1. Noncombatant Evacuation Operations (NEO)
Major S.C. Bair, USMC
TEMPEST EXPRESS-25
12 June 2014
This brief is classified:
UNCLASSIFIED

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

3. References JP 3-68, Noncombatant Evacuation Operations (23 Dec 2010)
Multinational Force SOP v2.9 (Oct 2013)
CJCSI A, Joint Force Headquarters Master Training Guide (1 Sep 2003)
DOD Directive , Noncombatant Evacuation Operations (5 Nov 1990)
CNA report on Operation: Eastern Exit (Oct 1991)
GAO report on July 2006 Evacuation of US Citizens from Lebanon (7 Jun 2007)

4. Outline Overview of US Government NEO 2) NEO Tools and Terms
3) NEO doctrine
Joint:
- JP 3-68, Noncombatant Evacuation Operations (23 December 2010)
Multinational:
- MNF SOP v2.9 (October 2013)
4) Examples of real-world NEO

5. NEO Overview - Objectives (JP 3-68)

6. NEO Overview - Definition (MNF SOP)
The term “NEO” means noncombatant evacuation but refers to Military Assisted Evacuation Operations.
Most of the time the State Department of a nation executes evacuation operations without any military assistance – but when called upon, it is almost always within a crisis response – time sensitive situation.
The order to evacuate is always a political decision with extensive ramifications.

7. US NEO Overview - History
Since 1988…
263 Drawdowns
23 Military assisted
18 Post closures

8. US NEO Overview - Authority (JP 3-68)
During NEOs the US ambassador, not the combatant commander (CCDR) or subordinate joint force commander (JFC), is the senior United States Government (USG) authority for the evacuation and, as such, is ultimately responsible for the successful completion of the NEO and the safety of the evacuees.
The decision to evacuate a US embassy and the order to execute a NEO is political.
The combatant commander may decide to create a Joint Task Force to conduct a NEO or may task a Component Commander to conduct the NEO.

9. Multinational NEO (JP 3-68)
US NEO Overview –
Multinational NEO (JP 3-68)
Multinational Forces (MNFs)
Ambassador, CCDR, and JFC may consider the possibility of operating with MNFs.
Approval for US participation in a multinational NEO will come only from POTUS.
Many situations that would cause the United States to initiate a NEO would likely cause other countries to react similarly.
It may be politically or militarily expedient to employ a MNF.
The difficulties of obtaining unity of effort within a MNF may cause serious difficulties in a time-sensitive NEO.
Coordination may better be accomplished through LNOs.

10. US NEO – Tools & Terms NEO Tools F-77 Data Warden System
Emergency Action Plan (EAP)
NEO Terms
AA - Assembly Area
FCE - Forward Command Element
ECC - Evacuation Control Center
ISB - Intermediate Staging Base
Safe Haven

11. US NEO Tools – F-77 Data (JP 3-68)
Each US embassy or consulate is required to submit to the Dept of State an annual report, on 15 December, of the estimated number of potential evacuees in its assigned area.
A copy of the most recent report must be filed with the embassy Emergency Action Plan (EAP).
F-77 reports are available on the secure US network.
The accuracy of the report depends on the general level of interest in the potential for an evacuation.
The fear that an evacuation may be required is often the most powerful motivator to get an accurate evacuee estimate.
These counts are only yearly estimates.
The accuracy of the estimate will vary with the speed and severity of the crisis.
If the whole population of a country suddenly perceives a deadly threat, evacuee numbers and panic will be abnormally high.

12. Smart Traveler Enrollment Program (STEP)
US NEO Tools –
Smart Traveler Enrollment Program (STEP)

13. US NEO Tools - Examples of F-77 Data
SIPRNET

14. Chief of Mission Authority (JP 3-68)
US NEO Terms –
Chief of Mission Authority (JP 3-68)
The US ambassador can order the evacuation of USG personnel and dependents other than uniformed personnel of the Armed Forces of the United States and designated emergency-essential DOD civilians who are not under the authority of the US ambassador.
While the US ambassador cannot order the departure of private US citizens, the ambassador can offer them US Govt evacuation assistance.

