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FM 41-5*OPNAV 09B2P1*AFM 110-7*NAVMC 2500ARMY FIELD MANUAL 41-5NAVY PUBLICATION OPNAV 09B2P1AIR FORCE MANUAL 110-7MARINE CORPS MANUAL 2500

DEPARTMENTS OF THE ARMY, THE NAVY,AND THE AIR FORCE

WASHINGTON, D.C., 18 November 1966JOINT MANUAL FOR CIVIL AFFAIRS

CHAPTER 1. Introduction. ________ ___ _ _______________.2. Military-civil relationships _______-________________3. Civil affairs organization __ ___ __ ________ __.4. Civil affairs operations ._ ____-......_.. ______ .5. Plans6. Directives and agreements --....... _....7. Control considerations ________________ _____. .

APPENDnr A. References __B. Examples of law and ordinances -----______________

INoDEX __ _..______________.____ _ ____________________

Panragphs Page1-1-1-6 32-1-2-4 93-1--3-10 134-1-4-13 256 15 6 416-1--6 457-1-7-4 49....... 755

....... 59

...... 77

This publication supersedes FM 41-5/OPNAV P 21-1/AFM 110-7/NAVMC 2500, 17 Nevenmber 1958.AGO 6062A I

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CHAPTER 1INTRODUCTION

1-1. Purpose and Scopea. Purpose. This manual provides informa-tion and guidance on civil affairs (CA) organ-ization, concepts, and operations for UnitedStates Armed Forces.b. Scope. The manual outlines the principlesand general policies to be followed by elementsof the Departments of the Army, Navy, andAir Force in planning and conducting civilaffairs operations. In instances where adapta-tion must be made in the material herein, re-course should be made wherever possible tospecific directives, and other source materials,and in any event, the matter shall be coordi-nated with other interested or responsible staffagencies including the appropriate judge advo-cate with regard to the legal aspects of civilaffairs operations.c. Applicability. The basic principles hereinpresented are generally applicable to any civilaffairs operations, and are, except as may beotherwise specified in the text, pertinent tooperations in nuclear or conventional warfare,general or limited war, as well as operationsconducted during peacetime, and cold war situ-ations to include counterinsurgency.d. Comments. Users of this manual are en-couraged to submit recommended changes or

comments to improve the manual. Commentsshould be keyed to the specific page, paragraph,and line(s) of the text in which the change isrecommended . Reasons should be provided foreach comment to insure understanding andcomplete evaluation. Comments should be for-warded directly to the Commanding Officer, U.S.Army Combat Developments Command, CivilAffairs Agency, Fort Gordon, Georgia, 30905.

1-2. DefinitionsAll terms used herein are in accordance withthe definitions given in JCS Pub 1. For concise-ness U.S. Army designations for military unitshave been used throughout this manual.Equivalent Naval and Air Force units anddesignations are implied and should be substi-

tuted or added where not mentioned but ap-propriate. The following term, not included inJCS Pub 1, is defined as folllows:Status of ForcesAgreement. An agree-ment which defines the legal position of avisiting military force deployed in theterritory of a friendly state. Agreementsdelineating the status of visiting militaryforces may be bilateral or multilateral.Provisions pertaining to the status of visit-ing forces may be set forth in a separate

agreement, or they may form a part of amore comprehensive agreement. Theseprovisions describe how the authorities ofa visiting force may control members ofthat force and the amenability of the forceor its members to the local law or to theauthority of local officials. To the extentthat agreements delinate matters affectingthe relationships between a military forceand civil authorities and populations, theymay be considered as civil affairs agree-ments.1-3. Scope of Civil Affairs Operations

Civil affairs operations are as diverse as theranges of military-civil relationships. Theybring civil attitudes, needs, and goals to the at-tention of the military commander and theyconvey similar matters to appropriate civilianagencies. They involve advice and assistance tocivilian authorities in their relationships withAGO 6062A 3

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FM 41-5/OPNAV 09B2P1/AFM 110-7/NAVMC 2500military organizations and recommendations tothe military commander as to the conduct ofhis operations and troops that will promote co-operation and support on the part of the indi-vidual citizens and the government of the coun-try. They include essential liaison and thenumerous official and personal contacts associ-ated with securing support from and livingharmoniously with a civilian community. In-cluded, also, may be complete assumption ofexecutive, legislative, judicial, and administra-tive functions of an occupied enemy territoryduring or immediately subsequent to hostilities.Such matters as location, agreements in force,national policy, international law, and whetherhostilities are in progress influence the conductof civil affairs. Civil affairs operations may beconducted by or in support of combatant forcesin areas and under the circumstances indicatedbelow:

a. Show of force through mobilization or de-ployment.b. Counterinsurgency operations.c. Peacetime military activities in U.S. terri-tory.d. Territory of a friendly power duringpeacetime on the basis of an agreement.e. Disaster relief or invitational emergencyintercession within the jurisdiction of a foreignpower.f. Assistance in civil defense, emergency, ordisasters in both foreign and domestic terri-tory.g. Territory of a friendly power during war-time generally on the basis of an agreement.h. Wartime activities in the United States.i. Occupation of enemy territory.i. Occupation of liberated territory, with orwithout a civil affairs agreement.

1 4. Civil Affairs Agreementsa. Generally, civil affairs and status of forcesagreements are concluded at the diplomaticlevel. Normally, the appropriate military au-thorities are consulted on the substance of theseagreements. The appropriate military com-

mander should prepare and submit appropriaterecommendations on the substance of theseagreements to the responsible diplomatic per-son. The senior military commander, upon in-struction, may negotiate civil aftairs agree-ments and necessary implementing agreementswith the central government, political subdivi-sions thereof, or with a responsible functioninggovernment in previously hostile territory.

b. In emergency situations it is possible thatinitial operations may be conducted withoutbenefit of a formal agreement. Under these cir-cumstances, agreements should be negotiated asrapidly as possible unless it is in the best inter-ests of the United States not to do so with aparticular government. Initial agreements maybe limited in scope and be subject to major re-vision or extension with the passage of time andaccumulation of experience. When time andknowledge of areas permit, theater or otherappropriate commanders should, prior to enter-ing areas of operation, draft civil affairs agree-ments to serve as a basis for discussion and toset out operational requirements of the militarycommand. Guidance in the preparation of thesedraft agreements will be provided by the Direc-tor of Civil Affairs, Office of the Deputy Chiefof Staff for Military Operations, Headquarters,Department of the Army, or, when established,by the joint civil affairs organization withinthe Joint Chiefs of Staff.

C.in a Among matters which may be delineatedcivil affairs agreement are-(1) Programs of common defense andmeasures for security.(2) Channels of official liaison betweenUnited States forces and echelons ofgovernment at all levels.(3) Official relationships with third party

governments, people, and instrumen-talities.(4) Authority for the military commanderto take emergency measures dictatedby the necessities of the military situ-ation.(5) Provisions covering such matters asfreedom of movement, bearing ofarms, criminal and civil jurisdictionof host nation tribunals, taxes, licens-

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FM 41-5/OPNAV 09B2P1/AFM 110-7/NAVMC 2500ing, customs payments, postal services,and similar regulatory matters.

(6) Policies and procedures with respectto claims involving both public andprivate property.(7) The extent of jurisdiction, if any,which U.S. forces may exercise overthe civilian population.(8) Extent of authority, processes, andreimbursement policies in connectionwith procuring by U.S. forces of facil-ities, supplies, labor, and other serv-ices.(9) Fiscal arrangements including cur-rency to be used in the area and regu-lations with respect to its possession

and exchange processes.(10) Details as to character and amountsof military and civilian supplies andservices which each government willfurnish and essential administrativeprocedures.(11) Coordination on matters of health andsanitation.(12) Operation of educational institutionsor public utilities.(13) Supervision of law enforcement sys-tem or operation of court system.

d. The senior U.S. commander should main-tain close liaison with U.S. diplomatic represen-tatives to insure maximum efficiency, unifica-tion of policy, and delineation of responsibil-ities and functions. Usually scope of authorityand procedural guidance will be covered in anExecutive Order issued by the President of theUnited States or by policy directive originatedwithin the National Security Council.1-5. Objectives

a. Effective civil affairs operations will as-sist the military commander in the accomplish-ment of his objectives, regardless of area ofoperation or mission, through the following:(1) Support and implementation of na-tional policies. The pattern and goalof civil 'affairs operations depend upon

national policy. Development of policyis primarily the responsibility of non-military agencies. The implementa-tion of policy, however, may be theresponsibility of the Armed Forces.Commanders must take those meas-ures necessary for the accomplishmentof their general missions and requestguidance, where it has not been pro-vided in sufficient detail, to serve as abasis for planning and for the attain-ment of military-political objectives.

