or able to provide in support of the PG’s reconstruction and development plan. It is a good idea for the PRT to provide some basic security updates to the attendees because this is a good way to get donors to attend. This meeting is essential because it allows donors to identify parts of the PG’s plan that they would like to support. In some cases, it is common for multiple donors to have already requested funding for the same reconstruction and development projects based on a lack of cross-coordination. This meeting helps the PRT gain a better appreciation for the capabilities and goals of various organizations. In turn, these organizations gain a better appreciation of what the PRT is all about and what it is able to do.
• PRT provincial development meeting. The PRT conducts an internal meeting to review the PG’s plan and decide what is within their scope of reconstruction and development. This coordination meeting is important because it allows the PRT commander to get input from his staff on the feasibility of the PG’s plan. This meeting also provides information the PRT commander needs for the donor resource meeting.
It is important that donors take away the same reference materials from the meetings when trying to coordinate resource distribution. Because many of the IOs/NGOs do not have the same maps as coalition forces, it is beneficial to provide reference material that is common to the PG and the donors. Some laws and policies may limit the ability to actually provide maps, but other information can be shared as a common reference. Assist in developing a baseline map COP . Overlay graphics displaying the existing key infrastructure/assets, active projects, planned (funded) projects, planned (unfunded) projects, and active and planned (funded) projects should depict organization and delivery timetable.
Involving the PG
• Position PG at meeting.
• Getting the PG to set the agenda.
• Getting the PG to provide the meeting location.
• Getting the PG to advertise the outcome of the meetings.
• Getting the PG to request donors to come to the province.
• Transitioning practice to next PRT . The PRT must transition this meeting concept to the PG. The PRT commander must ensure that the new PRT commander understands that the PRT ’s role is as a donor. If the PRT starts taking a leading role in the meeting it will set back the entire process and make the PG dependent upon the PRT once again. Working toward developing sustainable systems means that the PG must run the show. With that said, the PRT must continue to work with the PG from behind the scenes to make the planning process more efficient and to create an effective advertising campaign for the PG’s reconstruction and development plan.
Achieving success
This direct involvement of the PG ensures engagement of donors for planning and coordinating reconstruction and development. It increases the PG’s and the PRT ’s knowledge of individual donor capabilities, goals, and resources. This type of meeting can lay the groundwork for development of productive, long-lasting relationships between the PG and its donors. The meeting helps to facilitate an understanding of the PG’s reconstruction and development plan so that donors do not get distracted from creating their own unsynchronized plans. It can also accelerate reconstruction and development by reducing redundant efforts and achieving complementary efforts. The PG sees the gaps and seams in their plan because donors do not sign up to provide resources in certain areas. In time, the local government will assume responsibility for the reconstruction and development within the country, thus facilitating learning for the PG. As the PG gains credibility and confidence, the PRT can remove itself from the meetings. These meetings can create new relationships and dispel myths created by not knowing the other donors.
As time goes on, the PG and donors feel more confident with each other, allowing partnerships to grow. The number of times NGOs/IOs volunteer to take on a project should increase. The NGOs/IOs will also start to share information with the PRT .
Eventually, the PG takes over conducting the meetings.
Measures of effectiveness
• Number of times NGOs/IOs volunteer to take on a project the PRT cannot resource
• Amount of information NGOs/IOs share with the PRT
• Creation of any partnerships that were previously not welcomed
• PG taking over the meeting
Building Provincial Medical Capacity
How can the PRT assist the PG to build sustainable medical capacity in the province?
Everything from the way the PRT conducts its medical activities outreach program to the sourcing of medical supplies can have a positive or negative effect on the how quickly medical capacity is built in the province.
Two areas that have a particular impact are:
• Sub-practice 1: How the PRT works with provincial health officials and existing host-nation facilities to build in-situation capacity.
• Sub-practice 2: How the PRT plans, sources, and purchases medical supplies to support its medical capacity building in the province.
The PRT needs to purchase medical supplies frequently to provide support to host-nation clinics and augment collaborative medical outreach events. Medical supplies are hard to source through U.S. channels. However, hasty local sourcing of medical supplies presents a number of risks and could lead to negative effects. Negative effects include temporary shortages of medicines and/or increases in prices at local pharmacies. Other risks include sourcing of poor quality products (not meeting required quality specifications or medicines past their expiration date).
One PRT addressed this problem by developing a process to mitigate risks and successfully source frequently demanded medical supplies/products through local distribution channels.
• Plan projects well in advance and aggregate the purchasing volume into one sourcing event. The sourcing process could take up to 45 days.
• Build requirements based on inputs from multiple sources.
• Assess input from demand from previous events.
• Develop the technical specifications for required products.
• Develop a “request for quote” that includes the quantities, service level (e.g., delivery time), and packaging requirements.
• Screen and qualify potential vendors.
• Issue and manage request for quote process.
• Inspect the product thoroughly upon receipt, preferably by qualified or trained personnel.
• Properly store all medicines.
Suggested approach
Implementing steps:
• Determine requirements. Assess current and future demand for medical supplies. The PRT should estimate the number of village/township medical outreaches and collaborations with clinics or medical civic action programs that are planned over a longer time horizon and summarize the intermediate requirements for three to six months.
• Develop a list of potential suppliers. Screen potential suppliers in the province and beyond. Develop a long list of suppliers/distributors capable of supplying products and services of the required quality in the quantities needed.
• Screen for potential suppliers distributors in the province and beyond. Use available contacts in the province to identify sources of supply. These contacts include provincial directors, USAID, and other aid agencies working in the province. Make it clear that you are just certifying the suppliers. Develop information profiles for potential vendors for future purchases. Collect this information in a standard format.
