JP 3-16, Multinational Operations

•

Joint Publication 3-16

Multinational Operations

01 March 2019

Validated on 12 February 2021

PREFACE

1. Scope

This publication provides fundamental principles and guidance for the Armed Forces

of the United States when they operate as part of a multinational (coalition or allied) force.

It addresses operational considerations for the commander and staff to plan, execute, and

assess multinational operations.

2. Purpose

This publication has been prepared under the direction of the Chairman of the Joint

Chiefs of Staff (CJCS). It sets forth joint doctrine to govern the activities and performance

of the Armed Forces of the United States in joint operations, and it provides considerations

for military interaction with governmental and nongovernmental agencies, multinational

forces, and other interorganizational partners. It provides military guidance for the exercise

of authority by combatant commanders and other joint force commanders (JFCs), and

prescribes joint doctrine for operations and training. It provides military guidance for use

by the Armed Forces in preparing and executing their plans and orders. It is not the intent

of this publication to restrict the authority of the JFC from organizing the force and

executing the mission in a manner the JFC deems most appropriate to ensure unity of effort

in the accomplishment of objectives.

3. Application

a. Joint doctrine established in this publication applies to the Joint Staff, commanders

of combatant commands, subordinate unified commands, joint task forces, subordinate

components of these commands, the Services, and combat support agencies.

b. This doctrine constitutes official advice concerning the enclosed subject matter;

however, the judgment of the commander is paramount in all situations.

c. If conflicts arise between the contents of this publication and the contents of Service

publications, this publication will take precedence unless the CJCS, normally in

coordination with the other members of the Joint Chiefs of Staff, has provided more current

and specific guidance. Commanders of forces operating as part of a multinational (alliance

or coalition) military command should follow multinational doctrine and procedures

Preface

ii JP 3-16

ratified by the United States. For doctrine and procedures not ratified by the United States,

commanders should evaluate and follow the multinational command’s doctrine and

procedures, where applicable and consistent with US law, regulations, and doctrine.

For the Chairman of the Joint Chiefs of Staff:

DANIEL J. O’DONOHUE

Lieutenant General, USMC

Director, Joint Force Development

iii

SUMMARY OF CHANGES

REVISION OF JOINT PUBLICATION 3-16

DATED 16 JULY 2013

• This publication was validated without change on 12 February 2021

• Removes and replaces Range of Military Options to a Competition Continuum.

• Updates and cleans up graphics throughout the joint publication (JP).

• Updates several of the quotes and examples throughout the JP.

• Terminology and acronyms updated to current lexicon.

• Utilizes “national” vice “political” will and decisions throughout.

• Updated out of date reference Internet links.

• ‘Stability operations’ changed to ‘stability activities’.

• Emphasized Joint Electromagnetic Spectrum Management Operations.

• Enhanced the Multinational Logistic section.

• Enhanced the Transition to Multinational Operations section.

• Updates Appendix A, “Planning Considerations Checklist.”

• Updates Appendix B, “Multinational Planning Augmentation Team.”

• Updates Appendix C, “Multinational Strategy and Operations Group.”

• Adds Appendix D, “Multinational Logistics.”

• Adds Appendix E, “Commander's Checklist for Logistics in Support of

Multinational Operations.”

• Includes “Counter Threat Networks” under “Other Multinational Operations.”

Summary of Changes

iv JP 3-16

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TABLE OF CONTENTS

EXECUTIVE SUMMARY ............................................................................................. viii

CHAPTER I

FUNDAMENTALS OF MULTINATIONAL OPERATIONS

 Multinational Operations Overview ........................................................................... I-1

 Strategic Context ......................................................................................................... I-1

 Nature of Multinational Operations ............................................................................ I-2

 Security Cooperation .................................................................................................. I-5

 Security Cooperation Considerations ......................................................................... I-6

 Rationalization, Standardization, and Interoperability ............................................... I-8

CHAPTER II

COMMAND AND COORDINATION RELATIONSHIPS

 Command Authority ..................................................................................................II-1

 Unified Action ...........................................................................................................II-2

 Multinational Force Commander ...............................................................................II-4

 Overview of Multinational Command Structures ......................................................II-4

 Multinational Command Structures ...........................................................................II-8

 Multinational Force Coordination ..............................................................................II-9

 Control of Multinational Operations ........................................................................II-17

 Interorganizational Cooperation ..............................................................................II-18

CHAPTER III

GENERAL PLANNING CONSIDERATIONS

 Diplomatic and Military Considerations .................................................................. III-1

 Building and Maintaining a Multinational Force..................................................... III-3

 Mission Analysis and Assignment of Tasks ............................................................ III-5

 Language, Religion, Culture, and Sovereignty ........................................................ III-6

 Legal ........................................................................................................................ III-8

 Doctrine and Training ............................................................................................ III-10

 Funding and Resources .......................................................................................... III-10

 Protection of Personnel, Information, and Critical Assets ..................................... III-11

 Rules of Engagement ............................................................................................. III-12

 Combat Identification and Friendly Fire Prevention ............................................. III-13

CHAPTER IV

OPERATIONS

 Land Operations ....................................................................................................... IV-1

 Maritime Operations ................................................................................................ IV-3

 Air Operations .......................................................................................................... IV-4

 Space Operations ..................................................................................................... IV-7

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vi JP 3-16

 Information .............................................................................................................. IV-8

 Cyberspace Operations .......................................................................................... IV-10

CHAPTER V

OTHER MULTINATIONAL OPERATIONS

 Stability Activities .................................................................................................... V-1

 Special Operations .................................................................................................... V-2

 Joint Electromagnetic Spectrum Management Operations ....................................... V-2

 Noncombatant Evacuation Operations ..................................................................... V-4

 Foreign Humanitarian Assistance Operations .......................................................... V-5

 Countering Weapons of Mass Destruction ............................................................... V-7

 Counterdrug Operations ............................................................................................ V-8

 Countering Threat Networks ..................................................................................... V-8

 Personnel Recovery .................................................................................................. V-9

CHAPTER VI

OTHER CONSIDERATIONS

 Assessment ............................................................................................................... VI-1

 Intelligence ............................................................................................................... VI-1

 Information Sharing ................................................................................................. VI-5

 Communications ...................................................................................................... VI-9

 Joint Fires ............................................................................................................... VI-11

 Host-Nation Support .............................................................................................. VI-11

 Civil Affairs Operations ......................................................................................... VI-13

 Health Services ...................................................................................................... VI-14

 Personnel Support .................................................................................................. VI-14

 Public Affairs ......................................................................................................... VI-15

 Multinational Logistics .......................................................................................... VI-16

 Meteorology and Oceanography ............................................................................ VI-20

 Environmental ........................................................................................................ VI-21

 Transitions.............................................................................................................. VI-22

 Multinational Communications Integration ........................................................... VI-25

APPENDIX

A Planning Considerations Checklist ............................................................ A-1

B Multinational Planning Augmentation Team .............................................B-1

C Multinational Strategy and Operations Group ...........................................C-1

D Multinational Logistics ............................................................................. D-1

E Commander’s Checklist for Logistics in Support of

Multinational Operations ............................................................................ E-1

F Points of Contact ........................................................................................ F-1

G References ................................................................................................. G-1

H Administrative Instructions ....................................................................... H-1

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vii

GLOSSARY

Part I Abbreviations, Acronyms, and Initialisms .............................................. GL-1

Part II Terms and Definitions ............................................................................. GL-5

FIGURE

I-1 Notional Competition Continuum ............................................................... I-3

II-1 Notional Multinational Command Structure ..............................................II-1

II-2 Notional Coalition Command and Control Structure ................................ II-4

II-3 Integrated Command Structure ..................................................................II-6

II-4 Lead Nation Command Structure ...............................................................II-6

II-5 Parallel Command Structure ......................................................................II-7

II-6 Coalition Command Relationships for Operation

Desert Storm (Land Forces) .....................................................................II-10

II-7 Order of Battle ..........................................................................................II-13

II-8 International Security Assistance Force Coalition

Command Relationships ..........................................................................II-14

II-9 Stabilization Force Coalition Command Relationships ...........................II-15

II-10 European Forces Coalition Command Relationships ...............................II-16

III-1 Factors Affecting the Military Capabilities of Nations ............................ III-2

III-2 Partner Nation Contributions ................................................................... III-4

IV-1 Multinational Force Land Component Commander

Notional Responsibilities ......................................................................... IV-2

IV-2 Multinational Force Maritime Component Commander

Notional Responsibilities ......................................................................... IV-4

IV-3 Multinational Force Air Component Commander

Notional Responsibilities ......................................................................... IV-5

V-1 Multinational Force Special Operations Component

Commander Notional Responsibilities ...................................................... V-3

VI-1 Multinational Intelligence Principles ....................................................... VI-2

VI-2 Notional Transitions of Authority .......................................................... VI-25

VI-3 Multinational Communication Integration ............................................. VI-26

B-1 Multinational Planning Augmentation Team

Augmentation Roles ...................................................................................B-2

D-1 Logistics Principles of Multinational Operations ...................................... D-2

D-2 United States and North Atlantic Treaty Organization

Classes of Supply .................................................................................... D-11

D-3 Illustrative Multinational Joint Logistic Center Structure ....................... D-15

D-4 Illustrative Logistic Command and Control

Organization: Alliance-Led ..................................................................... D-17

D-5 Illustrative Logistic Command and Control Organization:

United States-Led Multinational Operation ............................................ D-18

D-6 Illustrative Logistic Command and Control Organization:

United Nations-Commanded Multinational Operation ........................... D-20

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EXECUTIVE SUMMARY

COMMANDER’S OVERVIEW

• Describes the strategic context for multinational operations

• Discusses the nature and tenets of multinational operations

• Describes how security cooperation provides ways and means to help achieve

national security and foreign policy objectives

• Outlines command and coordination relationships within national and

multinational chains of command

• Discusses diplomatic and military considerations related to building and

maintaining a multinational force

• Describes how language, religion, culture, and sovereignty considerations

effect planning for multinational operations

• Outlines how land, maritime, air, space, information, and cyberspace

operations are conducted in a multinational context

Fundamentals of Multinational Operations

Multinational operations are conducted by forces of

two or more nations, usually undertaken within the

structure of a coalition or alliance. Other possible

arrangements include supervision by an

international organization such as the United

Nations, North Atlantic Treaty Organization

(NATO), or Organization for Security and

Cooperation in Europe.

Strategic Context

Nations form regional and global geopolitical and

economic relationships to promote their mutual

national interests, ensure mutual security against

real and perceived threats, conduct foreign

humanitarian assistance (FHA), conduct peace

operations, and promote their ideals. Cultural,

diplomatic, psychological, economic,

technological, and informational factors all

influence multinational operations and

participation. However, a nation’s decision to

Executive Summary

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employ military capabilities is always a political

decision.

Nature of Multinational

Operations

The tenets of multinational operations are respect,

rapport, knowledge of partners, patience, mission

focus, team-building, trust, and confidence. While

these tenets cannot guarantee success, ignoring

them may lead to mission failure due to a lack of

unity of effort. National and organizational norms

of culture, language, and communication affect

multinational force (MNF) interoperability.

Security Cooperation

US national and Department of Defense strategic

guidance emphasizes the importance of defense

relationships with allies and partner nations (PNs)

to advance national security objectives, promote

stability, prevent conflicts, and reduce the risk of

having to employ US military forces in a conflict.

Security cooperation (SC) activities are likely to be

conducted in a combatant command’s daily

operations. SC advances progress toward

cooperation within the competition continuum by

strengthening and expanding the existing network

of US allies and partners, which improves the

overall warfighting effectiveness of the joint force

and enables more effective multinational

operations.

Rationalization, Standardization,

and Interoperability

International rationalization, standardization, and

interoperability with PNs is important for achieving

practical cooperation; efficient use of research,

development, procurement, support, and production

resources; and effective multinational capability

without sacrificing US capabilities.

Command and Coordination Relationships

Command Authority

Although nations will often participate in

multinational operations, they rarely, if ever,

relinquish national command of their forces. As

such, forces participating in a multinational

operation will always have at least two distinct

chains of command: a national chain of command

and a multinational chain of command.

National Command. As Commander in Chief, the

President always retains and cannot relinquish

Executive Summary

national command authority over US forces.

National command includes the authority and

responsibility for organizing, directing,

coordinating, controlling, planning employment of,

and protecting military forces.

Multinational Command. Command authority for

a multinational force commander (MNFC) is

normally negotiated between the participating

nations and can vary from nation to nation. In

making a decision regarding an appropriate

command relationship for a multinational military

operation, the President carefully considers such

factors as mission, size of the proposed US force,

risks involved, anticipated duration, and rules of

engagement. Command authority will be specified

in the implementing agreements that provide a clear

and common understanding of what authorities are

specified over which forces.

Unified Action

Unified action during multinational operations

involves the synergistic application of all

instruments of national power as provided by each

participating nation; it includes the actions of

nonmilitary organizations as well as military forces.

Multinational Force Commander

MNFC is a generic term applied to a commander

who exercises command authority over a military

force composed of elements from two or more

nations. The extent of the MNFC’s command

authority is determined by the participating

nations or elements.

Overview of Multinational

Command Structures

No single command structure meets the needs of

every multinational command, but national

considerations will heavily influence the ultimate

shape of the command structure.

The basic structures for multinational operations fall

into one of three types: integrated, lead nation (LN),

or parallel command.

 Integrated Command Structure. A good

example of this command structure is in NATO,

where a strategic commander is designated from

a member nation, but the strategic command

staff and the commanders and staffs of

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xii JP 3-16

subordinate commands are of multinational

makeup.

 LN Command Structure. An LN structure

exists when all member nations place their

forces under the control of one nation. The LN

command structure can be distinguished by a

dominant LN command and staff arrangement

with subordinate elements retaining strict

national integrity.

 Parallel Command Structures. Under a

parallel command structure, no single force

commander is designated. The MNF leadership

must develop a means for coordination among

the participants to achieve unity of effort. This

can be accomplished through the use of

coordination centers. Nonetheless, because of

the absence of a single commander, the use of a

parallel command structure should be avoided,

if at all possible.

Interorganizational Cooperation

In many operational environments, the MNF

interacts with a variety of stakeholders requiring

unified action by the MNFC, including nonmilitary

governmental departments and agencies,

international organizations, and nongovernmental

organizations (NGOs). Interorganizational

cooperation includes the coordination between the

Armed Forces of the United States; US

Government departments and agencies; state,

territorial, local, and tribal government agencies;

foreign military forces and government agencies;

international organizations; NGOs; and the private

sector.

General Planning Considerations

Diplomatic and Military

Considerations

The composition of an MNF may change as partners

enter and leave when their respective national

objectives change or force contributions reach the

limits of their nation’s ability to sustain them. Some

nations may even be asked to integrate their forces

with those of another, so that a contribution may, for

example, consist of an infantry company containing

platoons from different countries. The only

constant is that a decision to “join in” is, in every

Executive Summary

xiii

case, a calculated diplomatic decision by each

potential member of a coalition or alliance. The

nature of their national decisions, in turn, influences

the multinational task force’s (MNTF’s) command

structure.

Numerous factors influence the military capabilities

of nations. The operational-level commander must

be aware of the specific operational limitations and

capabilities of the forces of participating nations and

consider these differences when assigning missions

and conducting operations. MNTF commanders at

all levels may be required to spend considerable

time consulting and negotiating with diplomats,

host nation (HN) officials, local leaders, and others;

their role as diplomats should not be

underestimated.

Building and Maintaining a

Multinational Force

Building an MNF starts with the national decisions

and diplomatic efforts to create a coalition or spur

an alliance into action. Discussion and coordination

between potential participants will initially seek to

sort out basic questions at the national strategic

level.

Mission Analysis and Assignment

of Tasks

The MNFC’s staff should conduct a detailed

mission analysis. This is one of the most important

tasks in planning multinational operations and

should result in a revised mission statement,

commander’s intent, and the MNFC’s planning

guidance. As part of the mission analysis, force

requirements should be identified; standards for

participation published (e.g., training-level

competence and logistics, including deployment,

sustainment, and redeployment capabilities); and

funding requests, certification procedures, and force

commitments solicited from an alliance or likely

coalition partners.

Language, Religion, Culture, and

Sovereignty

Differing languages within an MNF may present

a significant challenge to command, control, and

communications and potentially affect unity of

effort if not mitigated. US forces cannot assume

the predominant language will automatically be

English, and specifying an official language for the

MNF can be a sensitive issue. Therefore, US forces

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xiv JP 3-16

should make every effort to overcome language

barriers.

Religion. Each partner in multinational operations

requires the capability to assess the impact of

religion upon operations. Assigned religious affairs

personnel serve as general planning considerations

advisers to the command regarding religious factors

among the local population, as well as assigned,

attached, or authorized personnel.

Culture. Each partner in multinational operations

possesses a unique cultural identity—the result of

their physical environment, economic, political, and

social outlook, as well as the values, beliefs, and

symbols that comprise their culture. Commanders

should strive to accommodate religious and cultural

customs, holiday observances, and similar concerns

of MNF members.

Sovereignty Issues. Sovereignty issues will be

among the most difficult problems the MNFC may

be required to mitigate. Often, the MNFC will be

required to accomplish the mission through

coordination, communication, and consensus, in

addition to traditional command concepts. National

sensitivities must be recognized and acknowledged.

Operations

Land Operations

In most multinational operations, land forces are an

integral and central part of the military effort. The

level and extent of land operations in a multinational

environment is largely a function of the overall

military objectives, any national caveats to

employment, and the forces available within the

MNF.

National doctrine and training will normally dictate

employment options within the MNF. Nations with

common tactics, techniques, and procedures will

also experience far greater interoperability.

Effective use of SC activities may significantly

reduce interoperability problems even for countries

with widely disparate weapons systems.

Executive Summary

Maritime Operations

During multinational operations, maritime forces

can exercise sea control or project power ashore,

synchronize their operations with the other MNF

components, and support the MNFC’s intent and

guidance in accomplishing the MNF mission.

Maritime forces are primarily navies and coast

guard; however, they may include maritime-

focused air forces, amphibious forces, or other

government departments and agencies charged with

sovereignty, security, or constabulary functions at

sea.

Air Operations

Air operations provide the MNFC with a

responsive, agile, and flexible means of operational

reach. The MNFC can execute deep operations

rapidly, striking at decisive points and attacking

centers of gravity. Further, transportation and

support requirements can be greatly extended in

response to emerging crisis and operational needs.

Multinational air operations are focused on

supporting the MNFC’s intent and guidance in

accomplishing the MNTF mission and, at the same

time, ensuring air operations are integrated with the

other major MNF operational functions (land,

maritime, and special operations forces).

Space Operations

MNFCs depend upon and exploit the advantages of

space-based capabilities. Available space

capabilities are normally limited to already

deployed assets and established priorities for space

system resources. Space systems offer global

coverage and the potential for real time and near real

time support to military operations. US Strategic

Command, through the joint force component

commander, enables commands to access various

space capabilities and systems.

Information

All military activities produce information.

Informational aspects are the features and details of

military activities observers interpret and use to

assign meaning and gain understanding. Those

aspects affect the perceptions and attitudes that

drive behavior and decision making. The joint force

commander/MNFC leverages informational aspects

of military activities to gain an advantage; failing to

leverage those aspects may cede this advantage to

others. Leveraging the informational aspects of

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xvi JP 3-16

military activities ultimately affects strategic

objectives.

Cyberspace Operations

Cyberspace is a global domain within the

information environment consisting of the

interdependent network of information technology

infrastructures and resident data, including the

Internet, telecommunications networks, computer

systems, space-based resources, and embedded

processors and controllers. Cyberspace uses

electronics and the electromagnetic spectrum

(EMS) to create, store, modify, and exchange data

via networked systems. Cyberspace operations seek

to ensure freedom of action throughout the

operational environment for US forces and our

allies, while denying the same to our adversaries.

Cyberspace operations overcome the limitations of

distance, time, and physical barriers present in the

physical domains. Cyberspace links actions in the

physical domains, enabling mutually dependent

operations to achieve an operational advantage.

Other Multinational Operations

Stability Activities

Stabilization is the process by which military and

nonmilitary actors collectively apply various

instruments of national power to address drivers of

conflict, foster HN resiliencies, and create

conditions that enable sustainable peace and

security. Stability is needed when a state is under

stress and cannot cope. MNFs supporting

stabilization efforts should consider the use of

fundamentals of stabilization and the principles of

multinational operations to plan and execute

military activities to facilitate long-term stability.

The fundamentals are conflict transformation, HN

ownership, unity of effort, and building HN

capacity.

Special Operations

Special operations forces (SOF) can provide the

MNTF with a wide range of specialized military

capabilities and responses. SOF can provide

specific assistance in the areas of assessment,

liaison, and training of HN forces within the MNTF

operational area.

Executive Summary

xvii

Joint Electromagnetic Spectrum

Management Operations

To prevail in the next conflict, an MNF must win

the fight for EMS superiority. Devices whose

functions depend on the EMS are used by both

civilian and military organizations and individuals

for intelligence; communications; positioning,

navigation, and timing; sensing; command and

control; attack; ranging; and data transmission and

information storage and processing.

Noncombatant Evacuation

Operations

The President of the United States is the approval

authority for noncombatant evacuation operations

(NEOs), which will be conducted under the lead of

the chief of diplomatic mission, the President’s

personal representative to the HN. An NEO is

conducted to relocate designated noncombatants

threatened in a foreign country to a place of safety.

NEOs are principally conducted by US forces to

evacuate US citizens but may be expanded to

include citizens from the HN, as well as citizens

from other countries.

Foreign Humanitarian

Assistance Operations

FHA operations, particularly in developing

countries, often require the intervention and aid of

various agencies, including the military, from all

over the world, in a concerted and timely manner.

As a result, operations involve dynamic information

exchange, planning, and coordination.

Countering Weapons of Mass

Destruction

Countering weapons of mass destruction is a

continuous campaign that requires a coordinated

multinational and whole-of-government effort to

curtail the conceptualization, development,

possession, proliferation, use, and effects of

weapons of mass destruction related expertise,

materials, and technologies.

CONCLUSION

This joint publication provides doctrine for the

Armed Forces of the United States when they

operate as part of a multinational (coalition or allied)

force.

Executive Summary

xviii JP 3-16

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I-1

CHAPTER I

FUNDAMENTALS OF MULTINATIONAL OPERATIONS

1. Multinational Operations Overview

Multinational operations are conducted by forces of two or more nations, usually

undertaken within the structure of a coalition or alliance. Other possible arrangements

include supervision by an international organization such as the United Nations (UN),

North Atlantic Treaty Organization (NATO), or Organization for Security and Cooperation

in Europe. Commonly used terms under the multinational rubric include allied, bilateral,

coalition, combined, or multilateral. However, within this publication, the term

multinational will be used to describe these actions. There are two primary forms of

multinational partnership the joint force commander (JFC) will encounter:

a. An alliance is the relationship that results from a formal agreement between two or

more nations for broad, long-term objectives that further the common interests of the

members.

b. A coalition is an arrangement between two or more nations for common action.

Coalitions are typically ad hoc; formed by different nations, often with different objectives;

usually for a single problem or issue, while addressing a narrow sector of common interest.

Operations conducted with units from two or more coalition members are referred to as

coalition operations.

2. Strategic Context

a. Nations form regional and global geopolitical and economic relationships to

promote their mutual national interests, ensure mutual security against real and perceived

threats, conduct foreign humanitarian assistance (FHA), conduct peace operations (PO),

and promote their ideals. Cultural, diplomatic, psychological, economic, technological,

and informational factors all influence multinational operations and participation.

However, a nation’s decision to employ military capabilities is always a political

decision.

b. Since Operation DESERT STORM in 1991, the trend has been to conduct US

military operations as part of a multinational force (MNF). This could be under the

auspices of a NATO operation, which may also include non-NATO nations (e.g., Operation

UNIFIED PROTECTOR in 2011) or an MNF consisting of a coalition of nations that is

formed without NATO (e.g., Operation INHERENT RESOLVE, 2014-present).

“In the decades after fascism’s defeat in World War II, the United States and its

allies and partners constructed a free and open international order to better

safeguard their liberty and people from aggression and coercion. Although this

system has evolved since the end of the Cold War, our network of alliances and

partnerships remain the backbone of global security.”

Summary of the 2018 National Defense Strategy of the United States of America

Chapter I

I-2 JP 3-16

Therefore, US commanders should be prepared to perform either supported or supporting

roles in military operations as part of an MNF. These operations could span the range of

military operations and require coordination with a variety of United States Government

(USG) departments and agencies, foreign military forces, local authorities, international

organizations, and nongovernmental organizations (NGOs). The move to a more

comprehensive approach toward problem solving, particularly in regard to

counterinsurgency operations, other counter threat network activities, or stability activities,

increases the need for coordination and synchronization among military and nonmilitary

entities.

For more information on counterinsurgency operations and stability activities, see Joint

Publication (JP) 3-24, Counterinsurgency; JP 3-25, Countering Threat Networks; and JP

3-07, Stability.

c. Much of the information and guidance provided for unified action and joint

operations remains applicable to multinational operations. However, commanders and

staffs should account for differences in partners’ laws, doctrine, organization, weapons,

equipment, capacities, terminology, culture, politics, religion, language, and objectives.

There is no “standard template,” and each alliance or coalition normally develops its own

protocols and operation plans (OPLANs) to guide multinational action. While NATO

Allied doctrine provides guidance and authorities for US forces when operating as part of

a larger authorized NATO force, US forces should comply with US joint doctrine if NATO

doctrine is in conflict.

d. While most partner nations (PNs) recognize the range of military operations

terminology, authorities, commitments, and imposed constraints and restraints may not

mirror those of US forces who are now utilizing a ‘competition continuum’ (Figure I-1).

Allied Joint Publication (AJP)-3, Allied Joint Doctrine for the Conduct of Operations,

provides the NATO discussion comparable to JP 3-0, Joint Operations. For instance, some

frequent partners do not plan, execute, and assess their Services’ operations from a joint

perspective. Therefore, JFCs should establish early and continuous liaison that enhances

mutual understanding of each MNFs’ member’s commitment. This enhanced

understanding allows the JFC to consider the member’s operational, legal, and logistical

constraints and restraints (as prescribed by each partner’s national law and policy) and

facilitates operational planning that optimizes each contributing nation’s military

capabilities.

3. Nature of Multinational Operations

After World War II, General Dwight D. Eisenhower noted that “mutual confidence”

is the “one basic thing that will make allied commands work.” The tenets of multinational

operations are respect, rapport, knowledge of partners, patience, mission focus, team-

building, trust, and confidence. While these tenets cannot guarantee success, ignoring them

may lead to mission failure due to a lack of unity of effort. National and organizational

norms of culture, language, and communication affect MNF interoperability. Each partner

in unified action has a unique cultural identity. Military forces, civilian agencies, NGOs,

and international organizations approach military conflict from different perspectives.

Fundamentals of Multinational Operations

I-3

National and organizational values, societal and social norms, historic contexts, religious

beliefs, and organizational discipline all affect the perspectives of multinational partners.

Partners with similar cultures and a common language experience fewer obstacles to

interoperability. Even minor differences, such as dietary restrictions or officer-enlisted

relationships, may affect military operations significantly. Commanders may have to

accommodate cultural sensitivities and overcome diverse or conflicting religious, social,

societal, or traditional requirements, any of which can form bases for explicit or implicit

caveats on partners’ participation. In multinational operations, commanders rely upon the

tenets to build teamwork and trust in a joint or multinational force in multiple ways.

Commanders should establish relationships with their multinational counterparts based

upon mutual respect. Team building is essential to successful MNF interoperability. It can

be accomplished through training, exercises, and assigning missions that fit organizational

capabilities. Building teamwork and trust takes time and requires the patience of all

participants. The result is enhanced mutual confidence and unity of effort.

a. Respect. In assigning missions and tasks, the commander should consider that

national honor and prestige may be as important to a contributing nation as combat

capability. All partners must be included in the planning process, and their opinions must

be sought in mission assignment, organizational structure, and the operation assessment

process. Understanding, discussing, and considering partner ideas are essential to building

effective relationships, as are respect for each partner’s culture, customs, history, and

values. Junior officers or even senior enlisted personnel in command of small national

Figure I-1. Notional Competition Continuum

Security Cooperation

Operations in the Information Environment

Cyberspace Operations

Competition

Below Armed

Conflict

Armed

Conflict/War

Cooperation

Assure Deter Coerce Compel

Counter-Terrorism

Operations

Humanitarian

Assistance

Freedom of

Navigation

Forward Presence

Major Combat

Operations

Limited Contingency

Operations

Scale

Notional Competition Continuum

Competition

Continuum

Strategic

Use of Force

Campaign

Operations

Activities

Chapter I

I-4 JP 3-16

contingents may be the senior representatives of their government within the MNF and, as

such, should be treated with the courtesy and respect afforded the commanders of other

troop contributing nations. Without genuine respect of others, rapport and mutual

confidence cannot exist.

b. Rapport. US commanders and staffs should establish rapport with their

counterparts from PNs, as well as the multinational force commander (MNFC).

Establishing and maintaining rapport in a multinational environment through personal,

direct relationships is an effective means of ensuring successful unity of effort with or

among PNs. When interacting with non-English speakers, knowing at least a few phrases

and greetings will help establish a relationship. It is important to remember eye contact

and good listening skills are essential in building rapport. Therefore, when using an

interpreter, the focus should be on the person to whom the message is being conveyed.

Good rapport between leaders will improve teamwork among their staffs and subordinate

commanders and overall unity of effort. The use of liaisons can facilitate the development

of rapport by assisting in the staffing of issues to the correct group and in monitoring

responses, while taking care not to relegate operational decision making to those liaisons.

c. Knowledge of Partners. In addition to learning about the threat, deployed US

forces must demonstrate the capability to communicate and interact effectively with local

nationals, government officials, and other multinational partners. Developing and

demonstrating communication skills, regional knowledge, local customs, values, and

cultural awareness serves as a force multiplier that enables effective MNF operations.

d. Patience. Effective partnerships take time and attention to develop. Diligent

pursuit of a trusting, mutually beneficial relationship with multinational partners requires

untiring, evenhanded patience. This is more difficult to accomplish within coalitions than

within alliances; however, it is just as necessary. It is therefore imperative that US

commanders and their staffs apply appropriate resources, travel, staffing, and time not only

to maintain, but also to expand and cultivate multinational relationships. Without patience

and continued dialogue, established partnerships can rapidly degrade.

e. Mission Focus. When dealing with other nations, US forces should temper the

need for respect, rapport, knowledge, and patience with the requirement to ensure the

necessary tasks are accomplished by those with the capabilities, capacities, and authorities

to accomplish those tasks. This is especially critical with force protection (FP) where

failure could prove to have catastrophic results to personnel and mission. If operational

necessity requires tasks being assigned to personnel who are not proficient in

accomplishing those tasks, then the MNFC must recognize the risks and apply appropriate

mitigating measures (e.g., a higher alert level to potential threats). The JFC may need to

consider strategies to enable partners who may have capability shortfalls that would limit

their ability to accomplish tasks.

f. Trust and Confidence. Commanders should build personal relationships and

develop trust and confidence with other leaders of the MNF. Developing these

relationships is a conscious collaborative act rather than something that just happens.

Commanders build trust through words and actions. Trust and confidence are essential to

Fundamentals of Multinational Operations

I-5

synergy and harmony, both within the joint force and with our multinational partners.

Coordination and cooperation among organizations are based on trust. Trust is based on

personal integrity (sincerity, honesty, and candor). Trust is hard to establish and easy to

lose. There can be no unity of effort in the final analysis without mutual trust and

confidence. Accordingly, the ability to inspire trust and confidence across national lines

is a personal leadership quality to be cultivated. Saying what you mean and doing what

you say are fundamental to establishing trust and confidence in an MNF.

4. Security Cooperation

a. Security cooperation (SC) provides ways and means to help achieve national

security and foreign policy objectives. US national and Department of Defense (DOD)

strategic guidance emphasizes the importance of defense relationships with allies and

PNs to advance national security objectives, promote stability, prevent conflicts, and

reduce the risk of having to employ US military forces in a conflict. SC activities are

likely to be conducted in a combatant command’s (CCMD’s) daily operations. SC

advances progress toward cooperation within the competition continuum by

strengthening and expanding the existing network of US allies and partners, which

improves the overall warfighting effectiveness of the joint force and enables more

effective multinational operations. SC activities, many of which are shaping activities

within the geographic combatant commander (GCC) campaign plans—the centerpiece of

the planning construct from which OPLANs/concept plans (CONPLANs) are now

branches—are deemed essential to achieving national security and foreign policy

objectives. SC activities also build interoperability with NATO Allies and other partners

in peacetime, thereby speeding the establishment of effective coalitions—a key factor in

potential major combat operations with near-peer competitors.

b. The Guidance for Employment of the Force (GEF) provides the foundation for all

DOD interactions with foreign defense establishments and supports the President’s

National Security Strategy. With respect to SC, the GEF provides guidance on building

partner capacity and capability, relationships, and facilitating access (under the premise

that the primary entity of military engagement is the nation state and the means which

GCCs influence nation states is through their defense establishments). The GEF outlines

the following SC activities: defense contacts and familiarization, personnel exchange,

combined exercises and training, train and equip/provide defense articles, defense

institution building, operational support, education, and international armaments

cooperation.

c. GCC theater strategies, as reflected in their combatant command campaign plans

(CCPs), typically emphasize military engagement, SC, and deterrence activities as daily

operations. GCCs shape their areas of responsibility through SC activities by continually

employing military forces to complement and reinforce other instruments of national

power. The GCC’s CCP provides a framework within which CCMDs conduct

cooperative military activities and development. Ideally, SC activities lessen the causes

of a potential crisis before a situation deteriorates and requires substantial US military

intervention.

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I-6 JP 3-16

d. The CCP is the primary document that focuses on each command’s activities

designed to attain theater strategic end states. The GEF and Chairman of the Joint Chiefs

of Staff Instruction (CJCSI) 3110.01, (U) Joint Strategic Campaign Plan (JSCP) (referred

to as the JSCP), provide regional focus and SC priorities.

e. DOD components may develop supporting plans that focus on activities conducted

to support the execution of the CCPs and on their own SC activities that directly contribute

to the campaign end states and/or DOD component programs in support of broader Title

10, US Code, responsibilities. The Services conduct much of the detailed work to build

interoperability and capacity with NATO Allies and mission partners.

For additional information on SC, see JP 3-20, Security Cooperation; Department of

Defense Directive (DODD) 5132.03, Department of Defense Policy and Responsibilities

Relating to Security Cooperation; the GEF; and the JSCP.

f. The DOD State Partnership Program establishes enduring relationships between

emerging PNs of strategic value and individual US states and territories. The DOD State

Partnership Program is an important contribution to the DOD SC programs conducted by

the GCCs in conjunction with the National Defense Strategy, National Security Strategy,

National Military Strategy, Department of State (DOS), campaign plans, and theater SC

guidance to promote national and combatant commander (CCDR) objectives, stability, and

partner capacity.

For more detailed discussion on the DOD State Partnership Program, see Department of

Defense Instruction (DODI) 5111.20, State Partnership Program (SPP), and JP 3-29,

Foreign Humanitarian Assistance.

5. Security Cooperation Considerations

a. Foreign internal defense (FID) is the participation by civilian and military agencies

of a government in any of the action programs taken by another government or other

designated organization to free and protect its society from subversion, lawlessness,

insurgency, terrorism, and other threats to their security. The focus of US FID efforts is to

support the host nation’s (HN’s) internal defense and development, which can be described

as the full range of measures taken by a nation to promote its growth and protect itself from

security threats.

b. US military support to FID should focus on assisting an HN in anticipating,

precluding, and countering threats or potential threats and addressing the root causes of

instability. DOD employs a number of FID tools that interact with foreign defense

establishments to build defense relationships that promote specific US security interests,

support civil administration, provide SC, develop allied and friendly military capabilities

for self-defense and multinational operations, and provide US forces with peacetime and

contingency access to an HN. FID typically involves conventional and special operations

forces from multiple Services. Special operations forces (SOF), military information

support forces, and civil affairs (CA) units are particularly well suited to conduct or support

FID.

Fundamentals of Multinational Operations

I-7

c. Security force assistance (SFA) is DOD’s activities that support the development

of the capacity and capability of foreign security forces (FSF) and their supporting

institutions. The US military conducts activities to improve the capabilities and capacities

of a PN’s (or regional security organization) executive, generating, and operating functions

through the execution of one or more SFA tasks, that include organizing, training,

equipping, rebuilding/building, or advising. While DOD primarily assists those FSF

organized under the national ministry of defense (or equivalent regional military or

paramilitary forces), the US military may support and coordinate with other USG

departments and agencies that are leading USG efforts to develop or improve forces

assigned to other ministries (or their equivalents) such as interior, justice, or intelligence

services.

d. Successful SFA operations require planning and execution consistent with the

following imperatives:

(1) Understand the Operational Environment (OE). This includes an

awareness of the relationships between the stakeholders within the unified action

framework, the HN population, business environment information, and threats. Key to

SFA success is an in-depth understanding of the size, organization, capabilities,

disposition, roles, functions, and mission focus of the PN’s security force.

(2) Ensure Unity of Effort. Unity of command is preferred but often

impractical. Command relationships can range from the simple to complex and must be

clearly delineated and understood. Within a multinational context, establishing

coordinating boards or centers assists unity of effort among the stakeholders.

(3) Provide Effective Leadership. SFA seeks to provide and instill leadership

at all appropriate levels of the FSF. Both MNF and HN leadership must fully comprehend

the OE and be prepared and supportive for the SFA effort to succeed.

(4) Build Legitimacy. The ultimate objective of SFA is to develop security

forces that are competent, capable, committed, and confident to contribute to the legitimate

governance of the HN population.

(5) Manage Information. This encompasses the collection, preparation,

analysis, management, application, and dissemination of information.

(6) Sustainability. This includes two major efforts: the ability of the US/MNF

to sustain the SFA effort throughout the operation or campaign, and the ability of the PN

security forces to ultimately sustain their operations independently.

(7) Do No Harm. SFA is often undertaken in support of complex operations and

US/MNF actions can become part of the conflict dynamic that either increases or reduces

tensions. SFA planners and practitioners must be sensitive to and maintain awareness for

adverse impacts in the security sector and on the HN population.

For additional discussion of SFA, see JP 3-20, Security Cooperation.

Chapter I

I-8 JP 3-16

6. Rationalization, Standardization, and Interoperability

a. International rationalization, standardization, and interoperability (RSI) with PNs

is important for achieving practical cooperation; efficient use of research, development,

procurement, support, and production resources; and effective multinational capability

without sacrificing US capabilities.

b. RSI should be directed at providing capabilities for MNFs to:

(1) Conduct rapid pace operations effectively at by leveraging the capabilities of

the entire MNF.

(2) Efficiently integrate and synchronize operations using common or compatible

doctrine.

(3) Communicate and collaborate at anticipated levels of MNF operations,

particularly to prevent friendly fire and protect the exchange of data, information, and

intelligence via either printed or electronic media in accordance with (IAW) appropriate

security guidelines.

(4) Share consumables consistent with relevant agreements and applicable law.

(5) Care for casualties consistent with relevant agreements and applicable law.

(6) Enhance military effectiveness by harmonizing capabilities of military

equipment.

(7) Increase military efficiency through common or compatible Service support

and logistics.

(8) Establish overflight and access to foreign territory through streamlined

clearance procedures for diplomatic and nondiplomatic personnel.

(9) Assure technical compatibility by developing standards for equipment design,

employment, maintenance, and updating so those nations that are likely to participate are

prepared. Extra equipment may be necessary so non-equipped nations are not excluded.

Such compatibility should include secure and nonsecure communications equipment and

should address other equipment areas, to include (but not limited to): ammunition

specifications, truck components, supply parts, and data transmission streams.

