an enduring legacy in iraq -...
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JOINT ENGINEER CONTINGENCY OPERATIONSJOINT ENGINEER CONTINGENCY OPERATIONS
The Military Engineer • March-April • 2012 The Military Engineer • No. 676
capable status by Oct. 1, 2011. This port-folio included construction to collapse boundaries and relocate critical facilities and infrastructure within the new foot-print. Phase I construction was managed by the U.S. Divisions and Major Subordi-nate Commands, and was executed at the installation level using mostly LOGCAP and some troop labor.
OSC-I Phase II on the other hand in-corporated projects exceeding MILCON thresholds and included $107.5 million of force protection enhancements requir-ing 12-18 months to complete (such as overhead cover projects to protect against rocket attacks). The U.S. Army Corps of Engineers Middle East District was se-lected as lead construction agent follow-ing NSDD-38 approval to remain in Iraq beyond 2011. To fund this work, Con-gress specially appropriated $129.1 mil-lion in order to use FY2011 Operations and Maintenance (O&M) funding at four OSC-I selected sites: Besmaya, Kirkuk, Tikrit and Union III.
Briefings on transition construction were presented to a variety of senior lead-ers. This included numerous USF-I battle rhythm events, such as the weekly Com-mander’s Update Brief; bi-weekly Embassy Support and Enduring Site Transition Board; the J7 Bi-Weekly Update to USF-I DCG-S; and more than 25 DV visits and special briefs during the summer and fall of 2011.
SUCCESS ACHIEVEDOverall, the construction program was
successful. Enduring sites were secure and mission capable prior to departure of U.S. Forces; however, an analysis of the top four lessons learned and corresponding best practices may enable joint engineers in Afghanistan and in other contingency operating environments to achieve a greater level of success in the future
1. Maximize use of existing Title 10 authorities, approval processes and ex-ecution methods for minor construc-tion. Title 22 funding from OSC-I was not available to execute this program. As a result, OSC-I did not have sufficient funding and manpower in place until late October 2011. Fortunately, the USF-I staff judge advocate determined OSC-I func-
tions were inherently a USF-I responsi-bility until that point, and therefore, Title 10 funds were authorized. Use of exist-ing USF-I assets such as troop labor and LOGCAP saved both time and money since they were already in place and did not have to mobilize.
2. Seek Congressional Contingency Construction Authority (CCA) to use O&M funds for necessary MILCON. The authority encompassed in CCA provided the essential flexibility to execute MIL-CON-level projects under accelerated timelines using O&M funds. That enabled USF-I to overcome challenges with late-breaking requirements exceeding typical authorities. It proved to be the only ap-propriate legal authority capable of fund-ing the requirements to collapse security perimeters at Tikrit and Kirkuk prior to USF-I inactiviation.
The requirement to collapse perimeters comprised several construction projects, such as building T-Wall boundaries, en-try control points, guard towers and pe-rimeter lighting—which are mutually in-terdependent and must be programmed as a single requirement, often exceeding MILCON thresholds. Additionally, con-gressional language should not restrict the number of OSC sites included in the CCA authorization. Rather, CCA should be authorized at any site where the OSC will be located.
3. Use Theater-level Engineer Brigade (TEB) to manage OSC-I Phase I projects. By Oct. 1, 2011, target date construction was only at 58 percent, with just eight of the 33 projects complete. Projects went off track from the start due to delays in writing statements of work and process-ing project packets for approval and fund-ing. TEB completed site assessments and developed a list of projects in January and February; yet, project submittals to Ac-quisition Review Boards were not com-pleted until July 1, 2011. Although TEB was available to provide support, the U.S. Divisions rarely requested it. In fact, TEB was the only unit in theater with the man-power, skill and expertise to plan, pro-gram, design and inspect a construction program of this magnitude. Use of TEB in similar matters would improve overall effectiveness as it would allow joint engi-
neer staffs to focus on interagency coor-dination and requirements management rather than on project level oversight and reporting.
4. Establish a joint engineer liaison (LNO) team in the U.S. Embassy. Main-taining a USF-I J7 engineer LNO team of two to three personnel in the U.S. Em-bassy proved instrumental to DOS con-struction efforts. As projects were delayed by customs, by poor quality government-furnished equipment, unclear delivery schedules, and a lack of contractor perfor-mance, DOS had no means to expedite or mitigate project completion dates. In sev-eral cases, this left gaps in necessary in-frastructure and life support services such as power, water, waste water, housing and force protection measures. USF-I J7 LNO supported planning efforts, sourced mate-rials and equipment, tracked and reported construction progress, and facilitated ac-tions to mitigate these gaps.