• Refine criteria selection requirements. Refine requirements, supplier market coverage, distribution range, and order lead time.
• Prepare a request for proposal. Develop clear request for proposal that sets out the plan.
Continue to update assessment and communicate progress:
• Reassess the PG. This can be treated much like a U.S. conference. The PRT is going to provide the attendees with lodging and food to ensure there are reasons to stay for the entire six days of instruction.
Measures of effectiveness
• Number of qualified suppliers: screened by capability, product range, and basic service-level information
• Measured reduction in total system cost (product unit cost + transport/intratheater delivery, waste due to expired lots)
• Improved order lead time (over delivery time on standard orders); does not cover expediting due to poor event planning or inventory management).
Establishing a Provincial Trade School
How can the PRT assist the PG in developing a skilled labor force?
A locally trained, readily available workforce of skilled laborers is needed to help rebuild the local community and help maintain newly constructed buildings and roads. Trade schools may exist in larger urban centers. However, these schools may be too far away to serve the needs of the province. Each province needs local training to solve the skilled labor shortage. Students who leave for training often do not return. Workers from other countries or other provinces may fill the numerous skilled labor positions. Those host-nation citizens who do find work do not provide the job quality needed to meet long-term reconstruction goals and maintenance standards. The province needs an organic training center to meet current and future demands for skilled labor.
Success of this program will seed the province with a trained (semi-skilled to skilled) local labor force and increase its size. Because local laborers will be hired from the program, it will keep money in the province. This low-tech program is easy enough for the government to take over in the near term and expand to meet the needs of the province. This is also an opportunity for PG officials to work together and increase their trust of each other. Another positive result is the increased potential for job placement for graduates because of the high demand for local laborers.
Example: The way one PRT addressed this problem was through the creation of a vocational trade school that can train up to 250 local nationals concurrently. Currently, classes are held over a three-month period in the winter. Upon graduation, the students will have completed a local community project, received a basic starter tool kit tailored to their completed program of instruction, and be presented a certificate of completion. This certificate will be placed on file with the ministers of education and labor in order to maintain a list of trained laborers. The PRT continues to work with the minister of education and the governor to develop a plan that will provide classroom space and instructors for future trade school sessions. The next step is to assist the PG’s plan and execute the creation of other vocational trade schools. The end result of these efforts is a small pool of trained employees who will be able to find local jobs and increase the quality of construction in the province as the PG works towards self-sustaining systems.
Suggested approach
To ensure that a coordinated effort is possible, PRT -selected programs should be led by a host national. All PRT personnel involved in the vocational trade school should assist in developing the curriculum. However, picking a program lead is the most important first step to coordinating PRT and PG efforts. The PRT commander and the program lead can meet with the governor and ministers of education and labor to pitch the trade school concept and get buy-in on the idea. The PG should agree that the province can take over the management of the school and extend the reach throughout the province before significant effort is provided. You can also attempt to gain a pledge from the PG that this would be a priority.
The PRT can work with the PG and other coalition resources to assess the skills most required in the province. For instance, a coalition facility engineer team (FET) observed that construction projects built by local workers were often of lower quality than those built by workers from another country. Many contractors hired workers from outside the country because of their superior construction trade skills. The FET engineers suggested the most relevant construction trade skills that local workers were lacking.
Working with the minister of labor, the CAT -A team expanded an assessment of the province to determine the need for trained vocational skills. They discovered a demand for welders, masons, carpenters, plumbers, rug makers, and medical personnel. Additionally, due to the high demand for trained personnel, many of the students could have job opportunities waiting upon graduation. The PRT spoke with the PG and several local businessmen to locate potential local instructors. They found a local computer shop owner, welder, and auto mechanic. Additionally, the top graduates of the course could be identified, and the PG could consider using them as future instructors.
To identify instructors the PRT can conduct a skills inventory of all PRT Soldiers, interpreters, and interagency representatives. A basic list of classes can be created from this inventory internal to PRT assets. This list may consist of areas such as welding, plumbing, electrical, carpentry, auto mechanics, emergency medical technician, and basic computer skills. The instructors can be paired up with PRT interpreters. The Soldiers can develop a draft 12-week syllabus and turn it into the program lead for review and synchronization with the overall classroom schedule. The periods of instruction are meant to be basic in nature but yet able to increase the overall skills and quality of the workforce. Basic vocational trade techniques are the key to creating a successful program. Additionally, teachers can train the interpreters as teacher’s aides to assist in the classroom. Techniques taught are tied to equipment that is available in the host country so they can be replicated easily by the students after graduation.
All instructors should develop a list of equipment needed to teach their classes. Additionally, instructors can develop a basic tool kit to provide to the graduates. For instance, a graduate of the welding class would be provided a welder’s hood, apron, and gloves. The intent is to provide all the tools necessary so the graduate can easily be hired at a welding shop that already has a fuel tank, welding torch, and welding raw materials. The estimated cost of establishing a vocational trade school is about $200,000 in Afghanistan and can vary based on location.
After assessing the PG’s ability to provide immediate classroom space, it may be better to host the school at the PRT site because the PRT could better control the classroom schedule and provide security. Additionally, the opening of the school may be delayed without access to the PRT classroom space. The intent is for future semesters to be taught at locations other then the PRT site and be provided by the PG. Throughout the whole process, members of the PRT should coordinate all efforts with the PG to ensure unity of effort. The PRT should use this event as a teaching and mentoring tool to show the PG that it is possible for local officials to resolve a key issue important to both the PG and the local people.