15. US NEO Tools - Warden System (JP 3-68)
Communications with potential evacuees may be via a warden system.
Notification system used to communicate to the US population through wardens using telephones, faxes, s, and direct personal contact.
The wardens prepare, update, and maintain a list of phone numbers and addresses of US citizens residing in their assigned areas.
It is US Government policy that there shall be “no double standard” to important security threat information, including criminal information:
“Generally, if the Department shares information with the official U.S. community, it should also make the same or similar information available to the non-official U.S. community if the underlying threat applies to both official and non-official U.S. citizens/nationals.”
* Source: U.S. Department of State Foreign Affairs Manual (FAM) Volume 7 – Consular Affairs

16. NEO Tools - Warden System
Emergency Messages
• Security Message for U.S. Citizens: Security Situation in Thailand - May 23, 2014
• Emergency Message for U.S. Citizens: Curfew from 10 PM to 5 AM - May 22, 2014
• Security Message for U.S. Citizens - May 20, 2014
• Emergency Message for US Citizens: Earthquake Damage in Northern Thailand - May 5, 2014
• Security Message for U.S. Citizens: Security in the Deep South of Thailand - April 11, 2014
• Security Message for U.S. Citizens: Continuing Protest Activity - February 14, 2014
• Security Message for U.S. Citizens: Ongoing Tensions and Possible Incidents of Unrest in Thailand - January 30, 2014
• Security Message for U.S. Citizens: Thai Government Invokes Emergency Decree - January 21, 2014

17. US NEO Tools –
EAP (JP 3-68)
US embassies and consulates are required to have Emergency Action Plans (EAP) for the area under their cognizance.
The US ambassador is responsible for the preparation and maintenance of EAPs, one section of which addresses the military evacuation of US citizens and designated foreign nationals.
EAPs are not tactical operation plans in the sense that military planners think of, but they are the reference materials that support the formulation of an operation plan.
A copy of the current EAP should be on file at the appropriate CCDR’s headquarters.

18. US NEO Tools – EAP Contents (JP 3-68)
Possible courses of action for different threat environments
Location of evacuation sites (landing zones, ports, beaches)
Anticipated number of evacuees (total number by area) categorized by medical status:
Persons not requiring medical assistance
Persons requiring medical assistance prior to evacuation
Persons requiring medical assistance prior to and during evacuation
Persons requiring emergency medical evacuation
Location of assembly areas and major supply routes
Location of command posts
Key personnel (name, location, and desired means of contacting them)
Description of the embassy communications system, transportation fleet, and warden system
Quantity of class I (subsistence) supplies on hand at the embassy
Quantity of class III (fuel)
Availability of class VIII (medical supplies)
Standard map products of the local area, with annotations identifying critical landmarks

19. US NEO Tools - EAP Example

20. DOS/DOD Coordinating Bodies (JP 3-68)
US NEO Tools –
DOS/DOD Coordinating Bodies (JP 3-68)
Washington Liaison Group (WLG)
Responsible for coordination and implementation at the national level of emergency and evacuation plans by DOS, DOD and other USG agencies.
Regional Liaison Groups (RLGs)
Collocated with combatant commands to ensure coordination of emergency and evacuation planning by their departments in the field.
Ensure coordination exists between the various posts, and between the posts and appropriate military commands.
Emergency Action Committee (EAC)
Established at a foreign service post by the ambassador to direct and coordinate the post’s response to contingencies.
The EAC is the focal point for DOS and DOD evacuation site interface.

21. NEO Tools - PACOM RLG
PACOM Regional Liaison Group (RLG)

22. Key Embassy Personnel (JP 3-68)
US NEO Tools –
Key Embassy Personnel (JP 3-68)
United States Defense Representative (USDR)
Normally the senior military official assigned to permanent duty with the mission (usually Defense Attaché or SAO).
In-country focal point for planning, coordinating, and executing support to USG officials for in-country US defense issues and activities that are not under the purview of the parent DOD components.
Security Assistance Officer (SAO)
Maintains liaison with the HN military forces and is authorized by law to perform certain military functions with the HN military.
Not all embassies have an SAO.
United States Marine Corps Security Guard Detachment
Minimum of six Marines - Commander is normally an EAC member.
Part of the embassy security force and normally will not come under JFC control.

23. US NEO Terms - Levels (DOD Directive 3025.14)
6. PROCEDURES
6.1. Evacuation of DoD noncombatants shall generally correspond to protection and evacuation plans established by the DoS as follows:
Travel Advisory Issued. When political or military actions within a country create a potentially dangerous situation for noncombatants, the DoS may issue a travel advisory to that location.
Standfast. All noncombatants are required to remain in place and take appropriate precautions to limit exposure since immediate movement will involve unacceptable risks.
Authorized Departure. Departure of noncombatants to an announced safe haven is encouraged and authorized at Government expense, with return also at Government expense.
Stop Movement. If the DoS announces an authorized departure, the Department of Defense issues a stop forward movement of military dependents, nonessential DoD civilians and their families, families of essential DoD civilians, and DoDDS staff and/or faculty.
Ordered Departure. Departure directed by the DoS to designated safe havens with implementation of the theater CINC NEO plan.

