Noncombatant Evacuation Operations (NEO)

This brief is classified:UNCLASSIFIED

Major S.C. Bair, USMCTEMPEST EXPRESS-25

12 June 2014

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• To provide an overview of the United States government concept of NEO from the planning perspective.– What a member of a planning staff needs to know about

NEO.

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Purpose

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References

DOD Directive 3025.14, Noncombatant Evacuation Operations (5 Nov 1990)

CNA report on Operation: Eastern Exit (Oct 1991)

JP 3-68, Noncombatant Evacuation Operations (23 Dec 2010)

Multinational Force SOP v2.9 (Oct 2013)

GAO report on July 2006 Evacuation of US Citizens from Lebanon (7 Jun 2007)

CJCSI 3500.05A, Joint Force Headquarters Master Training Guide (1 Sep 2003)

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1) Overview of US Government NEO

2) NEO Tools and Terms

3) NEO doctrine• Joint:

- JP 3-68, Noncombatant Evacuation Operations (23 December 2010)

• Multinational:- MNF SOP v2.9 (October 2013)

4) Examples of real-world NEO4

Outline

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Since 1988…• 263 Drawdowns• 23 Military assisted• 18 Post closures

US NEO Overview - History

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• During NEOs the US ambassador, not the combatant commander (CCDR) or subordinate joint force commander (JFC), is the senior United States Government (USG) authority for the evacuation and, as such, is ultimately responsible for the successful completion of the NEO and the safety of the evacuees.

• The decision to evacuate a US embassy and the order to execute a NEO is political.

• The combatant commander may decide to create a Joint Task Force to conduct a NEO or may task a Component Commander to conduct the NEO.

US NEO Overview - Authority (JP 3-68)

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Multinational Forces (MNFs) • Ambassador, CCDR, and JFC may consider the possibility of

operating with MNFs.

• Approval for US participation in a multinational NEO will come only from POTUS.

• Many situations that would cause the United States to initiate a NEO would likely cause other countries to react similarly. – It may be politically or militarily expedient to employ a MNF.– The difficulties of obtaining unity of effort within a MNF may

cause serious difficulties in a time-sensitive NEO.– Coordination may better be accomplished through LNOs.

US NEO Overview – Multinational NEO (JP 3-68)

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• NEO Tools– F-77 Data– Warden System– Emergency Action Plan (EAP)

• NEO Terms– AA - Assembly Area– FCE - Forward Command Element– ECC - Evacuation Control Center– ISB - Intermediate Staging Base– Safe Haven

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US NEO – Tools & Terms

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• Each US embassy or consulate is required to submit to the Dept of State an annual report, on 15 December, of the estimated number of potential evacuees in its assigned area.

• A copy of the most recent report must be filed with the embassy Emergency Action Plan (EAP).

• F-77 reports are available on the secure US network.• The accuracy of the report depends on the general level of interest in the

potential for an evacuation. – The fear that an evacuation may be required is often the most

powerful motivator to get an accurate evacuee estimate.– These counts are only yearly estimates. – The accuracy of the estimate will vary with the speed and severity of

the crisis. – If the whole population of a country suddenly perceives a deadly

threat, evacuee numbers and panic will be abnormally high.

US NEO Tools – F-77 Data (JP 3-68)

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• The US ambassador can order the evacuation of USG personnel and dependents other than uniformed personnel of the Armed Forces of the United States and designated emergency-essential DOD civilians who are not under the authority of the US ambassador.

• While the US ambassador cannot order the departure of private US citizens, the ambassador can offer them US Govt evacuation assistance.

US NEO Terms – Chief of Mission Authority (JP 3-68)

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• Communications with potential evacuees may be via a warden system.– Notification system used to communicate to the US population through

wardens using telephones, faxes, emails, and direct personal contact.• The wardens prepare, update, and maintain a list of phone numbers and

addresses of US citizens residing in their assigned areas.

• It is US Government policy that there shall be “no double standard” to important security threat information, including criminal information: “Generally, if the Department shares information with the official U.S. community, it should also make the same or similar information available to the non-official U.S. community if the underlying threat applies to both official and non-official U.S. citizens/nationals.”

* Source: U.S. Department of State Foreign Affairs Manual (FAM) Volume 7 – Consular Affairs http://www.state.gov/documents/organization/86560.pdf

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US NEO Tools - Warden System (JP 3-68)

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• US embassies and consulates are required to have Emergency Action Plans (EAP) for the area under their cognizance.

• The US ambassador is responsible for the preparation and maintenance of EAPs, one section of which addresses the military evacuation of US citizens and designated foreign nationals.

• EAPs are not tactical operation plans in the sense that military planners think of, but they are the reference materials that support the formulation of an operation plan.

• A copy of the current EAP should be on file at the appropriate CCDR’s headquarters.