Because this program is only partially created at this point, the PRT should work aggressively with the PG to ensure that the PG takes control of the trade school during the second semester. However, the PRT could easily transfer this program to the next PRT to continue as it tries to spread the concept throughout the province. However, the ability of the PRT to provide instructors is less likely the farther the program is from the security of the PRT .
Measures of effectiveness
The success of this program should be easy to measure. The number of trained graduates and those who immediately enter the local workforce will give a good indication of success. Outstanding graduates can be hired to teach at the school upon graduation. The creation of a second provincial trade school in a nearby district will increase capacity. Graduates can migrate to other provinces to gain temporary work and bring money back to the province where their family lives. With each successive class, the ministries of education and labor maintain a list of graduates who are eligible for government jobs. Other indicators of effectiveness include:
• The number of graduates (trained).
• The number of graduates that immediately enter the local workforce.
• The number of graduates hired to teach at the trade school.
• The creation of a second provincial trade school in a nearby district.
• Establishing a pilot trade school in a neighboring province where graduates with work experience start teaching.
• Graduates migrating to other provinces to gain temporary work and bringing money back to the province where their families live.
• The ministries of education and labor maintaining lists of graduates who are eligible for government jobs.
Establishing a Builder’s Workshop to Improve Building Capacity
How does the PRT overcome a shortage of building trade skills and competent contractors in the province?
Contractors need to be trained as a team, outside a formal classroom setting. More trained and qualified contractors will accelerate the pace of quality construction and build a foundation for the provincial construction trades industry. Skilled training is needed to meet long-term reconstruction goals and maintenance standards and provide quality construction. The PG needs to train host national workers to build reconstruction and development projects to improve building capacity and help meet current and future demands for skilled labor.
The way a PRT can address this problem is by creating a workshop devoted to training its regular contractors on good construction techniques. U.S. Army engineers can train the national army engineers on quality building trade practices appropriate for a developing country. The national army engineers will then instruct the contractors. The course of instruction is the same course work given to the national army engineers. The contractors may bring along up to three workers each to receive the instruction. A set of good tools should be provided to students upon graduation. Graduates would receive a certificate of completion and a wallet-sized identification card saying they have completed this course. The PG can be represented by the MRRD and the provincial engineer. The next step is to conduct the class again and upgrade the skills taught to returning attendees. The end result of implementing these practices is to create a small pool of trained employees who will be able to find local jobs. Having trained builders will increase the quality of construction in the province as the PG works towards self-sustaining systems.
Suggested approach
Coordinating the concept:
• Selecting a program manager. To ensure that a coordinated effort is possible, the PRT should select a volunteer to lead the program. The program manager can be a CAT leader who works directly with U.S. Engineers.
• PG interest. The PRT commander and the program lead should meet with the provincial engineer and the national army leadership to get buy-in on the concept. The meeting should be a basic concept discussion.
Conducting a provincial assessment:
• Construction quality. Assessments of provincial construction projects may not always be up to the quality standards required for projects to last. It has been suggested that projects constructed by host nationals are often of a lower quality than those built by workers from another country because of the skills gap. Sometimes all of the contractors may come from outside the province. To be truly effective the PRT should require that at least 75 percent of workers hired for projects come from the local district.
• Existing vocational trade schools. There may not be any trade schools existing in the province to teach proper construction techniques.
• Job opportunities. Each contractor should bring three attendees with him. The thought behind this is that the attendees who are not contractors may be able to start their own construction business as a result of this training.
Creating the workshop:
• School location. This can be treated much like a U.S. conference. The PRT is going to provide the attendees with lodging and food to ensure as much as possible that students attend the entire six days of instruction.
• Developing a curriculum. The CAT / PRT can choose to utilize the Inter-Service Builder Apprentice Training (A-710-0010) and Inter-Service Building Apprentice Training Phases A, B, and C (A-710-033 Army). This will ensure that the host-nation army trainers and contractors will have a good base of instruction.
• Equipping the school. The PRT / CAT can order quality tools from vendors. Part of the problem with local construction is that the tools often break and are not of good quality. Some of the contractors may be interested in becoming tool distributors.
• Coordinating with PG. Throughout the whole process, PRT members should coordinate all efforts with the PG to ensure unity of effort. The provincial engineer should be heavily involved in developing this plan. The provincial engineer could be a guest instructor during the workshop. He will provide the continuity necessary to continue the program.
Transitioning the school to the PG:
• PG provides classroom location.
• PG provides all classroom equipment.
• PG provides the graduation basic tool kits.
• PG provides local instructors and pays them.
Security Sector Reform
Provincial security coordination body
How does the PRT assist the PG in providing needed emergency services to the populace?
The PG identified the need for a 24/7 emergency operations center ( EOC ) to collect information and provide emergency services to the people. In the United States citizens take it for granted that the government will provide emergency services. Many countries do not have the same level of government services. Many provinces will have to build all of these services from the ground up because there are very few places where they exist.
One PG created a working security forum for elections. In doing so, they discovered a need for a permanent standing body of decision makers who could share information and synchronize security efforts. This group met weekly and was chaired by the provincial police chief at the national police headquarters. The attendees include a national army liaison officer (LNO), the deputy border police, a highway patrol representative, the deputy national director for security, the PRT S3, the maneuver S3, and a representative from the embedded training team ( ETT ). A 24/7 EOC was established from this collaborative effort. The PRT ensures that it brings several interpreters to the meeting to catch sidebar conversations. The PRT S3 shares the information with other coalition members who do not attend the meeting. The meeting is not classified and discussions only concern basic security information. The important thing to remember is that the PRT is only an invited member and does not run the meeting. Steps are being taken to have the PG provide this security information to IOs/NGOs so they are less dependent on the PRT for this information.