Detailed guidance on RSI may be found in CJCSI 2700.01, Rationalization,

Standardization, and Interoperability (RSI) Activities.

c. Rationalization. In the RSI construct, rationalization refers to any action that

increases the effectiveness of MNFs through more efficient or effective use of defense

resources committed to the MNF. Rationalization includes consolidation, reassignment of

national priorities to higher multinational needs, standardization, specialization, mutual

support or improved interoperability, and greater cooperation. Rationalization applies to

Fundamentals of Multinational Operations

I-9

both weapons and materiel resources (the processes to loan and/or transfer equipment to

another nation participating in an MNF operation) and non-weapons military matters.

d. Standardization. Unity of effort is greatly enhanced through standardization. The

basic purpose of standardization programs is to achieve the closest practical cooperation

among multinational partners through the efficient use of resources and the reduction of

operational, logistic, communications, technical, and procedural obstacles in multinational

military operations.

(1) Standardization is a four-level process beginning with efforts for

compatibility, continuing with interoperability and interchangeability measures, and

culminating with commonality. DOD is actively involved in several multinational

standardization programs, including:

(a) NATO’s main standardization fora; the five-nation (United States,

Australia, Canada, United Kingdom, and New Zealand) Five Eyes Air Force

Interoperability Council (AFIC); the American, British, Canadian, Australian, and New

Zealand (ABCANZ) Armies’ Program; and the thirteen-nation (Australia, Belgium,

Canada, Denmark, France, Germany, Italy, the Netherlands, Norway, New Zealand, Spain,

United Kingdom, and United States) Multinational Strategy and Operations Group

(MSOG).

(b) The US also participates in the five-nation (Australia, Canada, New

Zealand, United Kingdom, and United States) Combined Communications-Electronics

Board (CCEB) that enables strategic and deployed force headquarters (HQ) information

and data exchange and interoperability of communications-electronics systems above the

tactical level of command, as well as the Australia, Canada, New Zealand, United

Kingdom, United States (AUSCANNZUKUS) Naval command, control, communications,

and computers organization working to achieve standardization and interoperability in

communications systems.

(2) Alliances provide a forum to work toward standardization of national

equipment; doctrine; and tactics, techniques, and procedures (TTP). Standardization is not

an end in itself, but it does provide a useful framework for commanders and their staffs.

Coalitions, however, are, by definition, created for a single purpose and usually (but not

always) for a finite length of time and, as such, are ad hoc arrangements. They may not

provide commanders with the same commonality of aim or degree of organizational

maturity as alliances.

(3) Alliances usually have developed a degree of standardization with regard to

administrative, logistic, and operational procedures. The mechanisms for this

standardization are international standardization agreements (ISAs). ISAs can be materiel

or non-materiel in nature. Non-materiel-related ISAs should already be incorporated into

US joint and Service doctrine and TTP. The five-paragraph operation order is one common

example. Materiel ISAs are implemented into the equipment design, development, or

adaptation processes to facilitate standardization. In NATO, ISAs are known as

standardization agreements (STANAGs) and AJPs and are instruments that are used to

Chapter I

I-10 JP 3-16

establish commonality in procedures and equipment. The ABCANZ Standards are another

type of ISA. The existence of these ISAs does not mean they will be automatically used

during an alliance’s multinational operation. Their use should be clearly specified in the

OPLAN or operation order. In addition, these ISAs cannot be used as vehicles for

obligating financial resources or transferring resources.

(4) Multinational publications (MPs) are a series of unclassified ISAs specifically

developed by NATO. MPs provide signatory nations with common doctrine, TTP, and

information for planning and conducting operations. These publications are available to

all nations through a NATO sponsor.

(5) Standardization agreements like AJPs, MPs, STANAGs, and ABCANZ

standards provide a baseline for cooperation within a coalition. In many parts of the world,

these multilateral and other bilateral agreements for standardization between potential

coalition members may be in place prior to the formation of the coalition. However,

participants may not be immediately familiar with such agreements. The MNFC

disseminates ISAs among the MNF or relies on existing standard operating procedures

(SOPs) and clearly written, uncomplicated orders. MNFCs should identify where they can

best standardize the force and achieve interoperability within the force. This is more

difficult to accomplish in coalition operations since participants have not normally been

associated prior to the particular contingency. The same considerations apply when non-

alliance members participate in an alliance operation. However, ISAs should be used

where possible to standardize procedures and processes.

(6) MNF SOPs provide for standardization of processes and procedures for

multinational operations. For example, the Multinational Planning Augmentation Team

(MPAT) program developed an MNF SOP with the 31 MPAT nations, has used it within

real-world contingencies, and routinely uses it in exercises and training throughout the

Asia-Pacific region.

e. Interoperability. Interoperability greatly enhances multinational operations

through the ability to operate in the execution of assigned tasks. Nations whose forces are

interoperable across materiel and nonmateriel capabilities can operate together effectively

in numerous ways. For example, as part of developing PN security forces, the extent of

interoperability can be used to gauge the effectiveness of SC/SFA activities. Although

frequently identified with technology, important areas of interoperability may include

doctrine, procedures, communications, and training.

(1) Factors that enhance interoperability start with understanding the nature of

multinational operations as described in paragraph 3, “Nature of Multinational

Operations.” Additional factors include planning for interoperability and sharing

information, the personalities of the commander and staff, visits to assess multinational

capabilities, a command atmosphere permitting positive criticism and rewarding the

sharing of information, liaison teams, multinational training exercises, and a constant effort

to eliminate sources of confusion and misunderstanding. The establishment of standards

for assessing the logistic capability of expected participants in a multinational operation

should be the first step in achieving logistic interoperability among participants. Such

Fundamentals of Multinational Operations

I-11

standards should already be established for alliance members when the preponderance of

NATO nations are representative of a particular alliance.

(2) Factors that inhibit interoperability include restricted access to national

proprietary defense information; time available; any refusal to cooperate with partners;

differences in military organization, security, language, doctrine, and equipment; level of

experience; and conflicting personalities.

Chapter I

I-12 JP 3-16

Intentionally Blank

II-1

CHAPTER II

COMMAND AND COORDINATION RELATIONSHIPS

1. Command Authority

Although nations will often participate in multinational operations, they rarely, if ever,

relinquish national command of their forces. As such, forces participating in a

multinational operation will always have at least two distinct chains of command: a

national chain of command and a multinational chain of command (see Figure II-1).

a. National Command. As Commander in Chief, the President always retains, and

cannot relinquish, national command authority over US forces. National command

includes the authority and responsibility for organizing, directing, coordinating,

controlling, planning employment of, and protecting military forces. The President also

has the authority to terminate US participation in multinational operations at any time. All

nations participating in a multinational operation will have their own form of national

command. NATO and the European Union (EU) use the term “full command” to describe

national command by their member states.

Figure II-1. Notional Multinational Command Structure

Notional Multinational Command Structure

*Examples include United Nations, alliances, treaties, or coalition agreements.

Legend

national command

command authority delegated to multinational force commander by participating nations

nation-to-nation communications

United States

President

and

Secretary of Defense

National

Government

Combatant

Commanders

Legitimizing

Authority

National

Government

Multinational Force

Commander

US National Force National ForceNational Force

Chapter II

II-2 JP 3-16

b. Multinational Command. Command authority for an MNFC is normally

negotiated between the participating nations and can vary from nation to nation. In making

a decision regarding an appropriate command relationship for a multinational military

operation, the President carefully considers such factors as mission, size of the proposed

US force, risks involved, anticipated duration, and rules of engagement (ROE). Command

authority will be specified in the implementing agreements that provide a clear and

common understanding of what authorities are specified over which forces.

For further details concerning command authorities, refer to JP 1, Doctrine for the

Armed Forces of the United States.

2. Unified Action

a. Unified action during multinational operations involves the synergistic

application of all instruments of national power as provided by each participating

nation; it includes the actions of nonmilitary organizations as well as military forces.

This construct is applicable at all levels of command. In a multinational environment,

unified action synchronizes, coordinates, and/or integrates multinational operations

with the operations of other HN and national government agencies, international

organizations (e.g., UN), NGOs, and the private sector to achieve unity of effort in the

operational area (OA). When working with NATO forces, it can also be referred to as

a comprehensive approach.

MULTINATIONAL OPERATIONS

In 2002, the Combined Maritime Forces was formed to counter piracy

and terrorism in the Persian Gulf, the Red Sea, and the Indian Ocean, a

three million square mile area. In 2005, Somalian pirates began raiding

ships in the Indian Ocean, especially in the Gulf of Aden. On the average,

each captured ship earned the pirates several million dollars and, in

2008, the pirates attacked 24 ships and seized 14 ships. In response to

the increased piracy, the United Nations Security Council passed four

resolutions condemning piracy and authorizing military forces to

conduct anti-piracy operations in over one million square miles of

territory. Under the Combined Maritime Forces, Combined Task Force

(CTF) 151, Counter-Piracy, was formed in January 2009 and is composed

of forces from several nations and two multinational commands. For

example, in 2010, CTF 151 was commanded by the following countries:

Singapore, Republic of Korea, Turkey, and finally by Pakistan. CTF 151

consisted of multinational forces, CTF 508, the NATO [North Atlantic

Treaty Organization] component commanded by a Portuguese, and then

by a Dutch commodore, and CTF 465, European Union Naval Forces,

was commanded by the Swedish, French, and finally by the Spanish.

Twenty-five different nations patrolled the Indian Ocean and defeated

the Somali pirates. CTF 151 also coordinated anti-piracy operations with

naval forces from China, Russia, and India.

Various Sources

Command and Coordination Relationships

II-3

b. Nations do not relinquish their national interests by participating in

multinational operations. This is one of the major characteristics of operating in the

multinational environment. Commanders should be prepared to address issues related to

legality, mission mandate, and prudence early in the planning process. In multinational

operations, consensus often stems from compromise.

Somalian Piracy Threat Map (2005-2010)

COMBINED TASK FORCE 151

Combined Task Force (CTF) 151, a multinational task force established

to conduct counter-piracy operations in the Gulf of Aden and Somali

Basin, operates under a mission-based United Nations Security Council

Resolution mandate throughout the Combined Maritime Forces area of

operations to actively deter, disrupt, and suppress piracy in order to

protect global maritime security and secure freedom of navigation for

the benefit of all nations. Contributing nations have included ships from

Australia, the Republic of Korea, Pakistan, Thailand, Turkey, and the US.

In conjunction with the North Atlantic Treaty Organization and European

Union Naval Force, ships from CTF 151 patrol in the Somali Basin and

the Internationally Recommended Transit Corridor in the Gulf of Aden.

CTF 151 also coordinates anti-piracy operations with naval forces from

China, Russia, and India.

Various Sources

Chapter II

II-4 JP 3-16

3. Multinational Force Commander

a. MNFC is a generic term applied to a commander who exercises command authority

over a military force composed of elements from two or more nations. The extent of the

MNFC’s command authority is determined by the participating nations or elements.

This authority can vary widely and may be limited by national caveats of those nations

participating in the operation. The MNFC’s primary duty is to unify the efforts of the

MNF toward common objectives. An operation could have numerous MNFCs.

(1) MNFCs at the strategic level are analogous to GCC level.

(2) MNFCs at the operational level may be referred to as subordinate MNFCs or

a multinational task force (MNTF). This level of command is roughly equivalent to the

US commander of a subordinate unified command or joint task force (JTF) and is the

operational-level portion of the respective MNF. Integrated MNTFs, such as the NATO-

led International Security Assistance Force (ISAF), will have embedded MNTF personnel

throughout the HQ. A lead nation (LN) MNTF HQ, like Multinational Force-Iraq, will be

staffed primarily by LN personnel and augmented by personnel from other MNTF

countries. Some integration in staff functions is possible, but the bulk of the work will be

handled within the LN structure. The LN provides the commander and the majority of

staff with the MNF HQ. Moreover, it is likely to dictate the language and command and

staff procedures utilized. Ultimately, the LN assumes responsibility for all aspects of

planning; execution; assessment; command, control, communications, and information

structure; doctrine; and logistic coordination that supports it. Other nations assign

contributions to the force and fulfill some positions within the LN’s staff. Figure II-2

illustrates an example of the various command levels.

b. MNFCs should integrate and synchronize their operations directly with the

activities and operations of other military forces and nonmilitary organizations in the OA.

All MNTF commanders plan, conduct, and assess the effectiveness of unified action IAW

the guidance and direction received from the national commands, alliance or coalition

leadership, and superior commanders.

c. The MNF will attempt to align its operations, actions, and activities with NGOs

operating in a country or region. NGOs may be precluded from coordinating and

integrating their activities with those of an MNF to maintain their neutrality.

d. Training of forces within the MNTF command for specific mission standards

enhances unified action. The MNFC should establish common training modules or

certification training for assigned forces. Such training and certification of forces should

occur prior to entering the MNTF OA. Certification of forces should be accomplished by

a team composed of subject matter experts from all nations providing military forces to the

MNFC.

4. Overview of Multinational Command Structures

No single command structure meets the needs of every multinational command, but

national considerations will heavily influence the ultimate shape of the command structure.

Command and Coordination Relationships

II-5

However, participating nations should strive to achieve unity of command for the operation

to the maximum extent possible, with missions, tasks, responsibilities, and authorities

clearly defined and understood by all participants. While command relationships are fairly

well defined in US doctrine, they are not necessarily part of the doctrinal lexicon of nations

with which the US may operate in multinational operations.

a. Organizational Structure. The basic structures for multinational operations fall

into one of three types: integrated, LN, or parallel command.

(1) Integrated Command Structure. A good example of this command

structure (see Figure II-3) is in NATO, where a strategic commander is designated from a

member nation, but the strategic command staff and the commanders and staffs of

subordinate commands are of multinational makeup. The key factors in an integrated

command are:

(a) A designated single commander.

(b) A staff composed of representatives from all member nations.

necessary to accomplish the mission.

Figure II-2. Notional Coalition Command and Control Structure

Notional Coalition Command and Control Structure

Legend

strategic guidance and support

national command

collaboration

consultation

Operational Level

Theater Strategic

National Strategic

Government

and Military

National

Component

Commander

National

Component

Commander

Multinational

Task Force

National

Strategic

Commander

Multinational

Force

Commander

National

Strategic

Commander

Nation #2

National

Authorities

Nation #1

National

Authorities

(Lead Nation)

Nation #3

National

Authorities

Chapter II

II-6 JP 3-16

(2) LN Command Structure. An LN structure exists when all member nations

place their forces under the control of one nation (see Figure II-4). The LN command

structure can be distinguished by a dominant LN command and staff arrangement with

subordinate elements retaining strict national integrity. A good example of the LN

structure is Multinational Force-Iraq, wherein a US-led HQ provided overall command and

control (C2) over US and multinational subordinate commands. US forces may encounter

Figure II-3. Integrated Command Structure

Integrated Command Structure

Legend

command

coordination

staff positions open and to be filled

Integrated

Component

Integrated

Component

Integrated

Component

Integrated

Headquarters Staff

Combined

Commander

Multinational

Forces

Multinational

Forces

Multinational

Forces

Figure II-4. Lead Nation Command Structure

Lead Nation Command Structure

National Forces

Commander

National Forces National Forces

United States

Forces

National Forces

Commander

United States

Forces

Commander

Lead Nation

Headquarters

Command and Coordination Relationships

II-7

the term framework nation, which is defined in NATO, the EU, and UN documents to

describe a LN for an operation.

(a) An LN command structure may also be characterized by an integrated

staff and multinational subordinate forces. Integrating the staff enables the commander to

draw upon the expertise of multinational partners in areas where the LN may have less

experience.

(b) Rotational command, a variation of LN command sometimes found in

multinational commands, allows each participating nation to be the LN in turn. To be

effective, command tour lengths should be adjusted so that participating nations may

alternate exercising the authority of the LN. An example of this type of command is the

ISAF, which has 12- to 24-month command tours that rotate among the participants.

Rotational command existed in ISAF from 2002 to February of 2007, after which time, the

MNFC has been the US and continues to be under Operation RESOLUTE SUPPORT and,

therefore, was predominately a traditional LN construct.

(3) Parallel Command Structures. Under a parallel command structure, no

single force commander is designated (see Figure II-5). The MNF leadership must develop

a means for coordination among the participants to achieve unity of effort. This can be

accomplished through the use of coordination centers (see paragraph 8.c., “Coordination

Centers”). Nonetheless, because of the absence of a single commander, the use of a parallel

command structure should be avoided, if at all possible.

b. Regardless of how the MNF is organized operationally, each nation furnishing

forces normally establishes a national component, often called a national command

Figure II-5. Parallel Command Structure

Parallel Command Structure

Legend

command coordination

National

Command

Nation #1

Coalition

Headquarters

Nation #1

Forces from

Nation #1

Coordination

Center

National

Command

Nation #2

Coalition

Headquarters

Nation #2

Forces from

Nation #2

Chapter II

II-8 JP 3-16

element, to effectively administer its forces. The national component provides a means

to administer and support the national forces, coordinate communication to the parent

nation, tender national military views and recommendations directly to the multinational

commander, and facilitate the assignment and reassignment of national forces to

subordinate operational multinational organizations. In an administrative role, these

national components are similar to a Service component command at the unified

command level in a US joint organization. The logistic support element of this

component is also referred to as the national support element (NSE). An NSE may

provide common-user logistics (CUL) support to MNFs as well as national forces. It is

also possible that in some operations, selected CUL would be arranged by the

multinational joint logistics center (MJLC) (or equivalent), thereby reducing the role of

the NSE in providing such logistics.

5. Multinational Command Structures

a. In multinational commands, national objectives are addressed and generally

subsumed within MNF objectives at the alliance treaty level. Typically, alliance

command structures have been carefully developed over extended periods of time and

have a high degree of stability and consensus, doctrine, and standardization. Established

command structures may be modified or tailored for particular operations, especially

during multinational operations that include non-allied members.

b. Multinational command relationships often reflect either an integrated command

structure or an LN command structure. Alliances typically have established command

structures, support systems, and standardized procedures. In combined operations, such

structures should be used to the maximum practical extent. Combined command and

force structures often mirror the degree of allied member participation. Subordinate

commands are often led by senior military officers from member nations. Effective

operations within an alliance require the senior national and military authorities be in

agreement on the type of command relationships that will govern the operations of the

forces. Notwithstanding peacetime command relationships, the national sensitivities

associated with actual operations will impact command relationships and operating

procedures.

c. Coalitions often form in response to crises that occur outside the area or scope of

an established alliance or when the response requires more than an alliance can handle.

Coalition command relationships, which evolve as a coalition develops, are most often

characterized by one of two basic structures: LN or parallel. In coalition operations,

member nations may initially desire to retain even more control of their own national

forces than is generally associated with combined operations. At the outset of a coalition,

nations are often reluctant to grant extensive control over their forces to one LN.

Coalition counterparts are also sensitive to actions that might be construed as preferential

to the LN’s interests.

d. One means of ensuring the HQ is representative of the entire coalition is to

augment the HQ staff with representatives from the participating coalition members, such

as designated deputies or assistant commanders, planners, and logisticians. This provides

Command and Coordination Relationships

II-9

the coalition commander with representative leadership and a ready source of expertise

on the capabilities of the respective coalition members and facilitates the planning

process.

e. During formation of the coalition, the early integration of the multinational

national command elements into the coalition planning process can greatly accelerate

building of unity of effort and reinforce the tenets of multinational operations. National

command elements represent the national command channels from each individual nation

within the multinational command. Meetings with the MNFC provide the setting for

open, candid input from participating nations.

f. LN and parallel command structures can exist simultaneously within a coalition.

This situation occurs when two or more nations or organizations serve as controlling

elements for a mix of international forces. The command arrangement used by the Gulf

War coalition (see Figure II-6) provides a good example of the intricate web of command

structures possible. In that case, the US performed as the LN for a coalition of non-Arab

countries while Saudi Arabia functioned as the LN for the Arab coalition members. A

friendly forces coordinating council (since renamed to coalition coordination center

[CCC]) provided the coordination conduit between the non-Arab (US-led) forces and the

Arab/Islamic (Saudi-led) command structures. Terms in the figure reflect the

terminology used in the operation.

g. Figures II-7 through II-10 show examples of coalition command structures from

Afghanistan ISAF (Figure II-8), the NATO Balkans Stabilization Force (Figure II-9), and

the Balkans European Force Command (Figure II-10). In the Balkans, when the EU

assumed the mission from NATO, NATO continued to maintain a military HQ and a

place in the command chain as well, with a continued US presence in the country. These

diagrams highlight the evolution of multinational command structures, especially those

involving international organizations such as NATO, the EU, or the UN. These

organizations add a layer of complexity to the command structure as nations have to

answer to both the international organization chain of command, as well as their national

leadership.

6. Multinational Force Coordination

There are two key structural enhancements that should improve the coordination of

MNFs—a liaison network and coordination centers.

a. Liaison Network. Effective liaison is vital in any MNF. Differences in doctrine,

organization, equipment, training, and national law demand a robust liaison structure to

facilitate operations. Not only is the use of liaison an invaluable confidence-building

tool, but it is also a significant source of information for the MNFC. During multinational

operations, US forces should establish liaison early with forces of each nation, by

fostering a better understanding of mission and tactics, facilitating the ability to integrate

and synchronize operations, assisting in the transfer of vital information, enhancing

mutual trust, gaining awareness and understanding of national caveats, and developing

an increased level of teamwork.

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II-10 JP 3-16

(1) Liaison is often accomplished through the use of liaison teams. These teams

should be knowledgeable about the structure, capabilities, weapons systems, logistics,

communication systems, and planning methods that are employed within their commands.

Liaison requirements for US forces participating in multinational operations are usually

greater than anticipated or staffed. Personnel liaison requirements should be identified

Figure II-6. Coalition Command Relationships for Operation DESERT STORM (Land Forces)

1 Egyptian Corps

1 Syrian Division

2 Saudi and Kuwaiti

Task F o rc e s

Bahrain, Kuwait,

Morocco, Oman, Saudi

Arabia, Senegal, and

United Arab Emirates

Forces

National

Leaders of the

United Kingdom

National

Leaders of

Saudi Arabia

Coalition,

Coordination,

Communication

and Integration

Center

National

Leaders of Arab/

Islamic Nations

National

Leaders of

France

National

Command

Authority

British Force

Commander

1st Armoured

Division

Joint Forces

Command

[Saudi]

Joint Forces

Command-

East

Joint Forces

Command-

North

French Force

Commander

United States

Force

Commander

VIII Corps

XVIII Airborne

Corps

MARCENT

4x Army

Divisions

3x Army

Divisions

Daguet

Division

I Marine

Expeditionary

Force

2nd Brigade, 82nd

Division

18th Field Artillery

Brigade

2x Marine

Divisions

ARCENT

Coalition Command Relationships for Operation DESERT STORM

(Land Forces)

Legend

national operational command

operational command

coordination

ARCENT United States Army Central Command

MARCENT Marine Corps Forces Central Command

Command and Coordination Relationships

II-11

early during the planning process and staffed accordingly. Team members should be

language qualified or provided linguist support. Although professional knowledge and

functional expertise are key factors to successful liaison operations, understanding

language and culture are equally important and influential. Care should be taken to avoid

liaisons becoming proxy decision makers; their purpose is to improve, rather than replace,

coordination among commanders.

OPERATION DESERT STORM: A STUDY OF US FORCES UNDER

FRENCH OPERATIONAL CONTROL

The nation of France, wanting to support Kuwait after Iraq’s invasion on

02 August 1990, deployed a light armored division to Saudi Arabia,

which remained under direct French national authority in coordination

with Saudi Arabia during Operation DESERT SHIELD. For Operation

DESERT STORM, France agreed to shift operational control (OPCON) of

the Daguet Division to Lieutenant General (LTG) Gary Luck,

commanding general of the XVIII Airborne Corps, on 17 January 1991,

the day the air campaign began.

The XVIII Airborne Corps’ initial priority of effort was to seize As Salman,

a town 90 miles inside Iraq with a 9,000 foot runway and adjacent to the

north-south main supply route intersecting the paved east-west supply

route. LTG Luck assigned this objective to the Daguet Division. This

10,000 man, 3,000 vehicle (500 of which were armored) division was

comprised of three infantry regiments, two cavalry regiments, a

headquarters regiment and one regiment each of tanks, artillery,

engineers, logistics/supply, and medical. Additionally, the Daguet

Division had two helicopter regiments consisting of 132 helicopters—60

of which were armed with anti-tank missiles. (See Figure II-7 – Order of

Battle. Note: a French regiment was equivalent to a US battalion).

LTG Luck heavily reinforced the Daguet Division. On 23 January 1991,

he passed OPCON of the 2nd Brigade, 82nd Airborne Division,

consisting of three battalions of infantry plus one artillery battalion, to

Brigadier General (Brig Gen) Bernard Janvier, the commanding general

of the Daguet Division. Additionally, LTG Luck transferred OPCON of

one engineer battalion, one military police battalion, one civil affairs

company, and two psychological operations vehicles with loudspeakers

to Brig Gen Janvier. These forces were completely integrated into the

Daguet Division. The US military police took charge of the prisoners of

war whom the French captured, and the engineer battalion conducted

mine clearing operations with the French engineer regiment. LTG Luck

also gave operational control of one artillery brigade headquarters and

five field artillery battalions to Brig Gen Janvier in support of operations

in the eastern part of the campaign.

The French and the Americans units became a combined force. The

commander of artillery brigade headquarters acted as the fires chief and

reported directly to Brig Gen Janvier, and the brigade’s fire control

Chapter II

II-12 JP 3-16

(2) The US Army’s digital liaison detachments (DLDs) have been in existence

since Operation DESERT STORM and were used extensively during Operation

ENDURING FREEDOM and Operation IRAQI FREEDOM. DLDs are specifically

designed to provide US staffs with liaison teams composed of individuals with professional

knowledge and functional expertise in associated Army battle command systems to enable

interface with multinational units and are most effective when attached to the highest

possible headquarters.

For additional information on DLDs, see Army Techniques Publication 3-94.1, Digital

Liaison Detachment.

(3) SOF, in conjunction with conventional forces, have proven particularly

effective in integrating MNFs. Their language capabilities, regional expertise, cultural

awareness, and experience in working and training with other countries’ militaries typically

enable them to improve coordination and minimize misunderstanding during MNF

operations. Specifically, SOF can assist the MNFC to:

(a) Facilitate the transfer of US defense articles and services under the

security assistance program to eligible foreign government military units conducting

internal defense and development operations.

(b) Assess foreign military force capabilities and provide direction or

recommendations toward improving HN special operations employment and sustainment

methods.

appropriately employ SOF.

(d) Train foreign military forces to operate and sustain indigenous

air/land/sea special operations resources and capabilities.

system was integrated into the Daguet Division fires center, supporting a

combined US and French offensive on 18 February, 1991, under French

command. On 24 February, the Daguet Division crossed the line of

departure into Iraq, and captured As Salman two days later. Shortly after

the success of the Daguet Division, OPCON of the US units was

transferred back to US commanders, except for one US civil affairs

company that stayed under French OPCON until the Daguet Division

redeployed to France.

This example of Allies working together in multinational operations had

lasting benefits for both nations. Later, Brig Gen Bernard Janvier would

write “4,200 Americans served under my orders and this is the first time

in a longtime [since World War I] that a French general officer commanded

(American) GIs….”

Various Sources

Command and Coordination Relationships

II-13

Figure II-7. Order of Battle

319

Group West Group East

Daguet

Headquarters/

Reserves

Logistics

Plus several

other

company

units

Plus several other

company units

Command Post

Red

Command Post

Green

2nd Brigade

282

325

319

503 16

6 Spahis

1st Parachute

Hussards

1st Parachute

Hussards

Logistics Support

Group

201

101 24

Order of Battle

Legend

D dragoons

FL Foreign Legion

MP military police

PSYOP psychological operations

SF special forces

Black = American

Blue = French

NOTE:

All cannon artillery is 155 millimeter except for 2/319th which is 105 millimeter.

Chapter II

II-14 JP 3-16

Figure II-8. International Security Assistance Force Coalition Command Relationships

Legend

International Security Assistance Force Coalition

Command Relationships 2010 - 20xx

United States

Odin (ISR)

Cyclone

(Engineer)

JFEC

30 Medical

RC East

RC Southwest

NATO NATO

United States

RC West

CTAG-A

RC Capitol

CTAG-P

RC South

Italy

United Kingdom

France

Italy

United Kingdom

JIOC-A

Paladin

(C-IED)

RST-East

RST-Capitol

CJIATF-North

RST-South

RST-West

NATO

United States

RC North

CAPTF

Biometrics

RST-North

Germany

United States

NATO NATO NATO

United

States

United

States

United States

United Kingdom United StatesUnited States

United States

COMISAF/

USFOR-A

NATO

United States

ISAF

Joint Command

ISAF SOF

NTM-A/

CSTC-A

CFSOCC

CJTF 435

CAPTF combined air power transition force

CFSOCC combined force special operations component

command

C-IED counter-improvised explosive device

CJIATF combined interagency task force

CJTF combined joint task force

COMISAF commander,

CTAG-A combined training advisory group-Army

CTAG-P combined training advisory group-police

International Security Assistance Force

CSTC-A Combined Security Transition Command-

Afghanistan

ISAF International Security Assistance Force

North Atlantic Treaty Organization

ISR intelligence, surveillance, and reconnaissance

JFEC joint fires and effects cell

JIOC-A Joint Information Operations Center-Afghanistan

NATO North Atlantic Treaty Organization

NTM-A Training Mission-

Afghanistan

RC regional command

RST regional security transition

SOF special operations forces

USFOR-A United States Forces-Afghanistan

Command and Coordination Relationships

II-15

(e) Advise foreign military forces and governmental agencies on how to

employ air/land/sea forces in specific operation situations.

(f) Facilitate force integration for multinational operations.

(g) Provide direct support to HNs by using air/land/sea resources to provide

intelligence, communications capability, and air or aviation support.

b. Coordination Centers. Another means of increasing MNF coordination is the use

of a multinational coordination center (MNCC). US commanders should routinely

advocate creation of such a center in the early stages of any multinational effort, especially

one that is operating under a parallel command structure. It is a proven means of

integrating the participating nations’ military forces into the multinational planning,

operations, and assessment processes, enhancing coordination and cooperation and

supporting an open and full interaction within the MNF structure. Normally, the MNCC

Figure II-9. Stabilization Force Coalition Command Relationships

Stabilization Force Coalition Command Relationships

Legend

(Netherlands)(Italy) (United States)

(United States)

(France)

(United Kingdom)

COMSFOR

Chief of Staff

DCOMSFOR DCOMOPS

(United States)

(Germany)

(France) (United Kingdom)

ACOS Support ACOS JMA ACOS Operations

HQ CMDT

CJ5

PIO

ACOS Support

Support Staff JMA Staff Operations Staff



Canada

Czech Republic

Hungary

Netherlands

Spain

France

Germany



Germany

United States



Czech Republic

Denmark

Netherlands

Spain

Turkey

United Kingdom

United States

Germany

COMSFOR

Political Advisor

DCOMSFOR

Political Advisor

DCOMOPS

Political Advisor

ACOS assistant to the chief of staff

CJ5 plans branch

CMDT commandant

COMSFOR commander, stabilization force

DCOMOPS deputy commander, operations

DCOMSFOR deputy commander, stabilization force

HQ headquarters

JMA joint military affairs

PIO public information officer

Chapter II

II-16 JP 3-16

is focused upon coordination of MNF operations, which will most likely involve classified

information. The addition of a civil-military operations center (CMOC) is recommended

for coordination with the international humanitarian community indigenous populations

and institutions (IPI) and interagency partners. Additional coordination centers may be

established to coordinate multinational logistics (MNL), functional areas, and media

affairs.

(1) Initially, a coordination center can be the focal point for support issues such

as force sustainment, alert and warning, host-nation support (HNS), movement control, and

training. However, as an MNF matures, the role of the coordination center can be expanded

to include command activities.

(2) When a coordination center is activated, member nations provide a staff

element to the center that is comprised of action officers who are familiar with support

activities such as those listed above. MNF nations should be encouraged to augment this

staff with linguists and requisite communications capabilities to maintain contact with their

Figure II-10. European Forces Coalition Command Relationships

European Forces Coalition Command Relationships

SHAPE OHQ

NATO-led Operations EU-led Operations

North Atlantic

Council

PSC

Military

Committee

EU Military

Committee

SACEUR

DSACEUR/

Operation Commander

Strategic Direction Centre

EU Staff Group

NATO

Headquarters

EU Force

Headquarters

JFC EUCE

DSACEUR Deputy Supreme Allied Commander Europe

EU European Union

EUCE European Union Command Element

JFC joint force commander

NATO North Atlantic Treaty Organization

OHQ operational headquarters

PSC Political and Security Committee

SACEUR Supreme Allied Commander Europe

SHAPE Supreme Headquarters Allied

Powers Europe

Legend

Command and Coordination Relationships

II-17

parent HQ. Apart from a central MNCC, such as the CCC, a number of functional

coordination centers may also be established within an overall combined logistics

coordination or support command for a multinational operation. Activities centrally

coordinated or controlled by such centers would include movement control, operational

contract support (OCS), theater-level logistic support operations, overall medical support,

and infrastructure engineering. One key to the success of such centers is the early

establishment and staffing with functionally skilled personnel to exercise appropriate control

of designated activities.

For additional guidance on organizing and manning an MNCC, refer to the MPAT

MNF SOP. The MNF SOP can be viewed and downloaded from:

https://community.apan.org/wg/mpat/p/sop.aspx.

7. Control of Multinational Operations

The degree of control exercised in an MNF is dictated by the degree of synchronization

required, the MNF structure, and the command relationships between members of the MNF.

In general, the more centralized the command structure, the greater the MNF’s ability to

achieve unity of effort. Integrated command structures, operating within their alliance

framework, afford the greatest degree of control. A parallel structure, with its separate lines

of command, typically offers the least control and ability to achieve unity of effort. LN

structures can exhibit a wide range of control depending on the mission set and the command

relationships assigned.

144TH ARMY LIAISON TEAM DURING OPERATION ENDURING

FREEDOM

The 144th Army Liaison Team (ALT) was the third liaison team in this

theater of operations. In this theater, the ALT provided liaison to the

International Security Assistance Force (ISAF). In accordance with the

Bonn Accord, the North Atlantic Treaty Organization (NATO) organized

ISAF to support Afghanistan with security and stabilization operations.

The 144th ALT arrived in theater and was assigned to Combined Forces

Command-Afghanistan at ISAF headquarters. The ALT also provided

liaison services primarily for the combined joint operations directorate

and the combined joint intelligence directorate, but expanded mission

requirements to provide service for all staff sections within the

command as required. The 144th ALT provided “air gap” bridging

capability for the US SECRET Internet Protocol Router Network, ISAF

Secret, the NATO SECRET Crisis Response Operations in NATO

Operating Systems, and the Combined Enterprise Regional Information

Exchange System (CENTRIXS) which was the coalition network solution.

Information security standardization delayed CENTRIXS

implementation, as nations were reluctant to share information.

Various Sources

Chapter II

II-18 JP 3-16

8. Interorganizational Cooperation

a. In many OEs, the MNF interacts with a variety of stakeholders requiring unified

action by the MNFC, including nonmilitary governmental departments and agencies,

international organizations, and NGOs. Interorganizational cooperation includes the

coordination between the Armed Forces of the United States; USG departments and

agencies; state, territorial, local, and tribal government agencies; foreign military forces and

government agencies; international organizations; NGOs; and the private sector. Interagency

coordination is a subset of interorganizational cooperation. These groups play an important

role in providing support to HNs. Additionally, the MNF should be aware of private-sector

firms (e.g., businesses, contractors working for the military) operating in the OA. Though

differences may exist between military forces and civilian agencies, short-term objectives

are frequently very similar. CA or NATO civil-military cooperation (CIMIC) forces enhance

interorganizational coordination through the establishment of a CMOC.

b. Relationships. The MNFC’s relationship with these organizations will vary

depending on the nature of the contingency and the particular type of organization involved.

(1) Relationships with other governmental agencies (US and multinational

partners) and international organizations should be clearly defined to coordinate required

military support before commencement of operations, if possible. In some cases, other

agencies may be lead agent for operations with military forces providing support. In other

cases, the lead agency is prescribed by law or regulation, or by agreement between allied and

coalition forces and the agencies involved. The President, normally through the Secretary of

Defense (SecDef), should provide clear guidance regarding the relationships between US

military commanders and USG departments and agencies.

(2) To achieve the greatest unity of effort, the roles, missions, efforts, and activities

of the international humanitarian community within the MNF OA should be factored into the

commander’s mission analysis. Every effort should be made to formally include

interorganizational coordination factors and requirements in MNF OPLANs.

(3) In addition, the OPLAN should provide guidance to the MNFC regarding

relationships with and support to NGOs and international organizations operating within the

OA. A transition plan is essential when relieving, replacing, or relinquishing control to

NGOs and international organizations. This must begin as early as possible in the planning

cycle for such operations. Civil-military operations (CMO) planners should include

international organization/NGO capabilities, limitations, and operations within the MNF’s

plan whenever possible.

c. Coordination Centers. One means of enhancing the working relationship between

NGOs/international organizations when there is no command relationship is through their

integration with existing coordination centers, as described in subparagraph 6.b.,

“Coordination Centers.”

For additional information, see JP 3-57, Civil-Military Operations.

Command and Coordination Relationships

II-19

d. Agreements. The US DOS leads USG negotiations with international organizations

and other nations’ agencies. Although Congress has tightly restricted the delegation of

authority to negotiate and sign agreements with foreign nations, forces, and agencies to DOS,

formal agreements between the US military and US civilian government agencies may be

established. Such agreements can take the form of memoranda of understanding (MOUs) or

terms of reference. Concluding these negotiations prior to the commencement of operations

offers the best chance for success. There are regulatory and statutory fiscal constraints

involving agreements between the Armed Forces of the United States and other US

governmental departments and agencies. A staff judge advocate (SJA) should be consulted

before negotiating or entering into any agreements outside DOD.

For more detailed information on interagency coordination and on agencies expected to be

involved, see JP 3-08, Interorganizational Cooperation.

Chapter II

II-20 JP 3-16

Intentionally Blank

III-1

CHAPTER III

GENERAL PLANNING CONSIDERATIONS

1. Diplomatic and Military Considerations

a. Any number of different situations could generate the need for a multinational

response, from warfare to natural disasters. In responding to such situations, nations weigh

their national interests and then determine if, when, and where they will commit their

nation’s resources. Nations also choose the manner and extent of their foreign involvement

for reasons both known and unknown to other nations. The composition of an MNF may

change as partners enter and leave when their respective national objectives change or force

contributions reach the limits of their nation’s ability to sustain them. Some nations may

even be asked to integrate their forces with those of another, so that a contribution may, for

example, consist of an infantry company containing platoons from different countries. The

only constant is that a decision to “join in” is, in every case, a calculated diplomatic

decision by each potential member of a coalition or alliance. The nature of their national

decisions, in turn, influences the MNTF’s command structure. In a parallel command

structure, national forces essentially operate under their own doctrine and procedures

within the guidelines determined by the strategic national guidance and are not

significantly impacted by multinational influences. Under the integrated and LN command

structures, more multinational involvement and interaction occurs. As such, this chapter

will primarily focus on issues affecting the latter two structures.

b. Capabilities. As shown in Figure III-1, numerous factors influence the military

capabilities of nations. The operational-level commander must be aware of the specific

operational limitations and capabilities of the forces of participating nations and consider

these differences when assigning missions and conducting operations. MNTF

commanders at all levels may be required to spend considerable time consulting and

negotiating with diplomats, HN officials, local leaders, and others; their role as diplomats

should not be underestimated. MNTF commanders will routinely work directly with

political authorities in the region. Even within their own command, national and

operational limitations on the employment of the forces can significantly influence daily

operations.

c. Integration. The fundamental challenge in multinational operations is the effective

integration and synchronization of available assets toward the achievement of common

objectives. This may be achieved through unity of effort despite disparate (and

occasionally incompatible) capabilities, ROE, equipment, and procedures. To reduce

disparities among participating forces, minimum capability standards should be established

and a certification process developed by the MNFC. Identified shortcomings should be

satisfied by either bilateral or multilateral support agreements (formal or informal) prior to

the deployment of forces to the OA. This process relies heavily upon detailed coordination

“There is only one thing worse than fighting with allies and that is fighting without

them.”

