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National Personnel Recovery Architecture Study Final Report Briefing

World Wide Personnel Recovery Conference 31 August 2004

Institute for Defense Analyses

4/30/2020-2

4/30/2020-3

Congressional tasking for the NPRA Study

“…conduct a

government wide interagency needs assessment in order to define the components of a fully integrated national personnel recovery architecture. The assessment should include a consideration of service personnel, civilians and contract personnel , and examine the possible consolidation of training programs. The study should recommend a coordinated national goal for personnel recovery , roles and responsibilities of each department, agency or office…DPMO lead”

4/30/2020-5

Study Scope Limited To

•

Presently planned force structure of all agencies/departments

•

Improved coordination, synergy, and leveraging among US Government Departments and Agencies

•

Overseas Personnel Recovery

•

Military, civilian and contractor personnel on official duty

4/30/2020-6

I m l p e m e t n NPRA Assessment Methodology Direct and

• • • • •

Guide Doctrine Mission Requirements Requirements

Architecture Components

• •

Isolated Personnel

• • • •

Recovery Forces Commanders and Staff Identify Gaps Compare

•

D

octrine •

O

rganization •

T

raining •

M

ateriel •

L

eader Dev.

•

P

ersonnel •

F

acilities

Execute the Mission

•

Strategic

•

Operational

•

Tactical

• Report • Locate • Support • Recover • Return / Repatriate

4/30/2020-7

Proposed Definition of PR

Personnel Recovery – is the sum of military, diplomatic, and civil efforts to prepare and execute the recovery of U.S. military, government civilians, and government contractors , who become isolated from friendly control while participating in U.S. sponsored activities abroad, and of other persons as designated by the President.

Expanded Scope with an Overseas Mission Focus

Personnel Recovery Related Capabilities

•

Current capability is compartmented rather than integrated

•

National Architecture should benefit from synergy among agency capabilities

4/30/2020-8

Two General Situations for PR



Combatant Commander (COCOM) in charge – Combat theaters such as Afghanistan and Iraq, where there was no U.S. Mission, PR was a military responsibility

– The PR Commander and staff (e.g., JSRC, RCC) have the authority and capability to execute PR without real-time coordination above the JTF 

Chief of Mission (CoM) in charge – Countries where there is a U.S. Mission, but there are no U.S. PR forces. PR responsibilities of the host nation and the U.S. Mission are fragmented.

– CoM and the host nation have responsibilities, but generally no standing capability causing time delays.

– PR coordination process is complex involving multiple players depending on the situation – When a PR incident occurs, coordination and response is time-sensitive, but instead are likely to be ad hoc, causing excessive delays – Isolated Personnel are likely to be captured or killed if prior coordination is not affected and response is not exercised.

4/30/2020-9

CoM in Charge – Shortfalls

4/30/2020-12 • • • • • • •

No interagency policy, doctrine, or procedures for PR (D) DoS focus on security and evacuation; no mention of PR (D)

•

Host Nation understanding, cooperation, capabilities, interoperability are critical, but usually lacking (O)

•

Crisis Management Support Center, Political Military Action Team, Foreign Emergency Support Team, and Emergency Action Committee not organized to respond to PR incidents in time-sensitive manner (O) Limited number of people have received PR training (personnel at risk, management/staff, or recovery force) (T, P) Limited awareness or use of DoD tools or aids outside of DoD Limited awareness of PR at senior leader levels Numerous contractor coverage limitations (D, P) (L) No focused PR training, exercises, or facilities outside DoD (F) (M)

CoM in Charge – Solutions

4/30/2020-13 • • • • • •

NSPD required in order to

– Establish National Policy and NSC oversight (D) – Create an organizational infrastructure to support PR (O) » DoS focal point office; country team PR coordination cells – Identify and fund PR training and equipment requirements (T, M)

Ensure Joint Pub 3-50 addresses interagency issues Standardize PR policy and support with regard to government civilians and contractors (D, P) (D) Top-down planning emphasis, i.e., include PR in DoS Strategic Plan, Mission Performance Plans, Emergency Action Plans, evacuation, and Cooperative Security Plans (D) Improve PR training