Suggested approach
As with most practices, it is important to select the right program lead. This will ensure that a coordinated effort is possible. In this particular case, the PRT selected the S3 to develop and monitor this program. The PRT commander and the program lead met with the governor and the provincial police chief to discuss the necessity for having a coordination meeting for security personnel in the province. This was essential during the election process and has become a regularly scheduled meeting that continues into the non-election period. The governor gained great interest in this program based on his desire to create a 24/7 EOC as part of his provincial district center.
The key to success is becoming one of many sources of security information for the PG. By decreasing PRT responsibility, the PG provides the full security scope to those who need it. If the PG leadership is effectively using its national security force, they will be able to provide detailed information about corruption (illegal checkpoints, theft, illegally armed groups, etc.). This information can become part of the security information that the PG will provide during the PG donor meeting.
The incoming PRT S3 must be prepared to attend the meeting and not overstep the boundaries that have already been established by the previous PRT . It is essential that the PRT gradually takes a smaller role in the meeting to help establish PG responsibility.
Measures of success:
As the PG gathers/disseminates information impacting security, it will be less dependent on the coalition. The PG and the national security force will build stronger working relationships. The EOC will allow the PG to react to problems quickly and in a coordinated effort. As the PG’s role develops, invited members will want to attend security forums to obtain and share information. The EOC will increase the PG’s ability to react to security threats in a timely fashion. The ultimate success is a PG that handles all security issues independently. The following are signs that success is being reached:
• Continued attendance by all invited members to security forums
• Continued sharing of information by all parties
• Creation of a 24/7 EOC
• Ability of PG to react to security threats in a timely fashion
• Reduction in reliance on PRT and coalition forces for security assistance/information
Enhancing Provincial Tactical Advisory Team (PTAT) Effectiveness
How does the PRT employ the PTAT?
Provincial security is arguably the number one concern for everyone. Without security, it is difficult for the PG to effectively provide basic services to its people. Without a secure environment, donors are less likely to bring their much needed resources and leadership to the province. The PTAT provides the PRT with a means of reinforcing training already provided to the national police.
In the case of U.S.-controlled PRTs, the restrictions placed on CERP funds have caused many PRTs to reduce their interaction with the national police. However, there are some PRTs that have adjusted to the restriction of CERP funding for national police use and developed alternative interactions/programs that do not require funding. These engagements are paying big dividends for the PRT and the provincial national police.
One PRT addressed this problem by assigning mentors to work with the provincial police chief and key leaders within the national police. Basic information about each police facility and police officer was collected and put into PowerPoint slides so the information could be displayed easily in the PTAT workspace. Inventories were conducted to gain an appreciation of the resources available at each police substation. Police substations within the area of operation (AO) are visited weekly to foster relationships.
The key to success is to consistently engage the national police. A basic task organization chart was developed that showed all the substation commanders. This allowed relationships to form between coalition forces and the national police that are deeper than just knowing someone’s name. The time invested by the PRT paid off because the national police felt comfortable working with the PRT . The national police grew to understand that they were not able to get resources from the PRT , but that they could get ideas and refresher training, which makes it worth everyone’s time. The relationships that have been created are far-reaching because the national police become a fully functioning partner in the law and governance of the province.
Suggested approach
Coordinating the concept:
• Selecting a program manager. To ensure a coordinated effort, the PRT should select the PTAT team leader to implement and monitor this program. If there is no PTAT team, selecting a senior individual with management experience for the program manager position is more desirable than selecting someone with only police experience. The Regional Training Command ( RTC ) is tasked with teaching policing skills. However, what the national police really needs is senior-level mentorship. Use of contract mentors may be another option to be employed, but they may not have the necessary management skills.
• PG interest. Often, the PG is only looking for resources such as vehicles, radios, and new construction. Because the PRT has limited funding and resources restrictions, mentorship is an effective and cost-efficient way to influence the national police. Resource limitations/restrictions of the PRT must be explained to the governor and the provincial police chief.
Conducting a provincial assessment:
• Getting to know your AO.
º Document the task organization of the provincial national police by building a chart that has pictures, names, locations, and biographies of the police leadership.
º Identify the location of national police buildings by Global Positioning System ( GPS ), as well as any hard stand checkpoints.
º Identify the location of the PG’s RTC . If the RTC is not located within the province, acquire an understanding of how the province’s national police obtain training seats and what actual instruction is received at the training center.
Getting to know the local police force:
• Ensure that the PTAT conducts regular visits to local police substations. Ideally, each substation should be visited twice a week. For district substations, coordinate to have the provincial police chief go with PRT patrols and stop in at various substations along the way to conduct assessments and engage the district police. Taking the provincial police chief is essential so he is viewed as an involved leader who cares about his police force. It also allows him to describe what he sees to the other members of the PG.
• It is important to recognize that corruption exists in the police force. Regardless, it is still essential that members of the PRT engage the police force on a regular basis. Hopefully, a foundation of managers can be found who are honest and easy to work with in order to overcome any corruption. Documenting corruption and bringing it to the attention of the governor is necessary so possibilities for leadership changes can occur.
Working with and instilling pride in the local national police:
• Hold a parade. To increase local awareness about the police force, the PRT should encourage the governor to show off the provincial police force. Having the national police wear their uniforms and show off new equipment in a parade in the capital is extremely effective.