(2) Fulfillment of obligationsarisingfromtreaty,agreement,or customaryinter-national law. Regardless of the cir-cumstances under which U.S. ArmedForces are employed in other coun-tries, international law imposes on themilitary commander obligations con-cerning civil populations, govern-ments, and economies. These obli-gations are usually specified in anagreement-status of forces, civilaffairs, aide-memoire, or similar ar-rangements, or by the law of war.These obligations are set forth in theHague Conventions of 1907, The FourGeneva Conventions of 1949, FM 27-10, DA Pam 27-1, and other servicepublications.

(3) Support of military operations inarmed conflicts. Civilian unrest an ddisorganization associated with andresulting from insurgency and regularcombat action may seriously hindereffective employment of militaryforces. Tasks include control of refu-gees and displaced persons, mainte-nance of order, emergency preventionand treatment of disease, procurementof local manpower and material re-sources, provision of civilian relief,and stress upon conduct of relation-ships with civilian government, agen-cies, and people.

(4) Support of other military operations.Of equal importance, and often pre-senting more complex problems ofnegotiation and administration, areAGO 60o62 5

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FM 41 5/OPNAV 09B2PI/AFM 110 7/NAVMC 2500peacetime military-civil relationshipswhere commanders have neither au-thority nor jurisdiction over civiliansand may even share authority overtheir own installations and personnelwith constituted agencies of civilgovernment. Under these circum-stances, trained civil affairs staff offi-cers and the functional experts ofcivil affairs units provide an efficientmedium of liaison and negotiation.

(5) Maintenance of reestablishment ofcivil government administration.When political institutions, economicsystems, and processes of civil admin-istration are disrupted or renderedimpotent by disaster, war, or insur-gency, many of the functions normallyperformed by civilian governmentsand agencies may be assumed by themilitary. Initially, as in the case ofoccupied hostile territory, this mayinclude assumption of authority andresponsibility for the exercise of anyand all governmental functions. Assituations become stabilized, many ofthe functions exercised by the ArmedForces are returned to civilian agen-cies. The transition normally is grad-ual and requires careful advance plan-ning for each phase of transference.

b. Successful accomplishment of the objec-tives in large part depends on the following:(1) Adequate plans based upon existingfacts and circumstances, departmental

guidance, and policy determinations.(2) An adequate staff capability to assistthe commander in carrying out hiscivil affairs responsibilities. When the

scope and nature of operations requirefunctional or operational civil affairscapabilities, civil affairs units shouldbe provided.

1-6. Principles of OperationCertain principles pertaining to civil affairshave universal application. These principlesare reflected in SOLOG AGREEMENT 29 .

1. The following general principles apply toall Civil Affairs and Military Government Op-erations; they are the basis for initial planningpurposes in the absence of specific guidance:a. Humanity. The principle of humanityprohibits the use of any degree of violence notactually necessary for the purpose of the war.War is not an excuse for ignoring established

humanitarian principles. To a large extentthese principles have been given concrete formin the law of war; but because all of these prin-ciples have not become legal rules, a militarycommander should consider whether a pro-posed course of action would be humane eventhough not prohibited by international law.b. Benefit of the Governed. Subject to therequirements of themilitary situation, the prin-ciple of governing for the benefit of the gov-erned should be observed.c. Reciprocal Responsibilities. The com-mander of an occupying force has the right,within the limits set by international law, todemand and enforce such obedience from theinhabitants of an occupied area as may benecessary for the accomplishment of his mis-sion and the proper administration of the area.In return for such obedience, the inhabitantshave a right to freedom from unnecessary in-terference with their individual liberty an dproperty rights.

d. Command Responsibility. Responsibilityand authority for the conduct of Civil Affairs/Military Government operations are vested inthe senior military commander, who is guidedby directive from higher authority, nationalpolicies, applicable agreements and interna-tional law.e. Continuity of Policy. Continuity and con-sistency in policy are essential to the successof Civil Affairs/Military Government opera-tions. Therefore, it is fundamental that over-all policy be developed at governmental or topcommand levels and transmitted through nor-mal command channels.f. Inclusion of Civil Affairs/Military Gov-ernment Aspects in Plans and Orders. It isessential that military directives, plans an dorders contain guidance to insure the accom-

plishment of the Civil Affairs/Military Gov-ernment mission.g. Economy of Personnel. The duties ofCivil Affairs/Military Government personnelshould be confined where possible to supervi-sion over existing or reestablshed civilianauthorities.h. Integration in Combined Operations. Incombined operations integration is desirable.This is achieved by exercising Civil Affairs/Military Government control through a com-

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FM 41-5/OPNAV 09B2PI/AFM 110-7/NAVMC 2500bined command as opposed to establishing sepa-rate areas of national responsibility. Suchintegration should be included at appropriate

command levels but should not extend to thecommand of Civil Affairs/Military Governmentunits of one nation by officers of another.

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CHAPTER 2MILITARY CIVIL RELATIONSHIPS

2-1. GeneralThe mission of a military commander in-cludes the responsibility for actions to securelocal understanding and support-to reduce orminimize the frictions inherent in the station-ing or deployment of U.S. military forces. Thisresponsibility, inherent in command, cannot bedelegated. A commander should, however, util-ize his staff to insure essential liaison, coordi-nation and control of activities associated withrelationships between military forces andcivilian government agencies and people. Thecharacter and degree of mutual support andcordiality attained in these relationships con-stitute a responsibility of command second onlyin importance to tactical operations and oftenhave a direct bearing on the success of assigned

missions. The impact of these relationshipsupon the performance of the mission of a com-mand is a primary concern of the military com-mander at all levels of command.2-2. Relationships in CONUS

a The success of military operations andactivities can be assured only by developingcompatibility between civilians and the mili-tary. Such a relationship is made up of manycomponent parts. Among them are the extentof participation in and identification with theaffairs of a community by military units andpersonnel resident in or near that community;the degree of friendly cooperation involved inthe conduct of official business; and the be-havior of individual members of the militaryforces, particularly when absent from dutystations. Broad guidelines for conduct of rela-tions with civilian authorities, agencies, and

individuals together with jurisdictional deline-ations are contained in pertinent laws andregulations. In time of war or national emer-gency, security considerations, requirementsfor closer control of individuals, and opera-tional commitments increase the scope of au-thority and jurisdiction of military command-ers. In the United States civil authority isparamount, but under circumstances of civilemergency or hostile attack, military authoritymay temporarily support or displace segmentsof civil administration which are incapable ofcarrying out normal functions. Mission successwill be directly influenced by the manner inwhich military-civil relationships are coordi-nated and conducted. Responsiveness to civildefense requirements will reflect prior liaisonand planning between elements of the militaryestablishment and adjacent civilian communi-ties.

b. Civil affairs staff officers and units have avaluable capability to assist commanders inthe exercise of their required functionsin do-mestic emergencies or in the aftermath ofhostile attack (JCS Pub 2).c. A U. S. military commander or domesticterritory may, on instructions from higherauthority or on his own initiative where cir-

cumstances do not permit delay, take suchaction as may be necessary to maintain lawand order and the continuance of essential gov-ernmental services. Emergencies which justifyresort to martial law may include flood, earth-quake, windstorm, fire, riot, civil disturbance,or any other extraordinary circumstance be-yond the capabilities of civil governmentalofficials. Although in the United States no decla-ration of martial law is necessary, it is custom-

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FM 41-5/OPNAV 0982PI/AFM 110-7/NAVMC 2500ary for the President, a governor, or a militarycommander to publish a proclamation to informpeople of the nature of the emergency and thepowers granted or assumed by the militarycommander. This proclamation, of itself, doesnot necessarily confer authority on the militarycommander. It does serve, however, to definethe area of military control and the specificgovernmental functions to be exercised. Aninitial proclamation of the type discussed inparagraph 6-2e may, with appropriate modi-fication of language, be applicable. Governmentin the United States is a civil responsibility,and the scope of military authority is limitedin application to the necessities of the circum-stance. Military officials of foreign countriespossess similar powers with the limits of theirauthority varying among countries.2-3. Relationships Abroad

a. All aspects of military-civil relationshipsof concern to commanders on domestic soil arepresent in oversea areas. In foreign countries,new complexities and sources of friction areintroduced by language barriers, differences incustoms, and diverse legal procedures. In addi-tion, the terms of international law and agree-ments, necessitate close coordination with allies.The hostile attitudes and activities of insurgentor other anti-U.S. elements will complicate andmultiply the problems of the U.S. commanderconcerned. In enemy areas, national policy andinternational law provide general criteria forguidance and administration. In friendly coun-tries, policies, privileges, and authority must benegotiated against a background of the politi-cal, economic, and sociological structure of theindividual country, especially when militaryunits are not engaged in active hostilities. Stillother problems arise from dislocations of popu-lations, disruptions, and antagonisms caused bycombat or maneuvers. Possible locale and con-ditions of employment are too varied to touchmore than generally on a few representativeenvironmental factors which will tend to com-plicate military-civil relationships. Some or allof the following conditions may exist:

(1) In some situations, the attitude of therecognized government may be hostileto the introduction of U. S. concepts,

and the government may lack the sup-port of large segments of its popu-lation. In other situations, the rec-ognized government may have thesupport of the majority of its people,but the popular attitude may considerU.S. political, economic, and socialconcepts as inferior or as not respon-sive to their needs.(2) Legal institutions and conceptions offundamental rights, although theymay satisfy the aspirations of thepeople may not conform to our legaltraditions. That they are differentdoes not mean that they are inferior.(3) Officials may be permitted to acceptgifts and hospitality under circum-stances that would justify a chargeof unethical or criminal conduct in theUnited States. Bribery and otherforms of malfeasance, though prohi-bited by law, may be accepted prac-tices as a result of local conditions.(4) Public communications media may becontrolled and censored or be irre-sponsible by U. S. standards.(5) Women and children by tradition mayhave an inferior status, and universalpublic education may be consideredundesirable for economic or culturalreasons such as poverty, religion, raceor caste.