US NEO Tools – EAP (JP 3-68)

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• Possible courses of action for different threat environments• Location of evacuation sites (landing zones, ports, beaches)• Anticipated number of evacuees (total number by area) categorized by medical

status:– Persons not requiring medical assistance– Persons requiring medical assistance prior to evacuation– Persons requiring medical assistance prior to and during evacuation– Persons requiring emergency medical evacuation

• Location of assembly areas and major supply routes• Location of command posts• Key personnel (name, location, and desired means of contacting them)• Description of the embassy communications system, transportation fleet, and

warden system• Quantity of class I (subsistence) supplies on hand at the embassy• Quantity of class III (fuel)• Availability of class VIII (medical supplies)• Standard map products of the local area, with annotations identifying critical

landmarks

US NEO Tools – EAP Contents (JP 3-68)

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• Washington Liaison Group (WLG)– Responsible for coordination and implementation at the national

level of emergency and evacuation plans by DOS, DOD and other USG agencies.

• Regional Liaison Groups (RLGs) – Collocated with combatant commands to ensure coordination of

emergency and evacuation planning by their departments in the field.

– Ensure coordination exists between the various posts, and between the posts and appropriate military commands.

• Emergency Action Committee (EAC) – Established at a foreign service post by the ambassador to direct and

coordinate the post’s response to contingencies. – The EAC is the focal point for DOS and DOD evacuation site interface.

US NEO Tools – DOS/DOD Coordinating Bodies (JP 3-68)

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• United States Defense Representative (USDR)– Normally the senior military official assigned to permanent duty with the

mission (usually Defense Attaché or SAO).– In-country focal point for planning, coordinating, and executing support to

USG officials for in-country US defense issues and activities that are not under the purview of the parent DOD components.

• Security Assistance Officer (SAO) – Maintains liaison with the HN military forces and is authorized by law to

perform certain military functions with the HN military. – Not all embassies have an SAO.

• United States Marine Corps Security Guard Detachment – Minimum of six Marines - Commander is normally an EAC member.– Part of the embassy security force and normally will not come under JFC

control.

US NEO Tools – Key Embassy Personnel (JP 3-68)

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6. PROCEDURES

6.1. Evacuation of DoD noncombatants shall generally correspond to protection and evacuation plans established by the DoS as follows:

6.1.1. Travel Advisory Issued. When political or military actions within a country create a potentially dangerous situation for noncombatants, the DoS may issue a travel advisory to that location.

6.1.2. Standfast. All noncombatants are required to remain in place and take appropriate precautions to limit exposure since immediate movement will involve unacceptable risks.

6.1.3. Authorized Departure. Departure of noncombatants to an announced safe haven is encouraged and authorized at Government expense, with return also at Government expense.

6.1.4. Stop Movement. If the DoS announces an authorized departure, the Department of Defense issues a stop forward movement of military dependents, nonessential DoD civilians and their families, families of essential DoD civilians, and DoDDS staff and/or faculty.

6.1.5. Ordered Departure. Departure directed by the DoS to designated safe havens with implementation of the theater CINC NEO plan.

US NEO Terms - Levels (DOD Directive 3025.14)

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US NEO Terms – Definitions of Operational Terms

• Forward Command Element (FCE)• Coordinates with the ambassador and members of the country team

for information and assistance.• Submits situation reports to the JFC.

• Evacuation Control Center (ECC)• Conducts processing, screening, and selected logistic functions

associated with emergency evacuation of noncombatants.• Size and composition determined by the number of evacuees,

evacuation environment, and location of the evacuation area.• Intermediate Staging Base (ISB)

• A temporary location used to stage forces prior to inserting the forces into the Host Nation.

• Safe Haven• A location to which evacuees may be moved quickly and easily. • Ideally, the safe haven will be in the United States.• An intermediate safe haven may be a US Navy ship.

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• Types of NEO

• Strategic Planning Considerations– JP 3-68– MNF SOP

• Operational Planning Considerations– JP 3-68– MNF SOP

• Command & Control (C2)

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US NEO Doctrine

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• Permissive Environment: No resistance to evacuation operations is expected. Little or no assembly of combat forces in country.– The JTF’s primary concerns may be:

• Logistics• Emergency medical treatment• Transportation• Coordination with DOS and other agencies involved in the evacuation

• Uncertain Environment: Host government forces, whether opposed or receptive to the NEO, do not have total effective control.– Planning must always include the possibility for escalation to a hostile

environment.• Hostile Environment: Civil disorder, terrorist action, full-scale combat.

– JTF may be required to:• Conduct a forcible entry operation• Establish defensive perimeters• Escort convoys• Personnel recovery (PR)

Types of US NEO (JP 3-68)

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• Many service components are capable of conducting a NEO in a permissive environment.

• NEO in an uncertain or hostile environment may require formation and deployment of a JTF.

• An US-exception to this is the forward-deployed amphibious expeditionary strike group (ESG)/Marine expeditionary unit (special operations capable) (MEU[SOC]).

• The ESG/MEU(SOC)’s organic combat, combat support, and combat service support forces are trained and certified to conduct NEO.

Military Response to NEO (JP 3-68)

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• NEO can further destabilize a crisis situation.

• The simple announcement that an evacuation operation is being considered, planned, or is being ordered can escalate an already deteriorating situation.

• NEO planning and coordination can actually increase the threat to a nation's citizens if handled improperly.