• Accountability of new equipment. With the arrival of new equipment like AK-47s and vehicles, it is essential that the national police establish and maintain a system of equipment accountability. Teaching the national police to conduct inventories is essential in helping them understand that the equipment is not a gift to the individual user but belongs to the local police substation.
• Culturally it is common for government employees to take home equipment that was originally provided to them to conduct their job. This becomes extremely costly when vehicles, phones, and other high-priced equipment are retained by employees who no longer work for the government. One means to counter this practice is to have the PTAT work with the police chief to establish a radio room at each of his substations. The intent is to require officers to pick up their radio at the beginning of their shift and turn it in once they are done for the day. This teaches two key concepts: accountability and maintenance.
• Holding a best police officer competition. One PRT is working with the governor and the provincial police chief to hold a “Best Police Officer” competition that will include physical and mental challenges. The desired outcome is that units will increase their training efforts to win the competition. Certificates will be provided to the winner which is a motivating factor for the national police.
• Conducting training and providing certificates of completion. It is important to assess the skills of the national police and to work with the provincial police chief to conduct refresher training. However, prior coordination with the local RTC is essential to ensure that the techniques trained match those being taught at the RTC . In an effort to move out of the training role, it is necessary for the PRT to work with the governor and the provincial police chief to develop a training team to travel around the province to assess local police capabilities and conduct training as necessary. Providing certificates of completion from the provincial police chief is another way to instill pride in the local police and create a method of tracking training statistics.
• Identifying a need for new training blocks of instruction. After assessing that the national police did not fully understand how to handle improvised explosive devices (IEDs) that were turned in to local authorities, one PRT established a block of instruction that included pictures and the basic safety procedures for dealing with IEDs. It should be common for national police to pick up these devices after cutting all the wires and then bring them back to their headquarters or the PRT site for disposal. Some accidents occurred during IED removal by the national police which necessitated this class.
• Including the national police in mission planning and patrols. It is an excellent idea to include the national police when the PRT conducts missions and patrols. This practice has several advantages. First, it provides hands-on experiences that the national police can use to improve their ability to react to various situations. Second, the national police will be seen in a proactive role rather than sitting passively at their substations. Third, the national police can help the PRT reduce the coalition footprint in patrols by providing security for PRT missions. Fourth, the national police can become a communications multiplier as PRT patrols work their way through towns and villages where they have not been before. Including national police in planning and patrols can all be achieved by engaging the provincial police chief and gaining his support in this endeavor.
Involving the provincial governor:
• Engaging the PG leadership. The PRT commander and the program manager should conduct regular meetings with the governor and provincial police chief to provide feedback from assessments on the police force. Information should be shared at the Provincial Security Coordination Body, which is another measure of national police effectiveness in the province.
• Working toward sustainability. It is essential that the governor achieves an understanding of his police force’s shortcomings so he can address them quickly. The national police are the first line of defense—without it law, governance, and security cannot be maintained. Without security, reconstruction and development continuation will not be possible. The PRT commander must constantly work with the governor to find ways to provide resources to the national police so that they do not quit or become corrupt.
• Transitioning practice to the next PRT . The PRT must continue to engage with the national police and provide mentorship to the governor and the provincial police chief. Abandoning this practice will potentially have a negative impact on security conditions in the province which will impact the areas of law, governance, and reconstruction and development.
Measures of success
• Assessments of the substations show improvement over time.
• National police maintain accountability for their property.
• Local citizens gain more confidence in their police force.
• National police are able to properly react to local crimes.
• National police attend the RTC and conduct refresher training.
Coordinating PRT Operations With National Security Forces (NSF)
How does the PRT ensure that its operations are coordinated with NSF?
NSF should have habitual relationships with the joint task force (JTF) maneuver forces and ETTs. By establishing and maintaining relationships with the ETTs and JTF maneuver units, the PRT can coordinate and leverage NSF capabilities in support of its missions. Coordinating to have NSF units provide local security for PRT missions enhances both the NSF and the PRT by providing a host-country face to mission security.
One PRT addressed this problem by coordinating its missions with the local JTF maneuver unit and the ETT assigned to local NSF. Coordination with these units of upcoming missions can include NSF in PRT operations where possible. This augmentation from the NSF helps reduce the coalition footprint on convoys and also validates the legitimacy of the NSF for people in remote towns and villages.
Suggested approach
Coordinating the concept:
• Selecting a program lead. The PRT program manager should be the S3. The PRT S3 is responsible for direct coordination with the nearest ETT and JTF maneuver unit to gain access to the NSF.
• PG interest. Most PGs do not concern themselves with the activities of the NSF. Working to enhance this relationship though the ETT or maneuver unit will also add to the province’s security efforts.
Coordinating for NSF support:
• Including NSF in mission planning. The PRT S3 should work all planning issues with the ETT and/or maneuver unit so they can work the mission planning cycle with the assigned NSF unit. This is a great opportunity for the NSF to conduct missions that provide them visibility within the local community and enhance their prestige within the country.
• Force protection. Several techniques were found for utilizing NSF on missions and patrols. The NSF are good at providing route security as well as taking control of situations that develop in remote villages and towns not familiar with the mission of coalition forces. The NSF are also very good at providing security for PG officials who are attending shuras where the PRT is also in attendance. This practice is very effective because it puts nationals in charge of the event and has the PRT in support.
• Including NSF in military training. PRTs with mortars can coordinate with the ETT to have the NSF conduct calls for fire drills that support live fire missions done to test the PRT mortars. These drills are often done monthly to provide training for the PRT mortar section.