– Develop senior leader and staff planning and isolated person PR courses at NFATC and NDU (JPRA assist) (T, L) – Expand PR training provided by JPRA and CRCs (T) – Conduct PR exercises in high threat countries to improve readiness (T)

Establish interagency materiel development process to pool resources (M)

4/30/2020-15

COCOM in Charge – Shortfalls

• • • • • •

No Joint PR doctrine exists; capabilities are Service-centric and do not address non-DoD interagency/coalition policies, concerns,or capabilities (D) PR organizational infrastructure lacks cohesiveness and robustness

– JPRA not truly joint and not resourced to provide liaison support to interagency community (O) – COCOM JSRCs (other than CENTCOM) are not adequately staffed » CENTCOM borrowed other COCOM personnel (O, P) – Insufficient personnel structure in Services (O, P) – PRAG and PRRC not efficiently organized (O)

Joint training seldom exercises PR; no dedicated PR exercise Survival, Evasion, Resistance, and Escape training backlog increasing (T) (T) Requirements for materiel and development programs are managed individually, not integrated (M, O) Contractor policies not standard across services, not enforced (D)

4/30/2020-16

COCOM in Charge – Solutions

• • •

Update Joint Personnel Recovery Doctrine Joint Pub 3-50 Revise/implement policies in accordance with the NSPD (D) (D) Expand the Joint Staff office for PR, expand DPMO PR Directorate to support Interagency, better integrate JPRA into JFCOM (O, P)

• • •

Reengineer PRAG and PRRC (O) Expand PR joint training to include interagency and coalition (T) Validate SERE training requirements, implement the Core Captivity Curriculum, and expand facilities to meet requirements (T, F)

• •

Develop a Joint PR modernization plan for materiel (M) Ensure that PR policy and support is enforced for DoD civilians and contractors (D, P)

Key NPRA Recommendations

4/30/2020-17 • •

Need an NSPD to create the National architecture (D, O)

– Define PR and the scope – Develop interagency organizational infrastructure – Provide adequate resources (funds and personnel)

Initiate a program with DoS to assess and enhance US Embassies’ readiness to respond at short notice to PR incidents

planning and preparation – Leverage all available programs and resources – Improve host nation capability

(D, O, T)

– Conduct periodic PR assessments in the embassies to improve • •

The NPRA provides US government contractors the same PR coverage as provided to government personnel

Acquisition Regulation

(D, P)

– Develop Department and Agency policies and revise the Federal

Revamp the approach to survival, evasion and resistance training (T)

– Implement Core Captivity Curriculum – Increase JPRA throughput – Improve DoS training for non-DoD agencies – Review and certify private sector training capabilities

4/30/2020-18

NSPD Establishes an Interagency Definition for Personnel Recovery

Personnel recovery is the sum of military, diplomatic, and civil efforts to prepare and execute the recovery of U.S. military, government civilians, and government contractors, who become isolated from friendly control while participating in U.S. sponsored activities abroad, and of other persons as designated by the President.

NSPD Establishes National Policy

•

Recover all U.S. military, government civilians, government contractors , and others designated by the President who are isolated from friendly control while participating in a government-sponsored activity and return them to a safe environment

•

Isolated personnel will adhere to the following guidelines:

– Assist other Americans and do nothing that may harm a fellow American – Resist attempts by captors to exploit them and refuse special treatment – Refuse to make written, oral or videotaped statements harmful to the U.S.

– Carefully plan actions realizing that decisions can impact the Government’s ability to affect recovery or release 4/30/2020-19

NSPD Underscores Responsibilities Two General Personnel Recovery Situations

•

Military operations in support of U.S. policy

– Combatant Commander responsible for protecting U.S military, U.S. Government civilians, U.S. Government contractors and coalition partners •

No on-going U.S. military operations

– Chief of Mission responsible for monitoring the recovery of U.S. Government civilians and U.S. Government contractors – Actual recovery operations are normally the responsibility of the host nation – Likely to be a cooperative effort between U.S. Mission, host nation, and DoD 4/30/2020-20