BEING FLEXIBLETransitioning from a contingency en-
vironment to an enduring “peace-time” posture requires the military engineer to achieve a level of flexibility tradition-ally not afforded in normal project pro-gramming. The best practices and lessons learned aim to provide the joint engineer with the flexibility necessary to execute another construction program in a dy-namic contingency environment—one for instance, just like Afghanistan. In-corporating these best practices will ac-celerate the process to ensure enduring sites reach a secure and operational status with a refined focus on cost, schedule, and quality…with Honor and Success.
Lt. Col. John Buse, P.E., M.SAME, USAFR, is individual augmentee to the Chief of Engineer-ing at Twelfth Air Force (USAFSOUTH), Davis-Monthan AFB; 520-228-4205, or [email protected].
Col. Joel Cross, PMP, M.SAME, USA, is J7 En-during Site Transition Chief, U.S. Forces-Iraq; DSN: 318-239-5164, or [email protected].
Though the mission of United States Forces-Iraq (USF-I) has drawn to a close, numerous tasks continue on a smaller scale under the Office of Security Coop-eration-Iraq (OSC-I), with the Depart-ment of State (DOS) in the lead. One particular mission that will continue is construction in support of the Iraqi Secu-rity Forces (ISF), which started in earnest in 2005 under the purview of Multi-Na-tional Security Transition Command-Iraq (MNSTC-I). Between 2005 and the end of 2011, U.S. forces executed 2,457 construc-tion projects to enable development of ISF capability. The sheer enormity of this multi-billion dollar construction effort in support of the Government of Iraq re-quired involvement from numerous con-struction agencies, funding sources, and program management organizations.
Responsibly drawing down these vast legacy programs within the OPERATION NEW DAWN operational framework
presented seams and gaps, and increased competition for reduced resources. This, coupled with emerging construction requirements to support enduring site establishment, force reposturing, base transitions and special operations, neces-sitated a theater construction fusion cell solution to integrate and synchronize construction efforts across the Iraq Joint Operations Area (IJOA). Lessons were learned and best practices developed that helped improve construction delivery in this challenging operational environment.
INCREDIBLE SCOPESince 2005, more than $6.89 billion
worth of construction projects were ad-ministered in support of the Iraqi Min-istries of Defense and Interior—from ministerial headquarters to local police stations and tactical units, all of which varied greatly in size, complexity and location. Iraqi Army projects included new maintenance depots, training facili-ties, regional commando company com-pounds and base support facilities. The Iraqi Air Force was the beneficiary of new base support and flight operations facili-ties, training centers, hangars and runway
repairs. The Iraqi Navy received new in-frastructure as well—including base sup-port facilities, a pier and seawall, a clinic, and a training facility. But, improving the capability of the Iraqi military was not the only goal. In order to maintain the rule of law and provide internal security, border security and explosive ordnance disposal (EOD) capability was equally imperative.
More than 60 percent of the construc-tion projects, totaling $2.27 billion, were executed on behalf of the Iraqi Ministry of Interior. Various elements of the Iraqi po-lice apparatus benefited from new and re-furbished police stations, training centers, vehicle maintenance facilities, headquar-ters compounds, forensic labs, criminal investigative facilities, and special weap-ons and tactics compounds.
Considerable time was given to im-proving the government’s ability to se-cure and control its borders. Border forts, road systems and ports of entry were constructed, primarily along the Syrian, Jordanian and Iranian borders. Regional EOD compounds were constructed to provide local explosive hazards response capability, thereby enhancing the protec-tion and safety of Iraqi citizens.
An Enduring Legacy in Iraq
BY MAJ. CHRISTOPHER EYLE, M.SAME, USAF, CAPT. RODNEY MOORE, CEC, M.SAME, USN, and TECH SGT. STEPHANIE HOLMAN, M.SAME, USAF
The Iraqi Security Forces construction program was massive in scope and skill—and will continue on, even as American soldiers leave the country.