• Transitioning practice to the next PRT . The PRT commander should explain the advantages of having NSF augment missions and patrols. Not using opportunities to work with NSF can put additional strains on available coalition manpower.
Measures of success
• Local citizens gain more confidence in the NSF.
• NSF takes over patrolling areas previously patrolled by coalition forces.
• Crime and anti-coalition militia (ACM) actions decrease over time due to NSF actions and presence.
PRT Management
Information Sharing
How does the PRT share information with its staff and higher headquarters?
The PRT requires practical information collection and display tools to provide a common understanding of the situation in the province. Current information graphically displayed enables better operations planning and reconstruction and development. Lack of transition data by relief in place (RIP) units causes a need to collect data about the province. PRTs use different methods of collecting and displaying data.
The PRT needs a system for collecting and storing data that makes the information available to different members of the team. The COP is the visual display that results from setting priority information requirements, developing workable processes for collection, and updating the graphic display to summarize information.
Suggested approach
• Select a program manager. The PRT S2 is probably the best choice to be the program manager; however, the PRT commander must ensure that the S2 does not solely rely on his mission to collect tactical data. The key to a successful COP is to include all members of the PRT (USAID, DOS, USAD , CAT , CMOC).
• PG interest. Teaching the provincial governor about the usefulness of having a reconstruction and development COP would be beneficial; however, based on limitations in technology in the province, using maps and overlays is probably the best implementation method of this practice.
Developing the parameters of the COP :
• Deciding what data to collect. The PRT S2 should hold a meeting with USAID, DOS, USDA, FET, PTAT, and any other member of the PRT who has an interest in data collection. An assessment sheet should be developed from this meeting that synchronizes the collection efforts of all PRT members.
• Determining what system to use to display the collected data. With today’s technology it is possible to collect data in a database and display that information using graphical overlays on a basic set of maps. The old-school method of using a map with overlays can be effective; however, it is not as easy to query the data that is collected in reports created in Microsoft Word.
• Using a shared drive and establishing a standard naming convention. Rather than storing data under a personal logon, PRTs are setting up naming conventions for storing documents and keeping them on shared drives that can be backed-up weekly. Some PRTs need assistance in procuring external hard drives to create these backups. Standardizing this practice should be considered by higher headquarters. This standardization will help with retaining information that seems to be constantly lost as people depart the theater.
Visual techniques:
• FalconView. This program allows the PRT to create multiple overlays and digitally lay them over a standard set of maps. The system requires each piece of data to get plugged in with a GPS grid but does not allow the user to query the system to see trends.
• ARC View. Similar to FalconView, but this program allows for categorizing data. That enables the user to develop trend maps to see key relationships between events. One PRT is currently using this technique with great success. This system requires having users who know how to categorize the data to make it useful to a decision maker. The key to success with this system is consistent data entry.
• WebTAS. This system is currently under development. One PRT is serving as the test site for implementation. WebTAS allows the PRT to create standard assessment forms that store information and allows the user to create multiple overlays and digitally lay them over a standard set of maps. The system requires each piece of data to get plugged in with a GPS grid but does not allow the user to query the system to see trends. Bandwidth is a limitation for using WebTAS.
• Digital Battle Captain. This system is probably going to be the most useful COP program once it is fully developed. It includes daily event data collected from multiple sources across the combined joint operational area (CJOA). However, the bandwidth at many locations will be a limitation.
• Maps and overlays. Although this is a basic system, it gets the point across by using a limited number of overlays and color codes. In the absence of any other visual capability, this is a great option.
• Microsoft PowerPoint. This is a low-tech way of displaying limited amounts of data. However, with the “build” feature you can show what was done in the past, present, and future. You can also display information about key personalities and make personality cards that servicemembers can carry with them on patrols. Once the baseline charts are created PowerPoint is easy to update. It does not have any query capability.
• Microsoft Word documents. This is the most used, but least preferred method because it only creates a large amount of text data that cannot be easily queried. It forces new arrivals to read through all the data to pick out what they think is useful. This takes a new team a lot of time to gain operational knowledge of the province and tends to cause the loss of data over time.
Limitations:
• External hard drives. The amount of storage space required is extremely large when using better types of software. External hard drives are also very useful for PRTs to backup their data rather then trying to do it on CD-Rs. Storing map sets on external hard drives can help with bandwidth issues.
• Bandwidth. Many of these data systems require data to be maintained at locations with limited amounts of bandwidth. As a result, the practical use of these automated systems is reduced, if not totally diminished, because it takes too long to get the data.
• Plotters. Currently, PRTs do not have the equipment needed to print large-scale copies of their COP , even if they have the software to create one. Some PRTs have started requesting production of their large-scale products off-site; however, this often very time-consuming. One PRT has a geographic information system ( GIS ) section working at the PRT with a plotter and appropriate software. They can produce almost any product within hours of a request. An investment in a GIS section and plotter would be a worthwhile investment.
• Software. Based on the large number of software packages available and the cost involved in buying them, it would be extremely beneficial if the CJTF or geographic combatant commander would pick a standard package and purchase it for everyone. Training and technical support are required to support the system. Feedback from the field is necessary to keep the system relevant.
• Operators. There are limited numbers of trained operators on the useful software packages described above. Without a dedicated trained operator, expectations of the actual usefulness of these systems are not realistic. Standardized data collection is the key to making these systems work. Without trained personnel, it is often better to just fall back on less technical methods of collecting and displaying data. However, the long-term usability and scalability of these low-tech methods is limited.