24. Definitions of Operational Terms
US NEO Terms –
Definitions of Operational Terms
Forward Command Element (FCE)
Coordinates with the ambassador and members of the country team for information and assistance.
Submits situation reports to the JFC.
Evacuation Control Center (ECC)
Conducts processing, screening, and selected logistic functions associated with emergency evacuation of noncombatants.
Size and composition determined by the number of evacuees, evacuation environment, and location of the evacuation area.
Intermediate Staging Base (ISB)
A temporary location used to stage forces prior to inserting the forces into the Host Nation.
Safe Haven
A location to which evacuees may be moved quickly and easily.
Ideally, the safe haven will be in the United States.
An intermediate safe haven may be a US Navy ship.

25. Definitions of Operational Terms Ambassador’s Residence
US NEO Terms –
Definitions of Operational Terms
Identify AA
Insert FCE
Coordinate with EAC
Verify EAP
Insert SEC
Coordinate with SAO
Insert the ECC
Muster evacuees at AA
Process evacuees through ECC
Move evacuees to ISB
Disestablish ECC, withdraw SEC
Proceed to safe haven
Mission Accomplished
American
School
ECC
Ambassador’s Residence
SEC
SEC
SEC
SEC
FCE AA AA AA
US Embassy

26. US NEO Doctrine Types of NEO Strategic Planning Considerations JP 3-68
MNF SOP
Operational Planning Considerations
Command & Control (C2)

27. Types of US NEO (JP 3-68)
Permissive Environment: No resistance to evacuation operations is expected. Little or no assembly of combat forces in country.
The JTF’s primary concerns may be:
Logistics
Emergency medical treatment
Transportation
Coordination with DOS and other agencies involved in the evacuation
Uncertain Environment: Host government forces, whether opposed or receptive to the NEO, do not have total effective control.
Planning must always include the possibility for escalation to a hostile environment.
Hostile Environment: Civil disorder, terrorist action, full-scale combat.
JTF may be required to:
Conduct a forcible entry operation
Establish defensive perimeters
Escort convoys
Personnel recovery (PR)

28. Military Response to NEO (JP 3-68)
Many service components are capable of conducting a NEO in a permissive environment.
NEO in an uncertain or hostile environment may require formation and deployment of a JTF.
An US-exception to this is the forward-deployed amphibious expeditionary strike group (ESG)/Marine expeditionary unit (special operations capable) (MEU[SOC]).
The ESG/MEU(SOC)’s organic combat, combat support, and combat service support forces are trained and certified to conduct NEO.

29. Strategic Planning Considerations
(MNF SOP)
NEO can further destabilize a crisis situation.
The simple announcement that an evacuation operation is being considered, planned, or is being ordered can escalate an already deteriorating situation.
NEO planning and coordination can actually increase the threat to a nation's citizens if handled improperly.

30. Strategic Planning Considerations
(JP 3-68)
CJCS or CCDR warning order will normally provide the JFC with a concise statement of the US national interests including:
The safety and welfare of US citizens.
The continued stability of the local government.
The maintenance of a firm posture against terrorism.
A demonstration of support for international commitments.
The probable environment in which the NEO will be conducted.
The ambassador should summarize the political objectives and constraints relevant to the JTF’s assistance, the nuances involved, and any constraints on the use of force that might be appropriate.
While these may be obvious to those intimately involved with the situation, the JFC will be better prepared to comply effectively with a request for help if the reasons have been clearly explained.

31. Operational Planning Considerations
(MNF SOP)
Three Key Operational Decisions
1) What is the Threat Environment and Evacuation Situation?
NEO threat environment in host nation (Permissive, Uncertain, Hostile)
Potential for escalation
Location, numbers and demographics of personnel requiring evacuation
2) What is the Conceptual Framework for the Mission?
MNF SOP contains detailed information on NEO operational phasing
3) How does the NEO TF commander ensure OPLAN and OPORDs are integrated with the existing plans by Foreign Affairs / State Department agencies?
MNF SOP contains detailed information on B2C2WG structure for MNF NEO

32. NEO Phasing (1 & 2) (MNF SOP)

33. NEO Phasing (3 & 4) (MNF SOP)

34. US NEO C2 (JP 3-68)

35. MNF NEO C2 (JP 3-68)
Although the ambassador(s) is the responsible national authority for a NEO, during a multinational NEO, the ambassador(s) does not exercise military command over the MNF.
The primary goal of the MNFC is to support the ambassadors’ plans and cooperate with the diplomatic missions without compromising military mission requirements.
The alliance/coalition may request designation of a lead diplomatic mission within the HN.