(6) A small fraction of the population maycontrol large segments of land orother forms of property productive ofwealth.(7) Religious practices may be contrary tousual U. S. notions of justice and indi-vidual liberty. The religious traditions

of the people may penetrate everyfacet of their private and public lives.The church establishment may be con-trolled by the government, or viceversa, lending either theological sanc-tion to political action or political sup-port to church dogma.(8) Lack of adequate education or resist-ance by affected groups may haveslowed improvements in health and

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FM 41 5/OPNAV 09B2P1/AFM 110-7/NAVMC 2500sanitation and more efficient agricul-tural and industrial practices.

(9) Wage scales may be radically differ-ent, for instance, mechanics may com-mand higher pay scales than medicaldoctors or public officials.(10) Different physical conditions and fac-tors of resistance may make U. S.troops particularly susceptible to en-demic diseases.(11) Humanitarian motives which mayprompt U. S. personnel to furnishemergency relief or render first aidmay run counter to local law, religion,or cultural standards. Individuals maynot want to be helped or may become

overly dependent if they receivebountiful aid from U. S. troops. In-discriminate largess from U. S. per-sonnel may upset local economic con-ditions and not only earn no gratitudebut also may impose additional re-sponsibilities for the U. S. forces.(12) U.S. labor employment and procure-ment activities in less well developedareas could be highly inflationary be-cause of increased income without

compensating increases in consumergoods production.b. Military-civil relationships abroad arethus more complex and more challenging thanin the continental United States. They providecommanders with added incentives and oppor-tunities to exercise initiative and enterprise, toadvance national policies, and to develop lastinginternational friendships of mutual benefit tothe United States and the host country. Evenwhere the recognized government of the host

country has invited U.S. military units into itsterritory and has concluded agreements pro-viding for their status and for the reciprocalresponsibilities of the visiting force and thelocal authorities, politically inspired oppositionto our aims and objectives may be encountered.Such opposition overtly or covertly organizedby political groups hostile to the United Statesor its allies can be expected to use every form,magnify each unfavorable incident, distort the

reasons for the presence of U.S. forces, andgenerally use every tactic and technique to pre-vent attainment of U.S. objectives. In the faceof such opposition civil affairs staff officers andspecialists and other personnel performing civilaffairs functions must assist the commanderand all members of his command in maintaininga favorable image of the presence of U.S. forces.2-4. Wartime Considerations

During periods of active hostilities, com-manders in the continental United States havemany added responsibilities. In addition tomore critical security considerations for theirpersonnel, plans, equipment, and facilities, theymay have important civil defense support rolefor civilian communities and assignments tosafeguard utilities, transportation, and com-munication facilities and industrial plants ofjoint military-civil interest. In oversea areas,the problem of achieving maximum civiliansupport and minimum civilian interferencewith tactical and logistical operations requiresmajor emphasis. Troops may stage on or oc-cupy territory of friendly powers where con-stant adjustments must be made betweensecurity measures, operational efficiency, andalienation of essential goodwill. There will beshortages of civilian manpower, facilities, andsupplies to meet the essential needs of the localpopulation and the requirements of the UnitedStates and friendly forces. In formerly hostileareas, the problem becomes particularly acute.Aside from inherent antagonisms based onpatriotism, propaganda, and war suffering,commanders will be confronted with the tre-mendous complications of a war-shatteredpolitical and economic system. There will beshortages of essential food, shelter, and medicalsupplies, utilities and functions of public serv-ice will be damaged or destroyed; civil adminis-tration will have broken down; and streams ofdisplaced persons and refugees will clog arter-ies of movement, pose threats to security, andcompete for remaining housing. Under thesecircumstances, the manner in which civiliansare treated and relationships are handled cantip the scale either toward civilian cooperationand support or active insurgency.

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CHAPTER 3CIVIL AFFAIRS ORGANIZATION

3 1. The Department of Statea. The Department of State is the agencyprimarily charged with formulation and imple-

mentation of foreign policy. In the field of civilaffairs, the Department of State has primary orcollateral interest in determination, amongothers, of policies concerning-

(1) The government in a particular coun-try with which U.S. Armed Forces willdeal.

(2) The extent to which the commanderof U.S. forces will intervene in the gov-ernment of a particular country.

(3) Any matters having an impact on ourrelations with other countries, partic-ularly our allies and neutral nations.

(4) The level at which the economy of agiven country will be maintained bycivil affairs operations.

(5) The level of feeding of civilians in acountry in which U.S. forces are sta-tioned, or are in combat, to whom sub-sistence in part or in whole must beprovided by those forces.

(6) Any matters involving psychologicalwarfare, information and propaganda,and attitudes towards the indigenouspopulace.

(7) Plans for turning civil affairs activ-ities over to civilian control after theconclusion of hostilities either gener-ally or in a given country or area.

b. In oversea areas the exercise of the au-thority of the Department of State is vested inthe Chief of U.S. Mission (the U.S. ambassadoraccredited to the country concerned or principalU.S. diplomatic officer in the area).

3 2. Department of Defense Level.a. Office of the Secretary of Defense. TheOffice of the Secretary of Defense prescribespolicies and programs affecting civil affairsoperations of the Department of Defense, aftercoordinating with other Federal departmentsand agencies concerned.b. Joint Chiefs of Staff. The Joint Chiefs ofstaff-

(1) Request, as required, guidance fromthe Secretary of Defense as to broadpolicies in the field of civil affairsoperations.(2) Formulate specific policies within thebroad policies, modified as may benecessitated by requirements of themilitary situation, for transmittal to

commanders of unified and specifiedcommands and to representatives ofthe Joint Chiefs of Staff on alliedpolicy-making bodies.(3) Issue interim guidance and directiveswhen, in an emergency, appropriateguidance is not available.(4) Insure adequate coverage of civil af-fairs activities in all joint plans.(5) Take such other actions as may benecessary to keep policy development

and implementation abreast of currentmilitary, economic, and politicaltrends.(6) When circumstances indicate the re-quirement, establish with appropriatecomposition a joint civil affairs or-ganization to assist the Joint Chiefsof Staff in discharging their responsi-bilities in the field of civil affairsplanning and operations.

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FM 41-5/OPNAV 09B2P1/AFM 110-7/NAVMC 2500(7) When conditions warrant, recommendto appropriate authority the establish-ment of an organization, at allied com-mand level, analogous to the jointcivil affairs organization, and provideappropriate U.S. representation upon

such organization.c. Chief of Staff, U.S. Army. In accordancewith directives issued by the Secretary of De-fense and the Secretary of the Army, the Chiefof Staff, U.S. Army, will-(1) As Executive Agent for the JointChiefs of Staff for civil affairs plan-ning, initiate, for appropriate con-sideration by the Joint Chiefs of Staff,actions required to discharge the re-sponsibilities set forth in paragraph3-lb until a joint civil affairs organ-ization is established.(2) Establish and operate civil affairstraining installations for the basiccivil affairs training of all U.S. civilaffairs units and personnel.(3) Mobilize, train, and provide civil af-fairs units and personnel required inunified and specified commands exceptto the extent that this responsibility

may be specifically assigned to the De-partments of the Navy and the AirForce.(4) Furnish to the other services, at theirrequest, qualified personnel for servicein their civil affairs units as special-ists in the fields in which the Armynormally has an interest but in which

the other services ordinarily do notrequire or maintain trained personnel.(5) Make appropriate recommendations to

the Joint Chiefs'of Staff as to ade-quacy of detailed plans prepared byother agencies and by commanders ofunified and specified commands as apart of the normal review procedure.He also insures the necessary coordi-nation with U.S. governmental agen-cies.d. Chief of Naval Operations and/or theCommandant of the Marine Corps. The Chief

of Naval Operations and/or the Commandantof the Marine Corps will mobilize, train, anddeploy civil affairs units and personnel requiredto support the operations of forces, activities,and facilities of the Navy and the Marine Corpsin accordance with directives issued by theSecretary of Defense and Secretary of theNavy. This will be equally applicable to theCoast Guard when, in time of war, certain ofits operations and facilities are assigned to theoperational control of the Department of theNavy. Upon request of the Chief of Staff, U.S.Army, the Department of the Navy will providespecially qualified personnel for duty in Armycivil affairs training and operational units asinstructors or specialists in matters of primaryconcern to the Navy and Marine Corps.