Sir Winston Churchill, 1 April 1945

Chapter III

III-2 JP 3-16

between national leadership, prospective forces, and the MNFC. The degree of involvement

of each participant is likely to be primarily a national decision and commanders at all levels

must be cognizant of national mandates placed on individual units.

d. Preparation. In addition to planning and preparing for contingency operations in

a multinational environment, CCDRs pursue national strategic end states as they develop

their theater or functional strategies. This translates into an integrated set of shaping

actions and activities by means of an operation or campaign plan.

(1) SC activities are designed to promote peace and security in a country or region

and prevent or mitigate crises by facilitating cooperation and building relationships to

enhance an HN or region’s security. A multinational operation can be designed to support

a CCMD’s operation or campaign plan or a contingency operation.

(2) SC activities are undertaken well in advance of any crisis-precipitating event.

The military contribution to these efforts focuses on enhancing cooperation and building

and sustaining relationships to enhance regional security.

(3) A representative listing of SC activities might include:

(a) Provide training, education, and equipment to build the capacity,

capability, and interoperability of PNs and organizations;

(b) Conduct activities with PNs to confront threats and challenges before

they mature into a crisis;

Figure III-1. Factors Affecting the Military Capabilities of Nations

Factors Affecting the Military Capabilities of Nations

National Interests

Objectives

Arms Control Limitations

Doctrine

Organization

Training

Leader Development

Equipment

History

Defense Budget

Domestic Law

Treaties

Threats

Culture

Infrastructure

Domestic Politics

General Planning Considerations

III-3

(d) Promote regional cooperation to meet shared challenges, as well as

decrease tension and rivalries;

(e) Conduct bilateral and multilateral exercises; and

(f) Conclude formal arrangements for the use of facilities, basing, or transit

of military forces.

e. Employment. In most multinational operations, the differing degrees of national

interest result in varying levels of commitment by PNs. While some countries might

authorize the full range of employment, other countries may limit their forces to strictly

defensive or combat service support roles. Some examples of PN contributions can be seen

in Figure III-2. However, offers of national support should not be declined outright.

Instead, every offer should be vetted through the MNFC and multinational partners and

recognized as support to the operation or campaign. This process helps maintain the

support of allies, friends, and partners and enhances the relationship. Additionally,

multinational support will help increase the perceived legitimacy of operations

domestically as well as internationally.

For additional information regarding legitimacy, see JP 3-0, Joint Operations. For NATO

operations, see AJP-3, Allied Joint Doctrine for the Conduct of Operations.

2. Building and Maintaining a Multinational Force

a. Building an MNF starts with the national decisions and diplomatic efforts to create

a coalition or spur an alliance into action. Discussion and coordination between potential

participants will initially seek to sort out basic questions at the national strategic level.

These senior-level discussions could include organizations like the African Union, UN, or

NATO, existing coalitions or alliances, or individual nations. The result of these

discussions should determine:

(1) The nature and limits of the response.

(2) The command structure of the response force.

(3) The essential strategic guidance for the response force to include military

objectives and the desired end states.

b. Command Issues. When the response force is resident within an alliance, the

procedures and structure of the alliance will normally determine operational-level

leadership for the response force. When the response force is based in a coalition (or an

LN structure in an alliance), the designated LN will normally select the operational-level

leadership. The Multinational Interoperability Council’s Coalition Building Guide,

describes the LN construct and could be used by an LN and potential partners as a starting

point to address the coalition building process as it applies to multinational military

operations, particularly at the strategic level.

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III-4 JP 3-16

c. These designated military leaders will coordinate military requirements and

actions between participating nations. In an alliance such as NATO, this would normally

be the alliance’s military commander. The MNFC promulgates essential guidance to all

members that should contain the following information:

(1) Purpose of the multinational operation.

(2) Mission statement for the MNTF.

(3) Strategic end state and military end state for the MNTF.

(4) Strategic objectives and broad tasks for the MNTF with guidance for

termination or transition.

(5) Participating nations and expected initial contributions.

Figure III-2. Partner Nation Contributions

Partner Nation Contributions

Noncombat

Forces

Combat Forces

Diplomatic Support

Financial Support

Logistics, Lift, and

Sustainment

OCS

Basing, Access, and

Overflight Support

Stabilization and

Reconstruction

Support

Governance and

Ministerial Support

Troops

Ships

Aircraft

Staff Officers

Trainers



Diplomatic recognition

Opening embassy or mission

Supporting United Nations

security resolution



Debt forgiveness

Unfreezing assets

Direct financial assistance



Logistic infrastructure

Strategic air and sea lift

Intratheater lift

Operational contract support (OCS)



Basing rights

Access to facilities

Overflight rights



Humanitarian assistance

Public infrastructure



Constitutional support

Ministerial mentoring

Civil service training support

General Planning Considerations

III-5

(6) Designated LN and supporting guidance.

(7) Common security interests.

(8) Multinational communications strategy.

(9) Specific diplomatic, economic, and informational guidance and national

limitations, concerns, or sensitivities.

d. When dealing with PNs, sensitivities and cultural differences must be recognized

and acknowledged and procedures developed to mitigate or minimize additional conflict

between nations. Some planning considerations for multinational operations may include

language, culture and religion, diet, alcohol and tobacco consumption policies,

male/female contact/cohabitation policies, openness to biometrics, work hours, leave,

perspectives on ethics and corruption, working animals, ROE/rules for the use of force

caveats, and other duty limitations.

e. Maintaining a cohesive MNF may require the MNFC’s continual attention, as

nearly every action or event may impact national and military interests and may compete

for primacy with the MNF’s objective and end state. In some cases, national restrictions

may seem wholly out of line with national contributions. This tension between national

elements is not new, and commanders at all levels should be prepared to deal with it. As

discussed earlier, nations join multinational efforts for a variety of reasons, both known

and unknown. National will, popular support, and the perceived achievement of stated

objectives are just some of the factors that might influence continued national participation.

However, thorough pre-mission preparation and planning can pay significant dividends

later as the MNFC faces the challenge of maintaining a stable MNF.

3. Mission Analysis and Assignment of Tasks

a. The MNFC’s staff should conduct a detailed mission analysis. This is one of the

most important tasks in planning multinational operations and should result in a revised

mission statement, commander’s intent, and the MNFC’s planning guidance. As part of

the mission analysis, force requirements should be identified; standards for participation

published (e.g., training-level competence and logistics, including deployment,

sustainment, and redeployment capabilities); and funding requests, certification

procedures, and force commitments solicited from an alliance or likely coalition partners.

b. Before the MNTF staff can develop proposed courses of action, the MNFC must

conduct an estimate of the situation. This enables the MNFC to analyze, in an organized

manner, the many factors that will affect the accomplishment of the assigned mission(s).

This estimate should address the respective capabilities, national will, and national interests

of the MNTF components. Additionally, expected interagency contributions and

involvement of each nation should be addressed. This is a critical step as each nation

determines its contribution to the operation. National force commitments, even in an

established alliance, are not automatic. For example, a NATO non-Article 5 crisis

response operation is one such case where nations can opt in or out based on their national

interests. Based upon these national contributions, and after determining the tasks

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III-6 JP 3-16

necessary to achieve the objectives that support mission accomplishment, the MNFC

should assign specific tasks to the elements of the MNTF most capable of completing those

tasks. If there are several different national elements that can complete a particular task,

the MNFC should consider assigning that task in a manner that allows each troop

contributing nation to make meaningful contributions to the end state.

4. Language, Religion, Culture, and Sovereignty

a. Language. Differing languages within an MNF may present a significant

challenge to command, control, and communications and potentially affect unity of

effort if not mitigated. US forces cannot assume the predominant language will

automatically be English, and specifying an official language for the MNF can be a

sensitive issue. Therefore, US forces should make every effort to overcome language

barriers. Wherever and whenever possible, commanders should use exchange or liaison

officers or nonmilitary translators to facilitate interaction and coordination with HN forces.

Communication is conveyed through both verbal and nonverbal means, with information

loss, miscommunications, and misunderstandings having a negative impact on operations.

The additional time required to receive information, process it, develop plans from it,

translate the plans, and distribute them to multinational partners can adversely impact the

speed and tempo of operations. Commanders may lessen these difficulties by early

identification of linguist support. They should assess the capabilities of US personnel to

communicate with and to understand partners and use properly trained, multilingual

personnel as appropriate. Capability gaps may be mitigated through the use of contracted

support for interpreters and translators and should be addressed during the planning phase

normally involving coordination with US Army Intelligence and Security Command. HN

resources may serve an especially important role in this capacity, particularly if available

during the initial stages of the deployment. In addition, the importance of staffing the HQ

with qualified liaison personnel cannot be too highly emphasized. This will usually place

additional demands upon US commanders for liaison personnel, but they are critical to the

success of any multinational mission.

b. Linguists and Area Experts. To assist with cultural and language challenges, the

MNTF employs linguists and area experts, often available within and through the Service

components or from other governmental agencies. In some instances, members of Service

forces may be especially familiar with the OA, its cultures, and languages as a result of

special training (e.g., foreign area officers), previous assignments, or heritage. The use of

such abilities should be maximized to facilitate understanding and communications.

Contract linguists should be screened for security purposes and vetted to verify their

abilities.

c. Religion. Each partner in multinational operations requires the capability to assess

the impact of religion upon operations. Assigned religious affairs personnel serve as

advisers to the command regarding religious factors among the local population, as well as

assigned, attached, or authorized personnel. Assigned religious affairs personnel also

provide religious support through pastoral care, worship opportunities, and casualty

incident responses. Commanders should strive to accommodate religious and cultural

customs, holiday observances, and similar concerns of MNF members.

General Planning Considerations

III-7

For more information on religious affairs, see JP 3-0, Joint Operations.

d. Culture. Each partner in multinational operations possesses a unique cultural

identity—the result of their physical environment, economic, political, and social outlook,

as well as the values, beliefs, and symbols that comprise their culture. Even seemingly

minor differences, such as dietary restrictions, can have great impact. Commanders should

strive to accommodate religious and cultural customs, holiday observances, and similar

concerns of MNF members.

(1) There are a number of tools that can aid commanders and joint forces in

identifying and becoming familiar with troop contributing nations’ cultural tendencies and

provide insights into other cultures (HN, neighboring countries, adversaries, and

supporters). This may enable commanders to be more effective when interacting with their

other MNF leaders and the local populace. These tools can potentially assist commanders

in making more timely assessments of potential cultural impacts and minimize any

detrimental impact on operations and enable a more cohesive relationship with our

multinational partners and friends.

(2) Some tools that provide analytical methodology for cultural evaluation

include:

(a) Defense Language Institute/Foreign Language Center at

http://www.dliflc.edu/resources/.

(b) US Air Force Culture and Language Center at http://culture.af.mil/.

(d) US Marine Corps Intelligence Activity at

http://www.hqmc.marines.mil/intelligence/Units/MCIA/.

(e) SOF global assessments conducted by US Special Operations Command.

(f) Marine Corps Center for Advanced Operational Culture Learning at

https://marinecorpsconceptsandprograms.com/programs/investing-education-and-

training-our-marines/center-advanced-operational-culture-and.

e. Sovereignty Issues. Sovereignty issues will be among the most difficult problems

the MNFC may be required to mitigate. Often, the MNFC will be required to accomplish

the mission through coordination, communication, and consensus, in addition to traditional

command concepts. National sensitivities must be recognized and acknowledged.

(1) The US commander, as part of the MNF, should coordinate with DOS,

country teams, and the ambassador/chief of mission to the respective HN, if available, on

any sovereignty issues that cannot be resolved at the MNFC level. Examples of

sovereignty issues include basing, civil, or criminal jurisdiction over military and

contractor personnel, immigration, customs and taxation, claims, ground movement,

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III-8 JP 3-16

overflight rights, aerial ports of debarkation, seaports of debarkation, railheads, border

crossings, frequency management, and operations in the territorial sea.

(a) Normally, such issues will be formally resolved with HNs through the

development of appropriate technical agreements to augment existing or recently

developed status-of-forces agreements (SOFAs), status-of-mission agreements, or defense

cooperation agreements (DCAs). These agreements, negotiated between the HN and the

sponsoring organization on behalf of the participating countries, establish the detailed legal

status of MNFs.

(b) Authority to negotiate a SOFA or DCA is held at the national level. For

US forces, some specified portions of that authority have been delegated to the Joint Staff

and CCDRs. Neither the MNFC nor the staff has such authority without specific approval

or delegation from higher authority. Before any negotiations or agreement with another

nation, the SJA or appropriate legal authorities should be consulted. US forces remain

subject to the Uniform Code of Military Justice, which will be administered by the

appropriate US commander.

(2) The commander may also create structures such as committees to address

sovereignty issues. These committees may be chaired by military or nonmilitary

representatives of the HN to facilitate cooperation and build trust. These organizations

could facilitate operations by reducing sensitivities and misunderstandings and removing

impediments. In many cases, SC organizations, NGOs, and international organizations

present in the HN can help establish good will with the HN. In some cases, these

organizations may also be called upon to assist in the conduct of operations or in

establishing a congenial relationship in the HN.

5. Legal

a. Commanders must ensure the MNTF complies with applicable national and

international laws during the conduct of all military operations. Participating nations

should provide commanders with access to legal advice throughout the operation to

facilitate a comprehensive understanding of any national differences. In operations under

the authority of NATO, relevant alliance documents will be applicable.

b. US forces will comply with the law of war (also referred to by other nations as the

law of armed conflict) during all armed conflicts however characterized and in all other

military operations. Additionally, US forces will be trained in the law of war IAW DODD

2311.01, DOD Law of War Program. US forces will report alleged violations of the law

of war (for which there is credible information or conduct during military operations that

would constitute a violation of the law of war if it occurred during an armed conflict)

through command channels.

Refer to DODD 2311.01, DOD Law of War Program, and CJCSI 5810.01, Implementation

of the DOD Law of War Program.

c. International Agreements. International agreements are the primary source of

rules of international law applicable to US, multinational, and HN forces. SOFAs are one

General Planning Considerations

III-9

type of international agreement. SOFAs are normally comprehensive; however, these may

be modified or become inapplicable in time of armed conflict. They prescribe most of the

reciprocal rights, powers, duties, privileges, and immunities of the US forces, to include

DOD civilians and contractor personnel stationed abroad and of the governments of the

HN and PNs and their respective armed forces. Other important types of international

agreements concern security assistance and HNS agreements. For specific information on

HNS agreements (e.g., acquisition and cross-servicing agreements [ACSAs]) and

international agreements (e.g., defense cooperation agreements), contact the US embassy

military senior defense official or GCC’s legal advisor.

d. Treatment of Detainees. During the conduct of military operations, MNF

personnel must be prepared to detain a wide variety of individuals who fall into different

categories under the law of war. Regardless of the category or status of a detainee, MNFs

are required to properly control, maintain, protect, and account for all detainees IAW

applicable domestic law, international law, and policy. Additionally, US forces should be

aware that other participating nations may categorize detainees differently. For this reason,

and because the excessive use of force or the perceived mistreatment of detainees can also

seriously undermine public confidence in MNF operations, it is imperative commanders

provide clear guidance for detainee operations in a multinational environment.

For additional information, see JP 3-63, Detainee Operations.

e. The DOD Detainee Program establishes overarching DOD detainee policy. The

directive requires humane treatment of all detainees, however characterized, during all

armed conflicts and in all other military operations. The standards of treatment set forth in

the directive apply to all DOD components and contractors authorized to accompany the

force (CAAF), when assigned to or supporting the DOD components conducting,

participating in, or supporting detainee operations. These standards also apply to all non-

DOD personnel as a condition of permitting access to internment facilities or to detainees

under DOD control.

For additional information, see DODD 2310.01E, DOD Detainee Program.

f. Military Justice

(1) Jurisdiction over US forces suspected of committing a criminal offense will

be decided on a case-by-case basis, IAW applicable international agreements with HN civil

authorities. It is US policy to retain jurisdiction in all criminal cases to the fullest extent

possible. Foreign military commanders exercising operational control (OPCON) or

tactical control (TACON) over US forces will not administer discipline.

(2) Jurisdiction over non-US members of the MNTF in such circumstances will

also be decided IAW applicable international agreements with HN civil authorities. Since

national procedures with regard to jurisdiction will determine how each case will be

handled, US commanders should defer such matters to the participating nation’s

authorities.

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III-10 JP 3-16

g. Commanders should coordinate with the joint force SJA to assist in resolving

potential legal conflicts that arise during multinational operations, such as jurisdictional

issues related to HN law and military justice, questions regarding compliance with

international law, and issues related to the treatment of detainees. However, this does not

relieve the commander of the responsibility to understand and apply pertinent directives

related to the law of war and ROE.

6. Doctrine and Training

a. Doctrine. Some nations, and international organizations, possess doctrine and

training programs with a full treatment of strategic, operational, and tactical issues. Other

nations have doctrine and training programs smaller in both scope and capability to match

their national goals and objectives. When the Armed Forces of the United States participate

in multinational operations, US commanders should follow multinational doctrine and

procedures that have been ratified by the US. For multinational doctrine and procedures

not ratified by the US, commanders should evaluate and follow the multinational

command’s doctrine and procedures where applicable and consistent with US law, policy,

and guidance. An example is the MNF SOP developed by 31 nations within the MPAT in

the Asia-Pacific region. It seeks to identify common starting points for the rapid activation

and forming of an MNTF for crisis response situations (see Appendix B, “Multinational

Planning Augmentation Team”).

b. Training and Resources. When the situation permits, MNFCs at all levels should

seek opportunities to improve the contributions of member nation forces through training

assistance and resource sharing consistent with agreements between MNF members. This

could include development of interoperable C2 and joint fires capabilities and procedures;

the sale or loan of equipment; consistent and shared doctrine; common TTP; and

participation in multinational exercises, including training at US national training centers

when appropriate. GCCs should include this information in the SC portion of their

campaign plan.

7. Funding and Resources

Financial and resource considerations may vary greatly with each multinational

operation. Responsible parties need to become familiar with the added legal complexities

and ramifications when operating with MNFs. Reimbursement and other funding issues

are often complex. Many arrangements will be similar to those for UN operations while

other financial arrangements will be based on specific coalition agreements, MOUs, or

technical agreements. It is important to begin coordination of financial arrangements with

prospective multinational partners as early in the planning process as possible. Often,

financial arrangements may be supported by special US logistic and funding authorities

(the US’s Overseas Humanitarian, Disaster, and Civic Aid provisions, for example).

Examples of unique authorities include the provision of supplies, services, transportation,

and logistic support to coalition forces supporting military and stability activities in Iraq

and Afghanistan and authorities to use ACSAs to lend certain military equipment to foreign

forces in Iraq and Afghanistan for personnel protection and survivability. Additional

examples of authorities are: establish an OCS coordination framework to preclude MNF

General Planning Considerations

III-11

contracting conflicts; preserve and support local economy and wage rates; and preclude

monopolization of HN vendors, services, and goods (ensure HN populace access to needed

resources).

In addition to the specific agreements governing each operation, important references on

multinational funding issues are contained in DOD 7000.14-R, Department of Defense

Financial Management Regulation (DODFMR), Volume 15, Security Cooperation Policy.

8. Protection of Personnel, Information, and Critical Assets

a. The protection function focuses on preserving the joint forces fighting potential in

four primary ways. One way uses active defensive measures that protect the joint force,

its information, its bases, necessary infrastructure, and lines of communications (LOCs)

from an enemy attack. Another way uses passive defensive measures that make friendly

forces, systems, and facilities difficult to locate, strike, and destroy. Equally important is

the application of technology and procedures to reduce the risk of friendly fire. Finally,

emergency management and response reduce the loss of personnel and capabilities due to

accidents, health threats, and natural disasters. As the MNFC’s mission requires, the

protection function also extends beyond FP to encompass protection of noncombatants; the

forces, systems, and civil infrastructure of friendly nations; and interorganizational

partners.

See JP 3-0, Joint Operations, for additional information on the protection function.

b. Commanders must understand that other nations do not necessarily execute FP in

the same way as the United States Armed Forces. Some nations’ armed forces may or may

not be willing or able to assume the same risk as US forces. US commanders, whether

under US control or under a command relationship to an MNF, must continuously assess

threats and vulnerabilities while implementing appropriate FP countermeasures IAW

published GCC directives. Special consideration must be given to personnel with duties

that require interaction with local populations.

c. Throughout multinational operations, risk management techniques and

methodologies should be used to reduce or offset risk by systematically identifying,

assessing, and controlling risk.

d. Another significant problem facing the MNF is the potential for friendly fire.

Unfamiliar procedures, lack of a common language, and differing operational terms of

reference can increase this risk. MNF support or liaison teams can greatly assist in

assessing and reducing the friendly fire risk to the MNF by recommending operational

coordination measures and technological solutions.

e. Finally, commanders must understand US forces, as part of an MNF, can potentially

be the greater target. Enemies may view attacks against US Service members as a

particularly effective tactic, especially when using co-opted multinational or HN forces to

conduct these attacks against unsuspecting US forces. While these types of so-called

“insider” or “green-on-blue” attacks may be context-specific to a particular theater, JFCs

should, nevertheless, ensure their protection plans at least take into account the potential

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III-12 JP 3-16

for these types of attacks and plan appropriate countermeasures as the situation dictates.

US forces operating at tactical levels may be especially vulnerable to unintended and

adverse exploitative use of information to gain advantage. Commanders should

implement clear measures to ensure tactical information is accurate, timely, and

adequately protected at all times.

f. Nontraditional threats, such as insider attacks, undermine an MNF’s ability in

establishing a secure and stable environment, as well as the cohesion of the MNFs.

Strategically, these types of threats provide a propaganda platform from which adversaries

can not only threaten the MNF’s objectives and termination criteria but also undermine the

overall efforts of the international community. Tactically, the breakdown of trust,

communication, and cooperation between HNs and MNFs affects military capability.

Eliminating or minimizing nontraditional threats, especially by proper preparation and

training of coalition forces, is critical to mission success. However, tougher FP standards

and measures that are overtly heavy handed must be well balanced yet culturally sensitive

enough to not send the wrong message to the very people and organizations the coalition

is trying to protect.

g. Commanders must recognize that FP may have a higher priority than achievement

of specific tactical objectives as the information gained by an enemy’s successful attack

against US forces can have an operational or even strategic impact. This does not imply

that what is called for is a reduction of risk by isolation of US forces.

9. Rules of Engagement

a. Obtaining concurrence for ROE from national authorities may be time-consuming

but is essential and should begin early in the planning process. Though the participants

may have similar national mandates, ROE may differ among the represented PNs. In many

cases, commanders of deployed member forces may lack the authority to speak on behalf

of their nation in the ROE development process. Complete consensus or standardization

of ROE should be sought but may not be achievable. The MNFC should reconcile

differences as much as possible to develop and implement simple ROE that can be tailored

by member forces to their national policies and law.

b. It is essential that adjacent or mutually supporting formations and forces understand

each others’ ROE, as it cannot be assumed that each will react in an identical fashion to a

given situation. Without this understanding, events could result in misperceptions,

confusion, and even friendly fire.

c. US forces assigned OPCON or TACON to an MNFC will follow the ROE of the

MNF for mission accomplishment, if authorized by SecDef. US forces retain the right of

self-defense. Apparent inconsistencies between the right of self-defense contained in US

standing rules of engagement and the MNF ROE will be submitted through the US chain

of command for resolution. While the final resolution is pending, US forces will continue

to operate under US ROE. In the case of NATO operations, attention should be directed

to applicable alliance documents, such as, Military Committee 362/1, NATO Rules of

Engagement.

General Planning Considerations

III-13

For additional information on standing rules of engagement, see CJCSI 3121.01, (U)

Standing Rules of Engagement/Standing Rules for the Use of Force for US Forces.

10. Combat Identification and Friendly Fire Prevention

Tragically, “fog-of-war” situations can lead to friendly fire incidents. Rapid, reliable

identification of friends, foes, and neutrals, also known as combat identification (CID) is a

key survivability enabler that mitigates friendly fire incidents.

a. Effective CID enhances joint force capabilities by providing confidence in the

accuracy of engagement decisions throughout the force. The MNFC’s CID procedures

should serve to optimize mission effectiveness by maximizing enemy engagements while

minimizing friendly fire and collateral damage. These measures are particularly important

in PO and traditional noncombat operations. Therefore, CID measures should be

established early in the planning cycle.

b. CID considerations play an important role in FP. The MNFC’s CID procedures

must be consistent with ROE and not interfere with a unit’s or an individual’s ability to

engage enemy forces and conduct actions appropriate for self-defense. CID

characterizations, when applied with ROE, enable engagement decisions and the

subsequent use, or prohibition of use, of weapons and capabilities that create lethal and/or

nonlethal effects. When developing the MNF CID procedures, important considerations

include the missions, capabilities, and limitations of all participants.

For additional guidance on CID, refer to JP 3-09, Joint Fire Support.

c. MNFCs must make every effort to reduce the potential for the unintentional killing

or wounding of friendly personnel (to include civilians) by friendly fire. The destructive

power and range of modern weapons, coupled with the high intensity and rapid tempo of

modern combat, the fluid nature of the nonlinear OA, the changing disposition of attacking

and defending forces, and the presence of civilians in the OA, increase the potential for

friendly fire.

For additional information on protection of civilians, refer to Peacekeeping and Stability

Operations Institute’s Protection of Civilians Military Reference Guide (Second Edition) at

http://pksoi.armywarcollege.edu/default/assets/File/PoC_MilRefGd_2nd_ed_Web_reduced

.pdf.

d. Commanders must identify and assess situations that increase the risk of friendly

fire in the OE and institute appropriate preventive measures. The primary preventive

measures for limiting and reducing friendly fire are command emphasis, disciplined

operations, close coordination among component commands and multinational partners,

exercises, reliable and timely CID, effective SOPs, technology solutions (e.g.,

identification, friend or foe; friendly force tracking), and enhanced situational awareness

(SA) of the OE. Commanders should seek to minimize friendly fire while not limiting

boldness and initiative.

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III-14 JP 3-16

Intentionally Blank

IV-1

CHAPTER IV

OPERATIONS

1. Land Operations

In most multinational operations, land forces are an integral and central part of the

military effort. The level and extent of land operations in a multinational environment is

largely a function of the overall military objectives, any national caveats to employment,

and the forces available within the MNF.

a. National doctrine and training will normally dictate employment options within the

MNF. Nations with common TTP will also experience far greater interoperability.

Effective use of SC activities may significantly reduce interoperability problems even for

countries with widely disparate weapons systems.

b. The MNFC may assign the responsibility for land operations to an overall

multinational force land component commander (MNFLCC) or a task force (TF) within

the MNF command structure (for example: TF South, TF North). Such TFs may include

elements from a single nation or multiple nations, depending on the situation and the

interoperability factors of the nations involved. In addition, the MNFC may also assign an

area of operations (AO) to the MNFLCC or TF based upon the concept of operations

(CONOPS). Figure IV-1 contains a representative sample of MNFLCC responsibilities.

c. The MNFC will also establish supported and supporting relationships between the

land component command or TF and other MNTF components (maritime, air, and special

operations), based upon mission requirements, to assist in prioritizing actions; establishing

the main effort; and establishing formal command/coordination channels between the

components for a specific operation, mission, or phase.

d. A fundamental consideration for planning and executing land operations is

sustainability. The following factors impact the sustainability of land operations:

(1) Personnel staffing requirements.

(2) Medical requirements and capabilities.

(3) Maintenance.

(4) Supply.

(5) Storage facilities.

(6) Transportation.

(7) Technical support and requirements.

(8) Common sourcing of support.

Chapter IV

IV-2 JP 3-16

(9) OCS.

Figure IV-1. Multinational Force Land Component Commander Notional Responsibilities



Advise the multinational force commander (MNFC) on the proper employment of

forces made available for tasking.

Develop the joint land operation plan/operation order in support of the MNFC’s

concept of operations and optimizing the operations of task-organized land forces.

The multinational force land component commander (MNFLCC) issues planning

guidance to all subordinate and supporting elements and analyzes proposed

courses of action. The intent is to concentrate combat power at critical times and

places to accomplish strategic, operational, and tactical goals.

Direct the execution of land operations as specified by the MNFC, which includes

making timely adjustments to the tasking of forces and capabilities made available.

The MNFLCC coordinates changes with affected component commanders as

appropriate.

Coordinate the planning and execution of joint land operations with the other

components and supporting agencies.

Evaluate the results of land operations to include the effectiveness of interdiction

operations and forwarding these results to the MNFC to support the combat

assessment effort.

Synchronize and integrate movement and maneuver, fires, and interdiction in

support of land operations.

Designate the target priorities, effects, and timing for joint land operations.

Establish a personnel recovery coordination cell, and be prepared to implement a

personnel recovery plan and conduct personnel recovery of assigned forces.

Provide mutual support to other components by conducting operations such as

suppression of enemy air defenses and suppression of threats to maritime

operations.

Coordinate with other nations’ functional and Service components in support of

accomplishment of MNFC objectives.

Provide an assistant or deputy to the area air defense commander for land-based

joint theater air and missile defense operations and coordination as determined by

the MNFC.

Support the MNFC's operations in the information environment by developing the

information requirements that support land operations and synchronizing land force

information assets when directed, to include cyberspace requirements.

Establish standing operating procedures and other directives based on MNFC

guidance.

Provide inputs into the MNFC-approved joint operational area air defense plan

and the airspace control plan.

Integrate the MNFLCC’s communications systems and resources into the theater’s

networked communications system architecture or common operational picture to

synchronize MNFLCC’s critical voice and data requirements. These

communications systems requirements, coordination issues, and capabilities

should be considered in the joint planning and execution process.

Multinational Force Land Component Commander

Notional Responsibilities

Operations

IV-3

See JP 3-31, Joint Land Operations, for more detail. AJP-3.2, Allied Joint Doctrine for

Land Operations, provides further information on doctrine for planning, preparing, and

executing NATO land component operations.

2. Maritime Operations

During multinational operations, maritime forces can exercise sea control or project

power ashore, synchronize their operations with the other MNF components, and support

the MNFC’s intent and guidance in accomplishing the MNF mission. Maritime forces are

primarily navies and coast guard; however, they may include maritime-focused air forces,

amphibious forces, or other government departments and agencies charged with

sovereignty, security, or constabulary functions at sea.

a. Maritime operational responsibility may be assigned to a multinational force

maritime component commander (MNFMCC) or a designated TF. Figure IV-2 contains a

representative sample of MNFMCC responsibilities.

b. The MNFC can also assign a maritime AO to the MNFMCC or naval TF within

the MNF OA, based upon the CONOPS. The MNFC will also establish support

relationships between the MNFMCC (or TF) and other MNF components (land, air, SOF),

based upon mission requirements, to assist in prioritizing actions, establishing the main

effort, and establishing formal command/coordination channels between the components

for a specific operation/mission or phase.

c. A fundamental consideration of maritime operations is sustainability. The

following factors impact the sustainability of maritime operations:

(1) Number of surface ships (combatant and noncombatant).

(2) Number of submarine assets.

(3) Maintenance.

(4) Storage facilities.

(5) Weather and sea state conditions.

(6) Sea LOCs.

d. Properly planned, resourced, and employed maritime forces may conduct

operations that provide the MNFC with an MNF that can use the maneuver space of the

sea to provide a broad range of options, generally unfettered by the requirement to obtain

HN permissions and access. Maritime forces can provide power projection, afloat HQ,

logistics, area surveillance, and denial platforms and facilities for joint forces offering

advantages in flexibility and sustainability. Use of maritime forces may reduce the MNF

footprint ashore and enable support and sustainment to be landed in sufficient quantities,

as required, without necessarily placing it all in a vulnerable and essentially immobile

location. Seabasing of MNFs also reduces the possible negative impact on limited

Chapter IV

IV-4 JP 3-16

infrastructure ashore and facilitates the protection of supplies and logistics support.

Maritime forces expand access options, reduce dependence on land bases, and create

uncertainty for adversaries.

e. Maritime transport vessels provide the bulk of heavy lift in support of multinational

operations.

See JP 3-32, Joint Maritime Operations, for details on maritime operations

3. Air Operations

a. Air operations provide the MNFC with a responsive, agile, and flexible means of

operational reach. The MNFC can execute deep operations rapidly, striking at decisive points

and attacking centers of gravity. Further, transportation and support requirements can be

greatly extended in response to emerging crisis and operational needs. Multinational air

operations are focused on supporting the MNFC’s intent and guidance in accomplishing the

Figure IV-2. Multinational Force Maritime Component Commander

Notional Responsibilities

Multinational Force Maritime Component Commander

Notional Responsibilities



Recommend to the multinational force commander (MNFC) the apportionment of

the joint maritime effort (after consultation with other component commanders).

Provide maritime forces to other component commanders in accordance with

MNFC apportionment decisions.

Control the execution of joint maritime operations, as specified by the MNFC, to

include adjusting targets and tasks for available joint capabilities/forces. The

MNFC and affected component commanders will be notified, as appropriate, if the

multinational force maritime component commander changes the planned joint

maritime operations during execution.

Assign and coordinate target priorities within the maritime area of operations (AO)

and integrate maneuver and movement, fires, and interdiction. The multinational

force maritime component commander nominates targets located within the

maritime AO to the joint targeting process that may potentially require action by

another component commander’s assigned forces.

Contribute to maritime domain awareness. In order to allow decision makers to

understand complex security environments, maritime components must:

Persistently monitor the maritime domain to identify potential and actual

maritime threats;

Fuse and analyze intelligence and information when possible; and

Disseminate intelligence and information in near real-time to the MNFC and

other component commanders.

Function as the supported/supporting commander, as directed by the MNFC.

Provide centralized direction for the allocation and tasking of forces/capabilities

made available.

Establish a personnel recovery coordination center in the same manner as the

land component commander.



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IV-5

MNTF mission and, at the same time, ensuring air operations are integrated with the other

major MNF operational functions (land, maritime, and special operations forces).

b. Overall MNF air operations will normally be assigned to a multinational force air

component commander (MNFACC) (the designation will be based on the type of

multinational configuration used in the operation). MNFACC plans, coordinates, allocates,

and tasks air capabilities/force made available based on the MNFC’s air apportionment

decision (see Figure IV-3). The MNFC will also establish support relationships between

the MNFACC or TF and other MNF components based on MNF mission requirements, to

assist in prioritizing actions and establish formal command/coordination channels between

the components for a specific operation/mission or phase.

c. Air Operations Planning. An integral part of the MNFC’s planning efforts is the

concept of air operations. The MNFACC conducts air operations planning and develops

the concept for air operations, describing how the multinational assets made available are

envisioned to be employed in support of the MNFC’s overall objectives. Both US

component commanders and MNFCs should provide highly trained liaison staffs to

facilitate integration, coordination, and synchronization of their operations. Air planning

should also include the use of logistic air assets and airfields. This is especially important

for the coordination of tactical air operations with logistic operations, especially the air

movement of supplies, their unloading, and rapid clearance from aerial ports. In the event

that no established multinational guidance is available, planning considerations for

multinational air operations should resemble those for joint air operations.

Figure IV-3. Multinational Force Air Component Commander Notional Responsibilities

Multinational Force Air Component Commander

Notional Responsibilities



Develop a multinational air operations plan to support the multinational force

commander’s (MNFC’s) objectives.

Recommend to the MNFC apportionment of the joint air effort, after consulting with

other component commanders.

Allocate and task air capabilities/forces made available based on the MNFC’s air

apportionment decision.

Provide oversight and guidance during execution of multinational air operations.

Coordinate multinational air operations with other component commanders and

forces assigned to or supporting the MNFC.

Assess the results of multinational air operations.

Support MNFC information operations with assigned assets, when directed.

Function as the supported/supporting commander, as directed by the MNFC.

Perform the duties of the airspace control authority, the area air defense

commander, and/or the space coordinating authority as designated.

Implement a personnel recovery plan for their own forces.

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IV-6 JP 3-16

See JP 3-30, Joint Air Operations, for details on the air planning process.

d. Airspace Control. The primary purpose of airspace control is to increase combat

effectiveness by promoting the safe, effective, and flexible use of airspace with minimal

restraint imposed on the users. International agreements; enemy and friendly force

structures; deployments and resupply operations; commanders’ concepts and operations;

and operating environments such as foreign countries, the high seas, and amphibious

objective areas will necessitate different specific arrangements for airspace control. Since

participating nations’ policies and doctrines may vary in this regard, the MNFC should

ensure early, common understanding of the boundaries and limits of all operational areas.

(1) Responsibility. The responsibility for airspace control rests with the MNFC,

who normally designates an airspace control authority (ACA) to coordinate the airspace

control activities for multinational operations. In broad terms, the ACA establishes,

coordinates, and integrates the use of the airspace control area. Subject to the authority

and approval of the MNFC, the ACA develops broad policies and procedures for airspace

control and for the coordination required among nations’ forces.

(2) When operating outside of a combat environment and within the borders of

another sovereign nation, the ACA may perform coordination rather than control over the

airspace. In those situations, the ACA needs to establish an effective relationship with the

HN airspace authority. In addition to increasing effectiveness, the HN interests are likely

to include safe domestic civil aviation, efficient commercial aviation, and international

overflight rights. Integrating airspace control efforts will have a positive impact on the

overall relationship between the HN and the MNF.

(3) The ACA establishes an airspace control system that is responsive to the

needs of the MNFC, integrates the MNF airspace control system with that of the HN, and

coordinates and deconflicts user requirements. Centralized direction by the ACA does not

imply command authority over any assets. Matters on which the ACA is unable to obtain

agreement are referred to the MNFC for resolution. The responsibilities of ACA and

MNFACC are interrelated and should normally be assigned to one individual. If this is not

possible, the ACA staff should be collocated with the MNFACC staff.

See JP 3-52, Joint Airspace Control, for specific information on US joint operations and

AJP-3.3.5, Airspace Control, for specific information on NATO operations.

e. Air Defense. Air and missile defense operations must be coordinated with other

operations, both on and over land and sea. The MNFC normally designates an area air

defense commander (AADC) to integrate the MNF’s defensive effort. The responsibilities

of the MNFACC, AADC, and ACA are interrelated and are normally assigned to one

individual. When the situation dictates, the MNFC may designate a separate AADC and/or

ACA. In those joint operations where separate commanders are required and designated,

close coordination is essential for unity of effort, prevention of friendly fire, and

deconflicting joint air operations.

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IV-7

See JP 3-01, Countering Air and Missile Threats, for details on air and missile defense

operations.

f. Sustainment. The following factors significantly influence sustainability during

air operations:

(1) Available aircraft.

(2) Landing fields/air base support infrastructure.

(3) Weather.

(4) Maintenance.

(5) Supply.

(6) Storage facilities.

(7) Transportation.

(8) Technical support and requirements.

(9) Common sourcing of support.

(10) Secure LOCs.

(11) Medical support requirements and capabilities.

(12) OCS.

4. Space Operations

a. MNFCs depend upon and exploit the advantages of space-based capabilities.

Available space capabilities are normally limited to already-deployed assets and

established priorities for space system resources. Space systems offer global coverage and

the potential for real time and near real time support to military operations. United States

Strategic Command (USSTRATCOM), through the joint force component commander,

enables commands to access various space capabilities and systems. As situations develop,

priorities for space support may change to aid the MNFC in assessing the changing

environment. Most important, MNFCs and their components need to anticipate “surge”

space-based capabilities needed for future phases due to the long lead times to reprioritize

or acquire additional capability.

b. Space Integration into MNF Operations. MNFs will have many of the same

requirements for space support as do US forces. Sharing of intelligence products is

controlled according to security guidelines. Unannotated commercial imagery may

facilitate information sharing with other MNFs. Weather data is also readily available to

share, as is Global Positioning System navigation support. Providing warning of and

defense against attack from all classes of ballistic missiles is important because it helps

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IV-8 JP 3-16

build trust among MNFs. USSTRATCOM assists in development of missile warning

architectures and providing this information to MNFs in a process called “shared early

warning.”

c. Space Coordinating Authority (SCA). The SCA gathers operational

requirements that may be satisfied by space capabilities and facilitates the use of

established processes by joint force staffs to plan and conduct space operations. The SCA

coordinates with each MNF component and ally to reduce redundancy among, and

interference between, space operations, as well as conflicting support requests reaching

USSTRATCOM. The MNFC should consider the mission, nature, and duration of the

operation; preponderance of space force capabilities; and the C2 (including reachback) in

designating the SCA. MNF coordinating authority is normally retained at the MNF level

but may be delegated to a component. The SCA may require additional liaison with MNFs.