36. MNF NEO C2 (MNF SOP)
NEO execution (and crisis action NEO planning) signifies the situation has deteriorated to the point that nations have lost faith in the host nation's ability to maintain control of the situation or a clear danger to the evacuees exists.
It is important to recognize that NEO will normally not be executed within a Coalition /Combined Task Force (CTF) due to the extreme time sensitive aspects of most NEOs.
However, Major NEO operations are multinational in nature.
Lead Nation for “coordination” may be identified in lieu of a MNF

37. MNF NEO C2 (JP 3-68)
In most instances, the evacuation force is established from a designated MNF component, with other MNF components in a supporting role.
In permissive or uncertain NEO with noncombatants departing primarily by air, the joint force air component commander may be designated the evacuation force commander.
Noncombatant Evacuation Operation Coordination Center (NEOCC)
The MNFC might establish a NEOCC within the MNF HQ.
A centralized focal point between the various diplomatic missions and the MNF.

38. US Real-World NEO Examples
Permissive – Lebanon 2006
Uncertain/Hostile – Somalia 1991

39. US Permissive NEO
The 2006 Lebanon War was a 34-day military conflict in Lebanon and northern Israel.
Principal parties were Hezbollah paramilitary forces and the Israeli military.
Conflict started on 12 July 2006, and continued until a United Nations-brokered ceasefire went into effect on 14 August 2006.
Source:

40. Lebanon 2006

41. Lebanon 2006

42. Lebanon 2006

43. Lebanon 2006

44. Lebanon 2006

45. Lebanon 2006
A case in point presented to us was that, where State officials might request “10 planes,” DOD officials would want to know the precise numbers of people and tonnage of equipment to be transported. DOD would then determine the number and type of aircraft needed.

46. Uncertain/Hostile NEO
What if the situation degraded?
Case Study: U.S. Embassy Somalia NEO, January 1991
Operation Eastern Exit

47. Operation Eastern Exit (Somalia) 1991
5 December Voluntary (authorized) departure
19 December Official U.S. personnel reduced from 147 to 37.
30 December All official Americans were moved into the Embassy compound.
2 January Ambassador requests military assistance for evacuation.
2 January USS Guam and Trenton get under way at 2330.
5 January CH-53Es launch from USS Guam, insert 60-man evacuation force, and return to USS Guam with 61 evacuees.
6 January CH-46s evacuate remaining 220 evacuees and 60-man evacuation force.
11 January Evacuees offloaded in Muscat, Oman.

48. Operation Eastern Exit (Somalia) 1991
Late on December 31st, the first warning to military forces of the threats to the Embassy compound was issued.
COMUSNAVCENT directed in a note on the top of the 31 December message: "Better have Amphib crowd take a look at a helo NEO of Mogadishu."
The first direct notification of a possible NEO requirement that arrived on USS Blue Ridge (LCC-19) 1 January - almost a month after non-essential personnel began to leave Somalia.
Many problems encountered during the operation would have been avoided if the amphibious forces had begun contingency planning in early or mid-December

49. Operation Eastern Exit (Somalia) 1991
“The crew of the first AC-130 said they were ready to fly immediately but were not able to take off due to crew rest requirements (having landed at 1200 they could not take off until 2400 and could not arrive overhead Mogadishu until approximately 0110).”

50. Tools for NEO Planners
If tasked to plan a NEO, some good places to start are..
JP 3-68 Appendices
MNF SOP
CJCSM A
Joint Task Force Headquarters Master Training Guide

51. Tools for NEO Planners (JP 3-68)… ……
69. What HN religious sites, shrines, buildings, facilities, or other locations do JTF
marshalling teams need to be aware of to avoid desecrating them and antagonizing the populace?

52. Tools for NEO Planners (MNF SOP)

53. Tools for NEO Planners (CJCSI 3500.05A)

54. Questions?
Major S.C. Bair, USMC III MEF G5 Plans Okinawa, Japan Commercial: +81 (0) Cellular: +81 (0)

55. Thank You!