Involving the provincial governor:
• Collecting data from the PG. It is essential that the PRT have a copy of the governor’s reconstruction and development plan. These data points should be put on a map to show how the province will progress in the future. Historical reconstruction and development data is important to allow the PG to see progress and for PRTs to see what has been accomplished in the past.
• Sharing the COP with the PG. Developing a reconstruction and development COP and sharing it with the PG and other donors is essential because the military has the best map-making equipment in the country. Often, the lack of maps (or the use of different maps) causes the PG and donors to misunderstand each other because the actual location of a reconstruction and development project is not known.
Transitioning practice to the next PRT : Ensure during the RIP that new PRT members are trained on the system used to develop the COP and that they fully understand how to maintain the data and why it is important. This common reference is essential to keep things running smoothly, as well as to ease future transitions. This system can be shared during predeployment site surveys allowing units to start training on the system and have relevant data before they arrive in theater. It also helps for new arrivals to have a basic understanding of their AO.
Transitioning practice to the provincial governor: One PRT developed the idea to have the provincial governor hire a local company to provide basic products that are developed from COP items. This company would be responsible for conducting surveys in each district and tabulating the data into information the PG found relevant and essential to the decision-making process. By doing this, the PRT would have COP products that the PG could hand out at the PG donors meeting, as well as use during the Provincial Security Coordination Body. These basic products would not cover everything that the PRT needs, but it would be a way to get the PG to make decisions based on raw data.
Measures of success
• Improvement in cross talk between PRT members
• Smoother in-processing of new personnel
• Reduction in the amount of redundant data input
• Historical data captured in a usable manner
Coordination With Other Units
How does the PRT coordinate reconstruction and development activities with other units?
PRTs require practical information collection and display tools to provide a common understanding of the situation in a particular province. Graphically displaying current information enables better operations planning and reconstruction and development. Lack of transition data by the RIP unit causes a need to collect data about the province.
Within the CJOA, maneuver units own all of the PRT operational environment. Lines of command can become blurred without higher headquarters clearly defining who is in charge. In instances where the PRT and a maneuver unit are collocated, the maneuver commander is the senior commander. In most of these instances the PRT operates at a reduced level of manpower, because it is collocated with a maneuver element. However, the difference in missions between the two units can make both parties ineffective without properly coordinating operations. If the PRT is not collocated with a maneuver element and has its full complement of force protection, it is still essential to know what other operational elements are doing in the province.
Suggested approach
The maneuver element S3 host a weekly meeting that includes the PRT and any maneuver elements in the AO. The meeting is essential because it allows all elements to deconflict their operations over the next week, as well as provide support when something happens that requires emergency assistance. The meeting also allows all parties to share information that others might find irrelevant; however, since attendees may be working in different parts of the province and/or working with different people, they ultimately will have information to share that all will find important. The meeting also allows units to find gaps and seams that can be mitigated to help share limited resources. Some future steps in this process would be to include the host government security force so it can learn how to conduct such a meeting and synchronize data sharing. This can all be integrated back into the 24/7 EOC .
Coordinating the concept:
• Selecting a program lead. The PRT S3 is the best person to be the program lead. The CAT -A team leader might want to attend to gather information firsthand from the meeting.
• PG interest. This meeting has no primary use to the PG; however, information from it could be used by the maneuver element and the PRT to assist them at the Provincial Security Coordination Body.
• Conduct of the meeting. The maneuver S3 hosts the meeting at his location and sets the weekly agenda. Attendees include the maneuver S3, PRT S3, ETT , and any other coalition force representatives in the province. All invitees must be able to review their missions and patrols for the next two weeks so a COP of events can be determined and deconflicted. When the maneuver element and the PRT are collocated, more time should be spent coordinating missions and patrols because the maneuver element must provide force protection in order for the PRT to accomplish its mission. This requirement for force protection can be greatly impacted if the maneuver commander has a different plan and is relying on these same limited resources.
• Transitioning practice to the next PRT . Review the meeting agenda with the new personnel and cover the due-outs for the next meeting. Also, provide historical meeting notes to show the intent of the meeting and its usefulness.
Measures of success
• Reduction in the duplication of missions and patrols
• Sharing of resources to supplement PRT missions and patrols
• Better working relationship with the maneuver element
• Mutual increased respect and understanding of all stakeholders
• Improvement in cross talk between PRT members
• Smoother in-processing of new personnel
• Reduction in the amount of redundant data input
• Historical data captured in a usable manner
Extending the Reach of the PRT Using Remote Patrol Bases
How does the PRT reach outlying districts within its province?
By design, PRTs are located close to the provincial capital. In many cases this limits their ability to reach all of the districts of the province on a frequent basis. Because many countries have a relationship-based culture, the absence of anything close to a regular presence puts any new relationship at a risk.
One PRT addressed this problem by establishing three remote patrol bases within the province to help project the presence and impact of the PRT . The patrol bases are located in safe houses, guarded full-time by hired security forces or collocated on a national police compound. The patrol is commanded by a major with about a 20-person organization and staffed with other PRT skill sets as required. The patrol leader constantly engages the local population and collects information for the PRT .
The remote patrol base concept allows relationships to form and grow with the local population. It also allows the PRT to make regular assessments and conduct quality control checks on remote projects. Patrols stay out for about three weeks at a time and then return to the PRT site for resupply. The same people return to their remote patrol base to ensure relationships are maintained with the locals. Because many of the remote locations are snowed in during the winter, the PRT shuts down the patrol bases except for the local security force. The PRT also reduces its staff in the winter months when the location of the remote bases is not trafficable.