NSPD

•

Directives Counter-terrorism and Security Group Policy Coordination Committee of NSC will coordinate PR policy and recommend PR response options to the President

•

DoD will develop PR policy for interagency coordination; NSC will coordinate policy with Departments and Agencies

•

All Departments/Agencies

– – –

Will participate in planning and executing PR missions consistent with respective capabilities Shall establish a PR office or focal point Will identify PR training and support requirements and PR capabilities and limitations

•

Instruction to Chief of Mission will emphasize deliberate, integrated PR planning to include the establishment of a PR cell in selected countries

•

DoS will plan in advance PR activities (education, training, and exercises) for high-risk countries

•

DoS will assist the host nation in meeting PR requirements

4/30/2020-21

4/30/2020-22

Questions?

Comments!

Discussion…

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PERSONNEL RECOVERY MODERNIZATION ROADMAP

LT COL STEVEN JOHNS CHIEF, PERSONNEL RECOVERY

27 UNCLASSIFIED

Title of slide

TOPICS



Personnel Recovery Modernization Working Group (PRMWG)



Major Themes for PR Modernization Roadmap



Key Findings and Recommendations



Way Ahead

28 UNCLASSIFIED

PERSONNEL RECOVERY MODERNIZATION WORKING GROUP



Modernization plan identified during 2000 DoD PR Conf



-- No movement until 2002 when Adm Giambastiani tasked JPRA to lead the effort



PRMWG was composed of members from OSD, COCOMs, Services, NRO, NSA, and JS.

Analytical and admin support provided by Booze, Allen and Hamilton

29 UNCLASSIFIED

CRITICAL THEMES



Prepare Isolated Personnel, Recovery Forces and Commanders/Staff to plan/execute PR Ops



Provide Battlespace Awareness to Isolated Personnel, Recovery Forces, and CC/Staff to prepare PR Ops



Provide C4I support to Isolated Personnel, Recovery Forces and Commanders/Staff to plan and execute PR Ops

UNCLASSIFIED 30



Enable Isolated Personnel and Recovery Forces to survive isolation and PR Ops



Provide timely and accurate location and authentication for Isolated Personnel



Enable Effective execution for all aspects of Personnel Recovery Ops.



Provide future capabilities for the Joint Force to effectively execute Personnel Recovery Ops

31 UNCLASSIFIED

KEY FINDINGS/RECOMMENDATIONS



#1 – There has never been an unconstrained examination of the Joint PR mission area -- Recommendation: Develop a Personnel Recovery Joint Integrating Concept



#2 – There are great disparities in the Joint PR employment concepts, tactics, techniques and procedures between Services and COCOMs. -- Recommendation: Conduct a PR Functional Area Analysis

UNCLASSIFIED 32

KEY FINDINGS/RECOMMENDATIONS



#3 – The Modernization Roadmap cannot, on its own, form the basis for the mission-wide transformation of Joint Personnel Recovery -- Recommendation: Develop a Joint PR Transformation Roadmap



#4 – Service, Joint and Interagency PR training and education were inadequate -- Recommendation: Conduct a Review of PR Training and Education

UNCLASSIFIED 33

Title of slide

KEY FINDINGS/RECOMMENDATIONS



#5 -- Deficiencies exist in dedicated Joint Concept Development and Experimentation for PR -- Improve PR Joint Concept Development and Experimentation

34 UNCLASSIFIED

WAY AHEAD



National Personnel Recovery Architecture must be established---DPMO working this



National Security Presidential Directive -- Interagency involvement in PR Architecture

 

Must ensure JOINT buy in – not just Services Personnel Recovery Policy must be updated to provide “Forcing Function” for change -- Rewrite 2310.2/JP 3-50 in progress

35 UNCLASSIFIED

PERSONNEL RECOVERY MODERNIZATION ROADMAP

QUESTIONS??