e. Chief of Staff, U.S. Air Force. The Chief ofStaff, U.S. Air Force, upon request of the Chiefof Staff, U.S. Army, will furnish specially quali-fied personnel for service in Army civil affairstraining and operational units as instructors orspecialists in matters of primary concern to theAir Force.f. Common Service Responsibilities. In ac-cordance with directives issued by the Secre-tary of Defense and the Secretaries of theirrespective Military Departments, the Chief ofStaff, U.S. Army; the Chief of Naval Oper-ations; the Chief of Staff, U.S. Air Force; andthe Commandant of the Marine Corps-

(1) Direct their respective services to in-clude adequate coverage of civil affairsresponsibilities in service planning,to the extent appropriate.(2) Make pertinent recommendations tothe Joint Chiefs of Staff as to the ade-quacy of detailed civil affairs oper-

ational plans or annexes prepared bythe commands, as a part of normal re-view procedure.(3) Inform the Joint Chiefs of Staff ofany developments that require modi-fication of policy guidance or oper-ational instructions issued by the JointChiefs of Staff, and recommend ap-propriate action.(4) Determine and provide to the other

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FM 41 5/OPNAV 09B2PI/AFM 110-7/NAVMC 2500services for inclusion in their mobili-zation plans the estimated phased mo-bilization requirements for cross-serv-ice support related to civil affairs infurtherance of c(4), d, and e, above.

g. Commanders of Unified and SpecifiedCommands. Each commander-(1) Will plan for the conduct of such civilaffairs operations as may be appropri-ate in his area of responsibility as anintegral part of his mission, in accord-ance with guidance, policies, plansand operational instructions furnishedhim by the Joint Chiefs of Staff.(2) Will secure, through the Joint Chiefsof Staff, civil affairs units and person-

nel required to execute his plan, in thesame manner that other forces aresecured.(3) Will, as required, provide for a politi-cal advisor on his staff, to be furnishedby the Department of State, whoseduties shall be limited to advising himas to details of implementation of es-tablished policy, and for furnishinginformal technical contact with theDepartment of State to expedite that

department's decision as to mattersof policy determination or changes.(4) Is authorized, but not required, todelegate his authority for civil affairsmatters to one of the service com-manders in his area. The Army com-ponent commander normally will bethe person to whom this authority isso delegated.

h. Unit Commander. Each commander of aunit of the U.S. Armed Forces, regardless of itssize or subordination, will-

(1) Comply with applicable provisions ofinternational law in his relations withthe civilian persons in, and govern-ment of, a country in which his unitis stationed or in combat; and requiresuch compliance by members of hiscommand.(2) Perform such missions in the field

of civil affairs as may be directed byappropriate authority.(3) Except as otherwise directed, look toappropriate civil affairs units and per-sonnel to secure for him necessaryassistance, supplies, and facilities

from indigenous sources, and to dealwith local civilians and governmenton his behalf.3 3. Organization. at Department of theArmy Level

The Directorate of Civil Affairs is estab-lished as an element of the Army general staffwithin the Office of the Deputy Chief of Stafffor Military Operations who exercises staffsupervision over matters pertaining to -a. Civil affairs activities under jurisdictionof U.S. Army incident to relationships resultingfrom implied or explicit agreements betweenthe United States and other states relative tothe stationing or employment of U.S. forceson foreign territory,b. Civil affairs activities under jurisdictionof U.S. Army incident to the exercise of govern-mental functions in territory under the controlof U.S. Armed Forces.c. The planning and readiness measures re-quisite to United States Army conduct of civilaffairs operations.d. Monitoring programs and policies rela-tive to Civil Affairs Branch (Reserve).e. Civil administration of assigned foreignareas.

3-4. Organization for OperationsThe organization for civil affairs in areas ofoperations generally consists of general staffsections and units. Operations normally will beconducted by joint or combined organizationalstructures. Each commander of a unified com-mand will secure through the Joint Chiefs ofStaff the required civil affairs units and per-sonnel in the same manner as other forces aresecured. Civil affairs authority normally is dele-gated to the senior U.S. Army commander inthe area of operations. Integration of civil

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FM 41-5/OPNAV 09B2PI/AFM 110-7/NAVMC 2500affairs personnel is essential in combined opera-tions but normally should not extend to thecommand of civil affairs units or detachmentsof one nation by officers of another.3 5. Civil Affairs Staff Sections

a. The civil affairs section has primary re-sponsibility for the planning, coordination, andsupervision of civil affairs operations and forproviding advice on relations between militaryforces and the civilian population and on theimpact of military activity on a local commun-ity. It is on the general staff level at mostechelons of Army command down to and in-cluding divisions and comparable commands.On joint staffs, the civil affairs section will begiven an appropriate joint staff designation.In a large command or where civil affairs func-tions may become a major or primary missionof the command, the commander may appointa deputy for civil affairs operations or makethe civil affairs officer a member of his per-sonal staff.

b. The staff organization for civil affairs ac-tivities should be sufficiently flexible to meetthe particular needs of the command echelonand area in which it operates as determined bythe commander. It should provide not only forcontingencies of wartime but also for conditionsshort of war and peace. At army, corps, anddivision headquarters and at comparable levelsin the communications zone, civil affairs func-tions normally are conducted by a separateentity of the commander's staff. At lowerechelons in the combat zone and communica-tions zone, a civil affairs subsection operatingas an element of the operations or commandsection may perform the required functions.The civil affairs staff section or equivalent staffelement assists the commander in the exerciseof his command by performing the duties pre-scribed in FM 101-5.

c. Standardization of Operations and Logis-tics (SOLOG) Agreement 41, and Standard-ization Agreement (STANAG) 2058 providethat a division headquarters of the powers con-cerned will include a civil affairs officer andstaff when the division operates under the com-

mand of a U.S. Corps. (This will not apply whenassignment is temporary.) The armies of thesecountries will accept the responsibility for ap-propriate administration and support requiredby attached civil affairs personnel or units ofany of the other armies.d. For further information on civil affairsstaff organization and procedures see JCS Pub2, FM 41-10, and FM 101-5.

3-6. Civil Affairs Unitsa. A commander delegated authority to con-duct civil affairs operations normally will exer-cise that authority through a single civil affairscommand consisting of a headquarters unit andits subordinate units and teams, such as the

theater army civil affairs command (TACAC).Most civil affairs commands possess flexibilitybased on cellular-type functional teams and arecapable of performing either command or areasupport operations.b. Civil affairs command support units arethose provided for operational use to Armygroups, fleets, air forces, field armies, corps,divisions, and other commands (includingMAAG's and missions), as required. Units maybe either assigned or attached and normally

will accompany the command in movement.c. Civil affairs area support units are at-tached to major tactical or administrative unitsto augment command support units or to per-form civil affairs functions in specific geograph-ical or political subdivisions or of a specializednature.d. Support units will vary greatly in strengthand composition, being tailored to the require-ments of the supported organization and itsmission. The smallest civil affairs unit may

operate separately in command support of acombat division or, with appropriate augmenta-tion, conduct area operations in a town, ruralcounty or similar political subdivision. Civilaffairs units with greater capability are de-signed to assume responsibilities for the civilaffairs operations of progressively higher mili-tary echelons or to conduct area operations inlarge cities, provinces, states, or countries. Thisflexibility of civil affairs units is inherent in 6

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FM 41 5/OPNAV 09B2PI/AFM 110-7/NAVMC 2500their cellular-type organization which lendsitself to tailoring for any given mission.e. Civil affairs units are provided to area-oriented counterinsurgency forces. These unitsprovide personnel possessing those civil affairsskills required by the mission.3 7. Functions and Teamsa. Civil affairs units gain their flexibilityand comprehensive capability to conduct as-signed missions through the size and composi-tion of cellular functional teams. These teams,of graduated strength, consist of individualswho are technically qualified either to advise orto direct civilian counterparts in any political,economic, or sociological function. They mayperform the functions themselves where thecivilian apparatus is inoperative. For purposesof training, administration, and operations,civil affairs functions are divided into 21 sepa-rate categories which generally are consolidatedinto four broad areas of more nearly relatedactivities in the interest of organizationalstandardization and effectiveness of controlspan. Each function is related to a certain ex-tent to every other function, and their over-lapping and interlocking relationships obviateexclusive interest within any functional area.At the same time, some of the individual func-tions impose requirements for specialist per-sonnel in more than one skill. For example, thefood and agricultural function may requireexperts in agronomy, animal husbandry, for-estry, fisheries, manufacturing, processing,storage, and distribution.b. Nothing contained in this paragraph isintended in any way to derogate from the au-thority and responsibility of other staff agen-cies of the various military commands.

c. In actual operations, functional organiza-tion will vary with the nature of the mission,availability and individual qualifications ofpersonnel, and commander preferences. In thismanual (see FM 41-10 for additional guidance)they are grouped into the following categories:(1) Government functions.(a) Civil government.(b) Public law.(c) Public education.

