doctrine for public affairs in joint operations97).pdf · iii-15 iv-1 joint public affairs resource...

14 May 1997

Doctrine forPublic Affairs inJoint Operations

Joint Pub 3-61

PREFACE

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of effort in the accomplishment of theoverall mission.

3. Application

a. Doctrine and guidance established inthis publication apply to the commandersof combatant commands, subunifiedcommands, joint task forces, and subordinatecomponents of these commands. Theseprinciples and guidance also may apply whensignificant forces of one Service are attachedto forces of another Service or whensignificant forces of one Service supportforces of another Service.

b. The guidance in this publication isauthoritative; as such, this doctrine (or JTTP)will be followed except when, in the judgmentof the commander, exceptional circumstancesdictate otherwise. If conflicts arise betweenthe contents of this publication and thecontents of Service publications, thispublication will take precedence for theactivities of joint forces unless the Chairmanof the Joint Chiefs of Staff, normally incoordination with the other members of theJoint Chiefs of Staff, has provided morecurrent and specific guidance. Commandersof forces operating as part of a multinational(alliance or coalition) military commandshould follow multinational doctrine andprocedures ratified by the United States. Fordoctrine and procedures not ratified by theUnited States, commanders should evaluateand follow the multinational command’sdoctrine and procedures, where applicable.

DENNIS C. BLAIRVice Admiral, US NavyDirector, Joint Staff

1. Scope

This publication provides principles anddoctrine for US military support to the mediain conjunction with military operations. It alsoprovides guidance for command informationsupport when communicating with internalaudiences. This publication will aidcombatant commands in both planning andtraining for joint operations. It will serveto focus the training of commanders, theirstaffs, and public affairs personnel and provideguidance for organizing, training, andequipping public affairs forces.

2. Purpose

This publication has been prepared underthe direction of the Chairman of the JointChiefs of Staff. It sets forth doctrine togovern the joint activities and performanceof the Armed Forces of the United States injoint operations and provides the doctrinalbasis for US military involvement inmultinational and interagency operations.It provides military guidance for theexercise of authority by combatantcommanders and other joint forcecommanders and prescribes doctrine forjoint operations and training. It providesmilitary guidance for use by the ArmedForces in preparing their appropriate plans.It is not the intent of this publication torestrict the authority of the joint forcecommander (JFC) from organizing the forceand executing the mission in a manner theJFC deems most appropriate to ensure unity

For the Chairman of the Joint Chiefs of Staff:

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TABLE OF CONTENTS

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PAGE

EXECUTIVE SUMMARY ............................................................................................. v

CHAPTER IPUBLIC AFFAIRS MISSION AND DOCTRINE

• Mission..................................................................................................................... I-1• Background............................................................................................................... I-1• Current Outlook........................................................................................................ I-2

CHAPTER IIJOINT PUBLIC AFFAIRS RESPONSIBILITIES

• Overview................................................................................................................. II-1• DOD Principles of Information (DOD Directive 5122.5)......................................... II-1• DOD Responsibilities.............................................................................................. II-2• Military Department Responsibilities....................................................................... II-3• Chairman of the Joint Chiefs of Staff Responsibilities.............................................. II-4• Combatant Commanders’ Responsibilities............................................................... II-4

CHAPTER IIIPUBLIC AFFAIRS SUPPORT OF JOINT OPERATIONS

• The Operational Environment................................................................................ III-1• Media Guidelines................................................................................................... III-2• Public Affairs Fundamentals.................................................................................. III-4• Public Affairs Organization.................................................................................... III-6• Public Affairs Planning and Operations................................................................. III-12• Evaluating Feedback............................................................................................. III-17• Public Diplomacy and Psychological Operations................................................... III-18• Community Relations and Civil-Military Operations............................................. III-18

CHAPTER IVJOINT PUBLIC AFFAIRS RESOURCE REQUIREMENTS

• General.................................................................................................................. IV-1• Facilities................................................................................................................ IV-1• Personnel............................................................................................................... IV-2• Equipment............................................................................................................. IV-3

APPENDIX

A Guidelines for Discussions with the Media....................................................... A-1B References....................................................................................................... B-1C Administrative Instructions............................................................................... C-1

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GLOSSARY

Part I Abbreviations and Acronyms....................................................................GL-1Part II Terms and Definitions...............................................................................GL-2

FIGURE

III-1 Department of Defense Media Guidelines................................................... III-2III-2 Public Affairs Fundamentals....................................................................... III-5III-3 Joint Task Force Public Affairs Organization............................................... III-7III-4 Joint Information Bureau............................................................................. III-9III-5 Public Affairs Planning Considerations...................................................... III-13III-6 Department of Defense National Media Pool Support................................ III-15IV-1 Joint Public Affairs Resource Requirements................................................ IV-1IV-2 Public Affairs Material................................................................................ IV-4

Establishes Doctrine for US Military Support to US andInternational Media About Military Operations

Discusses Joint Public Affairs Responsibilities During JointOperations

Provides Insight on the Fundamentals and Management ofJoint Public Affairs

Addresses Public Affairs Planning Considerations andOperations

Considers Resource Requirements of Joint and MultinationalPublic Affairs Activities

EXECUTIVE SUMMARYCOMMANDER’S OVERVIEW

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Joint Public Affairs Mission and Doctrine

Joint public affairs has thecritical task of advancingconsistent and credibleinformation about USjoint forces to theAmerican public and ourallies via the news mediaand military journalistscovering the operation.

The mission of joint public affairs (PA) is to expedite the flowof accurate and timely information about the activities ofUS joint forces to the public and internal audiences. Newsmedia representatives and military journalists will conduct first-hand and after-the-fact reporting of joint operations, and theinformation they are given must be consistent with nationaland operations security. PA doctrine was developed based onthe need to accommodate the mission of the Armed Forces ofthe United States with that of the news media. Both institutionsmust communicate with the public; however, the military mustobserve operations security to protect national security andthe lives of forces. Today, the speed of military operationsand advances in communications technology complicate thechallenges of supporting news media efforts to keep the internaland external public informed. It is the combatant commander’sresponsibility to provide command information to Servicemembers, Department of Defense (DOD) civilian employeesand family members that creates an awareness of the militarygoals during an operation.

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It is the responsibility ofthe military to work withthe news media on aregular basis to ensure thedissemination of accurateand timely information tothe general public, militarypersonnel, civilianemployees, and familymembers.

It is the commander’sresponsibility to ensurethat all planning formilitary activities andoperations support thepublic affairs (PA) goalsset by the Department ofDefense (DOD).

The military is accountable and responsible to the public forperforming its mission of national defense. The news mediaare the principal means of communicating information aboutthe military to the general public, and military journalists arethe principal source of communication with military personnel,civilian employees, and family members. It is important thatcommanders recognize this fact. Successful relations betweenthe military and the news media are best established by regularinteraction, and are based upon credibility and trust . Thisaids in the dissemination of accurate and timely informationand helps military personnel more clearly understand their rolesand responsibilities in accomplishing their overall missions.

The Department of Defense has several principles for PA thatapply across the full range of military operations. Some ofthem include: that information be timely and accurate; thatrequests for information be answered in a timely manner; thatinformation be made fully available unless it is under securityclassification or endangers the lives of Service members; andthat information cannot be classified to protect the governmentfrom criticism or embarrassment.

The Assistant Secretary of Defense (Public Affairs)(ASD[PA]) is responsible for: developing and consistentlyimplementing DOD information policy; determining whoserves as the initial source of release of information; approvingand disseminating PA guidance, plans, and annexes; conductingperiodic news briefings; providing guidance for Armed ForcesRadio and Television Service resources and equipment; andcoordinating PA policy with the Chairman of the Joint Chiefsof Staff (CJCS), the Military Departments, and the combatantcommands.

The Military Departments are responsible for closecoordination with combatant commanders to resource jointinformation bureaus (JIBs), provide training at Service schools,encourage programs that improve military-news mediaunderstanding and cooperation, and conduct Service-uniquePA programs, including command information and communityrelations programs.

The Chairman of the Joint Chiefs of Staff’s responsibilitiesinclude promulgating joint public affairs doctrine and ensuring

Joint Public Affairs Responsibilities

Public Affairs Responsibilities

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Executive Summary

Since it is essential toadequately plan for PA toavoid endangering thenews media and theoperation, the Departmentof Defense has establishedguidelines for coverage ofcombat operations.

Public affairsfundamentals weredesigned to assistcommanders inperforming the PA missionin joint operations.

that all plans comply with it, and establishing a CJCS PAResponse Cell within the National Military Command Center.

In the early stages of any operation, combatant commandersare charged with developing detailed PA annexes tooperation plans and providing support to news mediarepresentatives and military journalists. They also developoperational guidance for approval by the ASD(PA), conducta full range of PA activities, plan for employment of combatcamera assets, and establish and operate JIBs. Commandersprepare plans to conduct command information programs,train PA organizations in all force packages and support thePA requirements and organic PA capabilities of Reservecomponent units of mobilized and deployed individuals.

The ability of the news media to transmit instantaneous andoften live reports must be considered when planning anoperation. Failure to adequately plan will not stop the mediafrom reporting, and can create a situation that endangers newsmedia representatives and the operation itself. Furthermore,the number of journalists accompanying operations is risingdramatically. Therefore, commanders must be prepared tosupport news media coverage of almost every aspect of theiroperation.

Most issues, plans, and events contain elements which may beof interest to the general public, the media, and the committedforces and their families. This interest should be part of thenormal planning process. Complete integration of PApersonnel in all staff planning is essential to ensure an effectivePA operation. Effective joint PA operations should beconsistent with security concerns of protecting classifiedinformation and controlling the essential elements of friendlyinformation. Accuracy and timeliness of information madeavailable to the public is essential in establishing andmaintaining credibility . A responsive, efficient and successfuljoint PA program provides the best opportunity for publicunderstanding of joint operations.

PA responsibilities include media and community relations,internal or command information, and PA planning. The jointforce public affairs officer has the critical task of ensuring thatthe proper mix of resources is available to conduct PAoperations. Information bureaus may be set up as single

Public Affairs Support of Joint Operations

Public Affairs Fundamentals and Management

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points of interface between the military and news mediarepresentatives, allowing them to obtain information quicklyand efficiently on a wide variety of complex activities.Examples are JIBs, combined information bureaus and alliedpress information centers.

PA planning is essential to any operation. Every phase ofPA planning should match the operation plan it supports.Therefore, the PA portion of the operation plan should bedeveloped simultaneously with the operation plan so thattransportation, communications, billeting, equipment,and personnel resources required to support the PA plancan be built into the total operational resourcesrequirements. PA planning includes: a public affairsassessment; determination of strategic communication goalsand objectives; message development; guidance to ensureunity of effort; and considerations such as news mediaaccess, security and command information. PA planningshould occur across the range of military operations, toinclude war and military operations other than war.

All military operations involving contact with civiliansdesigned to influence, control, or develop civil organizationsare classified as civil-military operations (CMO) . PA andCMO personnel disseminate information to localpopulations. Coordination is required to ensure thatinformation required for release by one element does notconflict with the work of the other. US CMO elements willassist with dislocated civilians, public administration, publichealth, and public works. Public affairs disseminatesinformation on procedures concerning displaced civilians inthe US operational area and will keep military elementsinformed of the displaced civilian situation through the newsmedia and command information channels.

Public affairs guidanceensures that informationand policy are inconsonance whenresponding to theinformation demands ofthe media and the public.

Responsibility for civil-military operations in ajoint operation isdetermined by the jointforce commander.

Planning and Operations

Civil-Military Operations

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Executive Summary

Joint and multinational PA activities require personnel,transportation, and communications and technicalresources. These assets are essential to the conduct of PAoperations. The goal is to anticipate and respond tofluctuating coverage and to tailor resources to ensure no lossof efficiency. As part of this resource planning, facilities mustbe designated for the functioning of the public affairsinfrastructure and for the news media. In addition, it is likelythat the peacetime staffing of an organization’s PA office willbe inadequate to respond to the inevitable increase in newsmedia and public interest, so contingency planning mustaddress the need for rapid expansion of the PA staff. PublicAffairs must have the most up-to-date equipment, because thenews media will be outfitted with the most modern and efficientequipment.

This publication was created to establish principles and doctrinefor US military support to US and international mediaconcerning military operations. It also provides guidelinesfor command information when communicating with internalaudiences. The publication will assist in training public affairspersonnel and provide guidance for organizing, training, andequipping public affairs forces.

Commanders must ensurethat the PA assessment ofanticipated transportationrequirements and otherresources are incorporatedas early as possible in thecrisis action planningprocess.

Resource Requirements

CONCLUSION

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CHAPTER IPUBLIC AFFAIRS MISSION AND DOCTRINE

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1. Mission

The mission of joint public affairs (PA) isto expedite the flow of accurate and timelyinformation about the activities of US jointforces to the public and internal audience.News media representatives and militaryjournalists will conduct first-hand and after-the-fact reporting of joint operations.Information given to news mediarepresentatives must be consistent withnational and operations security (OPSEC)and must respect the privacy of the membersof the force. Public affairs personnel shouldcommunicate with Service members, civilianemployees, and family members in order tocreate an awareness of organizational goalsand inform them of significant developmentsaffecting them and the organization.

2. Background

This doctrine was developed with a clearunderstanding of the need to accommodatethe mission of the Armed Forces of theUnited States with that of the news media.Both institutions communicate with the sameaudience — the public. The mission of themilitary demands strict OPSEC to protect

national security and the lives of US andmultinational forces. While most membersof the media share these concerns, their job isto report in as great detail and as quickly aspossible. These competing goals sometimeslead to conflict between the media and themilitary. This dichotomy was of graveconcern to General Dwight D. Eisenhower in1944 when he said:

“The first essential in military operationsis that no information of value shall begiven to the enemy. The first essentialin newspaper work and broadcastingis wide-open publicity. It is your job andmine to try to reconcile thosesometimes diverse considerations.”

General Eisenhower’s success in dealingwith the situation is evident in the vivid reportsby the news media who accompanied USforces into combat during World War II andby a simple bronze plaque near the beach atNormandy on which is inscribed:

“In memory of General Dwight D.Eisenhower and the forces under hiscommand, this sealed capsulecontaining news reports of the 6 June1944, Normandy Landings is placedhere by the newsmen who were there.”

“. . . we in the Armed Forces of the United States must account for ouractions with the American people whom we serve, by dealing openly andwell with the representatives of the nation’s free press. We are alsoresponsible for protecting classified or sensitive information related to thenational security and will be challenged by the news media concerning suchinformation. It is our duty as members of the Armed Forces to balancethese demands in a responsible and intelligent fashion.”

Joint Pub 1, Joint W arfare of the Armed Forces of the United States

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Media representatives receive information from a joint public affairsofficer for dissemination to their respective news agencies.

3. Current Outlook

Today, the speed of military operationsand advances in communicat ionstechnology significantly complicate thechallenges to both commanders and publicaffairs personnel in supporting news mediaefforts to keep the publics, both internal andexternal, informed. Today’s news is formedby images which often move faster thanjournalists can provide explanation andcontext. Thus, public affairs procedures andtechniques practiced by joint forces, and the

support they provide to the news media, mustmirror the sophistication of the news mediawith whom they interact. To do otherwisesimply places the military in a defensive,catch-up role and fails to achieve one of itsown very important missions — keeping thepublic informed. Military journalists providecommand information to Service members,Department of Defense (DOD) civilianemployees and family members that createsan awareness of the military goals during anoperation.

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Public Affairs Mission and Doctrine

MEDIA IN DESERT SHIELD AND DESERT STORM

As in all previous American conflicts, the rules for news coverage of OperationsDESERT SHIELD and DESERT STORM were driven by the need to balance therequirements of operational security against the public’s right to know aboutongoing military operations. DOD policy calls for making available “timelyand accurate information so the public, Congress, and the news media mayassess and understand the facts about national security and defense strategy,”withholding information “only when disclosure would adversely affect nationalsecurity or threaten the safety or privacy of the men and women of the ArmedForces.” The news media feel compelled to report as much information aboutcurrent newsworthy events as possible.

The challenge to provide full news coverage of Operations DESERT SHIELDand DESERT STORM was complicated by several factors:

• The host nation, closed to western media before the operation began, wasreluctant to permit reporters to enter the country and was concerned aboutreporting of cultural sensitivities.

• More than 1,600 news media representatives eventually massed in SaudiArabia to report about the war.

• The combat actions of Operation DESERT STORM used high technology,involved long-range weapons, and occurred on and over a distant, vast, opendesert and from ships operating in adjacent bodies of water.

• The combined armor and airmobile attacks and drives through Kuwait andIraq were rapid.

• This was the first major American war to be covered by news media able tobroadcast reports instantaneously to the world, including the enemy.

From the beginning of the crisis, the Department of Defense worked closelywith Central Command (CENTCOM), the Joint Staff (JS), the Services, andnews media organizations to balance the media’s needs with the military’sability to support them and its responsibility to preserve US combat forces’operational security. The goal was to provide as much information as possibleto the American people without endangering the lives or missions of USmilitary personnel.

SOURCE: DOD Final Report to CongressConduct of the Persian Gulf W ar, April 1992

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CHAPTER IIJOINT PUBLIC AFFAIRS RESPONSIBILITIES

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c. Successful relationships between themilitary and the news media are based uponcredibility and trust . Such relationships arebuilt over time, not during a crisis or combatsituation when the commander has a multitudeof important issues vying for attention.

2. DOD Principles ofInformation (DOD Directive5122.5)

The principles described below chart thecourse for all DOD PA activities. They applyacross the full range of military operations. Itis the commander’s responsibility to ensurethat all planning for military activities andoperations efficiently and effectively addressthe goals set by these principles. Timelyand accurate information will be madeavailable so that the public may assess andunderstand the facts about national security,defense strategy, and ongoing joint andmultinational operations. Requests forinformation from media organizations andprivate citizens will be answered in a timelymanner. In carrying out this policy, thefollowing principles of information apply:

a. Information will be made fullyavailable, consistent with statutoryrequirements, unless its release is precludedby current and valid security classification.The provisions of the Freedom of InformationAct and the Privacy Act will be complied within both letter and spirit.

b. A free flow of general and militaryinformation will be made available,

“All they need do really is quietly let people know the truth. There is no needto bang the big drum. Official reports should stick to the absolute truth—once you start lying, the war’s as good as lost. Information Division’s outlookis all wrong. All this talk of guiding public opinion and maintaining the nationalmorale is so much empty puff.”

Admiral Isoroku Yamamoto, 1884-1943

1. Overview

a. The military is accountable andresponsible to the public for performing itsmission of national defense. By providingaccurate information and clear explanationsof its activities, the Armed Forces of theUnited States fulfill their responsibilityto the nation and assist in providingan understanding of DOD programs andactivities. The news media are the principalmeans of communicating informationabout the military to the general public,and commanders must recognize this fact.L i k e w i s e , i n t e r n a l o r c o m m a n dinformation is the principal means ofcommunicating with military personnel,civilian employees, and family members.Therefore, commanders must view militaryjournalists as a critical means of reaching theseaudiences.

b. Accurate and timely information isessential to the public’s understanding,morale, and resolve in times of crisis.Similarly, that same information, whenconveyed to the military’s internal audience,helps military personnel more clearlyunderstand their roles and responsibilitiesin accomplishing their overall missions.Establishing the command informationconnection with joint forces, and especiallytheir families, is difficult because of the limitedopportunities available to commanders toexercise those forces. As with the civiliannews media, every opportunity must be fullyexploited in the command information arenato train the way we intend to operate.

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without censorship or propaganda, to themen and women of the Armed Forces andtheir family members.

c. Information will not be classified orotherwise withheld to protect the governmentfrom criticism or embarrassment.

d. Information will be withheld onlywhen disclosure would adversely affectnational and operations security orthreaten the safety or privacy of the menand women of the Armed Forces.

e. The DOD obligation to provide thepublic with information on its majorprograms and operations may requiredetailed PA planning and coordinationwithin the Department of Defense and withother government agencies. The solepurpose of such activity is to expedite theflow of information to the public .Propaganda or publicity designed to swayor direct public opinion will not be includedin DOD PA programs.

3. DOD Responsibilities

The Assistant Secretary of Defense(Public Affairs) (ASD[PA]) , in accordancewith DOD Directive 5122.5, “AssistantSecretary of Defense (Public Affairs),” isresponsible for the following:

a. Retains primary responsibility for thedevelopment and consistent implementationof DOD information policy .

b. Determines who should serve as theinitial source of release of information aboutjoint, multinational, and single-Serviceoperations, and delegates public affairsrelease authority to the appropriatecombatant commander as soon as practical.

c. Approves and disseminates PAguidance (PAG), PA plans, and PA annexeswritten under CJCSM 3122.03, “Joint

Operation Planning and Execution System,Vol II: (Planning Formats and Guidance).”

d. Establishes and exercises proceduresfor the administrative management,activation, and direction of the DODNational Media Pool; directs the deploymentof the DOD National Media Pool, includinga representative from the joint forcecommander or supported commander, and arepresentative from the Office of the Chairmanof the Joint Chiefs of Staff public affairs office,when ordered by the Secretary of Defense.

e. Serves as lead agency for interagencycoordination of public affairs information andactivities.

f. Provides policy guidance for theemployment of joint combat camera teamsand the distribution of their products , asestablished in DOD Instruction 5040.4, “JointCombat Camera Program.” The still andmotion imagery and captions produced bycombat camera teams will have securityclassification established and controlled at thesource in accordance with DOD Directive5200.1, “DOD Information SecurityProgram,” and be cleared for public releasein accordance with DOD Directive 5230.9,“Clearance of DOD Information for PublicRelease.”

g. Provides representation to the Officeof the Secretary of Defense CrisisCoordination Center and establishes, asnecessary, a crisis and/or wartime PA cell atthe Pentagon to provide continuous PAplanning, to gather and disseminateinformation, and to evaluate PA support ofthe operational mission.

h. Conducts periodic news briefings onissues and events related to ongoing joint,multinational and single-Service operations.

i. Provides policy guidance for theemployment of Armed Forces Radio and

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Television Service (AFRTS) resources andequipment, as established in DOD Directive5120.20, “Armed Forces Radio and TelevisionServices (AFRTS)” and 5120.20-R,“Management and Operation of ArmedForces Radio and Television Service”.

j. Supports unified command plans forthe provision of information, news, andentertainment to internal agencies, toinclude the distribution of electronic and printproducts tailored for the area of responsibilityand joint operations area. The responsiblecombatant commander shall determine whenthese services should begin.

k. Conducts joint PA and visualinformation and maintenance training atthe American Forces Information ServiceDefense Information Schools for entry- andadvanced-level military and civilian PA aswell as visual information technical andmaintenance personnel of all grades. (Thistraining includes classroom and contingencyexercises in joint operations environments.)

l. Coordinates PA policy with theChairman of the Joint Chiefs of Staff(CJCS), the Military Departments , and thecombatant commands; develops anddisseminates PA policy; and conductsappropriate training on that policy.

4. Military DepartmentResponsibilities

The Military Departments have thefollowing responsibilities:

a. In close coordination with the combatantcommander, provides resources (personnel,standardized and/or compatible equipment)necessary to conduct successful PA activitiesin a joint environment. Ensure the immediatereadiness and prompt availability ofnecessary Active and Reserve component PA

resources to support any assigned mission.Ensure that all required capabilities for PAsupport of short-notice deployments exist inthe active force.

b. Organize, train , equip, and provideActive and Reserve component PApersonnel and units to conduct PA activitiesin support of combatant commanders.Information from this publication and allfollow-on guidance should be included intraining at all levels. PA personnel and unitsnecessary to support the earliest stages of anyoperation should be immediately available fordeployment. Such responsiveness assists inaddressing news media and commandinformation requirements. Ensure that PApersonnel are qualified and able to functionin joint and multinational environments.

c. Conduct Service-unique PA programs,as required, in support of joint andmultinational operations. These includecommand information programs that servethose who are deployed, those in support roles,and the military forces and families at homestation as well as community relationsprograms designed to meet existing DODpolicies and directives.

d. Work closely with exercise andoperation planners to ensure inclusion of PAannexes in all plans.

e. Provide PA training at Service schoolsand encourage programs that improvemilitary-news media understanding andcooperation.

f. Support planning and provide resourcesfor contingency and wartime operations ofAFRTS.

g. Train PA personnel, commanders, andkey staff on how to deal with news mediarepresentatives covering joint operations.

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5. Chairman of the Joint Chiefsof Staff Responsibilities

The Chairman of the Joint Chiefs of Staffis responsible for the following:

a. Promulgates joint public affairsdoctrine.

b. Ensures that existing PA annexes tooperation plans comply with published jointPA doctrine and guidance.

c. Establishes a CJCS PA Response Cellwithin the National Military CommandCenter during times of crisis and conflictto provide Joint Staff input on PA activitiesto the ASD(PA).

d. Supports the Department of Defense inexplaining mission aspects of jointoperations by providing senior officers withthe expertise on matters of news media andpublic interest.

e. Provides an OCJCS-PA representativefor DOD National Media Pool deployment.

6. Combatant Commanders’Responsibilities

The commanders of the combatantcommands are responsible for the following:

a. Develop detailed PA annexes tooperation plans to ensure that adequate PAsupport is available to meet commandinformation and news media requirements.Special attention should be given toproviding priority air and groundtransportation for movement of news mediarepresentatives, military journalists and theirproducts. PA resources should be in placeprior to the beginning of operations.Deployment plans should assign a highpriority for the movement of PA assets.Communications assets must be provided for

the deploying PA officer, as well as for use bythe media if required.

b. Support news media representativesand military journalists from the earliestpredeployment stages of any operation.The commanders shall ensure that newsmedia representatives and military journalistsare granted all possible access to allunclassified activities on a not-to-interferebasis, including combat operations whenoperationally feasible. The personal safetyof news media representatives or militaryjournalists is not a reason for excludingthem from such operations. The goal is tokeep the public informed. To accomplishthis, every attempt should be made to treatthe news media representatives andmilitary journalists as noncombatantsaccompanying forces, allowing them toaccompany the organizations during theconduct of their missions. News mediarepresentatives should be accorded theequivalent grade of major or lieutenantcommander for the purpose of billeting,messing, and protocol.

c. Develop operational PAG for approvalby the ASD(PA) which recommends thepolicy approach (active or passive), proposesnews statements, and provides responses toanticipated news media questions (inaccordance with DOD Instruction 5405.3,“Development of Proposed Public AffairsGuidance [PPAG]”).

d. Prepare for and assist in the deploymentand operation of the DOD National MediaPool. Designate personnel to support theDOD National Media Pool when activated.

e. Conduct a full range of PA activitiesconsistent with current PA guidance, PArelease authority, and OPSEC requirements.

f. Establish a n d o p e r a t e j o i n tinformation bureaus (JIBs) to serve as focal

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points of interface between the joint forcesand the news media, as appropriate. Thecombatant command JIB will provide directPA support to subordinate joint task forcecommanders. The Director of the JIB willreceive PA policy guidance and oversight fromthe combatant command in coordination withASD(PA) and wil l be prepared toparticipate in combined informationbureaus (CIBs) or allied press informationcenters (APICs), established by theresponsible combined commander andsupported by the contributing nations.

g. Assist news media representatives andmilitary journalists in gaining access tomilitary units and personnel conductingjoint and multinational operations. Theseinclude commanders and officer and enlistedpersonnel directly involved with combat andsustainment operations.

h. Support other information requirementsidentified by the ASD(PA). Provide daily JIB,CIB, or APIC situation reports to the ASD(PA)during current operations as circumstancesrequire, apprising the ASD(PA) immediatelyof major operational developments, incidents, orother newsworthy events.

i. Prepare plans to conduct commandinformation programs. Plan to employ thecapabilities of the AFRTS and other internalnews media products which conveyinformation to deployed forces, thoseremaining at the home station, and all familymembers. Plan to resource a locally producedcommand information newspaper todisseminate information to those deployed inthe operational area. The ground rules forreleasing information to civilian newsmedia representatives apply equally tomilitary journalists assigned to commandinformation tasks. Plan for the employmentof AFRTS assets across the range of militaryoperations and exercises as established inDOD Directive 5120.20, “Armed ForcesRadio and Television Services,” and5120.20-R, “Management and Operation ofArmed Forces Radio and Television Service.”

j. Include and train an appropriatelysized PA organization in all force packagesdeveloped to support combatant commanders’joint operations.

k. If tasked as a supporting commander,provide PA resources (personnel, equipment,transportation, and communications) to the

Combat Camera photographer allows a Somali woman to look throughthe view finder while documenting the delivery of food to the villagersduring Operation RESTORE HOPE.

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supported combatant commander asidentified in approved plans. Be prepared toreinforce the supported combatantcommander to meet unplanned resourcerequirements.

l. As established in DOD Directive 5040.4,“Joint Combat Camera Program,” designatean officer as the combat camera(COMCAM) representative to plan for andmanage the employment of COMCAM assets.As a subset of COMCAM’s primary missionto support military operations, PA will ensurethat plans identify COMCAM priorities andresources required to support imageryrequirements. Plan for the employment ofcombat camera assets in crisis situations,planned operations, and exercises, asestablished in DOD Instruction 5040.4, “JointCombat Camera Program.”

m. Provide the Joint Combat CameraCenter with operational imagery for usewithin the Department of Defense and forpotential release to military journaliststhrough established channels and to newsmedia representatives through the ASD(PA).

n. Provide forces to support jointCOMCAM operations.

o. Ensure that PA personnel and units areproperly prepared to support the assignedoperational mission.

p. Support the PA requirements andorganic PA capabilities of Reservecomponent (RC) units and individualsmobilized and deployed into a theater ofoperations. Unlike active forces which generallydeploy from a major installation, RC units andindividuals come from communities throughoutthe country. RC personnel leave civilian jobsbehind and RC family members are generallynot accustomed to long-term deployments.Support from family members, communityleaders, and former employers is vital to unitmorale and to recruiting and retention effortsfollowing demobilization. Commanders mustensure that RC family members and hometownnews media are provided a continuous flow ofinformation to dispel rumors and anxieties,sustain public awareness, and increaseunderstanding of RC missions in the theater ofoperations.

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MEDIA ON THE BATTLEFIELD

As early as October [1990], it appeared hostilities in the region could result ina large, fast-moving, and deadly battle. Accordingly, a joint public affairs teamwent to Saudi Arabia to evaluate the public affairs aspects of hostile actionand help CENTCOM prepare for media coverage of any such eventuality. Theteam was convinced that, given the size and distances involved, the probablespeed of advance of US forces, the potential for the enemy to use chemicalweapons, and the sheer violence of a large scale armor battle would makeopen coverage of a ground combat operation impractical, at least during itsinitial phase. The team, therefore, recommended that pools of reporters beassigned to units to cover activity within those units. These reporters wouldstay with units to ensure they would be present with military forces at thebeginning of any combat operations. Although the plan was initially rejected,the command ultimately implemented a similar plan calling for ground combatnews media pools to be in place before hostilities.

When the ground offensive began, in addition to 27 reporters on ships and atair bases, CENTCOM had 132 reporters in place with the US ground forces tocover their activity. A reporter accompanied every combat division into battle.


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Intentionally Blank

CHAPTER IIIPUBLIC AFFAIRS SUPPORT OF JOINT OPERATIONS

III-1

1. The Operational Environment

The environment of the modernbattlefield has changed drastically and sohas the ability of the news media totransmit instantaneous and often livereports . These realit ies must beconsidered when planning any type ofoperation. Just as the capabilities ofmilitary forces must be accounted for, sotoo must the capabilities and, therefore,the needs of the news media. Failure toadequately plan to accommodate newsmedia representatives will not stop themfrom reporting ; it will simply change thevenue and perhaps create a situation thatendangers news media representatives aswell as the success of the operation theyare trying to cover.

a. World War II and Now. Fewer than30 reporters accompanied the entire invasionforce into Normandy, France, on 6 June 1944.More than 500 journalists appeared withinhours to cover combat operations in Grenada(1983) and Panama (1989). The trendtoward larger numbers continued as morethan 1600 news media and support personnelwere present at the beginning of Operation

DESERT STORM (1991), and some 1500reported on hurricane relief operations inFlorida (1992). They bring with them the mostsophisticated technological support. At onetime, 31 satellite transmission television truckswere covering Hurricane Andrew recoveryefforts, and reporters provided live televisionand radio coverage of the night amphibiouslanding that marked the beginning ofOperation RESTORE HOPE in Somalia(1992), the end of that UN operation duringOperation UNITED SHIELD (1995), andmore than 1700 media representatives coveredpeacekeeping operations in the Americansector of Bosnia (1996).

b. Increased Competition. The newsbusiness has become increasinglycompetitive, with reporters seeking to identifystories, themes and issues which will beattractive to their audiences. Reportersrepresenting a range of general and specialtypublications as well as broadcast operationswill rush to the scene of any potential newsstory. Few stories can compare with thatof military forces in action. Therefore,commanders must anticipate and be preparedto support news media coverage of almostevery aspect of their operation.

“The joint campaign is planned within the context of the modern theaterenvironment, a complex setting where events, especially in a crisis, canmove rapidly. This puts a premium on the ability of joint force commandersand their staffs and components to conduct campaign planning under severetime constraints and pressures. This ability in turn rests upon the quality ofpeacetime planning and analysis by joint force commanders concerning theirstrategic situations and likely scenarios and courses of action. Campaignplanning is done in crisis or conflict (once the actual threat, national guidance,and available resources become evident), but the basis and framework forsuccessful campaigns is laid by the peacetime analysis, planning, andexercises. These plans and exercises also provide invaluable training forcommanders and staffs in the characteristics of the theater strategicenvironment and sharpen skills that are fundamental to successful planningin war.”

Joint Pub 1, Joint W arfare of the Armed Forces of the United States

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military operations. Commanders shouldexpect regular encounters with journalistswho will show up in their assigned areas ofresponsibility and joint operations areas.Some of these reporters will be registered bythe joint force and will carry identifyingcredentials issued by the PA officer and, asappropriate, Geneva Convention cards.Others will merely appear and begin coverage.Journalists not credentialed by theDepartment of Defense may not necessarilybe given the same access as those who havecredentials. Uncredentialed journalistsshould be encouraged to register with the JIB.In many cases, the journalists may not beaccompanied by trained PA personnel. Local

2. Media Guidelines

Although Operation DESERT STORMwas very successful, many problems wereexperienced in providing news mediacoverage of combat activities. Thoseproblems are discussed in the Title V Report,“Conduct of the Persian Gulf War, FinalReport to Congress.” After a detailed analysisof those problems, the Department of Defenseissued the following guidelines for coverageof DOD combat operations (see FigureIII-1):

a. Open and independent reporting willbe the principal means of coverage of US

Figure III-1. Department of Defense Media Guidelines

DEPARTMENT OF DEFENSE MEDIAGUIDELINES

The military willsupply public affairsofficers with facilitiesfor transmission of

pool material

Commandersare responsible for

transporting thepool into the area of

responsibility andjoint operations

area

Pools may beappropriate forspecific events,such as those atextremely remotelocations wherespace is limited

Military publicaffairs personnel

should act asliaisons but shouldnot interfere with

the reportingprocess

Open andindependent

reporting will be theprincipal means of

coverage of USmilitary operations

Field commandersshould be

instructed to permitjournalists to ride

on military vehiclesand aircraft

Journalists will beprovided access toall major military

units

Open andIndependent

Reporting

Pools are not thestandard means of

covering USmilitary operations

Journalistswill be credentialedby the US militaryand follow groundrules in a combat

zone

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commanders, with the assistance of PApersonnel, should identify shortages of escortsand provide training for non-PA personnelwho will serve as escorts. Commanders mustdevelop unit plans tailored to local conditionsto accommodate reporters operating under thisprovision and issue guidance about whatinformation and support they will receive.Appendix A, “Guidelines for Discussions withthe Media,” contains general guidance onsupport and information to be provided tonews media representatives.

b. Pools are not to serve as the standardmeans of covering US military operations.Pools may sometimes provide the onlyfeasible means of early access to a militaryoperation. Pools should be as large aspossible and be disbanded at the earliestopportunity — within 24 to 36 hours whenpossible. The arrival of early-access poolswill not cancel the principle of independentcoverage for journalists already in the area.

c. Even under conditions of open coverage,pools may be appropriate for specificevents, such as those at extremely remotelocations or where space is limited. In suchcircumstances, PA plans should specify thenumber and types of media (including internalmedia) who will form the pool. The militarywill determine the size and composition ofthe pool. The media representatives shoulddetermine who will fill the spaces in the pool.

d. Journalists in a combat zone will becredentialed by the US military and will berequired to abide by a clear set of militarysecurity ground rules that protect USforces and their operations. Violation of theground rules can result in suspension ofcredentials and expulsion from the combatzone of the journalists involved. Newsorganizations will make their best effortsto assign experienced journalists tocombat operations and to make themfamiliar with US military operations. The

decision to suspend credentials or expel areporter should only be made after clearand severe violations have been committedand only with the concurrence of thecommander, joint task force, the combatantcommander, and the ASD(PA). A publicaffairs infrastructure will include a JIBto serve as a logistical and informationbase for media relations operations.Journalists seeking credentials from theJIB will be asked to agree to ground rulestailored to the specific, ongoing jointoperation. In return, news mediarepresentatives will receive regular briefingsand other information about militaryactivities and access to the committed jointforces. Central to this provision is the needfor continuous dialogue between the jointforce and the news media who are coveringits activities.

e. Journalists will be provided access toall major military units . Special operationsrestrictions may limit access in some cases.To ensure complete coverage of jointoperations, commanders should plan toassist journalists in gaining access to allunclassified forces which are participating inthe joint operation, to include those basedoutside the joint operations area.

f. Military PA personnel should act asliaisons but should not interfere with thereporting process. The mission of individualPA personnel is to expedite the flow ofinformation about the force and the operationthrough the civilian and military news mediato both external and internal audiences, andto help news media representativesunderstand the events and occurrences sothat coverage is accurate. The goal is togather resources in order to produce aresponsive public affairs infrastructure tosupport journalists’ information needs. PAresponsibilities include arranging access forthe news media, preparing commanders andtheir units to accept news media visits,

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assisting in logistical support (i.e.,communications, equipment, supplies, andtransportation) for the media and providingtimely information and explanations.

g. Under conditions of open coverage,field commanders should be instructed topermit journalists to ride on militaryvehicles and aircraft whenever feasible. Themilitary will be r esponsible for thetransportation of pools. To ensure themost complete possible coverage,commanders should provide dedicatedtransportation.

h. Consistent with capabilities, thecommander will supply public affairs withfacil i t ies to enable t imely, secure,compatible transmission of pool materialand will make these facilities availablewhenever possible for filing independentcoverage. In cases when governmentfacilities are unavailable, journalists will, asalways, file by any other means available.The commander will not ban communicationssystems operated by news organizations,but electromagnetic OPSEC in battlefieldsituations may require restrictions on theuse of such systems. As with transportationsupport, commanders employing mediapools are responsible for providingcommunications facilities for the prioritytransmission of news products preparedby the pool. Similar assistance should beprovided on a space-available basis forthose reporters involved in independentcoverage. Commanders should understandthe sophisticated communicationscapabilities available to the news media andrecognize that early and regulardiscussions with the news media will helpensure electromagnetic OPSEC.

i. These principles will apply as well to theoperations of the standing DOD NationalMedia Pool system. The support of the DODNational Media Pool is a priority missionfor the joint force commander (JFC).

Besides the tasks outlined in these guidelines,commanders are responsible for transportingthe pool into the area of responsibility andjoint operations area and providing sustainedequipment, communications, in-theatertransportation , messing, and medicalsupport for pool members. Each planshould anticipate and include these provisions.

3. Public Affairs Fundamentals

The following public affairs fundamentals(see Figure III-2) will assist commanders inperforming the PA mission in joint operations:

a. Most issues, plans, and events containelements which may be of interest to thegeneral public, the media, and thecommitted forces and their families. Thisis particularly true of military operations,which often draw some public attention aspersonnel and equipment prepare forupcoming assignments. Unit alerts,increased aircraft activity, and rail or shiploading are highly visible and will almostinevitably lead to news media inquiries. Suchactivities may also cause concern among unitpersonnel and family members. Commandersand staffs at all levels should anticipate suchinterest as part of the normal planning processand be prepared to respond.

b. Complete integration of PA personnelin all staff planning is essential to ensurean effective PA operation. By being fullyinvolved, the Public Affairs Officer (PAO)will be better prepared to advisecommanders and to anticipate and respondto the news media while safeguardingsecurity and sensitivity requirements. PAofficers, therefore, must have appropriatesecurity clearances. The PAO will be in abetter position to advise the JFC about thepublic affairs environment, current newsmedia interests, public opinion concerns,command information matters, and the PAimplications of the evolving operationplans.

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PUBLIC AFFAIRS FUNDAMENTALS

News mediarelations, commandinformation andcommunity relationsare complementaryfunctions and shouldbe addressedsimultaneously indeveloping the publicaffairs program.

Completeintegration of publicaffairs personnel inall staff planning isessential to ensurean effective publicaffairs operation.

Most issues, plans,and events containelements which maybe of interest to thegeneral public, themedia, and thecommitted forces andtheir families.

Unity of effort isachieved throughthe development,approval,distribution, and useof Department ofDefense-approvedpublic affairsguidance.

Effective joint publicaffairs operationsshould be consistentwith security concerns.

A responsive,efficient, andsuccessful jointpublic affairsprogram providesthe best opportunityfor publicunderstanding ofjoint operations.

Credibility is thestandard forsuccess.

Figure III-2. Public Affairs Fundamentals

c. News media relations, commandinformation and community relations arecomplementary functions and should beaddressed simultaneously in developing thePA program. News media relationsoperations which accommodate local andmilitary reporters as well as national andinternational news media will help ensure thatthe commander communicates with all ofthe important audiences. Initial plans shouldconsider the inclusion of local news mediaon deploying aircraft, normally usingestablished guidelines and appropriatewaivers for requesting news mediatransportation. This ensures early access for

journalists who are conveniently available,familiar with the unit, and therefore able toserve a dual role of reporting to theAmerican people and helping thecommander communicate with the unit’sfamily members through its local news mediaoutlets in addition to the unit’s commandinformation program.

d. Effective joint PA operations should beconsistent with security concerns.

• These concerns inc lude bo thprotecting classified information andcontrolling the essential elements of

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f. Accuracy, balance, fairness, andcredibility are the standards for success.Success does not mean that all news mediastories will be positive or supportive.

g. A responsive, efficient, and successfuljoint PA program provides the bestopportunity for public understanding ofjoint operations. DOD policy mandates openaccess consistent with OPSEC and the safetyand individual privacy of the operating forces.Public affairs planning for any operationshould be tailored to anticipate both large orsmall numbers of technologicallysophisticated news media. The successfuljoint PA operations will be those which havededicated the necessary personnel,equ ipment, t ranspor ta t ion , andcommunications resources to meet theprevailing demands for information.

4. Public Affairs Organization

a. Public Affairs Management

• Public affairs activities are an operationalfunction. Each joint force commander’sPA program includes the responsibilitiesto conduct media relations, internal orcommand information, PA planning,and community relations asappropriate. Each of these functions hasa part to play in each joint operation,though their roles will vary with eachmission. The commander, workingthrough the PA staff, seeks to direct thePA program in a manner which mostefficiently contributes to the overallsuccess of joint operations. It is essentialthat the organization’s PAO be in the bestposition to manage the complexities ofthe entire process. There will be timeswhen the joint task force (JTF) PAO canalso serve as the director of the JIB andthe command spokesperson. However,the detailed preparation needed to interactwith the news media may overburden

friendly information associated withall operations. The first concern isaddressed by security programs such asthose established for informationsecurity and personnel security. Thesecond concern is addressed by theapplication of the OPSEC process.

• Commanders and their PA, security, andoperations officers must balance theneed for news media access to jointforces with the imperative to ensuresecurity.

• Achieving the necessary balance requiresa coordinated effort to identify whatdegree of access will be provided tothe media and what activities they willbe allowed to observe. The guidingprinciple is security at the source.Commanders will identify to their PApersonnel what information and activitiesmust be protected. PA personnel shouldadvise their commanders and all otherpersonnel on how best to address mediainquiries without revealing classified orsensitive information.

e. Unity of effort is achieved through thedevelopment, approval, distribution and useof DOD-approved PAG. With coordinated,DOD-approved PAG, talking points,statements, and answers to anticipatedquestions, commanders and their PAOsare able to provide the most accurateinformation to their own forces and to theAmerican people. From the earliest planningstages of an operation, accuracy andtimeliness of the information madeavailable to the public are essential inestablishing and maintaining credibilitywith the news media, the Congress, thegeneral public, our al l ies, and theoperating forces. “Speaking with one voice”involves close coordination among allthose involved, including agenciesoutside the Department of Defense.

III-7


news media to the external nationaland international public. Commandersand their PA staffs should be preparedto respond to news media inquiries, issuestatements, schedule interviews, conductbriefings, arrange for access tooperational units, and provideappropriate equipment, transportationand communications support. As jointoperations inevitably attract considerablenews media attention, plans shouldinclude specific provisions for eachphase of the operation, including theestablishment of information bureaus athome stations and within the operationalarea and, as appropriate, the inclusion ofnews media on deploying aircraft andships.

• Internal or Command Information.One of the most critical PA missionsinvolves informing the various internalaudiences about the participation ofmilitary forces in a joint operation. Fullcoverage is particularly important forthe participating forces, those militarypersonnel and civilian employees whoremain behind, and all family members.

the responsible officer and detract fromthat individual’s ability to manage otherrequired PA functions and serve as thecommander’s advisor on all PA issues.Thus it is most useful for the commanderto maintain a distinct separationamong the PA functions and overseetheir complementary operations throughthe organization’s PAO. Figure III-3depicts the generic structure of a JTFpublic affairs organization.

• The joint force PAO serves as the PAadvisor on the full range of PA functionsconducted in support of the jointoperation. A critical task is to ensure thatthe proper mix of resources (outlinedin Chapter IV, “Joint Public AffairsResource Requirements”) is available toconduct PA operations.

b. Public Affairs Functions

• News Media Relations. Contacts withjournalists require direct commandattention. News media relationsactivities are designed to provideinformation through the commercial

Figure III-3. Joint Task Force Public Affairs Organization

JOINT TASK FORCE PUBLIC AFFAIRSORGANIZATION

JOINT TASK FORCECOMMANDER

JOINT TASK FORCEPUBLIC AFFAIRS

OFFICER

COMMANDINFORMATION

COMMUNITYRELATIONS(If applicable)

PLANS/LOGISTICS

MEDIARELATIONS

(JIB)

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Base and organizational publicationsare traditional ways of reaching thesegroups. During a joint operation,commanders should consider all assetsavailable to communicate details aboutthe operation and the role of the jointforce, national and international events,and information about DOD, Military,Service, and JTF policies and activities.Information provided to internalmedia outlets must be consistent withthat for external media outlets to avoidany confusion, misunderstanding, ordiscrepancies between what the twoaudiences hear or see. Commandinformation newspapers and AFRTS areDOD sources of information and news.A locally produced commandinformation newspaper can helpdisseminate policies and activities of theJTF. The Military Departments mayprovide additional PA assets to assist thejoint force commander.

• Community Relations. During jointoperations, relationships with localpopulations in each combatantcommand’s area of responsibilitywill be the responsibility of civilaffairs personnel and other similargovernmental agencies. Joint publicaffairs operations will support the jointforce commander’s civil-militaryoperations (CMO) as required.However, the community relationsfunction in communities around or nearhome stations that are affected by forcedeployments remains a unit orinstallation public affairs responsibilityduring joint operations. Concernsinclude long-term relationshipsbetween the communities and thosemilitary personnel and families whoremain behind. This can also includethe relationship of the military with thecivilian employers of mobilized Reservecomponent personnel.

c. Information Bureaus

• General

•• An information bureau is a singlepoint of interface between the militaryand news media representativescovering operations. It offers a venuefor commanders and their PA staffs todiscuss their units and their roles inthe joint operation, while also helpingjournalists obtain informationquickly and efficiently on a widevariety of complex activities. The earlyestablishment of information bureausis an important step in responsively andefficiently facilitating media operations.

•• Information bureaus can be a single-Service facility, usually telling the storyof a specific base or major Servicecomponent organization; a JIBcommunicating information about aparticular joint force; or a CIB or APICin which various allied or coalitionnations join together to discuss thecommon effort and to present the rolesof their individual nations.

•• From time to time, commanders willfind it necessary to establish and operatesubordinate joint information bureaus(sub-JIBs) to accommodate mediaduring a specific phase of an operationor to provide more responsive support ina particular operational area.

•• While it may prove convenient tocol locate al l PA funct ions in as ingle fac i l i ty or area,commanders should ensure thatthe tasks associated with each aremanaged separate ly. Whi leinternal information remains acommand responsibility which maybe most efficiently performed at theJIB locat ion, i t should never

III-9


become a JIB function and shouldnot be assigned to the JIB director.

• Joint Information Bureau Functions.While the role of each informationbureau is essentially the same, the sizeand specific structure will varydepending on the specific mission.The organizational structure of a JIB isshown in Figure III-4. The functionslisted below are common to allinformation bureaus and requireappropriate planning and resourcing toeffectively support the media relationsmission. In small JIBs, each assigned

staff member may be responsible formore than one function.

•• The JIB director is responsible to theJTF PAO for all activities conductedin support of the media relationsmission. This includes closecoordination with the JTF operationsstaff to ensure that releasableinformation is accurate, timely and isissued with security sensitivities in mind.The JIB director must also ensure thathost-nation sensitivities and mediaguidelines are considered. The DeputyJIB Director performs these functions

Figure III-4. Joint Information Bureau

JOINT INFORMATION BUREAU

Joint InformationBureau

Deputy JointInformation Bureau

Director

Administration MediaResponse

MediaSupport

LiaisonCells

OperationsOfficer

Sub JointInformation Bureaus

Combat Camera

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in the absence of the JIB Director andassists in the management of the myriadtasks associated with support of the jointoperation.

•• The operations officer oversees theoperation of the JIB and assures theintegration of the media relationsfunctions. Responsibilities include thepreparation of PA plans, oversight ofmilitary-news media communications,and assessment of available publishedmedia products. These tasks are criticalelements of the PA process and mustbe performed to ensure success. Theoperations officer must also establishliaison with the operational staff toensure a continuous flow of timelyinformation .

•• The administrative officer providesbroad administrative support for theJIB staff, with particular attentionto automation and informationmanagement requirements.

•• The Media Response Sectioninteracts directly with the news mediaand serves as the primary point ofinformation exchange. Responsibilitiesinclude responding to news mediainquiries, preparing and issuing newsreleases, arranging for interviews, andconducting briefings. Additional tasksinvolve coordination with the operationscell for news media analysis, arrangingfor and preparing JTF operationalbriefers, and assisting seniorcommanders in their encounters with thenews media.

•• The Media Support Section isresponsible for helping the news mediacover joint force activities. Specifictasks include coordination oftransportation, communications,logistical support, credentialing newsmedia, and supporting media pools. In

those cases in which escorts areappropriate, this section will match thenews media with knowledgeable personsto facilitate their movement around thejoint operations area. Should securityreview be required, the media supportsection will ensure that it is doneefficiently. In addition, the mediasupport section may conduct short-noticemedia training for senior officers andother military spokespersons.

•• The composition of liaison cells willvary with the nature and requirementsof the mission. Close liaison should beestablished between the JIB and keyelements of the Joint Force Headquarterssuch as the Operations Officer (J-3),Intelligence Officer, and the joint specialoperations task force. The exact natureof this liaison will depend on thecontingency scenario. A JIB will likelycontain personnel from each of thecomponents of the command whorepresent their Service or functionalcomponent command and who helpexplain the details of the operation.These personnel are separate from thejoint staffing of the basic JIBinfrastructure who are responsible foracting in support of the JTF. In a CIBor APIC, various coalition and allied PApersonnel will be available to representtheir nation’s interests and should beintegrated into staff positions to reflectthe multinational character of theoperation. To ensure responsiveness, itis often appropriate to includerepresentatives from non-DOD andnongovernmental agencies which aredirectly involved with the operation.Depending on the mission, theDepartment of State, Federal EmergencyManagement Agency, appropriate host-nation agencies, and variousinternational relief agencies may find ithelpful to establish a presence at theinformation bureau.

III-11


to both the JTF commander and the newsmedia to have escorts available to assistthe reporters as they subsequently moveabout the operational area. These escortsneed not be trained PA personnel, butshould be knowledgeable members of thevisited organizations who have receivedtraining in media relations. Theprinciples established in paragraph 2f ofthis chapter apply to all escorts. Theseindividuals support the joint force byserving as facilitators to assist the newsmedia. They should neither interfere withthe process of reporting nor attempt toinhibit military personnel from talkingabout their jobs or missions consistentwith security and operational restrictions.The JIB director should ensure propertraining for escorts.

• Joint Information Bureau Activities.In coordination with the JTF PAO,the JIB director should develop anappropriate mix of activities in orderto communicate to the news mediaessential information about theconduct of the joint operation and theforces executing the mission. Withinthe context of prevailing PAG, variousoptions include information packets,news statements, orientations,background and operational briefings,

•• Sub-JIBs. Because of the size of thejoint operations area, the dispersion ofthe joint forces, the diversity of Servicecomponents, and the variety ofconcurrent missions, the joint task forcecommander may establish sub-JIBs tosupport the PA operation. Normallysmaller in size than the main JTF JIB, asub-JIB should function as a completeunit and perform the same tasksassigned to any information bureau. Asub-JIB may be set up temporarily tosupport a specific mission or at anestablished location to assist journalistscovering a particular sector of theoperational area. Sub-JIBs could also beestablished afloat to support maritimeaspects of a joint operation.

•• Escorts. When covering any story,the news media will instinctively seek outa central source of information. In a jointoperation, this will normally be the JIB.However, journalists are also interestedin visiting organizations participating inthe mission to get a more complete viewof events. Ideally, reporters will use theJTF media relations system consisting ofa JIB, sub-JIBs, and componentinformation bureaus to obtain their initialorientation to the operationalenvironment. It is mutually beneficial

JOINT INFORMATION BUREAU

To facilitate media coverage of US forces in Saudi Arabia, CENTCOMestablished a Joint Information Bureau (JIB) in Dhahran and, later, another inRiyadh. Saudi Ministry of Information representatives also were located withthe JIB in Dhahran, which let visiting media register with the Saudi governmentand the JIB at one location. The JIB coordinated with reporters and worked toarrange visits to units the reporters desired to cover. The Saudi governmentrequired that a US official escort reporters visiting Saudi bases. The CENTCOMPublic Affairs Office (PAO) assumed this responsibility and provided escortsto facilitate coverage on Saudi bases and to US units on the ground and at seaand throughout the theater.


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are most likely to find themselvesconfronting detailed questions aboutthe joint forces involved, theircapabilities, and their immediateobjectives. Officials and spokespersonsat the strategic level wil l mostoften concern themselves with mattersof general policy and politicalconsiderations. The approved PAGserves as a source document inresponding to news media representativesand military journalists at all levels.

• Ideally, the development of PAGbegins with the JTF commander’spublic affairs staff. However, if thesituation does not allow, PAGdevelopment will be assumed by thenext higher headquarters. The JTFoperational staff and the PAO workingtogether are in the best positionto recommend PA policy, draftappropriate statements, and identifythe issues and responses most likelyto be of interest to both external andinternal audiences. PAG is approvedby the ASD(PA). Public affairs officesshould coordinate all proposed PAGwith their legal advisors.

• PA, civil affairs (CA), and psychologicaloperations (PSYOP), messages mustbe coordinated early during theplanning process. A continualexchange of in format ion mustexist during execution. Although PA,CA, and PSYOP messages may bedifferent, they must not contradictone another or the credibility of allthree will be lost. Although each hasspecific audiences, information willoften overlap between audiences.T h i s over lap makes messagedeconfliction crucial. Under nocircumstances will public affairsp e r s o n n e l e n g a g e i n PSYOPactivities, or vice versa. The JTFcommander will establish separate

interviews with senior commanders, andvisits to participating units. Inappropriate cases, media pools may alsobe considered as an effective means ofensuring news media coverage. The JIBshould also provide materials to theServices’ hometown news centers andServices’ PA offices.

5. Public Affairs Planning andOperations

Every phase of PA planning shouldmatch the operation plan it supports, toinclude coordination with the host nationand country team. Therefore, the PAportion of the operation plan should bedeveloped simultaneously with theoperation plan so that transportation,communications, billeting, equipment, andpersonnel resources required to support thePA plan can be built into the total operationalresources requirements.

a. Public Affairs Guidance. Unity ofeffort is central to the PA mission. Thedevelopment and timely dissemination ofDOD-approved PAG ensures that allinformation and policy are in consonancewhen responding to the information demandsof joint operations.

• The first step in achieving publicunderstanding is establishing a clear setof facts and tenets specific to the missionwhich are easily understandable to thegeneral public. This information is furtherdeveloped, coordinated and disseminatedin the form of public affairs guidance. PAGconforms to operations security and theprivacy requirements of the members ofthe force. The continuous flow of updatedPAG among all participating organizationsis critical in order to keep abreast of currentdevelopments.

• Commanders and their PA personnelat the tactical and operational levels

III-13


agencies and facilities for PA andPSYOP activities. At no time willPSYOP personnel address the media,unless related to coverage of thePSYOP function.

b. Public Affairs Planning Considerations

See Figure III-5.

• News Media Access. Military publicaffairs and journalism are not limitedto activities conducted at the JIB. Iti s essen t i a l t ha t commandersunders tand that reporters wil ldesire to move as far forward aspossible in order to gain a completeunderstanding of the joint operationand to expand on backgroundinformation available from the JIB.Similarly, effective PA planning assistspublic understanding by ensuring thatjournalists move beyond news briefingabstractions by having the opportunity

to personally observe operations andto meet the personnel activelyconducting those operations. Thecommunications challenge iscomplicated by resource restrictions,which will always limit the number oftrained PA personnel at the point ofmaximum news media interest.Therefore, planning must includedetailed provisions for accommodatingand supporting the news media whendeployed with the joint force and escortedby those not formally trained in publicaffairs. The commander’s securityconcerns must also be addressed indetermining what areas the media willbe allowed to visit. Commanders mustdetermine the degree of media access toareas where sensitive or clandestineactivities are being conducted.

• Security. As noted earlier, security issuesare fundamental to all PA planning.Inclusion of the JTF PAO in the planningprocess will help to ensure thatinformation is properly categorized byits sensitivity. Commanders mustunderstand that the information mostavailable to the news media at thetactical and operational levels is also themost perishable in terms of timeliness.Decisions about information release mustreflect that understanding. Ground rulesallowing for the temporary delay oftransmission of potentially sensitiveinformation have proven to be acceptableto the news media and effective inaddressing security concerns and mediacoverage requirements. All PA plansshould consider such provisions. Onceagain, while security review of mediaproducts may occasionally be necessary,the practice of security at the source (seeAppendix A, “Guidelines for Discussionswith the Media,”) is the primary protectorof security and always governsdiscussions with news mediarepresentatives. A commander

PUBLIC AFFAIRSPLANNING

CONSIDERATIONSNews media access

Security

Media pools

Combat camera

Command information

Armed Forces Radio andTelevision Service

Host Nation

Country Team

Exercises

Figure III-5. Public AffairsPlanning Considerations

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exercising the principle of security at thesource could exclude news mediarepresentatives from covering an ongoingoperation, if media presence isdetermined by the commander tojeopardize the mission or threaten thelives of military members in theoperation.

• Media Pools. Contingency planningshould include provision of equipment,transportation, and communicationsassets necessary to help the media gatherinformation and file stories about thejoint force. The formation of pools isan option for commanders as theyprepare their PA plans. However, theuse of pools should be limited to theearliest stages of an operation or tosituations in which the presence of onlya few journalists is practical.Commanders should realize that theformation of a pool places additionalnews media support requirements on theorganization. In those cases in whichcommanders decide that news mediapools are necessary, PA planningshould include provisions fortransportation which may or may notinclude reimbursement from thenews media depending on location andavailabili ty of commercialtransportation. Other news mediarepresentatives who are not membersof, or associated with, the deployedmedia pool may be encountered. Plansmust address measures for handlingthose reporters who are not members ofthe pool, but who appear in the jointoperations area. DOD National MediaPool Support issues include the itemslisted in Figure III-6.

• Combat Camera. The deployment ofjoint combat camera teams offers the JFCa sophisticated capability to enhanceboth operational and PA missions. The

still and video images obtained providea balance of useful operationalinformation and, once cleared forOPSEC, products for distribution tonews media representatives andmilitary journalists. This is particularlyhelpful for the joint force PAO, asCOMCAM teams often have access toevents and areas unavailable to newsmedia representatives and militaryjournalists. Further, they bring withthem a technological capabilityallowing for the timely transmissionof images from fast-moving operationalenvironments. Since deployed COMCAMteams are operationally controlled bythe J-3 and support the entire spectrum ofan operation, it is essential that PA imageryrequirements be identified and prioritizedthroughout the planning cycle.Additionally, planning should delegate in-theater declassification and releaseauthority of COMCAM products to theJIB Director in order t o meet t ime-s e n s i t i v e m e d i a requirements.COMCAM teams may be asked to assistin short-notice media training formilitary spokespersons.

• Command Information. The DODcommand information program helpscommanders in their leadershipcommunications functions. It providestimely and accurate information aboutenvironment, pay, housing, personnelpolicies, and other issues that affect themorale, welfare, health, and safety of DODpersonnel and their families. Commandinformation helps inform the internalaudience about defense matters, promotepersonal dedication to duty and pride incountry, identify potential adversaries, andexplain the military capabilities of alliednations. The internal audience includesactive duty, reserve and guard members,civilian employees, cadets, retiredpersonnel, and their families.

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Figure III-6. Department of Defense National Media Pool Support

DEPARTMENT OF DEFENSE NATIONALMEDIA POOL SUPPORT

Frequent, comprehensive, unclassified operational briefings forpool personnel.

Access to areas of ongoing combat or exercise operations. Thepersonal safety of the news media is not a reason for excludingthem. The goal is to treat the news media as noncombatantsaccompanying forces, allowing them to accompany theorganizations in the conduct of their missions.

Reasonable access to key command and staff personnel.

An officer from the supported command in the grade of 0-5 or0-6 to coordinate news media pool requirements.

Itinerary planning that will enable news media pool members todisperse throughout the operational area.

Cooperation from all forces participating in the operation orexercise on a not-to-interfere basis.

Supported command planning for logistical support for pool andescort personnel out of existing contingency or exercise funds.Required support may include, but may not be limited to:

Existing operation or exercise airlift from the continentalUnited States to the area of the operation or exercise.

Theater ground, sea, and air transportation to allow poolcoverage of operations.

Messing and billeting on a reimbursable basis.

Issuance of equipment considered appropriate to thesituation (helmets, canteens, flak vests, cold weatherclothing).

Access to communications facilities to file stories on apriority basis. Where possible, access to long-distancecalls through credit cards should be obtained orprocedures established for billing long-distance calls asappropriate for the given location.

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and identifying and addressingOPSEC concerns. Exercise “play”should not be limited to or dependent onthe development of a separate publicaffairs situation or events list. Sinceoperational plans and events are centralto any exercise, PA activities depend onthe operational scenario.

c. Range of Military Operations.Commanders should ensure that PA activitiesare tailored to support joint missions acrossthe entire range of military operations.While reporters wil l inevitably beinterested in the essential facts of anysituation, that information is incompletewithout an understanding of thebackground, underlying rationale, andother fundamental elements of theoperation. Experience shows that mediainterest in humanitarian, disaster relief,peacekeeping, and similar operations peaksearly then diminishes gradually. Planningshould reflect that curve. Specific missions,described below, involve unique issues whichshould be addressed as part of the PA planningand communication processes.

• War and Military Operations OtherThan War. US military forces mustbe prepared to respond to the publicaffairs aspects of a wide variety ofsituations in which the application ofmilitary power may be necessary toachieve national security objectives.Commanders and their PA personnelshould be prepared to discuss, amongother topics, organizational structure,strategy, objectives, tactics, training,logistics, intelligence, and troop supportissues. Explaining the details of suchareas reinforces news media and publicawareness of the functioning of themilitary within the context of the statedpolitical goals.

• Foreign Humanitarian Assistance andDisaster Relief. These missions

• AFRTS. The AFRTS supports theDOD command information programby providing a broad range ofinformation and entertainmentprogramming through the radio andtelevision media. The deployment ofAFRTS assets offers the JFC a uniquemeans to communicate directly toDOD personnel and familymembers overseas. Further, AFRTSassists in maintaining and enhancingunit morale, readiness, and well-being. AFRTS outlets may not beused for any type of political orPSYOP, and may not produce orbroadcast programming to serveinterests other than the DOD internalaudience. Deployment of AFRTSassets into a joint operations areausually requires special approvalsfor frequencies, real estate, andfacilities which must normally becoordinated by the JIB. The seniorAFRTS off icer commands theAFRTS station and serves as amember of the JIB.

• Exercises. All exercises should includefull PA participation . Failure to includethe PA staff and infrastructure in allaspects of an exercise could result inserious deficiencies in PA support ofan actual operation. All PA personnelshould be trained in basic operationalskills and in the tasks involved with jointPA activities. Prior identification andtraining of personnel in exercises isessential before their participation incontingency operations. Exerciseactivities should move beyond the basicadministrative requirements of hostingjournalists at a few prescheduled events.Exercise problems should be especiallydesigned to stress the JFC and his staff.All aspects of the PA process should beexercised with particular attention paidto coordination with the operationalstaff, the resourcing of all PA functions,

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involve a delicate balance of politicaland military objectives, and willinclude operational and informationcoordination with nongovernmentalrelief organizations and often therepresentatives of other nationscontributing to the effort. In such anenvironment, commanders and theirPA staffs must exercise care so that,in their attempts to demonstrate theirresponsiveness, concern, and assistance,they do not preempt the authority of thepolitical leadership or appear to be takingcredit for success at the expense of othercontributing parties.

• Counterdrug Operations. A numberof factors are unique to counterdrugoperations, such as a high degree ofinteragency and internationalcoordination. Most significantly, thereare legal and law enforcement aspectsof counterdrug operations that areextremely sensitive and generateadditional concerns in the release ofinformation to the public. Theinappropriate release of informationcould threaten the personal safety ofmilitary personnel, civilian lawenforcement officials, other participants,the success of follow-on operations,pending judicial cases, and the securityof intelligence systems and sources.

• Combatting Terrorism. Becauseterrorists generally seek maximumpublicity, it may be impossible toprevent coverage that could revealtactics, techniques and proceduresu s e d i n c o m b att i n g t e r r o r i s morganizations. That means that PAplanners will have to anticipate andmake accommodations for theprobability of live and near-live directmedia coverage activity and strive toprovide as much information to the publicabout DOD activities as possible, consistentwith operations security, technology

security, and information security. Inmaking information available to the newsmedia, PA personnel must delicatelybalance the legitimate informationrequirements of their DOD and civilianaudiences against the intelligencerequirements of the terrorists.

• Peace Operations. While similar intheir objectives to ensure stability ina part icular region or country,peacekeeping and peace enforcementinvolve different public affairschallenges. A primary concern duringpeacekeeping operations is that themajor participants are not and mustnot be perceived as taking sides in theconflict.

• Crisis Management. In times of crisis,there will be considerable public andnews media interest in the events,decision process, and the political,economic, and military responses to thesituation. Public affairs will requireconsiderable interagency cooperationto ensure that information plans areaccurate and consistent incommunicating the political and militaryaspects of the crisis. It will be particularlyimportant that military PA personnelunderstand and respect the differentresponsibilities of the military andpolitical leadership and focus only onthe military aspects of the situation.

6. Evaluating Feedback

There are several ways to evaluate thesuccess and credibility of the public affairseffort. One is to assess the general tone ofthe news media in their questions anddealings with the PAOs and the command ingeneral. A second is a continuousassessment of available news media productsand public opinion polls. Another is toestimate the impact of commandinformation on the internal audience from

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the feedback of other functional areas(morale, welfare, recreation and services,chaplain, inspector general). Public affairspersonnel should also monitor the impactof news coverage on the mission and host-nation concerns. These reviews assist inevaluating the accuracy of media reportingand help to gauge the editorial tonecommunicated to the public. PAOs shouldlook to all feedback sources to assist indetermining what additional information,explanation and programs are necessary toimprove the efficiency of the PA process.

7. Public Diplomacy andPsychological Operations

Joint Pub 1, “Joint Warfare of the ArmedForces of the United States” identifies PA,PSYOP and public diplomacy as “aspects ofthe informational instrument of nationalsecurity strategy.” Each is a separate functionwith a unique mission. Public diplomacy isan interagency governmental effort tocommunicate prepared messages and themesto international audiences. Similarly, PSYOPuse specific techniques to influence favorablebehavior or beliefs of non-US audiences. Incontrast, joint PA operations should notfocus on directing or manipulating publicactions or opinion. They provide a timelyflow of accurate information to both externaland internal publics. While they reinforceeach other and involve close cooperation andcoordination, by law PA and PSYOP mustbe separate and distinct. Each functionrequires distinct efforts to plan, resource andexecute as part of the commander’s largeroperation plan. It is critically important thatPA, public diplomacy, and PSYOPcoordinate among each other in order tomaintain credibility with their respectiveaudiences. Therefore, PSYOP representativesshould coordinate with the JIB to deconflictoperational activities while strictlymaintaining their separate functions.

8. Community Relations andCivil-Military Operations

a. All military operations involvingcontact with civilians designed to influence,control, or develop civil organizations areclassified as CMO. Responsibility for CMOin a joint operation is determined by the JFC.However, CA and PA personnel will beconducting operations throughout thecombatants commander’s area ofresponsibility, so coordination is essentialbetween all PA and CMO elements at all levelsof command.

b. PA and CMO personnel are todisseminate information to localpopulations. Public affairs elements have theresponsibility to deal with local media outletsand will assist CMO elements in passing civilaffairs information to the appropriateaudiences through those media outlets.Coordination is required to ensure that theinformation required for release by one staffelement does not conflict with or complicatethe work of the other. CMO with PSYOPforces may also use non-PA means ofinformation such as mobile loud speakers orleaflets.

c. US CMO elements will assist withdislocated civilians, public administration ,public health, and public works in concertwith local authorities. By their nature, theirmissions and their normally positive resultsare of interest to the local populace and theirnews media representatives.

d. PA elements also have theresponsibility, through command informationoutlets, to keep military elements informedof the displaced civilian situation, methodsand procedures for their orderly withdrawalfrom the operational area, and any otherinformation on this issue deemed appropriateby the JFC.

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e. Tasks in support of CMO mightinclude the following:

• Coordinate releases to the media with allappropriate agencies to ensureconsistency of information to the localpopulation.

• Develop and disseminate media releasesabout CMO efforts to local, national, and

international media as well as tocommand information outlets.

• Assist news media in covering knownCMO activities.

• In cooperation with CMO elements,ensure the publication and broadcastingof information to protect displacedcivilians.

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Intentionally Blank

CHAPTER IVJOINT PUBLIC AFFAIRS RESOURCE REQUIREMENTS

IV-1

1. General

a. Joint and multinational PA activitiesrequire personnel, transportation , andcommunications and technical resources.These assets are essential to the conduct ofPA. (See Figure IV-1.) Commanders mustensure that the PA assessment of anticipatedtransportation requirements is incorporatedas early as possible in the crisis actionplanning process. These requirements mayexceed available resources, and they need tobe addressed early in the planning process.Plans must provide for specific measures toreinforce personnel and procure, lease, orassign other necessary resources. This effortwill generally require assistance from thesupporting combatant commands and theMilitary Departments.

b. All materials and transportationresources should be deployable and providedon a dedicated basis so that the responsiblecommander can sustain PA operations atnecessary levels. Each phase of an operationwill have unique PA requirements whichrequire the attention of the commander, thestaff, and the PA officer. News media interestwill vary, and military support packages mustbe able to accommodate surges in news mediaactivities. The goal is to anticipate andrespond to fluctuating coverage and totailor resources to ensure no loss ofefficiency.

2. Facilities

Facili ties must be designated for thefunctioning of the public affairs infrastructureand for the work of the news media coveringany joint or multinational operation. This

requirement may include the establishment andoperation of a JIB. Should a CIB or APIC beappropriate, similar facilities would also benecessary. Specific requirements include staffand news media work areas, equipmentstorage and photo lab spaces, vehicle parking

Figure IV-1. Joint Public Affairs Resource Requirements

JOINT PUBLICAFFAIRS RESOURCE

REQUIREMENTS

FACILITIES

PERSONNEL

EQUIPMENT

Designated for thefunctioning of the publicaffairs infrastructure andthe news media

Rapid expansion of thepublic affairs staff isnecessary especially inthe earliest stages ofdeployment. This may beaccomplished through useof Active Duty, NationalGuard, and Reserve publicaffairs units or individualpublic affairs personnel

Public affairs offices mustbe outfitted with the mostmodern and efficientequipment in order tointerface with the newsmedia covering jointoperations

“Without supplies neither a general nor a soldier is good for anything.”

Clearchus of Sparta, 401 BC

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areas, and helicopter landing sites.Additionally, work areas are necessary forthose personnel conducting the communityrelations and command information missions.This includes AFRTS broadcast and transmissionfacilities. Billeting and messing for personnelworking at the information centers must beprovided. This is also true for news media ifsuch support is not available locally. Billeting,when provided to non-DOD civilians, should becomparable to the accommodations occupied byofficers.

3. Personnel

Once an operation begins, the peacetimestaffing of an organization’s PA office will likelybe inadequate to respond to the inevitableincrease in news media and public interest.Contingency planning must address the need forrapid expansion of the PA staff to meet thischallenge, especially in the earliest stages of thedeployment. While the organization’s PApersonnel will form the core of the effort, theirreinforcement must be a high priority. This canbe accomplished in the following ways:

a. By Active Duty, National Guard, andReserve PA Units. In developing operationplans, combatant commanders will coordinatewith the Military Departments and thesupporting combatant commanders toidentify those organizations with specificPA skills and capabilities to assist in thePA effort. Operational orders must reflectthe requirement for Reserve and NationalGuard assets, if such assets are required. Theirdeployment at the earliest stages of theoperation is crucial to the overall success ofthe joint or multinational mission. Onarrival, such units would be subordinate tothe appropriate component or the joint forcePAO. Members of these organizations shouldtrain regularly in various exercise scenariosand should be provided with sufficientdedicated equipment, transportation, andcommunications support to accomplish theirmissions of news media relations, communityrelations, and command information.

b. By Individuals. It will also be necessaryto deploy individual PA personnel fromsupporting combatant commands and the

MEDIA CONCERNS

One of the concerns of news organizations in the Pentagon press corps [duringDESERT STORM] was that they did not have enough staff in the Persian Gulfto cover hostilities. Since they did not know how the Saudi government wouldrespond to their requests for more visas, and since they couldn’t predict whatrestrictions might be imposed on commercial air traffic in the event of a war,they asked the Pentagon to provide a military plane to take in a group ofreporters to act as journalistic reinforcements. Notwithstanding the mostintensive airlift since the Berlin blockade ongoing, a USAF C-141 cargo planeleft Andrews Air Force Base, MD on the morning after the bombing beganwith 126 news media personnel on board. The fact that senior militarycommanders dedicated one cargo airplane to the job of transporting another

126 journalists to Saudi Arabia demonstrated the military’s commitment totake reporters to the scene of the action so they could get the story out to theAmerican people.


IV-3

Joint Public Affairs Resource Requirements

Military Departments . Positions should beidentified in advance and individuals matchedto specific requirements in support of eachoperation plan. Once again, exercising sucha reinforcement scheme is important in orderto refine operational procedures and to helpthe designated personnel to understand thecomplexities of the missions and thebackgrounds of the combatant commands theyare supporting.

4. Equipment

The news media who cover any jointoperation will be outfitted with the mostmodern and eff ic ient equipment.Commanders must ensure that the PAinfrastructure that is in place to supportthe joint mission is, to the extent possible,comparable. Standardized equipment,software, and communications packageswill ensure interoperability and minimizetraining requirements in a contingencyenvironment. Most of the items must beprovided by the Service components ofthe supported combatant commander,especially that which supports the DODNational Media Pool, the command’s primaryJIB, and other PA offices supporting the

operation in its earliest stages. Subsequentresource needs should be met by balancedsupport provided by the responsiblecombatant commander, the supportingcombatant commanders, and the MilitaryDepartments. The planning process shouldprecisely identify the PA infrastructurerequirements for each contingency andthen identify who will provide them.Maintenance and service are essential toensure sustainability of the resourcepackages. Rental contracts may be appropriatein some cases to ensure current technology andmaintenance support. The early introduction intothe operational area of the following assets iscrucial to meeting the PA objectives of the largeroperational mission:

a. Material in direct support of the PA staffand JIB operations is listed in Figure IV-2.

b. While communications requirementswill vary in each situation, an appropriate mixof the following capabilities will be neededto support public affairs:

• Telephone lines (specify number) withinternational access

In remote areas, information about US joint forces may be dispatched real time,via portable satellite communications systems.

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Personal computers, to include laptop systems

Portable television satellite antennas

Printers

Modems

Photocopier machine(s) and access to offset printing capabilities

Furniture to support multiple work areas (as required)

Visual information, audiovisual, and sound reinforcement equipment

Professional quality multi-system still and video cameras, videorecorders, and playback systems (film, developing equipment, digitalelectronic imaging equipment)

35mm slide and overhead projectors

Appropriate directional and/or informational signs

Tape recorders and battery chargers

Blank audio and video tapes

Office supplies

Maps

Position locators and/or navigational equipment

Power generators

News sources:Televisions and radio receivers

(preferably portable and battery-operated)Wire servicesNewspapersMagazinesElectronic bulletin boards, newsbanks, data bases

Power converters

Armed Forces Satellite Transmitted Radio Service A-10 portableInternational Maritime Satellite receiver

Supply of different types of batteries

PUBLIC AFFAIRS MATERIAL

Figure IV-2. Public Affairs Material

IV-5

Joint Public Affairs Resource Requirements

• Secure communications

• Mobile radios

• Portable phones

• Answering machines

• Facsimile machines

• Satellite communications with uplink anddownlink facilities

• Tactical communications devices (secureand nonsecure)

c. The mobility of the PA effort mustmatch that of the operational forces in orderto ensure the necessary level of news mediacoverage. A package of dedicatedtransportation assets, in a combinationappropriate to the assigned operation, willinclude the following capabilities:

• Vehicles to support PA administrative andlogistics activities (with drivers andcommunications)

• Vehicles to support the movement ofnews media (with drivers andcommunications)

• Aircraft to support the movement of newsmedia

• Surface and air transportation to assist inthe movement and filing of mediaproducts

• Fuel

NOTE: Maintenance and service should besecured to ensure sustainability of theresources packages. Rental contracts may beappropriate in some cases to ensure currenttechnology and maintenance support.

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Intentionally Blank

APPENDIX AGUIDELINES FOR DISCUSSIONS WITH THE MEDIA

A-1

1. Preparation results in effective discussionswith the news media. Central to the processis the effort to identify what information willbe released based on prevailing publicaffairs guidance and operations security.Commanders, briefers, and public affairspersonnel should be aware of the basic factsof any operation and sensitive to the variousconsequences of communicating them to thepublic.

2. “Security at the source” serves as the basisfor ensuring that no information is releasedwhich jeopardizes operations security or thesafety and privacy of joint military forces.Under this concept, individuals meeting withjournalists are responsible for ensuring thatno classified or sensitive information isrevealed. This guidance also applies tophotographers, who should be directed not totake pictures of classified areas or equipmentor in any way to compromise sensitiveinformation.

3. Each operational situation will require adeliberate public affairs assessment in orderto identify specific information to be released.The following categories of information areusually releasable, though individualsituations may require modifications:

a. The arrival of US units in thecommander’s area of responsibility onceofficially announced by the Department ofDefense or by other commands in accordancewith release authority granted by the Officeof the ASD(PA). Information could includemode of travel, sea or air, date of departureand home station or port.

b. Approximate friendly force strength andequipment figures.

c. Approximate friendly casualty andprisoner of war figures by Service.Approximate figures of enemy personneldetained during each action or operation.

d. Nonsensitive, unclassified informationregarding US air, ground, sea, space, andspecial operations, past and present.

e. In general terms, identification andlocation of military targets and objectivespreviously attacked and the types of ordnanceexpended.

f. Date, time, or location of previousconventional military missions and actions aswell as mission results.

g. Number of combat air patrol orreconnaissance missions and/or sorties flownin the operational area. Generic descriptionof origin of air operations, such as “land” or“carrier-based.”

h. Weather and climate conditions.

i. If appropriate, allied participation by type(ground units, ships, aircraft).

j. Conventional operations’ unclassifiedcode names.

k. Names and hometowns of US militarypersonnel.

l. Names of installations and assignedunits.

m. Size of friendly force participating inan action or operation using general termssuch as “multi-battalion,” or “naval taskforce.”

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n. Types of forces involved (e.g., aircraft,ships, carrier battle groups, tank and infantryunits).

4. Classified aspects of equipment,procedures, and operations must be protectedfrom disclosure to the media. In more generalterms, information in the following categoriesof information should not be revealed becauseof potential jeopardy to future operations, therisk to human life, possible violation of hostnation and/or allied sensitivities, or thepossible disclosure of intelligence methodsand sources. While these guidelines serve toguide military personnel who talk with themedia, they may also be used as ground rulesfor media coverage. The list is not necessarilycomplete and should be adapted to eachoperational situation.

a. For US (or allied) units, specificnumerical information on troop strength,aircraft, weapons systems, on-handequipment, or supplies available for supportof combat units. General terms should be usedto describe units, equipment and/or supplies.

b. Any information that reveals details offuture plans, operations, or strikes, includingpostponed or canceled operations.

c. Information and imagery that wouldreveal the specific location of military forcesor show the level of security at militaryinstallations or encampments. For datelines,stories will state that the report originates fromgeneral regions unless a specific country hasacknowledged its participation.

d. Rules of engagement.

e. Information on intelligence activities,including sources and methods, lists of targetsand battle damage assessments.

f. During an operation, specificinformation on friendly force troop movementor size, tactical deployments, and dispositionsthat would jeopardize operations security orlives. This would include unit designationsand names of operations until released by theJFC.

g. Identification of mission aircraft pointsof origin, other than as land or carrier-based.

h. Information on the effectiveness orineffectiveness of weapon systems and tactics(to include, but not limited to enemycamouflage, cover, deception, targeting, directand indirect fire, intelligence collection, orsecurity measures).

i. Specific identifying information onmissing or downed aircraft or ships whilesearch and rescue operations are planned orunderway.

j. Special operations forces’ uniquemethods, equipment, or tactics which, ifdisclosed, would cause serious harm to theability of these forces to accomplish theirmission.

k. Information on operational or supportvulnerabilities that could be used against USor allied units until that information no longerprovides tactical advantage to the enemy andis therefore released by the joint commander.Damage and casualties may be described as“light,” “moderate,” or “heavy.”

l. Specific operating methods and tactics(e.g., offensive and defensive tactics or speedand formations). General terms such as “low”or “fast” may be used.

APPENDIX BREFERENCES

B-1

The development of Joint Pub 3-61 is based upon the following primary references:

1. Joint Pub 1, “Joint Warfare of the Armed Forces of the United States.”

2. Joint Pub 1-02, “Department of Defense Dictionary of Military and Associated Terms.”

3. Joint Pub 3-0, “Doctrine for Joint Operations.”

4. Joint Pub 3-07, “Joint Doctrine for Military Operations Other than War.”

5. Joint Pub 3-54, “Joint Doctrine for Operations Security.”

6. CJCSI 3212.01, May 28, 1993, “Joint Operations Security.”

7. CJCSM 3122.03, June 1, 1996, “Joint Operation Planning and Execution System, Vol II:(Planning Formats and Guidance).”

8. CJCS message, 182305Z May 90, “DOD National Media Pool Planning Requirements.”

9. DOD Instruction 5040.4, “Joint Combat Camera Program,” March 5, 1990.

10. DOD Directive 5120.20, “Armed Forces Radio and Television Services (AFRTS),”December 17, 1991.

11. DOD Regulation 5120.20-R, “Management and Operation of Armed Forces Radio andTelevision Service (AFRTS),” February 1988.

12. DOD Directive 5122.5, “Assistant Secretary of Defense (Public Affairs),” March 29,1996.

13. DOD Directive 5122.10, “American Forces Information Service,” March 13, 1989.

14. DOD Directive 5122.11, “Stars and Stripes Newspapers and Business Operations.”

15. DOD Directive 5200.1, “DOD Information Security Program,” June 7, 1982.

16. DOD Directive 5230.9, “Clearance of DOD Information for Public Release,” April 2,1982.

17. DOD Directive 5400.13, “Joint Public Affairs Operations,” (Note: Joint Pub 3-61 reflectscomments submitted in staffing of draft DOD Directive 5400.13).

18. DOD Instruction 5400.14, “Procedures for Joint Public Affairs Operations,” (Note:Joint Pub 3-61 reflects comments submitted in staffing of draft DOD Instruction 5400.14).

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19. DOD Instruction 5405.3, “Development of Proposed Public Affairs Guidance (PPAG),”April 5, 1991.

20. DOD Directive 5410.18, “Community Relations,” July 3, 1974.

21. DOD Instruction 5410.19, “Armed Forces Community Relations,” July 19, 1979.

22. Public Affairs Handbook, Defense Information School, 1991.

APPENDIX CADMINISTRATIVE INSTRUCTIONS

C-1

1. User Comments

Users in the field are highly encouraged to submit comments on this publication to theJoint Warfighting Center, Attn: Doctrine Division, Fenwick Road, Bldg 96, Fort Monroe,VA 23651-5000. These comments should address content (accuracy, usefulness,consistency, and organization), writing, and appearance.

2. Authorship

The lead agent for this publication is the Special Assistant to the Chairman for PublicAffairs, OCJCS. The Joint Staff doctrine sponsor for this publication is the Director forOperational Plans and Interoperability, (J-7).

3. Change Recommendations

a. Recommendations for urgent changes to this publication should be submitted:

TO: JOINT STAFF WASHINGTON DC//J7/JDD//OCJCS-PA//INFO: SECDEF WASHINGTON DC//ASD(PA):DPL//

Routine changes should be submitted to the Director for Operational Plans andInteroperability (J-7), JDD, 7000 Joint Staff Pentagon, Washington, D.C. 20318-7000.

b. When a Joint Staff directorate submits a proposal to the Chairman of the JointChiefs of Staff that would change source document information reflected in thispublication, that directorate will include a proposed change to this publication as anenclosure to its proposal. The Military Services and other organizations are requestedto notify the Director, J-7, Joint Staff, when changes to source documents reflected inthis publication are initiated.

c. Record of Changes:

CHANGE COPY DATE OF DATE POSTEDNUMBER NUMBER CHANGE ENTERED BY REMARKS__________________________________________________________________________________________________________________________________________________________________________________________________________________

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4. Distribution

a. Additional copies of this publication can be obtained through Service publicationcenters.

b. Only approved pubs and test pubs are releasable outside the combatant commands,Services, and Joint Staff. Release of any classified joint publication to foreigngovernments or foreign nationals must be requested through the local embassy (DefenseAttache Office) to DIA Foreign Liaison Office, PSS, Room 1A674, Pentagon,Washington, D.C. 20301-7400.

c. Additional copies should be obtained from the Military Service assignedadministrative support responsibility by DOD Directive 5100.3, 1 November 1988,“Support of the Headquarters of Unified, Specified, and Subordinate Joint Commands.”

By Military Services:

Army: US Army AG Publication Center SL1655 Woodson RoadAttn: Joint PublicationsSt. Louis, MO 63114-6181

Air Force: Air Force Publications Distribution Center2800 Eastern BoulevardBaltimore, MD 21220-2896

Navy: CO, Naval Inventory Control Point700 Robbins AvenueBldg 1, Customer ServicePhiladelphia, PA 19111-5099

Marine Corps: Marine Corps Logistics BaseAlbany, GA 31704-5000

Coast Guard: Coast Guard Headquarters, COMDT (G-OPD)2100 2nd Street, SWWashington, D.C. 20593-0001

d. Local reproduction is authorized and access to unclassified publications isunrestricted. However, access to and reproduction authorization for classified jointpublications must be in accordance with DOD Regulation 5200.1-R.

GLOSSARYPART I—ACRONYMS AND ABBREVIATIONS

GL-1

AFRTS Armed Forces Radio and Television ServiceAPIC allied press information centerASD(PA) Assistant Secretary of Defense (Public Affairs)

CA civil affairsCIB combined information bureauCJCS Chairman of the Joint Chiefs of StaffCMO civil-military operationsCOMCAM combat camera

DOD Department of Defense

J-3 Operations OfficerJFC joint force commanderJIB joint information bureauJTF joint task force

OCJCS-PA Office of the Chairman of the Joint Chiefs of Staff-Public AffairsOPSEC operations security

PA public affairsPAG public affairs guidancePAO public affairs officer; Public Affairs OfficePSYOP psychological operations

RC Reserve component

sub-JIB subordinate joint information bureau

active public affairs policy. Opendissemination of information to inform thenews media and public about an issue oractivity. An active approach ischaracterized by announcing the event oraddressing the issue through news mediaadvisories, news releases, personal contacts,news conferences, or other forms of publicpresentation. Such a policy encourages andsupports news media coverage. (Approvedfor inclusion in the next edition of Joint Pub1-02.)

Armed Forces Radio and TelevisionService. A worldwide radio and televisionbroadcasting organization that provides USmilitary commanders overseas and at seawith sufficient electronic media resourcesto effectively communicate theater, local,DOD, and Service-unique commandinformation to their personnel. (Approvedfor inclusion in the next edition of JointPub 1-02.)

command information. Communication bya military organization with Servicemembers, civilian employees, retirees andfamily members of the organization thatcreates an awareness of the organization’sgoals, informs them of significantdevelopments affecting them and theo rg a n i z a t i o n , i n c r e a s e s t h e i re ffect iveness as ambassadors of theorganization, and keeps them informedabout what is going on in the organization.Also called internal information.(Approved for inclusion in the next editionof Joint Pub 1-02.)

community relations. 1. The relationshipbetween military and civilian communities.2. Those public affairs programs whichaddress issues of interest to the generalpublic, business, academia, veterans andService organizations, military-related

associations, and other non-news mediaentities. These programs are usuallyassociated with the interaction between USmilitary installations and their surroundingor nearby civilian communities. Interactionwith overseas non-news media civilians ina wartime or contingency theater will behandled by civil-military operation (CMO)with public affairs support as required.(Approved for inclusion in the next editionof Joint Pub 1-02.)

Combat Camera. Visual informationdocumentation covering air, sea, andground actions of the Armed Forces of theUnited States in combat or combat supportoperations and in related peacetime trainingactivities such as exercises, war games, andoperations. Also called COMCAM.(Approved for inclusion in the next editionof Joint Pub 1-02.)

joint information bureau. Facilitiesestablished by the joint force commanderto serve as the focal point for the interfacebetween the military and the media duringthe conduct of joint operations. Whenoperated in support of multinationaloperations, a joint information bureau iscalled a combined information bureau oran allied press information center. Alsocalled JIB. (Approved for inclusion in thenext edition of Joint Pub 1-02.)

media pool. A limited number of news mediawho represent a larger number of newsmedia organizations for news gathering andsharing of material during a specifiedactivity. Pooling is typically used whennews media support resources cannotaccommodate a large number of journalists.The DOD National Media Pool is availablefor coverage of the earliest stages of acontingency. Additionally, the combatantcommanders may also find it necessary to

PART II—TERMS AND DEFINITIONS

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form limited local pools to report on specificmissions. (Approved for inclusion in thenext edition of Joint Pub 1-02.)

military journalist. A US Service memberor DOD civilian employee providingphotographic, print, radio, or televisioncommand information for military internalaudiences. (Approved for inclusion in thenext edition of Joint Pub 1-02.)

news media representative. An individualemployed by a civilian radio or televisionstation, newspaper, newsmagazine,periodical, or news agency to gather andreport on a newsworthy event. (Approvedfor inclusion in the next edition of Joint Pub1-02.)

passive or responsive public affairs policy.A responsive posture by which no directeffort is made to initiate, or participate in,the public discussion about an issue oractivity. When a passive policy is in effect,authorities must be prepared to respond tonews media inquiries about the issue oractivity — to make brief statements to avoidconfusion, speculation, misunderstandingor false information that may prevail if newsmedia queries go unanswered. (Approvedfor inclusion in the next edition of Joint Pub1-02.)

public affairs. Those public information,command information, and communityrelations activities directed toward both theexternal and internal publics with interestin the Department of Defense. (Approvedfor inclusion in the next edition of Joint Pub1-02.)

public affairs assessment. An analysis ofthe news media and public environmentsto evaluate the degree of understandingabout strategic and operational objectivesand military activities and to identify levels

of public support. Includes judgmentsabout the public affairs impact of pendingdecisions and recommendations about thestructure of public affairs support for theassigned mission. (Approved for inclusionin the next edition of Joint Pub 1-02.)

public affairs ground rules. Conditionsestablished by a military command togovern the conduct of news gathering andthe release and/or use of specifiedinformation during an operation or duringa specific period of time. (Approved forinclusion in the next edition of Joint Pub1-02.)

public affairs guidance. Normally, apackage of information to support thepublic discussion of defense issues andoperations. Such guidance can range froma telephonic response to a specific questionto a more comprehensive package.Included could be an approved publicaffairs policy, news statements, answers toanticipated media questions, andcommunity relations guidance. The publicaffairs guidance also addresses themethod(s), timing, location, and otherdetails governing the release of informationto the public. Public affairs guidance isapproved by the Assistant to theSecretary of Defense for Public Affairs.Also called PAG. (Approved for inclusionin the next edition of Joint Pub 1-02.)

security review. The process of reviewingnews media products at some point, usuallybefore transmission, to ensure that no oral,written, or visual information is filed forpublication or broadcast that would divulgenational security information or wouldjeopardize ongoing or future operations orthat would threaten the safety of themembers of the force. (Approved forinclusion in the next edition of Joint Pub1-02.)

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