36 UNCLASSIFIED

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JPRA J7 Policy, Doctrine, & Training

Daniel Williams J71

UNCLASSIFIED

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JP 3-50 Joint Doctrine for Personnel Recovery

JP 3-50 Timeline

• Distribute Second Draft • Second Draft 0-6 Review • JP 3-50 Working Group Meeting • Second Draft Issues Adjudication • Distribute Final Coordination Draft • Final Coordination Planner Level Review • Final Coordination Issues Adjudication • Signature Copy Preparation • Publication Approval 16 Jul 04 16 Sep 04 26-28 Oct 04 Nov 04 Dec 04 Feb 05 Apr 05 May 05 Jun 05 40

The DoD PERSONNEL RECOVERY SYSTEM

Policy &

SN

& Training

Preparation

Commanders & Staffs Recovery Forces Isolated Personnel

Locate Planning Report Survive Evade Resist Escape Recover Reintegrate Assessment, Lessons Learned, & Requirements Support Execution Adaptation

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JP3-50 Chapter Outline

• Chapter I, Introduction – Overview – The Department of Defense Personnel Recovery System • Chapter II, Functions and Responsibilities – General – Geographic Combatant Commanders – Joint Force Commanders and Staffs – Component Commanders, Staffs, and Subordinate Organizations – Service Responsibilities 42

JP3-50 Chapter Outline

• CHAPTER III, COMMAND AND CONTROL – Command and Organizational Relationships – Coordination and Liaison – Communications • CHAPTER IV, PRODUCTS AND PREPARATION – SECTION A. PRODUCTS • Command, Control, Communications and Computer Systems • Recovery Forces • Isolated Personnel 43

JP 3-50 Chapter Outline

– SECTION B PREPARATION • Commanders and Staffs • Recovery Forces • Isolated Personnel • CHAPTER V, PLANNING – General – Planning Tasks – Mission Analysis – The Personnel Recovery Plan – Personnel Recovery Standing Operational Procedures – Personnel Recovery Mission Planning 44

JP 3-50 Chapter Outline

• CHAPTER VI, JOINT PERSONNEL RECOVERY PROCEDURES AND TECHNIQUES – SECTION A. METHODS • Combat Search and Rescue Task Force • Non-conventional Assisted Recovery – SECTION B REPORT • Distress Notification • Notification Responses – SECTION C LOCATE • Locate • Authenticate 45

JP 3-50 Chapter Outline

– SECTION D SUPPORT • Operational Support Techniques • Other Support Considerations – SECTION E RECOVER • Extraction • Physical Recovery • Isolated Personnel Actions During Recovery – SECTION F REINTEGRATION • General • Process • Challenges During Reintegration • Follow-up • Legal and Administrative 46

JP 3-50 Chapter Outline

• APPENDIX – A. Military Support to Civil Search and Rescue – B. US Army Personnel Recovery – C. US Navy Personnel Recovery – D. US Marine Corps Personnel Recovery – E. US Coast Guard Personnel Recovery – F. US Air Force Personnel Recovery – G. Special Operations Forces Personnel Recovery – H. Blood Chit Program Administration – J. Evasion – K. Sample Air Tasking Order Special Instructions 47

JP 3-50 Chapter Outline

• APPENDIX – L. Planning (Classified Supplement) – M. Sample Checklists – N. Reintegration Administration – O. References – P. Administrative Instructions 48

Definition Changes

•

Personnel Recovery.

The sum of military, diplomatic, and civil efforts to effect the recovery and reintegration of isolated personnel.

•

Isolate Personnel

changed definition to

US military, DOD civilians, and DOD contractor personnel (and others designated by the President or Secretary of Defense) who are separated (as an individual or group) from their unit while participating in a US sponsored military activity or mission and are or may be in a situation where they must survive, evade, resist, or escape.

•

High-Risk-of-Capture

changed to

High-Risk-of Isolation (HRI) Personnel. Personnel whose position or assignment makes them particularly vulnerable to being isolated, captured, and exploited by adversary forces, terrorists, or unfriendly governments.

49

Definition Changes Cont.

•

Joint Combat Search and Rescue Operation

. A combat search and rescue operation in support of a component's military operations that has exceeded the combat search and rescue capabilities of that component and requires the efforts of two or more components of the joint force. Normally, the operation is conducted by the joint force commander or a component commander that has been designated by joint force commander tasking.