This two-story dining facility was part of the construction of the Erbil Police Academy, in Erbil, Iraq. U.S. ARMY PHOTO BY SPC. CYNTHIA TEEARS
JOINT ENGINEER CONTINGENCY OPERATIONS
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JOINT ENGINEER CONTINGENCY OPERATIONSJOINT ENGINEER CONTINGENCY OPERATIONS
The Military Engineer • March-April • 2012 The Military Engineer • No. 676
generation through execution across the theater, ranging from troop construc-tion to deliberately designed, multi-million dollar capital improvements. On Aug. 12, 2011, the then 11-person USF-I J7 EPM Division transformed into the USF-I J7 Theater Construction Fusion Cell (TCFC), and assumed additional responsibilities to include program man-agement of the Commander’s Emergency Response Program (CERP) & Iraqi-CERP construction efforts and, most significant-ly, integration, analysis and distribution of theater construction information.
To develop a single, comprehensive and integrated common operational picture (COP) of theater-wide construction ef-forts, the newly established TCFC insti-tuted a centralized construction project database that incorporated data from all eight active construction execution agents and all funding types. This database devel-opment and sustainment enabled TCFC to provide relevant, reliable and respon-sive status of all USF-I related construc-tion projects upon request. As a result, TCFC provided daily updates to USF-I se-nior leaders and bi-weekly updates to the USF-I Commanding General; informed the planning and decision-making pro-cesses; and enhanced situational aware-ness on all construction in IJOA.
TCFC’s integrated construction COP enabled USF-I leadership to maintain situational awareness and carefully direct resources to execute these emerging re-quirements and reduce friction points—all the while continuing to responsibly draw down the program. USF-I achieved mission completion of the CERP/Iraqi-CERP construction programs in mid-October 2011, and, on Oct. 31, program management responsibility of the final 12 active ISFF projects and three ISFF proj-ects pending re-award were transitioned from TCFC oversight to the three-person OSC-I J7 Engineer staff.
Although these residual projects had a total contract value of $112 million, the majority of construction was accom-plished with just $12 million worth of actual work remaining to be executed. USACE Middle East District-Iraq Area Office (MED-IAO) continues to perform contract and construction management,
providing continuity until the ISFF por-tion of the portfolio achieves mission completion. MED-IAO estimated that all ISFF-funded construction will be com-pleted by early fall 2012.
THE WAY FORWARDAs with any undertaking of this size,
substantial lessons were learned and best practices developed:• Establish a TCFC for centralized fusion
and vetting of theater construction re-quirements in parallel with USACE and DOS Bureau of Overseas Building Op-erations construction efforts.
• Integrate all construction efforts under a single element in order to develop a comprehensive theater-wide COP.
• Ensure specificity in scope of work in order to better translate requirements and enable local contractors’ under-standing, as well as to mitigate language ambiguities.
• Adapt design features to local construc-tion methods, skill-sets and readily available materials.
• Limit system complexity, especially me-chanical and electrical; simple systems are better than complicated systems.
• Ensure adequate quality assurance per-sonnel, including electrical subject mat-ter experts; conduct early and frequent project oversight of electrical systems.
This historic construction program, with its multi-service team of construc-tion execution agents and program man-agement personnel, provided an astound-ing 2,457 projects valued at over $6.89 billion. The vital capabilities provided by this effort significantly enhance Iraq’s ability to endure as a stable, sovereign and self-reliant strategic partner in the region. The construction program, and the tremendously dedicated engineer ef-forts in support of ISF, truly leave behind an enduring legacy, while helping build a nation’s future.
Maj. Christopher Eyle, M.SAME, USAF, is currently assigned to the 100th Civil Engineer Squadron as Operations Flight Commander at RAF Mildenhall, England; DSN 314 238 2512, or [email protected].
Capt. Rodney Moore, CEC, M.SAME, USN, is currently assigned to U.S. Forces-Iraq as the J-7 Theater Construction Fusion Cell Chief; 913-683-3889, or [email protected].
Tech Sgt. Stephanie Holman, M.SAME, USAF, is currently deployed with U.S. Forces-Iraq as the J7 Theater Construction Fusion Cell NCOIC; 406-781-3314, or [email protected].
The Al Hwayza Border Fort in Maysan Province, Iraq is used by the Department of Border Enforcement to conduct patrols along Iraq’s eastern border. U.S. AIR FORCE PHOTO BY STAFF SGT. BRENDAN STEPHENS
Conducting a program of this magni-tude required the contributions of con-struction agents throughout the cam-paign. The U.S. Army Corps of Engineers (USACE) played a critical role in contract administration, design and construction management. USACE acted as the execu-tion agent for more than 640 of these proj-ects in support of ISF.