For additional information on space operations, see JP 3-14, Space Operations.

5. Information

All military activities produce information. Informational aspects are the features and

details of military activities observers interpret and use to assign meaning and gain

understanding. Those aspects affect the perceptions and attitudes that drive behavior and

decision making. The JFC/MNFC leverages informational aspects of military activities to

gain an advantage; failing to leverage those aspects may cede this advantage to others.

Leveraging the informational aspects of military activities ultimately affects strategic

objectives.

a. Multinational operations in the information environment should be based on a

systemic understanding of the information environment. Themes and messages must be

agreed upon by all MNF participants and integrated into operations. The information

environment is dynamic and subject to rapid change requiring flexibility and adaptability

to mission and situation requirements. The development of capabilities, plans,

assessments, intelligence, and communications support applicable to operations in the

information environment must begin early so information activities can be integrated into

the overall operation or campaign plan. This development also requires coordination with

the responsible DOD components and PNs. Coordination with allies above the JFC/MNFC

level is normally accomplished within existing defense arrangements, including bilateral

arrangements. Operations in the information environment should be coordinated with all

stakeholders especially the appropriate GCC and DOS country team.

b. The Multinational Information Operations Cell

(1) When the JFC is also the MNFC, the joint force staff should be augmented

by planners and subject matter experts from the MNF. All MNF member nations should

be represented in the information operations (IO) cell in positions to integrate information

throughout the communications. Planners should seek to accommodate the requirements

of the MNF with the objective of using all the available resources. Direct representation

enables multinational information assets to be used efficiently and ensures the

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IV-9

multinational plan for operations in the information environment is coordinated with all

other aspects of the multinational operation. Toward that end, it is essential that from the

initiation of planning those activities, and the structures, systems, and facilities that support

them, be classified at the lowest level possible.

(a) Each nation has various resources to provide both classified and

unclassified information to a particular information activity. To maximize the benefits of

information activities, all nations must be willing to share appropriate information to

accomplish the assigned mission. However, all MNF members should understand each

nation is obliged to protect information that it cannot share with other MNF nations.

(b) Information sharing arrangements in formal alliances, to include US

participation in UN missions, are worked out as part of alliance protocols. Information

sharing arrangements in ad hoc multinational operations where coalitions are working

together on a short-notice mission must be created during the establishment of the coalition.

For more information, see JP 3-0, Joint Operations, and JP 3-13, Information Operations.

For NATO-specific doctrine, see AJP-3.10, Allied Joint Doctrine for Information

Operations.

(2) When the JFC is not the MNFC, it may be necessary for the JFC to brief the

MNFC and staff on the advantages of operations in the information environment to achieve

US and MNF objectives. The JFC should propose organizing a multinational IO cell. If

this is not acceptable to the MNFC, the JFC should assume responsibility for using

operations in the information environment to support US and MNF objectives.

c. Multinational Planning for Operations in the Information Environment.

Planning operations in the information environment to support multinational operations is

more difficult because of complex approval and security issues, differences in the level of

training of involved forces, interoperability of equipment, and language barriers.

(1) How to plan multinational operations is the prerogative of the MNFC. The

size, composition, and mission of the MNF, as well as diplomatic considerations, may

influence how multinational IO is planned. Coordination at the IO cell level, with detailed

planning at the individual element level, would give multinational planning for operations

in the information environment the most consistency with US planning procedures.

(2) The use of information should directly and demonstrably support the

objectives of the MNFC. This is particularly important when joint force planners are

attempting to acquaint a non-US MNFC with the advantages of operations in the

information environment.

(3) The subordinate JFC may undertake planning and execution of independent

operations in the information environment in support of multinational objectives.

See CJCSI 6510.01, Information Assurance (IA) and Support to Computer Network

Defense (CND).

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IV-10 JP 3-16

d. Military information support operations (MISO) provide the commander with the

ability to develop and convey messages and devise actions to influence select foreign

groups and promote themes to change those groups’ attitudes and behaviors. MISO can

also degrade the enemy’s combat power, reduce civilian interference, minimize collateral

damage, and increase the population’s support for operations. MISO provide JFCs with

ways and means to influence political, military, economic, social, information, and

infrastructure aspects of the OE that may be as critical to operational success as actions

against enemy and adversary military capabilities. Target audiences are individuals or

groups selected for influence and may include enemy, adversary, friendly, and neutral

groups or populations. MISO should be incorporated into all multinational operations.

(1) The MNFC should ensure all MISO, regardless of national origin, are

coordinated. MISO planning must begin early, preferably before deployment, to prepare a

population for the arrival of MNFs and develop communication channels that can be used

from day one of the operation. A detailed analysis of a country’s culture, political climate,

and military organization can help the MNFC to effectively apply MISO to communicate

policy, provide information, and persuade groups to cooperate with friendly forces. US

MISO require US granted authorities/permissions and are approved in US channels

regardless of the composition of the MNF chain of command.

(2) Many NATO and Partnership for Peace nations still use the term

psychological operations in place of MISO. In the US, military information support forces

are trained personnel who primarily conduct MISO. It is important not to confuse the

psychological impact of other military operations with MISO. Many actions of the joint

force, such as air strikes, have psychological impact, but they are not MISO unless their

primary purpose is to influence the attitudes, rules, norms, beliefs, and subsequent behavior

of a target audience. However, the psychological impact of such events can significantly

enhance or undermine program effectiveness and is considered during planning, execution,

and assessment. Regardless of the circumstances, all MISO are conducted within carefully

reviewed and approved programs and under mission-tailored product approval guidelines

that flow from national-level authorities. MISO officers advise the commander and

operations officer on the possible psychological impacts of all actions and ongoing

operations.

See JP 3-13.2, Military Information Support Operations, and CJCSI 3110.05, Military

Information Support Operations Supplement to the Joint Strategic Capabilities Plan, for

additional information.

6. Cyberspace Operations

a. Cyberspace is a global domain within the information environment consisting of

the interdependent network of information technology infrastructures and resident data,

including the Internet, telecommunications networks, computer systems, space-based

resources, and embedded processors and controllers. Cyberspace uses electronics and the

electromagnetic spectrum (EMS) to create, store, modify, and exchange data via networked

systems. Cyberspace operations seek to ensure freedom of action throughout the OE for

US forces and our allies, while denying the same to our adversaries. Cyberspace operations

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IV-11

overcome the limitations of distance, time, and physical barriers present in the physical

domains. Cyberspace links actions in the physical domains, enabling mutually dependent

operations to achieve an operational advantage.

b. Nations’ understanding of the role of cyberspace in military operations continues

to evolve. Operating capabilities, philosophies, and national limitations on cyberspace

activities in support of military operations are changing at a tempo that affects ongoing

MNF operations, as well as the planning of potential future ones. Mutually beneficial

national interests usually govern a contributing nation’s involvement in MNF cyberspace

operations. Cyberspace operations planning, coordination, and execution items that must

be considered when an MNF campaign plan or OPLAN is developed can include the

national agendas for each country of the MNF, which may differ significantly from those

of the US, creating potential difficulties in determining cyberspace operations objectives.

The level of multinational network and other cyberspace operations integration is directly

influenced by differing national standards and laws, which may affect employment of PN

cyberspace capabilities or willingness to participate in certain cyberspace operations.

c. Multinational operations are becoming the norm for military operations, making

intelligence and information sharing with PNs increasingly important. Cyberspace

connectivity, security, and assurance are essential for the multinational and HN forces’

effective mutual support during operations. Cyberspace interoperability issues should also

be considered in light of cybersecurity policy requirements. Security restrictions may

prevent full disclosure of individual cyberspace operations plans and orders with

multinational partners; this may severely hamper cyberspace synchronization efforts.

While it may not be possible to share specific cyberspace plans, resources, and techniques

with all partners due to restrictions, appropriate information on the broader intent,

objectives, and messaging should be provided, enabling PNs to conduct effective, if

unsynchronized, independent activities.

d. The threat may use cyberspace operations to penetrate US, MNF, and HN networks

to collect data on forces and systems or to create denial or manipulation effects. States are

the principal actors on the global stage, but non-state actors also threaten the security

environment with increasingly sophisticated capabilities. Terrorists, transnational criminal

organizations, cyberspace hackers, and other malicious non-state actors have transformed

global affairs with increased capabilities of mass disruption. Our partners and allies in

cyberspace go beyond just nation-states; multilateral organizations, NGOs, corporations,

and other strategic influencers all provide opportunities for collaboration and partnership.

For further information, read JP 3-12, Cyberspace Operations.

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IV-12 JP 3-16

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V-1

CHAPTER V

OTHER MULTINATIONAL OPERATIONS

1. Stability Activities

a. Stabilization is the process by which military and nonmilitary actors collectively

apply various instruments of national power to address drivers of conflict, foster HN

resiliencies, and create conditions that enable sustainable peace and security. Stability is

needed when a state is under stress and cannot cope. MNF supporting stabilization efforts

should consider the use of fundamentals of stabilization and the principles of multinational

operations to plan and execute military activities to facilitate long-term stability. The

fundamentals are conflict transformation, HN ownership, unity of effort, and building HN

capacity.

b. MNF provide support to facilitate the execution of tasks for which the HN is

normally responsible. These actions generally fall into one of three categories,

representing the collective effort associated with stabilization:

(1) Tasks for which MNF retain primary responsibility.

(2) Tasks for which civilian agencies or organizations retain responsibility but

MNFs execute or are prepared to execute.

(3) Tasks for which civilian agencies or organizations retain primary responsibility.

c. Joint or MNF planning and operations conducted prior to commencement of

hostilities should establish a sound foundation for later stability and enabled civil authority

activities. JFCs/MNFCs should anticipate and address how to fill the power vacuum

created when sustained combat operations wind down. Accomplishing this task should

ease the transition to stability activities and shorten the path to the national strategic end

state and handover to another authority. Considerations are to:

(1) Limit the damage to key infrastructure and services.

(2) Establish the intended disposition of captured leadership and demobilize

military and paramilitary forces.

(3) Provide for the availability of local currency.

(4) Identify and manage potential stabilize phase enemies.

(5) Determine the proper force mix (e.g., combat, military police, CA, engineer,

medical, multinational) and balance of capabilities that can produce lethal and/or nonlethal

effects for mission accomplishment and FP.

(6) Determine availability of HN law enforcement, health service support, and

force health protection (FHP) resources.

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V-2 JP 3-16

(7) Secure key infrastructure nodes and facilitate HN law enforcement and first

responder services.

(8) Develop and disseminate multinational communication-related themes to

suppress potential new enemies and promote new governmental authority.

(9) Coordinate OCS to preclude destabilization of market wage and vendor rates;

monopolization of vendor capability, goods, and services; and competition among

individual MNF members for resources.

For specific details on stability activities, see JP 3-0, Joint Operations; JP 3-07, Stability;

DODI 3000.05, Stability Operations; JP 3-24, Counterinsurgency; and JP 4-02, Joint

Health Services. For NATO-specific doctrine, see AJP-3.4.5, Allied Joint Doctrine for the

Military Contribution to Stabilization and Reconstruction.

2. Special Operations

a. SOF can provide the MNTF with a wide range of specialized military capabilities

and responses. SOF can provide specific assistance in the areas of assessment, liaison, and

training of HN forces within the MNTF OA. Special operations responsibility will

normally be assigned to a multinational force special operations component commander

(MNFSOCC) or to a TF within the MNF command structure. The TF may be made up of

SOF from one nation or multiple nations depending on the situation and the interoperability

factors of the nations involved. Figure V-1 contains a representative sample of MNFSOCC

responsibilities.

b. SOF may deploy ahead of the multinational operations to evaluate capability of

foreign units and identify training necessary to integrate them into the overall plan. This

capability is enhanced by routine interaction of SOF with foreign military units including,

for example, combat aviation advisory support. SOF can make use of their language and

cultural capabilities to liaise with multinational units as needed. SOF can train, advise,

assist, and, in some cases, accompany HN or multinational forces to overcome existing

shortfalls identified during the assessment.

For specific details on special operations, see JP 3-05, Special Operations, and JP 3-22,

Foreign Internal Defense. For NATO-specific doctrine, see AJP-3.5, Allied Joint Doctrine

for Special Operations.

3. Joint Electromagnetic Spectrum Management Operations

a. The MNF is critically dependent on the EMS. To prevail in the next conflict, an

MNF must win the fight for EMS superiority. Devices whose functions depend on the

EMS are used by both civilian and military organizations and individuals for intelligence;

communications; positioning, navigation, and timing; sensing; C2; attack; ranging; and

data transmission and information storage and processing. The military requirement for

unimpeded access to, and use of, EMS is a key focus for joint electromagnetic spectrum

operations (JEMSO), both in support of military operations and as a focus of operations

themselves.

Other Multinational Operations

V-3

b. JEMSO are military actions undertaken by two or more Services operating in

concert to exploit, attack, protect, and manage the electromagnetic operational environment

(EMOE). These actions include all joint force transmissions and receptions of

electromagnetic (EM) energy. The EMS is the range of all frequencies of EM radiation.

EMS superiority is that degree of dominance in the EMS that permits the conduct of

operations at a given time and place without prohibitive interference, while affecting an

adversary’s ability to do the same.

c. JEMSO actions to exploit, attack, protect, and manage the EMOE rely on personnel

and systems from the legacy EMS-related mission areas (e.g., signals intelligence, EMS

management, electronic warfare [EW]). Instead of these mission areas being planned and

executed in a minimally coordinated, stove-piped fashion, JEMSO guidance and processes

prioritize, integrate, synchronize, and deconflict all joint force actions in the EMOE, enhancing

unity of effort.

d. Operations within the air, maritime, and land domains are similar in their EMS

dependence through the execution of the joint functions. Since the EMS overlaps all the

physical domains and the information environment simultaneously, JEMSO provides the

processes to effectively prioritize, integrate, synchronize, and deconflict the EMS aspects

of operations throughout the OE. Many space and cyberspace operations occur through

Figure V-1. Multinational Force Special Operations Component Commander

Notional Responsibilities

Multinational Force Special Operations Component Commander

Notional Responsibilities



Advise the multinational force commander (MNFC) on the proper employment of

special operations forces (SOF) and assets.

Plan and coordinate special operations and employ designated SOF in support of

the MNFC’s concept of operations.

Issue planning guidance.

Analyze various courses of action.

Coordinate the conduct of special operations with other component

commanders and forces assigned to or supporting the MNFC.

Evaluate the results of .

Synchronize sustainment for SOF.

Establish a combat identification standing operating procedure and other

directives based on MNFC guidance.

Function as a supported/supporting commander, as directed by the MNFC.

Focus operational-level functions and their span of control.

Develop and support selected information operations efforts.

Responsible for a personnel recovery plan covering their forces and should

establish a personnel recovery coordination center.

special operations

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V-4 JP 3-16

the EMS, especially at the tactical level, and require close coordination with other

JEMSO through EM battle management processes.

e. Effective EMS management is essential to integrate and deconflict MNF use of

the EMS for communications, C2, sensor operations, information activities, EW, directed

energy capabilities, signals intelligence, and FP. The number, sophistication, and variety

of systems operated by PNs make EMS management far more demanding in

multinational operations than in joint operations.

f. The MNFC provides guidance for planning and JEMSO to the MNF through the

operations directorate of a joint staff’s combined electronic warfare coordination cell

(CEWCC). Note: NATO/multinational terminology still references the CEWCC.

Therefore, the CEWCC, not joint EMS operations cell, will be used when discussing

NATO/multinational operations.

For more information on spectrum management, refer to JP 6-01, Joint Electromagnetic

Spectrum Management Operations; JP 3-13.1, Electronic Warfare; and Joint Doctrine

Note (JDN) 3-16, Joint Electromagnetic Spectrum Operations.

4. Noncombatant Evacuation Operations

a. The President of the United States is the approval authority for noncombatant

evacuation operations (NEOs), which will be conducted under the lead of the chief of

diplomatic mission, the President’s personal representative to the HN. A NEO is

conducted to relocate designated noncombatants threatened in a foreign country to a

place of safety. NEOs are principally conducted by US forces to evacuate US citizens

but may be expanded to include citizens from the HN, as well as citizens from other

countries.

b. NEOs are often characterized by uncertainty. They may be directed without

warning because of sudden changes in a country’s government, reoriented diplomatic or

military relations with the US, a sudden hostile threat to US citizens from elements within

or external to a foreign country, or in response to a natural disaster.

c. NEO methods and timing are significantly influenced by diplomatic

considerations. Under ideal circumstances, there may be little or no opposition; however,

commanders should anticipate opposition and plan the operation like any combat

operation.

d. NEOs are similar to a raid in that the operation involves swift insertion of a force,

temporary occupation of physical objectives, and ends with a planned withdrawal. It

differs from a raid in that force used is normally limited to that required to protect the

evacuees and the evacuation force. Forces operating in foreign territory to conduct a

NEO should be kept to the minimum consistent with mission accomplishment, the

security of the force, and the extraction and protection of evacuees.

e. In planning for a NEO, the chief of mission, GCC, and JFC may consider the

possibility of operating with MNFs. When the NEO is to evacuate US citizens and

Other Multinational Operations

V-5

nationals, and designated other persons abroad, the Secretary of State may recommend

to the President to approve the use of an MNF. Approval for US participation in, or use

of, an MNF NEO will come only from the President. Under an emergency situation

involving the safety of human life or the protection of property, offers of voluntary

service from other countries may be accepted by the chief of mission prior to approval.

f. Multinational evacuations involve multiple nation diplomatic initiatives—with

MNFs conducting a NEO in a supporting role. A national decision from each of the

participating nations is required to conduct a NEO with an MNF. Should the national

powers decide on a requirement for a multinational NEO, an initiating directive should

be issued to enable detailed operational planning to commence.

For additional guidance on NEOs, refer to JP 3-68, Noncombatant Evacuation

Operations. Specific guidance on conducting NEOs within NATO is provided in AJP-

3.4.2, Allied Joint Doctrine for Noncombatant Evacuation Operations.

5. Foreign Humanitarian Assistance Operations

a. FHA operations, particularly in developing countries, often require the

intervention and aid of various agencies, including the military, from all over the world,

in a concerted and timely manner. As a result, operations involve dynamic information

exchange, planning, and coordination.

For more information, see JP 3-29, Foreign Humanitarian Assistance.

b. An MNCC may be established by the senior commander in support of all JTFs,

as an option for multinational coordination of FHA operations. In such contingencies,

the MNCC also acts as a CMOC and/or CIMIC coordination center, in addition to

providing coordination of military support operations.

c. When military forces are involved in FHA operations, their assets are provided

primarily to supplement or complement the relief efforts of the affected country’s civil

authorities and/or of the humanitarian relief community. This support may include, but

is not limited to, logistics, transportation, airfield management, communications, medical

support, distribution of relief commodities, and security.

d. Although it is the primary responsibility of national civilian aid agencies,

governmental departments and agencies, civil facility authorities, and international

agencies to conduct disaster needs assessments, they may not have the ability to do so or

capability to respond fast enough depending on the complexity, size, and nature of the

emergency/crisis. In such cases, along with multilateral and bilateral agreements,

military forces may be requested to provide and/or assist in disaster needs assessments.

For NATO-specific doctrine, see AJP-3.4.3, Allied Joint Doctrine for the Military

Contribution to Humanitarian Assistance, and AJP-3.4.9, Allied Joint Doctrine for Civil-

Military Cooperation.

Chapter V

V-6 JP 3-16

RESPONSE TO THE EARTHQUAKE IN HAITI

On 12 January 2010, a 7.0 earthquake struck Haiti, the poorest country

in the Western Hemisphere, killing 85,000, injuring many more,

displacing 900,000, and flattening much of the capital of Port-au-Prince,

where approximately half of the population of Haiti live. The earthquake

killed many civil servants and destroyed the National Palace, the

Supreme Court, the Palais de Justice, the Parliament, 14 of the 16 Haitian

government ministry buildings, and the emergency operations center.

One report stated “At the time of the earthquake, Haiti’s government was

barely functioning; it was rated as one of the most corrupt in the world

as a result, the government lacked the financial resources, management,

and leadership infrastructure to respond effectively.” Shortly after the

earthquake, Haitian president, Rene Preval, sent several of his ministers

on motorbikes to the US embassy requesting aid. The first request was

for the US to open and run the Toussaint Louveture Airport as the

control tower was out of commission.

Instability in Port-au-Prince has been a long-term concern. The United

Nations (UN) established the United Nations Stabilization Mission in

Haiti. MINUSTAH, in its French acronym, in 2004, comprised of over

8,000 soldiers and policemen to keep order in Haiti. Additionally, the

earthquake destroyed the main prison, enabling the escape of more than

4,000. Doctors without Borders treated 264 people in Port-au-Prince in

the five months following the earthquake for gunshot wounds and

another 2,147 patients for violence-related trauma.

The response to the earthquake was the largest humanitarian response

ever in Haiti. In addition to the UN, 140 countries sent personnel,

including 26 countries which sent military contingents, and 17 other

countries sent some military personnel as augmentees and liaison

officers. The International Committee of the Red Cross (ICRC) and over

2,000 nongovernmental organizations (NGOs) also sent personnel. The

Haitian Minister of Tourism, the UN Principal Deputy, the Special

Representative of the UN Secretary-General, and the Deputy Head of

MINUSTAH, chaired the coordination support committee which

managed the overall response at the operational level. Members of the

committee were UN agencies, multinational officers commanding

deployed forces, the United States Agency for International

Development (USAID), and donors (e.g., World Bank, Canadian

International Development).

The US agreed to take responsibility for the ports, airports, and roads

for distribution of humanitarian assistance, and the UN (supported by

multinational forces and Haitian authorities) was given the responsibility

for law and order. US forces and MINUSTAH jointly provided security at

food distribution points.

Other Multinational Operations

V-7

6. Countering Weapons of Mass Destruction

a. Weapons of mass destruction (WMD) are chemical, biological, radiological, and

nuclear (CBRN) weapons or devices capable of a high order of destruction and/or causing

mass casualties.

The UN and the ICRC, as well as other NGOs, utilized the cluster

coordination mechanism and organized the response in 11 thematic

areas. The UN established a joint operations and tasking center at the

tactical level which prioritized requests for all the military forces.

President Barack Obama designated USAID as the lead federal agency,

with the Department of Defense and 10 other departments and agencies

supporting it. United States Southern Command (USSOUTHCOM), the

supported combatant commander, established Joint Task Force (JTF)-

Haiti, which dwarfed USAID. USAID sent hundreds of people, while JTF-

Haiti was in charge of over 22,000 servicemen. One USAID worker asked

“How do we lead with such a small agency? We are smaller than a military

band.”

JTF-Haiti exchanged liaison officers with MINUSTAH and received liaison

officers from Canada, France, and South Korea. The JTF commander

appointed a Canadian exchange officer assigned to the US Army’s XVIII

Airborne Corps to lead the JTF’s Humanitarian Assistance Coordination

Cell, which was the focal point between US efforts and the cluster groups.

The 2,000 person Canadian contingent JTF-Haiti collaborated with many

other agencies, organizations, and nations. The relationship between the

various militaries and the NGOs worked very well because it was based

on commitment to the objectives, transparency between the participants,

and open communication and coordination. USSOUTHCOM established

the All Partners Access Network (APAN), an unclassified, nonmilitary

computer network for use by all US Government agencies, international

organizations, the UN, and NGOs. Through APAN, which JTF-Haiti treated

as a core rather than adjunct tool to operationalize the “born unclassified”

principle, US Government organizations posted imagery (satellite,

unmanned aerial vehicles, and over 4,000 photographs from helicopter

overflights) to better assist in identifying needs and also received imagery

requests. Additionally, a UN civil-military coordination officer temporarily

relocated to USSOUTHCOM headquarters where the higher-level military-

civilian coordination was conducted. The United States Naval Ship

Comfort allowed NGO medical staff on board and use of their facilities.

The UN relied heavily on joint task force’s planning capabilities, and JTF-

Haiti provided much logistic support, especially transportation, to the

NGOs for distribution of supplies. With roads blocked by debris, the

military transported NGOs and other military contingents and their

supplies to isolated regions by aircraft and amphibious landing craft.

Various Sources

Chapter V

V-8 JP 3-16

b. Countering weapons of mass destruction (CWMD) planning includes the

development of global and regional multinational campaign plans to shape the environment

to prevent the US and multinational partners from being attacked or coerced with WMD.

The existence of CBRN materials, significant quantities of toxic industrial material, or the

presence of pandemic influenza or infectious disease and the potential for use precipitates

the need to plan, prepare for, and counter their use.

c. CWMD is a continuous campaign that requires a coordinated multinational and

whole-of-government effort to curtail the conceptualization, development, possession,

proliferation, use, and effects of WMD-related expertise, materials, and technologies.

See JP 3-40, Countering Weapons of Mass Destruction, for CWMD planning

considerations; JP 3-11, Operations in Chemical, Biological, Radiological, and Nuclear

Environments, for CBRN planning considerations; and, for NATO-specific doctrine, see

AJP-3.8, Allied Joint Doctrine for the Chemical, Biological, Radiological, and Nuclear

Defence.

7. Counterdrug Operations

a. Counterdrug (CD) operations are inherently interagency and/or multinational in

nature. DOD supports the USG lead agencies for both domestic and international CD

operations, so military planning requires coordination and collaboration with relevant

agencies and multinational partners. This helps ensure the effective integration of

supporting military forces and equipment. Military planners must understand some of the

agencies and multinational organizations that lead or might become involved in CD

operations will have different goals, capabilities, limitations (such as policy and resource

constraints), standards, and operational philosophies.

b. Coordination and collaboration can be accomplished by integrating the efforts of

military, civilian agency, and multinational planners early in the planning process. Military

commanders who support CD operations must ensure interagency and multinational

planners clearly understand military capabilities, requirements, operational limitations,

liaison, and legal considerations and military planners understand the nature of the

relationship and the types of support they can provide. Robust liaison facilitates

understanding, coordination, and mission accomplishment.

See JP 3-07.4, Counterdrug Operations, for more information. Also, refer to JP 3-08,

Interorganizational Cooperation, for interagency and multinational considerations.

8. Countering Threat Networks

Countering threat networks through network engagement involves developing and

partnering with friendly networks, which frequently, if not practically always, involve

allied, coalition, or HN military forces. Under network engagement, the MNF would be a

key element of the friendly network. The MNFC needs to understand the MNFs’ role in

the friendly network and how to best enable other friendly partners to reach mission

objectives, as well how to leverage PN authorities and capabilities. As with friendly

partners in general, individual members of the MNF may have differing authorities and

Other Multinational Operations

V-9

capabilities that can affect how and in what ways they can partner with friendly, engage

neutral, and counter threat networks.

For more information on network engagement and countering threat networks, refer to JP

3-25, Countering Threat Networks.

9. Personnel Recovery

a. Personnel recovery (PR) is the sum of military, diplomatic, and civil efforts to

prepare for and execute the recovery and reintegration of isolated personnel. IAW DODD

3002.01, Personnel Recovery in the Department of Defense, PR is applicable to all DOD

personnel, including the military, DOD civilians, and CAAF. PR may occur through three

options (diplomatic, civil, or military) or through any combination of these options. In

multinational operations, PR may be a secondary task during NEOs and salvage operations.

In addition, planning for peacetime search and rescue (SAR) operations must be

considered.

b. The MNFC must make a careful assessment of each MNF nation’s PR capability,

restrictions, and procedures. Normally, each nation and/or component is responsible for

conducting its own PR missions. However, participants may possess a variety of PR

methods ranging from civil SAR to dedicated combat SAR. Therefore, the MNFC may

designate an individual or establish an organization and procedures to coordinate this

mission among all participants.

c. Personnel Recovery Coordination Center (PRCC). The MNFC should create a

PRCC to act as the MNF focal point for all personnel and equipment ready to perform PR

within the AO. The actual name of the PRCC will be based on the arrangement of the

participating nations and could be joint or multinational. PRCCs coordinate with all

component PR activities, including coordination with the joint personnel recovery center

(JPRC), if one has been established, and other component PRCCs. The MNFC should be

prepared to establish a JPRC if directed or if designated as the joint force supported

commander for PR. Further, the PRCC should be prepared to implement a PR plan and

conduct PR for assigned forces. Functions of the PRCC include:

(1) Coordinate PR operations, both within the MNF and with external

organizations.

(2) Advise the MNFC or designated component commander on PR incidents and

requests.

(3) Coordinate requests for augmentation to support recovery operations as

required.

d. PR operations may extend across national lines of responsibility. Operational

flexibility, interoperability, and multisystem redundancy are the primary factors in

successful PR operations. Commanders should know the PR capabilities available to

maximize unified action, achieve economy of force, and enhance SA to enable those most

Chapter V

V-10 JP 3-16

capable of executing the five PR execution tasks: report, locate, support, recover, and

reintegrate.

See JP 3-50, Personnel Recovery, and DODD 3002.01, Personnel Recovery in the

Department of Defense, for additional information on PR. For NATO-specific doctrine,

see AJP-3.7, Allied Joint Doctrine for Recovery of Personnel in a Hostile Environment.

VI-1

CHAPTER VI

OTHER CONSIDERATIONS

1. Assessment

a. Assessment is a continuous process that measures the overall effectiveness of

employing joint/multinational force capabilities during military operations. There are a wide

range of assessment tools and methods to gauge the ability of the military instrument of

national power to prepare for and respond to national security challenges across the levels of

warfare and in all joint/multinational functions. It involves monitoring and evaluating the

current situation and progress toward mission completion. Assessments can help determine

whether a particular activity contributes to progress with respect to a set of standards or desired

objective or end state. Assessments also help identify the current status of dynamic systems

(e.g., weather, the economy, the political and security climate) and can help anticipate the

future status.

Refer to CJCSI 3100.01, Joint Strategic Planning System, for more information on Chairman

of the Joint Chiefs of Staff (CJCS) assessments. Refer to JP 5-0, Joint Planning, for more

information on staff estimates, integration of assessment during planning, and conducting

operation assessment during execution.

b. Theater strategic and operational-level assessments provide a methodology for

JFC/MNFCs and Services to adjust planning and execution to be more effective, match the

dynamic OE, and better identify their risks and opportunities. At the strategic level, the CJCS

conducts deliberate and continuous assessments, such as the Annual Joint Assessment and

the CJCS’s Readiness System, respectively. Operation assessment refers specifically to the

process the JFC/MNFCs and staff use during planning and execution to measure progress

toward accomplishing tasks, creating conditions or effects, and achieving objectives.

Assessment begins during mission analysis when the commander and staff consider what to

measure and how to measure it. There is no uniform method by which joint/multinational

forces assign management responsibilities for the assessment. Assessment is an entire staff

effort, requiring expertise and inputs across the staff. Formalizing assessment roles and

responsibilities in each command is essential to an effective and efficient process.

c. To the maximum extent permitted by information-sharing policy constraints, it is

imperative in multinational operations that the design, effort, and product of operation

assessment be shared by all contributing nations.

Refer to JP 5-0, Joint Planning, for more information on operation assessment (e.g., integration

of assessment design during the planning effort, roles and responsibilities, tenets of an effective

assessment, the assessment process, and development and use of assessment indicators). Refer

to JP 3-60, Joint Targeting, for more information on combat assessment.

2. Intelligence

a. In most multinational operations, the JFC will be required to issue intelligence

collection requirements to share intelligence with and coordinate receiving intelligence

Chapter VI

VI-2 JP 3-16

from foreign military forces whenever possible within security guidelines. In some

circumstances, the JFC will need to seek authority to go outside the usual political-military

channels to provide information to NGOs. Unique intelligence policy and dissemination

criteria may have to be tailored to each multinational operation.

b. A multinational intelligence center is necessary for merging and prioritizing the

intelligence requirements from each participating nation and for acquiring and fusing all

the nations’ intelligence contributions. Likewise, the center should coordinate the

intelligence collection planning and intelligence, surveillance, and reconnaissance

operations of each nation. Designating a single director of intelligence for the

multinational command may assist in resolving potential disagreements among the

multinational members.

c. Every interrelated intelligence operation of the intelligence process—planning and

direction, collection, processing and exploitation, analysis and production, dissemination

and integration, and evaluation and feedback—is substantively affected in multinational

operations. In some international operations or campaigns, JFCs will be able to use ISAs

(e.g., NATO STANAG) as a basis for establishing rules and policies for conducting joint

intelligence operations. Since each multinational operation will be unique, such

agreements may have to be modified or amended based on the situation. The following

general principles provide a starting point for creating the necessary policy and procedures

(see Figure VI-1).

(1) Maintain Unity of Effort. Each nation’s intelligence personnel need to view

the threat from multinational, as well as national, perspectives. A threat to one element of

an MNF must be considered a threat to all MNF elements.

(2) Make Adjustments. There will be differences in intelligence doctrine and

procedures among the coalition partners. A key to effective multinational intelligence is

the willingness to make the adjustments required to resolve significant differences such as:

(a) How intelligence is provided to the commander, the commander’s staff,

and forces.

(b) Procedures for sharing information among intelligence agencies.

Figure VI-1. Multinational Intelligence Principles

Multinational Intelligence Principles



Maintain unity of effort.

Make adjustments.

Plan early and plan concurrently.

Share all necessary information.

Conduct complementary operations.

Other Considerations

VI-3

procedures.

(d) Administrative requirements.

(3) Plan Early and Plan Concurrently. National command channels determine

what intelligence may be shared with the forces of other nations early in the planning

process. NATO and the Republic of Korea, via the Combined Forces Command, have

developed and exercised intelligence policies and procedures with the US that provide

examples of how multinational planning can be done in advance.

(4) Share All Necessary Information

(a) MNF members should share all relevant and pertinent information and

intelligence about the situation and threat without violating national disclosure policy

(NDP). They should also write and/or classify material for release to as many of our

multinational partners as possible. However, avoid sharing information about intelligence

sources and methods with multinational members unless approved by the appropriate

authority.

(b) FP is a mission inherent to any commander, and intelligence support to

that mission is critical. Every effort must be made to share any data that could impact the

commander’s FP mission.

procedures for separating intelligence from sources and methods. To the greatest extent

possible, this information should be disseminated using a tear line to keep information

above the tear line (compartmented data) and disseminate the intelligence below to

facilitate intelligence sharing. Such considerations warrant increased emphasis for forces

operating at the tactical level, where timely information is especially critical to mission

success, as well as prevention of friendly fire and undesired collateral damage. When

feasible, intelligence production organizations operating in a multinational environment

should use the principle of “write for release” to facilitate timely dissemination of

information to interagency, international, nongovernmental, or multinational partners.

(d) The joint force J-2 should obtain the necessary authorizations from the

foreign disclosure officers (FDOs) and designated intelligence disclosure officials from the

CCMD J-2 or FDO as soon as possible.

(5) Conduct Complementary Operations

(a) Intelligence efforts of the nations should be complementary. HN security

services’ capabilities, for example, may contribute significantly to FP. Regional partners

will likely have unique cultural adeptness that make them more effective in disciplines,

such as human intelligence, open-source intelligence, and counterintelligence, and some

military partners may have more open intelligence exchanges with their respective law-

enforcement counterparts. Furthermore, planning with friendly nations to fill shortfalls,

especially linguist requirements, may help overcome such limitations.

Chapter VI

VI-4 JP 3-16

(b) All intelligence resources and capabilities should be made available for

application to the whole of the intelligence problem. Establishing a multinational

collection management element is essential for planning and coordinating multinational

collection operations.

See JP 2-0, Joint Intelligence, for further details.

d. Geospatial Intelligence Geodetic Datums. Multinational operations require

interoperable geodetic data, applications, and data exchange capabilities. Whenever

possible, participants should agree to work on standard vertical and horizontal datums that

allow products to have common datum reference points. A multinational geodetic

reference plan should be developed and used to coordinate all products for use by member

forces, including access approval procedures and blending assets into a cohesive

production program.

See JP 2-03, Geospatial Intelligence in Joint Operations, for further details.

e. Biometrics. Biometrics—the process of recognizing an individual based on

measurable anatomical, physiological, and behavioral characteristics—is an enabling

technology used across multiple joint functions; applicable in movement and maneuver,

UNITED STATES CENTRAL COMMAND

COALITION INTELLIGENCE CENTER

“We were established in 2001 at the beginning of Operation ENDURING

FREEDOM. Under J-2 [intelligence directorate of a joint staff], we were

established for the purpose of facilitating and sharing of intelligence. In

the beginning, there was some operational tactical intelligence that we

shared with our coalition members and that information was limited to

just Afghanistan. But as the mission expanded into Iraq, we also had to

expand our purpose of sharing and discussing information while

establishing analytical teams to address specific questions from both

the Coalition and the US. Our Center is the forum where most of those

discussions take place.

The Coalition countries are all invited to have membership in the

Intelligence Center. We put in perspective the nation’s involvement with

operations. Not every country has an intelligence interest and not every

country has an intelligence officer assigned to United States Central

Command (USCENTCOM). Those that do have an intelligence officer

assigned at USCENTCOM will participate with us on a daily basis. Those

that do not have an intelligence officer, but do have intelligence

interests, usually go through their country’s senior national

representative or through the operations officer to consult with us and

discuss with us issues of common interest.”

Colonel Evilio Otero, Jr.

Chief, Coalition Intelligence Center

US Central Command Coalition Villa

Other Considerations

VI-5

sustainment, and protection; and applicable to other joint functions such as crosscutting

many intelligence-related mission sets and functions. MNFs are employing biometrics in

operations with increasing frequency and improving results to identify known threats,

disrupt adversary freedom of movement within the populace, link people to events, and

verify local and third-country nationals accessing MNF bases and facilities. PN and HN

laws and social sensitivities must be considered in establishment of coalition biometric

objectives and standards; staff legal and religious advisement can be especially useful in

this particular area.

f. Other Considerations. It is important to consider the ramifications of labeling

information about an OA as intelligence, especially when interacting with nonmilitary

organizations. Therefore, unclassified facts and/or data should be referred to as

information to facilitate its dissemination among members of the MNF for the purpose of

fostering mutual interests in resolving or deterring conflict or providing support.

3. Information Sharing

a. NDP. The release of classified information to multinational partners is governed

by NDP. Detailed guidance must be provided to the senior US commander by the chain of

command IAW National Security Decision Memorandum 119, Disclosure of Classified

United States Military Information to Foreign Governments and International

Organizations, and NDP-1, National Policy and Procedures for the Disclosure of

Classified Military Information to Foreign Governments and International Organizations.

Detailed, written guidance may be supplemented with limited delegation of disclosure

authority where appropriate (e.g., combined/joint FP purposes). However, the senior US

officer needs to become personally concerned with the issues of intelligence sharing and

releasing of information early in the process and clearly state the commander’s

requirements. Commanders should promote information sharing and inclusion of liaison

officers (LNOs) in secured systems as much as possible. Commanders should establish

“Coalition forces continue to play a vital role in current, and likely all future

operations in the US Central Command (USCENTCOM) area of responsibility

(AOR). The information sharing challenge is extremely complicated with

multiple coalitions, international organizations, and alliances participating in

different operations. Many nations participate in multiple communities. These

include the 66-nation Global Counterterrorism Forces, the 51-nation

Multinational Coalition Forces-Iraq, the 11-nation Combined Naval Forces

Central Command, the 33-nation International Security Assistance Forces for

Afghanistan, the 26-member nation North Atlantic Treaty Organization, as well

as the traditional 6 Gulf Cooperation Council member states and our 25

regional AOR countries. USCENTCOM needs to be able to electronically

share information with these various communities of interests quickly and

efficiently to successfully conduct coalition operations.”

Jill L. Boardman/Donald W. Shuey

Combined Enterprise Network Theater Information System;

Supporting Coalition Warfare World-Wide

April 2004

Chapter VI

VI-6 JP 3-16

and promulgate clear NDP-compliant guidance to subordinate elements that not only

permit but promote, as appropriate, flexibility to share information where and when it is

needed. A commander-led culture focused toward sharing as appropriate will go a long

way toward developing mutual trust and operational effectiveness.

b. The NDP is implemented within DOD by DODD 5230.11, Disclosure of Classified

Military Information to Foreign Governments and International Organizations, and CJCSI

5221.01, Delegation of Authority to Commanders of Combatant Commands to Disclose

Classified Military Information to Foreign Governments and International Organizations.