(d) Public finance.(e) Public safety. f) Public health.(g) Public welfare.(h) Labor.(2) Economic functions.

(a) Economics.(b) Civilian supply.(c) Commerce and industry.(d) Food and agriculture.(e) Price control and rationing. f) Property control.(3) Public facilities functions.(a) Public works and utilities.(b) Public communications.(c) Public transportation.(4) Special functions.

(a) Displaced persons.(b) Arts, monuments, and archives.(c) Civil information.(d) Religious affairs.d. The governmental functions deal withthose activities normally associated with gov-ernment. The primary mission here is the pro-motion or restoration of governmental stabilityunder law.(1) Civil government. This function isconcerned with the structure andconduct of government at all levels.Exercise of the function is basedon knowledge of governmental prac-tices and political activities, applica-tion of local history, and review ofactions of civil officials in accordancewith competent directives. The goalis implementation of policy decisionsand law with respect to control of, orrelationship with, government in thearea of operations. Included in thisfunction during an occupation aresuch activities as the establishment ofappropriate political organizationsand governmental structures, theselection of officials to be installed, re-moved or retained, and the day to daysurveillance over governmental agen-cies to insure adequate support ofU.S. forces and adherance to the pur-poses of the occupation. During anoperation involving lesser degrees of

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FM 41-5/OPNAV 09B2P1/AFM 110-7/NAVMC 2500control the civil government functionmay involve liaison with governmentagencies on matters of mutual concernto the U.S. forces commander andlocal agencies of the host government.Such liaison will be carried out in con-sonance with the agreed terms estab-lished at national level by the hostgovernment and U.S. Department ofState representatives.

(2) Public law. This function deals withthe legal implications of relations withthe governments and populations ofnations wherever U.S. military per-sonnel are present. These functionsmay include, depending upon the cir-cumstances, some or all of the follow-ing matters:(a) Preparation of opinions on ques-tions of law pertaining to civil-mili-tary jurisdiction, contracts, bonds,and other administrative matters.

(b) Creation of or supervision of tri-bunals.(c) Review of or drafting of agreementswith local authorities.(d) Review of or drafting of legislationsuch as decrees, ordinances, and

similar type documents.(e) Legal advice in connection withproblems arising from local pro-curement and supply actions. f) Provision of assistance to and train-ing of local legal personnel.

(3) Public education. This function isconcerned with the assistance in orsupervision of educational programsand institutions, including libraries.Included are the closing or establish-ment of all schools; determination ofcurricula; screening of administrativeand instructor personnel; control offacilities, school supplies and books;and preparation of procedures forsupervision of administration.(4) Public finance. This function is ofvast importance in the conduct of eco-nomic warfare and economic stabiliza-

tion measures. It includes control,supervision, and audit of fiscal re-sources, budget practices, taxation,expenditures, handling of public funds,currency issues, and financial institu-tions; determination of fiscal account-ing procedures; review of publicfinance laws, and similar activities. Itis essential that activities in this func-tion be accomplished in an integratedand uniform manner within each na-tional area.

(5) Publicsafety. This function, basic incivil affairs operations, includes avariety of activities designed to exer-cise populace and resources controland promote public order. Among theprincipal public safety activities arelaw enforcement measures, includingtraffic regulation, police patrols, crimeprevention, control of public meetings,parades and the like; fire-fighting;restoration of order in disasters, civildisturbances, and civil defense emerg-encies; arrangement for warningservices; counterguerrilla measures,operation or supervision of confine-ment facilities; coordination withcounterintelligence activities; andsafeguarding of supplies, materiel,equipment, buildings, and areas.

(6) Public health. This function is con-cerned with measures to preserve orrestore conditions of public health andto protect the health of military forces.It includes such fields as review ofadequacy of medical and auxiliarypersonnel; administration or super-vision of medical and sanitation facil-ities; care and disposition of remains;protection of food and water supplies;disposal of sewage and waste; ar-rangements for preventive medicalservices; and treatment of sick andwounded civilians, including provi-sions for medical assistance by mili-tary units when necessary. In warsituations, it has now been providedby the Geneva Civilian Convention of1949 that belligerents must protect

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FM 41-5/OPNAV 09B2P1/AFM 110-7/NAVMC 2500the wounded, sick, aged, children, andexpectant mothers from the effects ofwar. This Convention also providesthat civilian hospitals and medicaltransportation facilities are entitledto the same protection from attack asis provided for military medical unitsand facilities.

(7) Public welfare. This function is con-cerned with emergency and reliefmeasures essential to public order andwelfare. Included are supervisionover public and private institutionsfor the care of children, the aged, andhandicapped and over miscellaneouscharitable and relief organizations.Emergency shelter and feeding cen-ters, relief supplies from militarysources, safeguarding appropriate es-tablishments, and the area defenseand evacuation plan may be involved.

(8) Labor. This function is concernedwith assistance to, liaison and coordi-nation with, and in appropriate cases,supervision or operation of govern-ment and private agencies concernedwith labor. Typical areas of concernare-

(a) Determination of the availability ofmanpower for essential civilian re-quirments, rehabilitation of theeconomy, and military support func-tions,(b) Maintenance or development ofwage and manpower controls with-in the local economy,(c) Maintenance or development of lawsand regulations for the protectionof workers,(d) Operations of labor organizations,(e) Settlement of labor disputes.In addition to activities in the laborfield directed primarily to the localeconomy and government, civil affairselements provide assistance in the pro-curement of labor available fromrefugee or local civilian sources, toU.S. Armed Forces staff and operatingelements concerned with the utiliza-

tion and administration of civilianpersonnel in direct military supportfunctions. (For guidance on the ad-ministration of foreign labor in directmilitary support, see DA Pam 690-80/NAVEXOS P-1910/AFM 40-8/NAV-MC 1196, and paragraphs 14.4-14.6,and 15.10-15.12, FM 100-10.)

e. Economic functions are significant in con-siderations of mutual military support, rehabil-itation programs, and long-range economicplans, and environmental improvement.(1) Economics. This function includesthe general matters pertaining to theeconomy of an area such as restora-tion, military use of local resources,economic warfare plans, economic sta-

bilization measures, exports and im-ports, production and movement ofgoods, and laws and agencies con-cerned with economic activities. Theextent of command involvement is con-tingent on the mission of the U.S.force.(2) Civiliansupply. This function is con-cerned with military supplies for useby, or for the benefit of, the civilianpopulation or with civilian supplies re-

quired for military use. In occupationsand during conflicts not of an interna-tional character, the minimum com-mand responsibilities prescribed bythe Geneva Conventions of 1949 (DAPam 27-1) will apply. These obliga-tions may be extended by U.S. policy.In other situations, specific treatiesand civil affairs or other agreementswill delineate the military command-er's responsibilities and the local civil-ian contribution to the military effort.Some of the factors to be consideredare strategic-logistic aspects, normalstandards of living, agricultural andindustrial patterns, transportationavailable for distribution of supplies,and adequacy of protection for civilianresources.

(3) Commerce and industry. This func-tion is concerned with the develop-AGO 6062A 19

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FM 41-5/OPNAV 09B2PI/AFM 110-7/NAVMC 2500ment of, or relationship with, localcommerce and industry in accordancewith the U.S. policy or announced ob-jectives to include plant rehabilitationand offshore procurement potentials.Included are surveys of basic activ-ities, facilities and potential; deter-mination of requirements for machin-ery, raw materials, and supplies, andsupervision of natural resources.

(4) Food and agriculture. This functionapplies to civilian production, process-ing, storage, and distribution of foodsto reduce the importation of food forcivilian and military use. It also hasapplication to land conservation, fish-ing, forestry, and farm machinery. In-cluded are surveys of farming meth-ods, natural resources, and processingfacilities; estimates of requirementsfor food, fertilizer, and farm ma-chinery; and recommendations on con-trols, restrictions, and protectivemeasures.

(5) Price control and rationing. Thisfunction concerns measures to insureequitable and effective distribution ofessential commodities. Control ofprices, rationing, rent control, andother related restrictions may be re-quired to prevent hoarding, inflation,black-marketing, and diversionary ac-tivities. Included are supervision ofofficials, procedures to control andallocate imported supplies, measuresto prevent exportation of needed sup-plies, and control or prohibition ofpurchases and sales between troopsand civilians.