•

Joint Search and Rescue Center (JSRC)

change to

Joint Personnel Recovery Center (JPRC)

.

The primary joint force organization responsible for planning and coordinating personnel recovery for military operations within the assigned operational area.

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Definition Changes Cont.

•

Non-Conventional Assisted Recovery (NAR).

Personnel recovery conducted by special operations forces unconventional warfare ground and maritime forces and other government agencies who are specifically trained and directed to establish and operate indigenous or surrogate infrastructures for personnel recovery.

•

Opportune personnel recovery.

A survivor-initiated, indigenous assisted recovery, whereby an isolated person takes advantage of an opportunity to enlist the aid of indigenous personnel in finding their way back to friendly forces.

51

Definition Changes Cont.

•

Personnel Recovery-Capable Forces.

Forces that are not necessarily organized, trained, or equipped for personnel recovery, but have a recognized ability to perform some elements of personnel recovery.

•

Rescue Coordination Center (RCC)

change to

Personnel Recovery Coordination Cell (PRCC)

.

The primary joint force component organization responsible for coordinating and controlling component personnel recovery missions.

52

Definition Changes Cont.

•

Personnel Recovery-Dedicated Forces.

These forces organized, trained, and equipped for personnel recovery and identified by their component commander to the joint force commander as the primary forces to form a combat search and rescue task force in the conduct of personnel recovery operations.

•

Recovery Team (RT).

Designated US or US-directed forces, that are specifically trained to operate unilaterally or in conjunction with indigenous or surrogate forces, and are tasked to contact, authenticate, support, move and exfiltrate isolated personnel. Recovery teams may interoperate with other nonconventional assisted recovery forces, and other US or multinational personnel recovery capabilities.

53

Definition Changes Cont.

•

Unconventional Assisted Recovery (UAR).

Nonconventional assisted recovery conducted by special operations forces (SOF). As a subset of unconventional warfare, SOF can conduct unconventional assisted recovery unilaterally, in conjunction with indigenous or surrogate personnel, or in conjunction with other government agencies employing compartmented tactics, techniques, and procedures.

•

Unconventional Assisted Recovery Coordination Center (UARCC).

A compartmented special operations forces facility staffed on a continuous basis by supervisory personnel and tactical planners to coordinate, synchronize, and de-conflict nonconventional assisted recovery operations within the operational area assigned to the joint force commander. The joint force special operations component commander establishes the unconventional assisted recovery coordination center to manage existing nonconventional assisted recovery capability.

54

Definition Changes Cont.

•

Unconventional Assisted Recovery Team (UART).

A designated special operations forces unconventional warfare ground or maritime force capable of conducting unconventional assisted recovery unilaterally, or with indigenous or surrogate forces.

55

Questions ?

56

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US Government Contractors in High Threat Areas Improving Contractor Survivability in Personnel Recovery

NPRA Study definition of Personnel Recovery covers US Government (USG) contractors:

Personnel recovery is the sum of military, diplomatic, and civil efforts to prepare and execute the recovery of U.S. military, government civilians, and government contractors, who become isolated from friendly control while participating in U.S. sponsored activities abroad, and of other persons as designated by the President.

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Some Background …

GAO findings, June 2003

“

Guidance

at the DOD, combatant command and service levels …

varies widely

… mechanism for

managing

contractors is

inconsistent

.

Only the Army

has developed substantial guidance and policies (FM 3-100.21). There is

no standardization of necessary language

for deployment of Contractors. This situation can …impede the local commander’s ability to provide

force protection and support to contractor personnel

.”

• USG Contractors presented a separate, potentially large and highly vulnerable group in the context of Personnel Recovery …

IDA Study Team set out to: • Examine approaches to mitigating and managing risk of USG contractor capture, injury, isolation.

• Refine the USG contracting process to reduce PR vulnerability while ensuring the means of PR success.

• Recommend remedies to resolving the shortfall(s) in the mid- and long-term .

• Broader NPRA implications … seek interagency remedies where possible.

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Potential Enablers

•

Doctrine …

application.

Army Field Manual 3-100.21

,

Contractors on the Battlefield

, provided a Service-level, comprehensive concept for employment of contractors in high-risk venues. Potential to serve as source of

best practices

for eventual Joint doctrine, and interagency •

Policy … Joint Staff, J4, Draft DoD Directive and Instructions (DoDD / I)

,

Management of Contractor Personnel During Contingency Operations.

• DoD-wide Policy guidance to address GAO findings in combatant commands.

• May drive re-look of DoD 1300-series documents for currency.

•

Regulations … Regulation (FAR) language to drive …

•

Contract Language … GSA, Federal Acquisition USG and contractor integrated planning, CONUS prep & risk management in execution … starts at solicitation.

•

Interagency data base for USG contractor accountability.

•

National Security Presidential Directive

… drive interagency PR .

Improving Contractor Personnel Recovery Readiness … Overseas, High-Threat Environment National / Interagency Supported Command / Agency & Supporting Contractor N S P D Solicitation / Request for Proposal

GSA DoD NASA

FAR Council

Rules, Oversight & Coordination

Proposal Pre-deployment

Direct, Guide, Plan, Prepare, Educate, Exercise, Evaluate, Respond, Remediate Personnel Recovery Database Data Reporting

Deployment & Performance PR Response FAR / DFAR Rules Solicitation Friendly Situation Federal Travel Regulation

• Restrictions • Timelines • Reports

Proposal

Risk Analysis, Risk Assessment & Risk Mitigation Technical Approach

A W A R D C O N T R A C T Threat Estimate Classified First Deliverable Risk Management Plan

• Organization • Integration • Interoperability • Reporting • Training (CRC) • Equipping & Resourcing

CRC Pre-Deployment

• Overseas Processing • Physicals • PR Briefings • Training (CRC) • Data Collection & Reporting • Equipping Report & Coordinate

Deploy PR Event Reintegrate Execute

• IAW SOW, Risk Management Plan & Travel Rules • Periodic Reviews • Lessons Learned • Remediate

Re-Deploy & Debrief Contract Complete l R e d e p o y Department of Defense Policy & Doctrine CRC Re-Deployment

• CONUS Processing • Questionnaires • Debriefings • Data Collection & Reporting • Equipment turn-in 64

Contractors on the Battlefield On Going Actions … DoD Draft Directive / Instructions: Management of Contractor Personnel During Contingency.

• JPRA submitted critical comments giving PR greater visibility.

• Documents being readied for OSD coordination in August-September 2004. • OPR is CDR Gary Broadwell, JS J4, (703) 697-6928, [email protected].

DFARS Case 2003-D087: Contractors Accompanying a Force Deployed.

• DPMO submitted extensive comments to provide for language keyed to PR requirements.

• The DFARS case underwent

ad hoc

review 28 July, before the DAR Council, DLA.

• POC Ms. Amy Williams of OSD(AT&L), [email protected]

FAR Language Changes and Contractor Accountability.

• GSA prepared to facilitate interagency FAR language to support PR enhancements.

• Prepared to host interagency contractor database to support contractor-PR accountability.

• POC David A. Drabkin, Esq., GSA Office of Governmentwide Policy, 202.501.1043, [email protected]

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Contractors on the Battlefield On Going Actions … DoD Draft Directive / Instructions: Management of Contractor Personnel During Contingency.

• JPRA submitted critical comments giving PR greater visibility.

• Documents being readied for OSD coordination in August-September 2004. • OPR is CDR Gary Broadwell, JS J4, (703) 697-6928, [email protected].

DFARS Case 2003-D087: Contractors Accompanying a Force Deployed.

Strategy ?

• The DFARS case underwent

ad hoc

• review 28 July, before the DAR Council, DLA.

Timelines ?

FAR Language Changes and Contractor Accountability.

• GSA prepared to facilitate interagency FAR language to support PR enhancements.

• Prepared to host interagency contractor database to support contractor-PR accountability.

• POC David A. Drabkin, Esq., GSA Office of Governmentwide Policy, 202.501.1043, [email protected]

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Kenneth J. Benway NPRA Study Team [email protected]

Tel 910.949.3856

67