JP 2-0, Joint Intelligence, contains a detailed discussion of sanitization and foreign

disclosure procedures.

c. Military information and intelligence should be derived and crafted to maximize

recipient eligibility. Such principles as accessibility, timely electronic dissemination, and

scalable classification levels (e.g., tear lines) are just a few of the multiple techniques to

enhance sharing. Intelligence and information should be written for release at the lowest

possible classification level and given the fewest possible dissemination restrictions within

foreign disclosure guidelines. This is important to maintain the integrity of a common

holistic understanding of the OE. Other nations are also likely to have access to their own

national intelligence and should be encouraged to share across MNFs.

d. Although there may be no clearly defined threat, the essential elements of US

military operations should be safeguarded. The uncertain nature of the situation, coupled

with the potential for rapid change, requires operations security (OPSEC) be an integral

part of any operation. OPSEC planners must consider the effect of media coverage and the

possibility that coverage may compromise essential security or disclose critical

information.

See DODD 5205.02, DOD Operations Security (OPSEC) Program, for more information.

e. The success of joint and multinational operations and interagency coordination

hinges upon timely and accurate information and intelligence sharing. Information sharing,

cooperation, collaboration, and coordination are enabled by an intelligence and information

sharing environment that fully integrates joint, multinational, and interagency partners in a

collaborative enterprise. The JFC participating in the coalition or alliance tailors the policy

and procedures for that particular operation based on national and theater guidance. A JFC

participating in a coalition or alliance should tailor the policy and procedures for that

particular operation based on theater guidance and national policy as contained in NDP-1,

National Policy and Procedures for the Disclosure of Classified Military Information to

Foreign Governments and International Organizations. NDP-1 provides policy and

procedures in the form of specific disclosure criteria and limitations, definition of terms,

release arrangements, and other guidance.

f. Information sharing, including intelligence information, plays a critical role in the

success of any multinational endeavor. Analysis of recent operational lessons learned

emphasizes that multinational operations are much more effective, efficient, and safe when

Other Considerations

VI-7

information is shared by all the forces involved. The ability to exchange tactical

information is especially critical for forces during execution. Information must flow

quickly from sensors to fusion processes to analysts and decision makers and ultimately to

those who execute actions. Some specific insights and recommendations from these

operational lessons learned include:

(1) Develop categories/groups in which information can be released or disclosed.

Release is the physical transfer to another nation. With disclosure, the owning or

originating nation maintains control, but the information may be visually or orally

displayed to another nation.

(2) Address information disclosure restrictions before major planning efforts and

especially before execution.

(3) Identify, delegate, and announce release authority early and to all concerned.

(4) Identify and pre-stage classified documents (e.g., Adaptive Planning and

Execution System plans and orders) to be made releasable and distributed to multinational

partners at the right time.

g. Communications and Processing Architectures. Due to the perishable nature of

pertinent, releasable intelligence, it is imperative that a system be devised for and by the MNF

members that is capable of transmitting the most important intelligence rapidly to units.

Frequently, this system relies on the distribution of standardized equipment by one country’s

forces to ensure commonality. The system must also be firmly rooted in a network of coalition

LNOs at major intelligence production or communication centers, to provide redundant

intelligence communications channels to their parent nation and to determine and obtain

intelligence uniquely suited for that nation’s mission in time to exploit it.

(1) Several nations maintain and utilize separate classified Internet and

communications systems. For US forces, the SECRET Internet Protocol Router Network

(SIPRNET) is the primary classified architecture solely for US-specific communication

and tasks not suitable for execution in a multination information-sharing environment. The

same can be expected of US partners and allies utilizing their respective national classified

systems for internal use.

(2) Unclassified networks are an operational imperative. In addition to classified

networks, an unclassified network using the Internet (commercially encrypted if available)

is a communications backbone for multinational operations. To enable timely and efficient

information sharing with nonmilitary organizations, the MNF should provide these

organizations with access to current information on unclassified networks. MNFs should

be aware that many NGOs/international organizations are hesitant to use DOD-sponsored

information exchange Websites to avoid the appearance of close association with USG

entities. In such situations, MNFs should first coordinate regarding these concerns and

then be prepared to “push” information to specified organizational Websites.

(3) MNF networks such as the BICES [battlefield information collection and

exploitation system], if established, are able to provide responsive information sharing

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VI-8 JP 3-16

between the MNFs, but care must be taken to avoid the inadvertent sharing of classified

information that has not been sanitized for release to other nations. Detailed planning for

information sharing should be accomplished well in advance of operations with MNFs.

This may be very complicated based on the multiple classification levels allowed and by

the nature of PNs involved in the operation. Some PN countries have established

intelligence-sharing agreements with the US STONEGHOST network. It is an encrypted

communications network designed to support collaboration and intelligence sharing

between the US defense intelligence community and its Commonwealth allies during

combat operations. Other MNFs have long-standing relationships with US Services and

intelligence agencies, but release of US-produced intelligence is subject to review by the

FDO. The United States Battlefield Information Collection and Exploitation System (US

BICES) and United States Battlefield Information Collection and Exploitation System

Extended (US BICES-X) are capabilities that provide the US intelligence community a

mechanism for sharing intelligence with PNs who have the appropriate agreements with

the US. By mutual agreement, US BICES also allows nations to use the system for bi-

lateral or multilateral intelligence sharing by implementing additional security measures.

US BICES-X services in support of United States Indo-Pacific Command

(USINDOPACOM) are known as the Asia-Pacific Intelligence Information Network.

Within United States Central Command’s (USCENTCOM’s) area of responsibility, the

system is referred to as the USCENTCOM Partner Network. US BICES-X is implemented

with PNs or a grouping of nations in alignment with CCMD requirements and the

appropriate policy, security, and technical agreements with the PN(s). The use of cross-

network information security solutions should be used whenever possible to avoid the

inadvertent sharing of information with networks external to those accessible by the

collective membership of a specific MNF. Often, LNOs can bridge the culture gap between

what multinational commanders/staffs say and what they mean.

(4) The MNF networks will provide responsive information sharing between the

MNF at both the unclassified level and the classified level. Mission partner information

sharing provides an operational framework for planning, preparation, and execution of

operations with mission partners supported by effective information sharing and data

exchange. The mission partner information sharing framework integrates varied partner

doctrine, organization, training, materiel, leadership and education, personnel, and

facilities and policy approaches to enable mission partners to rapidly establish an

information sharing and data exchange network at an agreed security classification level

and in a common language.

For more information on mission partner information sharing, see DODI 8110.01, Mission

Partner Environment (MPE) Information Sharing Capability Implementation for the DOD.

h. Coordination. Within alliances, it is common for intelligence procedures,

practices, and standardized agreements to be established and tested prior to actual use.

Coalitions, however, are frequently created and disbanded relatively quickly. Coalition

participants typically compensate for the lack of standardization through coordination

between national leadership and prospective forces. As mentioned above, coordinating the

elements of communications architectures is essential. Additional areas requiring

extensive coordination include the friendly use of the EMS, use of space and/or space

Other Considerations

VI-9

assets, geographical location of intelligence collection assets, and targets of intelligence

collection. Intelligence processing centers should be multinational in character, serving

the MNFC but also recognizing intelligence that has value in support of national missions.

However, establishment of these multinational processing centers, particularly in the case

of ad hoc coalitions, will require extensive personal involvement and support from the

MNFC and the corresponding nation to make this a functioning reality. The MNFC priority

intelligence requirements should serve as the milestones to fully focus the intelligence

effort. The answers can only be gained through effective coordination at all levels.

i. Additional national and DOD-level references on information sharing useful to

enhancing the information environment in support of joint and/or multinational operations

include the National Strategy for Information Sharing, United States Intelligence

Community Information Sharing Strategy, DOD Information Sharing Strategy, and DOD

Information Sharing Implementation Plan. Additionally, the Defense Information Systems

Agency has a Multinational Information Sharing Program Office with a mission to manage

current multinational information sharing efforts, provide the standard multinational

information sharing services and applications for future DOD information networks, and

facilitate information sharing among DOD components and eligible foreign nations in

support of planning and execution of military operations.

4. Communications

a. Communications are fundamental to successful multinational operations. Planning

considerations include frequency management; equipment compatibility; procedural

compatibility; cryptographic and information security; identification, friend or foe; and

data-link protocols. MNFCs should anticipate that some forces from MNF will have direct

and near-immediate communications capability from the OA to their respective national

leadership. This capability can facilitate coordination of issues, but it can also be a source

of frustration, as leaders external to the OA may be issuing guidance directly to their

deployed national forces. Many communications issues can be resolved through

equipment exchange and liaison teams. When exchanging equipment, special

consideration must be paid to the release of communications security (COMSEC) devices,

as well as the level and nature of classified information (material) released to individual

countries per NDP and any applicable exceptions. The ability of the MNF to exchange

information at all levels (i.e., strategic, operational, and tactical) should be a consideration

during planning and throughout execution. As difficult as communications are among all

partners in the force during the operation, the problem is compounded when

communications are degraded or denied and limited compatible resources are stretched

even further.

b. Communications requirements vary with the mission, size, composition,

geography, and location of the MNF. It is critical that operations and communications

planners begin the coordination process early to ensure both US and MNF communication

requirements are identified and sourced prior to operations. Interoperability is often

constrained by the least technologically capable participant. Effective communications

support enables control over diverse, widely dispersed air, maritime, land, and space

elements. Access to both military and commercial satellites should be an early planning

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VI-10 JP 3-16

requirement to support widely dispersed elements. The MNFC should address the need for

integrated communications among all participating forces early in the planning phase of

the operation. MNF planning and technical communications systems control centers

should be established as soon as possible to coordinate all communications.

For more information regarding frequency management, refer to JP 6-01, Joint

Electromagnetic Spectrum Management Operations.

c. In all multinational operations, a broadband, unclassified network will be a critical

requirement for multinational coordination within the MNF OA. The international

humanitarian community and affected nations’ governments and militaries will normally

use unclassified, commercially encrypted networks (such as the All Partners Access

Network [APAN]) as their primary collaboration and coordination tool. US forces should

be able to integrate with MNFs to support collaboration needed to conduct multinational

operations. US forces should expect to use SIPRNET solely for US-specific

communication and tasks not suitable for execution in a multination information-sharing

environment. US forces in the USCENTCOM area of responsibility should expect to use

SIPRNET Release to United States of America, Five Eyes (or REL TO USA, FVEY) when

execution involves the Five Eyes nations. Satellite access to broadband Internet capability

should be planned as an operational necessity, if not currently available within the MNF

OA.

d. LNO teams should be sent to other MNF HQ to facilitate integration of operations.

These LNO teams should deploy with sufficient communications equipment to conduct

operations with their respective HQ. Consideration should also be given to possible

degradation of communications due to the extended distances over which the MNF may

operate and the impact of enemy exploitation of the electromagnetic spectrum. Urban

operations present other difficulties due to interference from physical structures or

frequency overlaps. Planning for communications support also includes provisions that

enable execution of required communications under adverse conditions. Additionally, US

law requires prior international and implementing agreements defining quid pro quo

payments for allied use of the Defense Information Systems Network and military satellite

communications assets.

e. Secure C2 systems are vital to the execution of MNF operations to avoid conflict

and increase mutual understanding. The objective of secure C2 interoperability within an

MNF is to develop greater cooperation through improved technical capability, system

interdependence, and SA in the OA.

f. Communications Security Release to Foreign Nations Policy. Disclosing,

releasing, and transferring products or associated COMSEC information to foreign

governments is governed by DODI 8523.01, Communications Security (COMSEC).

Detailed guidance outlining criteria for release of information security products, services,

and information to foreign governments is provided in CJCSI 6510.06, Communication

Security Releases to Foreign Nations.

Other Considerations

VI-11

g. Under CJCSI 6510.06, Communication Security Releases to Foreign Nations, the

CJCS validates CCMD interoperability requirements to release COMSEC products or

associated COMSEC information to any foreign government. These secure C2

interoperability requirements originate from the theater Service components.

h. Release of COMSEC to foreign governments is permitted when there is a validated

interoperability requirement. Specifically, the GCC and the MNFC should have or develop

agreements on cryptographic, communications, and/or automated data processing security

issues among all multinational components and understand where capability gaps exist,

along with the implication of those gaps.

5. Joint Fires

a. Integrating and synchronizing planning, execution, and assessment is pivotal to the

success of effective joint fires. Understanding the objectives, intentions, capabilities, and

limitations of all joint, interagency, and multinational partners in the OE may enable the

means to accomplish tasks and create effects.

b. Effective fire support coordination in multinational operations may require additional

efforts due to differing national priorities and the risk of friendly fire, civilian casualties, and

collateral damage. To maximize the fires of the MNF and to minimize the possibility of

friendly fire, the MNFC should ensure fire support coordination throughout the MNF is

developed. These special arrangements may include communications and language

requirements, liaison personnel, and interoperability procedures. Standard operating

procedures should be established for fire support to synchronize forces and optimize mission

partner capabilities.

See JP 3-09, Joint Fire Support, for more details. For NATO-specific doctrine, see AJP-3.9,

Allied Joint Doctrine for Joint Targeting.

6. Host-Nation Support

a. HNS will often be critical to the success of a multinational operation. In general,

centralized coordination of HNS planning and execution will help ensure HNS resources are

allocated most effectively to support the MNF’s priorities. The more limited HNS resources

are in the OA, the greater the requirement for centralized management.

b. NATO doctrine recognizes the importance of centralized HNS coordination and

gives NATO commanders the authority to:

(1) Prioritize HNS requirements.

(2) Negotiate HNS agreements, on behalf of nations, with an HN.

(3) Coordinate HNS allocation with troop contributing nations and an HN.

c. In US-led multinational operations, nations typically negotiate their own HNS

agreements. Nevertheless, participating nations should coordinate their HNS arrangements

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VI-12 JP 3-16

with the MNFC, who in turn should coordinate HNS allocation with the HN. The MNFC

should involve participating nations in the negotiation of either commonly worded separate

bilateral agreements for target audiences or a single agreement applicable to the entire

MNTF.

d. Host-Nation Support Coordination Cell (HNSCC). To assist the MNFC in HNS

coordination activities, an HNSCC may be established. One of the most important functions

of the HNSCC is to assist the MNFC and legal counsel in developing technical arrangements

(TAs) that involve sustainment matters such as infrastructure, financial management,

purchasing and OCS, engineering, environment, hazardous material storage, landing and port

fees, medical operations and support, border customs, tariffs, and real estate.

(1) Staffing. The HNSCC should be staffed with specialists familiar with

developing and executing HNS agreements. In addition, consideration should be given to

including representatives of the HN within the HNSCC to:

(a) Facilitate coordination and identification of resources for potential use by

the MNTF.

(b) Provide interpretation and translation services to the HNSCC staff.

(2) Information Requirements. To effectively plan and coordinate HNS

allocation, the HNSCC needs up-to-date information on HNS logistic capabilities and

ongoing HNS allocation to MNTF contingents throughout the operation. To ensure it

receives such information, the HNSCC must maintain close contact with the HN and with

MNTF contingents.

(3) Coordinating Activities. In conducting its operations, the HNSCC

coordinates closely with appropriate CMOC organizations, the MJLC (if established), and

the HN’s representatives.

e. HNS is generally furnished IAW an agreement negotiated prior to the start of an

operation. HNS agreements are commonly established through diplomatic channels in

bilateral and multilateral agreements with the HN. These are normally umbrella-type

agreements that are augmented to support contingencies by TAs detailing the specific support

to be provided and the type/amount of reimbursement.

f. During crises, it may be necessary for the GCC to request authority to negotiate

bilateral HNS agreements for the purpose of providing logistic assistance to other nations.

Such negotiations are conducted in coordination with the Joint Staff, the Office of the

Secretary of Defense, and DOS and in compliance with applicable US law and policy.

Alternatively, the MNFC may be authorized to negotiate HNS agreements on behalf of force

contributing nations, with their prior concurrence. This approach, which NATO doctrine

endorses, simplifies and streamlines the process and reduces the amount of time required to

put such agreements into place.

g. Available HNS Infrastructure. Analysis of the physical infrastructure in the HN

is critical to understanding force sustainability. MNTF logistic planners should evaluate

Other Considerations

VI-13

what facilities and services (such as government, law enforcement, sanitation, power, fuel,

and medical support) exist as viable support for local consumption and support of coalition

forces.

(1) First, assess the ability of the HN to receive MNTF personnel and equipment

(e.g., ports and airfields).

(2) Second, determine the HN’s transportation capabilities and systems to move

forces once they arrive in theater.

(3) Third, evaluate availability of HN logistic support capabilities.

(4) The impact of obtaining HNS on the HN’s national economy must also be

considered, along with possible environmental impacts upon HNs. These must be

recognized and addressed during the planning process.

(5) In addition, specific TAs in many areas (e.g., environmental cleanup, levying

of customs duties and taxes, hazardous material and/or waste storage, transit, and disposal)

may need to be developed to augment SOFAs that may have been concluded with HNs.

For more information on NATO HNS procedures, see AJP-4.5, Allied Joint Host Nation

Support Doctrine and Procedures.

7. Civil Affairs Operations

CA provide the military commander with expertise on the civil component of the OE.

The commander uses CA core competencies to analyze, evaluate, and influence the local

populace. As part of the commander’s CMO, CA conduct civil affairs operations (CAO)

that are nested within the overall mission and intent. CAO contribute significantly to

ensuring the legitimacy and credibility of the mission. The key to understanding the roles

of CAO and CA is recognizing the importance of leveraging each relationship between the

command and every individual, group, and organization in the OE to create a desired effect

and achieve the overall objectives. CA units can provide support to non-US units in

multinational operations. Planners coordinating CA support must realize the majority of

US CA units are in the Reserve Component and consider the mobilization timelines and

requirements to access these forces to support multinational operations.

a. Incorporating liaison and coordination procedures into CCPs, CONPLANs, and

OPLANs (especially in a CMO annex) will facilitate proper education, training, and

exercising between military and civilian personnel and assist the commander in

transitioning responsibility, when directed, to the appropriate organizations upon mission

completion. One method to facilitate unified action and conduct on-site interagency

coordination for CMO is to establish a CMOC. The CMOC serves as the primary

coordination interface for US forces, humanitarian organizations, international

organizations, NGOs, MNFs, and other USG departments or agencies. The CMOC

facilitates continuous coordination among the key participants with regard to CMO and

CAO. The CMOC serves as one of the primary coordination interfaces for US forces with

IPI and mission partners. A CMOC is tailored to the specific tasks associated with the

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mission and augmented by assets (e.g., engineer, medical, transportation) available to the

supported commander and mission partners. The CMOC facilitates continuous

coordination among the key participants with regard to CAO and in support of the

commander’s CMO plan to manage civil information, analyze civil considerations, and

develop civil inputs to the common operational picture. This occurs from tactical levels

to strategic levels within a given OA, depending on the level of the CMOC. With the

exception of the 95th CA Brigade Headquarters and its subordinate battalion

headquarters, Army CA units are still organized to provide the supported commander

the manpower and equipment to form the nucleus of the CMOC. The CMOC function

requires over-the-horizon and nontraditional communications capabilities to most

effectively conduct interagency collaborative planning and coordination, integrate

nonmilitary stakeholders to synchronize operations, and coordinate plans and

operations with the civil component of the OE.

b. CIMIC doctrine involves aspects of both CMO and interorganizational

cooperation as described in joint doctrine. Additionally, CIMIC teams are comprised

of a mixture of military and civilian members, much like a provincial reconstruction

team.

See JP 3-57, Civil-Military Operations, and AJP-3.4.9, Allied Joint Doctrine for Civil-

Military Cooperation, for additional information.

8. Health Services

The medical assets committed supporting multinational operations consist of health

service support and FHP capabilities that span the OE from point of injury/illness to

the appropriate role of care. It also includes health services with HN civil and military

authorities in support of stability activities and building partner capacity, to reestablish

or strengthen the HN infrastructure and governmental legitimacy. Components within

these capabilities are essential in the execution of multinational operations.

See JP 4-02, Joint Health Services, for further details.

9. Personnel Support

Military operations include peacekeeping, humanitarian assistance, and other

actions that involve managing complex crises and contingency operations. To

accomplish these missions, the Services must be prepared to operate in a multinational

environment. Personnel support for multinational operations remains a national

responsibility; however, CCDRs and subordinate JFCs operating as part of an MNF

should establish a SOFA, memorandum of agreement (MOA), and/or MOU regarding

personnel support between members of any alliance and/or coalition prior to the onset

of operations that clearly define JFC command authority over MNF personnel,

command relationships, and reporting channels.

For additional guidance on personnel support to joint operations, refer to JP 1-0, Joint

Personnel Support.

Other Considerations

VI-15

10. Public Affairs

a. US public affairs (PA) planners should work closely with operational planners from

other countries to ensure appropriate levels of synchronization and consideration of each

nation’s the objectives.

b. Commanders at all levels should proactively plan to both anticipate, and to the

maximum extent possible given OPSEC constraints, support media coverage for

multinational operations. Such support will typically be IAW the PA guidance established

in the OPLAN and potentially amended by DOD and CCMD direction based on emergent

conditions, as well as consideration of multinational sensitivities. Accurate media

coverage of US operations is generally a key component of the commander’s overall plan

to influence the behavior of relevant actors to achieve operational objectives and is a DOD

obligation under the DOD’s principles of information. PA advises the MNFC on the

implications of command decisions, actions, and operations on stakeholder and key public

perceptions.

The North Atlantic Treaty Organization (NATO) civil-military cooperation

(CIMIC) concept allows NATO members to operate independently in the

field while pursuing the common goals of investing in reconstruction of

the most critical areas of education, health, agriculture, small

infrastructure, security, and governance, while limiting or eliminating

duplication of effort and increasing cooperation between organizations.

During a 12-month period:

In the town of Ala Chapan outside Mazar-e Sharif, German International

Security Assistance Force (ISAF) CIMIC members working with the

German charity organization “German Forces helping children of the

developing world” completed construction and opened a high school

capable of serving 1,600 Afghan students.

In Logar Province, the Czech provincial reconstruction team (PRT)

continued to assist Afghan National Security Forces by training

members of the Afghan National Police in basic policing skills and

knowledge.

At Shamail Daria village, Spanish ISAF doctors held a medical clinic

arranged by the Spanish CIMIC unit in a building constructed by the

Spanish Cooperation for Development Agency.

Greek authorities provided significant funding for the Hungarian PRT

implementing CIMIC civilian development projects in Afghanistan’s

Baghlan Province aimed at training, education, and health with specific

focus on improving the situation of Afghan women and creating job

opportunities.

Various Sources

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(1) The speed and methods with which individuals and organizations can collect and

broadly disseminate information means that information about multinational activities and/or

operations quickly reach a global audience, creating an often difficult-to-counter first

impression about those activities/operations. Internet sites, social media and networks, text

messages, and cellular/satellite telephones are some of the means through which threat targets

and relevant actors can communicate with audiences globally in the information environment,

creating effects in the overall operational and security environments. This instantaneous

transmission of unfiltered, often incomplete, inaccurate, or intentionally biased information

makes the protection and leveraging of information a key consideration in all operational

planning, particularly with respect to PA operation.

(2) PA plans should leverage all aspects of public communication to achieve MNF

operational objectives. IAW the DOD principles of information, these plans should provide

for maximum disclosure of information, with minimum delay, consistent with OPSEC and

help ensure an atmosphere of trust between the MNF and legitimate reporters that encourages

accurate coverage of operations. Additionally, PA should have a basic understanding of

several specific subjects, such as weapons and capabilities that can create nonlethal effects and

CBRN effects, to answer questions appropriately and minimize reactions.

(3) In most multinational operations, one or more centers will be established to

support the media. Although the title may vary by operation depending on the command

structure, these centers are established to serve as the focal point for the interface between the

military and the media during operations.

(4) Responsibilities for establishing media ground rules and credentialing media are

developed and implemented through appropriate multinational command and staff channels.

Media outlets owned entirely or in part by governments or citizens of rival states might not

receive the same considerations as those working for outlets owned by governments or citizens

of friendly nations. Additionally, noncredentialed journalists may not be given the same access

to a combat zone as those who have credentials. They should be encouraged to register at the

appropriate information center.

(5) Credentialing is not intended to be a control measure or means to restrict certain

media outlets from access. It is primarily a method of validating individuals as journalists and

providing them with information that enhances their ability to report on activities within the

OA. Additionally, media must be credentialed to ensure they have official status under the

Geneva Conventions in the event of capture. Others covering military operations without such

credentials should be encouraged to register at the appropriate facility.

For US-specific doctrine, see JP 3-61, Public Affairs, for additional details. For NATO-

specific doctrine, see NATO Military Public Affairs Policy, available at

www.nato.int/ims/docu/mil-pol-pub-affairs-en.pdf.

11. Multinational Logistics

a. The effective use of military logistics capabilities in conflict, post-conflict, or

humanitarian crisis situations demands cooperation and collaboration with international

Other Considerations

VI-17

organizations, NGOs, and the private sector. As such, military commanders and their

logisticians tasked to support these complex support activities should consider the impact

of these additional agencies during their mission planning and while in the theater of

operations fulfilling their missions.

b. Successful multinational logistic operations are governed by several unique

principles. First, multinational logistic operations are a collective responsibility of

participating nations and the MNFC, although nations are inherently responsible for

supporting their forces. Nations are highly reluctant to give MNFCs complete authority

for logistics. Nevertheless, a second principle is that MNFCs should be given sufficient

authority over logistic resources to ensure the force is supported in the most efficient and

effective manner. Third, cooperation and coordination are necessary among participating

nations and forces, which should make use of multinational logistic support arrangements

to reduce the logistic footprint in the OA. Finally, synergy results from the use of

multinational integrated logistic support; to ensure this, the MNFC must have visibility of

the logistic activity during the operation.

c. Multinational operations have diplomatic and political factors. Generally, nations

are reluctant to commit forces early. In some MNFs, formal advance planning is

considered too sensitive for sharing. Thus, US logistics planners must work closely with

PNs to the extent possible in coordinating plans to support national decisions. Obtaining

early knowledge of the organic logistics support capabilities of forces provided by

participating nations and identifying the means to support their needs will be critical to

effectively supporting the total force. When the US is the LN, logistics planning must

consider unique logistic requirements of military forces from other nations. Some nations

may require the US to provide some logistics support to permit their forces to operate in

an expeditionary manner.

d. OCS is the process of planning for and obtaining supplies, services, and

construction from commercial sources in support of CCDR-directed operations.

(1) OCS can be a significant force multiplier, but it is only one of numerous

sources of support to the joint force. The supported GCC and subordinate JFCs should

“Fewer than 30 reporters accompanied the entire invasion force to Normandy,

France, on 6 June 1944. In contrast, more than 500 journalists appeared

within hours to cover combat operations in Grenada in 1983 and Panama in

1989. At the beginning of Operation DESERT STORM in 1991, more than

1,600 news media and support personnel were present, and some 1,500

reported on hurricane relief operations in Florida in 1992. Reporters provided

live television and radio coverage of the night amphibious landing that marked

the beginning of Operation RESTORE HOPE in Somalia in 1992 and the end

of the United Nations operation during Operation UNITED SHIELD in 1995.

More than 1,700 media representatives covered the initial phases of

peacekeeping operations in the American sector of Bosnia in 1996.”

Major Barry Venable, US Army, Military Review, January-February 2002

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judiciously consider the proper mix of different sources of support to include organic US

military support and nonorganic support sources, to include multinational military support,

HNS, and contracted support. Each of these sources of support has advantages and

disadvantages that should be carefully weighed by the JFC and subordinate Service

component commanders in order to determine the most appropriate source of support.

(2) The JFC and the US military lead contracting activity must be cognizant of

challenges and potential pitfalls on planning and executing OCS actions in a multinational

environment. Every effort must be made to arrange common contracting support, or at a

minimum, to share vendor information. Planning for and executing common contracted

support in an MNF is complicated by the lack of a commonly accepted contracting policy

and procedures. In any case, US military planners need to advocate for some sort of

contract support deconfliction, such as through a coordination mechanism similar to the

joint contract support board in major multinational operations where appropriate.

Commanders should consider establishing a requirement review board process to review,

approve, and prioritize major common contracted services.

e. Planning Considerations

(1) For any successful operation, it is necessary to understand the essential

concepts of military logistics. The following outlines the critical needs for close CIMIC,

and identifies the areas of potential logistical support, which could be provided by the

military logistics systems across the competition continuum. Some of the major friction

points are identified, as well as those areas that require improvement and/or areas for

further development to achieve a greater degree of national and multinational logistics

support.

(2) It is essential that the major contributing agencies, both military and civilian,

work together to create standing logistical policies and an agreed upon/shared logistical

doctrine that will allow for the development and continued enhancement of their

communications and collaborative partnership networks as an ongoing, day-to-day

business practice. These pre-existing logistical agreements and relationships are

imperative in order to have well-established LOCs and known procedural practices, based

upon a common collaborative doctrine, which brings their agencies and respective

resources and procedures together to meet the challenges, well in advance of a particular

crisis or mission.

(3) Though MNL capabilities can and will vary in scope and magnitude from

nation to nation, the fundamental provision of logistical support will, in general, be

composed of the provision of the following logistics functions that can be deployed/utilized

on both a national or international basis in varying degrees of magnitude:

(a) Inland surface, sea, air, and pipeline transportation networks and assets.

(b) Supply, distribution and storage facilities, and services.

Other Considerations

VI-19

(d) Engineering assets and services.

(e) Communications assets and services.

(f) Medical assets and services.

(g) Vehicle and aircraft maintenance.

(h) Management of OCS.

(4) Information exchange, not only between multinational military forces but also

with civilian counterparts, remains a significant impediment to overcome in conducting

interagency and MNL support missions.

(5) Some of the fundamental and key principles which need to be considered in

the planning and implementation of military logistics support are as follows:

(a) Noncombat-related/crisis resolution/FHA operations or missions will

likely be civilian-led with logistics support from the military (most likely transportation

assets initially) in high demand.

(b) There will be a requirement for early and high-level involvement by the

national and multinational civilian and military logistics organizations involved in the

mission.

established and institutionalized in advance of any mission, should include an active

dialogue and information sharing with national and international organizations and with

NGOs.

(d) HN logistical needs, capabilities, and concerns should be considered and

reflected in the planning and dialogue along with the use of HN power and related

infrastructure.

(e) The security and protection of logistics forces to provide assured

sustainment.

(6) Establishing an NSE

(a) An NSE provides logistic support to MNFs, as well as to national forces.

NSEs are located geographically to best support the force and sited to take advantage of

air, rail, and/or sea LOCs. In cases where the MJLC (or equivalent) has real estate

management responsibility, nations desiring to locate NSEs in the MNFC’s OA must

coordinate with both the MJLC and the HN for final site approval. This is critical in those

areas with limited air and seaports of debarkation in which several nations may be

competing for limited available space or facilities. NSEs from several nations may be

collocated to achieve economies and efficiencies. Some nations may find it especially

advantageous to form a combined NSE.

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(b) NSEs are national activities that remain under control of national

authorities—not the MNFC. US NSEs will normally be under direct command of their

respective Service component commander. In exceptional cases, the US NSE may be a

logistically focused JTF under OPCON to the senior JTF commander. Both scenarios are

consistent with the practice of most nations participating in a multinational operation to

designate a national commander in-theater to which the NSE normally reports. In such

cases, the national commander retains national control over all national units and other

elements not transferred under OPCON or TACON of the MNFC.

NSEs are expected to coordinate and cooperate fully with the appropriate MNF logistic C2

organization and with the HN. It is incumbent upon the NSEs to provide liaison personnel

to logistic organizations, such as the MJLC, LN, role specialist nation (RSN), multinational

integrated logistic unit, joint logistics support group, or third-party logistic support

services, in order to establish and maintain the appropriate relationships.

f. The joint logistics enterprise (JLEnt) is a multitiered matrix of key global logistics

providers cooperatively structured through an assortment of collaborative agreements,

contracts, policy, legislation, or treaties utilized to provide the best possible support to the

JFC or other supported organization. The JLEnt may also include multinational partners

and international organizations. Participants operate across the strategic, operational, and

tactical levels and many are affiliated with either supported or supporting commands and

operate under a variety of command relationships. The JLEnt is interconnected among

global logistics providers, supporting and supported organizations and units, and other

entities. Knowing the roles, responsibilities, relationships, and authorities of JLEnt

partners is essential to planning, executing, controlling, and assessing logistics operations.

JLEnt partners must collaborate to ensure the coordinated employment and sharing of

capabilities and resources. Global logistics providers manage end-to-end processes that

provide capabilities to the supported CCDR to fulfill requirements.

Additional guidance on the JLEnt can be found in JP 4-0, Joint Logistics.

Additional guidance on multinational logistics can be found in Appendix D, “Multinational

Logistics;” Appendix E, “Commander’s Checklist for Logistics in Support of Multinational

Logistics;” JP 4-0, Joint Logistics; JP 4-09, Distribution Operations; and JP 4-10,

Operational Contract Support. For specific NATO doctrine, see AJP-4, Allied Joint

Logistic Doctrine, and other AJPs in the 4 series. For a detailed discussion on JLEnt

visibility, see JP 4-0, Joint Logistics.

12. Meteorology and Oceanography

The ability of commanders to anticipate and exploit meteorological and oceanographic

(METOC) effects on multinational and adversary military capabilities in the OE is a

cornerstone of successful multinational operations. It is essential to address differences in

language, techniques, and data formats of multinational partners as soon as possible to

achieve interoperability and best use of METOC capabilities for the MNF. The MNFC

should designate a lead multinational METOC officer to coordinate all METOC activities

Other Considerations

VI-21

and interoperability issues in the theater. The lead METOC officer must also ensure the

integration of accurate, timely, and relevant predictive assessments of METOC effects

throughout planning and execution. This enables MNFC's situational understanding, risk

management, and decision making to achieve a decisive advantage over the adversary.

Knowledge of the comparative differences between predictive METOC effects on

multinational and adversary capabilities enables MNFCs to achieve information

superiority, exploit favorable METOC windows of opportunity more rapidly than the

adversary, and employ capabilities that enhance probability of mission success.

See JP 3-59, Meteorological and Oceanographic Operations, for additional details.

13. Environmental

a. Environmental considerations should be integrated in multinational operations. To

the extent practicable and consistent with mission accomplishment, commanders should

take environmental factors into account during planning, execution, and conclusion of a

multinational operation. Commanders should also clearly identify guidance that may be

different from the normal practices of the member nations and obtain agreement from

participating nations. Besides agreeing on common objectives for the operation, the

MNF’s national component commanders should reach some understanding on

environmental protection measures during the operation, with particular emphasis at points

of transition. Failure to accomplish this may result in misunderstandings, decreased

interoperability, and a failure to develop and implement a successful environmental annex

and plan for the operation. Additionally, the failure to consider environmental impacts on

the HN could result in an erosion of acceptance for the MNF within the HN.

b. Environmental considerations include, but are not limited to, the following:

(1) Air pollution from ships, vehicles, aircraft, and construction machinery.

(2) Cleanup of contingency locations and other occupied areas to an appropriate

level.

(3) Protection of endangered species and marine mammals in the OA.

(4) Environmental safety and health.

(5) Hazardous material management.

(6) Hazardous waste disposal.

(7) Medical and infectious waste management and disposal.

(8) Natural and cultural resource protection.

(9) Noise abatement, including noise from aircraft operations.

Chapter VI

VI-22 JP 3-16

(10) Pesticide, insecticide, and herbicide management to control non-point

pollution.

(11) Resource and energy conservation through pollution prevention practices.

(12) Solid waste management and disposal.

(13) Oil and hazardous substance spills prevention and controls.

(14) Water pollution from sewage, food service, and other operations.

For a further discussion of environmental considerations, refer to JP 3-34, Joint Engineer

Operations, and AJP-3.12, Allied Doctrine for Engineer Support to Joint Operations.

14. Transitions

Transitions are critical to multinational operations. In general, transition could be the

transition from one type of operation to another, the transition between the various phases

of an operation, the transition of a specific function or service from one organization to

another (i.e., logistics), or the transition of authority for the effort from one organization to

another (i.e., JTF to MNF or MNF to international organization/HN).

a. Transitioning to Multinational Operations

(1) Transitioning from a US Joint Operation to a Multinational Operation.

The US may find it necessary to initiate military action before an international consensus

develops (such as Operation IRAQI FREEDOM). Following the development of

international support, a multinational operation, conducted by an alliance or a coalition,

possibly under UN or NATO management, may be authorized.

(2) Transitioning from a UN Operation to a Multinational Operation. In

transitioning from a UN operation to another multinational operation, as in the transition

from the United Nations protection force (UNPROFOR) to NATO’s Implementation Force

in Bosnia, the UN may remain the lead agency for humanitarian assistance within the OA.

In this case, the MNFC should be prepared to consider requests for assistance from

international organizations and NGOs in accomplishing their humanitarian mission. A UN

representative HQ organization should remain in the area and serve as the coordinating

point of contact for possible assistance requests.

(a) The incoming MNFC should use the intratheater UN infrastructure and

organizations to facilitate early development and establishment of the new MNF.

(b) Essential to the successful transition is the development of a cooperative

environment between the UN and the new MNF. If a UN force or HQ is withdrawing from

the OA, the new MNF should negotiate the transfer of materiel and infrastructure/facilities

with the UN commander as appropriate. This procedure would apply in reverse should a UN

force relieve another MNF. In addition, agreements between the UN and the MNF are

Other Considerations

VI-23

necessary to coordinate the shared use of specified resources. Claims relating to incidents

occurring prior to the MNF assuming command of operations are the responsibility of the UN.

the appropriate levels to coordinate administrative, financial, and logistic matters.

(d) A critical component of the transition is the reorganization, certification,

and reflagging of possible UN units, including logistic forces, to the MNFC.

(e) In the past, the US, as a member of an alliance or coalition, has been

called upon to plan for extracting UN peacekeeping forces from threatening situations, as

was the case with UNPROFOR in the Balkans. In this kind of operation, normal logistic

support for threatened UN forces would likely be disrupted and the US might be required

to support UN contingents during extraction operations.

b. Transition Between Phases

(1) A phase can be characterized by the focus that is placed on it. Phases are

distinct in time, space, and/or purpose from one another but must be planned in support of

each other and should represent a natural progression and subdivision of the operation.

Each phase should have a set of starting conditions (that define the start of the phase) and

ending conditions (that define the end of the phase). The ending conditions of one phase

are the starting conditions for the next phase.

(2) Working within the phasing construct, the actual phases used will vary

(compressed, expanded, or omitted entirely) with the multinational operation and be

determined by the MNFC. During planning, the MNFC establishes conditions, objectives,

or events for transitioning from one phase to another and plans sequels and branches for

potential contingencies. Phases are planned to be conducted sequentially, but some

activities from a phase may begin in a previous phase and continue into subsequent phases.

The MNFC adjusts the phases to exploit opportunities presented by the adversary or

operational situation or to react to unforeseen conditions. A multinational operation may

be conducted in multiple phases simultaneously if the OA has widely varying conditions.

For instance, the commander may transition to the stabilize phase in some areas while

remaining in the dominate phase in those areas where the enemy has not yet capitulated.

Occasionally, operations may revert to a previous phase in an area where a resurgent or

new enemy re-engages friendly forces.

(3) Transitions between phases are to be distinct shifts in focus by the MNF, often

accompanied by changes in command or support relationships. The activities that

predominate during a given phase, however, rarely align with neatly definable breakpoints.

The need to move into another phase normally is identified by assessing that a set of

objectives is achieved or that the enemy has acted in a manner that requires a major change

in focus for the MNF and is, therefore, usually event driven, not time driven. Changing

the focus of the operation takes time and may require changing commander’s objectives,

desired effects, measures of effectiveness, priorities, command relationships, force

allocation, or factors in the OA. An example is the shift of focus from sustained combat

Chapter VI

VI-24 JP 3-16

operations in the dominate phase to a preponderance of stability activities in the stabilize

and enable civil authority phases. Hostilities gradually lessen as the MNF begins to

reestablish order, commerce, and local government and deters adversaries from resuming

hostile actions while the US and international community take steps to establish or restore

the conditions necessary for long-term stability. This challenge demands an agile shift in

MNF skill sets, actions, organizational behaviors, mental outlooks, and interorganizational

coordination, with a wider range of interagency and multinational partners and other

participants to provide the capabilities necessary to address the mission-specific factors.