(6) Property control. This function isconcerned with measures in imple-mentation of laws, regulations, and di-rectives bearing upon the control,management, administration, preser-vation, and custody of various cate-gories of property. In the discharge ofthis function, it is extremely importantthat complete and accurate records

are maintained of the property placedunder property control. These recordsshould include the description of theproperty, its location, the names andaddresses of custodians and claim-ants, its value, and any other pertinentinformation. In this way the legalrights of potential claimants for theproperty may be protected and thepossibility of expensive and protractedlitigation involving the United Statesmay be reduced.

f. Public facilities cover three somewhat re-lated technical functions which have both na-tional and local import. They are particularlysignificant because of their close relationshipto, and possible direct employment in the mili-tary effort and because of their importance toprograms of environmental improvement andpopulation control.

(1) Public works and utilities. This func-tion is concerned with such facilitiesas buildings, dams, water, gas, wastedisposal, and electrical power, includedare survey of facilities, analysis ofregulatory agencies, determination ofutilities requirements, and allocationof utilities to military and civilian use.(2) Public communications. This functionis concerned with postal services andwith all civil communications facilitiesand equipment not under the directmilitary control of the signal officer.It is also concerned with such mattersas civilian technical specialists in thisfield, communication parts and mate-riel, regulatory organizations, andinternational agreements relative tocommunications.(3) Public transportation. Railways, high-ways, airways, and waterways whichare under government or private op-eration and which form a system ofpublic transportation are within thescope of this function. Command in-

terest may extend to military use,routes, regulatory agencies, technicalassistance, protection, and operation.20 AGO 606S2A

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FM 41 5/OPNAV 09B2P1/AFM 110-7/NAVMC 2500g. Special functions are a residual categoryof civil affairs activities dealing with people,their rights as individuals, and cultural andrelated activities. They have special signifi-cance to the commander, not only because of re-quirements under international law, but be-cause of the intense effects they have on people'sattitudes, allegiances, and respect or distrust ofhis forces and operations. They are groupedfor reasonsof convenience and to facilitate staffsupervision of closely related activities. Theyinclude-

1) Displaced persons, refugees, and evac-uees. This function is concerned withthe control, care, repatriation, orsettlement of displaced persons, refug-ees, and evacuees or with the move-ment and reestablishment of village orsmall town populations in a govern-ment relocation program. Activitiesnormally included are movement con-trol to prevent interference with mili-tary operations, planning for construc-tion of refugee camps, and operationor support of such camps.

(2) Arts, monuments, and archives. In itsbroad aspects, this function seeks toinsure respect and protection of thetraditional culture, customs, and artsof an area. It is specifically concernedwith maintenance or establishment ofprotective measures for cultural prop-erty such as important religious edi-fices, monuments, and movable objectsincluding archeological, historic, scien-tific, and artistic objects and collec-tions. This function also includesarchival duties and tasks concernedwith cultural, governmental, and eco-nomic records having an intelligencevalue. The function may include anarea of concern with cultural affairsand respect for local customs andtraditions.

(3) Civil information. This function isconcerned with the supervision andcontrol of mass communications me-dia such as press, radio, television,and the information implications of

motion pictures and entertainment;censorship, and the dissemination ofinformation; and all facilities requiredtherefor. These media may be usedin the dissemination of a commander'spolicies and purposes or to gain theunderstanding, confidence, and sup-port of a population toward the ac-complishment of his mission. Psycho-logical operations consolidation unitsmay be attached to civil affairs unitsto support civil information opera-tions or psychological operations per-sonnel presently on the commander'sstaff may be utilized for the samepurpose.(4) Religious affairs. Commanderscharged with this function shouldendeavor to foster or preserve religi-ous freedom; to protect shrines, build-ings, symbols, and devices associatedwith religion, and to support clergyof all faiths and creeds in their peace-ful practices. Restrictions on the free-dom of religion and the practice there-of are permitted only in the interest ofpublic order, public health, andmorals. Rites detrimental to the lifeor health of the practitioners may be

prohibited.3 8. Personnel

a. The extensive authority given to personnelof all ranks assigned to civil affairs duties re-quires a high degree of integrity, honor, judg-ment and prudence. Under no circumstancesshould individuals allow themselves to becomecompromised or indebted, socially or otherwise,to any local individual or group. They shouldbe astute and considerate in all personal rela-tionships, conducting themselves with simpledignity as befits their position and the govern-ment they represent. A civil affairs operationconducted by or on behalf of an allied govern-ment or by the United States alone will followa pattern as determined by policy decisions.Although individuals may hold differing viewson policy pronouncements, they must take carethat personal opinions neither interfere with

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FM 41 5/OPNAV 09B2P1/AFM 110-7/NAVMC 2500the execution of their duties nor are trans-mitted in any manner to the local populace.During war, at the termination of active hostili-ties, or during counterinsurgency operations,it may become necessary to assign additionalpersonnel to civil affairs staff sections and units.Every effort should be made to select personsbest suited to such duties and to give themsuch preparation as the situation permits. Asudden influx of untrained personnel into civilaffairs activities should be avoided. It is essen-tial that personnel engaged in such duties beconstantly supervised and their actions ob-served by competent supervisory personnel.

b. The qualifications required by personnelengaged in civil affairs operations vary greatly.Civil affairs officers fill four types of positions-(1) Civil affairs staff section chiefs anddeputies. These officers should be ex-perienced in military organization,tactics, and staff procedures. Theirtraining should include civil affairsprinciples, policies, and organization.(2) Functionalspecialists.Functional spe-cialists must be highly qualified,through education and experience, inthe supervision of such functions aseconomics, governmental controls,public facilities, and other functionspreviously enumerated.(3) Unit commanders and executives.These positions are occupied bytrained civil affairs officers withknowledge of military organizationand administrative procedures andwith command experience.(4) Unit officers. Officers assigned to civilaffairs units must have had generalmilitary training, as well as civil af-fairs training, sufficient to qualifythem for the specific jobs to whichthey are assigned.

c. Civil affairs enlisted personnel fall withintwo general categories--1) Military administrative and servicepersonnel. Enlisted personnel assignedto purely military functions are se-lected by military occupational spe-

cialty (MOS) or Navy enlisted classi-fication (NEC) or Air Force specialtyclassification (AFSC). Such personnelshould normally receive unit and func-tional training in civil affairs units.(2) Specialists. Enlisted men of this cate-gory are selected on the basis of mili-tary and civilian background andtraining. After selection, they aregiven training in the application oftheir special knowledge to civil affairssituations.

3 9. Traininga. The civil affairs responsibilites of all mili-tary commanders will be emphasized. Trainingfor counterinsurgency operations particularlywill stress-(1) The primacy of the political natureand objectives of military operations.

(2) That the interplay between militaryand political objectives is so intricatethat they must be carefully balanced;and(3) That every military move must beweighed with regard to its politicaleffects and military effects.Civil affairs staff sections and units will par-ticipate in command post exercises and maneu-vers and elements of participating forces. Itis desirable that such staff sections and unitsbe trained with the force or at the level ofoperations to which they will be assigned.

b. Personnel selected for civil affairs dutywill be given appropriate training in the fun&tions and capabilities of civil affairs units andstaff sections. Where appropriate the trainingof functional specialists will be directed towardadapting civilian skills to the civil affairs mis-sion rather than attempting to create functionalspecialists from military personnel who lacksuch training, experience, or skills.

c. Training principles have been standardizedby agreements between the United States,United Kingdom, and Canada in SOLOG,among the NATO powers in STANAG (FM41-10) and among the SEATO powers in SEA-STAG. In addition to the training of civil af-22 AGO 6G0692A

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FM 41 5/OPNAV 09B2PI/AFM 110-7/NAVMC 2500fairs personnel, STANAG Agreement No. 2065and SEASTAG Agreement No. 2065 call forbasic orientation in civil affairs to be providedfor all active duty military personnel prior toor during movement overseas. All officers onactive duty will be given instruction to imparta general knowledge of civil affairs organiza-tion and operations.

d. The Department of the Army has beengiven the responsibility for all civil affairstraining except for such responsibility as maybe specificially assigned to the Navy or MarineCorps for the support of their own activitiesand facilities (JCS Pub 2).3-10. Other Agencies

a. In the execution of his civil affairs respon-sibilities, a commander may assist or receiveassistance from agencies outside his militaryestablishment, such as private organizations,U.S. civilian governmental agencies, interna-tional organizations, or foreign military orcivilian agencies and organizations engaged invarious civil affairs related activities in anarea of operations. Subject to any applicableagreement or provision of law or regulation,commanders may cooperate with such agenciesin the exchange of information and assistanceand in the attainment of mutually compatibleobjectives. Policy on coordination of activitiesshould be developed at the highest echelon. Onthe working level, close liaison should be main-tained.

b. Civil affairs staff sections or units mayrequire the attachment or assignment of quali-fied personnel not normally found in civilaffairs units to perform in specialized functionsor to provide additional support. Supportingunits or personnel may come from Army tech-nical and administrative services (FM 41-10),the Navy, the Air Force, other U. S. govern-mental or private agencies, and allied or inter-national organizations. The character andamount of support furnished by other agencieswill be determined by the requirements forassistance, availability of supporting agencies,and theater policy. The potential diversity andcomplexity of civil affairs operations as toarea and mission.are such that it is only prac-

tical in a manual of this scope to touch upona few examples of the type of support whichmay be required or available. They may in-clude-(1) Navy or Coast Guard personnel to

a) Manage or advise on operation ofwaterborne commercial shippingfacilities and craft.b) Provide technical advice on currents,tides, and offshore weather.(c) Assist in the development or reha-bilitation of shipbuilding industries.(d) Plan and police marine life conser-vation and industry programs.(e) Carry out enforcement activitiesconcerned with illegal shipping and

commerce.(2) Aviation personnel Air Force, Navy,Army, or civilian) to(a) Furnish technical assistance in theinitiation or improvement of com-mercial air service and facilities.(b) Provid6 advice or assistance in theprocurement or construction of air-craft and related equipment.(c) Operate aircraft allocated to supportof civil affairs operations.