Suggested approach
• Location of remote patrol bases. Selection of remote patrol base locations should be based on where they can have the most impact on the local population.
• Manpower. The PRT started with 120 people. This larger size allows for the manning of remote patrol bases; however, there is a manpower savings in the winter months when the remote patrol bases shut down until the spring thaw.
• Transitioning practice to the next PRT . This is a very easy concept to replicate if prior planning is done and teams are formed early. The new PRT members are identified early enough so that they can form as a team and participate in a three-phased approach. Throughout this process the current PRT members are in frequent contact with the new team before arrival. The three phases consist of a two-week predeployment site survey, a five-week PRT specific train-up, and a two-week left-seat/right-seat ride.
º Phase 1: The key leaders in the PRT come to the host country and spend two weeks experiencing and learning about the specifics of the province. They do not spend their time learning about how to do things inside the PRT infrastructure. They concentrate on learning about the PG’s vision and the influential people in the province. From this experience, they are able to take back information that is essential for Phase 2.
º Phase 2: The entire PRT comes together at a training site where they focus on how a PRT functions and works together. PRT members spend time learning about the province; local and key leaders; and the situation in the province, both past and present.
º Phase 3: The entire PRT arrives and spends two weeks together learning their jobs firsthand. There might be a few gaps in areas like cooks and administrative personnel; however, the key players (e.g., CAT , FET, and force protection sections) all spend time with each other learning how to implement what they have learned in their previous train-ups. This practice allows for more cohesive PRTs. PRT members practice meeting with the key and local leaders and getting the patrols out to their patrol bases to meet with the people. This is a well-planned engagement, with time spent getting to know the people and maintaining relationships, which is important in Middle Eastern cultures.
Measures of success
• Increased data collection from the districts
• Increased quality of construction projects based on the amount of time spent conducting quality control
• Willingness of locals to welcome the return of remote patrol bases during lulls or redeployments because of continuous relationship building
• Better able to counteract anti-coalition sentiment
Preparing the PRT for Local and National Engagements
How does the PRT ensure that its members conduct themselves properly when conducting engagements?
Not all personnel assigned to the PRT possess the tools and skills necessary to successfully engage the people or the provincial governor.
The PRT commander constantly stresses the importance of being security conscious while still being aware of properly interacting with the local population. Although no formal training process has been established, keeping the purpose of the mission at the forefront of most discussions makes servicemembers take this into consideration during mission planning and execution. Ensuring that everyone on the mission knows what they are going to be doing helps all to understand their part. Force protection Soldiers should be rotated through the tactical operations center (TOC), guard towers, and missions outside of the wire to get a better appreciation for what the PRT is doing and to gain an understanding of the nation’s people and culture.
Suggested approach
• Leader meeting. The PRT commander holds a leader meeting where the commander engagement concept is outlined. The PRT is to keep security on the forefront of all planning; however, adverse risk is not going to be an option. Steps are taken to ensure that a friendly appearance is presented when possible. Examples of this behavior are reducing vehicle speeds when driving through town and waving to the people. Additionally, the posture PRT personnel take with their weapons when on patrols is dictated by the perceived ACM threat in the area.
• Conducting informal training. Because PRT operations are often new to many servicemembers, on-the-spot corrections are common; however, covering this during mission briefs keeps it on the forefront of their minds. Additionally, the PRT works to get everyone involved in local engagements on a routine basis. This means occasionally getting force protection personnel out of their vehicles during an engagement to attend a shura or a local meal as a participant rather than a security element. PRTs also rotate all personnel through the TOC to gain a better understanding of mission planning.
• Conducting formal training. The PRT intends to develop some formal periods of instruction that will put everyone on the same level of knowledge of the following:
º PRT mission. This is more than just the standard mission. Each PRT member’s mission should be covered in detail, including techniques for successfully interacting with the local populace. This instruction might even cover some of the COP data that the PRT is looking to collect while performing its everyday missions.
º Risk avoidance versus risk mitigation. It is possible for a PRT to get into the habit of reducing the amount of time they leave the wire because of risk avoidance. If PRT members do not leave the wire, they are not able to engage with the PG and the local people; therefore, they cannot conduct their mission. Risk mitigation is taking steps to reduce potential security hazards in order to continue to accomplish the mission.
º Government structure. Lessons on how the government was formed, how PG officials are elected or selected for positions, and information on the background of the constitution are important. Understanding these subjects is critical in avoiding embarrassing errors.
º Religious practices and the mullahs. Understanding the religious practices of host nationals helps servicemembers figure out why locals make certain decisions. Many people do not understand how mullahs can be so influential in the PG’s decision-making process. Working with cultural experts, reading material about Islam and talking with local citizens can help servicemembers gain a better appreciation of the local culture.
º Adopting a local village. After getting to know the local people, some PRTs have adopted a local village. Donors from the United States send items that servicemembers can share with the local population. This is an effective way to create a bond with little effort or expense.
º Sporting events. Because many of the local kids like to play soccer, one PRT set up a challenge against a local soccer team. The national police provided security for the event, which turned out to be a great success. Members of the PG may attend the event and hand out an award at the end.
º Teaching culture. One PRT helped its local guards to improve their English skills. The PRT had several of the guards talk about life in their country and their religion with servicemembers. Many of the local guards are close in age to the young PRT members. Because of the relationship the PRT members already have with these guards, hearing about the local life and culture from them will have more of an impact than from an instructor the PRT members do not know.
• Transitioning practice to the next PRT : Members of the PRT should share their experiences with new arrivals to reduce their anxiety level. Ultimately, anything PRT members can do to help the next PRT understand the local population will help.
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