For more information on phasing alternatives and details on individual phases, refer to JP

3-0, Joint Operations.

c. Transition of Multinational Logistics

(1) Since the US may have an extensive logistic structure already in place in the

OA, it may be asked to assume the lead role in the MNL organization—at least for a

transition period. The senior US logistic commander may be designated as the senior

logistics commander for the MNF and be given specified authorities and responsibilities

by the MNFC. Additionally, US contracts and HNS agreements may become the vehicles

for multinational agreements. The US may also be asked to assume LN and RSN roles.

LN and RSN roles may require the use of a Logistics Civil Augmentation Program, Air

Force Contract Augmentation Program, construction capabilities contract program

contractors, Naval Facilities Engineering Command contingency construction, and service

contracts for supporting the MNF. These assets are generally used for the creation and

support of contingency bases. Therefore, it is important to consider the plan, design,

establishment, operation, management, and transition or closing of contingency bases early

in MNF planning.

(2) The extent to which the US accepts logistic responsibilities for the MNF is

decided by SecDef. However, two conditions are critical for a smooth transition to

multinational support: the US should have the proper legal arrangements (e.g., ACSAs) in

place to provide logistic support to members of the deploying MNF; PNs should be

prepared to reimburse the US for logistic services rendered, unless other arrangements have

been made.

(3) GCCs are better positioned to support PNs in their own areas of responsibility

and have habitual relationships with those nations that enhance interoperability.

d. Transition of Authority. Military operations may include transitions of authority

and control among military forces, civilian agencies and organizations, and the HN as its

capacity increases (see Figure VI-2). Each transition involves inherent risk. The risk is

amplified when multiple transitions must be managed simultaneously or when the force

must quickly conduct a series of transitions. Planning anticipates these transitions, and

careful preparation and diligent execution ensure they occur without incident. Transitions

are identified as decisive points on lines of effort; they typically mark a significant shift in

effort and signify the gradual return to civilian oversight and control of the HN. Because

of these risks and complexities, lower-priority development projects may not be resourced.

Other Considerations

VI-25

For more information on transitions of authority, see JP 3-07, Stability.

15. Multinational Communications Integration

a. Multinational communications integration (MCI) is the MNFs’ coordination and

employment of actions, images, and words to support the achievement of participating

nations’ overall strategic objectives and attaining the end state. The commander of the

MNF receives multinational communication strategy guidance for MCI and integrates this

guidance into all plans, operations, and actions of the MNF.

(1) MCI consists of coordinated programs, plans, themes, messages, and products

synchronized with the actions of all instruments of national power in an MNF at the

strategic, operational, and tactical levels. MCI focuses on creating, strengthening, or

preserving conditions favorable to accomplish the MNF’s mission. In an MNF, the key is

coordinated communication integration among participating nations.

(2) The MCI should integrate all information activities into planning activities

relevant to the mission, addressing both current and future operations (see Figure VI-3).

Figure VI-2. Notional Transitions of Authority

Notional Transitions of Authority

Legend

civilian authority

host nation government

military forces

transition points

Time

Capacity

Transfer of Lead Agency

Military

Culmination

Military

End State

National

Strategic

End State

Chapter VI

VI-26 JP 3-16

This plan should minimize adverse effects on multinational operations from inaccurate

media reporting/analysis, violations of OPSEC, adversary propaganda, and promulgation

of disinformation and misinformation. Well-planned information activities support is

important in every phase of operations.

b. The MNFs’ predominant military activities that support MCI are IO, PA, and

defense support to public diplomacy. All multinational operations (executed or not

executed) should be viewed through the MCI perspectives and framework to facilitate

support of strategic objectives and end state. Communication planning and

synchronization guidance should be integrated into military planning and operations,

documented in OPLANs, and coordinated and synchronized with USG departments and

agencies and multinational partners.

c. In addition to addressing MCI with partners during the mission analysis, careful

and thorough planning and coordination with multinational partners is critical to ensure the

messages are consistent and account for regional, cultural, and language interpretations and

perceptions. However, it is also important to recognize that interagency and multinational

partners may have their own goals and objectives, not all of which will be revealed to the

MNF, which may result in considerable challenges to the MCI effort.

Figure VI-3. Multinational Communication Integration

Multinational Communications Integration

Operational

Strategic

Information

Operations

Public

Affairs

Defense

Support to

Public

Diplomacy

Operations

Multinational Force

Multinational Communications Integration

Strategic Direction

Nation A

Audience 1

Nation B

Audience 2

Nation C

Audience 3

Other Considerations

VI-27

Refer to JP 1, Doctrine for the Armed Forces of the United States; JP 3-0, Joint Operations;

JP 3-13, Information Operations; JP 5-0, Joint Planning; and JP 3-61, Public Affairs, for

more information on strategic guidance; commander’s communication synchronization;

and the informational instrument of national power, IO, and PA.

d. The nature of each nation’s decision to participate in a multinational operation will

influence what they communicate to their population about their involvement. The

communication activities of each nation in the operation will reach audiences in the other

countries and serve to either support or undermine the objectives of the MNF and those of

the individual participating nations.

Chapter VI

VI-28 JP 3-16

Intentionally Blank

A-1

APPENDIX A

PLANNING CONSIDERATIONS CHECKLIST

Multinational operations as described in this publication cover a wide spectrum of

subjects. The checklist below provides an MNFC with a planning tool for multinational

operations directed through either an integrated or LN scenario. Operations conducted in

a parallel command relationship will normally follow national planning guidance and

doctrine. Where possible, this checklist will attempt to highlight only those items

unique to multinational operations.

Detailed planning checklists for JTF directorates can be found in JP 3-33, Joint Task Force

Headquarters. Most material contained in those checklists is applicable to MNTF directorates

as well.

Strategic-Level Considerations

_____ Has the political-military estimate been completed and coordinated with PNs?

Have the PNs reached agreement on the appropriate response?

_____ Have strategic assessments been shared within the constraints of national and

organizational information sharing regulations?

_____ Has the LN, in coordination with other PNs, developed the strategic military

guidance for the operation? Does this strategic guidance contain:

_____ A clear description of objectives?

_____ A broad outline of any military activity envisioned?

_____ The desired end state?

_____ Key planning assumptions?

_____ Constraints or restraints on military operations and actions?

_____ Has a mission analysis been accomplished?

_____ Has the commander’s mission statement been provided?

_____ Has an analysis of the situation, opposition forces, friendly forces, and

restrictions been conducted?

_____ Have courses of action (COAs) been developed?

_____ Has a preferred COA been selected?

_____ Has the commander’s intent been developed/provided?

Appendix A

A-2 JP 3-16

_____ Have ROE been agreed upon by military commanders and national

policy makers?

_____ Has a CONOPS been developed and approved by the national and

interagency partners?

_____ Has a confirmation of capabilities and/or forces to be contributed been

obtained from our national and interagency partners, to include

government capabilities/forces and likely international organization,

NGO, and/or private sector contributors?

_____ Has an OPLAN been developed based on the approved CONOPS/campaign plan?

_____ Have annexes to OPLANs/CONPLANs/CCPs been developed to effectively

support multinational and/or interagency coordination and operations?

_____ Has the OPLAN been approved by national and interagency partners?

_____ Has the operational-level commander been appointed?

_____ Has communication synchronization guidance been included in the OPLAN?

_____ Has the appropriate coordination been conducted with the DOS Bureau of

Conflict and Stabilization Operations, their associated local humanitarian

reconstruction and stabilization teams, US Agency for International

Development, and/or the US embassy country team(s) in the specific OA?

_____ Has CCSWG, PA, and information guidance been included in every phase of

the OPLAN?

Operational-Level Considerations

_____ Have command relationships been established between the MNFC and national

forces?

_____ Has an MNTF HQ been established?

_____ Have critical billet requirements been identified?

_____ Has a theater foreign disclosure authority been identified? Has a policy and a plan

for the control, release, and dissemination of sensitive information been

promulgated?

_____ Have the personnel for the multinational staff been chosen to reflect the required

functional skills, training levels, and language? Have historical national

sensitivities been considered?

Planning Considerations Checklist

A-3

_____ Are there sufficient linguists available for both planning and execution?

_____ Do liaison elements have appropriate linguistic, communications,

logistic, and office support capabilities in place?

_____ Has the command structure been designed to minimize layers to a more

horizontal organization?

_____ Have 24-hour command centers been established if required?

_____ Have C2 arrangements been made to include appropriate international

organization and NGO officials in coordinating functions?

_____ Have multinational legal constraints been considered in planning for C2?

_____ Have the multinational partners with a lesser C2 capability been

provided appropriate liaison personnel and interpreters (if necessary),

operators, and maintainers to enable interaction with the commander and

other multinational members?

_____ Have arrangements been made for intra- and inter-staff communication

among same nation staff members?

_____ Have the strategic and military end states been identified? Are the conditions

tangible in military terms? Are they contained in the mission statement?

_____ Has the end state and termination criteria been articulated as part of the

commander’s vision for subordinates?

_____ What is the termination criteria?

_____ What constitutes mission success?

_____ Has a mission analysis been conducted?

_____ Has planning guidance been developed and issued?

_____ Does it contain the commander’s intent?

_____ Are the ROE established? Do they require adjustment?

_____ Have COAs been developed?

_____ Has a preferred COA been selected?

_____ Has the commander’s intent been provided/developed?

Appendix A

A-4 JP 3-16

_____ Has the deployment time-phased force and deployment data (TPFDD) been

developed in the Joint Operations Planning and Execution System and

requirements validated by the appropriate CCMD(s)?

_____ Have requirements for non-US forces relying on strategic mobility for

deployment and/or redeployment been included in the TPFDD and

validated?

_____ Has the deployment plan been deconflicted with HN, NGO, and

contractor transportation requirements to avoid competition for limited

transportation infrastructure?

_____ Has the probable cost of the multinational operations been determined and are

there mechanisms in place to track the cost?

_____ Have logisticians assessed the feasibility and/or supportability and risks of the

mission?

_____ Is the MNFC aware of existing agreements among participating nations in the

form of bilateral or multilateral arrangements, funding, and training?

_____ Have SOFAs been agreed to? If not, who should conduct negotiations? Who has

been designated to negotiate technical agreements to implement SOFAs?

_____ Do the resources allocated to the force protection component of the mission

balance with the potential ramifications of failure to protect the force?

_____ Have the cultural, social, political, and economic dynamics of the OA been fused

with the traditional study of geographic and military considerations to form an

intelligence estimate that identifies threat centers of gravity, as well as high-value

and high-payoff targets? Does the plan consider these issues in a way that

facilitates operations and end state?

_____ Have determined efforts been made to pool information with applicable NGOs,

to increase efficiency of operations through coordination and eliminate

redundancy in operations?

_____ Are nonlethal weapons available for use?

_____ To what extent are riot control agents authorized for use?

_____ To what extent are nonlethal weapons authorized for use?

_____ Are forces, communication system capabilities, and logistic support robust

enough to respond to increased levels of operational intensity?

Planning Considerations Checklist

A-5

_____ Has coordination been accomplished with multinational members

regarding communication equipment capability?

_____ What are the Information/data exchange requirements for the mission?

_____ Has coordination been accomplished regarding frequency assignment?

_____ Has the terrain and environment been considered while planning for the

communication system network?

_____ Have common databases been provided for?

_____ Has the nation most capable of providing an integrated, interoperable

communication system network been selected to serve as network

manager for the multinational communication system infrastructure?

_____ Have agreements on cryptographic, communications and/or ADP

security issues, and other planning factors been reached among all

multinational components? Are compatible materials available?

_____ Have arrangements been made and/or established to allow contractor

multinational foreign nation employees to work on C2 staffs without

exposure to ADP and classified information used in daily operations?

_____ Have the nations agreed to work on a standard datum and produce all products to

that datum?

_____ Has a multinational geospatial intelligence plan been produced and disseminated

which designates all products for use?

_____ Have special, adequate, and supportable intelligence sharing and foreign

disclosure procedures been established?

_____ Have special, adequate, and supportable geospatial sharing and foreign disclosure

procedures been established?

_____ Have special, adequate, and supportable biometrics sharing and foreign disclosure

procedures been established?

_____ Have the intelligence requirements been clearly stated to focus the

collection effort?

_____ Has the adversary’s use of space assets been analyzed and have requests

for denying militarily useful space information to the adversary been

considered?

Appendix A

A-6 JP 3-16

_____ Have efforts been made to place sufficient intelligence collection resources under

the control of (or at least immediately responsive to) the MNFC?

_____ Have efforts been made to assign intelligence gathering tasks IAW the

MNFC’s intelligence requirements and according to the capability of the

multinational equipment under MNF control?

_____ Have efforts been made to pool intelligence and battlefield information

into multinational centralized processing and exploitation centers? Have

disclosure and release procedures been identified, with respect to each

PN?

_____ Can authorized targeting materials be disseminated rapidly?

_____ Has the MNFC’s authority to redistribute logistic assets and services been defined

and agreed to?

_____ Has a coordinating mechanism been establish to coordination and execute OCS

(contracting for goods and services) been established?

_____ What, if any, ACSAs exist between participating nations to enable the

provision of supplies, services, transportation, and logistic support?

_____ Does principal logistics civil augmentation program structure have an

overall officer in charge or main point of contact for C2 of contractor

personnel?

_____ Do other legal authorities permit the provision of logistic support to participating

nations?

_____ Have reimbursement or replacement in kind procedures been developed

and agreed to?

_____ Has the multinational commander designated a lead nation and/or role

specialist nation to provide CUL support to the MNF?

_____ Is there a means in place which authorizes exchange of mutual logistic

support of goods and services between the MNTF countries and accounts

for the amounts received?

_____ Has a logistics determination been made (i.e., what countries will

provide what piece of the logistics system, health services to include

ground and air evacuation, and medical logistics)?

Planning Considerations Checklist

A-7

_____ Have logistic reporting procedures been established and promulgated throughout

the force?

_____ Do transition plans include the accountability process for the return of US

equipment loaned to another nation in an MNF operation?

_____ Can the HN provide support, and if so, have negotiations to secure support been

established or completed?

_____ Are the mission economic and infrastructure repair plans known and

being complied with by all nations, Services, and units?

_____ Has HNS been evaluated in the deployed location(s) to determine the

logistic requirements?

_____ Has an assessment of HN medical capabilities and a determination of

availability to support MNF health services requirements been

accomplished?

_____ Have coordinating centers been established for personnel movement, medical

support, ground and air evacuation, OCS, infrastructure engineering, and logistic

operations?

_____ Is a transitional plan available to facilitate deployment and operational assumption

of in-place contracts, equipment, facilities, and personnel belonging to another

agency or alliance?

_____ Has funding been identified to support operations and/or to provide

reimbursement of expenditures from existing budgets?

_____ Will common funding be available to support multinational common

costs and expenditures?

_____ Has it been determined if or to what extent operational-related expenses

will be reimbursed from common funding or sources external to national

funding by the participating nations?

_____ Are medical facilities identified to support the operation? Are evacuation plans,

both intra- and inter-theater, in place?

_____ Are CBRN threats known, and are troops and medical facilities prepared

to cope with their possible use?

_____ Are graves registration and mortuary procedures in place to service multinational

casualties, to include recognition of cultural differences in dealing with

casualties?

Appendix A

A-8 JP 3-16

_____ Have information activities been planned to support the operation?

_____ Have assets been requested to support the information portion of the

plan?

_____ Have procedures been established for coordination and approval of

information activities?

_____ Have military information support personnel been integrated into

analysis, targeting, and planning?

_____ Have information-related activities been integrated and tailored to the specific

environment/mission assigned?

_____ Have population and resource control measures and the subordinate commander’s

authority to impose them been included in the MNF plan?

_____ Are there adequate CA personnel on hand to assist planners?

_____ Are there special operations personnel available to develop and execute

unconventional military options for the commander?

_____ Has a PA plan been promulgated that:

_____ Provides a contingency statement to use in response to media queries

before initial public release of information concerning the MNF and its

mission?

_____ States who (from which nation and when, or all nations simultaneously)

make the initial public release concerning the MNF and its mission?

_____ States agreed-upon procedures for the subsequent release of information

concerning the MNF and its national components?

_____ Is predeployment media training complete?

_____ Is the relationship between the inevitable media coverage of tactical operations

and future strategic decisions understood by all commanders?

_____ Have requirements for combat camera support been arranged?

_____ Has an operation historian been designated and staff authorized?

_____ Is a mechanism in place for the collection, assessment, and reporting of lessons

learned?

Planning Considerations Checklist

A-9

_____ Who will determine when the transition begins or is complete?

_____ What are the redeployment and/or withdrawal plans for MNFs? Is the departure

of forces to be accomplished under tactical conditions?

_____ What are the environmental standards to be met by withdrawal in

humanitarian or other peaceful operations?

_____ What forces, equipment, and supplies will remain behind? Has disposal

of equipment and supplies been properly planned?

_____ What are the C2 and command arrangements for departure?

_____ Who will support forces that remain behind?

_____ Has the C2 systems support required for the diminishing MNF presence

been identified?

Appendix A

A-10 JP 3-16

Intentionally Blank

B-1

APPENDIX B

MULTINATIONAL PLANNING AUGMENTATION TEAM

1. Overview

a. The MPAT program was established by the Commander, USINDOPACOM, in

consultation with the chiefs of defense of various nations in the Asia-Pacific region in early

2000. The impetus for the program is to facilitate the rapid and effective establishment

and/or augmentation of MNTF HQ.

b. MPAT is not a program with formal participatory agreements. The key factor in

program success to date has been the informal ad hoc nature of the program. Without

MOAs, terms of reference, or other more formal arrangements, the program has been able

to share information, and all participants have been able to jointly develop concepts and

procedures without the normal formal policy constraints—a key inhibitor to multinational

interoperability when working with other nations.

2. Multinational Planning Augmentation Team Composition

a. MPAT is an international cadre of military planners from 31 nations with interests

in the Asia-Pacific region that is capable of augmenting an MNF HQ established to plan

and execute coalition operations in response to military engagement, SC, and deterrence

operations and small-scale contingencies. Planners learn from each other the common

procedures for activating, forming, and employing a coalition TF HQ and associated

planning processes. This is done through a series of multinational workshops called MPAT

TEMPEST EXPRESS staff planning workshops. The MPAT cadre also participates in

USINDOPACOM and other nations’ multinational exercises.

b. Participation also includes representation from UN organizations, international

organizations, and NGOs.

c. The MPAT Secretariat resides with the Pacific Command Exercises Directorate.

3. Multinational Force Standing Operating Procedures

a. MPAT planners are credited with developing an SOP for an MNTF HQ. This SOP

recognizes the existence of shared national interests in the region and seeks to standardize

some basic concepts and processes that will promote habits of cooperation, increase

dialogue, and provide for baseline MNTF operational concepts. Further, this SOP serves

as a centerpiece for the MPAT workshops and exercises aimed at improving

interoperability and MNTF operational readiness within the Asia-Pacific region. The

purpose of the SOP is straightforward:

(1) Increase the speed of an MNF initial response.

(2) Improve interoperability among the participating forces.

(3) Enhance overall mission effectiveness.

Appendix B

B-2 JP 3-16

(4) Support unity of effort.

b. The MNF SOP is not a USINDOPACOM document, nor is it signed by any of the

participants. It has been developed by the combined efforts of all the MPAT nations as a

multinational document to provide the foundation of multinational crisis response. The

SOP is also unclassified and available for use by any nation in combined/joint or coalition

operations.

c. The procedures contained in the MNF SOP are primarily focused for use by an

MNTF HQ for use at the mid to lower end of the “competition continuum.” These include

numerous campaign operations activities such as limited contingency operations, stability

activities, PO (which includes peace building, peacekeeping, peace enforcement, and

peacemaking), FHA, NEO, SAR/PR, combating terrorism, and FID.

4. Organization

The MPAT is not a standing, billeted organization or TF. It is a cadre or pool of trained

planners with MNF operations planning expertise that has developed relationships from

participation in MPAT events. Figure B-1 contains a list of potential key MNTF staff

billets or functional areas that can be filled with MPAT personnel from the various MNF

participating nations.

For additional information on the MPAT concept and MNF SOP, refer to the unclassified

MPAT Website at https://community.apan.org/wg/mpat/p/sop.aspx. This Website acts as

the portal for the MPAT program and MNF SOP. The updated MNF SOP can be obtained

via this portal, and the latest MPAT information can be found through this site.

Figure B-1. Multinational Planning Augmentation Team Augmentation Roles

Multinational Planning Augmentation Team Augmentation Roles



Civil-military

Medical

Legal

Public affairs

Military information support operations

Operational planners

Personnel

Intelligence

Logistics

Communications

Engineering

Force movement and deployment

Force protection

Ground operations



Maritime operations

Air operations

Special operations

Marine operations

Sealift

Airlift

Information operations

Air logistics

Network/collaboration

Space operations

Cyberspace operations

Electromagnetic spectrum

operations

C-1

APPENDIX C

MULTINATIONAL STRATEGY AND OPERATIONS GROUP

1. Overview

a. The MSOG is a joint, multinational forum for identifying operational and

interoperability issues and articulating actions at the strategic and high operational level

that, if nationally implemented by MSOG member nations, will contribute to more

effective coalition operations.

b. The MSOG is a senior operator-led body for coordinating, deliberating, and

facilitating resolution of contemporary operational and interoperability issues. The

MSOG’s work focuses on resolving information interoperability problems, strategic and

operational issues, and interagency aspects considered as key to coalition operations.

c. The MSOG focuses on resolving information sharing and LN contemporary

operational and interoperability issues across all lines of development (doctrine,

organization, training, material, leadership, personnel, and facilities). The MSOG also

addresses interagency/comprehensive approach activities that are key in establishing and

executing coalitions, as well as policy issues for supporting and monitoring multinational

operations. These activities are targeted to positively impact coalition interoperability

policy, doctrine, and collaborative planning and execution.

2. Purpose

Since inception, the MSOG has evolved to keep pace with changes in the strategic

environment, transforming from strictly a tactical and operational forum to a strategic

platform focused on harmonizing collective efforts and resources. The MSOG provides a

unique senior operator/planner-led multinational forum to understand and address strategic

and operational challenges and risks to influence the development of operational practices

to enable more effective and aligned coalition operations and strategic approaches. The

MSOG’s objectives are to:

a. Build relationships to enhance mutual trust and understanding of national

perspectives and operational challenges and risks, as well as identify where future strategic

opportunities and national interests align in order to better integrate efforts, capitalize on

activities, and magnify resources across multiple problem sets.

b. Influence and shape the development of operational practices for more effective

coalition operations in a constrained resource environment.

3. Composition

a. The creation of the Military Framework Chiefs of Defense (also referred to as the

“Framework”) forum in 2016 was the key factor in the MSOG expanding in 2019 from the

eight member nations to the current thirteen like-minded nations, mirroring those

represented in the Framework meeting. The MSOG is a forum that provides a

multinational venue to understand and address contemporary strategic and operational

Appendix C

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challenges, and is composed of countries that are most likely to form and lead a coalition

operation. The MSOG member nations are Australia, Belgium, Canada, Denmark, France,

Germany, Italy, the Netherlands, Norway, New Zealand, Spain, the United Kingdom, and

the United States. The member nations are equal participants in the MSOG. While

membership is not meant to be exclusionary, the criteria for membership is based upon a

nation’s demonstrated capacity and national will to lead international coalitions.

b. The MSOG is led by the MSOG Principals, who are the senior national

representatives for MSOG member nations and are flag officers/general officers from their

nation’s national defense HQ. The MSOG Principals define and articulate the strategic

direction of the MSOG and provide guidance for the MSOG activities. Invaluable levels

of trust and camaraderie are cultivated in the MSOG, which further encourage and promote

national efforts in coalition and multinational operations.

c. The following groups manage and/or implement/perform the work of the MSOG

according to the guidance of the MSOG Principals:

(1) The Framework Steering Committee is composed of O-7/NATO OF-6

representatives and provides management oversight of tasks approved by the MSOG

Principals. It is the senior O-7-/NATO OF-6-level group that provides day-to-day

guidance, oversight, and direction to any directed working group, national secretaries, or

national officers as required.

(2) The Framework secretariat staff is the only full-time MSOG staff and works

in the US Joint Staff J-5 [Strategy, Plans, and Policy Directorate, Deputy Director Global

Integration]. The secretariat staff is responsible for managing and coordinating the day-to-

day business activities for the MSOG, while serving as the central point of contact for the

MSOG Principals, the Framework Steering Committee, and national secretaries. In

addition to permanently assigned US personnel, twelve foreign liaison officers from other

Framework member nations are assigned full-time to the Secretariat staff. The Framework

secretariat staff conducts all external coordination, correspondence, and communication.

4. Products

MSOG-developed documents represent a nonbinding consensus view among MSOG

nations. These documents are reviewed and updated on a regular basis. The following are

representative examples of MSOG-developed documents. Refer to the MSOG community

on the APAN Website for the most current version of all MSOG documents.

a. Coalition Building Guide (CBG)

(1) One of the MSOG’s early actions was the development of the CBG. The

purpose of the CBG is to facilitate LNs, troop-contributing nations, and participants in the

establishment and effective operation of a coalition anywhere on the globe. Specifically,

the CBG concentrates on the strategic and operational levels of multinational joint

operations and identifies some of the essential factors associated with the process of

coalition building. Additionally, it attempts to provide a common framework of reference

for contributing nations. The CBG is designed to assist the JFC and his staff, as well as

Multinational Strategy and Operations Group

C-3

highlight national factors. The CBG does not constitute official policy or doctrine, nor

does it represent a definitive staff planning or military decision-making guide. It is offered

to assist MSOG member nations and their potential partners in serving together in future

coalitions and to assist other working groups in their exploration of related interoperability

issues. The CBG is based upon the LN concept. For the purposes of the CBG, the LN is

described as: That nation with the will and capability, competence, and influence to

provide the essential elements of national consultation and military leadership to coordinate

the planning, mounting, and execution of a coalition military operation. Within the

overarching organizational framework provided by the LN, other nations participating in

the coalition may be designated as functional lead agent(s) to provide and/or coordinate

specific critical sub-functions of the operation and its execution, based on national

capability. These constructs may apply at the strategic, operational, and/or tactical levels.

(2) The MSOG agreed that NATO Allied joint doctrine, unless otherwise

specifically directed, is default doctrine for planning and conducting multinational

operations. The CBG uses established NATO Allied joint doctrine as a basis. NATO

doctrine is the default doctrine for a MSOG member-led coalition unless the LN specifies

the military doctrine to be used. If an LN chooses to use other than NATO doctrine, then

it must ensure all participating partners have access to the doctrine in use. Operating

procedures, as well as TTP, will be prescribed by the LN.

For additional guidance on the CBG, refer to the Multinational Interoperability

Council Coalition Building Guide, Volume I-III, 3rd Edition,

https://community.apan.org/wg/mic/p/coalition_building_guide.

b. Comprehensive Approach Framework—A Military Perspective

(1) Recent experiences of coalition operations in Afghanistan, Iraq, Kosovo, and

other operations confirm the complexity of contemporary crises. Complex crises do not

lend themselves to simple definition or analysis. Today’s challenges demand a

comprehensive approach by the international community, including the coordinated action

from an appropriate range of civil and military actors, enabled by the orchestration,

coordination, and deconfliction of coalitions’ military instrument with the other

instruments of national power.

(2) The comprehensive approach framework is primarily designed for use by

prospective coalition commanders and their staffs, but it also informs potential civilian

partners on the vision and views of the militaries organized within the MSOG concerning

the framework for the application of a comprehensive approach as both a mindset and a

method to crisis prevention, crisis management, and post-conflict activities. The central

idea is to demonstrate the possibilities but also the limitations of forming civil-military

partnerships both at home and in a region or a country by creating and operationalizing the

spirit of a true team effort. The document, therefore, aims at establishing a certain

commonality in comprehensive approach understanding and terminology to support further

work between military and civilian partners in the context of coalition operations.

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C-4 JP 3-16

(3) To promote the synergies of a civil-military team effort, the national militaries

of the MSOG nations have to specify their roles and possible contributions throughout all

phases of involvement in a crisis abroad. These phases of conflict have been categorized

as crisis prevention, stabilization, and finally transition—when the military involvement

winds down to be handed over to other, better-suited agencies and organizations. This

expeditionary focus excludes all questions of how the individual MSOG nations handle

natural or man-made crises within their own respective boundaries, possibly also in a

comprehensive manner. Likewise, possible considerations for a civil-military interface in

situations of combat operations are not subject to the framework at hand.

(4) The document points out the products and services needed from civilian

partners, which may range from an early exchange of cultural views to very precise

demands for specific liaison arrangements. Acknowledging the existing overlap with

civilian organizations and actors, the areas of military logistics, and military medical

services have been given special attention.

(5) The underlying core theme throughout the document applies the following

triple concept to make the envisaged civil-military team effort a reality:

(a) Establishing a common understanding of the problem at hand (which

includes information sharing and SA),

(b) Defining a mutually acceptable vision for the problem solution (which

includes a set of outcomes or objectives that shall not contradict one another), and

will to adjust in light of emerging insights).

c. The Military Contribution to Stabilization Operations (Stabilization Handbook)

(1) Stabilization is a multidimensional concept involving reconstruction and

normalization activities and tasks that involves attributes of other programs such as

disarmament, demobilization, and reintegration and security sector reform (SSR) that must

be considered in defining common approaches to a campaign.

(2) The Stabilization Handbook addresses the tasks normally performed by

military forces in supporting stabilization operations when an HN is unable to govern

and/or to provide for the basic needs of its citizens. Military forces perform myriad

functions in supporting broad coalition reconstruction, SSR, and stabilization efforts in

order to establish a safe and secure environment in a fragile state. The stabilization tasks

accomplished by military forces during a wide range of activities help set the conditions or

framework for:

(a) Facilitating reconciliation among local or regional adversaries;

(b) Establishing political, legal, social, and economic institutions; and

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C-5

authority operating under the rule of law.

(3) Accordingly, the document also addresses the need to consider a

comprehensive approach in planning for and conducting stabilization operations, in order

to build strong relationships through cooperation, collaboration, and coordination with the

various governmental, nongovernmental, private, and international organizations and

agencies, as well as other military forces involved in stabilization operations.

For additional information on the MSOG and ongoing multinational interoperability

efforts, refer to the MSOG community on the APAN Website at

https://community.apan.org/wg/mic/.

Appendix C

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Intentionally Blank

D-1

APPENDIX D

MULTINATIONAL LOGISTICS

1. Introduction

a. The purpose of this appendix is to provide detailed guidance to US forces who

provide or receive logistic support during multinational operations. The term

“multinational” encompasses operations that may also be referred to as “allied,” “alliance,”

“bilateral,” “combined,” “multilateral,” or “coalition.” The overall logistics doctrine for

supporting US joint operations has been established in JP 4-0, Joint Logistics.

b. MNL is any coordinated logistic activity involving two or more nations supporting

a MNF under the auspices of an alliance or coalition. This includes operations conducted

under a UN mandate. MNL includes activities involving both logistic units provided by

participating nations designated for use by the MNFC, as well as a variety of MNL support

arrangements that may be developed and used by participating forces.

c. Multinational operations of even modest complexity require some centralized

coordination of logistics and the use of mutual support arrangements to facilitate smooth,

timely, responsive, and effective deployment and force sustainment. This may include

negotiation of HNS and agreements relating to border crossings; customs and duty fees;

medical support; engineering; OCS; supplemental security forces; movement control; and

provision of CUL supplies, such as bulk petroleum.

See JP 4-0, Joint Logistics, for additional information on CUL.

d. The principles of logistics for US joint operations also apply to the logistics of

multinational operations. However, because participating forces represent sovereign

nations, there are several unique principles for MNL operations. Figure D-1 lists the

principles of MNL as contained in NATO’s logistic publication Military Committee 319/3,

NATO Principles and Policies for Logistics, and expanded upon in AJP-4, Allied Joint

Doctrine for Operational-Level Logistics. Although first formulated in NATO documents,

these principles are adaptable to all multinational operations.

2. Special Considerations in Organizing and Conducting Multinational Logistic

Operations

a. The Impact of National Sovereignty. The planning and conduct of logistics in

operations involving multiple sovereign nations characteristically differs from that in

unilateral operations.

(1) MNFCs typically do not have the same degree of directive authority over

MNF logistics as commanders of national operations. Nations give MNFCs only as much

authority over their national logistic resources as they are willing to concede to achieve

national objectives in the operation. These authorities are generally quite limited and often

involve only coordinating authority. As a result, effective logistic operations in a

multinational operation depend on personal relationships between multinational and

Appendix D

D-2 JP 3-16

national force commanders. MNFCs and the logistic staff use persuasion and diplomacy

to encourage national contingents to support MNF operational priorities. In order to ensure

better understanding between commanders, LNOs should be dispatched to all relevant

organizations throughout the multinational C2 structure.

(2) US and other forces participating in multinational operations operate under

limitations imposed by applicable international agreements, including SOFAs, DCAs,

national laws, and regulations. The US has negotiated a number of bilateral SOFAs that

govern US forces operating within another nation’s territory. SOFAs may also be

multilateral and should be negotiated to apply to all participants in the MNF. Detailed

SOFA provisions are usually contained in supporting TAs. Many of the areas addressed

in the TAs relate directly to logistic issues: medical support, environmental obligations,

customs and duties, movement control, landing rights and/or port utilization fees, and rights

and protection of MNF contractors. Accordingly, the MNFC’s logistic and legal staffs may

become closely involved with negotiation, implementation, and application of the SOFA

and TAs to ensure such documents facilitate rather than hinder logistic support of the

operation.

(3) Differences in national ROE, FP, and security requirements constitute

potential areas of friction in a multinational operation and could affect the security of

operating bases and logistic assets on which US forces and MNFs rely on. MNFC FP and

Figure D-1. Logistics Principles of Multinational Operations

Logistics Principles of Multinational Operations

Per MC 319/2 the NATO principles and

policies for logistics are*:

Per Joint Publication 4-0 principles and

policies for logistics include**:

*Principles listed in NATO Publication MC 319/2,

and in Allied Joint Publication (AJP)-4, .

NATO Principles and Policies for

Logistics, Allied Joint Logistic Doctrine

**Principles listed in Joint Publication 4-0, as well as MC 319/2 and AJP-4.Joint Logistics,



Collective responsibility

Authority

Primacy of operational requirements

Cooperation

Coordination

Assured provision

Sufficiency

Efficiency

Flexibility

Visibility and transparency

Synergy

Simplicity

Timeliness



Economy

Simplicity

Flexibility

Responsiveness

Survivability

Sustainability

Attainability

MC Military Committee NATO North Atlantic Treaty Organization

Legend

Multinational Logistics

D-3

security requirements should be identified early in the planning process and addressed

during TA negotiations.

(4) National laws guide the exchange of logistic support among nations. There

are a number of legal provisions that stipulate the manner in which US forces can exchange

logistic support with other force contingents and/or participate in MNL arrangements.

For more information on national laws guiding logistics support, see JP 4-0, Joint Logistics.

b. The US as Provider and Recipient of Logistic Support. The US may provide

logistic support as part of its national contribution to a multinational operation, as it did in

Operations UNITED ASSISTANCE (West Africa) and ATLANTIC RESOLVE (Europe).

The US, in turn, could require extensive foreign logistic assistance (as in Operations

ENDURING FREEDOM, INHERENT RESOLVE, FREEDOM’S SENTINEL, and

RESOLUTE SUPPORT). The US, therefore, is likely to be both a consumer and provider

of CUL in multinational operations. MNL may provide US commanders and logistic

planners with a means to effectively and efficiently support US forces.

3. Core Logistics Capabilities

The core MNL functions are supply, maintenance, deployment and distribution, joint

health services, engineering, logistic services, and OCS. The MNL capabilities delivered

by these functions, when combined with multinational personnel service support, provide

the ability to globally project and sustain US forces operating as part of an MNF. Personnel

involved in MNL should work to integrate and make effective use of Service, joint,

commercial, interagency, and MNL assets. Understanding these capabilities will enable

MNFCs and their subordinate commanders to obtain, provide, and sustain effective

logistics support. Additionally, logistic planners should identify areas where international

agreements would facilitate supply and maintenance support of multinational operations.

Developing mutually supportive relationships to enhance coordination is an important

enabler for MNL operations. ACSAs are examples of international agreements that allow

for the provision of cooperative logistics support. Upon identifying a need, the MNFC

should determine the feasibility of such agreements and, where applicable, pursue their

development in coordination with the appropriate higher command level.

a. Supply

(1) Multinational support agreements and arrangements can usually be

considered for the provision of food, water (bulk and bottled), bulk petroleum, some

ammunition types, and medical supplies. The supplies and services to be provided by MNL

will be determined in concert with nations prior to commencement of the operation and

will depend on the degree of standardization and interoperability within the force. This

should be determined during the logistic and HNS planning conferences. Possible methods

of multinational provision are given in NATO publication AJP-4.9, Allied Joint Doctrine

for Modes of Multinational Logistic Support.

(2) Supply transactions between nations or national forces may take the form of

pre-planned logistic assistance, emergency logistic assistance in crisis and conflict,

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D-4 JP 3-16

multinational support, or redistribution. The compensation for delivered or redistributed

supplies should be executed IAW procedures agreed upon by the PN. Nations should

implement the provisions of these agreements in their national doctrine and procedures to

enhance the efficient execution of mutual support.

b. Maintenance

(1) Maintenance operations facilitate systems readiness for the MNFC. Each

member nation executes maintenance as a core logistic function to maintain the fleet

readiness of units and capabilities.

(2) In crisis or conflict, an efficient maintenance organization, composed of MNF

and national repair facilities, is an essential component of MNF’s capability. Therefore,

nations should be encouraged to make bilateral and multilateral agreements in peace to

cover use of national repair facilities in both peacetime and wartime. This facilitates the

transfer of repair loads from one nation’s facilities to another and will exercise cross-

servicing facilities and procedures. Whenever weapon systems are used by more than one

nation, a coordinated approach to logistics is recommended. Not only can logistic

resources be shared but, also by consolidating supply and maintenance requirements,

unique opportunities are created to reduce investment and operating costs.

c. Deployment and Distribution

(1) The global dispersion of the threats, combined with the necessity to rapidly

deploy, execute, and sustain operations worldwide, makes the deployment and distribution

function the cornerstone of MNL. This global distribution-based system requires the end-

to-end synchronization of all elements of distribution. The deployment and distribution

function supports the movement of forces and unit equipment during the deployment and

redeployment processes and supports materiel movement during the sustainment of

operations. Asset and in-transit visibility provides the CCDR the capability to see and

redirect strategic and operational commodity and force flow in support of current and

projected priorities.

See JP 3-35, Deployment and Redeployment Operations, and JP 4-09, Distribution

Operations, for additional information.

(2) Move the Force. The Joint Staff J-3 [Operations Directorate], as the joint

deployment process owner, serves as the DOD focal point to improve the deployment

process supporting multinational operations and interagency coordination. Force providers

are supported by United States Transportation Command (USTRANSCOM) during the

planning and execution of the deployment and redeployment process. USTRANSCOM,

as the Joint Deployment and Distribution Coordinator, supports the deployment process by

providing the strategic distribution capability to move forces and materiel in support of

MNFC operational requirements and to return personnel, equipment, and materiel to home

and/or demobilization stations.

Multinational Logistics

D-5

(3) Movement Control. A variety of organizations may be established to

manage, control, and coordinate strategic and operational movement for multinational

operations.

(a) In US-led multinational operations, the movement control concept is

usually an extension of US joint doctrine, as discussed in JP 3-35, Deployment and

Redeployment Operations, and JP 4-09, Distribution Operations.

(b) The organization and planning tools to synchronize and coordinate

movement control during multinational operations and in other kinds of multinational

operations are similar and will usually include:

1. A planning center (at the strategic or geographic command level) to

construct a detailed multinational deployment plan.