(3) OtherU. S. governmentalagenciestoa) Provide national policy guidance(para 3-1).

(b) Assign liaison personnel in the in-terest of coordination, advice, an dtransition of controls.(c) Assist in relocation and repatriationprojects.(d) Support relief, welfare, and rehabili-tation operations.(e) Furnish qualified technicians, spe-cialists, and consultants to assist inspecial projects or situations.

(4) Allied or international gencies toa) Staff international tribunals, controlcommissions, or advisory bodies.

(b) Render such additional assistance asmay be required by policy or theexigencies of the situation.AGO 6062A 23

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FM 41-5/OPNAV 09B2P1/AFM 110-7/NAVMC 2500(c) Support relief, welfare, health, andrehabilitation operations.

(5) Religious, welfare, or private com-mercial interests to-(a) Assist in relief and welfare pro-grams.

(b) Aid in the establishment or develop-ment of educational programs andfacilities.(c) Advise in the development of localresources, industry, and trade.

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FM 41-5/OPNAV 09B2PI/AFM 110-7/NAVMC 2500

CHAPTER 4CIVIL AFFAIRS OPERATIONS

4-1. Civil Affairs MissionThe mission of a civil affairs staff officer orthe commander of a civil affairs organization isto plan, advise, conduct, and supervise militarycontacts with civilians so as to produce thegreatest contribution toward the accomplish-ment of the military objectives in a given area

or country. The nature of civil affairs opera-tions in a particular situation is affected bysuch variables as command mission, environ-ment, status of hostilities, national policy, andthe provisions of laws and agreements applica-ble to the command. Conditions differ, but thebasic mission of securing local acceptance andsupport for U. S. forces, of minimizing oreliminating the frictions and misunderstand-ings that can detract from U. S. relations witha foreign state or U. S. military relations withan American community, remain the same.4-2. Concept of Operations

a. Civil affairs operations are characterizedby the fundamental concept of control of policyat the highest practical level, coupled withthe integration of the military and civilianeffort at the lowest echelon feasible. Such op-erations require intensive planning, flexibility,and maximum adaptation to, and utilization of,local political-social structures and resources.The factors which influence both the level atwhich policy control should be exercised and atwhich integration of the military and civilianeffort should be accomplished are set forth inb below. The exact level of integration of themilitary-civilian effort towards a common ob-jective must be a command decision becauseno two situations will always have the samerelative balance of factors.

b. A military command may be operational

under conditions ranging from peace to generalwar and civil affairs operations may be re-quired under widely diversified conditions.These conditions may range as follows:(1) Developmental factors. From controlor assistance measures pertinent tothe exercise of governmental functions

in a highly developed area, with com-plex political, economic, and socialsystems, to measures for the improve-ment of the environment in an under-developed area.(2) Duration. From protracted control orassistance measures extending overseveral years or decades, pending reso-lution of major political, economic, ormilitary problems, to operations last-ing but a short time and prompted by

transitory, emergency situations.(3) Location. From control or assistancemeasures undertaken in foreign ter-ritory to like measures instituted indomestic civil defense or disaster re-lief operations.(4) Popularresponse. From operations in-volving a population actively support-ing hostile elements to those receivingthe enthusiastic support of a coopera-tive population.(5) Combat factors.

a) From operations in a society whichhas suffered total devastation anddisruption to measures taken in onethat has been undamaged by war-fare and associated effects.(b) From recourse to nuclear, chemical,and biological weapons under ap-propriate circumstances to the em-

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FM 41 5/OPNAV 09B2PI/AFM 110-7/NAVMC 2500ployment of conventional weaponsonly.

(c) From use of Army groups or fieldarmies in a general war to the useof operational advisory groups incounterinsurgency situations.(6) Legal bases. Depending upon the lo-cale of the operations and the activi-ties, civil affairs operations are gov-erned by customary international law,international agreements, laws of theUnited States, and laws of the countryconcerned.

c. Civil affairs operations extend from thesimplest form of advisory effort designed toassist a friendly military force in gaining thesupport of its own people to the most severeforms of military control over an enemy orotherwise hostile government or population.On the one end of this spectrum we find militarycivic action being suggested to a friendly coun-try as a preventive measure against latentinsurgency. On the other end we find the as-sumption by the military commander of fullexecutive, legislative, and judicial authorityover a conquered or otherwise unruly popula-tion. This span of possible missions and rela-tionships requires corresponding flexibility inorganization, planning, and operational con-cepts to achieve maximum effectiveness in thesupport and implementation of national policy.

d. Civil affairs unit operations fall into twodistinct categories, command support and areasupport. Civil affairs units that provide com-mand support are assigned or attached tomajor tactical or administrative organizations.When a parent command moves it is accom-panied by its command support civil affairsorganizations, and the functions previouslyperformed by these units are turned over toother civil affairs organizations. Civil affairsunits that provide area support, on the otherhand, serve a general purpose function in thatthey are able to reinforce command supportorganizations, to replace them, or to take overadministration of specifically assigned politicalor geographical entities or special task missions.Whenever practicable, area support units are

designated well in advance in operations orcontingency plans for specific areas and activi-ties, and are area-oriented; they are also ableto conduct emergency on-call operations whererequired. Such factors as population densityand composition, character of mission, termsof applicable agreements, popular acceptance,alliance involved, area resources, and policydecisions will determine the composition andfunction of area support units. These areasupport units may in certain situations becomposed of allied rather than U. S. personnel.e. Implementation of the civil affairs portionsof the area plan is normally an Army responsi-bility. The senior U. S. commander in the areainsures that appropriate subordinate command-ers can implement the civil affairs portions of

the operations plan by providing qualified per-sonnel for their staffs, and augmentationsthereto; by furnishing command and area sup-port units for deployment at the required timeand place in accordance with the overall areaof operations plan; and by insuring the timelyissuance of the area civil affairs operationsplan.4-3. Situations Short of War

a. Obligations arising from mutual securityagreements, commitments to international or-ganizations, activities of another power whichdirectly threaten the national interest, andforeign or domestic disaster may lead at anytime to an emergency situation requiring thecommitment of U. S. forces. A crisis mayprompt another government to invite theUnited States to intercede, thus bringing U. S.forces into its territory on an invitational basis,with or without benefit of a previous U. S.commitment or agreement. Troops will bealerted, units will be moved, and operations, toinclude possible combat, will be conducted with-in the bounds of whatever restrictive policiesmay be in force. Regardless of the nature ofthe mission, the ever-present military-civilianrelationship will be an important and continu-ing consideration for commanders.

b. In such limited operations, commandersshould attempt through appropriate channelsAGO 6062A26

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FM 41 5/OPNAV 09B2PI/AFM 110-7/NAVMC 2500to obtain an agreement with host governmentscovering relationships between their forces andthe civilian authorities and population beforecommitment. These agreements normally arenegotiated at governmental levels. However,where agreements have not been concluded priorto commitment or where initial details havebeen reserved to commanders, draft formulascovering command requirements should be pre-pared in advance as a basis for negotiation.Expeditious agreement on scope of activities,character of controls, claims procedures, andrelated factors will assist in eliminating opera-tional restrictions, providing a basis for trooporientation, and committing host governmentsto formulate in advance agreements or under-standings in areas of potential friction. Regard-less of whether agreements are ratified on thegovernmental level, it is imperative that com-manders establish policies and arrangements onthe working level to insure coordination andharmony between their organizations and localgovernments and populations (para 1-4b).4 4. Counterinsurgency Operations

a. Insurgent movements can only achievesuccess when they acquire and maintain popularor coerced public support. Conversely, a funda-mental prerequisite of any counterinsurgencyoperation is the separation of dissidents fromthe populace. The separation may be physical,psychological, or a combination of both. Meth-ods used will vary with the strength of theinsurrection movement, the character andamount of any external support, geographicalfactors, and the root causes that nourish dis-satisfaction. Regardless of the measures used,it must be constantly borne in mind that theultimate and decisive target is the people.b. While prevention is the best answer forinsurgency, it must be recognized as a practicalmatter that unrest and insurrection will con-tinue in many of the new and developing coun-tries of the world for the indefinite future.Since U. S. military personnel and organizationsmay be committed to active roles or supportactivities in counterinsurgency operations theyrequire an understanding of, and appreciationfor, basic factors. involved in insurgent move-

ments, including, for example, any or all ofthe following:(1) Lack of national consciousness andidentification with government.(2) Establishment of boundaries arbi-trarily determined in accordance with

former colonial subdivisions or otherunrealistic bases.(3) Shortages of managerial and technicalskills.(4) Political opportunism, partisanship,and corruption.(5) Population increases which transcenddevelopment of resources and produc-tion of creature necessities.(6) Preoccupation with long-standing ani-mosities associated with race, religion,

ethnic factors, and historical politicalrelationships.(7) Dissipation of national resources andfunds on symbols of status.(8) Economic exploitation, actual or imag-ined, by world powers.(9) Majority of wealth in minority posses-sion.10)(11) Low education levels.Division of resources involving assets

external to or traversing nationalboundaries, such as inland waters de-velopment programs, and off-shoremineral, fishing, and navigation rights.(12) International political rivalry.(13) Atmosphere and water pollution, soilerosion, and crop damage.(14) Subversion and political and economicwarfare activities of hostile nations.(15) Weak fiscal or monetary systems.(16) Unrest prompted by disease, poverty,or inequity.

c. Operations directed against insurgentsentail a delicate combination of necessary forceand measures taken to relieve sources of un-rest. The basic requirement is the alignment ofthe people with the aims of their lawfully con-stituted government. These aims are oftenbrought to them only through the presence ofa military organization. Good will between theAGO 6062A 27

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FM 41 5/OPNAV 09B2PI/AFM 110-7/NAVMC 2500civilian population and the military organiza-tion can be enhanced through military assist-ance in programs of economic development andsocial advancement, welfare activities, emphasison public relations and propaganda campaignswhich identify the armed forces with civilianwell-being, and protection for the civilians fromguerrilla depredations and atrocities (FM 41-10 and para 4-5 and 7-3).

d. No less important are troop behavior andofficial policies concerned with contracts, pay-ments, procurement, claims, administration oflabor, and other economic-legal relationships.This applies to both host country military or-ganizations and U. S. units committed eitherto perform support operations or to participatedirectly in counterinsurgency activities. U. S.troops assigned to duty on foreign soil need tobe thoroughly oriented on the customs andmores of the area and impressed with the in-fluence their behavior can have upon missionsuccess. Individuals must be required to con-duct themselves with decorum. They shouldrespect local customs and rights of propertyand person. As time and scope of employmentpermit, area and language training should beincorporated on a continuing basis into unittraining programs.

e. In a friendly country, U. S. military activi-ties in counterinsurgency operations normallyare geared to advisory and assistance roles withhost organizations and in cooperation withother U. S. agencies. This may be accomplishedunder the terms of mutual assistance pacts.Guidance will be projected through assistancein planning, training, programing, and bydemonstration. When the United States hasbeen invited by a friendly government to inter-cede in a matter of internal disorder or externalthreat, the U. S. military commander shouldbe accorded greater control authority in theinterest of operational expediency. The extentof authority granted him should be covered in astatus of forces or civil affairs agreements.

f. In the more violent stages of insurgencyor rebellion, strong countermeasures may beimperative to achieve stability and control.Even here, however, the primacy of the political

nature and objective of combat operations mustbe stressed. Armed dissidents are sought out,captured, or destroyed by military task organi-zations which must be trained to accomplishthis mission with minimum loss and destructionto civilian life and property-for example, theavoidance of the indiscriminate use of area typeweapons. Intelligence nets are reinforced andreporting procedures are expedited. The receiptof timely intelligence information from thepopulation is a decisive factor in such opera-tions, and this will be forthcoming in directratio to the positive nature of military-civil re-lations. Necessary regulations are imposed insuch matters as creden tials, curfews, movement,communications, accountability of personalproperty capable of conversion to hostile ends,suspension of civil rights, punishment ofcollaborators, evacuation or relocation, and ra-tioning of critical supplies. Such populace andresources control measures must, if they arenot to do more harm than good, be applied withfairness and humaneness as well as the requisitefirmness. In any case, only those control meas-ures should be applied which are required andwhich can be enforced. The promulgation ofcontrol measures which cannot be or are notenforced leads to additional disrespect of allgovernmental activities. Buffer zones are set upbetween the civilian population and internalguerrilla redoubt areas or havens in adjoiningcountries. Propaganda and counterpropagandaefforts are increased. Programs for communitysecurity are developed and subsidiary defenseforces are organized to develop public confidencein the central government and to deny guerrillascoerced or pilfered support. These activitieswill facilitate the eventual transfer of functionsto the duly constituted government. (FM 41-10and chap 7.)4-5. Military Civic Action

a. General. Promotion and support of mili-tary civic action programs as a part of civilaffairs operations involves the use of pre-ponderantly local military forces on proj-ects benefiting the population and enhancingthe relationship of the military forces with thecivilian community. Projects may be in suchfields as education, training, public works, agri-28 AGO 6062A

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FM 41 5/OPNAV 09B2PI/AFM 110-7/NAVMC 2500culture, transportation, communications, health,sanitation and others contributing to economicand social development. (U. S. forces may attimes advise or engage in civic action in over-sea areas.) In new and emerging countriesmilitary organizations often possess a majorshare of skilled manpower, funds, and technicalequipment, and may be able to make contribu-tions from military resources to communitysocio-economic development beyond the capa-bilities of civilians and civil government. Fur-ther, in most of the new and developing states,the military forces may represent the corner-stone of political stability. In some, governmentactually is administered to a considerable extentby military units and officers. Regardless of thedegree of military participation in political mat-ters, the defense establishments in developingcountries possess latent capabilities for internaldevelopment of greater real value than the moreconventional role of defense against externalhostile encroachment. They have trained ad-ministrators, technical specialists and a reser-voir of disciplined manpower. They have trans-portation, engineering, and communicationequipment; handtools; stockpiles of supplies;and control over land and facilities adaptableto civil as well as military support. The funda-mental tenet of any successful civic action pro-gram is civilian self-help. The military organi-zation may have a proportionately higher shareof trained manpower, equipment, and funds,but the civilian base in any country has vastnumerical superiority and greater overall re-sources in land, raw materials, facilities, ma-chines, and equipment. Security forces canprovide incentive, guidance, training, and sup-port from organizational resources. They canundertake specified projects beyond the capa-bilities of civilian agencies and can assist inselected civic ventures. The greatest accom-plishments, however, will be achieved wheremilitary planning, administrative ability, andtechnical know-how are used as the primer tostimulate self-aid programs in civilian com-munities.

b. Priorityof the Military Civic Action Ef-fort.(1) General. Military civic action projects

should be undertaken in relation toconventional assignments based uponpriority of requirements to achievenational security objectives. In deter-mining such priorities, it must beremembered that the primary securitythreat of most of the developing coun-tries is rooted in internal unrest ag-gravated by economic and politicalproblems, external subversion, and in-flammatory propaganda. Internationalforums and agreements combine torestrict the hazard of external armedaggression, but internal distress anddenial of opportunity foment unrestand insurgency. Under these circum-stances, military civic action projectsare fully as important in promotingsecurity and stability as are conven-tional tactics, weapons, and roles.Interference with primary militarymissions should be avoided, but, insome of the developing nations, con-structive projects are as important tointernal security and stability as nor-mal military activities. Where activearmed insurgency is not a factor, so-cial and economic advancement towhich military organizations maketangible contributions constitute an allimportant preventive measure againstthe inequities and discontent whichspawn insurrection.

(2) Counterinsurgency operations. Mili-tary civic action operations must bethoroughly planned and integrated in-to all phases of counterinsurgency op-erations. The emphasis is on earlyinitiation of civic action operation andother preventive measures which mayeliminate the conditions which mightotherwise cause any escalation to moreadvanced phases of insurgency. Ci-vilian populations which identify theirbest interests with lawfully consti-tuted government on the strength ofgood will engendered by nationalforces will be reluctant to provide in-surgents the supplies, manpower, se-

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FM 41-5/OPNAV 09B2P1/AFM 110-7/NAVMC 2500curity, and intelligence without whichthey have no prospect of achievingtheir ends. Results must be noticeable,and programs undertaken and prog-ress achieved must be publicizedthrough planned supporting psycho-logical campaigns. Popular support,engendered by military contributionsto social and economic bettermentprograms and the stabilization ofpolitical institutions and administra-tion, assists materially in securing theseparation of dissidents from popula-tion support and cover.

c. Coordinationof the Civic Action Effort.(1) The U. S. country team. Under theterms of an executive order, all agen-

cies of the U. S. Government, operat-ing in a foreign country, are subjectto coordination by the U. S. ambas-sador to that country. Heads of theseagencies are ex officio members of thecountry team. The ambassador pre-sides; the MAAG or Military Missionchief is usually the Department ofDefense representative, although asenior