Strategic Planning Considerations (MNF SOP)

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• CJCS or CCDR warning order will normally provide the JFC with a concise statement of the US national interests including:– The safety and welfare of US citizens.– The continued stability of the local government.– The maintenance of a firm posture against terrorism.– A demonstration of support for international commitments.– The probable environment in which the NEO will be conducted.

• The ambassador should summarize the political objectives and constraints relevant to the JTF’s assistance, the nuances involved, and any constraints on the use of force that might be appropriate.

• While these may be obvious to those intimately involved with the situation, the JFC will be better prepared to comply effectively with a request for help if the reasons have been clearly explained.

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Strategic Planning Considerations (JP 3-68)

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Three Key Operational Decisions• 1) What is the Threat Environment and Evacuation Situation?

– NEO threat environment in host nation (Permissive, Uncertain, Hostile)– Potential for escalation– Location, numbers and demographics of personnel requiring evacuation

• 2) What is the Conceptual Framework for the Mission? – MNF SOP contains detailed information on NEO operational phasing

• 3) How does the NEO TF commander ensure OPLAN and OPORDs are integrated with the existing plans by Foreign Affairs / State Department agencies?– MNF SOP contains detailed information on B2C2WG structure for MNF

NEO

Operational Planning Considerations (MNF SOP)

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NEO Phasing (1 & 2) (MNF SOP)

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NEO Phasing (3 & 4) (MNF SOP)

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US NEO C2 (JP 3-68)

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• Although the ambassador(s) is the responsible national authority for a NEO, during a multinational NEO, the ambassador(s) does not exercise military command over the MNF.– The primary goal of the MNFC is to support the

ambassadors’ plans and cooperate with the diplomatic missions without compromising military mission requirements.

• The alliance/coalition may request designation of a lead diplomatic mission within the HN.

MNF NEO C2 (JP 3-68)

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• NEO execution (and crisis action NEO planning) signifies the situation has deteriorated to the point that nations have lost faith in the host nation's ability to maintain control of the situation or a clear danger to the evacuees exists.

• It is important to recognize that NEO will normally not be executed within a Coalition /Combined Task Force (CTF) due to the extreme time sensitive aspects of most NEOs.

• However, Major NEO operations are multinational in nature. – Lead Nation for “coordination” may be identified in lieu

of a MNF

MNF NEO C2 (MNF SOP)

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• In most instances, the evacuation force is established from a designated MNF component, with other MNF components in a supporting role. – In permissive or uncertain NEO with noncombatants

departing primarily by air, the joint force air component commander may be designated the evacuation force commander.

• Noncombatant Evacuation Operation Coordination Center (NEOCC)– The MNFC might establish a NEOCC within the MNF HQ. – A centralized focal point between the various diplomatic

missions and the MNF.

MNF NEO C2 (JP 3-68)

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• Permissive – Lebanon 2006• Uncertain/Hostile – Somalia 1991

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US Real-World NEO Examples

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Lebanon 2006

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• What if the situation degraded?• Case Study: U.S. Embassy Somalia NEO,

January 1991– Operation Eastern Exit

Uncertain/Hostile NEO

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• 5 December Voluntary (authorized) departure• 19 December Official U.S. personnel reduced from 147 to 37.• 30 December All official Americans were moved into the Embassy

compound.• 2 January Ambassador requests military assistance for evacuation.• 2 January USS Guam and Trenton get under way at 2330.• 5 January CH-53Es launch from USS Guam, insert 60-man evacuation

force, and return to USS Guam with 61 evacuees.• 6 January CH-46s evacuate remaining 220 evacuees and 60-man

evacuation force.• 11 January Evacuees offloaded in Muscat, Oman.

Operation Eastern Exit (Somalia) 1991

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• Late on December 31st, the first warning to military forces of the threats to the Embassy compound was issued.

• COMUSNAVCENT directed in a note on the top of the 31 December message: "Better have Amphib crowd take a look at a helo NEO of Mogadishu."

• The first direct notification of a possible NEO requirement that arrived on USS Blue Ridge (LCC-19) 1 January - almost a month after non-essential personnel began to leave Somalia.

• Many problems encountered during the operation would have been avoided if the amphibious forces had begun contingency planning in early or mid-December

Operation Eastern Exit (Somalia) 1991

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• If tasked to plan a NEO, some good places to start are..

Tools for NEO Planners

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JP 3-68 Appendices

MNF SOP

CJCSM 3500.05AJoint Task Force

Headquarters Master Training Guide

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Tools for NEO Planners (JP 3-68)

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……69. What HN religious sites, shrines, buildings, facilities, or other locations do JTFmarshalling teams need to be aware of to avoid desecrating them and antagonizing the populace?

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Tools for NEO Planners (MNF SOP)

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Tools for NEO Planners (CJCSI 3500.05A)

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Questions?

Major S.C. Bair, USMCIII MEF G5 PlansOkinawa, Japan

E-mail: stephen.bair@usmc.milCommercial: +81 (0)98-954-7048

Cellular: +81 (0)80-3751-0546

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Thank You!