2. A joint movement coordination center at the MNF HQ level.

3. An air component center for controlling air movements.

4. Organizational elements for managing/coordinating reception,

staging, onward movement, and integration activities to coordinate MNF movements with

the HN’s national movement coordination center, if established and allocating any

common-user transportation resources.

the allied movement coordination center (AMCC), which combines and deconflicts

separate, national, detailed, deployment plans into a single, multinational, deployment plan

to ensure smooth flow of forces IAW the MNFC’s deployment priorities. The AMCC, in

cooperation with NATO’s civil transportation planning boards and committees, also assists

nations in resolving strategic lift shortfalls through arrangements with other allied nations

and/or commercial transportation firms. See AJP-3.13, Allied Joint Doctrine for the

Deployment of Forces.

(d) At the operational level, a joint theater movement staff (JTMS) develops

movement and transportation directives and plans and recommends priorities for theater

movement requirements. A joint transportation coordination center (JTCC) may also be

established. The JTCC focuses primarily on managing intratheater movements and tasking

any transportation assets provided by nations for support of the entire MNF.

(e) NATO’s JTMS and JTCC perform similar functions to a US joint

movement center (JMC). If the US establishes a separate, national JMC for managing

movement of US forces in a multinational operation, the JMC must coordinate closely with

the multinational movement control centers to ensure synchronized deployment and

intratheater movement.

(f) In non-US-led coalitions, the US may be requested to function as LN for

deployment planning and movement control because of its expertise in these areas.

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D-6 JP 3-16

(4) Sustain the Force. Sustainment is the provision of logistics and personnel

services required to maintain and prolong operations until successful mission

accomplishment. Sustainment is conducted for the duration of the joint mission. A logistic

concept of support must complement the overall CONOPS. Logistic planners accomplish

this by tailoring the joint deployment and distribution enterprise (JDDE), including

incoming stock, theater excess stock, and disposal requirements, or devising new

distribution capabilities. The JDDE is that complex system of equipment, procedures,

doctrine, leaders, technical connectivity, information, shared knowledge, organizations,

facilities, training, and materiel that facilitates the successful conduct of multinational

distribution operations.

See JP 3-35, Deployment and Redeployment Operations, and JP 4-09, Distribution

Operations, for additional information.

d. Joint Health Services

(1) Nations are ultimately responsible for providing medical care for their forces.

Because of national sensitivities, the US strives to rely on national resources for providing

joint health services to its forces to the maximum extent. Opportunities exist to rationalize

medical care within a multinational operation. For example, medical care roles could be

provided by an LN or RSN. However, differences in medical standards, customs, and

training require careful consideration in planning multinational medical support. The

exchange of blood and blood products between nations is an especially sensitive issue.

Because of its robust, high-quality medical capabilities, the US may be able to provide

medical support to multinational partners, including Class VIII medical supplies,

veterinary services, medical laboratory services, optical fabrication, medical equipment

maintenance and repair, preventive medicine, and patient movement (ground and aerial

evacuation).

(2) US laws and policies, however, place restrictions on the provision of medical

support to other nations and the use of foreign medical support by US forces. US

commanders must be aware of such restrictions in non-US-led multinational operations

and inform the MNFC of these restrictions. Due to such restrictions, US commanders

should consult with the SJA.

See JP 4-02, Joint Health Services, for more detailed guidance on joint health services in

multinational operations.

e. Engineering

(1) Engineering lends itself to multinational coordination and management

arrangements. Nations participating in a multinational operation may place assigned

engineer units under the OPCON or the TACON of the engineer TF commander. As an

alternative, engineer units may simply coordinate engineer activities with the MNFC and

the force engineer. Ultimately, all engineer operations should be coordinated with the

theater engineer to achieve a synchronized approach to engineer operations. The theater

engineer will typically be the supported US CCMD engineer.

Multinational Logistics

D-7

(2) To assist the force engineer, an engineer coordination element may be

established. In a US-led multinational operation, this coordination element will normally

comprise a staff element within the logistics directorate of a joint staff and may involve a

number of functionally specific joint engineer boards—for example, the joint facilities

utilization board (JFUB), joint civil-military engineering board (JCMEB), and joint

environmental management board. These joint boards would be expanded with personnel

from coalition partners to form combined organizational elements with multinational

engineer coordination functions. In NATO doctrine, the central coordinating organization

for engineering is called an engineer coordination cell (ECC) and may directly support the

force engineer, who is a special staff officer under the MNFC. If joint engineer boards

have been established in support of US forces in a NATO operation, they should coordinate

closely with the ECC. The theater engineer may also establish regional/component

subordinate offices to assist the ECC in coordinating multinational engineering activities.

For details on US engineering doctrine, see JP 3-34, Joint Engineer Operations. For

NATO doctrine, see AJP-3.12, Allied Joint Doctrine for Military Engineering.

f. Logistic Services. In addition to MNL coordination centers at the MNF HQ level,

nations participating in a multinational operation may determine the need for operational-

level support organizations to provide common support for the MNF. Such organizations

include naval advanced logistic support sites (NALSSs) and naval forward logistic sites

(NFLSs) for supporting multinational maritime forces and intermediate staging bases

(ISBs) for supporting ground and air units. MNL support elements serve as critical

transshipment nodes, supply storage and distribution points, refueling stations, staging

bases for onward movement into tactical operational zones, medical support centers, and

providers of other CUL support. MNL sites may be organized as elements within the MNF

C2 structure under the command of the MNFC. Within a NATO maritime operation, for

example, NALSSs and NFLSs are elements of the multinational maritime force shore

support organization and may report either to a MNL maritime command or directly to a

maritime element embedded in the MJLC. In such an organizational structure, NALSSs

and NFLSs are multinational organizations with NATO commanders and integrated

multinational staff. Multinational support organizations, however, could also be LN-

operated organizations that provide support to multinational partners, as requested. For

example, the US could establish a national ISB outside the tactical operational area that is

used for both staging and supporting US forces and providing logistic services to other

nations. In this case, the logistic site providing MNL support is under command of the

operating nation (the US), and the site commander coordinates with the MNFC.

g. OCS. Theater support contracts and CUL-related external support contracts make

use of regionally available supplies, services, and construction capability in immediate

support of deployed units, at staging locations, interim support bases, or forward operating

locations. The use of local contractor services can also play a very important role in the

economic health within the countries where the operation is being conducted. In

multinational operations, commanders of US contracting entities are responsible for

contracting operations to support US forces, and contracting officers are guided by US laws

and the Federal Acquisition Regulation in obtaining contractor services. The contracting

coordination center prioritizes and coordinates national contracting of goods and services

Appendix D

D-8 JP 3-16

that are in limited supply within the OA or are commonly needed by the entire force (or by

more than one component). These commonly needed goods and services may include food,

fuel, lodging, labor, construction materials, facilities, and transportation. To effectively

coordinate MNF contracting activities, the MNFC may publish a restricted items list that

identifies critical, limited supplies and services within the OA, the procurement of which

must be coordinated with the contracting coordination center.

4. Multinational Logistics Planning Considerations

a. Logistic planning of multinational operations poses considerable challenges.

Realistically, only a few nations can logistically support themselves in every operational

phase: deployment, sustainment, and redeployment/termination.

b. MNL planning is complicated by several factors:

(1) Advance planning for multinational operations is usually confined only to

close allies that are highly likely to join with the US in the planned operation. Even among

close allies, some PNs may be reluctant to support advance planning of operations in which

the US is involved. As a result, most planning for multinational operations, therefore, tends

to be ad hoc.

(2) Nations are generally reluctant in the early planning process to commit forces

to the MNF. This is especially true regarding logistic contributions to MNF support.

Logistic planning for multinational operations, therefore, can be a lengthy, iterative

process, during which nations come to agreement on the logistic C2 organization and

support arrangements only after extensive deliberation.

(3) Given these factors, planning for multinational operations usually

commences only after the crisis has developed. Since logistics often is a limiting factor in

operations, logistic planning needs to be initiated as soon as possible and occur

concurrently with operational planning.

(4) Within a multinational operation, it is imperative that participating nations

have confidence in the way partners are supporting their forces. Nations are often reluctant

to, and sometimes prohibited from, sharing national OPLANs with potential partners

because of national security. Nonetheless, efforts should be made to share operation and

logistic support plans during the plan development stage. While selected details may not

be shared, general logistic support concepts, possible force/resource contributions, logistic

support requirements, capabilities, logistics security and protection requirements, and

possible support arrangements should be discussed.

(5) An information database regarding the logistic capabilities of potential

multinational partners is crucial for effective MNL planning. During peacetime, US and

multinational planners may be able to use such information to identify—in advance—

possible MNL contributions to an operation and to implement programs, including

multinational exercises and planning seminars, to enhance interoperability.

USINDOPACOM’s MPAT program is a good example that enhances MNL planning and

provides planners with the requisite planning tools.

Multinational Logistics

D-9

c. To integrate partners in contingency logistics planning effectively, the MNFC

should consider the following measures:

(1) Seek early assignment of logistic planners from participating nations to the

MNFC logistic planning staff.

(2) Produce MNL planning templates using US/LN data and planning factors.

Templates would be filled out by participating nation logistic planners.

(3) Arrange temporary assignment of US/LN logistic LNOs to the national HQ

of participating nations.

(4) Provide access to US/LN logistic information management systems or

arrange electronic interface between compatible national systems where feasible.

(5) Seek early briefings on participating nation logistic capabilities and shortfalls

and obtain commitments to cooperative logistic arrangements.

(6) Seek early staffing for MJLC (or equivalent) functional coordination bodies.

(7) Seek early agreement on an MNF basing strategy that may include

establishing efficient contingency bases to support mission requirements.

d. National operational preferences influence the degree to which nations are willing

to rely on MNL during the early phase(s) of an operation. Nevertheless, early MNL

planning increases the options available to national commanders for employing MNL for

mutual benefit during the critical first stages of an operation.

e. Perspective of US MNFC. When functioning as the MNFC, US commanders have

the responsibility to develop a CONOPS and initial concept of support, in coordination

with participating nations. Upon approval of participating nations, US and other MNL

planners iteratively develop the support plan during a series of planning conferences, as

time allows. US MNFCs should address the following critical logistic issues in planning

for multinational operations.

(1) Logistic C2 relationships and organizational structure. Given differences in

national terminology, it is essential that participating nations operate with the same

understanding of C2 relationships.

(2) Structure, staffing, and equipment of MNL organizations. Personnel from

participating nations need to be integrated into MNF logistic HQ organizations to make

them truly multinational.

(3) Logistic authorities and responsibilities of the MNFC and participating

nations.

(4) Logistic reporting requirements and reporting capabilities of participating

nations.

Appendix D

D-10 JP 3-16

(5) Interoperability of logistic C2, communications, and information systems

within the force. Achieving interoperable logistic C2, communications, and information

systems is difficult, even with long-time allies. To facilitate interoperability, the US

commander serving as an MNFC may need to provide requisite systems to multinational

partners.

(6) Logistic requirements for national contingents (e.g., level of medical support,

amount of supplies to be maintained in the OA).

(7) Logistic capabilities of participating national contingents. The MNFC needs

to know to what extent national contingents may require support from nonorganic

resources in order to develop a logistic plan for the operation. NATO doctrine currently

requires certification of the logistic capabilities of non-NATO contingents before they

participate in non-Article 5 crisis response operations. Similar “certifications” may not be

relevant or required for US-led coalitions and, in any case, may be beyond the resources of

the US MNFC and staff to conduct. However, even in the case of less formal logistic

assessments, the US commander serving as an MNFC should be aware that such

assessments of multinational partner capabilities may be diplomatically or politically

sensitive and require multinational cooperation.

(8) Requirements for force-wide mutual support arrangements and implementing

mechanisms.

(9) Requirements for multinational support, including requirements for theater-

and operational-level logistic forces.

(10) Requirements for enduring and contingency bases, which may benefit from

the use of virtual base design technologies, best practices and lessons learned, and

alternative energy technologies to reduce the base’s logistics footprint and sustainment

requirements.

(11) Concepts for logistic functions and use of MNL support arrangements, such

as RSN and LN, to implement such concepts.

(12) Prioritized requirements for HNS and available resources.

(13) Authorities and responsibilities of the MNFC and nations in arranging

support from host and transited nations. Centralized coordination of intratheater resource

allocation is essential for operationally efficient support of multinational operations.

(14) Availability of logistic planning tools, including logistic information

databases in the OA, and responsibilities for developing and maintaining such databases.

(15) Differences in classes of supply; see Figure D-2.

(16) Mechanisms to protect logistic technical databases and logistic information

systems.

Multinational Logistics

D-11

(17) Relationships with and support to international organizations, NGOs, and

other nonmilitary organizations.

Figure D-2. United States and North Atlantic Treaty Organization Classes of Supply

III

IIIa

VII

VIII

Subsistence:

General Support Items:

Petroleum, Oils, Lubricants:

Construction/Barrier:

Ammunition:

Personal Demand Items:

Major End-Items:

Medical Material/Medical Repair

Repair Parts (less medical special repair

parts):

(code as zero '0'):

Food.

Clothing, individual

equipment, tentage, organizational tool sets

and tool kits, hand tools, material,

administrative, and housekeeping supplies.

Petroleum

(including packaged items), fuels, lubricants,

hydraulic and insulating oils, preservatives,

liquids and compressed gasses, coolants,

deicing, and antifreeze compounds, plus

components and additives of such products,

including coal.

Materials that support

fortification, obstacle and barrier construction,

and construction material for base

development and general engineering.

Ammunition of all types

(including chemical, radiological, and special

weapons), bombs, explosives, mines, fuses,

detonators, pyrotechnics, missiles, rockets,

propellants, and other associated items.

Nonmilitary sales

items.

A final combination of end

products ready for intended use (e.g.,

launchers, tanks, racks, adapters, pylons,

mobile machine shops, and administrative

and tracked vehicles).

All repair parts and components,

including kits, assemblies, material power

generators subassemblies (repairable and

non-repairable) required for all equipment;

dry batteries.

Material to support

military programs, not included in Classes I

through IX.

Items of subsistence (e.g. food and forage)

which are consumed by personnel or

animals at an approximate uniform rate,

irrespective of local changes in combat or

terrain conditions.

Supplies for which allowances are

established by tables of organization and

equipment (e.g., clothing, weapons, tools,

spare parts, vehicles).

Petroleum, oil, and lubricants for all

purposes, except for operating aircraft or

for use in weapons such as flame-throwers

(e.g., gasoline, fuel oil, coal, and coke).

Aviation fuel and lubricants.

Supplies for which initial issue allowances

are not prescribed by approved issue

tables. Normally includes fortification and

construction materials, as well as additional

quantities of items identical to those

authorized for initial issue (Class II) such as

additional vehicles.

Ammunition, explosives and chemical

agents of all types.

Class of

Supply

United States North Atlantic Treaty Organization

United States and North Atlantic Treaty Organization

Classes of Supply

Appendix D

D-12 JP 3-16

(18) Coordination with US non-DOD departments and agencies on logistic

matters affecting the mission/operation. In addition to normal USG interagency

coordination efforts and procedures, CCDRs can use their joint interagency coordination

group and the associated or attached USG department or agency representatives and

command LNOs to facilitate and foster logistics planning and coordination.

(19) Applicability of existing NATO or ABCANZ STANAGs to serve as a basis

for quick development of standardized coalition logistic procedures.

(20) Requirements for infrastructure improvements within the OA and funding

arrangements for such improvements, to include HN power resources and infrastructure.

(21) Requirements for operational energy and their associated risks, including

those risks related to the assured supply of bulk petroleum and electricity, if applicable.

(22) Logistic-related items, such as landing rights, customs, taxes, and

environmental issues, to be addressed in SOFAs and supporting TAs.

(23) Environmental considerations and hazardous material/waste treatment and

removal.

(24) Up-front common funding authority and availability of funds.

(25) FP measures for logistic sites and activities.

(26) In addressing these issues, US MNFCs should keep in mind cultural aspects

of multinational partners that could affect the operation (e.g., dietary preferences, physical

characteristics, and religious practices and taboos). Appendix E provides a “Commander’s

Checklist for Logistics in Support of Multinational Operations.”

f. US Commander’s Perspective. The US commander should be an early and active

participant in the planning process, anticipate support requests, identify US support

requirements, and be prepared to respond appropriately. Close and continuous

coordination with the Joint Staff may also be necessary, especially when SecDef approval

is required for US participation in a specific MNL support arrangement—for example,

acceptance of RSN or LN responsibility. In cases where the US force commander is not

“dual-hatted” as the MNFC, the following critical planning tasks should be addressed:

(1) Incorporate MNFC logistic guidance into US support plans.

(2) Coordinate US logistic planning with MNFC logistic planning and maintain

continuous liaison.

(3) Determine sources of support from the HN and available commercial sources

and consult with other participating nations and the MNFC in identifying potential

multinational support arrangements. (The US must clearly identify the extent to which it

can participate in multinational support arrangements.)

Multinational Logistics

D-13

(4) Notify the MNFC as to the logistic supplies and services that the US will

make available to support other participants in the MNF and what limits there are on such

support. (US logistic contributions to the MNF are approved by SecDef and communicated

to MNFC planning staffs.)

(5) If additional ACSAs are required, coordinate with designated negotiating

authorities (generally the cognizant GCC) and ensure Service components identify points

of contact and implementation procedures for this authority.

(6) Notify the MNFC regarding what logistic assets are available for possible

redistribution.

(7) Notify the MNFC of relevant aspects of the US support plan in order to assist

the MNFC in harmonizing support for the entire MNF.

(8) Coordinate with nations contributing forces to US units (divisions, brigades,

air wings, maritime task forces) regarding support available from the framework unit and

on what terms.

(9) Promulgate MNFC logistics policy, plans, and procedures to participating US

units.

(10) Assemble databases from all available sources on logistic capabilities of

non-US units operating within US framework units and with nations, including HNs,

located in the OA.

(11) Determine FP requirements for US logistic forces; coordinate measures with

the MNFC and HNs; and obtain clear specification of responsibilities of US forces, HNs,

and other multinational participants.

(12) Review US legal authorities and notify the MNFC regarding any legal

constraints that might have an impact on US participation in MNL activities.

(13) Reference lessons learned information systems during the planning process.

Appendix E, “Commander’s Checklist for Logistics in Support of Multinational

Operations” is provided to assist US commanders and logistic staffs prepare to participate

in multinational operations.

g. NSE. An NSE is any national organization or activity that supports national forces

that are part of an MNF. NSEs serve as the intermediary between national logistical

support at the strategic level to tactical-level forces. NSEs also coordinate and consolidate

CUL functions. Routinely, the US Service component of the MNF that has the

preponderance of the lead Service CUL responsibilities is designated the US NSE

responsible to provide CUL support to US forces. If the US force is geographically

dispersed, separate component NSEs may be required. NSEs include nationally

commanded NALSSs, NFLSs, ISBs, or other organizations within the OA that support

national forces assigned to the MNF.

Appendix D

D-14 JP 3-16

(1) An NSE provides logistic support, including supply, maintenance,

transportation, health services, customs and border clearance, engineering, environmental,

and OCS. As noted above, an NSE may provide CUL support to MNFs, as well as to

national forces. It is also possible that, in some operations, selected CUL would be

arranged by the MJLC (or equivalent), thereby reducing the role of the NSE in providing

such logistics.

(2) In both linear and nonlinear operations, NSEs are located geographically to

best support the force and sited to take advantage of air, rail, and/or sea LOCs. In cases

where the MJLC (or equivalent) has real estate management responsibility, nations desiring

to locate NSEs in the MNFC’s OA must coordinate with both the MJLC and the HN for

final site approval. This is critical in those areas with limited air and sea ports of

debarkation in which several nations may be competing for limited available space or

facilities. NSEs from several nations may be colocated to achieve economies and

efficiencies. Some nations may find it especially advantageous to form a combined NSE.

(3) Command Relationships. NSEs are national activities that remain under

control of national authorities—not the MNFC. There are two basic options for US

command relationship of NSEs.

(a) US NSEs will normally be under direct command of their respective

Service component commander.

(b) In exceptional cases, the US NSE may be a logistically focused JTF

under OPCON to the senior JTF commander.

5. Control and Coordination Models

a. Logistic C2 Organizations

(1) The logistic C2 organization of a multinational operation encompasses both

the internal logistic staff elements of the MNF HQ and the overall logistic organization, as

integrated into the total MNF C2 structure.

(2) If the operation is relatively small or involves only a few multinational

partners, the MNFC may rely on the combined-joint logistics office (CJ-4) staff,

augmented (if necessary) with functional experts, to plan and coordinate MNF logistic

activities.

(3) In the case of larger, more complex operations requiring more coordination

and common support, the MNFC may establish a separate organization to assist the CJ-4

in developing and executing the operation’s logistic support plan. NATO designates an

organization, such as an MJLC, for coordinating and managing MNF logistics.

(4) For a US-led multinational operation, the JFC may establish an organization

functionally similar to the MJLC that is tailored in size and specific functions to the

particular operation. This organization may be designated combined/joint logistics center,

MNL coordination center, or the like.

Multinational Logistics

D-15

(5) The MJLC (or its equivalent), if established, may be established as:

(a) An augmentation to the CJ-4’s staff, especially during initial planning or

for smaller operations of limited duration.

(b) A separate staff section within the CJ-4 organization.

HQ or other supporting HQ.

(d) A module placed within a component command.

(6) As shown in Figure D-3, the MJLC may consist of various functional

coordination centers (or other equivalent bodies) that provide centralized coordination of

common support services, such as engineering, movement control, medical activities,

OCS, and HNS, and the provision of common supplies, such as bulk petroleum and rations.

The terminology used to designate such organizations and their specific functions varies

depending on the command organization for the operation (e.g., NATO, US-led coalition,

ABCANZ-member nation coalition).

Figure D-3. Illustrative Multinational Joint Logistic Center Structure

Illustrative Multinational Joint Logistic Center Structure

Legend

CJ-3

CJ-8

combined-joint operations officer

director for force, structure, resource, and

assessment, combined staff

operational command and control

coordination/technical advice

Transportation

Medical

Force

Surgeon

Other

(as

Required)

Logistic

Units

Engineering

Host-

Nation

Support

Multinational

Force

Commander

Combined-

Joint Logistics

Officer

CJ-3

Logistic

Operations

Multinational

Joint Logistic

Center

Force

Engineer

Contracting

CJ-8

multinational command headquarters

multinational logistic organizational element

combined joint forces

Appendix D

D-16 JP 3-16

(7) In a US-led multinational operation, for example, the MJLC could comprise

a number of joint logistic centers, offices, and boards that would be expanded to include

coordination of MNL matters. These bodies could include combined versions of a joint

logistics readiness center or joint logistics operations center, JMC, joint petroleum office,

JCMEB, JFUB, CCDR logistics procurement support board, theater patient movement

requirements center, joint blood program office, joint medical surveillance team, joint

materiel priorities and allocation board, and/or joint transportation board. See JP 4-0, Joint

Logistics, for details on the functions of these centers, offices, and boards.

(8) NATO has developed detailed doctrine regarding the structure of an MJLC,

referred to in NATO joint doctrine as the joint logistic support group (JLSG), including the

functions and staffing of various coordinating centers. See AJP-4.6, Allied Joint Doctrine

for the Joint Logistic Support Group, for information on the organization and structure of

the JLSG.

(9) Depending on the command structure of the operation, some functions, such as

movement control, engineering (general, combat, and geospatial), and medical support, may

not fall under the staff cognizance of the CJ-4. The MNFC may determine that these functions

will be organized under other staff sections, such as the combined-joint operations officer,

staff engineer, or staff medical officer. Nonetheless, the CJ-4/MJLC will be involved in

coordinating various aspects of these functions—for example, contracting for local supplies

and services in support of engineer and health services activities.

(10) Another important function of the CJ-4/MJLC is to maintain close

coordination on logistic matters with NGOs and international organizations through the

MNFC’s CMOC, if established. The US and other nations participating in an MNF may

establish separate CMOCs to best execute civil-military operations and objectives at the

national level. Nations need to closely coordinate their activities with the MNFC.

(11) In addition to functional coordination tasks, the MJLC may be assigned the

responsibility for coordinating the efforts of logistic units provided by nations to serve at

the theater/operational level for support of the entire MNF. NATO doctrine considers that

there may also be a need to establish tailored, component-level, subordinate multinational

logistic centers (MNLCs) to conduct component-level coordination.

(12) Regardless of the specific logistic C2 and/or management structure

developed for a multinational operation, execution of the MNFC’s logistic responsibilities

should be clearly delineated between the CJ-4 and the MJLC or equivalent.

(13) The CJ-4 is responsible for developing the initial logistic guidance, planning

for the logistic support of the operation, and promulgating logistic policies on behalf of the

MNFC. The MJLC (or equivalent) is primarily concerned with implementing the

guidance, policies, and plans developed by the CJ-4 and approved by the MNFC.

Essentially, the MJLC performs the execution role for the CJ-4, serving as an extension of

the CJ-4 staff.

Multinational Logistics

D-17

(14) Regarding the overall logistic C2 organization, several options exist consistent

with the various multinational C2 structures. Figures D-4 through D-6 depict three possible

logistic C2 organizational structures modeled after past multinational operations.

(15) The structure represented in Figure D-4 can scale across any multinational

operations but is most applicable to larger multinational operations with many participants.

The key logistic organizational elements of this model are an MJLC, an MNLC for the

maritime component, and NSEs supporting respective national contingents. (Depending

on the size and complexity of MNF air and land forces, MNLCs may also be established

for the air and land component commands.)

Figure D-4. Illustrative Logistic Command and Control Organization: Alliance-Led

Illustrative Logistic Command and Control Organization:

Alliance-Led Multinational Operation

Legend

ALSS advance logistic support site

C-4 combined logistics

CJ-4 combined-joint logistics office

FLS forward logistic site

MJLC multinational joint logistic center

MNLC(M)

NSE national support element

SOF special operations forces

multinational logistic center (maritime)

Multinational

Force

Commander

US Geographic

Combatant

Command

US Component

Commands

Component

Logistic

Commands

MNLC(M)

National

Forces

National

Forces

National

Forces

Alliance

President/

Secretary of

Defense

CJ-4

C-4C-4C-4

FLS ALSSNSENSENSE

SOF

Component

Maritime

Component

Land

Component

Air

Component

MJLC

multinational command headquarters

multinational logistic organizational element

United States

national command

operational command and control

coordination

Appendix D

D-18 JP 3-16

(16) In the operation represented, US contingents assigned to the MNF operate

under OPCON of the relevant component commander, as has occurred in NATO Balkan

operations. Alternatively, US forces could participate in the operation as a JTF and be

supported through a combination of Service-specific logistic organizations and a joint

logistic organization responsible for providing CUL to US JTF units.

(17) In the structure depicted in Figure D-5 for a US-led multinational operation,

the relevant lead Service for CUL support of US forces also provides such support to PNs.

An MJLC, directed by the MNFC’s CJ-4, coordinates selected logistic activities (e.g., fuel

supply and distribution and medical support) with multinational partners through various

cells and boards. A JMC is also established. This structure is suited to operations where

only a few multinational partners contribute to a predominantly US MNF. The logistic

structure for the operation consists of US staff elements that are augmented with

multinational personnel to form an integrated joint structure.

(18) The logistics C2 structure for a non-US-led coalition operation may diverge

from the US or alliance models in various aspects. US logistic planners seek to influence

the MNL structure of a non-US-led coalition to be consistent with approved US joint

doctrine. However, US commanders and logistic staff should be prepared to operate within

C2 organizations that differ from those discussed within this publication.

(19) Figure D-6 represents a key feature of UN operations: responsibility for

logistic support may be shared between a force commander and a chief administrative

officer. This dual structure was developed to manage peace support operations involving

relatively few military forces (e.g., small peacekeeping contingents and observer teams)

that could be most efficiently supported through a single logistic organization. In several

larger, more recent operations, participating nations have been encouraged to provide their

own logistic support for their national contingents. (This support can be provided

organically or through bilateral/multilateral arrangements with other participating nations.)

Another option is that the US may be requested to serve as LN for the provision of selected

logistic support to the entire MNF, as the US did in UN operations in Somalia II. In this

case, the chief administrative officer exercised overall logistic coordination for the entire

UN mission—including the provision of support for other UN activities (such as election

monitoring and military observers)—but the US logistic group operated under the control

of the force commander.

(20) Other logistic C2 structures are possible. The key is that, in multinational

operations, there will almost always be a requirement for some centralized coordination or

management of common logistic support for the MNF. US commands and Services (and

their staffs) must be prepared to support US forces in a variety of multinational

organizational structures and, in the case of US-led operations, to establish logistic

organizations for coordinating logistic support for the entire MNF.

b. Incorporation of US Theater Logistics Management Considerations in

Multinational Operations

Multinational Logistics

D-19

(1) In alliance operations, US forces are guided by previously agreed on

processes and procedures. For coalition operations, STANAGs may also have been

previously concluded that determine the organization arrangements for an operation. For

example, within the ABCANZ Standardization Program, the participants have agreed to an

Army component logistic organization structure for multinational operations that comprise

two or more ABCANZ nations.

Figure D-5. Illustrative Logistic Command and Control Organization: United States-Led

Multinational Operation

Illustrative Logistic Command and Control Organization:

United States-Led Multinational Operation

Legend

C/JCC combined/joint contracting center

C/JMAB combined/joint materiel allocation board

C/JPO combined/joint petroleum office

CJ-4 combined-joint logistics office

CUL common-user logistics

C/JLOC combined/joint logistics operations center

C/JMC combined/joint movement center

MN multinational

MNFC multinational force commander

NSE national support element

SOF special operations forces

MNFC

Deputy

President/

Secretary of

Defense

US Component Logistic Command

Multinational Logistics

Organizations

(NSE)

Service Component Logistic

Command (CUL Provider)

SOF

Forces

Maritime

Forces

Land

Forces

Air

Forces

C/JLOC C/JCC

CJ-4

C/JMC

C/JMAB

C/JPO

SOF

Forces

Maritime

Forces

Land

Forces

Air

Forces

SOF

Component

Maritime

Component

Land

Component

Air

Component

National Forces

Command

Multinational

Governments

multinational command headquarters

multinational logistic organizational element

United States

allies/multinational partners

national command

operational command and control

coordination (multinational)

coordination (national)

coordination (allies/multinational partners)

Appendix D

D-20 JP 3-16

(2) In the case of US-led multinational operations, the US JFC is expected to

expand upon the tools available for managing joint logistic operations and adapt them to

Figure D-6. Illustrative Logistic Command and Control Organization: United Nations-

Commanded Multinational Operation

Illustrative Logistic Command and Control Organization:

United Nations-Commanded Multinational Operation

Legend

CAO chief administrative officer

CISS chief integrated support services

CIVPOL civilian police

COS chief of staff

DCOS deputy chief of staff

President/

Secretary of

Defense

Geographic

Combatant

Command

Secretary Council

Secretary General

Special

Representative

of the

Secretary General

CAO

Communications

CISS

DCOS

Logistics

Force

Commander

Military

Observers

Elected

Officials

SupplyTransportation

Engineering

Medical

Operations

Personnel

COS

Contractor

Chief of Staff

CIVPOL

Logistic

Operations

National

Contingent

National

Support

Elements

Bilateral Support

multinational command headquarters

multinational logistic organizational element

United States

allies/multinational partners

national command

operational command and control

coordination

Multinational Logistics

D-21

the multinational environment. Current US doctrine for the logistic support of joint

operations identifies the need to capitalize on the assets and capabilities available in theater

to facilitate support to the warfighter. Joint theater logistics management (JTLM) is one

way to help achieve a unified focus within the theater by integrating information, product

delivery, flexible response, and effective C2. JTLM ensures the right product is delivered

to the right place at the right time.

(3) Options for expanding JTLM organizational structures to manage MNL

include using a predominant Service organization as the nucleus operational logistic

activity to manage common requirements; expanding the logistic readiness center; and

using the lead Service, as directed by the CCDR, to provide CUL support (e.g., fresh water)

to multinational partners.

(4) Regardless of the approach, US staff conducting JTLM functions will need to

be augmented by personnel from participating nations to give the JTLM organization the

capability to manage MNL activities. The nucleus for the organization may be available

through US personnel currently staffing logistic readiness centers and/or from other logistic

commands not anticipated to participate in the operation as a unit. GCCs can facilitate

establishment of multinational JTLM organizations by conducting logistic staff

augmentation planning exercises with prospective regional multinational partners.

(5) The challenge for JTLM organizations in multinational operations is to gain

visibility of the logistic requirements and status of the total MNF. To the extent feasible,

JTLM organizations should strive to use improved communications and modern

technology to integrate the logistic reporting and information systems of participating

nations. Enhanced logistic connectivity may be difficult to achieve, however, because of

the differences in technological sophistication among participants and national

requirements for information security.

Appendix D

D-22 JP 3-16

Intentionally Blank

E-1

APPENDIX E

COMMANDER’S CHECKLIST FOR LOGISTICS IN SUPPORT OF

MULTINATIONAL OPERATIONS

1. General

Logistic operations as described in this publication cover a wide variety of subjects.

The checklist provided below offers the MNFC, the US JFC, and logisticians participating

in multinational operations a tool for use in planning logistic support.

2. Planning

a. Overall Mission-Force Organization-C2

_____ What is the nature of the operation—its specific mission, the size of the force, national

composition, and expected duration?

_____ Under what authority is the operation being conducted? UN? NATO? National

governments only?

_____ Will a combined joint task force (CJTF) be formed? What forces will be under

OPCON of the CJTF commander or MNFC? How is “OPCON” understood by participating

nations?

_____ What is the overall C2 structure of the force?

_____ Will the forces be organized along component or national lines?

_____ Does the OPLAN provide a summary of the requirements, taskings, and concept of

multinational operations that logistic planning must support?

b. Overall Logistics Planning

_____ Is the planning for the multinational operation under way concurrently by operation

and logistic planners?

_____ Has a JFC been designated to provide US input and interface with the multinational

planning element, especially for logistics?

_____ Will the US planning element represent both the operation and logistic communities?

_____ Have the force logistical concepts and requirements been determined and concisely

stated?

_____ Have logisticians assessed the feasibility and/or supportability and risks of the mission?

_____ Have logistic policies, processes, and reporting procedures been coordinated,

established, and promulgated throughout the force, and with key USG interagency partners,

international organization, or NGO partners as appropriate?

Appendix E

E-2 JP 3-16

_____ Is a listing available of national doctrinal, policy, and procedural publications

appropriate to the level at which the plan is prepared? Are multinational and joint Service

references included where applicable?

_____ Have logistics-related assumptions been stated and are they realistic?

_____ Has the MNFC identified financial responsibilities of all of the participants and

developed reimbursement procedures for CUL support?

_____ Has logistics support been planned for all phases of the operation?

_____ Does the US have any logistic agreements with any of the participating nations?

_____ How deep into the US held stocks are we willing to reach in support of PNs?

_____ Have the logisticians looked at the GCC’s theater distribution plans (TDPs) on

multinational movement support?

_____ Is there a requirement to build one or more contingency bases to support MNF

operations for US and PN forces?

c. Logistic C2 Relationships and Organization

_____ What is the logistic C2 organization for the operation? Will an MJLC or equivalent

organization be established, or will the CJ-4 (and staff) manage and coordinate MNF

logistics? If established, where will the MJLC be located in the C2 structure?

_____ Has the multinational command structure been designed to eliminate unnecessary

duplication of logistic functions?

_____ Has the US structure been similarly aligned?

_____ Are the responsibilities for support clearly stated for the following? Are they aligned

with the correct authority?

(1) Supporting command(s)

(2) Supported command(s)

(3) HNS

(4) Other Services

(5) Multinational partners

(6) NSE

_____ What directive authority, if any, will the MNFC have over logistic support for the

MNF? Will the MNFC have OPCON over any logistic units or resources?

Commander’s Checklist for Logistics in Support of Multinational Operations

E-3

_____ Will the MNFC have “redistribution” authority over national logistic assets, and to

what extent has the US accepted such authority? What limits has the US imposed on MNFC

redistribution of US logistic assets?

_____ Have coordinating centers been established for movement control, medical support,

OCS, engineering, and logistic operations?

(1) Where will they be assigned?

(2) What authority will such centers have?

_____ For non-US-led operations, what (if any) US logistic elements will be attached to

multinational HQ?

_____ For US-led operations, what plans exist for incorporating PN staff into US logistic

C2 and operational organizations? What arrangements have been made to facilitate

integrating PN personnel into US logistic organizations (e.g., introduction to US systems

and procedures)?

_____ Have logistic supported and supporting command relationships been established or

referred to higher HQ for resolution?

_____ Will the US establish an NSE?

_____ Will the mission of the US NSE be to support all US components, or will there be

separate NSEs for each US component of the MNF?

_____ Will US NSE(s) have any responsibilities for providing support to non-US

contingents?

_____ Where will NSE(s) be located?

_____ What US liaison elements are needed?

_____ Does the US have a process to ensure US liaison elements on multinational command

staffs possess requisite authorities and have a full understanding of both US and

multinational objectives?

_____ What multinational liaison elements are needed, who will provide them, what

qualifications should they have, and where will they go?

_____ Are all the JDDOCs logistical C2 relationships and organizations specified in the

GCC’s TDP?

d. Logistic Communications and Information Systems

_____ Have the communications and intelligence systems been established to rapidly

disseminate time-sensitive, logistic-related information to all participants?

Appendix E

E-4 JP 3-16

_____ What automated logistic information planning tools are available to support COA

analysis and to assist the MNFC logistic staff in ensuring operational priorities are fully

supported? Is a coalition logistic database available to support logistic planning? Are

participating nations being encouraged to populate the database with up-to-date

information that is usable by coalition logistic planners?

_____ Are national logistic information systems interoperable, and are workarounds or

contingency measures being implemented to facilitate exchange of critical logistic

information?

_____ What mechanisms are in place to protect logistic information databases and

communications systems to ensure continuous logistic support in case of a cyberspace

attack?

_____ Are there sufficient interpreters available for both planning and execution?

_____ Are all logistical information planning tools located in the GCC’s TDP?

e. MNL Support Arrangements

_____ What is the concept for using RSN, LN, and multinational integrated logistic unit

(MILU) arrangements for providing CUL support to the MNF? Have requirements for

such arrangements been identified and particular nations, with the requisite capabilities,

assigned the relevant responsibilities?

_____ Has the US offered to assume RSN, LN, or MILU responsibilities? For what

specific logistic functions and geographic area?

_____ To what extent can the US use theater support contracts to provide logistic support

to MNF contingents? What arrangements (legal and otherwise) need to be implemented

to allow for such use of US external support contract capabilities?

_____ If multinational theater support contract programs have been previously

established, can such capabilities be used to provide CUL in the planned operation?

_____ Are the logistic capabilities of all participating nations—large and small—being

fully leveraged through use of MNL arrangements to ensure the most operationally

effective and efficient support of the MNF with the smallest logistics footprint?

_____ Are smaller participating nations that have compatible equipment encouraged to

link together to enhance mutual support?

_____ What are the implications of planned MNL arrangements for the size and structure of

US logistic forces assigned to the operation and the time-phased deployment of specific units?

_____ Is there a requirement for an MNF-wide mutual support agreement to facilitate

mutual support among all participating nations? Is the US able to participate in such an

agreement?

Commander’s Checklist for Logistics in Support of Multinational Operations

E-5

_____ Is there a requirement for waivers to US legal authorities to conduct mutual

logistic support with other nations?

_____ What action is being taken to obtain waivers (if required) to US legal authorities

to conduct mutual logistic support with other nations?

_____ What US element is charged to ensure the necessary ACSAs and related

implementing agreements are in place with participants?

_____ Does the US have an ACSA with each participating nation? If not, what will be

the legal mechanism for exchanging logistic support?

_____ What is the opportunity for the US to develop or use existing bilateral and

multilateral agreements with PN involved in the operation?

_____ To what extent do participating nations have open foreign military sales cases with

the US to facilitate participating in US logistic support?

_____ Is the MNFC aware of existing agreements among participating nations in the

form of bilateral or multilateral arrangements, funding, and training?

_____ Are all MNL support arrangements located in the GCC’s TDP?

f. Logistic Capabilities/Certification

_____ What level of sustainment stocks is mandated by the MNFC to maintain in the

OA? What level should US forces maintain?