Additionally, the former Joint Con-tracting Command-Iraq (JCC-I) execut-ed more than 480 construction projects while Naval Facilities Engineering Com-mand (NAVFAC) provided support de-livering 38 projects. The Air Force Center for Engineering and the Environment (AFCEE) performed contract and con-struction management for 1,050 projects, nearly 43 percent of the entire portfolio. Numerous other agencies contributed on a smaller scale. The extraordinary perfor-mance of these acquisition, engineering and construction professionals—some of whom made the ultimate sacrifice—pro-vided critical support and enabled mis-sion success during sustained combat and stability operations.
MASSIVE EFFORTThe construction program leveraged
multiple funding sources and appropria-tions, including Donor Funds, Quick Re-sponse Funds and more recently, Foreign Military Sales (FMS), which are derived from Iraqi-provided funds. However, the key sources providing the bulk of the fund-ing for ISF construction were two U.S. ap-propriations specified for this campaign: the Iraqi Security Forces Fund (ISFF), and the Iraqi Relief and Reconstruction Fund (IRRF). ISFF sourced more than 1,240 projects, exceeding $4.1 billion in value. IRRF covered nearly 1,000 projects valued north of $1.7 billion.
The MNSTC-I J7 Engineering staff, which was established in 2005, provided essential oversight of a multitude of con-struction execution agents and funding types. The staff consisted mainly of mili-tary engineers and technicians, both offi-cer and enlisted, and Department of De-fense civilians augmented with contracted engineers. All were deployed primarily as individual augmentees to Iraq to manage the ISF construction program.
On Jan. 1, 2011, USF-I J7 EPM consisted of 15 personnel providing management for 91 active ISFF and IRRF construction projects that were valued at $332 million.
THE FINAL YEARAs USF-I entered the last year of the
campaign, with ISF construction drawing down, a counter-intuitive increase in con-struction requirements occurred against dwindling resources. Yet these emerging requirements supported the remaining objectives: conducting transitions and re-posturing the force. They included estab-lishing and sustaining the enduring pres-ence of DOS and OSC-I; supporting force reposturing and special operations across a distributed footprint in Iraq and Kuwait; decommissioning and transitioning bases and facilities; and supporting multiple branch planning options.
While driving the drawdown of the re-maining ISFF program, J7 EPM was posi-tioned to take on new responsibilities and concurrently reshape its workforce. That was necessary to fuse the full spectrum of construction efforts from requirements
CONSTRUCTION IN SUPPORT OF THE IRAQI SECURITY FORCES 2005-2011IRAQI MINISTRY OF DEFENSE937 projects worth $4.62 billion
IRAQI MINISTRY OF INTERIOR1,520 projects worth $2.27 billion
IRAQI ARMY830 projects worth $4.23 billion including:
IRAQI POLICE1,066 projects worth $1.545 billion including:
564 Base Support Facilities *66 Depots44 Training Facilities30 Garrison Support Units13 Signal Maintenance
Platoon Warehouses
15 Location Commands10 Operations Commands9 Clinics and Hospitals6 Regional Commando
Company Compounds
786 Police Stations178 Police Stations (refurb)58 Training Centers and
1 Police College23 Vehicle Maintenance
Facilities19 Headquarters/
Operations Centers
13 Criminal Investigation Facilities
10 SWAT Facilities3 Courthouses2 Clinics and Hospitals2 Waste Water Treatment
Plants
IRAQI AIR FORCE72 projects worth $274.3 million including:
IRAQI DEPARTMENT OF BORDER ENFORCEMENT (DBE) & PORTS OF ENTRY434 projects worth $662.2 million including:
41 Base Support Facilities *7 Flight Operations
Facilities5 Training Centers
4 Hangars3 Clinics2 Air Traffic Control Towers
290 Border Forts74 Water Wells
30 Ports of Entry21 DBE Compounds
IRAQI NAVY35 projects worth $118.3 million including:
IRAQI EXPLOSIVE ORDNANCE DISPOSAL (EOD) 20 projects worth $68.2 million including:
26 Naval Base Support Facilities *
1 Pier and Seawall
1 Clinic1 Training Facility
20 EOD Compounds
* Base Support Facilities include: headquarters buildings, warehouses, utility systems and dormitories.