_____ Are forces—MNF and US—sufficiently robust “logistically” to respond to

increased levels of operational intensity?

_____ Have standards regarding logistic capabilities been established and what

organization will inspect and ascertain compliance with logistic-related standards prior to

deployment?

_____ Does the MNF logistic staff possess the requisite information regarding

participant logistic capabilities in order to properly coordinate MNF logistics? Are there

measures the MNF staff can take to assist nations in ameliorating any logistic

deficiencies?

_____ Is there a requirement for a formal logistic certification process, and, if so, how

can it be conducted with maximum cooperation and understanding among participating

nations?

g. Managing Allocation of HNS

_____ What are the MNF requirements for logistic support provided from sources in the

OA?

Appendix E

E-6 JP 3-16

_____ What infrastructure and other HN logistic resources are available in the OA to meet

MNF requirements?

_____ What defense articles and services is the HN willing to provide and under what

reimbursement conditions, and what resources must be procured through contracts with

local providers?

_____ How is HNS provision and allocation to be managed and coordinated? Is the MNFC

authorized by nations to negotiate HNS agreements on behalf of nations and to prioritize

allocation?

_____ Have the appropriate coordination channels been established with the HN to ensure

timely provision of HNS where it is most needed? Have the US and other MNF nations

established liaison teams in the MNF HQ and at key HNS locations to coordinate the

provision of HNS to national contingents?

_____ What HNS agreements do the US and other MNF nations already have in place with

HNs? How are pre-existing bilateral HNS arrangements to be integrated into a total MNF

HNS structure?

_____ Have MNF nations agreed on a policy for reconciling conflicts in HNS allocation

among nations?

h. Contracting

_____ Is the MNFC authorized to coordinate multinational contracting efforts in the OA

in order to ensure priorities are efficiently supported?

_____ Has the MNF HQ organization that will manage this process been identified?

_____ Are the MNF contracting policies and processes available?

_____ Is a “restricted items list” required to manage contracting for scarce resources in the

OA?

_____ Will the MJLC or equivalent organization be required to negotiate contracts for the

entire MNF? If so, have participating nations assigned requisite personnel to the MNF

contracting center?

_____ Does the US plan to use external support contracts during the operation?

_____ Who will manage this process?

_____ Will there be a single MNF manager for external support contracts to include

HNS, LOGCAP, AFCAP, and other contracted support?

_____ Who will be the US manager to interface into this process?

Commander’s Checklist for Logistics in Support of Multinational Operations

E-7

_____ Has the US identified the main point of contact of contractor personnel, including

both theater and external support contractors?

_____ Are all OCS requirements located in the GCC’s TDP?

i. Common Funding

_____ Will common funding be available to support multinational common costs and

expenditures?

_____ Has it been determined if or to what extent operational-related expenses will be

reimbursed from common funding or sources external to national funding by the

participating nations?

_____ Has the US identified funding to support operations and/or to provide

reimbursement of expenditures from existing budgets?

j. SOFAs/TAs

_____ Who is responsible for negotiating a SOFA with the HN(s), including transited

nations? What is the status of SOFA negotiations?

_____ Who is responsible for negotiating the TAs to supplement the SOFA?

_____ What logistics-related issues/items need to be addressed in the SOFA and TA(s)?

For example, are US and other national contractors properly included as part of the MNF

for purposes of SOFA rights and obligations?

_____ What US elements are participating in these negotiations?

_____ Has the appropriate authority been delegated to the MNFC to negotiate and

conclude with multinational partners agreements deemed necessary to conduct the

planned operation?

k. Relations with NGOs, International Organizations, and Local Populations

_____ How will MNF logistic HQ coordinate with NGOs and international

organizations? Will a CMOC be established for this purpose? If NATO is participating,

will country cluster coordination meetings be held?

_____ What MNF logistic organizational element is authorized as the main point of

contact with international organizations and NGOs?

_____ What efforts have been made to obtain logistics-related information from

international organizations and NGOs operating in the area and to take advantage of their

knowledge and contacts in the OA?

Appendix E

E-8 JP 3-16

_____ What efforts have been made to coordinate activities with such organizations to

reduce competition for local resources, enhance operational efficiency, and eliminate

redundancy in operations?

_____ What is the MNF concept for providing logistic support for the restoration of local

government and other civil-military activities? What are the MNF and US logistic

requirements to support local populations?

_____ What is the MNF concept for assisting local governments and populations through

acquisition of local goods and services?

l. Engineering

_____ What is the MNF concept for general engineering, combat engineering, geospatial

support? How will MNF engineering activities be coordinated? Through what

organizations?

_____ Have required projects been identified that benefit the entire MNF (e.g., bridge and

main supply route construction)?

_____ What resources will be used to execute these projects? Who will provide the

resources?

_____ To what extent are HNS and commercial resources available for such projects? What

governmental, nongovernmental, and international organizations provide engineer logistical

support in the OA? How can MNFs leverage or be supplemented by those assets?

m. Explosive Ordnance Disposal (EOD)

_____ What is the MNF EOD plan? How will EOD activities be coordinated? Through

what organizations? What resources will be used to execute EOD operations? Who will

provide the resources?

_____ What are the logistic support requirements for that plan?

_____ If humanitarian demining operations are to be conducted, are US forces trained in the

restrictions of demining placed on US forces?

n. Joint Health Services

_____ What is the MNF concept for medical support? What level of capability are nations

required to provide their forces in the OA? What medical policy and guidance has been

issued to participating nations?

_____ What organizational element will coordinate medical support for the MNF during the

operation? Have nations identified skilled personnel to staff the multinational medical

coordination center?

Commander’s Checklist for Logistics in Support of Multinational Operations

E-9

_____ Are there any existing medical support agreements among participating nations or

with the HN? What opportunities exist for multinational arrangements to consolidate and

rationalize medical support in the OA? Have LN and RSN health service responsibilities

been assigned to nations? Is there a role for multinational integrated medical units?

_____ What medical materiel (supplies and equipment) can the US offer to provide MNF

contingents? Has the US JFC notified the MNF chief medical officer of all US legal

restrictions that pertain to providing medical support to other nations’ personnel and the

terms and conditions of such support?

_____ What restrictions apply to US acceptance of medical support from other countries?

_____ What is the quality of the medical capability in the OA?

_____ To what extent does US intend to contribute to and use an MNF blood bank?

_____ Is there any plan for the US forces to develop an initial preplanned supply support

package?

_____ What are the approved commercial sources of medical products?

_____ Are medical treatment facilities identified to support the operation? What is the status

of medical evacuation (MEDEVAC) (intratheater) and aeromedical evacuation (intratheater

and intertheater) plans?

_____ To what extent will US strategic aeromedical evacuation or battlefield MEDEVAC

(air and ground) capabilities be required to support the MNF?

_____ What is the MNF and US theater (aeromedical evacuation and MEDEVAC) (air and

ground) policy?

_____ What is the process of reimbursement between US and multinational partners

regarding the provision and receipt of medical assistance, including (aeromedical evacuation

and MEDEVAC) (air and ground)?

_____ Have necessary provisions been made to allow rendering of such health services to

foreign forces?

_____ Are all medical services accounted for in GCC’s TDP?

o. Health Services

_____ What diseases exist in country?

p. CBRN Threats

_____ Are CBRN threats known and are US and MNF medical facilities prepared to cope

with them (including prophylaxis and pretreatment)?

Appendix E

E-10 JP 3-16

_____ What diseases exist in country?

_____ What plans do the US and the MNF have to decontaminate personnel and materiel

and provide contamination mitigation and consequence management support?

_____ To what extent will the MNF and the US need to provide such support to the local

civilian population?

_____ Will multinational laboratory support provide for the identification and

confirmation of biological and chemical warfare agents and support selected

biomonitoring requirements?

_____ Are alternate sites and capabilities identified in the event that key logistics nodes

and infrastructure are subjected to CBRN hazards?

_____ Are essential contractors and key civilian workers included in CBRN FP

planning?

q. Mortuary Affairs

_____ Are mortuary affairs procedures in place to process multinational decedents, to

include recognition of culture differences and timely return to national authorities?

_____ Are all mortuary affairs activities accounted for in GCC’s TDP?

r. Detainee Management

_____ What is the MNF plan to handle and care for detainees? What are the US plan,

role, and responsibilities?

_____ What will be detainee turn-over procedures and to what nation?

s. FP

_____ What guidance has the MNFC issued regarding FP?

_____ What arrangements have been made with HNs and PNs for FP, especially in rear

areas?

_____ What FP, if any, will be provided by HN and/or multinational partners to US

forces, and what FP will the US be required to provide other national contingents of the

MNF?

_____ Will there be a lead rear area security coordinator? What are the responsibilities

of logistic units to provide local security and to coordinate with the lead rear area security

organization?

_____ What element is responsible for FP planning?

Commander’s Checklist for Logistics in Support of Multinational Operations

E-11

_____ What element will be responsible to identify FP threats?

_____ Has munitions site planning been conducted?

_____ Have munitions control/security procedures been established?

t. Operational Energy

_____ Has the staff requested contingents provide estimated power requirements?

u. Environmental Hazardous Waste

_____ Has the staff legal office been consulted regarding applicable HN and other

environmental law?

_____ What is the higher authority guidance regarding environmental law and policy issues?

_____ What legal restrictions apply, if any, including the restrictions on the use of

appropriated funds or the requirement to notify the CJCS, the Office of the Secretary

Defense, or Congress?

_____ What, if any, MNFC guidance should be promulgated?

_____ Has an environmental checklist been prepared for use by contingents in assuming

responsibility for intratheater facilities?

_____ What are the applicable HN and other laws and policies relative to the

handling, movement, storage, and disposal of hazardous material?

_____ Has the staff requested contingents provide estimated power requirements?

_____ Has the staff estimated base camp power requirements and developed an efficient

power production and distribution plan?

_____ Has an energy surety checklist been prepared to assist contingent in identifying

and prioritizing critical infrastructure and systems?

3. Deployment

_____ What automated system will be used to establish and execute the TPFDD?

_____ What will be the US contribution to strategic lift of forces other than US?

_____ Has the deployment plan deconflicted NGO/international organization and contractor

transportation requirements in order to avoid competition for limited transportation

infrastructure?

_____ What LOCs are to be established?

Appendix E

E-12 JP 3-16

_____ What will be the responsibilities assigned relative the LOCs from reception to

intratheater destinations?

_____ What en route support will national elements require?

_____ What role will the multinational HQ play with regard to contributing nations and

en route support?

_____ What is the MNF requirements determination process for flowing the forces into

the theater?

_____ Has an MNF TPFDD/TPFDL been established? What is the method of insertion

of forces into the theater?

_____ Is there a need for a logistics over-the-shore operation? If so, is that identified in

a separate plan?

_____ What is the MNF plan to manage the flow of force into the OA for the MNFC?

_____ What will be the US management and operational responsibilities to support

deployment?

_____ What is the MNF plan to use US strategic lift capability to support deployment?

_____ What will be the reception ports of entry (to include border crossing points) into

the

OA?

_____ What are MNF security arrangements for the POEs/PODs?

_____ What LOCs will be used?

_____ What is the plan to manage use of the LOCs?

_____ What LOC will the US use?

_____ What will be the US responsibilities for that LOC?

_____ What is MNF reception, staging, and onward movement plan to include en

route support for US forces?

_____ Has the MNFC selected and allocated staging areas and tactical unit assembly areas?

_____ What staging areas and tactical assembly areas have been allocated by the MNFC

for US use?

_____ What MNF agreements have been made for en route support of deploying forces,

to include the US?

_____ Is the MNFC obtaining clearances for MNF elements transiting en route nations?

Commander’s Checklist for Logistics in Support of Multinational Operations

E-13

_____ What is the MNF security plan for reception points in objective area?

_____ What is the MNF plan for coordinating international organization and NGO

movement into the OA?

_____ What is the process to manage road and rail movement into and out of the theater?

_____ Who has that management responsibility?

_____ Who will be the US manager of that flow?

_____ What are the reception requirements for the force moving by these modes?

_____ Who has highway regulation and control responsibility?

_____ Have custom and border clearances been planned for? Obtained? By whom?

_____ What HNS will be available, if any, to support US forces deploying into

the OA?

_____ What MNF and US logistic capabilities need to be deployed very early?

_____ What initial assets has the MNFC identified as requiring visibility during

deployment?

_____ Does the US agree to provide such visibility to MNFC? To what extent will this

information be shared with other MNF participants?

_____ What is the mechanism and frequency of reporting such information?

_____ Is there an FP plan covering force deployment?

4. Termination/Redeployment

The checklist for deployment also applies in large measure to the redeployment process.

The following represent some additional issues associated with termination and

redeployment.

_____ Has the end state, exit strategy, and redeployment plan been developed by the

MNFC?

_____ What is the status of the US redeployment plan?

_____ Have the redeployment TPFDD and TPFDL been developed and validated?

_____ What are the HN and US customs/agriculture requirements?

Appendix E

E-14 JP 3-16

_____ Have the US Customs and Border Clearance agencies, particularly the US

Department of Agriculture, been contacted to determine requirements for returning cargo

and passengers?

_____ If articles are left in theater, what are the procedures for transferring or disposing

of those articles?

_____ What US forces, equipment, and materiel will remain in theater?

_____ What are the support requirements for this force?

_____ What MNF forces and materiel will remain in place?

_____ What is the MNF plan to dispose of excess or unusable or equipment where

transportation costs exceed new purchase costs?

_____ What is the MNF plan for disposal of hazardous items?

_____ What is the MNF FP plan for withdrawing forces?

_____ What logistic support will be required for withdrawal?

_____ What is the MNF close-out plan for facilities? Does it include a checklist for

environmental issues?

_____ What will be the role of LOGCAP, AFCAP, and NAVFAC contingency

construction and service contracts during US withdrawal?

_____ What is the estimated cost for facility restoration?

_____ Who will pay for the restoration? US or common funding?

_____ What is the plan to dispose of equipment procured through MNF resources?

_____ What is the destination for US equipment?

_____ What are the equipment readiness standards to be met before being redeployed?

_____ Where will withdrawing equipment be brought to standards? Are facilities

adequate for the task?

_____ Have standards been established for equipment being relocated?

_____ Are there applicable accounting procedures for reporting financial expenditures and

have reimbursement procedures been initiated?

_____ What is the plan to transition or close contingency bases as US forces draw down and

redeploy?

Commander’s Checklist for Logistics in Support of Multinational Operations

E-15

5. Transition Considerations

_____ Is a transitional plan available to facilitate deployment and operational assumption of

in-place contracts, equipment, facilities, and personnel belonging to another agency or

alliance?

_____ Will the US be asked to provide additional logistic resources or units to support the

operation?

_____ To what extent can other participating nations provide logistic resources that will

reduce the US logistic contribution to the operation?

_____ To what extent have the additional logistic requirements of the operation been

rationalized given the increased scope of the operation?

_____ To what extent has the logistic structure been identified to meet logistic requirements

above the maneuver unit level (e.g., corps or theater-level logistic units).

_____ How will the US JTF C2 structure be affected? Will the US assume command of

the operation?

_____ If the US is to lead the operation, to what extent will its C2 organization be augmented

by personnel from other participating nations?

_____ Will an MNFC be established to coordinate logistic support for the operation?

_____ What degree of authority for logistics will be given for the operation?

_____ How will costs of the operation be apportioned among participating members?

_____ To what degree will up-front common funding be made available and for what uses?

_____ Is there a need to develop MOAs to formalize relations among the participating

nations? Is there authority to negotiate and conclude such agreements? Have appropriate

MOAs been developed?

_____ What modifications are necessary to existing SOFAs and TAs to accommodate

forces from the additional countries? Is there authority to negotiate and conclude such

agreements?

_____ What agreements are necessary to permit the redistribution of logistic resources

during emergency conditions? Is there authority to negotiate and conclude such

agreements? Have all participating nations agreed to those provisions?

_____ To what extent will US logistic policies and procedures be changed to satisfy

either

UN or regional alliance policies and procedures?

_____ Have logistic policies, procedures, processes, and reporting requirements been

identified and promulgated?

Appendix E

E-16 JP 3-16

_____ Has the ability of transferred units to support themselves and/or logistic

deficiencies

been identified?

_____ If a NATO operation, to what extent and in what areas will NATO STANAGs be

used?

_____ Will the participating nations provide logistically robust units that are self-

sufficient?

_____ To what extent can existing contracts supporting US forces be amended to

support the additional forces?

F-1

APPENDIX F

POINTS OF CONTACT

Joint Staff/J-7/Joint Education and Doctrine/Doctrine Division and Joint and Allied

Doctrine Integrator/Joint Lessons Learned Division

Website: http://www.jcs.mil/doctrine/

E-mail: [email protected]

Phone: 703-692-7273

DSN: 222-7273

Lead Agent and Joint Staff Doctrine Sponsor/J-5/Director for Strategic Plans and

Policy/Deputy Director Transregional Threats Coordination Cell (DDT2C2)/

Multinational Operations Division (MOD)

Phone: 703-614-9349

DSN: 224-9349

GS LeMay Center

E-mail: [email protected]

Command: USAF

Phone: 334-953-7597

DSN: 493-7597

United States Northern Command (USNORTHCOM)/Homeland Defense, Policy,

Strategy and Doctrine Branch, N&NC/J521/Strategy, Policy, and Doctrine Division,

N&NC/J52

Phone: 719-554-1475

United States European Command (USEUCOM)

Phone: 497116805999

DSN: 314-430-5999

United States Central Command (USCENTCOM)

Phone: 813-529-5215

DSN: 529-5215

United States Army (USA)

Phone: 703 695-5242

United States Special Operations Command (USSOCOM) SOCOM_FMD_J9-D

E-mail: [email protected]

Command: USSOCOM

Phone: 813-826-5531

United States Strategic Command (USSTRATCOM)

Phone: 402-294-2923

DSN: 271-2923

Appendix F

F-2 JP 3-16

National Guard Bureau (NGB) Joint Staff (JS), Army National Guard (ARNG), and

Air National Guard (ANG)

Phone: 703-601-6791 and 703- 607-3218

United States Southern Command (USSOUTHCOM)

Phone: 305-437-1049

DSN: 567-1049

United States Coast Guard (USCG)

Phone: 202-372-1096

G-1

APPENDIX G

REFERENCES

The development of JP 3-16 is based upon the following primary references.

1. General

a. National Security Presidential Memorandum-4, Organization of the National

Security Council, the Homeland Security Council, and Subcommittees.

b. NDP-1, National Policy and Procedures for the Disclosure of Classified Military

Information to Foreign Governments and International Organizations.

c. National Security Decision Memorandum 119, Disclosure of Classified United

States Military Information to Foreign Governments and International Organizations.

d. Director of Central Intelligence Directive 6/7, National Disclosure Policy.

e. National Strategy for Information Sharing.

f. Guidance for the Employment of the Force.

2. Department of Defense Publications

a. DODD 2010.9, Acquisition and Cross-Servicing Agreements.

b. DODD 2310.01E, DOD Detainee Program.

c. DODD 2311.01E, DOD Law of War Program.

d. DODD 3000.03E, DOD Executive Agent for Non-Lethal Weapons (NLW), and NLW

Policy.

e. DODD 5100.01, Functions of the Department of Defense and Its Major Components.

f. DODD 5101.1, DOD Executive Agent.

g. DODD 5132.03, DOD Policy and Responsibilities Relating to Security Cooperation.

h. DODD 5205.02E DOD Operations Security (OPSEC) Program.

i. DODD 5230.11, Disclosure of Classified Military Information to Foreign Governments

and International Organizations.

j. DODD 5530.3, International Agreements.

k. DODI 3000.05, Stability Operations.

Appendix G

G-2 JP 3-16

l. DODI 5000.64, Accountability and Management of DOD Equipment and Other

Accountable Property.

m. DODI 5000.68, Security Force Assistance (SFA).

n. DODI 8523.01, Communications Security (COMSEC).

o. DOD Manual 5200.01, Volume 1, DOD Information Security Program: Overview,

Classification, and Declassification.

p. DOD Manual 5200.01, Volume 3, DOD Information Security Program: Protection

of Classified Information.

q. DOD 7000.14R, Department of Defense Financial Management Regulation

(FMRS), Volume 15, Security Cooperation Policy.

r. DOD Information Sharing Strategy.

3. Chairman of the Joint Chiefs of Staff Publications

a. CJCSI 2700.01F, Rationalization, Standardization, and Interoperability (RSI) Activities.

b. CJCSI 3110.01J, (U) 2015 Joint Strategic Capabilities Plan (JSCP).

c. CJCSI 3110.05F, Military Information Support Operations Supplement to the Joint

Strategic Capabilities Plan.

d. CJCSI 3121.01B, (U) Standing Rules of Engagement/Standing Rules for the Use of

Force for US Forces.

e. CJCSI 5715.01C, Joint Staff Participation in Interagency Affairs.

f. CJCSI 5810.01D, Implementation of the DOD Law of War Program.

g. CJCSI 6510.06C, Communication Security Releases to Foreign Nations.

h. JP 1, Doctrine for the Armed Forces of the United States.

i. JP 1-0, Joint Personnel Support.

j. JP 2-0, Joint Intelligence.

k. JP 2-01, Joint and National Intelligence Support to Military Operations.

l. JP 2-03, Geospatial Intelligence Support in Joint Operations.

m. JP 3-0, Joint Operations.

n. JP 3-01, Countering Air and Missile Threats.

References

G-3

o. JP 3-03, Joint Interdiction.

p. JP 3-05, Special Operations.

q. JP 3-07, Stability.

r. JP 3-07.3, Peace Operations.

s. JP 3-07.4, Counterdrug Operations.

t. JP 3-08, Interorganizational Cooperation.

u. JP 3-09, Joint Fire Support.

v. JP 3-11, Operations in Chemical, Biological, Radiological, and Nuclear Environments.

w. JP 3-12, Cyberspace Operations.

x. JP 3-13, Information Operations.

y. JP 3-13.1, Electronic Warfare.

z. JP 3-13.2, Military Information Support Operations.

aa. JP 3-14, Space Operations.

bb. JP 3-18, Joint Forcible Entry Operations.

cc. JP 3-22, Foreign Internal Defense.

dd. JP 3-24, Counterinsurgency.

ee. JP 3-26, Counterterrorism.

ff. JP 3-29, Foreign Humanitarian Assistance.

gg. JP 3-30, Joint Air Operations.

hh. JP 3-31, Joint Land Operations.

ii. JP 3-32, Joint Maritime Operations.

jj. JP 3-33, Joint Task Force Headquarters.

kk. JP 3-34, Joint Engineer Operations.

ll. JP 3-50, Personnel Recovery.

mm. JP 3-52, Joint Airspace Control.

Appendix G

G-4 JP 3-16

nn. JP 3-57, Civil-Military Operations.

oo. JP 3-59, Meteorological and Oceanographic Operations.

pp. JP 3-61, Public Affairs.

qq. JP 3-63, Detainee Operations.

rr. JP 3-68, Noncombatant Evacuation Operations.

ss. JP 4-0, Joint Logistics.

tt. JP 4-02, Joint Health Services.

uu. JP 4-09, Distribution Operations.

vv. JP 4-10, Operational Contract Support.

ww. JP 5-0, Joint Planning.

xx. JP 6-0, Joint Communications System.

yy. JP 6-01, Joint Electromagnetic Spectrum Management Operations.

zz. JDN 3-16, Joint Electromagnetic Spectrum Operations.

4. Multinational Publications

a. AJP-3, Allied Joint Doctrine for the Conduct of Operations.

b. AJP-3.2, Allied Joint Doctrine for Land Operations.

c. AJP-3.4, Allied Joint Doctrine for Non Article 5 Crisis Response Operations.

d. AJP-3.4.2, Allied Joint Doctrine for Non-Combatant Evacuation Operations.

e. AJP-3.4.3, Allied Joint Doctrine for the Military Contribution to Humanitarian

Assistance.

f. AJP-3.4.5, Allied Joint Doctrine for the Military Contribution to Stabilization and

Reconstruction.

g. AJP-3.4.9, Allied Joint Doctrine for Civil-Military Cooperation.

h. AJP-3.5, Allied Joint Doctrine for Special Operations.

i. AJP-3.7, Allied Joint Doctrine for Recovery of Personnel in a Hostile Environment.

References

G-5

j. AJP-3.8, Allied Joint Doctrine for the Chemical, Biological, Radiological and

Nuclear Defence.

k. AJP-3.12, Allied Doctrine for Engineer Support to Joint Operations.

l. AJP-3.14, Allied Joint Doctrine for Force Protection.

m. AJP-4, Allied Joint Logistic Doctrine.

n. AJP-6, Allied Joint Doctrine for Communications and Information Systems.

5. Other Publications

a. Army Techniques Publication 3-94.1, Digital Liaison Detachment.

b. Army Techniques Publication 3-22.40/Marine Corps Warfighting Publication 3-

15.8/Navy Tactics, Techniques, and Procedures 3-07.3.2/Air Force Tactics, Techniques,

and Procedures 3-2.45/Coast Guard Tactics, Techniques, and Procedures 3-93.2, Multi-

Service Tactics, Techniques, and Procedures for the Employment of Nonlethal Weapons.

c. MPAT concept and supporting information, www.mpat.org or

https://community.apan.org/mpat.

d. MPAT, Multinational Force Standing Operating Procedures (MNF-SOP),Version

3, 11 August November 2017, https://community.apan.org/wg/mpat/p/sop.aspx.

e. Multinational Interoperability Council, Coalition Building Guide, 3rd Edition,

Version 1.3, March 2015 Version 1, 7 November 2012,

https://community.apan.org/wg/mic/p/coalition_building_guide.https://community.apan.o

rg/wg/mic/.

f. National Strategy for Information Sharing.

g. Peacekeeping and Stability Operations Institute, US Army War College, Protection

of Civilians Military Reference Guide (Second Edition), January 2018

http://pksoi.armywarcollege.edu/default/assets/File/PoC_MilRefGd_2nd_ed_Web_reduc

ed.pdf.

Appendix G

G-6 JP 3-16

Intentionally Blank

H-1

APPENDIX H

ADMINISTRATIVE INSTRUCTIONS

1. User Comments

Users in the field are highly encouraged to submit comments on this publication using the

Joint Doctrine Feedback Form located at: https://jdeis.js.mil/jdeis/jel/jp_feedback_form.pdf

and e-mail it to: js.pentagon.j7.mbx.jedd-support@mail.mil. These comments should address

content (accuracy, usefulness, consistency, and organization), writing, and appearance.

2. Authorship

a. The lead agent and the Joint Staff doctrine sponsor for this publication is the

Director for Strategic Plans and Policy (J-5).

b. The following staff, in conjunction with the joint doctrine development community,

made a valuable contribution to the revision of this joint publication: lead agent and Joint

Staff doctrine sponsor, Mr. Charles C. Pattillo Jr., Director for Strategic Plans and Policy

(J-5)/Deputy Director Transregional Threats Coordination Cell (DDT2C2)/Multinational

Operations Division (MOD); Mr. Glenn P. Palmer and Mr. Craig R. Corey, Joint Staff J-

7, Joint Doctrine Analysis Branch; and Mr. Peter L. Croteau, Joint Staff J-7, Joint Doctrine

Branch.

3. Supersession

This publication supersedes JP 3-16, Multinational Operations, 16 July 2013.

4. Change Recommendations

a. To provide recommendations for urgent and/or routine changes to this publication,

please complete the Joint Doctrine Feedback Form located at:

https://jdeis.js.mil/jdeis/jel/jp_feedback_form.pdf and e-mail it to:

js.pentagon.j7.mbx.jedd-support@mail.mil.

b. When a Joint Staff directorate submits a proposal to the CJCS that would change

source document information reflected in this publication, that directorate will include a

proposed change to this publication as an enclosure to its proposal. The Services and other

organizations are requested to notify the Joint Staff J-7 when changes to source documents

reflected in this publication are initiated.

5. Lessons Learned

The Joint Lessons Learned Program (JLLP) primary objective is to enhance joint force

readiness and effectiveness by contributing to improvements in doctrine, organization,

training, materiel, leadership and education, personnel, facilities, and policy. The Joint

Lessons Learned Information System (JLLIS) is the DOD system of record for lessons

learned and facilitates the collection, tracking, management, sharing, collaborative

resolution, and dissemination of lessons learned to improve the development and readiness

Appendix H

H-2 JP 3-16

of the joint force. The JLLP integrates with joint doctrine through the joint doctrine

development process by providing lessons and lessons learned derived from operations,

events, and exercises. As these inputs are incorporated into joint doctrine, they become

institutionalized for future use, a major goal of the JLLP. Lessons and lessons learned are

routinely sought and incorporated into draft JPs throughout formal staffing of the

development process. The JLLIS Website can be found at https://www.jllis.mil

(NIPRNET) or http://www.jllis.smil.mil (SIPRNET).

6. Distribution of Publications

Local reproduction is authorized, and access to unclassified publications is

unrestricted. However, access to and reproduction authorization for classified JPs must be

IAW DOD Manual 5200.01, Volume 1, DOD Information Security Program: Overview,

Classification, and Declassification, and DOD Manual 5200.01, Volume 3, DOD

Information Security Program: Protection of Classified Information.

7. Distribution of Electronic Publications

a. Joint Staff J-7 will not print copies of JPs for distribution. Electronic versions are

available on JDEIS Joint Electronic Library Plus (JEL+) at https://jdeis.js.mil/jdeis/index.jsp

(NIPRNET) and https://jdeis.js.smil.mil/jdeis/generic.jsp (SIPRNET), and on the JEL at

http://www.jcs.mil/doctrine (NIPRNET).

b. Only approved JPs are releasable outside the combatant commands, Services, and

Joint Staff. Defense attachés may request classified JPs by sending written requests to

Defense Intelligence Agency (DIA)/IE-3, 200 MacDill Blvd., Joint Base Anacostia-

Bolling, Washington, DC 20340-5100.

c. JEL CD-ROM. Upon request of a joint doctrine development community member,

the Joint Staff J-7 will produce and deliver one CD-ROM with current JPs. This JEL CD-

ROM will be updated not less than semi-annually and when received can be locally

reproduced for use within the combatant commands, Services, and combat support

agencies.

GL-1

GLOSSARY

PART I—ABBREVIATIONS, ACRONYMS, AND INITIALISMS

AADC area air defense commander

ABCANZ American, British, Canadian, Australian,

and New Zealand

ACA airspace control authority

ACSA acquisition and cross-servicing agreement

AFIC Five Eyes Air Force Interoperability Council

AJP Allied joint publication

AMCC allied movement coordination center

AO area of operations

APAN All Partners Access Network

AUSCANNZUKUS Australia, Canada, New Zealand, United Kingdom,

United States

C2 command and control

CA civil affairs

CAAF contractors authorized to accompany the force

CAO civil affairs operations

CBG coalition building guide

CBRN chemical, biological, radiological, and nuclear

CCC coalition coordination center

CCDR combatant commander

CCEB Combined Communications-Electronics Board

CCMD combatant command

CCP combatant command campaign plan

CD counterdrug

CEWCC combined electronic warfare coordination cell

CID combat identification

CIMIC civil-military cooperation

CJ-4 combined-joint logistic office

CJCS Chairman of the Joint Chiefs of Staff

CJCSI Chairman of the Joint Chiefs of Staff instruction

CJTF combined joint task force (NATO)

CMO civil-military operations

CMOC civil-military operations center

COA course of action

COMSEC communications security

CONOPS concept of operations

CONPLAN concept plan

CUL common-user logistics

CWMD countering weapons of mass destruction

DCA defense cooperation agreement

DLD digital liaison detachment

Glossary

GL-2 JP 3-16

DOD Department of Defense

DODD Department of Defense directive

DODI Department of Defense instruction

DOS Department of State

ECC engineer coordination cell

EM electromagnetic

EMOE electromagnetic operational environment

EMS electromagnetic spectrum

EOD explosive ordnance disposal

EU European Union

EW electronic warfare

FDO foreign disclosure officer

FHA foreign humanitarian assistance

FHP force health protection

FID foreign internal defense

FP force protection

FSF foreign security forces

GCC geographic combatant commander

GEF Guidance for Employment of the Force

HN host nation

HNS host-nation support

HNSCC host-nation support coordination cell

HQ headquarters

IAW in accordance with

IO information operations

IPI indigenous populations and institutions

ISA international standardization agreement

ISAF International Security Assistance Force

ISB intermediate staging base

J-2 intelligence directorate of a joint staff

JCMEB joint civil-military engineering board

JDDE joint deployment and distribution enterprise

JDN joint doctrine note

JEMSO joint electromagnetic spectrum operations

JFC joint force commander

JFUB joint facilities utilization board

JLEnt joint logistics enterprise

JLSG joint logistic support group

JMC joint movement center

JP joint publication

Glossary

GL-3

JPRC joint personnel recovery center

JTCC joint transportation coordination center

JTF joint task force

JTLM joint theater logistics management

JTMS joint theater movement staff

LN lead nation

LNO liaison officer

LOC line of communications

MCI multinational communications integration

MEDEVAC medical evacuation

METOC meteorological and oceanographic

MILU multinational integrated logistic unit

MISO military information support operations

MJLC multinational joint logistics center

MNCC multinational coordination center

MNF multinational force

MNFACC multinational force air component commander

MNFC multinational force commander

MNFLCC multinational force land component commander

MNFMCC multinational force maritime component commander

MNFSOCC multinational force special operations component

commander

MNL multinational logistics

MNLC multinational logistic center

MNTF multinational task force

MOA memorandum of agreement

MOU memorandum of understanding

MP multinational publication

MPAT Multinational Planning Augmentation Team

MSOG Multinational Strategy and Operations Group

NALSS naval advanced logistic support site

NATO North Atlantic Treaty Organization

NDP national disclosure policy

NEO noncombatant evacuation operation

NFLS naval forward logistic site

NGO nongovernmental organization

NSE national support element

OA operational area

OCS operational contract support

OE operational environment

OPCON operational control

OPLAN operation plan

Glossary

GL-4 JP 3-16

OPSEC operations security

PA public affairs

PN partner nation

PO peace operations

PR personnel recovery

PRCC personnel recovery coordination center

ROE rules of engagement

RSI rationalization, standardization, and interoperability

RSN role specialist nation

SA situational awareness

SAR search and rescue

SC security cooperation

SCA space coordinating authority

SecDef Secretary of Defense

SFA security force assistance

SIPRNET SECRET Internet Protocol Router Network

SJA staff judge advocate

SOF special operations forces

SOFA status-of-forces agreement

SOP standard operating procedure

SSR security sector reform

STANAG standardization agreement (NATO)

TA technical arrangement

TACON tactical control

TDP theater distribution plan

TF task force

TPFDD time-phased force and deployment data

TTP tactics, techniques, and procedures

UN United Nations

UNPROFOR United Nations protection force

US BICES United States Battlefield Information Collection and

Exploitation System

US BICES-X United States Battlefield Information Collection and

Exploitation System Extended

USCENTCOM United Stats Central Command

USG United States Government

USINDOPACOM United States Indo-Pacific Command

USSTRATCOM United States Strategic Command

USTRANSCOM United States Transportation Command

WMD weapons of mass destruction

GL-5

PART II—TERMS AND DEFINITIONS

acquisition and cross-servicing agreement. Agreement, negotiated on a bilateral basis

with countries or international organizations, that allow United States forces to

exchange most common types of support, including food, fuel, transportation,

ammunition, and equipment. Also called ACSA. (Approved for incorporation into

the DOD Dictionary with JP 3-16 as the source JP.)

combined. A term identifying two or more forces or agencies of two or more allies

operating together. (DOD Dictionary. Source: JP 3-16)

cross-servicing. A subset of common-user logistics in which a function is performed by

one Service in support of another Service and for which reimbursement is required

from the Service receiving support. (Approved for incorporation into the DOD

Dictionary with JP 3-16 as the source JP.)

integrated staff. A staff in which one officer only is appointed to each post on the

establishment of the headquarters, irrespective of nationality and Service. (DOD

Dictionary. Source: JP 3-16)

lead nation. The nation with the will, capability, competence, and influence to provide

the essential elements of political consultation and military leadership to coordinate

the planning, mounting, and execution of a multinational operation. Also called LN.

(Approved for incorporation into the DOD Dictionary.)

multinational doctrine. The agreed-upon fundamental principles that guide the

employment of forces of two or more nations in coordinated action toward a common

objective. (Approved for incorporation into the DOD Dictionary.)

multinational force commander. A general term applied to a commander who exercises

command authority over a military force composed of elements from two or more

nations. Also called MNFC. (DOD Dictionary. Source: JP 3-16)

multinational integrated logistic unit. An organization resulting when two or more

nations agree to provide logistics assets to a multinational logistic force under the

operational control of a multinational commander for the logistic support of a

multinational force. Also called MILU. (Approved for incorporation into the DOD

Dictionary with JP 3-16 as the source JP.)

multinational logistics. Any coordinated logistic activity involving two or more nations

supporting a multinational force conducting military operations under the auspices of

an alliance or coalition, including those conducted under United Nations mandate.

Also called MNL. (Approved for incorporation into the DOD Dictionary with JP 3-

16 as the source JP.)

Glossary

GL-6 JP 3-16

multinational operations. A collective term to describe military actions conducted by

forces of two or more nations, usually undertaken within the structure of a coalition or

alliance. (DOD Dictionary. Source: JP 3-16)

multinational staff. A staff composed of personnel of two or more nations within the

structure of a coalition or alliance. (DOD Dictionary. Source: JP 3-16)

rationalization. Any action that increases the effectiveness of allied forces through more

efficient or effective use of defense resources committed to the alliance. (DOD

Dictionary. Source: JP 3-16)

role specialist nation. A nation that has agreed to assume responsibility for providing a

particular class of supply or service for all or part of the multinational force. Also

called RSN. (Approved for incorporation into the DOD Dictionary with JP 3-16 as

the source JP.)

specialization. An arrangement within an alliance wherein a member or group of members

most suited by virtue of technical skills, location, or other qualifications assume(s)

greater responsibility for a specific task or significant portion thereof for one or more

other members. (DOD Dictionary. Source: JP 3-16)

status-of-forces agreement. A bilateral or multilateral agreement that defines the legal

position of a visiting military force deployed in the territory of a friendly state. Also

called SOFA. (DOD Dictionary. Source: JP 3-16)

Maintenance

Approval Development

Initiation

JOINT

DOCTRINE

PUBLICATION

ENHANCED

JOINT

WARFIGHTING

CAPABILITY

STEP #3 - Approval STEP #2 - Development

JS J-7 prepares publication for signature

JSDS prepares JS staffing package

JSDS staffs the publication via JSAP for

signature

JSDS delivers adjudicated matrix to JS J-7

LA selects primary review authority (PRA) to develop the first

draft (FD)

FD comment matrix adjudication

PRA develops FD for staffing with JDDC

JS J-7 produces the final coordination (FC) draft, staffs to

JDDC and JS via Joint Staff Action Processing (JSAP) system

Joint Staff doctrine sponsor (JSDS) adjudicates FC comment

matrix

FC joint working group

STEP #4 - Maintenance

Formal assessment begins

24-27 months following

publication

Revision begins 3.5 years

after publication

JP published and continuously

assessed by users

Each JP revision is completed

no later than 5 years after

signature

STEP #1 - Initiation

Joint Staff (JS) J-7 conducts front-

end analysis

Joint Doctrine Planning Conference

validation

Program directive (PD) development

and staffing/joint working group

PD includes scope, references,

outline, milestones, and draft

authorship

Joint doctrine development

community (JDDC) submission to fill

extant operational void

JS J-7 approves and releases PD to

lead agent (LA) (Service, combatant

command, JS directorate)

JOINT DOCTRINE PUBLICATIONS HIERARCHY

JOINT

DOCTRINE

JP 1

LOGISTICS

COMMUNICATIONS

SYSTEM

PLANSPERSONNEL INTELLIGENCE

JP 1-0 JP 2-0 JP 4-0 JP 5-0 JP 6-0

OPERATIONS

JP 3-0

All joint publications are organized into a comprehensive hierarchy as shown in the chart above. Joint

Publication (JP) 3-16 Operationsis in the series of joint doctrine publications. The diagram below

illustrates an overview of the development process: