OCTOBER 2000
FM 3-61.1
Public Affairs Tactics,
Techniques and Procedures
DISTRIBUTION RESTRICTION:
Approved for public release; distribution is unlimited
HEADQUARTERS,
DEPARTMENT OF THE ARMY
Preface
The mission of Army Public Affairs (PA) is to fulfill the Army's obligation to keep the
American people and the Army informed, and to help establish the conditions that lead to
confidence in America's Army and its readiness to conduct operations in peacetime, conflict
and war. PA is a critical battlefield function in today's global information environment since
every aspect of an Army operation is subject to instantaneous scrutiny.
This field manual (FM) sets forth tactics, techniques and procedures (TTPs) for conducting
PA operations in accordance with the doctrinal principles contained in FM 3-0 (100-5),
Operations and FM 3-61 (46-1), Public Affairs Operations. Although this manual is primarily
designed to be used by public affairs officers, noncommissioned officers and civilians, it
presents TTPs that all leaders conducting operations in the information age should be familiar
with.
FM 3-61-1 (46-1-1) is applicable to units and individuals in both the active and reserve
components. It serves as a foundation for integrating PA into Army doctrine, training, leader
development, organization, materiel and soldier initiatives. In conjunction with the Army
Training and Evaluation Program (ARTEP) and other training guidance, it should also be used
to plan, integrate and execute individual and collective PA training in units throughout the
Army.
The proponent for this manual is the Office of the Chief of Public Affairs. Send comments
and recommendations on DA Form 2028 to Director, Army Public Affairs Center, ATTN:
SAPA-PA, Fort Meade, MD 20755-5650.
Unless this publication states otherwise, masculine nouns or pronouns do not refer exclusively
to men.
This document is approved for public release; distribution is unlimited.
IV
Introduction
With the extremely sophisticated communication technologies of the global information
environment (GIE), the nature of media coverage has a significant impact on the conduct of
war and stability and support operations at the strategic, operational and tactical levels.
Civilian and military news media coverage influences the perceptions of soldiers, family
members, the public and political leaders, and affects the direction, range and duration of
operations. It has a direct relation to the confidence these key audiences have in the Army and
its execution of operations.
Effective PA operations are critical to successful Army operations in the information age.
They assist the commander in monitoring and understanding public opinion, explaining the
situational context of events and communicating the Army's perspective clearly and without
filters. They enable the commander to interpret the perceptions of external and internal
audiences and influence the way in which discussion of the operation is framed.
Synchronized, well-planned and actively executed PA tactics, techniques and procedures
significantly clear the fog of war and impact the morale and effectiveness of the force. They
reduce distractions, misinformation, uncertainty, confusion and other factors that cause stress
and undermine efficient operations. They enhance understanding, acceptance and support.
Effective PA operations contribute to soldier confidence, discipline, will to win, and unit
cohesion.
FM 3-61-1 (46-1-1), Public Affairs Tactics, Techniques and Procedures, builds on the
doctrinal foundation of FM 46-1. It translates the PA fundamentals and principles into
detailed guidance for the planning, coordination and execution of PA operations. It provides
what is required for the information age — a sophisticated approach to conducting PA
operations. It is the TTP that brings Army Public Affairs into the "information age."
FM 3-61 (46-1), Public Affairs Operations, addresses fundamental PA concepts in depth, and
provides the linkage between PA and the Army's keystone doctrine, FM 3-0 (100-5),
Operations. It recognizes that a refocused, restructured military will conduct operations in an
information environment in which detailed, graphic, and live coverage of events are
transmitted around the world. It builds from the understanding that information availability
will influence strategic decisions and the direction, range and duration of operations.
FM 3-61 (46-1) also examines PA operations at the different levels of war and across the
range of operations. It discusses PA operations with respect to the Principles of War and the
Tenets of Army Operations. It analyzes the PA contributions to build and sustain combat
power, defines the PA mission, and establishes strategic PA goals, fundamental PA principles,
and underlying considerations for planning integrated information strategies.
Public affairs frequently deals in intangibles — perceptions and implications — that are not
easily quantifiable or qualifiable, but are essential to commanders. The PA objectives,
processes and methods presented in FM 3-61-1 (46-1-1) will assist Army leaders and PA
professionals to develop solutions to the complex PA issues they will confront.
Field Manual
No. 3-61.1
FM 3-61.1
Headquarters
Department of the Army
Washington, DC, 1 October 2000
Public Affairs Tactics, Techniques and
Procedures
Contents
Page
PREFACE iv
INTRODUCTION v
Chester 1 PUBLIC AFFAIRS FUNDAMENTALS 1-1
PA Mission 1-1
PA Force 1-2
PA Units 1-3
Chester 2 PA FUNCTIONS AND RESPONSIBILITIES 2-1
Responsibilities 2-2
Communications 2-4
Logistics and Support 2-5
Charter 3 PLANNING 3-1
Types of Plans 3-2
PA Estimate of Situation 3-9
PA Guidance 3-9
Annex 3-10
Chc*rter4 MEDIA FACILITATION Arl
Media Center Responsibilities 4-2
MOC Operations 4-4
Media Pools 4-8
DISTRIBUTION RESTRICTION:. Approved for public release; distribution is unlimited.
FM 3-61.1
Page
Chapter 5 INFORMATION STRATEGIES 5-1
Responsibilities 5-3
Information Strategy Process 5-4
Information Program Evaluation 5-8
Chapter 6 TRAINING 6-1
Training Objectives 6-1
PA training for non-PA personnel 6-4
Staff Section and Unit Training 6-5
Chapter 7 COMMUNITY RELATIONS 7-1
Community Relations Activities 7-2
Community Assistance 7-9
Readiness Enhancement 7-10
Chapter 8 PA ORGANIZATIONS 8-1
Brigade PAO 8-1
Division 8-3
Tactical Command Post PA Section 8-5
Chapter 9 PA AND INFORMATION OPERATIONS 9-1
10 Staff Organization 9-2
PA Estimate and 10 Planning 9-3
10 Campaign Cycle 9-4
Appendix A DOD PRINCIPLES OF INFORMATION A-l
Appendix B DOD POLICY FOR COVERAGE OF COMBAT OPERATIONS B-l
Appendix C SAMPLE PA ESTIMATE C-l
Appendix D SAMPLE PA ANNEX D-l
Appendix E SAMPLE PA GUIDANCE El
Appendix F FORMAT FOR PA OPERATIONS BRIEFING F-l
Appendix G PA AREA STUDY FORMAT G-l
Appendix H NEWS BRIEFING AND PRESS CONFERENCES HI
Appendix I WAIVER OF LIABILITY STATEMENT 1-1
Appendixj PREDEPLOYMENT CHECKLIST J-l
Appendix K SAMPLE PUBLIC AFFAIRS SECTION SOP K-l
Appendix L MEDIA OPERATIONS CENTER ORGANIZATION L-l
_FM 3-61-1 (46-1-1)
AppendixM MEDIA QUERY M-l
AppendixN GUIDE FOR MEDIA INTERVIEWS N-l
AppendixO MEDIA RESEARCH AND ANALYSIS 0-1
Appendix P INFORMATION PROGRAM EVALUATION P-l
Appendix Q PRINCIPLES OF PA SERVICE AND STANDARDS Q-l
AppendixR PRIVACY ACT/FREEDOM OF INFORMATION ACT R-l
AppendixS SAMPLE PA GUIDANCE FOR TERRORISM COUNTERACTION S-l
AppendixT AFRTS BROADCAST OPERATIONS PLANNING CONSIDERATIONS T-l
Appendix U COMMUNITY SURVEY U-l
AppendixV AUDIENCE SURVEY V-l
Appendix W PA LESSONS LEARNED W-l
Appendix X MEDIA GROUND RULES X-l
GLOSSARY Glossary-1
BIBLIOGRAPHY Bibliography-1
INDEX Index-l
in
Chapter 1
Public Affairs Fundamentals
Public Affairs fulfills the Army's obligation to keep the American
people and the Army informed and helps establish the conditions that
lead to confidence in America's Army and its readiness to conduct
operations in peacetime, conflict and war.
FM 3-61 (46-1), Public Affairs Operations
THE PA MISSION
1-1. The American public, internal Army audiences, allies, adversaries and
other critical audiences have access to an ever expanding array of public and
military media. Newspapers, magazines, radio, television and electronic
media are independent conduits of information. They provide news, analysis,
interpretation and commentary and serve as a forum for ideas, opinions and
public debate. What appears in the media, both civilian and military, shapes
perceptions, attitudes and opinions, and can have a direct impact on mission
success.
1-2. The vast majority of both civilian and military media representatives
are committed to providing responsible, accurate, balanced coverage.
Although there are exceptions, most media representatives, even when
editorializing, are focused on achieving a credible presentation. To
accomplish this, media representatives investigate issues, ask tough,
challenging questions, and pursue verifiable answers. They seek information,
interpretation and perspective. Army leaders at all levels need to educate
media representatives and facilitate their efforts to provide an accurate,
balanced and credible presentation of timely information.
1-3. Army leaders do this by integrating public affairs into the planning
process and synchronizing PA operations with other facets of the operation.
Integrating and synchronizing public affairs issues allows commanders to
communicate their perspective and achieve a balanced, accurate, credible
information presentation.
1-4. The PA mission identifies the essential contribution that PA makes to
America's Army. The mission and the strategic goals derived from it provide
the foundation on which public affairs operations are built. Strategies, which
are developed from the perspective that every aspect of every operation could
become an issue of interest in the global information environment, are the
most successful. Developing such strategies requires that PA personnel
access, analyze and anticipate potential issues by conducting a thorough
mission analysis.
1-5. The challenge for commanders, and personnel supporting them, is to
plan and execute operations, which accomplish this mission and support
1-1
FM 3-61.1
these goals. To do this, PA must be integrated into the planning and
decision-making process from receipt of the mission.
1-6. The need to integrate and synchronize PA early derives from the fact
that in most situations media representatives will be present in an area of
operations before the arrival of Army forces. They will know the area of
operations and because they are covering the story as it evolves, will have an
understanding of, and opinion about, the situation.
1-7. Media interest will normally be the most intense at the onset of
operations. Media representatives will cover the deployment of Army forces,
their arrival in the area and their initial conduct. To support the commander
and the force in their interactions with media representatives during these
early stages, public affairs personnel should be deployed in the first days, if
not hours, of the operation. Dealing with a large international press corps
constitutes the most immediate public affairs challenge facing the
commander during contingency.
PUBLIC AFFAIRS FORCE
1-8. The changing information environment in which the Army conducts war
and stability and support operations makes it necessary for PA officers, NCOs
and specialists to respond to increasingly complex,demanding challenges.
They must be prepared to support the commander with a wide range of
knowledge about and understanding of the communication process, the global
information environment (Gl E) and its potential impact on operations.
1-9. PA personnel must also thoroughly understand the fundamentals of
Army operations and the strategic context within which the Army conducts
operations. As the GIE compresses the strategic, operational and tactical
levels of operations, PA personnel need to appreciate the linkage between
public opinion, political decision-making and the national security strategy.
They must understand the Army's approach to fighting, influencing events in
operations other than war and deterring actions detrimental to national
i nterests.
1-10. PA leaders must, therefore, be among the most informed people in the
command. They must be thoroughly aware of all aspects of the operation.
They need to know what is being reported about the operation in the global
news media and how internal and external audiences are reacting to that
information.
1-11. The Public Affairs Officer. The PAO's primary mission is to assess the
PA situation, advise the commander on PA issues, assist him in making the
best possible decisions, and translate his decision into effective PA operations.
PAOs employ the decision-making process to plan, coordinate and supervise
the implementation of a PA strategy that helps the commander meet his
obligation to communicate with the American public, soldiers, home station
communities and the Department of the Army community. PAOs analyze the
situation, anticipate issues, assess implications, and develop comprehensive
operations, which meet the news and information needs of internal and
external audiences and facilitate media operations.
1-2
Chapter 1
1-12. The Public Affairs N on-Commissioned Officer. The strength of the
Public Affairs functional area is its non-commissioned officer corps. PA NCOs
are experts on the global information environment, media operations,
information strategies, and PA training. They are integral to all facets of the
PA planning and decision-making process and provide the essential
functional area expertise and continuity required for successful PA
operations.
1-13. PA NCOs work closely with the PAO, and in many situations, a PA
NCO is the commander's senior PA advisor. Therefore, PA NCOs are fully
prepared to assess the PA situation, develop, synchronize and coordinate a
PA strategy, implement and monitor PA operations, and measure and
eval uate the success of the PA effort.
1-14. The Public Affairs Specialist. In addition to learning traditional soldier
skills, PA specialists are trained to support the entire spectrum of PA
operations conducted in the global information environment. They are
trained on news media operations, news media facilitation, information
strategies and information provision. They register media representatives,
gather information, develop information products, support news media
briefings, respond to news media inquiries and requests for assistance, and
track and monitor news media activities throughout the area of operations.
They work with news media representatives to gather accurate information
and provide timely, balanced coverage of the operation.
1-15. The Department of the Army Public Affairs Civilian. Civilian PA
practitioners assigned to Tables of Distribution and Allowances (TDAs) have
the same skills as military PA personnel. They provide critical support
during war and non-combat operations by providing a vital link between
deployed forces and the home station community, and in many situations,
may be called upon to deploy with the units they support, or as individual
augmentees.
PUBLIC AFFAIRS ELEMENTS
1-16. Battlefield commanders have two sources for tactical PA support. The
first is the PA section organic to a warfighting headquarters. The second is
the PA unit, which is attached to a headquarters to augment the command's
PA capability.
1-17. Conducting PA planning, facilitating news media operations on the
battlefield, providing news and information, and executing PA training and
support operations is manpower intensive. The austerely staffed PA sections
organic to warfighting headquarters will nearly always be overwhelmed
trying to meet PA requirements in war and other operations. PA staff
sections, therefore, rely on early augmentation by PA units, or individual
augmentation if appropriate, to accomplish the battlefield PA mission.
1-18. Organic Public Affairs Sections. Organic PA sections are found in
warfighting headquarters at various levels including brigades, divisions and
corps throughout the Army. Army PA personnel are also assigned to the
organic PA sections of joint and combined headquarters.
1-3
FM 3-61.1
1-19. In headquarters without organic PA sections, the commander is
responsible for PA and must plan and execute PA operations or assign
responsibility for PA operations as a special or additional duty to an officer or
senior NCO in the command.
1-20. Regardless of the echelon, the PA staff section's primary responsibility
is to assist the commander in accomplishing his mission. The staff:
• provides PA information expertise and advice
• conducts PA assessments
• provides analysis of the information environment
• conducts PA planning
• develops information strategies and guidance
• implements PA operations
• measures the effectiveness of the PA effort
• conducts PA training
1-21. The PA staff element controls augmenting PA units. It determines
requirements, defines priorities and assigns missions to the augmenting unit.
In conjunction with the augmenting unit commander, the staff element task
organizes the unit, allocating personnel and equipment to accomplish
objectives. If the PA staff element is a Public Affairs Operations Center or a
Task Force Headquarters, it will coordinate Armed Forces Radio and
Television Service (AFRTS) support activities for the command.
1-22. Public Affairs Units. PA units are fully deployable TOE
organizations designed to augment the PA staff sections of warfighting units,
although they can operate independently in certain limited situations. When
a PA unit is deployed to augment a PA staff section, the personnel in the unit
cannot be reassigned as replacements or employed as individual fillers for
other public affairs elements.
1-23. PA units depend upon the unit they augment for personnel
administration, finance, legal and health services, communications, food
service, unit maintenance, and supplemental transportation support. PA
units operating at corps and below must have the capability to transport all of
their TOE equipment in a single lift using authorized organic vehicles.
1-24. There are currently four types of PA units:
• Public Affairs Detachment (PAD)
• Mobile Public Affairs Detachment (M PAD)
• Public Affairs Operations Center (PAOC)
• Broadcast Operations Detachment (BOD)
1-25. Public Affairs Detachment (SRC 45500AA00), The smallest of the
PA units, the Public Affairs Detachment (PAD) (Figure 1-1) is commanded by
a captain and includes seven PA soldiers..
1-4
Chapter 1
Public Affai
rs Detachment
CDR
CPT
46A
PANCO
SSG
46Q
JOURN
SGT
46Q
JOURN(x2)
BR JOURN
SPC
SPC
46Q
46R
JOURN
PFC
46Q
BR JOURN
PFC
46R
Figure 1-1. PAD
1-26. The PAD normally augments a division, separate brigade and armored
cavalry regiments and deploys in support of combined, unified or joint
operations.
1-27. The PAD commander assumes responsibilities as the PAO or deputy
PAO, and the PAD PA personnel are integrated into the supported
command's PA section based on operational requirements.
Historical Perspective
The 10th Mountain Division, Fort Drum, N.Y., arrived in Somalia with hundreds of
reporters already there, and absolutely no public affairs personnel accompanying
them. The first public affairs support arrived at the 2nd Brigade, 10th Mountain
Division, 10 days later and only because the JIB dispatched one of its own PADs.
(PA After Action Report, Operation Restore Hope, 10th Mountain Division, Dec 1992)
1-28. Because of the size of the unit, the PAD provides limited:
• Personnel and equipment for digital imagery and audio acquisition.
• Personnel for media escort within the supported unit's area of
operations
• Coordination of an information product distribution system that can
relay news and information products to members of the supported unit,
higher echelons and home station.
• Planning, developing and implementing strategy to support civilian
news media and facilitate news gathering efforts throughout the
supported unit's area of operations
• Personnel and equipment to coordinate, assist or conduct press
conferences and briefings
1-5
FM 3-61.1
• Personnel to train, advise and assist leaders and soldiers interacting
with or supporting civilian news media within the supported unit's
area of operations.
1-29. Mobile Public Affairs Detachment (SRC 45413A000). The
workhorse of PA units, the Mobile Public Affairs Detachment (MPAD) is a
modular, task organizable unit, which provides the full range of PA services.
(Figure 1-2). The MPAD is commanded by a major and includes 20 soldiers.
Mobile Public Affairs Det
Command Cell
CDR MAJ 46A
PA 5 PVR MSG 46Z
CLERK SPC 71 L
MEDIA TEAM * BROADCAST TEAM "
TM OIC CPT 46A TM OIC CPT 46A
NCOIC 5FC 4GQ NCOIC SFC 46R
JOURN SGT 46Q BR JOURN 5SG 46R
BRJOURN SGT 46R BR JOURN SPC 46R
JOURN PFC 4GQ BRJOURN SPC 46R
BRJOURN PFC 46R BRJOURN PFC 46R
PRINT TEAM *
TM OIC CPT 46A
NCOIC SSG 43Q
JOURN(x2) SPC 46Q
JOURN PFC 46Q
'This is one posssible configuration. Paragraph 2 members can
be configured as one, two or teams of various strengths, based
on miss bn.
Figure 1-2. MPAD
1-30. The MPAD normally augments a Corps PA section or a Public Affairs
Operations Center (PAOC). I n support of a PAOC, it provides manpower and
equipment to establish and operate a media center at Theater Army,
TAACOM and Corps.
1-31. It may also be deployed to directly support a joint service task force or
non-DoD governmental agency conducting disaster relief, humanitarian
assistance, counter drug, peacekeeping, or other contingency operations.
1-6
Chapter 1
1-32. MPADs in direct support of a gaining command PAO provide
acquisition capability for print, audio and video.
1-33. Additional MPADs in direct support can expand the media escort
capability of the supported PAO, augment divisions and other elements in
theater and provide the PAO with staff augmentation. MPADs may be
deployed forward to establish media centers or a sub-JIB in a joint
environment.
1-34. MPADs have the capability to:
• Monitor and assess the perceptions of external audiences through
access to civilian commercial news sources.
• Conduct assessments of the information environment, to include
development of a PA estimate of the situation, as the initial part of
operational planning.
• Assist the PAO in operational planning and policy and ground rules for
media, coordination for logistical support to PA, and coordination of PA
operations with higher and subordinate headquarters.
• Plan and develop information products, which will be produced through
contracted services and/or the use of organic equipment and facilities.
• Acquire, produce and transmit information products throughout the
theater, between the theater and home station, and between the
theater and HQDA.
• Create and disseminate print, photographic, audio and video products
for external release directly to civilian media who do not have
representatives within the theater of operations. Conduct media
facilitation and develop information strategies.
• Prepare commanders, staff personnel and other command members for
interviews, press conferences, and similar media interaction.
1-35. Public Affairs Operations Center (SRC 45423A000), The Public
Affairs Operations Center (PAOC) consists of command, media facilitation
and post-production sections (Figure 1-3). It is commanded by a lieutenant
colonel and includes 32 soldiers.
1-36. The PAOC normally augments the PA staff section at echelons above
division to establish and operate a media center in support of civilian and
military media representatives working in the theater.
1-37. The PAOC commander serves as the media center commander but
works under the control of the PAO of the supported unit or task force.
1-38. I n joint or combined operations, a PAOC serves as the Army element of
the joint media operations center.
1-39. When the PAOC functions as the Army element of a joint or combined
media center, the PAOC commander works for the joint or combined media
center commander.
1-7
FM 3-61.1
1-40. For major operations in which there is a significant media interest, the
PAOC is augmented by up to three MPADs. The MPADs are either
integrated into the main media center operation or tasked to operate
subordinate media centers at outlying locations. A PAOC can support up to
100 news media representatives. When augmented by three MPADs, the
PAOC can support up to 300 news media representatives.
Public Affairs Operations Center
Command Cell
CDR
LTC
46A
xo
MAJ
46A
PAO
MAJ
46A
CH PA NCO
SGM
4BZ
PANCO
SFC
46Q
SPLY SGT
SGT
92Y
MECHANIC
SPC
63B
ADM SPC
SPC
71 L
PERSONNEL
SPC
75B
ADM CLERK
PFC
71 L
ESCORT TEAM
CHIEF CPT 46A
PRESS OFF (X2) CPT 46 A
JOURN (X2) SGT 46Q
JOURN (X4) SPC 46Q
JOURN (X4) PFC 46Q
A/V PRODUCTION
BR NCO SSG 46R
PROD SPC SPC 25V
BR JOURN SPC 46Q
Figure 1-3. PAOC
BRIEFING SECTION
CHIEF MAJ 46 A
BRIEF OFF (X2) CPT 46A
BR JOURN SGT 46R
BR JOURN SPC 46R
BR JOURN (X2) PFC 46R
1-41. PAOCs are modular, task organizable units having the capability to:
• I mplement the theater or corps strategy to support civilian news media
and facilitate news gathering efforts in theater.
• Coordinate and provide services to registered civilian news media
sponsored by the command.
1-8
Chapter 1
• Provide the personnel and equipment to coordinate and conduct media
support within the theater of operations.
• Provide personnel and equipment to plan and conduct daily news
media briefings.
• Provide personnel to train, advise and assist leaders and soldiers
interacting with or supporting civilian news media representatives.
1-42. Broadcast Operations Detachment (SRC 45607A00). The BOD
consists of a command element, two broadcast teams and a maintenance
team. (Figure 1-4). It is commanded by a major and includes 26 soldiers.
1-43. The BOD augments a fixed or field expedient AFRTS facility under the
control of a senior AFRTS facility commander, or it can establish and operate
a separate radio and/or television broadcast facility to support theater level
operations.
Broadcast Operations
Detachment
Command Cell
CDR
MAJ
46A
OPS OFF
CPT
46A
BR OFF
CPT
46B
DET SQT
SFC
46B
SPLY SGT
SGT
92Y
ADMIN 5PT
SPC
75B
TEAM A
TEAMB
BR NCO 55G 46R
BR NCO SSG 46R
BRJOURN(x2)) SGT 46R
BR JOURN (X2)) SGT 46R
BR JOURN (X2) 5PC 46R
R JOURN (X2) SPC 46R
BR JOURN (X2) PFC 46R
BR JOURN (X2) PFC 46R
MAINTENANCE
BR NCO
SSG
46R
PROD SPC
SPC
25V
BR JOURN
SPC
46Q
Figure 1-4. BOD
1-44. The BODs must be authorized and equipped by AFRTS to perform this
mission. When deployed to perform this mission, the BODs are assigned to
thePAOC supporting the command.
1-45. BODs have the capability to:
• Provide on-air broadcasters recorded materials and satellite down links
to operate a 24-hour a day radio outlet.
1-9
FM 3-61.1
• Provide on-air broadcasters, recorded materials and satellite down
links to operate a television station.
• Originate audio and video news, feature and entertainment
programmi ng from withi n theater.
• Provide post production services for audio and video news and feature
material supplied in unedited format.
• Provide limited audio and video materials to other public affairs
operations for dissemination outside the theater.
• Acquire audio and video electronic newsgathering coverage of
operations in the theater for use in internal and external information
programs.
• Perform field maintenance and repair above operator level to broadcast
equi pment organic to the unit.
• Provide the commander with an alternate means of communications
when tactical communications are not adequate or not available.
1-46. Public Affairs organizations are built around a force of soldiers who are
selected and trained to articulate the goals and missions of the Army.
1-47. More than 65 percent of the total public affairs force and 85 percent of
the deployable TOE unit structure is positioned in the U.S. Army Reserve
and Army National Guard. These reserve units and personnel must be
seamlessly integrated with the active component and focused on supporting
the overall Army goals and objectives.
1-10
Chapter 2
Public Affairs Functions and Responsibilities
THE CHALLENGE
2-1. The global information environment and continually evolving
information communication technologies make it imperative that information
and messages be consistent at all levels. The personal comments made by a
deployed soldier in a remote area of operations and the official statements
released by DoD at the Pentagon must be mutually supporting. The
information targeted to internal audiences must parallel the information
released through the news media to the American public and other external
audiences. The Army's need for security, and the soldier's and family
member's right to privacy must be balanced with the Army's obligation to
provide timely, accurate, complete information to internal and external
audiences. The commander's information strategy must ensure that the
information available in the public domain, regardless of the source, does not
conflict, contradict or otherwise undermine the credibility of the command or
the operation.
Historical Perspective
Civilian news coverage contributed greatly to maintaining soldier morale during Desert
Storm. The coverage was generally positive; the American people were behind the
operation and soldiers felt this impact. Problems arose when the coverage created
rumors, and command information was not consistent with what the soldiers were seeing
or hearing in the world media. Family members and non-deployed soldiers were greatly
affected by news coverage, often creating problems for rear commanders and detracting
from their credibility.
(After Action Report, Desert Storm 1990, Center for Army Lessons Learned)
2-2. Accomplishing this presents unique command and control challenges for
commanders, PA practitioners at all levels and others involved in using
information to help accomplish the mission in the most effective, efficient
manner. It requires careful coordination between staff elements and
necessitates continual liaison between levels of command from the tactical
through the operational to the strategic.
2-3. Further complicating PA command and control challenges are PA force
structure realities. The small size of the PA staff sections organic to war-
fighting headquarters necessitates augmentation, especially for operations
with a high level of visibility. The availability of augmenting PA units, the
majority of which are located in the reserve components, and the difficulties
inherent in deploying PA civilians result in heavy dependence on
2-1
FM 3-61.1
augmentation by individuals. This leads to the creation of ad hoc,
unequipped PA elements, which have not trained together or developed
relationships with other staff sections or commands, and do not have
established internal or external operating procedures.
2-4. For PA personnel therefore, the critical challenge is to rapidly define
command and control channels, establish lines of communication and develop
operating procedures. The responsibility for doing this usually lies with the
Corps PAO who normally leads the commander's PA effort. He identifies
requirements, assesses resources and plans, organizes, directs, coordinates
and controls the PA operation.
PUBLIC AFFAIRS RESPONSIBILITIES
2-5. Effective PA command and control establishes a public affairs
organization based on analysis of mission, enemy, terrain, troops, time
available and civilians (METT-TC), tailored to the situation, which reflects
the commander's concept of the operation. It ensures that there are
sufficient, experienced, PA personnel at each echelon to provide the
commander and his force with the most effective and efficient support
possible.
2-6. PA command and control begins at the DoD level. The Office of the
Assistant to the Secretary of Defense, Public Affairs (OASD(PA)), retains
primary responsibility for the development and consistent implementation of
DoD information policies and determines who should serve as the initial
source of information about operations. Although (OASD(PA)) delegates PA
release authority to the combatant commander as soon as practical, it retains
responsibility for approving Public Affairs Guidance (PAG), establishes public
affairs policy, and coordinates and approves PA strategies and plans.
2-7. The Office of the Chief of Public Affairs (OCPA) for the Army is
responsible for Army PA resources. OCPA develops PA doctrine, designs PA
organizations, determines training and leader development requirements,
identifies materiel needs, and manages PA personnel to ensure that sufficient
assets are available, qualified and ready to conduct successful PA operations
in support of any assigned mission.
2-8. Commanders supported by their PA staff personnel, plan PA operations
for their assigned missions based on the situation, published in DoD
directives, instructions, doctrine and guidance, and in coordination with
OASD(PA). The CINCs prescribe the chain of command, organize and
employ forces, give authoritative direction, assign tasks and designate
objectives through component commanders, subordinate unified commanders,
commanders of joint task forces and other subordinate commanders. The
commander establishes responsive PA structures and ensures that they are
provided with the personnel, facilities, equipment, transportation and
communications assets necessary to provide adequate PA support. A failure
to establish these structures results in a duplication of effort and a waste of
resources. The commander is responsible for the full range of PA activities --
PA planning, media facilitation, information strategies and PA training and
at sustaining base, community relations. He is also responsible for
establishing, resourcing and guiding the operations of J oint Media Operation
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Chapter 2
Centers and planning all AFRTS radio and television support operations in
the area of operations.
Historical Perspective
The establishment of the Joint Information Center under the auspices of the DOT
Presidential Task Force on September 1, 1992 was vital to a coordinated and successful
Joint Public Affairs effort. The JIC was an "umbrella" organization that served as the
clearing house for dissemination of hurricane relief information to the news media. More
than 10 federal agencies involved in relief operations had public affairs representatives at
the JIC. Daily meetings and consistent interaction among the agencies involved resulted
in a coordinated federal information effort.
(Public Affairs Lessons Learned Library, Joint Information Center, Hurricane Andrew, 1992)
2-9. Within the Army, the Corps is usually the hub for PA operations. The
Corps commander, supported by his PA staff element, is responsible for the
development and coordination of PA strategies, the implementation of
information campaigns and the execution of PA operations based on METT-
TC, the information environment, and guidance and policy received from the
combatant CINC.
2-10. The Corps PAO is the principal PA advisor to the Corps commander
and deploys with the lead element of the Corps headquarters. When fully
deployed, the Corps PAO section operates from the Corps main command
post, with a liaison officer/NCO located at the Corps plans cell. It also is
responsible for establishing coordination with the PA elements of higher,
lower and adjacent commands.
2-11. The Corps, through the PAO, controls the employment of augmenting
Army PA units deployed in support of the operation. UptoonePAOC and six
MPADs are normally allocated to augment the Corps PA section, although
the size and scope of the mission will determine the actual augmentation
required for each operation. The Corps PAO and his staff task organize the
personnel and organizations available and allocate the equipment,
communications support and facilities. When augmented, the Corps PAO
operates a media operations center and establishes satellite centers as
required.
2-12. Below the Corps level, the PA staff section organic to a war fighting
headquarters is extremely austere. The mission of the PA section below
Corps is to advise the commander by providing immediate planning expertise
and guidance on issues with critical PA implications. The PA section deploys
with the lead elements of the headquarters, and operates from the command's
main CP.
2-13. PA units deployed to augment the staff sections organic to a
headquarters are normally placed under the control of the supported PAO,
who assigns the augmenting PA unit missions and tasks. He will do so in
conjunction with the augmenting PA unit commander, who will retain
command of his unit and ensure that his unit's personnel are not employed as
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FM 3-61.1
individual fillers. Whenever possible, augmenting PA units should be linked
with the supported command headquarters at that command's home station
prior to deployment to facilitate establishment of command and control
relationships.
PUBLIC AFFAIRS COMMUNICATIONS
2-14. Reliable, survivable, flexible communications are essential for effective
PA command and control. In today's global information environment,
information must flow to and from users, up and down the chain of command,
and horizontally across the battlefield. Technology has compressed time and
space and forward-deployed PA sections can be in direct communication with
officials at DoD working PA strategies. The challenge is to ensure
coordination and interoperability so that all elements have the
communications capability necessary to effectively carry out their assigned
mission, especially in today's joint, combined or interagency environment.
2-15. Deliberate, detailed planning can prevent communications shortfalls.
PA planners assess their information transmission and reception needs and
requirements. They then identify the communications capabilities they need
access to, and determine the communications support they will need from
command signal organizations. Through close coordination with the staff
signal section, the identified PA communications requirements are integrated
into the overall communication architecture.
INFORMATION OPERATIONS
2-16. The three central defining characteristics of the global information
environment -- the facility of information acquisition and transmission, the
speed of information communication and the breadth of information
saturation -- combine to increase information availability. The American
public, internal audiences, allies and adversaries have ready access to
information. Information security is transitory and it is critical that
information operations at every echelon are mutually supporting and directed
at a clearly defined, decisive and attainable objective.
2-17. Credibility is essential for successful information operations. If an
information source is not perceived as believable, then the desired effect of
that communication cannot be achieved. Regardless of the source, target or
objective of an information effort, in the GIE, credibility is founded in truth
and enhanced by validation, corroboration, and consistency.
2-18. Commanders require integrated, coordinated, synchronized information
operations. PA operations, which occur at, and impact on, the strategic,
operational and tactical levels -- often simultaneously -- area critical element
of these operations. News media coverage of conflicting messages and
information communicated by different elements of the command
compromises credibility.
2-19. Integrating, coordinating and synchronizing every element of the
commander's information operation -- Public Affairs, Psychological
Operations, Civil Affairs, Combat Camera, Operations Security and others --
results in a synergistic information strategy. It minimizes the possibility of
conflicting messages, which undermine credibility, jeopardize operations and
endanger mission accomplishment.
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Chapter 2
LOGISTICS SUPPORT
2-20. Logistics is critical at all levels of command for Public Affairs mission
success, during any phase of combat or garrison operations. Commanders
must ensure their Joint Table of Allowances (J TA), Modified Table of
Equipment (MTOE), Table of Distribution and Allowances (TDA) or Common
Table of Allowances (CTA) reflects appropriate equipment levels to maintain
a PA staff and media support under field and garrison conditions.
Maintenance also plays an important role in Public Affairs operations. A
Public Affairs element that has all its equipment cannot function properly if
its equipment is inoperative, broken or deadlined. Each Public Affairs
element must develop its own internal SOP in regard to logistics. (See
Appendix K.)
2-21. Public Affairs staff members must be trained in the areas of supply,
budget, property book, ordering, class A procurement, etc. Public Affairs must
be an integral player in all mission and operational planning sessions to
ensure logistical requirements are identified and resourced.
2-22. Responsibilities: The Public Affairs staff has the responsibility to
identify to its resource manager, property book manager and ordering officer
all fiscal and logistical requirements for field operations and home station
support. Requisitions for equipment, supplies, services and allowances will be
ordered and processed in accordance with appropriate Army Regulations, AR
710-2 U nit Supply U pdate and budgetary guidelines.
2-23. Requesting supplies: Commanders must ensure that equipment and
components authorized by J TAs, CTAs, MTOEs, or TDAs are on hand or
requested. The organization's supply operation is responsible for identifying,
acquiring, accounting, controlling, storing and properly disposing of materiel
authorized to conduct the mission of the unit and maintain the soldier. The
organization is the foundation of the supply system. Exceptions and
procedures are outlined in AR 710-2.
2-24. The Direct Support and General Support Activities provide class 1, 2, 3
(packaged and bulk), 4, 5, 7, 8 and 9 supplies directly to the using units on a
customer support basis. These supplies are routinely procured through the
unit supply rooms. In the event a Public Affairs element is operationally
attached outside its assigned organization, it should coordinate before
deployment for logistical support when possible. If prior coordination is not
possible, contact for support should be made upon arrival into the theater of
operations through the C-4, J -4, G-4, or S-4.
2-25. Accountability: All property acquired by the Army, regardless of source
or whether paid for or not, must be accounted for, in accordance with
applicable Army regulations and AR 710-2.
• Nonexpendable property is personal property that is consumed in use
and that retains its original identity during the period of use. It
requires formal property book accountability throughout the life of the
item. It will be accounted for at the using unit level using property
book procedures. Examples are desks, computers, file cabinets, chairs.
• Expendable items are property which is consumed in use or that loses
its identity in use, and all items not consumed in use with a unit price
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FM 3-61.1
of less than $100 and not otherwise classified as nonexpendable or
durable. It requires no formal accounting after issue to the user. The
following classes or types of property will be classified as expendable.
■ Supplies consumed in the maintenance and upkeep of the public
service. Examples are oil, paint, fuel and cleaning and preserving
materials.
■ Supplies that lose their identity when used to repair or complete
other items. Examples are assemblies, repair parts, and
accessories.
■ Office supplies and equipment (such as paper, staplers and hole
punchers) with a unit price of less than $100.
■ Durable property is personal property that is not consumed in use,
does not require property book accountability, but because of its
unique characteristics requires hand receipt control when issued to
the user. Examples are hammers, lawnmowers, audiovisual
production material and books.
2-26. Conservation of resources and property accountability is ultimately a
supervisory responsibility. Property responsibility must be assigned and
acknowledged in writing using hand receipts and property books as outlined
in AR 735-5, Policies and Procedures for Property Accountability and
AR 710-2.
2-27. Property book: Effective supply support at the using element or
property book level requires timely and accurate processing of supply
requests and receipts, accurate accounting records and adequate property
control. Turn in, transfer, substitutions, hand receipt, etc., are accomplished
in accordance with Army Regulations, AR 710-2 and logistical SOPs.
2-28. Budget: Budgets must be programmed in advanced. Organizations plan
their budget in the previous fiscal year They must be established and
managed with the appropriate command resource manager/budget analyst.
When allocating funds consideration must be given to equipment replacement
and upgrades, recurring supply needs TDYs, maintenance, contracts, etc.
Normal operating funds are allocated/dispersed by a public affairs element
operational headquarters; however, during deployments for
exercises/operations funds may be available from the tasking headquarters
up front or on a recuperative basis.
2-29. Maintenance: Public Affairs elements must maintain their equipment
in a deployment ready state. Preventive Maintenance Checks and Services
(PMCS) is an important part of the maintenance program, and is the user's
responsibility. The Public Affairs element's operational headquarters
provides maintenance support. For example, an embedded Public Affairs
section assigned to the Headquarters Company of a separate brigade would
seek maintenance support from the Headquarters Company, then the brigade
maintenance section. The company/brigade's maintenance SOP would be
followed for 1st, 2nd, 3rd, etc., echelons of maintenance. Maintenance for
communications and data processing (computers) equipment is coordinated
through the G6(DOIM).
2-30. Local Purchase: Local purchases may be an option for procurement
provided the action is in the best interest of the government in terms of
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Chapter 2
timeliness, quality and cost. Local purchase requests must be made in
accordance with AR 710-2. Approval for local purchase of nondevelopmental
items starts at the first level of command authority and is accomplished in
accordance with local policies and Army regulations. Nondevelopmental items
is a generic term that covers materiel avail able from a variety of sources with
little or no development effort from the Army. Sources include commercial
items which fully meet an approved need, items being used by other U.S.
services or agencies or items used by military or other agencies of foreign
government. Most of these purchases are covered under the IMPAC Card
program. Local guidance covers implementation.
2-31. Class A Procurement/Credit Card: Class A agents and government
credit card holders must be identified and trained prior to their ability to
accomplish those functions. Training is routinely accomplished at the
installation level. Purchases for other than national-stock-numbered items
are routinely accomplished using Class A agents and ordering officers, and
the U .S. Government Credit Card.
2-32. SSSC: Self Service Supply Centers are managed at the installation or
theater level. Users are required to have a valid SSSC account. Accounts are
identified by DODAAC or UIC. Subaccounts are authorized I AW AR 710-2.
Field resupply centers are often established at divisional -level logistics bases.
2-33. The best means of ensuring supply discipline is to be proactive and not
reactive in supply operations. Enforcing compliance with regulations requires
constant emphasis.
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FM 3-61.1
2-8
Chapter 3
Public Affairs Planning
During Operation J ust Cause, PA planning and integration were
inadequate Commanders at all Is/els failed to involve public affairs
officers in planning from fear of OPSEC leaks. The results were
insufficient PA guidance provided to soldiers, family members and
commanders; sometimes mi scommuni cation to and confusion within
Army family elements; and misuse of PA ass&s. A matter of urgent
concern was the failure to plan for and use Reserve Component PA ass&s
to relieve the pressure on an already small active PA force so that it could
better handle both internal and external communication.
- Public Affairs After Action Report, TRADOC LLC, Phase II, Sept. 90
COMMUNICATING INFORMATION
3-1. Public Affairs operations assist the commander in communicating
information and messages about his force and the operation to internal and
external audiences. Like other operations, PA operations are conducted to bring
about clearly specified, meaningful objectives, which support the commander's
intent and contribute to mission success. Those objectives are defined in terms of
the effect the PA operations are intended to have on target audiences -- the
impact on target audience behavior that is desired -- and are measurable.
3-2. Once PA objectives are defined, PA operations are planned and executed to
achieve those objectives. PA operations focus on the communication process -- an
on going, dynamic, ever-changing process. The communication process is
composed of elements involved in receiving, collecting, analyzing and interpreting
data, identifying and analyzing audiences and formulating and transferring
messages. This process is used to bring about a specified objective, while
measuring and analyzing the outcome and effectiveness of the effort.
3-3. To support the commander's effort to communicate, PA professionals
concentrate on five basic functions or core processes — planning, media
facilitation, information provision, force training and community relations.
3-4. This chapter focuses on the systematic process for Public Affairs planning
and decision-making. It addresses the information environment and the impact
of information at the strategic, operational and tactical levels across the range of
operations that requires public affairs considerations be totally integrated into
the planning and decision-making process. Doing so enables PA personnel to
prepare for potential situations, to synchronize efforts with other agencies that
manage information communication, and to more successfully influence the
coverage, interpretation and understanding of events. It limits the need for
reactive, defensive attempts to buy time or control damage.
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FM 3-61.1
3-5. PA planning prepared in support of the CINC's theater campaign plan
requires a series of decisions related to policy at the national level and the
techniques at the tactical level. From policy to techniques, however, basic
planning considerations are the same: What should the PA objective accomplish?
With what audience? When? How? PA planning must not only be done at all
echelons and within national policy but also within the limits of operational plans
and capabilities.
TYPES OF PLANS
3-6. The amount of time available significantly influences the planning process.
Two different methods of planning are described in the J CS-published J oint
Operations Planning and Execution System (J OPES).
3-7. Deliberate or Peacetime Planning is the process used when time permits
the total participation of commanders and staffs. Development of the plan,
coordination among supporting commanders and agencies, reviews by staffs,
planning conferences and development of proposed public affairs guidance can
take many months. Deliberate or Peacetime Plans are prepared in prescribed
formats-the complete operational plan (OP LAN) or the conceptual operational
plan(CONPLAN).
3-8. Time-Sensitive or Crisis Action Planning (CAP) is conducted in
response to crisis where U.S. interests are threatened and a military response is
being considered. Crisis Action Planning is carried out in response to specific
situations as they occur and that often develop very rapidly.
3-9. It is within the CAP process that established, working relationships between
the PAO and operational planning staffs are crucial to the inclusion of PA
considerations into OPLANS and OPORDS.
3-10. Both deliberate and crisis action planning are conducted within J OPES.
J oint Pub 5-03.2, J OPES Volume 1 1, describes detailed administrative and format
requirements for documenting the annexes, appendixes, etc. of operational plans,
and conceptual plans, the products of deliberate planning.
3-11. The purpose of J OPES is to bring both deliberate and crisis action planning
into a single architecture to reduce the time required to complete deliberate or
crisis action planning. This makes the refined results more readily accessible to
planners, and makes it a more manageable plan during execution.
3-12. The overall procedures are the same, at all echelons, for both deli berate and
crisis action planning.
• Receive and analyze the task to be accomplished
• Review the situation and begin to col led necessary intelligence
• Develop and compare alternative courses of action
• Select the best alternative
• Develop and get approval for its concept
• Prepare a plan
• Document the plan
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Chapter 3
Operation Just Cause
The basic problem—planning. No discussion concerning use of personnel can proceed
without an understanding of the planning problem. Public Affairs in general was not sufficiently
planned for by leaders or public affairs officers for Operation Just Cause. PAOs were not
given time to plan. Only outstanding unit mission accomplishment, American public support
and the hard work of public affairs personnel, prevented major PA failings in Panama. A
longer duration and less popular action could have turned into a public affairs disaster.
The SOUTHCOM, XVIII Airborne Corps, and Army Special Operations Command PAOs were
not informed that the operation would occur until 17 December and then they were given
instructions not to discuss it with key persons on their staff. The 82d PAO did not learn of the
operation until 18 December, 7th ID PAO, 19 December and OCPA one hour before H hour.
More critical however, was the absence of joint coordination. OASD-PA received a PA plan
from SOUTHCOM public affairs in November, but the plan was never coordinated due to
worries concerning possible security leaks. The XVIII Airborne Corps PAO indicated that he
also knew of the operation in general terms in November but was unable to coordinate
planning with the Director of Public Affairs SOUTHCOM. Because the plan was not staffed,
OCPA was caught unaware. Divisional public affairs officers all indicated that they were not
sufficiently drawn into planning. Some PAOs said they never saw a plan. It is obvious that
sufficient public affairs planning did not occur at any level.
There was also a ripple effect downward caused by the lack of staffing by the Joint/OASD-PA.
In addition, senior leaders at division level and above did not draw PA officers into planning to
maximize the limited planning time that was available. Commanders strongly complained
about poor balance of coverage in the media, inability to send command information at the
same pace as civilian media reporting, and lack of sufficient public affairs guidance; yet senior
leaders are reluctant to draw PAOs into the planning process to prevent these problems from
occurring. Army leaders must come to grips with this dilemma.
(Public Affairs After Action Report TRADOC Lessons Learned Collection Phase II. Sept 1990)
3-13. An OPLAN is a complete, detailed plan. It includes a description of the
concept of operations from the commander's perspective and presents additional
annexes provided by various staff sections which identify specific functional area
requirements, restrictions, limitations, or considerations. The inclusion of a
public affairs annex is essential to successful integration of PA principles and
guidance into the OPLAN .
3-14. A CON PLAN is an abbreviated operational plan, which requires
considerable expansion or alteration to convert it into an OPLAN or OPORD.
Detailed support requirements are not included. The commander determines
what annexes wi 1 1 be i nd uded to compl ete the CON P LAN .
3-15. A Public Affairs Estimate is an assessment of a specific mission from a
Public Affairs perspective. It is an examination of critical Public Affairs factors,
their influence on the planning and execution of operations, and their potential
impact on mission success. The senior PAO at each echelon is responsible for
consolidating information and preparing the PA Estimate. A sample PA Estimate
is included at Appendix C.
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FM 3-61.1
3-16. The Public Affairs Annexes to OPLANS or CONPLANs provide the details
and instructions necessary to implement Public Affairs media facilitation, news
and information provision, and force training operations. It is coordinated with
all staff agencies, especially those that significantly impact the information
environment -- Psychological Operations, Civil Affairs, Signal, and Military
Intelligence-- to ensure that Public Affairs activities are synchronized with other
activities.
DELIBERATE PLANNING
3-17. A commander continually faces situations involving uncertainties,
questionable or incomplete data, or several possible alternatives. As the primary
decision maker, the commander, with the assistance of the staff, must not only
decide what to do and how to do it, the commander must also recognize if and
when to act. How the commander arrives at a decision is a matter of personal
determination. However, superior decisions (those, which offer the best solution,
decisively, at precisely the correct time,) result from the commander's thorough,
clear, and unemotional analysis of facts and supported assumptions. This is done
through the "deliberate planning process."
3-18. To support the commander's decisions and command objectives, the PAO
must develop a thorough, clear, comprehensive public affairs strategy. This
strategy allows the PA to link public affairs considerations into planning for
contingency, future and current operations. With the PA strategy, the PAO
defines the public affairs perspective of the operation, and identifies how the
Army public affairs involvement in this operation supports strategic goals. It
provides the intent for PA operations and the Army approach to meeting the
information needs of critical internal and external audiences. It is the framework
for defining and developing the PA scheme of operations.
3-19. Based on the PA strategy, PA plans are developed for integration into
OPLANs. A PA plan is produced by the operational commander's PAO, and it
details the media facilitation, news and information provision, and force training
and support procedures which will be employed in support of the operation.
3-20. The first crucial step in fulfilling the PA strategy requires the PA Plans
officer/NCO to establish and maintain a routine, ongoing relationship with
operational planners within the organization. The PA plan is coordinated with
key staff agencies, integrated into the OPLAN as a PA Annex. Synchronization
with these other activities ensures services and support required by the PAO is
provided and multiplies the impact of the PA plan. This process is followed at
subordinate echelons as planning guidance is communicated down the
operational chain of command.
3-21. There are five phases in the deliberate planning process. Items in
parenthesis identify PA actions performed within each phase:
• Phase I - Initiation. The task assigning directive outlines the major
combat forces available for planning, gives general planning instructions,
lists assumptions for planning, and specifies the product document such as
an OPLAN, CON PLAN. (PA planners begin assessing the information
environment, its impact on operations and the PA requirements to operate
within a specific arena.)
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Chapter 3
• Phase II - Concept Development. (Using the supported CINC's mission
statement and concept of envisioned operations, the supporting PA
planners analyze the mission, formulate tentative courses of actions and
develop thePA Estimate for the operational scenarioand requirements.)
• Phase III - Plan Development. Subordinate commanders use the CINC's
concept and the al located major combat forces as the basis to deter mi ne the
necessary support, including forces and sustaining supplies for the
operation. (The PA planners provide the CI NC with recommendations for
public affairs assets required, phasing of PA forces and support into the
theater of operations, and perform a transportation analysis of their
movement to the destination to ensure that the PA segment of the entire
plan can feasibly be executed as envisioned. For the supported CINC's PA
requirements, above those organic to the tasked major combat elements,
the supporting commands [force providers] of each service, as much as
possible, identify real-world PA assets to take part in the plan and
sustainment to meet requirements. The supporting command identifies PA
requirements in OPLANs, OPORDs, and taskings, through operational
channels, to major subordinate commands.)
• Phase IV - Plan Review. The review process is more than a single phase
in deliberate planning. The Joint Staff performs or coordinates a final
review of operations plans submitted by the combatant CINCs. It is a
formal review of the entire operation plan. Approval of the plan is the
signal to subordinate and supporting commands to develop their plans in
support of the CI NC's concept. (PA planners do not wait until the plan is
approved before beginning to develop their supporting plans; they have
been involved in doing this, while coordinating with their command's
planning staff. In the meantime the CINC has been building the overall
plan.)
• Phase V - Supporting Plans. The emphasis in the Supporting Plans Phase
shifts to the subordinate and supporting commanders. (This is the phase
in which PA planners begin to concentrate on how to meet tasks identified
in the approved operation plan by preparing Public Affairs Annexes to
supporting plans. This input outlines the actions and relationships of
assigned and augmenting PA assets.)
INFORMATION ENVIRONMENT ASSESSMENT AND PA ESTIMATE
3-22. Planning fosters effective application of knowledge, logic, and judgment.
Analysis of the information environment (IE) starts the process used to develop
an estimate of the situation.
3-23. The IE analysis provides the basis for the development of all PA
operational plans and is a channel for integration of strategic, operational and
tactical planning guidance. It is a method of identifying factors within the
information environment that have potential implications for the planning and
execution of Army operations. PA planners study and evaluate the dynamics of
the area information environment to identify specific public affairs operational
considerations.
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FM 3-61.1
3-24. Analysis of the information environment focuses on research into the
following areas, which will be put into the "Situation and Considerations" portion
of the PA estimate:
• Information infrastructure
• Media presence
• Media capabilities
• Media content analysis
• Public opinion assessment
• Information needs assessment
• I mpact assessment/courses of action (COA)
3-25. An analysis of the I E using this approach builds a complete picture of the
conditions facing commanders and their PA forces, providing them the tools
necessary to anticipate trends, actions, issues, and conflicts. The PA staff officer
or NCO conducts research and assessment for the estimate then evaluates,
prioritizes, and suggests courses of action that public affairs can best support,
while considering the information environment. To acquire all the information
necessary for an accurate picture of the operational environment, the staff officer
or NCO must work closely with intelligence, civil affairs, psychological
operations, military police, visual information and other staff sections involved
with information gathering.
3-26. The PA assessment must include those aspects under the control of the
commander, as well as those the commander cannot control. This can only be
achieved with a thorough integration of PA planning at all stages and into all
aspects of the planning and decision-making process. Although a variety of
techniques may be used in the analysis of the IE, the PA assessment should
address the fol I owi ng pri mary categori es.
• Information Channels and Infrastructure. This element focuses on an
assessment of the information infrastructure. It addresses the resources,
communications facilities, organizations, and official and unofficial
information channels available within the area of responsibility (AOR). It
addresses the means to transmit and receive unofficial information. It
addresses specific requirements for American Forces Radio Television
Service (AFRTS) information services and the availability of assets to meet
theater requirements. It identifies the availability of host nation telephone
service for voice and data transmission, the accessibility of audio/video
channels, the prevalence of private communications devices such as
cellular telephones, facsimiles, computers with modems, radios and
televisions, and the nature of the information available through these
information channels. It addresses alternate means of voice and data
communications, whether military or government contracted, for use in the
absence of host nation information channels and infrastructure. Much of
the information required for this category may be obtained through civil
affairs or psychological operations elements assigned or attached to the
command and U.S.I nformation Service offices supporting consulates or the
embassy within the area of operations.
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Chapter 3
Media Presence. This is an assessment of the media presence in the area
of operations prior to the introduction of American forces and an
assessment of the expected level of media presence commanders should
anticipate once deployment begins. It includes a description of the type of
media (print or broadcast), the visibility of the media (local, national, or
international; American or foreign), and the focus of the news media
present (news or entertainment) covering the operation. The assessment of
the media presence should address the authority under which media
representatives are operating (open or closed borders, and free press or
controlled press) and the reporters' degree of access to the theater of
operations.
Media Capabilities. This element is an assessment of the media's
information collection, production, transmission and communication
capabilities in the AOR. This element analyzes the technological
capabilities of the media representatives present within the AOR. It
describes their level of sophistication (if they must transport products out
of the area of operations for transmission to parent media or do they have
self-contained interactive satellite telecommunications access). It also
addresses the media's level of logistics support and its potential impact on
Army commanders who are required to provide the media free and open
access to the AOR. It includes information about their transportation
assets, resupply channels, and equipment maintenance requirements.
Additionally, the media's general ability to provide their own security
should be assessed.
Media Content Analysis. Media content analysis is an assessment of
news coverage, the media's agendas and an analysis and prioritization of
the potential strategic and operational issues confronting the command.
Media content analysis assesses what is being said, by whom, and how it is
being presented. It is a constant process that must begin well before
planning for a specific operation begins and continues through
Mobilization, Deployment, Employment, Sustainment, and Re-deployment.
Content analysis reveals the meaning, tone, and accuracy of messages, how
the information was presented, and the cumulative affect of the
information. A media content analysis will provide an evaluation of the
quantity of coverage, both in and out of theater, and the nature of that
coverage. This will assist the commander to understand the strategic
context, the measure of success and the definition of an end-state for the
operation as viewed from outside the command and the Army itself. It will
also be an essential element of friendly information (EEFI), as explained in
FM 3-13 (100-6), in determining objectives and strategies for
communicating the Army perspective, and for working to achieve a
balanced, fair and credible flow of information.
The specific methods for conducting a media content analysis are explained
in Appendix O.
Public Opinion. A public opinion assessment surveys the national and
international attitude about the operation and the command, leaders and
soldiers conducting it. This assessment looks at the perceptions held by
major audience and coalition groups, and the relative solidity or strength of
those attitudes. It addresses the perceptions held by international
3-7
FM 3-61.1
audiences: those traditionally allied with the United States and those
traditionally considered to be adversaries of the US. The public opinion
assessment should include as a minimum, consideration of the following
groups:
American public (general)
Civilian political leadership
Coalition and allied forces and their general population
Host nation citizens
International public
I nternal command audience
Home station community
Specific special interest groups (if needed)
■ In determining the effects of the media on public opinion, there
are three general types of evidence which explain behavior
response: direct indicators; indirect indicators; and post-event
sampling. Direct indicators are evidence that provide a direct link
between the information received by the public and the
behavioral response. These indicators include but are not limited
to: personal interviews and surveys to estimate awareness and
understanding of an issue; dissident group marches, meetings,
advertising and other activities; monitoring internal and external
law, order and discipline activity; and chain of command after
action reports, staff journals and duty logs. I ndirect indicators are
evidence that identifies behavioral response generated by
separate events or activities which appear to be the result of
reception of media information. These indicators include: cause-
effect estimates from information products and sources other than
the military or civilian commercial media; interest level in news
media products; shifts in social or economic trends; shifts in
political support.
■ Post-event sampling considers the qualitative and quantitative
statistical evidence that identifies the level of and nature of
awareness and behavioral response to information. This includes
the results of surveys, interviews, group observation, probability
and non-probability samples, which will identify if and how the
public was influenced by information products or messages.
Information Needs. This is an assessment of the information needs and
requirements of the previously identified key publics. It analyzes and
prioritizes key external and internal audiences and assesses their news
and information expectations. It identifies the types of information that
should be made available to soldiers, their family members, other home
station community audiences, the American public, and the host nation
local populace. It will identify other audiences, such as allied or adversary
leaders and publics that will be interested in available "cross-border"
information.
3-8
Chapter 3
PA ESTIMATE AND PA GUIDANCE COORDINATION
3-27. The purpose of the PA Estimate is to deter mine whether the mission can be
accomplished and to determine which COA can best be supported by public
affairs. In preparing its estimate, the Public Affairs staff:
• Reviews the overall mission and situation from the public affairs and
information environment perspective.
• Examines all public affairs factors impacting on or impacted by the mission.
• Analyzes each COA from the public affairs perspective.
• Compares each COA based on the public affairs functional analysis.
• Concludes whether the mission can be supported by public affairs, and from
the public affairs perspective, which COA can best be supported.
3-28. The Public Affairs Estimate summarizes the information environment,
prioritizes the major issues confronting the command and predicts anticipated
outcomes in detail. It measures the effectiveness of previous and current
information strategies, and based on this evaluation, identifies possible courses of
action to support command PA objectives. The PA Estimate also contributes to
the development of Public Affairs Guidance (PAG) for specific operations or
missions. PAG is a primary tool that guides commanders and PA leaders in the
application of doctrine and policy during operations. PAG provides the PA force
at all echelons standard operating procedures.
3-29. But to be effective, PAG must be developed with the needs of the front-line
PA force in mind. PA planners must be able to "see" and "feel" the battlefield.
They must have an understanding of the information environment and how it
will change throughout the operational continuum. They must be aware that all
the resources available at the planning headquarters may not be available or
feasible in the theater of operations. Issues that need to be addressed include
information release authority restrictions (national, theater or local). These
restrictions often place the PA leader in a difficult situation -- one in which an
overwhelming number of news media on the scene will seek answers to legitimate
questions about unfolding events -- activities that the PA leader cannot discuss.
The result is a loss of credibility for the Army.
3-30. DOD policy requires that proposed PAG be provided to the Assistant to the
Secretary of Defense for Public Affairs (OTASD-PA) by the unified, specified and
other major commands for all operations. This requirement includes major joint
training exercises that could attract national and international attention.
Subordinate command PA leaders should conduct continuing PA assessments as
a part of mission training for theater-specific contingencies in anticipation of PAG
development requirements there.
PAG DEVELOPMENT
3-31. Upon receipt of a "warning order," the commander, through the PA staff,
will begin development of proposed PAG. In reality this warning order may be
preceded by a telephonic "heads up" call from a PA planner at a higher
headquarters that allows PA planners to begin working on proposed PAG before
the hard copy of the warning order arrives. This proposed PAG should be based
on the warning order or other planning guidance, the proposed command
3-9
FM 3-61.1
operations plan (OP LAN), and the PA Estimate. Once the proposed PAG is
developed, it is staffed through command staff. Once approved by the
commander, it is forwarded through major command and Unified/Specified
command PA channels to DoD.
3-32. Commanders of Unified/Specified commands should ensure the proposed
PAG is coordinated with appropriate elements and functional staffs within the
theater of operations. This includes governmental and non-governmental
organizations such as the State Department and its embassies, civil affairs,
country assessment teams, host governments, allied force public affairs teams,
the four U .S.mi I itary servi ces and thei r subordi nate commands.
3-33. PA leaders at all levels, specifically major command and above, should
work to approve PAG as quickly as possible in order to provide subordinate PA
leaders the opportunity to develop and implement PA strategies to support their
commands. The format for PAG is included as an appendix to this manual at
Appendix E.
PA ANNEX DEVELOPMENT
3-34. Once the PA estimate and proposed PAG are completed, and the other staff
officers have completed their estimates, the commander selects a course of action.
The commander then outlines it to the staff. The commander may select one of
the proposed COAs, a combination of two or more, or a completely new one. The
PA staff must then be prepared to enter the plan development phase (Phase III)
which requires development of a PA annex. A format for a PA Annex is included
at Appendix D.
3-35. The operation-specific approach to conducting public affairs activities is
called a PA scheme of maneuver. This PA scheme summarizes the commander's
PA intentions, and details the media facilitation, news and information provision,
and force training and support procedures, which will be employed to support a
particular operation.
3-36. The PA scheme consists of the PA estimate of the situation, higher
command PA guidance, and the selected course of action. It is coordinated with
key staff agencies, integrated into the operation plan through the development of
a PA annex, and synchronized with the other activities to be executed as part of
the basic plan.
3-37. The PA scheme, when included in the PA annex, should not only identify
public affairs force requirements for the operation, but more importantly, it must
provide the commander a visual picture of how public affairs will support the
commander's concept of operation as outlined in the plan.
3-38. The PA activities addressed in the PA scheme of maneuver are:
• Media Facilitation. Media Facilitation is activities executed to support
news media efforts to cover the operation, facilitate the timely, accurate,
balanced provision of information which communicates the Army
perspective, and minimizes the media disruption of operations or
endangerment of mission accomplishment. Media facilitation is
accomplished by the early establishment of a media center as the focal
point for media representatives seeking to cover the operation. Normal
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Chapter 3
media center operations include scheduling briefings, coordination for
interviews; responding to media queries; coordinating unit visits and media
escort requirements; and resolving media - military incidents. To prepare
for encounters with the media, commanders must accept and understand
the role of the news organizations and the journalists in the theater, and
their capabilities in getting information from the battlefield or area of
operations. Commanders must provide media access to the force, keeping
in mind the impact their technology will have on operations security.
Commanders must identify and provide support and resources to assist the
media in their mission.
Information Strategies. Activities executed to fill the news and
information needs and expectations of internal and external audiences.
Proliferation of personal computers, the World Wide Web, the I nternet, on-
line services, fax machines, E-mail, cable television, direct broadcast
satellites, copy machines, cellular and wireless communication and many
other information technologies have created an endless stream of data and
information that flow into a world filled with images, symbols, words, and
sounds. Public affairs specialists acquire information using a variety of
sources. Because of the volume of information and the vast number of
potential distribution mediums, the PA staff uses a systematic acquisition
strategy. They acquire information from participants, leaders, developed
sources, the media, research and development, intelligence, culture at
large, and subject matter experts. Print, video, audio and electronic
information products are provided to deployed soldiers, home station
audiences such as family members and the home station community and
news media representatives using contracted services and organic military
assets. They communicate the Army perspective and contribute to timely,
balanced coverage of the operation.
Force Training and Support. Activities executed to assist members of
the DA community in interacting with media representatives. Force
training and support are conducted to educate soldiers, family members
and DA civilian employees on their rights and responsibilities with
respect to news media representatives attempting to provide coverage of
an operation and related issues. It focuses on helping them to respond
when they encounter news media representatives seeking interviews,
photo opportunities, responses, reactions, interpretations or comments
on an operation, policies or events. The intent of force training and
support is to assist members of the community and media
representatives in approaching each other with mutual respect.
Training for public affairs personnel expands on soldier and unit leader
training. It stresses individual as well as collective tasks with an aim of
developing units fully prepared to accomplish the range of public affairs
missions. It integrates public affairs into the battle staff and trains PA
planners to assess the operation environment from a public affairs
perspective, produce a PA Estimate, develop the PA Annex and PA
Guidance.
3-11
FM3-61.1_
Deliberate
MISSION
Time-Sensitive
Conduct an assessment
Define PA perspective
Make contact with planners
DEVELOP PA ESTIMATE
Meet information needs
Examine all PA factors
Review overall mission
DEVELOP PA STRATEGY
E stablishes P A pol icy
Coordinate wth other staffs
Get approval and forward
DEVELOP PA GUIDANCE
PA ANNEX
Inclusion in GPLAN crucial
Situation develops rapidly
Specific situation strategy
DEVELOP PA ESTIMATE
Choose course of action
Examine all factors
ReviewP A Mission
DEVELOP PA STRATEGY
on warning order
Coordinate wth other staffs
Get approval ASAP
DEVELOP PA GU ID AIIGE
Figure 3-1. PA Planning
3-12
Chapter 3
PA INTEGRATION INTO STAFF PLANNING
3-39. Concurrent with formulation of the PA staff estimate, PAG development,
and production of the PA Annex to the OPLAN, PA planners must bean integral
part of the staff planning process, especially on the following matters.
3-40. Force Planning. I n force planning, the PA staff works with the J 3/G3/S3
staff. Force planning consists of PA force requirements determination, force list
development and refinements in light of PA force availability and PA force
shortfall identification and resolution. In force list development, the PA assets
needed to meet the mission are identified. Force availability is considered based
on the strength and readiness of organic PA units, their personnel and
equipment. Identification of PA force shortfalls addresses the lack of organic or
mission-capable PA assets and the additional requirements and augmentations
for PA units and personnel needed to accomplish the CINC's concept of
operations. All taskings for unit or personnel augmentation must be validated
and requested through the J 3/G3/S3 operational channels. Tasking authority
does not exist PA staff to PA staff or PA staff to subordinate unit.
3-41. Support Planning. To plan for logistical support of PA units and
personnel assigned to carry out the CINC's concept of operations, the PA staff
coordinates with and identifies support requirements to the J 4/G4/S4. Specific
logistical areas of concern include support in all classes of supply to the PA force,
availability and authorized levels of support to civilian media, local purchase and
contract support, property accountability, and vehicle transportation and
maintenance support as tasked for through the J 3/G3/S3.
3-42. Transportation Planning. PA forces move from their home station to a
specified destination in the theater, either as part of their parent organization or
a task-configured PA unit. This movement involves planning by several echelons
of command, possibly stops at several intermediate locations en route, and a
schedule constrained by a variety of operational requirements and priorities. Key
staff for the PA planner to interact with include the command's transportation
officer, movements control officer, and staff officers within the J 3/G3/S3 and
J 4/G4/S4 that have staff supervision in this area. Key items PA planners need to
track in this process are:
3-43. Time-Phased Force and Deployment Data (TPFDD), TheTPFDD is
thej OPES database portion of an operations plan. It contains time-phased force
data, non-unit related cargo and personnel data, and movement data for the
operation plan. The Appendix 1 to Annex A of the operation plan is the Time-
Phased Force and Deployment List (TPFDL) which identifies types and/or actual
units required to support the operation plan and indicates origin and port of
debarkation or ocean area. It may also be generated as a computer listing from
the TPFDD. PA planners must ensure that the TPFDD/TPFDL contains their
unit line numbers (ULNs) for units, personnel, or cargo. Assets not listed on the
TPFDD do not deploy. It is crucial to the planning process that the PA staff
closely coordinate with the J 3/G3/S3 and J 4/G4/S4 to ensure that PA assets are
reflected on the TPFDD or included as organic/attached assets to parent units
with validated ULNs on theTPFDD.
3-44. Destination (DEST) - the geographic location where the force is to be
depl oyed/empl oyed.
3-13
FM 3-61.1
3-45. The distances between the port of debarkation (POD) within the theater of
operations to the destination (DEST), to the port of support (POS), to the
marshaling area or assembly area. Where troops land at the APOD (Aerial Port
of Debarkation) or SPOD (Seaport of Debarkation) they may be substantial
distances from the port where the PA element's equipment arrives in theater and
operations begin.
3-46. Transport of equipment must be planned for it to be available at the
earliest possible date within the theater of operations. Thus, the PA planner
must set a realistic, achievable required delivery date (RDD). This must be
aligned with the CI NC's required date (CRD). Planners begin with the RDD to
establish two interim dates, the earliest arrival date (EAD) and the latest arrival
date (LAD). Once these dates are established, then the ready to load date (RLD)
and the available to load date (ALD) are established at home station to meet the
earliest departure date (EDD).
3-47. Communications/Automation Planning. Key planners on the
coordinating staff for communications and automation planning are the J 6/G6,
G3/S3 and CE officer. Specific concerns include priorities for radio/telephone
communications, satellite uplinks and downlinks, number of telephone
links/trunks allocated to PA requirements, E-mail access, and inclusion into the
Communications Electronics Operating Instructions (CEOI). In addition, consider
possible development of web pages or sites, MkeBosniaLink, theTask Force Eagle
Homepage, the Desert Voice in Kuwait or Task Force Falcon in Kosovo.
3-48. Information Environment. When formulating PA plans and coordinating
on the overall plan with the commander's staff, PA planners work closely with
the staff element having supervising responsibility for each separate issue.
• Operational Security- G3/S3
• Psychological Operations- G3/S3
• Civil Military Operations- G5/S3
• Combat Camera Operations - G3/S3
• Armed Forces Radio and Television Operations - G3 and Armed Forces
I nformation Service
APPLYING METT-TC
3-49. To function as part of a deployed or deployable organization the PAO and
PA NCO must think and state requirements in terms that the rest of the
organization can understand. Moreover, the PAO must fit the operational PA
requirements into the operational planning procedure of the organization about
to deploy. Operators think in terms of mission, enemy, terrain and weather,
troops, time available and civilian considerations or METT-TC. METT-TC is used
to envision how the operation will occur, to identify potential risks or hazards,
and to define troop and equipment requirements.
3-50. Mission - alert, marshall, deploy, operate (internal information, media
facilitation, information provision) redeploy
3-51. Enemy - rumors, disinformation, propaganda, OPSEC
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Chapter 3
3-52. Terrain and weather - theater of operation, theater of war, area of
responsibility, intermediate staging base, homestation and weather condition
3-53. Troops - embedded assets, units (PADs, MPADs, BODs, PAOCs) AFRTS,
HTNRs, ABS, NBS,J IBs, Star and Stripes, stringers, surrogate PAOs, Adjutants,
and Sis. All other AG services, signal, USIS, DoS and homestation forces and
audiences
3-54. Time available- timeline, transition, reports
3-55. Essentially, the information required for a METT-TC analysis is provided
by the PA estimate of the situation, which contains the selected course of action
and detailed descriptions of PA actions to be performed. These requirements are
then translated into the command's planning language and format, resulting in
the PA Annex to the OPLAN orOPORD.
3-56. At theater level and above, the PA annex is normally Annex F to the
OPLAN. At corps and below, commanders can tailor their plans to fit specific
needs or preferences, so the PA annex may fall in another location among the
annexes. Regardless of where it is located, the PA Annex is used to provide
information about the conduct and execution of public affairs operations in
support of the basic OPLAN. The PA annex outlines the situation, identifies the
specific PA mission and explains the concept of the operation. It also provides
detailed information and guidance PA personnel need to conduct successful PA
operations at the operator level. A sample PA Annex format is included in this
manual at Appendix D.
3-57. Phase IV, Plan Review, consists of staff coordination and plan adjustment
or correction.
3-58. The final phase of the planning process, Phase V, Supporting Plans, follows
the same course as the first three phases, with attention aimed at the specific
aspects of the overall plan. These supporting plans focus on conducting specific
operations, which must be successful in order to guarantee success of the larger
mission. PA support to these supporting plans is as important as PA coordination
and input to the main campaign plan.
STANDING OPERATING PROCEDURES
3-59. Integral to the operational effectiveness of PA sections are their standing
combat operating procedures. These routine procedures ensure that all members
of the section are working in concert toward the same PA objectives and that PA
activities are easi ly blended i nto the actions of the command's staff.
3-60. PA SOPs differ from PA plans and PA annexes to OP LANS in that they
specifically detail and describe how PA is conducted within a certain command or
unit. They are routine procedures and actions that apply to each section or unit.
3-61. The senior PA NCO prepares the staff section or unit PA SOP. PA units
designated to support or augment specific commands in the execution of
contingency missions should use SOPs from these supported commands.
3-62. SOPs should address:
• Preparation for combat. Stockage, prepackaging, and maintenance of
vehicles, equipment, and expendable and nonexpendable supplies.
3-15
FM 3-61.1
• Vehicle load plans.
• Alert and mobilization actions, routines and procedures.
• Composition of quartering and/or advance parties and rear echelons.
• Organization for combat, including detailed delineation of duties for each
individual, shift compositions, and plans for reconstitution in the event of
combat losses.
• Operations center and media center layouts (theater, corps and/or division
main/rear CPs).
• Procedures for preparing, disseminating and disposing of records, reports,
estimates and orders.
• Physical, document, and tactical security.
• Communications procedures. These steps include radio/telephone
operating procedures unique to the command, message routing and
preparation formats, and operation of communications and data
transmission equipment.
• Movement and displacement.
• Operations under NBC conditions.
• Field Maintenance.
• Personal hygiene, rest, and morale, welfare and recreation requirements
and procedures during deployment.
• Post-operations and reconstitution procedures. Maintenance, restocking
and packaging composition of advance and rear parties; disposition of
records, and preparation of after-action reports are included.
• A PA SOP outline is included in this manual at Appendix K.
POST-MISSION PLANNING CONSIDERATIONS
3-63. During mission planning and preparation, Public Affairs planners should
consider debriefing and other post-mission activities. These activities normally
include:
• Collective debriefing of the operational element on all aspects of mission
execution, including lessons learned.
• Collection of maps, notebooks, logbooks, plans, annexes, duty officer/NCO
logs, serious incident reports, news releases, tapes and transcripts of news
briefings and conferences, and all other information products pertinent to
the mission after action report.
• Maintenance and storage of unit and personal equipment.
• Individual debriefing of key personnel.
• Other reconstitution measures as required.
3-64. Upon completion of these activities, the operational element begins pre-
mission sustainment training or prepares for its next mission. The planning staff
begins review of lessons learned for integration into future plans. See Appendix
W for information on producing PA Lessons Learned for the Center for Army
Lessons Learned.
3-16
Chapter 4
Media Facilitation
"It is likely that small pools of news media will be assigned
directly to operational units to cover all facdts of activity. With
few exceptions, there will be no security r&/iew of media copy or
audiovisual products. The policy will be to maintain security at
the source. 1 1 is important to support the efforts of the media and
our dealings with them should not be confrontational, but
professional and courteous."
- GEN Binford Peay
Commander, U.S. Central Command [1994]
FM 3-61 (46-1), Public Affairs Operations
PRINCIPLES OF INFORMATION
4-1. I n the past 20 years the Army has undergone a fundamental shift in
our approach to dealing with the news media. In response to the
perceived treatment by the press during the Vietnam War, we have gone
from adopting an exclusionary tactic for the conduct of the invasion of
Grenada in 1983, to managing the controversial pool system for covering
the initial stages of the Gulf War in 1991, and more recently evolving into
an almost completely open access policy in Somalia (1993), Haiti (1994)
and Bosnia (1995) operations.
4-2. The results of this policy evolution are the "DoD Principles of
Information," which form the foundation for the PA function of media
facilitation. The basic approach that DoD and the Army take to media
facilitation is contained in Appendix A, The DoD Principles of
Information and Appendix B, The Guidelines for Coverage of DoD
Combat Operations.
4-3. Simply stated, media facilitation is providing assistance to civilian
and military news media representatives covering an operation. The
objective of media facilitation is to support news media efforts. This
includes providing accurate, timely, balanced, credible coverage of the
force and the operation, while minimizing the possibility that media
activities will disrupt the operation.
4-4. Media facilitation includes assisting media entry into the area of
operations, registering media representatives, orienting them on the
ground rules for coverage and ensuring that they understand the security
policies and constraints under which they must agree to operate if they
desire Army support.
4-1
FM 3-61.1
4-5. Media facilitation also involves arranging interviews and briefings,
coordinating unit visits and escorts, and assisting media representatives
with transportation, messing, billeting, communication support, safety
and equipment. Media facilitation involves the early establishment of a
media center as a focal point for media wishing to cover an operation, for
Army personnel seeking assistance with media representatives in their
area, and for resolution of problems or incidents resulting from media-
military interaction.
4-6. A primary strategic goal of any Public Affairs staff is to support an
operational commander in achieving a constant flow of complete, accurate
and timely information about the mission and U.S. forces.
4-7. The PA staff accomplishes this goal by making information fully and
readily available within the constraints of national security and OPSEC,
and by facilitating inclusion of civilian and military news media
representatives in military units whenever possible.
PA STAFF AND MEDIA CENTER RESPONSIBILITIES
4-8. PA Staff Sections. The prime focus of the PA staff is staff
coordination. The staff will be the element tasked with executing the
media facilitation strategy.
4-9. The staff provides PA planning and operational guidance to the
PAO. They ensure leaders within the command understand the
commander's media relations policies, and serves as the command
ombudsman in the settlement of conflicts between the media and the
military.
4-10. As an active participant in the command's information planning
element, the staff coordinates with G2, G3, G5, PSYOP, U.S. Information
Service, and other staff elements in developing the commander's
information strategy to ensure synergy and to reduce the probability of
conf I icting messages.
4-11. Media Operations Centers. Currently, joint, combined and
Army media centers fulfill the requirement for a focal point for the news
media during military operations. I n essence, the media operations center
(MOC) is a command post for media support efforts. It serves as both the
primary information source, and as a logistical support and coordination
base for commercial news organizations covering the operation.
4-12. Media centers are organized when large numbers of news media
representatives are anticipated to cover military activities. Media centers
may be formed for all types of operations or for any stage within an
operation.
4-13. When operated by unified/specified commands, these media centers
may be called a Joint Information Bureau (\\B). At the combined
commands, they are called an Allied Press Information Center (APIC),
Coalition Press Information Centre or Combined Information Bureau
(CIB). At theater level and below, they are simply referred to as Media
Operations Centers.
4-14. MOCs support the commander and are subordinate to the
command's PAO. They provide the commander a professional,
immediately available, fully trained organization designed to respond to
4-2
_Chapter 4
national and international civilian media interest in American military
operations.
4-15. In addition, the media operations center provides the following
functions:
• A single point of contact and information source for media within
the theater
• Briefings and enforcement of media guidelines and ground rules
• Primary information release authority for the senior PAO
• Coordination of news media coverage with corps, divisions,
brigades, etc.
• Coordination with all service branches for each service, agency or
country
• Identification and communication of host-nation sensitivities to all
personnel in theater
• Preparation for and conducting press briefings and news
conferences
• Registration of news media personnel
• Media Operations Center Staffing and Organization
4-16. Organization and personnel staffing of media operations centers
are determined by the responsible command in coordination with the
PAO and his staff. APIC staffs should be a proportionate representation
of the forces, with representation from all services involved in the
operation. This will be determined by CPA at the unified command.
Regardless of the echelon establishing a media operations center, the
organizational model is functionally designed and remains relatively the
same.
4-17. MOCs normally consist of two major elements: a Headquarters
Group and a Media Operations Center Group.
4-18. The headquarters is made up of the command group and support
staff. The command group contains the commander, deputy commander
and/or executive officer, and the sergeant major. The support staff is
normally task organized to support tailored forward deployed MOC teams
or sub-MOCs when the APIC operates as other than a single element.
The support sections provide administrative support, conduct lease and
purchase contracting, setup, operate and maintain the unit's equipment,
and conduct the day-to-day operation of the MOC. The support sections
are responsible for the execution of MOC communications, supply
operations, administration support, vehicle maintenance, security and
other support functions as required.
4-19. The Media Operations Center consists of a Plans Section, a Media
Support Section and an I nformation Operations Section.
4-20. The plans section is responsible for all MOC media planning. It
establishes MOC requirements and determines operating procedures and
policies. It maintains channels of communication with OASD(PA) and
the J PAO (or senior command PAO). It is responsible for recommending
and assisting in the development and dissemination of PA Guidance. It
monitors available major U.S., international and local television and
radio broadcasts and print publications providing coverage of the
4-3
FM 3-61.1
operations, conducts news media analysis and evaluates the effectiveness
of MOC operations.
4-21. The Media Support Section (MSS) is the primary point of contact
for news media representatives (NMRs) in an area of operation seeking
information or assistance in covering the force and the operation. The
MSS receives and registers NMRs, briefs NMRs on the media ground
rules and security procedures or concerns, and orients them on the force,
the operation and other pertinent issues (special safety or host nation
considerations).
4-22. The MSS orchestrates the command's news briefings and
coordinate for subject matter experts to explain and discuss operations
and capabilities. The MSS is also responsible for coordinating for
appropriate, knowledgeable escorts, unit visits, and service member
interviews. It assists the J oint Force or other senior PAO in preparing
service members for interaction with the news media. Finally, it provides
support to Joint Force elements and service component PA elements
seeking assistance with NMRs.
4-23. The Information Operations Section is responsible for monitoring
plans and operations from within the command's operation center and
assessing the PA implications of events occurring throughout the area. It
ensures that the MOC has current situation information, is aware of
issues of potential media interest, and can obtain any operational
information necessary for the development of responses to media
inquiries in a timely manner.
4-24. The 10 section ensures that PA operations are synchronized with
other combat functions and promote early coordination of PA, CA and
PSYOP functions.
4-25. MOC Staffing. Currently, media operations center staffing
requires augmentation, either by PA-trained individual fillers or by Army
PA units. As fully independent units, the Public Affairs Operations
Center (PAOC) (SRC 45423A000) and Mobile PA Detachment (MPAD)
(SRC 45413A000) are currently organized, trained, and prepared to fill
this role.
4-26. In fact, these Army PA detachments are specifically designed to
function as an Army media operation center in theater, corps, or division-
controlled operations. MPADs can be combined to form media sub-
centers in forward battle areas.
4-27. PA personnel from non-deployed commands and installation PA
sections may be called upon to augment news media centers however,
requests for individual augmentation should be coordinated through
operational channels. Reserve and Guard unit personnel can be used to
augment on a voluntary basis.
4-28. An example of a media operations center is included at Appendix L.
MOC OPERATIONS
4-29. In major operations -- actions conducted by unified commands -- a
Joint Information Bureau will usually be the first to deploy for this
purpose. A JIB will be staffed by public affairs personnel from the
services represented in the joint force; participating services may
4-4
_Chapter 4
establish their own media centers subordinate to the J IB to disseminate
information about their particular missions.
4-30. As the operation unfolds, the Army plans for and contributes to a
replacement PA organization for the J IB which consists of individual PA
personnel from each of the services and Army PA detachments.
4-31. Media Center operations will be based on five primary
assumptions:
• Accurate information is available in a timely manner and adheres
to the DoD Principles of I nformation in Appendix A.
• Current trends in communications technologies within the
information environment will continue to reduce the news media's
reliance on military support and assistance when covering
operations and will continue to increase the availability of
information to a worldwide audience.
• Media representatives will be in an area of operations at the start
of, and in most cases, before an operation begins.
• Media interest and coverage in non combat operations may be
higher at the outset, and barring a significant event which renews
national or international attention or interest, will taper off over
time. During a high-intensity conflict, media interest could remain
high.
• Military PA elements require access to complete information, state-
of-the-art communication equipment, and must possess
sophisticated coordination channels in order to pre-empt
speculative, inaccurate or biased reporting.
4-32. Media centers will support and be responsible to the senior
commander of the operation on a 24-hour basis. Media centers are
usually established by unified command CINCs to support the news
media in an area of operation.
4-33. During thefirst 24 hours after arrival in a new theater of operation,
a media center can provide limited media support services.
4-34. Within this first operational day, theMOC must:
Establish a "hasty media center" as the initial focal point for the
news media until additional media support forces arrive.
Establish communication with OASD (PA), each service's PA chain
of command, and with units operating within the theater.
Request operational information release authority within the
theater.
Establish command structure/lines of authority.
Coordinate with appropriate authority for leasing and purchasing
contracts.
Begin to register news media personnel in the area
Provide basic media support (coordination of media access to
subordinate units and media escort as resources permit).
Assist or conduct command news briefings and conferences.
Coordinate Subject Matter Expert (SME) interviews.
Be capable of assisting in the transmission of media products.
4-5
FM 3-61.1
4-35. Media Support -- Initially, the media operations center will need to
provide varying degrees of support to news media personnel including
specialized equipment (flak vest, NBC gear, helmets), transmission of
media products, etc.
4-36. This support may include but not be limited to:
• Coordinate media contact with units or individuals to include SME
interviews
• Provide a single point of contact for information on operational
issues
• Provide news releases, fact sheets, copies of transcripts for news
briefings/conferences and copies of archival file products
• When other means are not available, the media center may provide
coordination for transportation (to and from interview sources),
transmission of media products and food and billeting
• Provide limited media escort within the area
• (SOPs for MOCs should be pre-established for each theater of
operation and used for media operations within that theater.)
REGISTRATION OF MEDIA
4-37. Principle to supporting the commander's information strategy is the
inclusion of news media representatives (NMR) within Army units from
the earliest pre-deployment stages of all operations. The personal safety
of media representatives, as acknowledged by the media themselves, is
not a reason for excluding them from operations.
4-38. However, all media requesting support or access to units to cover
Army operations must be registered. This includes freelance journalist,
military media representatives, such as those who are assigned to Armed
Forces Radio and Television Service, Stars & Stripes newspaper and
other Armed Forces Information Service (AFIS) personnel who are not
supporting units on the battlefield.
4-39. Registration versus Accreditation. Accreditation is the
verification and validation that a person represents a legitimate
commercial news organization. This means that accrediting governments
or military organizations will physically verify the affiliation of an
applicant with a specific news organization.
4-40. This is difficult to perform amidst an ongoing operation, especially
when deployed far away from CON US. It is generally accepted that,
when overseas, the decision to accredit news media is made by the host
nation's government in coordination with the combined or unified
commander.
4-41. When accreditation isn't required by the host nation, responsibility
for this determination is held by the combined or unified commander.
Accreditation is normally performed at Corps level or higher.
4-42. Accreditation is a major problem for many commands because they
are forced to determine the legitimacy of smaller, lessor-known news
organizations and freelance journalists without news organization
affiliation.
4-43. Unless it is absolutely required by host nations, the American
military will attempt to avoid accreditation.
4-6
_Chapter 4
4-44. Registration, however, is merely an accounting tool, which provides
PAOs the ability to know what media are represented in the theater,
where they are located, and their movement around the theater. This
information is helpful in planning and conducting media logistical
support and transportation, and in preparing subordinate commands for
media encounters. It is also helpful to commanders who might want to
provide newsworthy events to the media.
4-45. Registration also identifies which news media have asked for
military assistance and access, and have agreed to the command's media
ground rules.
4-46. Registration Requirements. The registration process is
conducted in five basic steps:
• Verify the identity of the media representative (including checking
for valid passport/visa, professional media organization
membership card, media ID card, other military press credentials,
etc.).
• Have them sign an agreement to abide by the established media
ground rules for the operation in exchange for granting support,
access to units, information and other privileges. If required,
revoke credentials for those who violate the ground rules.
(Enforcement of this requirement is essential.)
• Have NMR agree to and sign a liability waiver that frees the
military of responsibility if the NMR is killed or injured as a result
of covering the operation. (An example of a waiver of liability is at
Annex I).
• Give NMRs proof of registration (memorandum, press badge or
other identification).
• Maintain a roster of registered NMRs and monitor their
movements duri ng the ti me they are recei vi ng mi I itary support.
4-47. NMRs who refuse to agree to the mi I itary ground rules and who are
not registered will receive only the support and information assistance as
provided to the general public.
4-48. NMRs should be informed that registration and acceptance of
media ground rules will entitle them to better access to units and subject
matter experts, and provision of military ground and air transportation
when possible.
MEDIA GROUND RULES
4-49. Media ground rules will assist inprotecting the security and the
safety of the troops involved while allowing you the greatest permissible
freedom and access in covering the story. All interviews with news media
representatives wi 1 1 be on the record.
4-50. Security at the source will be the policy. (An example of media
ground rules is in Appendix X.)
4-51. The foil owing categories of information are releasable:
• Arrival of major U.S. units when officially announced by a U.S.
spokesperson. Mode of travel (sea or air) and date of departure
from home station
4-7
FM 3-61.1
4-52
Approximate friendly force strength figures, after review by host
nation government
Approximate enemy casualty and POW figures for each action
operation
Non-sensitive, unclassified information regarding U.S. air, ground
and sea operations (past and present).
Friendly force size in an action or operation will be announced
using general terms such as multi-battalion or naval task force
Specific force/unit identification/designation may be released when
it has become public knowledge and no longer warrants security
protection
Identification and location of military targets and objectives
previously under attack
Generic origin of air operations such as land or carrier based.
Date/time/location of previous conventional military missions and
actions as well as mission results
Types of ordnance expended will be released in general terms
rather than specific amounts
Weather and climate conditions
Allied participation by type of operation (ships, aircraft, ground
units, etc)
Information Not Releasable
I nformation about future military plans, activities or operations
Vulnerabilities or weaknesses on command, control, personnel or
the operation
Friendly unit and command strengths, on-hand equipment or
supplies; the presence, activities and methods of operation of
specifically designated units or equipment
I nformation on friendly force security and deception measures and
counter measures, and intelligence col lection activities
Specific information on friendly force current operations and
movements, deployments and dispositions
I nformation on in-progress operations against hostile targets
Information on nuclear, biological or chemical weapons, equipment
or training
MEDIA POOLS
4-53. J ournalists, as a group, are strongly opposed to media pools in any
form. The media pool is seen as a restriction placed on the media
representatives and their ability to provide coverage of the news. They
are grudgingly tolerated, and should be only used as a last resort when
space onboard military transportation is limited, access to an area must
be controlled, and after all other possibilities have been explored and
eliminated. Even under conditions of open coverage, pools may be
appropriate for specific events. Both the Army and the news media are in
agreement, however, that limited access is better than no access at all.
4-54. When a pool system is required, the military PAO will identify the
maximum size of the pool that can be supported. The news media
4-8
_Chapter 4
representatives on the scene will select media pool members. A roster of
media personnel registered with the Army PAO will be used to identify
the media representatives eligible to participate. The pool should consist
of, but not be limited to, a minimum of one video crew (camera operator,
sound technician and reporter), one still photographer (wire service,
newspaper, or magazine), one radio reporter, and one newspaper or wire
service reporter. Special consideration must be given to international
reporters as well. While this is a fair and representative pool structure, it
is the media themselves who must determine the make-up of the pool.
Some news events and situations may lend themselves more to print, or
conversely television reporting, and the media representatives may
choose to select an unbalanced pool.
4-55. All pool members must be willing and able to meet deadlines and
supply information products (video, audio, still media, and text) in a
timely manner to all media representatives who are entitled to material
generated by the pool. The military media center will also have access to
this information and will make it available to all other requesting news
media organizations.
4-56. Consistent with its capabilities, the military will supply PAOs with
facilities to enable timely, secure, compatible transmission of pool
material and will make these facilities available whenever possible for
filing independent coverage. In cases when government facilities are
unavailable, journalists will, as always, file by any other means available.
The military will not ban communications systems operated by news
organizations, but electromagnetic operational security in battlefield
situations may require restrictions on the use of such systems.
4-57. Once a media pool has been selected, the media pool will select a
team leader. It is the responsibility of this team leader to ensure that
members of the media pool meet their obligation to share information.
The Army PAO will not involve himself in settling internal disputes of
the media pool.
4-58. Finally, the pool is an option of last resort. It should be disbanded
as soon as free and open access to the operational area can be allowed,
normally within the first 24 hours of an operation.
THE DOD NATIONAL MEDIA POOL
4-59. The DoD National Media Pool was established to prevent
recurrence of problems encountered with media coverage during
Operation Urgent Fury in Grenada in 1983. During the first 24 hours of
Urgent Fury, more than 600 reporters attempted to gain access to the
operation. The large numbers overwhelmed the limited Public Affairs
elements available to assist them.
4-60. In 1985, the Secretary of Defense established the DoD National
Media Pool, a civilian news element of approximately 16 media
representatives from various national news organizations, with the
mission of covering an operation from its initial stages until open
coverage could be allowed.
4-61. The pool members remain on call in Washington, D.C., and are
available for immediate worldwide deployment. Their products are
shared by the open news media until the pool is disbanded and access is
granted to the entire news community.
4-9
FM 3-61.1
4-62. Supported commanders are responsible for providing operational
support to the DoD National Media Pool. At a minimum, the pool
members will requ i re:
• Daily, comprehensive and unclassified operational news briefings.
• Access to ongoing combat operations. The media are aware of the
personal risks involved in covering combat operations. They will
not be denied access to them based on risk to their personal safety.
• Reasonable access to key personnel. All information gathered from
these personnel is unclassified and on the record.
• An escort -- usually a lieutenant colonel or colonel -- to coordinate
pool support and access requirements.
• Transportation and itinerary planning and coordination that will
allow media to gain access to the theater of operations and to
disperse pool members throughout the operational area.
• In today's global information environment, when news media can
report live from almost anywhere in the world in almost any
environment, the technological capabilities of most news
organizations decreases the importance of the DoD National Media
Pool once word of an operation has spread.
• When the DoD media pool is operational, PAOs will attempt to
provide the same information support concerning theater
operations to all other media in the operational area.
• However, their primary responsibility is to the DoD Media Pool.
After the DoD media pool is dissolved, all media in theater will be
dealt with in an equitable manner with respect to information and
support provided.
• As soon as open access to the operational area can be allowed
(normally within the first 24 hours of an operation), the DoD
National Media should be disbanded.
NEWS BRIEFINGS
4-63. There are several reasons for holding news briefings, in addition to
the daily operational news briefing required at the unified command
level.
• Credibility: The physical presence of a briefer and his willingness
to meet the issue head on leads to a much more credible
presentation
• Uniformity: All media get the same information at the same time.
• Expression of concern: A briefer represents the face of the
command, which shows more concern than an impersonal news
release, especially in situations where there is loss of life or
extensive damage.
• Complexity of material: Where material istechnical or complicated,
the news briefing makes the subject matter more easily
understandable. The question and answer session that
accompanies a news briefing saves time in call-backs by news
reporters needing clarification.
4-64. News briefings should be done daily during an operation and when
important events dictate. They should:
4-10
Chapter 4
• Get out a specific message
• Explain complex or technical matters
• Reach a large number of media interested in the same subject
matter area.
4-65. PA specialists should think about media deadlines and set the time
to help the media meet those deadlines. Be sure to invite all media
within the area in a timely manner.
4-66. A knowledgeable and articulate spokesperson should be chosen to
present the material. This should be the subject matter expert (SME),
but may be the PAO or the commander. At the very minimum, a person
of prominence within the command should be selected.
4-67. Other SMEs may be in attendance at the briefing to field technical
questions. The SME interviews should be at the request of an individual
media representative and the time should beset to facilitate the media to
meet those deadl i nes.
4-68. Consideration should be given to the appearance of the
presentation, the message, space, lighting, electrical needs, suitable
setting, chairs, tables and press packets. All handouts should be
reviewed.
4-69. Appendix H provides briefing and press conference formats.
4-11
FM 3-61.1
4-12
Chapter 5
Information Strategies
The defining trend of the 1990s, from corporate boardrooms to private
living rooms, is connecting everyone and everything to everyone and
everything else. The American public is faced with many choices:
interactive television, cellular phones, modems, faxes, personal digital
assistants, an assortment of daily newspapers, online computer
information services and other easily accessible information services --
if it can be connected, it seems to be in demand. The computer has
invaded the American home. In this decade it has become routine
that news and information can now be tailored to fit the individual
needs of the consumer using on-line services, distributed electronically
and received instantaneously at his or her computer. With the
sophistication, power and miniaturization of these technologies
improving each year, and the cost dropping at an equally rapid pace,
the public will expect access to these devices and services and the
information they carry. These emerging technologies have contributed
to the refocusing of the Public Affairs mission. It has resulted in
shifting the information provision function from an emphasis on
producing specific products (such as post and field newspapers and
radio/television news programs) to focusing on the processing of our
themes and messages and their intended effects -- the function of
information communication, rather than the form. This chapter
explains the objectives of information strategies, identifies and
explains the elements of information strategies, and describes the
relative advantages and disadvantages of present day and emerging
information communication channels available to PA organizations.
Most importantly, it explains how best to use these information
channels to satisfy the information needs of the various target
audiences as we enter the information age.
INFORMATION STRATEGIES
5-1. I nformation Strategies is the sum of all actions and activities, which
contribute to informing the American public and the Army. The
responsibility for this activity is assigned to an element within each PA
section, which focuses entirely on accomplishing the information strategy
mission. This section is usually called the Public Affairs Information
5-1
FM 3-61.1
Services Section. At all echelons, it employs numerous techniques to
provide news and information to internal and external audiences. The
Army provides an expedited flow of complete, accurate and timely
information, which not only communicates the Army perspective, but also
attempts to educate audiences and engender support for the force.
5-2. Using a combination of contracted services, organic military assets,
and government and commercial communications networks, Public
Affairs organizations provide information to news media representatives,
deployed soldiers, home station audiences and the American public. The
Information Services Section within a Public Affairs organization
coordinates information efforts and develops informational products (such
as digital text, graphics, and photos, printed publications, audio/video
news releases and graphic imagery) into consolidated campaigns
designed specifically to present the Army's perspective. This means that
Army Public Affairs communicates information to create an informed
American public and Army force, assist them in gaining a clear
understanding of the strategic, operational and tactical situation.
5-3. To accomplish this, the Information Services Section must develop
information objectives or goals during the planning process prior to an
operation. These information goals are similar to the PA standards of
service and support, which appear in Appendix 0, in that they establish a
basis for determining successful information communication operations.
5-4. These information objectives should include:
• Ensuring an understanding of the role of America's Armed Forces
in American society.
• Ensuring an accurate perception of the particular military
situation or mission.
• Ensuring an understanding of individual and unit roles in mission
accomplishment.
• Establishing confidence in America's Army to accomplish the
assigned mission in accordance with our national values.
• Establishing confidence in and support for American soldiers.
5-5. By establishing a comprehensive information strategy program,
Public Affairs can assist in mission accomplishment by increasing
audience understanding of the situation and establish confidence in and
support for the force. This contributes to unit cohesion and provides
commanders with increased range of action, free of distractions and
limitations.
5-6. This is best accomplished by three basic types of information
campaigns:
• MISSION. Both external and internal publics need to know what
the mission is, what they're being asked to do and why. They need
to know not only the organization's mission, but also how it fits into
the big picture-- the political/strategic-level situation, and why it is
important.
• ROLE. All military members and civilian employees need to have
an understanding of their job and how it relates to mission
accomplishment. The general public needs to have an accurate
understanding of the military's role and its ability to accomplish
5-2
_Chapter 5
the mission. This understanding results in confidence in the force
and demonstrates American unity and resolve.
• MORALE. Military members need to have access to news and
information about current events and the activities available to
them while deployed. They also need to have access to information
from civilian commercial news sources. This is important because,
in addition to being more credible, it allows the deployed force to
see how the operation and their participation in it are being
portrayed for the American public. In order to better understand
the mission, their role in it, and give it his or her full effort, they
have to know what effect the operation is likely to have at the local,
regional, national and international levels. The opportunity to
involve themselves in educational and other activities is necessary
to quality of life and morale. A well-informed service member is
more effective.
5-7. The general public is interested in soldiers, their lifestyle, how they
are being treated and their ability to accomplish a given mission.
Information about these topics provide reassurance, confirming that
soldiers maintain professional and ethical values and are being cared for
adequately.
Historical Perspective
During Operation Desert Shield/Storm, many commanders developed innovative
methods of sharing Command Information products produced in theater and in the
rear. The products greatly enhanced morale at both ends. Some commanders and
PAOs used the products as issue management tools to dispel rumors in theater and
at home station. The products included field newspapers, newsletters, videotapes,
audiotapes, etc. They also let soldiers returning from the area meet with family
support groups to answer any questions.
(After Action Report 1991)
RESPONSIBILITIES
5-8. Commanders at each echelon are responsible for Public Affairs
operations and support. Public Affairs officers and noncommissioned
officers at various levels assist commanders in the discharge of these
responsibilities. Public Affairs staffs are responsible for accomplishing
the Public Affairs information communication mission. This
responsibility includes Public Affairs operations in all subordinate,
assigned or attached commands.
5-9. PA is only one of many information channels available to a
commander. PA information provision cannot substitute for a
commander's personal involvement in his "Command Information"
program.
5-10. All public affairs practitioners have access to all information that is
not classified or violates Operational Security or the Essential Elements
of Friendly Information (EEFI) for use in preparing information products.
Commanders must ensure the EFFI is up-to-date based on current
situations and operational guidance. Public Affairs personnel at all levels
5-3
FM 3-61.1
must produce and release accurate information packages based on DoD
directives and Army policies.
5-11. Strategic Level Commands are responsible for providing public
affairs guidance to subordinate units. They develop central themes and
messages and provide umbrella guidance to subordinate PA staffs. They
must also provide subordinate commands with information useful in
preparing information products for internal and external release. They
are additionally responsible for marketing public affairs information
products to subordinate commands, home stations, the Army as a whole,
as well as the general public. Strategic level Public Affairs staffs are the
primary coordination point for the Armed Forces Radio and Television
Service and the geographical manager for radio and television services
including personnel, down links, facilities and equipment.
5-12. Operational Level Commands are responsible for
communicating public affairs guidance to subordinate units. They
expand on information campaign themes and messages, and provide
additional information products to subordinate command PA staffs.
Additionally, they provide subordinate commands with information
useful in preparing information products for internal and external
release. They are responsible for gathering and producing public affairs
information products for release. I n the event the Operational Command
is the senior command in an area or theater, it assumes the
responsibilities of the strategic level command.
5-13. Tactical Level Commands are responsible for gathering
information products for release through their next higher headquarters
to home stations, the Army as a whole, as well as the general public.
These commands are also responsible for coordinating the dissemination
of information and information products received from senior commands
down to subordinate commands. In the event the tactical command is the
senior Army command in an area or theater, it assumes the
responsibilities of the operational -level command and will be augmented
to accomplish these additional functions.
INFORMATION STRATEGY PROCESS
5-14. The I nformation Services Section uses all available means to gather
complete, factual, unbiased information for use in information campaign
development. The information is developed, converted into the most
appropriate product form based on the information needs/target audience
assessment and information communication channel availability, and
then transmitted to the intended audiences. This is called the
Information Provision Process.
5-15. Although the information strategy process follows a deliberate
cycle, it is a continual process. Information campaigns are also conducted
simultaneously, with personnel examining external and internal
information needs, carrying messages from concept through execution
and program evaluation, to accomplish specific PA objectives. The cycle
has four phases -- acquire, process, protect and distribute. (See Figure 5-
1.) Evaulation is a key component in the cycle. It must be conducted
throughout the four phases. This ensures the campaigns are meeting
their objectives, and are altered if they do not.
5-4
_Chapter 5
Develop
Sources
\
Acquisition
Strategy
O
Develop
Product
Information
technology
INFORMATION STRATEGY
CYCLE
^ Deliver
^\ Information
4>
Coordination
Imperative
/
B
U
Security at
source
Information
Networks
ACQUIRE
'Evaluation must be conducted throughout each phase
Figure 5-1
5-16. During this phase, a ISS identifies and assesses several factors: the
situation, the environmental factors, the mission, and the target
audiences. They determine the information needs of the various target
audiences. They then begin to gather information based on the
information requirements of these audiences.
• Information Needs Assessment and Audience Analysis.
Identification of the target audiences and target audience
populations and densities must be developed during the planning
stages of operations with target audience assessments. Upon
assessment of target audiences and consideration of which type of
information product will best serve each audience, commanders
must ensure adequate public affairs personnel, equipment (to
include communications), resources and funds are available and
included in OPLANS/OPORDS to achieve mission success. An
assessment of soldier information needs is crucial to the
information package development and the selection of appropriate
products.
• Information Gathering. Information gathering is the first step
in producing packages for release to internal and external
audiences. Public affairs personnel gather information through
5-5
FM 3-61.1
operational, administrative, logistical, battle, staff, command and
support channels. They also acquire information through the
media, research, leaders and the culture at large. I nformation may
be obtained via electronic and telecommunication systems in
addition to written documents and oral communications. While
information often comes from superior and subordinate commands,
it may also be obtained laterally.
• Sources of information must be valid and diverse enough to provide
a broad overview. Public Affairs staffs must ensure the source does
not speculate, nor speak out of his area of expertise. However,
soldiers' experiences and personal opinions may lend credibility
and provide a "grass-roots" view.
PROCESS
5-17. During this phase, the ISS begins to develop products, prepare
them for release and determine methods for distrubition.
• Product Development. Development of information products is
performed to some degree by PA personnel at all Public Affairs
levels and is an on-going process. The term "product," as used in
this process, means the message for intended communication,
regardless of the format or communication channel proposed.
Initial production development may be command directed or
initiated by the Public Affairs staff or provided by other Army
agencies. The command's resources and the target audience's
requi rements wi 1 1 deter mi ne the product type.
• Prepare products. Information packages should be prepared in
accordance with Public Affairs Guidance, Soldiers' Manuals, Field
Manuals, SOPs and Army Regulations. Ultimately, the Public
Affairs staff is responsible for content.
• Media Forms/Methods. Soldiers use a variety of technologies to
gather information and produce information products. During the
gathering process, PA soldiers conduct interviews, attend briefings,
withdraw data from government and commercial computer
databases, bulletin boards, and e-mail systems. They acquire text,
graphics, photography and motion video from government and
commercial Internet systems. The nature, distribution, usability
and flexibility of public affairs systems are crucial in the processing
of information.
• Professional quality systems should be used whenever possible.
For printed products, preferred systems include computers, desktop
publishing, word processing, laser printing, etc. Reproduction may
be Army-contracted, Army-funded or reproduced using the
command's assets. Video and audio products intended for release
to news media should attempt to be broadcast-industry standard.
• Electronic newsgathering and editing systems should be used when
available. Visual products should be generated by modern methods
including digital imagery and computer graphics.
• Print, Articles released to home station for military publications
and family support group publications; for marketing to civilian
publications; field publications, e.g. newsletters, with and without
photography.
5-6
PROTECT
DISTRIBUTE
_Chapter 5
• Video. Raw electronic news gathering video and printed news
scripts for release to military and civilian outlets.
• Audio. Radio interviews; features; internal command information
scripts; radio news; news reports for release to military and civilian
outlets.
• Visual. Digital imagery; photographs; slides, view graphs;
graphics for release to military and civilian print and broadcast
media.
• Digital. Each of the categories described above may be developed
and distributed electronically, either through commercial
information services directly on the Internet, or by using tactical
Army communications systems (SINCGARS and ATCCS). Modern
technology in use on the battlefield has made digital transmission
the preferred method for all types of products.
5-18. Security at the source. No information strategy is complete
without a clear cut understanding of how to protect the information. Both
sides can benefit from information and use information simultaneously
against each other. Pieces of the right information can have a dramatic
impact on the outcome of an operation. Public Affairs professionals will
continue to protect vital information by practicing security at the source
and following established operational security guidelines.
5-19. In addition to protecting the raw and completed information
products, public affairs personnel must also take the necessary steps to
protect information networks.
5-20. Dissemination. Public Affairs information packages should be
released in the format most easily used by the recipient. While this is not
always possible, a product stands less chance of being used if it is
incompatible with the recipients' equipment. For example, a video
product released on Hi -8 to a TV station that works exclusively with Beta
SP has less a chance of being aired than a video story in a compatible
format.
5-21. Public Affairs information packages must be expedited to the users
by the most technologically advanced reliable method. Great
consideration must be given to the speed and reliability of the mode of
dissemination. This must be included in target audience assessments
and conducted during planning stages of operations. Articles and photos
may be sent from deployed locations to home stations via computer
systems and telephone lines. Yet based on the quality of the
telecommunications system, it may be more reliable to use the mail or a
courier. As technology improves PA capabilities, Public Affairs will
incorporate those improvements into the information gathering and
dissemination system to increase its potential to reach an ever-growing,
information-hungry public. For example, the emergence of smaller, more
powerful satellite link ups can provide PA elements the ability to reach
targeted audiences sooner and from more locations.
5-22. Internal information packages must be available to soldiers at all
levels of command. Public Affairs must develop and coordinate a
5-7
FM 3-61.1
distribution scheme with the commander, the general staff, and with
signal as the proponent for physical distribution of certain commercial
news and information products. An efficient distribution system will also
ensure prompt delivery of public affairs products. The public affairs staff
must conduct periodic quality control checks and update the distribution
scheme as necessary, based on changing population densities or
information products. Electronic means are the preferred mode of
distribution, however additional methods include, but are not limited to
contract delivery, AG distribution and the military postal system.
5-23. Products for distribution to deployed soldiers. Publications
produced by other military agencies intended for deployed soldiers must
be given the same distribution considerations as commercial information
packages. For example Stars & Stripes, Soldiers Magazine, Army Trainer
and home station post newspapers contracted for delivery to deployed
soldiers must be given the same distribution considerations as other
publications. However, a separate distribution scheme may be required.
INFORMATION PROGRAM EVALUATION
5-24. The final step in the Information Provision function is the
evaluation of our communication efforts. Evaluating communications
programs is research, which boils down to a series of questions:
• Did we achieve our objectives?
• Were our policies and programs effectively communicated?
• Was the operation affected positively by our efforts?
• Did the American public support our soldiers? Was unit cohesion
enhanced?
• What audiences received our messages? What was the impact of
our communication programs on these audiences?
• Research is the foundation of the Information Program Evaluation.
Corrections and changes in courses of action should be based on
solid factual information. Methods for conducting Information
Program research are discussed in greater detail in Appendix P.
NON-HIERARCHICAL AND INTERNET
INFRASTRUCTURE AS A RESOURCE
5-25. Modern technology has provided us with an advanced form of
communications structure called non-hierarchical structure. The
advantage of non-hierarchical communication structuring is that every
"node" in a communications web shares information with every other
"node". Each node on a network can identify itself and "find" others in the
network in order to communicate specific information. Public Affairs
elements act as information nodes, gathering, developing and sharing
information vertically and horizontally on the battlefield.
5-26. While this technology was originally intended for command and
control, it is essential for other functions on the battlefield as well. Well-
coordinated public affairs operations will leverage this capability to move
information -- sending messages around the battlefield, to and from home
station, and up and down the chain of command.
5-8
_Chapter 5
5-27. The end state of this technology effort is that both organizations
and individual soldiers on the battlefield will possess this capability.
TELECOMMUNICATION SYSTEMS
5-28. Information technology provides the means to collect, process,
display, develop and disseminate information in an unparalleled manner.
This technology has begun to revolutionize our approach to information
provision.
5-29. The PA specialist now has the ability to access desired information
on a certain issue and tailor and develop this information into a message
for dissemination -- all from a personal laptop computer.
5-30. This "from anywhere to anywhere" capability allows the PA
specialist at all echelons to accomplish his mission of presenting the
Army's perspective-- framing issues and informing targeted audiences.
5-31. There are two telecommunication systems available to Army PA
specialists: DoD's internal secure communication network, known as the
Defense Data Network (DDN) and the worldwide commercial information
network -- Internet. PA specialists must be familiar with both.
DEFENSE DATA NETWORK
5-32. Defense link is an entry point to Internet sites operated by the
Office of the Secretary of Defense, the armed services and related defense
agencies. It provides a means to search and download Department of
Defense directives, obtain transcripts of important speeches and connect
to other sites dealing with specific military operations.
5-33. The Department of Defense organizations are extensively
represented on the Defense Data Network. Each of the military services
has a centralized directory of its Internet sites. Army Link, as its name
suggests is a catalog or hotlist of more than 280 Army home pages. The
sites are indexed alphabetically and by subject area.
INTERNET
5-34. The I nternet is a network of networks. Originally, the I nternet was
developed by DoD with the goal of building a automation system linking
government agencies together which would continue to function in case
part of the network ceased to exist. From this inception, the Internet
grew, as other agencies and activities noticed the benefit of linked
telecommunications. The system now includes organizations from all
segments of society: government, defense, business, education, health
services, etc. There are more than 30,000 networks participating on the
Internet and more than 150 million individual users. And more are
connecting everyday.
5-35. Army Public Affairs personnel have access to the I nternet through
their local Directorate of Information Management (DOIM).
5-36. On the Internet, there are six main activities: "Hypertext"
documents with multimedia links on the World Wide Web can be viewed,
files can be downloaded with a file transfer program or "FTP," data can
be located, communication via e-mail, reading and posting messages to
5-9
FM 3-61.1
news groups and bulletin boards, and logging in to remote computers
using Tel net.
5-37. You can do most of the same things in the I nternet that you can do
on any of the commercial information services, but you do them in the
context of a much larger network that isn't centrally organized or
controlled.
5-38. World Wide Web. The World Wide Web, also known as WWW,
W3, or simply the Web, is one of the most popular activities on the
I nternet. The Web allows you to view documents that feature graphics,
"hypertext" (text which contains highlighted keywords which are linked
to other documents or information sources available on Web) and
multimedia links. The hypertext and multimedia links are tied to other
documents or information forms that might be on the same computer, one
across the country, or a machine on the other side of the world.
5-39. The WWW contains thousands of main menus, called "home pages"
which identify the various sub-categories at each web site. Web users can
search using key words or locations through the lists of home pages for
specific web sites.
5-40. Gophers. A gopher is a menu driven system that offers text only.
Users of the web can access gopher sites and retrieve information. It is a
predecessor of the Web.
5-41. News groups. They are discussion groups built around a
particular topic. Some are managed, others are not. News Groups take
two forms: Mailing List: A list of E-mail addresses to which messages are
sent. You can subscribe to a mailing lists typically by sending an email to
the contact address with the following in the body of the message: the
word subscribe, the name of the list, and your email address. Discussion
groups: A particular section within the USENET system typically, though
not always, dedicated to a particular subject of interest. Also known as a
newsgroup. USENET is a collection of the thousands of bulletin boards
residing on the Internet. Each bulletin board contains discussion groups,
or newsgroups, dedicated to a myriad of topics. Messages are posted and
responded to by readers either as public or private E-mails.
5-42. E-mail. E-mail is a means of interpersonal communication that
falls somewhere between the immediacy of a phone conversation and the
more thoughtful but slower exchange of ideas previously done by writing
letters and memos. The specifics of using it vary greatly according to the
mail software being used.
5-43. Commercial On-line Information Services. Users cannot
directly dial up to the Internet using a modem, but must gain access
through an internet service provider. Many offices, universities and large
businesses provide access for their employees. For access at home, a user
can either subscribe to one of the commercial on-line services, which
provide I nternet access in addition to their other features or to one of the
dedicated I nternet server companies located in most cities.
5-10
Chapter 6
Training
'You must remember that whether you wear one stripe or six, one
bar or silver eagles you automatically become an "Army
spokesman" when you are approached by the press. Within 24
hours the words of that Army spokesman can be flashed world
wide, particularly if they can be construed as criticism
Everything you say should have the ultimate aim of furthering
that effort Your approach to the questions of the press should
emphasize the positive aspects of your activities and avoid
gratuitous criticism. Emphasize the feeling of achia/ement, the
hopes for the future, instances of outstanding individual or unit
performance and optimism in general. But don't destroy your
personal credibility by gilding the lily. As songwriter J ohnny
Mercer put it, 'You've got to accentuate the positive and eliminate
the negative."
- U.S. Continental Army Command memo to advisers in Vietnam.
The Military and the Media,
William M. Hammond, 1988
TRAINING OBJ ECTIVES
6-1. The cost of learning in combat is too high. Therefore, commanders
and staff section chiefs must conduct cost- and time-effective staff
training during peacetime. In order to conduct effective training, every
consideration regarding PA activities should be evaluated.
6-2. Evaluation should include, but is not limited to, analysis, planning
and execution of the operation. The PA staff, in conjunction with other
members of the organization, must train in the initial planning of the
operation. In order to train effectively, the following considerations
should be evaluated:
6-3. Analysis. Specified and implied tasks are identified at home station
for deployment, mission and redeployment requirements.
• Feasibility of all tasks are determined and assessed.
• Consider any PA guidance issued by higher headquarters and
determi ne sped al i zed trai ni ng requi rements.
• Consider all phases of host nation operations and the effect on your
operation and organization.
6-1
FM 3-61.1
• Determine the availability of required assets and equipment for all
phases of the operation.
• Consider the availability and use of internal and external assets --
joint, RC and combined -- to augment known shortfalls.
• Determine any transportation requirements for your organization
or attached personnel.
6-4. Planning. Planning includes PA annexes, command directives,
DOD guidance, regulations and directives stipulated by the commander's
intent and mission requirements.
• PA annexes should contain a brief, general description of the
situation and intent to conduct operations.
• Planning should also consider enemy forces and host nation
personnel and their relationship to the operation.
• PA planning should be considered for all attachments and
detachments currently known or listed under the task
organization. This includes planning for assets and requirements
from home station to redeployment.
• Training should be conducted emphasizing procedures for handling
the transmission of all information. Theater-unique requirements
may call for special training scenarios.
• All logistical and administrative requirements need to be addressed
in the planning and training process.
6-5. Execution. The staff, soldiers and media understand the
commander's intent in terms of his command position and operational
mission. The operational area ground rules are included in the PAG and
are widely disseminated throughout the organizations.
• Encourage local media to accompany deployed units.
• Adequate vehicles have been identified and assigned to transport
PA personnel and media throughout operational areas. This
includes vehicles, aircraft and available transportation assets for
transporting all media personnel and products. Consideration of
transportation should include all support activities in the forward
area of operation.
• Public Affairs personnel in the media center will prepare releases
of specific events to disseminate in the area of operations. News
media inquiries are anticipated, received, researched and answered
as quickly as possible.
• Local security review policies are clear and will not delay the
transmission of information.
• Executions of the theater policy for registration policies and local
media pool operations have been completed. Non credential ed
media are identified and escorted to the rear for registration. Once
registered, media personnel will be allowed to cover stories and
interact with organizations in the area of operations.
6-6. The staff section must be able to:
• Cope with the unexpected. For example, media arriving at the unit
level without PA escort or media not registered with the joint
media operations center.
6-2
• Separate fact from fiction. For example, media having
misinformation which they believe as fact and trying to confirm it.
• Coordinate well amid confusion. For example, be able to access the
PA staff at the MOC.
• Think clearly while under great stress. For example, have a unit
PA representative (UPAR) who will handle escorted/n on escorted
media for the unit.
• PA elements develop training plans from assessments of their
performance proficiency on their METL.
• Detailed training plans for Public Affairs Detachments are
contained in ARTEP 45-500-10-MTP, for the Mobile Public Affairs
Detachment in ARTEP 45-413-30-MTP and for the PAOC, ARTEP
45-326-50-MTP.
• The training plans in those documents can be readily adapted to
train other types of PA elements, such as a division PA staff.
PRINCIPLES
6-7. All PA training must be based on the training principles in the FM
25-series:
• Train as combined arms and services team. Do not train in a
vacuum. Train with the unit you support.
• Train as you fight Conduct realistic training. PA leaders must
move soldiers out of the office and into the field to conduct training,
including joint and combined operations. Set up a media
operations center and conduct operations for a day.
• Use appropriate doctrine. All PA leaders should be familiar
with FM 3-0 (100-5), Operations; FM 3-13 (100-6), Information
Operations; and the PA manual, FM 3-61 (46-1), PA Operations.
• Use performance-oriented training. Performing tasks under
field conditions with appropriate evaluation enables your soldiers
to perform better under actual conditions.
• Train to sustain proficiency. PA units must take advantage of
all training opportunities to sustain proficiency, participating in all
CPXs, FTXs and deployments that their supported units are
involved in.
• Train to challenge. Training for PA tasks must create the kind of
pressure PA soldiers will face in actual situations. Ensure it is
challenging but realistic.
• Train using multi-echelon techniques. The entire PA chain-of-
command must participate in training for it to be realistic and
effective.
• Train to maintain. Soldiers and leaders must keep equipment in
a high state of readiness in support of training and for deployment.
• Make commanders the primary trainers. The unit commander
is the primary training manager for the unit. The commander
assigns primary responsibility to officers for collective training and
to NCOs for soldier training.
6-3
FM 3-61.1
TRAINING OPPORTUNITIES
6-8. Regardless of type, size or configuration, PA elements/units must
train with the units they support. PA leaders must evaluate the ability of
their units to support their real-world missions successfully and
determi ne areas of weakness.
6-9. PA leaders must determine what training opportunities they can
participate in realistically and coordinate for support from higher
headquarters. If support is not provided, then unit leaders must create
their own unit training program that simulates the tasks they will be
asked to do when deployed.
6-10. For example, PADs should deploy with brigades to NTC or J RTC to
practice their unit mission and capabilities and be evaluated accordingly.
If the PAD is tasked with garrison duties, these duties must be retasked
to allow the unit to train and maintain.
6-11. PA elements and units should take advantage of the excellent
training opportunities offered by the J RTC and NTC. Both centers
conduct media-on-the-battlefield training for visiting maneuver units.
Public affairs elements should accompany the maneuver brigades and
establish field media centers to take maximum advantage of these
resources. It is imperative that PA elements be able to function effectively
in austere environments. They cannot perform to their maximum
capability unless they train accordingly. The key is repeated, tough,
realistictraining.
Historical Perspective
An initial PA team was sent to Somalia to set up a media operations center in
December 1992. Mogadishu at the time was a war zone with many fronts. Initially,
U.S. forces set up operations at the airport. Under the constant roar of C-5s, the PA
team tried to organize a MOC. They had a very difficult time dealing with the lack of
power and water. Eventually they were able to set up in a schoolyard. A "JIB-in-a-
box" arrived with computer equipment, but it was all 220-volt — power in Somalia is
110-volt.
For the duration of the operation, personnel at the MOC learned to live and work
under austere conditions, where food, water, power, and communications were
constant problems. They eventually were able to set up a briefing room with
benches, an old couch and a bulletin board for posting media opportunities, and
conducted media operations under austere conditions.
(After Action Report 1992)
6-12. Home station CPXsand FTXs are fundamental training events that
provide PA elements relatively low-cost opportunities to practice the full
spectrum of wartime PA tasks on a reduced scale.
6-13. A visit by even a single reporter can be used to exercise a broad
range of media support tasks including establishing a field media center;
arranging interviews; preparing subject matter experts, individual
soldiers and commanders to meet the media; preparing fact sheets;
responding to media queries; registering media; arranging escorts and
transportation, etc.
6-4
PA TRAINING FOR NON-PA AND PA PERSONNEL
6-14. Public affairs training is not limited to training for PA soldiers. PA
elements/soldiers also have a responsibility to train non-PA soldiers and
family members in military/media relations. Organic PA elements must
develop training programs for their supported units. These can take the
form of classes as well as pre-deployment briefings for units and family
members.
6-15. Training for commanders and subject matter experts. Unit
commanders and individual subject matter experts must be prepared to
be interviewed. It is a PA responsibility to ensure they are familiar with
the ground rules and know to restrict their statements and comments to
their area of expertise. Details on how to do this are contained in the
Soldier's Manual task, "Prepare a Spokesman to Address the Media,"
#224-176-4013.
6-16. Training for unit soldiers. Individual soldiers must be advised of
the inevitability of media presence during military operations. Classes for
units can be part of sergeant's time training and consist of teaching
soldiers what they should and should not talk about when meeting the
press. All soldiers should be encouraged to represent themselves as
soldiers and encouraged to speak about the jobs they perform for the
Army.
6-17. Training for family members. PA training for family members
consists of educating them on their rights and responsibilities when
interacting with the media. Family members often know more about
specific operations than should be revealed to the media. They must be
advised not to discuss information, which may be used by the enemy
against their spouse's unit, such as details about troop movements,
destinations, missions etc. They must also be advised that they have the
right to refuse to talk to the media. Family member briefings should be a
standard element of pre-deployment family support group activities.
6-18. Basic soldier skills. Public affairs soldiers are soldiers first and
public affairs practitioners second. It is imperative they are well trained
in basic soldiering skills. Public affairs elements and units must make
time to train to standards on common soldier tasks that allow them to
effectively shoot, move, communicate and survive on the battlefield.
6-19. Readiness. All PA elements and units must have, and exercise,
detailed load plans. Soldiers should be aware of the importance of
maintaining all equipment and vehicles in a state of readiness for
deployment.
6-20. PA NCOs must ensure soldiers participate in preparations for
overseas movement (POM) so they are administratively and medically
prepared for worldwide deployment. Soldiers should be aware of the
importance of wills, shots, powers-of-attorney, personal data and
allotments.
6-21. Staff Section and Unit Training. A state of operational readiness
to conduct combat or non-combat operations must be attained and
maintained. This level of readiness is accomplished by preparing
individuals, shifts and staff sections to perform assigned tasks and other
duties at the desired standard of proficiency in advance of assigned
operations.
6-5
FM 3-61.1
6-22. Standards of performance must be set so the section can evaluate
its performance. Examples of these standards include:
• Understanding DOD's policy statement -- Commanders will ensure
maximum unrestricted disclosures of unclassified information to
news media representatives consistent with operational security,
guidance from higher headquarters and the privacy of individuals
concerned.
• Escorted and unescorted media -- If the media has a PA escort, you
may agree to an interview after the escort explains some basic
ground rules. If not escorted, ask media personnel to accompany
you to the command post, NCOIC or OIC and contact higher
headquarters/public affairs officer.
• Conducting an interview -- Military personnel have the right to
deny media interviews. If a soldier elects to provide the media with
an interview, he should only discuss those things which he has
direct responsibility or personal knowledge, and ensure an escort
(PA or non-PA) is present. See Appendix N for more details.
THE INTERVIEWPROCESS
6-23. The I nterview Process:
• Prepare for the interview. Consider the type of questions the
media will ask, and think what your answer will be. When
possible, ask for PA assistance (U PAR or PA personnel).
• Relax and be yourself. I magine that the reporter is someone you
know and talk with him in a relaxed manner.
• If cameras are present, ignore them and talk directly to the
reporter. Be brief and concise. Remember, a TV news story will
use only 10- to 15-second answers.
• If you need time to respond, ask the reporter to restate the
question. A simple pause before answering the question is
sufficient.
• Use simple language and avoid military jargon (i.e., military
abbreviations or acronyms). If you must use military terms,
explain what they mean.
• Use appropriate posture and gestures. Relax and be yourself.
• Answer only one question at a time. If asked multiple questions,
answer the most important one first, or answer the one you're most
comfortable with.
• Always try to end your comments on a positive point. This is your
opportunity to tell your unit's story.
6-24. Thi ngs not to do:
• Do not allow media to videotape recognizable landmarks nearby,
sensitive equipment, interior of tactical operations centers or other
sensitive areas. UseOPSEC as guide on this matter.
• Do not answer speculative questions or give opinions concerning
real or hypothetical ("what if") situations.
• Do not use the expression, "No comment." A more appropriate
comment would be, "We don't comment on future operations." or
6-6
Ill I
I'm not qualified to respond to your question." or "That
information is classified, so I can't discuss it."
• Never lie to the media.
• Consider everything you say to the media as "on the record."
Never make "off the record" comments.
• Don't lose your temper when media representatives ask questions
you consider inappropriate or foolish. Such questions are usually
rooted in ignorance rather than in malice.
• Do not discuss operational capabilities, exact numbers or troop
strengths, numbers/types of casualties, type of weapons systems or
future plans. Use general terms like approximate, light, moderate
or heavy.
• Don't repeat a negative phrase in response to a media
representative's negative question (e.g., Q: Since your unit is poorly
trained, can you really deploy? A: We're well trained and ready to
go.).
• Staff section and unit training should be integrated into
headquarters FTXs and CPXs in order to perform adequately
within the unit's operational staff during real -world missions.
TRAINING EXERCISES
6-25. Training exercises will vary from major FTXs to CPXs and Tactical
Exercises Without Troops (TEWTs). Each training opportunity provides
the staff element realism, the opportunity to experiment and the ability
to face situations. These challenging training exercises enable soldiers
and units to tell the Army's success stories.
6-26. Training exercises also enable the commander and staff to:
• Emphasize the tactical SOP.
• Execute plans in a dynamic, hostile environment.
• E xerci se bol d sol uti ons.
• E xerci se conti ngency pi ans.
• Experience possible defeat without the penalty of combat loss.
• Work toward goal -oriented performance standards by team
building while providing PA support.
• Training exercises also allow PA personnel to become operationally,
strategically and culturally aware, and puts them in a unique
position to interface with the news media personalities which
shape the perceptions of our national and international audiences.
TRAINING FOR MEDIA FACILITATION
6-27. Facilitating media in the military environment includes three
phases -- planning, preparation and execution.
6-28. Planning. The Media Operations Center receives requests for
registered media to visit units in their areas of operation. The MOC will
contact a unit and coordinate the time and location for the visit, as well
as notifying a PA or nonPA escort for a mission. The escort will need to
know the unit's location and whether the unit 's UPAR (if applicable) will
travel with the group or meet them at the unit. The unit will need to
6-7
FM 3-61.1
know the number of media visiting, the duration of the visit and the
status of the unit for the last 24 hours (i.e., has the unit been in contact
with the enemy and has there been any significant actions).
6-29. The escort will plan the route to the unit. The number of media
going will determine the number of escorts and vehicles needed for the
trip.
6-30. Preparation. The J I B or escort will notify the media and tell them
the time and location of departure and estimated time of return. This
allows the media to plan for their supplies and equipment for the trip.
The escort should meet with the media and update them on the unit's
status, find out if the media has any specific requests before departing,
cover safety points and OPSEC requirements, and ensure they have
everything they need. This will also provide the escort with a direction
for the types of questions or issues the media may address. The
information concerning the unit's situation will allow the escort to
develop a list of Q&As for the commander and individuals whom the
media will interview.
6-31. The escort should meet with the drivers and review the route to the
unit, cover contingency plans and determine an inspection time before
movement. The escort should also contact the unit to reconfirm the visit
and their location, as well as providing a list of the names and agencies of
media visiting them. The escort should meet the media at the vehicles to
insure they have what they need for the trip.
6-32. Execution. The escort should leave as scheduled and travel as the
tactical or non-tactical situation dictates.
6-33. When arriving at the unit, the escort should have the driver park
the vehicle as directed by the unit and have media personnel wait at the
vehicles (if possible, with military supervision). The escort needs to
request that the media not take photographs of the unit's position for
operational reasons. Let the media know you are going to get the
commander and will return as soon as possible. If the situation is hostile,
get the media inside the perimeter and secure them away from
equipment and the command post.
6-34. The escort should meet with the U PAR and let him/her know who is
in the media group. Ensure that the unit will be able to provide the
interviews the media requested.
6-35. The escort should brief the commander and let him know the
ground rules, covering possible Q&As. Answer any questions or concerns
he may have about the interview. Let him know that you will be present
during the interview to assist him. When possible and if mission
requirements permit, the commander should be available for the media.
Review the unit's OPSEC requirements to ensure you understand what
cannot be photographed.
6-36. The escort should determine where the commander wants to meet
the media. If the area is not appropriate for conducting interviews (may
be based on PA experience or media request), provide an alternative
recommendation to the commander.
6-37. The escort should move the media to the interview point and
introduce the commander to the group. After the interview, the escort
should facilitate the rest of the coverage with the help of the UPAR. Do
not allow the media to linger in the area of operations and become
6-8
mission detractors. Wrap up the visit, return to your vehicles and depart.
Upon returning to the J IB, the escort should be avail able to back brief the
PAO.
6-38. The requirement to maintain proficiency in the full range of public
affairs collective and individual capabilities and skills places a high
priority on tactical training for both AC and RC PA soldiers. Tactical
training participation enhances knowledge of battlefield requirements,
increases unit cohesion, and forms the basis of experience needed for
operational planning, mobilization, deployment and mission success.
6-39. PA will continue to face expanded missions in the joint arena.
Quality PA training provides sufficient numbers of trained PA personnel
to conduct joint and combined PA missions. Training must emphasize
the joint perspective, enhance interoperability, and contribute to each
combatant CINC's PA Mission. Exercise participation is critical to the
training of PA personnel.
6-40. Trainers must fully incorporate a broad array of PA activities into
all types of exercises and war gaming. These activities can be injected
into computerized battle simulation as the training exercise driver. They
should also be used in BCTP command post exercises, and J RTC, CTC,
and NTC rotations. Seminars, area assessments and TEWTs are all
forms of training that also provide relevant, realistic training.
6-9
FM 3-61.1
6-10
Chapter 7
Community Relations
Public opinion about the Army is greatly influenced by the actions of
each command. What the command does for its local community or
fails to do affects the perceptions and attitudes of the American
people, upon whom the Army depends for its support and existence.
This applies not only to official acts but also to unofficial acts, which
by their commission or omission affects public opinion. This principle
also applies to individual members of the Army, their dependents and
Army civilian employees in their personal contacts with the civilian
community. Conducting community relations is a vital element to
successful public affairs operations. Commanders and public affairs
officers (PAO) must seize on key opportunities to gain and maintain
I inks to internal and external publics.
EFFECTIVE COMMUNITY RELATIONS
7-1. PA personnel act in concert with veteran's groups, civic leaders and
local populations to increase understanding and build support for Army
activities. Army support to and participation in public events is based on
the fact that the Army belongs to the American people. Common
ownership requires that Army resources be used to support events and
activities of common interest and benefit.
7-2. Effective community relations requires:
• Command supervision at all levels.
• Appreciation of public opinion and attitudes toward the Army
• Planning definite actions and positive policies.
• Implementing programs in a competent, professional and
responsible manner.
• Constant evaluation of continuing programs to measure their effect
upon the public and the command.
• Sharing the results of the program.
7-3. Commanders must maintain continual liaison with persons and
organizations in the local community to help resolve common problems
and develop cooperation and understanding between the installation and
7-1
FM 3-61.1
the local community. Community relations develop an effective two-way
channel of communication between the Army and the community. PA
does this by capitalizing on opportunities for better relations and
resolving potential and actual areas of conflict.
7-4. Community relations projects or programs may be supported by use
of exhibits, equipment and facilities. Exhibits consist of displays such as
mission exhibits models, devices and other information and orientation
materials at conventions, conferences, seminars demonstrations, exhibits,
fairs or similar events. Also included are exhibits displayed on military
i nstal I ati ons during open house programs.
COMMUNITY RELATIONS ACTIVITIES
7-5. The goals of community relations is to develop an open, mutually
satisfactory, cooperative relationship between the installation and the
community. A successful community relations program improves the
community's perception of the Army and its appreciation for the
installation and the soldiers, family members and civilians who are part
of the installation. It is based on openness and honesty. Community
relations objectives are community assistance and social improvements
for the community in which the military must work and live.
Historical Perspective
Fort Eustis, Va. started a pilot program in 1992 called Operation Self-Enhancement
to give high-risk middle school students the opportunity to visit the post and focus on
careers, teamwork and self-esteem. The program was so successful that it has
become an annual event. Students receive light military training through an array of
testable tasks and obstacles presented by members of a cadre team. This training
helps students build their self-esteem and self-confidence and affords them the
opportunity to interact with positive role models. This also gives the students a better
idea of what the Army is about.
7-6. Community Relations activities include:
• Speakers Bureaus. Speakers are an effective means of developing
understanding of the Army, stimulating patriotic spirit and
informing the public about the activities of the installation, its
units and its soldiers. Commanders should establish an installation
speakers bureau and encourage soldiers of all ranks to participate
in the installation program.
• Community Liaison. Maintaining liaison through informal
community relations councils can establish and maintain open
communications with community officials and organizations.
Councils can be charged with a variety of responsibilities, such as
developing and promoting new ways for members of the command
to actively participate in local community activities, capitalizing on
opportunities for better relations and resolving potential and actual
areas of conflict. Community liaison can also involve recognition of
private citizens, local community leaders and citizen groups and
organizations for their support of the Army by public service
awards. Commands can further community liaison through
membership in civic, business and professional organizations when
7-2
the goals and objectives of those organizations are beneficial to the
Army and their programs and projects are consistent with Army
interest.
• Ceremonial Units. The band, color guard and other ceremonial
units participating in public events are excellent ways to
accomplish community relations objectives. These representatives
of the Army serve as ambassadors to the civilian community and
promote patriotism, interest in the Army, and awareness of the
professionalism of our forces.
• Exhibits. Exhibits and displays of Army equipment, historical
materials, models, devices and other information are other
community relations activities that can enhance understanding of
the Army and the installation. They provide an excellent
opportunity for interaction between our soldiers and members of
the local community and can communicate the professionalism,
readiness and standards of our forces.
• Open House. Open houses may be scheduled to coincide with
Armed Forces Day, the Army Birthday, service branch birthdays or
anniversaries which mark the history of the installation, a unit or
community events or in support of media day. An Open House
gives the local community an idea of who we are and what we do.
They also have the opportunity to visit us on the installation-- at
our job site.
• Physical Improvements. Community service physical
improvements focus on ensuring that the physical infrastructure is
as safe as possible and provides the fullest possible range of
support to the population. These activities encompass a wide range
of programs that do not compete with the services provided by
contractors and businesses in the local civilian community.
7-7. Some examples of physical improvements are:
• Construction projects that enhance the recreational, educational,
environmental or cultural facilities of the community, such as
building community picnic areas and hiking and biking trails.
• Demolition projects that enhance the safety and appearance of the
community, such as the removal of unstable playground
equipment.
• Projects that create or enhance a safe, clean environment, such as
the removal of debris from a community wildlife area or painting a
community recreation center.
TOWN HALL MEETINGS
7-8. Town Hall meetings provide installation commanders with an
unfiltered means of communicating ideas to internal and external
communities. This tool for conveying important information and ideas
about the command cannot be underestimated in its effect and should not
be planned haphazardly.
7-9. Commanders, PAOs and staff directorates must work together to
produce an effective community relations product.
7-10. Prospective town hall meeting planners must understand, and
properly apply, the correct type of town hall meeting. With a focus on the
7-3
FM 3-61.1
type of meeting and probable audience, the planner can begin the process
of planning and conducting the event.
7-11. As part of the plan, the planner must determine the likely audience
for the meeting, including attendees from internal and external
audiences. He must also evaluate possible attendance by key publics.
The planner should develop a standing operating procedure (SOP) to
ensure each mechanism of the process is in place for the scheduled event.
7-12. Finally, post-event analysis is imperative to accurately assess its
effectiveness.
7-13. The PAO must develop systems to quickly assess the feedback data
and activate a follow-up plan that will maintain confidence from the
community that town hall meetings are meaningful events.
TYPES OF TOWN HALL MEETINGS
7-14. Installation commanders can stage various types of town hall
meetings. The commander must determine which meeting type, or
hybrid, is appropriate for disseminating information and gaining useful
feedback from internal and external publics.
7-15. The following meeting program structures have inherent strengths
and weakness; knowing the potentials for message delivery will assist the
commander in making his decision:
• Commander - Expert Format: This meeting (Figure 7-1), is
characterized by the commander attending with key staff members
facing a live audience. Typically the commander and his staff will
give presentations and then field questions from the audience.
Usually, attendance is open to the public.
• The primary advantages to this format center on the open nature of
the meeting.
• This meeting provides the commander with an opportunity to
provide detailed presentations with time being a minimal
constraint. He also receives instant feedback from the types of
questions from the audience and the passion with which questions
are asked.
• Meetings in this format are likely to be seen as the most easily
accessed by the internal and external publics.
• Among the disadvantages of the format is the ability to reach large
audiences and control the conduct of the meeting.
• Unless the meeting is taped for later airing on the commander's
cable access channel, the audience is often narrowly focused.
• Although the possibility exists that large audiences will attend, it
is also possible small or narrowly focused audience will limit the
general effect the commander seeks.
• An open meeting can also become the forum for unruly or
disgruntled audience members to incite others or attempt to draw
the commander into an open confrontation.
• This factor can be mitigated through the use of question time-limits
and use of a moderator (other than the commander), but cannot be
7-4
totally eradicated. (As with any other public event, security must
be a consideration in the planning process).
COMMANDER-EXPERT FORMAT
PODIUM
W/MICROPHONE
AUDIENCIi
* Other Attendees: PAO, Youth Activities Director, School Principal,
Theater Manager, Hospital Cdr etc..
Figure 7-1. Commander Expert Format
7-16. Commander Access TV Channel Format: This meeting format
(Figure 7-2) uses the commander's cable access channel to air the event.
Normally, the commander, CSM and Garrison Commander (and other
staff members as necessary) give a presentation. No live audience is in
attendance. The commander provides a set of phone numbers, allowing
questions to be called in. The staff operates the phone bank, accepts the
questions, directs the questions to the appropriate staff agency, and
delivers the answers by 3x5 card to the on-air panel. The panel members
read the questions/answers to the viewing audience.
7-17. This format offers advantages focused on control and distribution of
the product. The venue and the setting are completely controlled by the
commander and his staff. The staff screens questions and, thus, no
surprises will occur. Indeed, if questions/answers are given to the
commander, he may choose to either not answer or return the card for
more information.
7-5
FM 3-61.1
7-18. Other advantages include an ability to re-run the meeting as often
as desired and provide copies to local cable providers, many of which are
i nterested i n usi ng the product for ai ri ng.
COMMANDER'S ACCESS TV CHANNEL FORMAT
ROOM 1 - STUDIO
GARRISON
COMMANULK
* i *
CAMERA
NOTE: NO IN-STUDIO AUDIENCE
ROOM 2 - SUBJECT MATTER
EXPERT PHONE BANK
- CIVILIAN PERSONNEL OFFICER
- DIRECTOR OF COMMUNITY
ACTIVITIES/ ARMY COMMUNITY
SERVICE
■ PUBLIC AFFAIRS. OFFICER
DIRECTOR OF
PUBLIC WORKS-
HOSPITAL COR -
PX MANAGER -
CARDS
WfANSWERS
PROVIDED
ft
i
Figure 7-2. Commander Access TV Channel Format
7-19. Disadvantages to this format center on a difficulty in gauging
feedback, competing for viewing audiences on television, and providing
personal contact with the commander. With no attending audience,
collecting feedback data is problematic. Follow-up questionnaires, using
statistical probability methods, provide the only means of gaining reliable
feedback. The likelihood of viewers to "channel -surf" is high due to the
specific nature of questions from callers. Holding the interest of viewers,
all of whom have multiple other viewing options available, is difficult.
Finally, by appearing on television, in uniform, with a phalanx of staff
members, the commander risks appearing to be speaking from "the
mount." Audiences may view the commander as speaking down to them
and being out-of -touch to their concerns.
7-20. Key members from the internal and external publics form a
roundtable discussion (Figure 7-3). The topics are set by published
agenda, with sometime left for open discussion. The meeting results are
published for general distribution. Media are usually invited as
participants.
7-21. Roundtable discussions with key publics offer advantages to the
commander by providing information to the individuals who represent
overlapping and wide constituencies. By setting an agenda, the
commander can deliver focused messages with a high likelihood of the
messages later reaching targeted audiences. It allows the commander
7-6
and potentially key staff officers to deliver presentations and provide
follow-up information to those in attendance.
Commander's Roundtable Format
Commander
Command
Sergeant
Major ^^B^^^^^SI^^^^^^ Media Rep. 1
School
Superintendent
Media Rep. 2
Mayor
PAO
Chamber of
Commerce
President
City Council Director of
Member Community
Activities
Figure 7-3. Roundtable Format
7-22. The principal disadvantage is the distance between the commander
and the publics. The publics will receive information about the meeting
second-hand and in a potentially filtered state. Gaining feedback may
also prove challenging (but not necessarily impossible). Other
disadvantages may be in the limits of the audience makeup; key publics,
which are not invited, may resent the slight.
7-23. Commander-in-the-round format. A room is set-up that will allow
the commander to be in the middle of all the attendees. Normally, he will
stand and walk around in the circle formed by attendees. The meeting is
usually open to the public.
7-24. The primary advantage to this format is the close contact the
commander shares with his audience. Audience members may feel that
barriers are lowered because the commander is close in proximity and no
staff members are buffering their access. The commander also can
realize feedback very quickly and can gain some appreciation for the
resonance of his ideas with the assembled audience.
7-25. Such closeness with the audience can also be a significant
disadvantage. Limiting surprises and controlling potentially unruly
audiences is extremely difficult in this format. Further, because of the
commander's reliance on his personal notes and memory, his ability to
provide detailed information and multi-media presentations may be
restricted.
7-26. Mitigation against such limits is dependent on the site design.
Other disadvantages include problems associated with other "open"
formats, including a possibly non-representative makeup of the audience.
7-7
FM 3-61.1
7-27. Before deciding on which format is appropriate for the information,
the commander must have a plan for what must be achieved.
7-28. Characteristics of an effective plan:
7-29. Answers the "why?" questions. The planner must understand the
purpose of the meeting to correctly advise the commander on the format
and substance to begin coordination of the plan. As described above, the
various formats each have strengths and weaknesses that will assist the
planner to shape the meeting.
7-30. Routinely Scheduled. Normally, meetings can be scheduled
quarterly or monthly. Use the installation planning cycle to ensure
proper coordination and notification of public meetings.
7-31. Site Plan. Checking and securing a site for the town hall meeting is
dependent upon the type of meeting selected. Plan for the site early in the
process and establish the layout of the site in detail.
7-32. Calendar Check. Before scheduling events, check local and regional
calendars for possible conflicts. For example, scheduling a meeting on the
same night as the local high school homecoming football game may prove
disastrous.
7-33. Presentation Submission Deadline. Coordinate with appropriate
staff agencies responsible for preparing presentations. Ensure
presentations are properly staffed and approved. As PAO, establish a
firm submission cut-off date.
7-34. Focused Presentation. Inform the staff of the commander's intent
for the meeting. If the commander wants a particular theme addressed,
ensure staff agenci es adhere to the parameters of the i ntent.
7-35. Media Invitation List. Invite local and regional media including
print and electronic outlets. Develop relationships with individual
reporters and provide background material as necessary. (Local
newspapers, radio stations and television stations can often assist in
pu bl i ci zi ng meeti ngs as wel I ).
7-36. Publicity Plan. Ensure all available avenues are used to publicize
meetings. Included in this process are the post newspaper and radio
station (where available), normal distribution, staff meetings, E-mail
delivery and chain of command communications. Take special care to
invite key publics by individual invitation and phone call follow-up.
EVALUATING FEEDBACK
7-37. Assessing the effectiveness of town hall meetings is essential to
developing community-related policies and courses of action for the
command. PAOs can use standard statistical measurements using
survey techniques to gauge the level and intensity of views of the various
publics. Other analyses can be derived from follow-up media content
analysis, letters to the commander and post newspaper, and reactions at
the meetings. None of the methods described here will render a perfect
picture. PAOs must exercise good judgment and personal insight when
advising the commander of analytical results.
7-38. Response Follow-up. Investigating and responding to issues
raised at town hall meetings are critical to public perceptions of the level
of care the commander applies to community operations. J ust as a
7-8
maneuver commander sees battle damage assessment (BDA) as crucial to
determining the efficacy of fires, commanders and PAOs must determine
the true productiveness of community relations programs. Commanders
will often feel compelled to promise action, such as investigation or
immediate problem resolution, during a meeting. Staff agencies are
normally the conduit for actions (only occasionally will the commander
personally provide the requisite service).
7-39. PAOs should provide the staff oversight of the response mechanism.
PAOs can devise a recurring memorandum that provides the commander
(usually through the chief of staff), details about the status of actions. All
staff agencies should receive updates routinely.
7-40. Along with the response mechanism, PAOs can use command
information and media relations channels to inform the publics of
problem resolutions. For example, if an issue raised at a town hall
meeting indicated that the local recreation center was routinely opening
two hours late each day, describe the measures taken to alleviate the
problem. The PAO can use the post newspaper or radio station to provide
lists of problems and resolutions.
CONCLUSION
7-41. Community relations and activities are vital to instilling and
maintaining the confidence of internal and external publics in our great
Army. Commanders and PAOs cannot leave the prospect of successful
relations to chance. Too much is at stake. Careful selection of the type of
town hall meetings to be used must betaken. The event must be planned
with the attention to detail required for all military operations. Each
part of the plan has unique importance and cannot be overlooked. To
ensure the effectiveness of the operation, PAOs are compelled to build a
clear mechanism for evaluating outcomes. Finally, the command must
provide conspicuous follow-up responses to issues raised to complete the
process. Town hall meetings provide an excellent opportunity for
commanders and the various publics to interact and improve community
institutions.
COMMUNITY ASSISTANCE
7-42. Community assistance applies the skills, capabilities and resources
of the needs and interests of the local community. Providing support for
and participating in events and activities which are beneficial to both the
Army and the community, builds on a long tradition of "America's Army"
helping American communities. Identifying opportunities, which advance
the interests of both the Army and the community, is an important
objective for every commander.
7-43. Community assistance projects and operations must impact
positively on the unit or individual soldier, enhance unit or individual
readiness and contribute toward the common good of the community.
Army commanders must ensure that their initiatives are not competitive
with local resources or services and do not benefit any particular interest
group and will not result in monetary or service remuneration in any
form for unit members or the unit as a whole.
7-44. Increasing public awareness and understanding of the Army,
inspiring patriotism and enhancing the Army's reputation as a good
7-9
FM 3-61.1
neighbor is a goal of community assistance. Community assistance
activities can help build unit morale and esprit de corps. These activities
also provide an excellent opportunity for soldiers to serve as role models,
which not only enhances recruiting efforts, but also serves to motivate
soldiers by promoting their self-esteem and furthering their sense of
service to the nation.
READINESS ENHANCEMENT
7-45. Certain community assistance activities enable a commander to
train soldiers, enhance individual and unit readiness, maximize use of
assets and foster a positive training environment where soldiers can
become involved in realistic, "hands-on" training opportunities. Projects
should be selected which exercise individual soldier skills, encourage
teamwork, challenge leader planning and coordination skills, and result
in measurable, positive accomplishment. Finally they should enable a
unit to exercise use of its equipment, resulting in training opportunities
that can generate greater operator efficiency for future missions.
7-46. Examples are:
• Medical Readiness Program. The Medical Readiness Program is an
activity in which Army medical unit personnel, together with state
medical emergency officials, plan and provide support in the form
of diagnosis, treatment, and preventive medical, dental, and
veterinary care to citizens in remote areas of the U.S. or its
territories. The program is designed to enhance the unit's medical
readiness, provide unit training opportunities and serve the public
in locations where medical care is not otherwise available. The
program may not compete with local private medical care that may
be available.
• Air Ambulance Participation. The Military Assistance to Safety
and Traffic Program. (MAST) is a proven example of Army support
to civil authorities. This program permits the utilization of Army
aviation assets to conduct emergency air evacuation and recovery
efforts.
• These projects contribute to the health and welfare of the
community, making the Army an integral partner in community
progress and development. They can enhance the ability of the
local community to support itself and its people, to provide the best
possible services to the citizens and to promote a positive, healthy
safe environment.
• Community service activities are those which focus on improving
the community, its infrastructure and its ability to serve the local
population.
7-47. Social Improvements. Community service social improvements,
which focus on making the social environment as healthy as possible,
provide the widest range of support to the population. They encompass
many projects including:
7-48. Support to youth programs, such as scouting and programs that
provide assistance to special need audiences such as the Special
Olympics.
7-49. Examples are:
7-10
• The Civilian Youth Opportunities Program (Challenge). This is a
youth program directed at attaining a high school diploma,
providing job training and placement, improving personal and
social skills and providing health and hygiene education and
physical training. Soldiers work with civilian leaders to provide a
comprehensive support package, ranging from choosing
appropriate clothing to attending residential training facilities.
• Youth Physical Fitness Clinic Program. The National Guard
encourages fitness and combines academic and athletic
achievement by helping schools conduct competitions in selected
athletic events. This program also establishes a separate scholar-
athlete category for those students with a 3.5 or higher grade point
average.
7-50. I nvolvement in ventures and projects that enhance the educational
or cultural climate of the community, such as adult literacy, reading or
community theater programs.
7-51. Examples are:
• Civilian Community Corps. This program provides managerial,
organizational and technical skills for disadvantaged Americans
seeking the skills for success. Through this program, the Army
helps participants become productive citizens. In exchange,
participants perform a wide range of community service activities
that improve the foundation of American society. This program
encourages intra-governmental cooperation on the federal level. It
also encourages partnerships with industry, education, state,
federal and local governments.
• Science and Technology Academies Reinforcing Basic Aviation and
Space Exploration Program. (STARBASE) This program is an
innovative partnership of professional educators, military
personnel and corporate sponsors. It promotes science,
mathematics and technology basics for primary through secondary
schools. Using National Guard resources to spark student interest,
the program develops strong self-esteem, provides excellent role
models, promotes positive attitudes and develops goal-setting
skills.
• The guiding principle behind community relations efforts is that
the installation and the community have a common interest in
providing the best possible support for each other. A cooperative
relationship exists, because soldiers stationed at the installation
receive life support from the community while many of the civilians
who make up the community receive life support from the
installation. The interdependence of the military installation and
the civilian community can involve economics, education, health
care, basic services, quality-of life issues and many others.
• The community relations goal of local commanders is to develop an
open, mutually satisfactory, cooperative relationship between the
installation and the community. These efforts improve the
community's perception of the installation and the soldiers, family
members and civilians who are part of the installation.
• Participation in community relations activities is an effective
method for projecting a positive Army image, making the best use
7-11
FM 3-61.1
of assets, providing alternative training opportunities and
enhancing the relationship between the Army and the American
public. Activities vary widely, ranging from individual soldier
involvement to full Army participation. They are characterized by
detailed coordination between the military command and
community authorities. They fulfill community needs that would
not otherwise be met, enhance soldier and unit morale, skills and
readiness and improve the mutual support between the military
and civilian communities.
7-12
Chapter 8
PA Organizations
THE BRIGADE
8-1. The Brigade PAO is the lowest level to which the Army has assigned
organic Public Affairs Assets.
8-2. Working as both a special staff officer and as a member of the
Brigade's planning team, the BDE PAO acts as the spokesperson for the
unit, advisor to the Commander, and provides Public Affairs guidance
and planning to commanders at all levels.
8-3. To support and conduct Public Affairs Operations within the
Brigade, the BDE PAO has the following functions, organization and
equipment:
8-4. Specific functions of the Brigade PAO, as outlined within the core
competencies are:
• Public Affairs Planning
■ Advise the commander and staff on PA implications of plans
and actions.
■ Write Brigade PA annex and matrices using operational tools,
terms, graphics, and concepts
■ Execute the plan
■ Plan for future operations.
■ Command and control attached Public Affairs assets within the
brigade AO.
■ Tactically communicate with PA units and supported combat
units in the Brigade's Battlespace.
• PA Training
■ Train and supervise stringers to assist their commanders in
conducting their internal information programs.
■ Train soldiers, family members, DACs and everyone habitually
associated with the unit to comfortably and successfully
communicate with the media.
■ UtilizeTrain theTrainer.
■ Evaluate public affairs training programs of subordinate
commands.
■ Train subordinate commands to facilitate the media.
8-1
FM 3-61.1
■ Train leaders and soldiers to protect information products and
information systems from compromise and intrusion by
practicing security at the source.
• Media Facilitation
■ Assist media to gain access to units, soldiers and commanders.
■ Evaluate subordinate command's media facilitation plan.
■ Assist subordinate commanders to coordinate transportation.
■ Conduct situation briefs as needed.
■ Monitor media operations within the Area of Operations.
(Maintain accountability of the media to preclude fratricide.
Accomplished through reports from escorts or through
electronic tagging and monitoring.)
■ Respond to and mediate potential media problems; react
quickly to coordinate and facilitate information issues in
Brigade's Battlespace.
• Information Strategies
Monitor and analyze the local Military Information
Environment.
Provide public affairs support to the G5 / S5 for the
development and implementation of civil affairs programs.
Support higher echelon Public Affairs requirements for
information.
Gather Open Source Information to help build relevant
information.
Assist Commanders to conduct internal and external
information to include Hometown News Release Program.
Monitor local news media products (Visual, print and audio)
and analyze for PA implications.
Monitor and Analyze the local Military Information
Environment.
Protect digital images, information products and PA and non-
PA information systems from compromise and intrusion.
8-5. Organizational Structure:
• Captain , 46A.
• Sergeant, 460
8-6. Equipment:
• Computer with compatible software and communications hardware
• Access to the Tactical Internet and tactical battlefield radio
communications
• Access to FM, Satellite, and video and cellular communications
• Access to Army Battle Command System, (MCS\ P or CSS\CS)
8-7. Transportation:
• HMMWV
8-8. Addititional Support Requirements. PAO requires linguistic support
from the Civil Affairs soldiers or contract civilians attached to the
Brigade.
8-2
SAMPLE PA EXECUTION MATRIX BRIGADE PUBLIC AFFAIRS OFFICER
PHASE I
PHASE II
CROSS LD
PHASE III
DEFEAT
PHASE IV
SEIZE OBJ.
LION
PHASE V
RECONSIT.
BRIGADE
PAD
CIVILIAN
MEDIA
PAD AND
CIVILIAN
MEDIA
1-66 AR
INTERNAL
EMBEDDED
MEDIA-
PRIORITY OF
EFFORT
EXTRACT
MEDIA
1-4 AV
AVIATION
WEEKLY
SAME
SAME
SAME
AVIATION
WEEKLY
DEPARTS
1-5 IN (L)
OWN THE
NIGHT MAG.
SCOUTS
MEDIA REPS
LINK PRIOR
TO DEPLOY
BSA
FOOD PREP
QTRLY
SAME
SAME
SAME
SAME
MEDICAL
SAFETY
STORIES
MEDIA -
INJURED
SOLDIERS
THE DIVISION
8-9. The Division PAO is the next level to which the Army has assigned
organic Public Affairs assets. The division is largely self-sustaining and
capable of independent operations. The division is a unit of maneuver,
organized with varying numbers and types of combat, combat support
(CS) and combat service support (CSS) units.
8-10. The division may be armored, mechanized, medium, light infantry,
airborne or air assault; each can conduct operations over a wide range of
environments.
8-11. Working as both a special staff officer and as a member of the
division planning team, the DIV PAO acts as the spokesperson for the
8-3
FM 3-61.1
division, advisor to the Commander, and provides Public Affairs guidance
and planning.
8-12. To support and conduct Public Affairs Operations within the
division, the DIV PAO has the following functions, organization and
equipment:
8-13. Functions: Assumption #L: DMAI N is not in country
• Gather, analyze and disseminate open source information, focusing
on global media, to increase the situational awareness throuhout
the command.
• Gather and disseminate multimedia products throughout the
command, and to external and home station audiences.
• Conduct Public Affairs research and write the PA Estimate of the
situation.
• WritethePAplanforOPORDERS, OPLANS, andTACSOPS.
• Monitor and analyze American and foreign public sentiment of
current operations from available media sources for PA
implications and advice.
• Monitor and analyze battlespace communications (visual, audio,
FM, satellite) for PA implications.
• Monitor news media products (Visual, print and audio) and analyze
for PA implications.
• Facilitate Media Operations.
• Subfunctions:
■ Assist media to gain access to units, soldiers and commanders.
■ Coordinate air and ground transportation on a non-interference
basis.
■ Conduct daily situation briefs as needed.
■ Respond to media queries.
■ Validate media's credibility, expertise, knowledge, purpose and
legitimacy.
■ Train and supervise unit-level PA representatives (Command
Information NCOs) to assist their commanders command
information programs.
■ Train soldiers, family members, DACs and everyone habitually
associated with the unit to comfortably and successfully
communicate with the media.
■ Survey soldiers, family members, DACs and other members of
the internal audiences to measure effectiveness of the
command information program.
8-14. Assumption 4&\ DMAIN is in country
• Advise the commander and staff on PA implications of plans and
actions
• Gather, analyze, and disseminate Open Source Information,
focusing on global media to increase the commander's situational
awareness.
• Gather and disseminate multimedia products throughout the
command, and to external and home station audiences.
8-4
• Conduct Public Affairs research and write the PA Estimate of the
situation.
• Write the PA plan for OPORDERS, OPLANS and TACSOPS
• Monitor and analyze American and foreign public sentiment of
current operations from available media sources for PA
implications and advise
• Monitor and analyze battlespace communications (visual, audio,
FM, satellite) for PA implications
• Monitor news media products (Visual, print and audio) and analyze
for PA implications
• Coordinate and integrate all information-related functions
(PSYOPS, CA, VI, J oint, Combined and Interagency PA) into the
PA plan
• Conduct I nformation Operations
• Act as a conduit for CI products from the field, sanctuary and
commercial sources for input into the commander's information
program. Provide command information to soldiers, family
members and Department of the Army Civilians.
• Facilitate Media Operations
• Subfunctions:
Coordinate air and ground transportation on a non-interference
basis
Assist filing stories, video and photographs on a non-
interference, reimbursable basis
Conduct daily situation briefs as needed
Respond to media queries
Validate media's credibility, expertise, knowledge, purpose and
legitimacy
Conduct Primary and Secondary accreditation
Primary-Full accreditation of non-accredited media
Secondary-Process media previously accredited at Corps and
higher
Survey soldiers, DACs and other members of the internal
audiences to measure effectiveness of the command
information program
8-15. Organizational Structure:
• At a minimum an embedded PA division section has:
■ Major 46A and two Captains 46A
■ Master Sergeant 46Z
■ Specialist 460
■ Specialist, 46R
■ PFC46Q
8-16. Equipment:
• Computer with compatible software and communications hardware
and tactical fax machine.
8-5
FM 3-61.1
• Access to the Tactical Internet and tactical battlefield radio
communications (SIN GARS, MSRTetc)
• Access to FM, Satellite, video and cellular communications
• Access to Army Battle Command System, (MCS\P)
8-17. Transportation:
• Light Division-HMMWV
• Armor and Mech Division-- HMMWV and Trailer
8-18. TAC 1AND 2 Missions and Functions
TACTICAL COMMAND POST PA SECTION
8-19. The TAC CP, Public Affairs Section is task-organized based on
METT-TC. It is the center of gravity for immediate internal and external
communication, resolution of Public Affairs issues and violations of
ground rules by media representatives. It acts as a conduit to the
Information Operations Cell in the DMAIN adding immediacy to the
Open Source I nformation process.
8-20. Public Affairs personnel deploy with the lead elements during any
contingency and remain with the TAC CP to assist the commander,
provide internal command information to deployed soldiers and limited
external information to home station. They conduct media facilitation to
expedite the flow of information to the America public while freeing the
commander and his soldiers to conduct their mission.
8-21. The TAC CP, Public Affairs Section maintains connectivity with
commanders and global information sources. It contributes to and
monitors the common relevant picture, and synchronizes collection and
dissemination efforts of soldiers far forward to internal and external
audiences.
8-22. Particularly during split-based operations, the PAO task organizes
his section to best serve the commander, his soldiers and the American
public's need for information.
8-23. Assumption #1: DMAI N is not in country
• Act as the division spokesman.
• Advise the commander and staff on PA implications of plans and
actions.
• Execute the plan.
• Assist DMAIN to gather Open Source Information to build the
common relevant picture.
• Conduct I nformation Operations.
• Gather and disseminate multimedia products throughout the
command and to external and home station audiences. Act as a
conduit for CI products from the field, sanctuary and commercial
sources for input into the commander's information program.
• Monitor and analyze battlespace communications (visual, audio,
FM and satellite) for PA implications.
• Monitor local news media products (Visual, print and audio) and
analyze for PA implications.
8-6
• Coordinate, integrate, and synchronize all information-related
functions (PSYOPS, CA, VI, J oint, Combined, and Interagency PA).
• Synchronize Public Affairs assets (internal and external) within
AO.
• Facilitate Media Operations:
■ Assist media to gain access to units, soldiers and commanders.
■ Coordinate transportation on a non-interference basis.
■ Assist filing stories, video and photographs on a non-
interference, reimbursable basis.
■ Conduct daily situation briefs as needed.
■ Respond to media queries.
■ Monitor media operations within the AO.
■ Respond to and mediate potential media problems; react
quickly to coordinate and facilitate information issues
throughout the AO.
■ Validate media's credibility, expertise, knowledge, purpose and
legitimacy.
■ Provide seamless connectivity for media accountability
throughout the AO.
■ Conduct Primary and Secondary accreditation.
■ Primary-Full accreditation of non-accredited media.
■ Secondary-Process media previously accredited at Corps and
higher.
8-24. Assumption 4&\ DMAIN is in country
• Act as the division spokesman.
• Advise the commander and staff on PA implications of plans and
actions.
• Execute the plan.
• Assist DMAIN to gather Open Source Information to build the
common relevant picture.
• Monitor battlespace communications (visual, audio, FM and
satellite) for PA implications.
• Facilitate Media Operations:
■ Assist media to gain access to units, soldiers and commanders.
■ Conduct daily situation briefs as needed.
■ Monitor media operations within the AO.
■ Respond to and mediate potential media problems; react
quickly to coordinate and facilitate information issues
throughout the AO.
■ Provide seamless connectivity for media accountability
throughout the AO.
■ Conduct Secondary accreditation.
■ Secondary-Process media previously accredited at Corps and
higher.
8-7
FM 3-61.1
8-25. The division public affairs section provides public affairs support to
the division commander and to divisional units deployed in support of
combined or joint operations. The division PAO has operational and
tactical control over all PA TOE organizations assigned or attached to the
division and coordinates closely with embedded PA sections within
brigades or divisions to carry out PA operations.
8-26. The division PA staff, when deployed, is augmented by one PAD
and one MPAD per three combat brigades. The division public affairs
section, if augmented only by a Public Affairs Detachment, operates the
division media operations center.
8-27. Traditionally, divisions have operated as part of a corps. In corps
operations, divisions normally comprise 9 to 12 maneuver battalions,
organic artillery battalions and supporting CS and CSS units. Divisions
perform a wide range of tactical missions and for limited periods are self-
sustaining. Corps augment divisions as the mission requires.
8-8
8-9
Chapter 9
Information Operations
INTEGRATING PUBLIC AFFAIRS
9-1. Information Operations involve a variety of disciplines and activities
that range from electronic warfare and physical destruction through
cyberwar and information campaigns. Public affairs is a related activity
of 10, and contributes to overall operational success, both real and
perceived.
9-2. Successful integrated 10 requires coordination of themes, messages
and activities in order to leverage the massing of information effects.
When synchronized with other military operations, 10 is a combat
multiplier.
9-3. Information campaign objectives cannot be neatly divided by
discipline, such as PA, CA and PSYOP. The responsible organization
cannot be easily determined solely by looking at the medium, the
message or the audience. For example, information about weapons turn-
in policy and collection sites may be disseminated through a variety of
means. This could include direct contact by Civil Affairs personnel with
local populations and their leaders; PSYOP print and broadcast products;
news releases, press conferences and other media facilitation coordinated
by PA.
9-4. In accordance with joint doctrine (J oint Pub 3-61, Doctrine for Public
Affairs in J oint Operations), public affairs are an operational function
designed to contribute to the overall success of joint operations. For
Public Affairs, the audience may be internal or external, but the objective
is constant: Soldiers, participants and the public must understand
objectives, motives and the nature, scope and duration of friendly actions.
The relevant audiences important to the commander are not limited to
soldiers and the American public, but are also international as well as
local to the operation.
9-5. Synchronized information operations contribute to military
campaigns in a variety of ways. These contributions may:
• Gain or sustain support for the U.S. or coalition position
• Reduce the need for combat forces
• Influence events with non-lethal means
• Counter propaganda and disinformatio
• Discourage adversary offensive operations
• Deter hostile actions
9-1
FM 3-61.1
• Undermine illegitimate regimes
• Support the maintenance of coalitions
9-6. I nformation Operations during peacekeeping operations:
• Promote peaceful cooperation
• Lower friendly force requirements
• Counter propaganda and disinformation
• Reduce friction leading to hostilities
• Gain and maintain the initiative
• Shape opponent plans and operations
9-7. These goals may not be achieved solely by tactical level information
operations, but rather, may be theater and national -level issues that are
reinforced by tactical -level message dissemination. This requires
horizontal and vertical integration of themes and messages to achieve a
massing of information effects.
IO STAFF ORGANIZATION
9-8. Composition of the Information Operations battle staff/coordination
council or other such element is flexible and tailored to the operation and
desires of the commander. (See figure 9-1). Notional 10 staff structures
are included in FM 3-13 (100-6), Information Operations.
(^Commander •)
(^ChiefofStalT)
c
G/
D
c
tia
f Electronic Warfare A
I Coordination Center J
D
(Signal
1
Officer
(^ FSCOQRD^)
}
i
1
G2
Rep
C 2 W Staff
Officer
i
i
i
Signal Officer
Rep
t
T
OPSEC
Officer
EW
Officer
PSYOP
Officer
FSCOORD
Officer
Deception
Officer
CA
Officer
LIWA
Rep
STO n
Rep
PA
Officer
SJA
Officer
Resident asset (organic)
Nonresident/augmented
Fig 9-1 Notional IO Battlestaff
9-9. The IO cell is often headed by the G-3 or his designated
representative, and includes representatives of a variety of organizations.
The staff may include, but not necessarily be limited to the G2, G3, G5,
G6, PAO, PMO, JAG, PSYOP, Electronic Warfare Officer, Political
Advisor, Joint Military Commission representative, Fire Support
Coordinator and Targeting Board representative.
9-2
9-10. The successful accomplishment of a specific mission may require
the close coordination and synchronization of the range of information
activities as well as maneuver elements. While the 10 cell is lead by the
G3 or his designate, 10 coordination is the responsibility of the Land
Information Warfare Activity field support team. While providing a
public affairs representative to the 10 Cell, PAOs must maintain a clear
and direct link with the commander.
LIWA
9-11. The Land Information Warfare Activity, an INSCOM element,
provides commanders with field support teams (FST) that serve as 10
advisors in addition to effecting the synchronization and coordination of
the range of activities that support 10. LIWA field support teams do not
serve as functional area specialists, but rather, coordinate the activities
of those elements. For example, the LIWA FST members may be from the
military intelligence and PSYOP branches, but do not serve as the
commander's intelligence analyst or PSYOP planner, or for that matter,
Public Affairs advisor. They do, however, coordinate the actions and
products of these and other activities in support of the 10 plan.
PA SUPPORT TO INFORMATION OPERATIONS
9-12. PA participation in 10 involves no completely new tasks but does
require a broadened scope of operations. PA support to 10 requires
analysis of the Global Information Environment (GIE) and the
operational environment, as well as synchronization of efforts with other
organizations and agencies to ensure themes and messages are consistent
and deconflicted.
9-13. PA in 10 requires PA staffs to be fundamentally proactive rather
than reactive. Often, actions may be taken and products developed to
assist command achievement of a desired end state. This is more than
merely reacting to events with a press release or conference
9-14. PA actions and events that support 10 include print and electronic
products, news releases, press conferences and media facilitation. PA
advises the commander on how the operation is being perceived and
portrayed and also provides guidance to unit commanders and soldiers.
This includes regular talking points and themes for commanders and
preparing soldiers to interact with the press. It's a means of emphasizing
selected issues and positions-speaking with one voice.
PA ESTIMATE AND IO PLANNING
9-15. The starting point for PA contributions to Information Operations
is the Public Affairs Estimate. (See Appendix C). The PA estimate
consolidates information on the audiences, media presence, public
opinion, personnel available and PA guidance.
9-16. This is not a static document created at the beginning of an
operation, but must be continually updated to reflect changes in the
operational situation and environment. Issues to consider include:
9-17. Audience analysis. Who are the audiences, both internal and
external? What are their information needs? How do they get their
information: television, radio, newspapers or word of mouth? Is the media
9-3
FM 3-61.1
state-run or independent? Does the audience population have telephones,
cell phones, fax machines or Internet connections? These devices are
frequently found even in developing countries and must be considered
during the analysis of information channels.
9-18. Media presence. What media representatives and organizations
are in the area of operation? Are they radio, television or print? Are they
state-run or independent? What is their political slant? Are they pro- or
anti -coalition? Are they receptive to coalition information products such
as news releases or other print or electronic products? Is the local media
interested in live interviews with U.S. commanders and soldiers?
9-19. Public Opinion. What are the opinions/beliefs of the local
populations; of the international community; of the U.S. national
population?
9-20. Personnel available. What is the available Public Affairs force
structure (PADs, MPADs, BODs, CPIC/J IB staff, unit organic PA staff
and individual additions), translators, Combat Camera and
administrative staff.
9-21. PA guidance. What guidance has been received from higher
levels? Official positions on theater issues are naturally not developed at
the tactical level. What is the theater strategic/national command
authority position? This is often coordinated and deconflicted at all levels
via conference calls and other communication means.
IO CAMPAIGN CYCLE
9-22. There are four stages to an 10 campaign cycle: capability
development, assessment, planning and execution. The execution stage is
accompanied by evaluation-- during and after the mission -- in order to
adjust operations as needed and after the operation to gather lessons
learned.
9-23. Capability development:
• Identify local resources and available external support. Theme and
message delivery can take many forms, including radio/television,
handbills, leaflets, loudspeakers, soldiers, displays, the Internet,
internal information products, USIA, Voice of America, print and
electronic news releases, press conferences, direct contact with
parties, leaders, officials and citizens. Direct contact may include
military liaisons, Civil Affairs personnel, diplomatic contact, or any
form of personal interaction.
• Establish processes and procedures
• Collect, organize and store relevant information
9-24. Assessment
• Perform mission analysis
• Obtain commander's guidance
• Define 10 goals and objectives
• Conduct risk assessment
• The assessment phase includes a mission analysis, clarification of
the commander's guidance, initial identification of 10 goals and
objectives and a risk assessment. Goals and objectives include a
9-4
determination of the desired end state and what must be done to
achieve it. This may mean inducing others to take or not take
certain actions, or have the information to make certain decisions
that will support the goals of the operation. Public Affairs is not in
the business of shaping beliefs and attitudes of populations, but
can provide factual information that enables people to make
informed decisions.
• Risk Assessment
Consequences for command if information operation fails?
Potential unintended effects?
Operational success too reliant on I O?
Can 10 campaign be used against U.S. or coalition?
Force protection issues?
Compromise or loss of impartiality?
9-25. Planning
• Develop and coordinate themes
• Determine the best implementation means
• Delineate tasks and responsibilities
• I dentify feedback and measures of effectiveness channels
• P repare i mpl ementati on order
• During the planning phase, specific themes are developed and
coordinated with all members of the 10 cell. Message/theme
delivery methods are determined and specific tasks and
responsibilities are assigned. The 10 cell may use a
synchronization matrix to effectively manage 10 events. For
example, this matrix will indicate specific actions, events or
products each member organization of the 10 cell will execute or
produce to support the plan. For example, a specific event may
require PSYOP leaflets and broadcasts, PA press releases, news
conferences and interviews with soldiers and Civil Affairs meetings
with local officials and community leaders. These activities are
coordinated on the matrix, ensuring deconfliction of resources,
messages and products.
• Measures of effectiveness and feedback indicators vary widely and
should be identified in the planning process. They may include
questions raised by the media, editorials and commentaries,
statements by public officials, postings to internet newsgroups and
forums, demonstrations and protests, statements during meetings,
responses given to public opinion surveys, behaviors during specific
events, as well as other SIGINT and HUM I NT collection and
analysis.
• The product of the planning phase is a synchronization matrix and
execution schedule. The matrix is then coordinated with the overall
synchronization matrix, ensuring that 10 is coordinated across the
BOSs.
9-26. Execution
• Conduct the mission.
9-5
FM 3-61.1
• 10 monitoring must be conducted throughout the execution of the
event and during follow-up review, feedback and evaluation.
• If necessary or possible, alter mission if evaluation determines it is
not successful or unexpected responses occur.
9-27. Evaluate
• Assess the effectiveness of the operation
• Determine preventive methods, document lessons learned and
apply to next operation
9-6
Appendix A
DoD PRINCIPLES OF INFORMATION
The DoD Principles of Information are contained in DoD Directive 5122.5,
Change 1. They chart the course for all DoD Public Affairs activities, and apply
to the full continuum of day-to-day activities and operations. It is the
commander's responsibility to ensure that all planning for military activities and
operations efficiently and effectively achieve the goals set by these principles.
DOD PRINCIPLES OF INFORMATION
A. Timely and accurate information will be made available so that the
public, Congress, and the news media may assess and understand the
facts about national security, defense strategy, and on-going joint and
unilateral operations.
B. Requests for information from organizations and private citizens will
be answered in a timely manner. In carrying out this policy, the
following principles of information apply:
(1) Information will be made fully available, consistent with
statutory requirements, unless its release is precluded by
current and valid security classification. The provisions of
the Freedom of Information Act and the Privacy Act will be
complied with in both letter and spirit.
(2) A freeflow of general and military information will be made
available, without censorship or propaganda, to the men and
women of the Armed Forces and their family members.
(3) Information will not be classified or otherwise withheld to
protect the government from criticism or embarrassment.
(4) Information will be withheld only when disclosure would
adversely affect national and operations security or threaten
the safety or privacy of the men and women of the Armed
Forces.
(5) The Department's obligation to provide the public with
information on its major programs and operations may
require detailed public affairs planning and coordination
within the Department and with other government agencies.
The sole purpose of such activity is to expedite the flow of
information to the public; propaganda or publicity designed to
sway or direct public opinion will not be included in
Department of Defense public affairs programs.
A-1
Appendix B
THE GUIDELINES FOR COVERAGE OF
DOD COMBAT OPERATIONS
DOD MEDIAGUIDELINES
The DoD Media Guidelines, issued as Change 3 to DoD Directive 5122.5,
provide the foil owing guidelines for coverage of DoD combat operations:
A. Open and independent reporting will be the principal means of
coverage of U.S. military operations.
B. Pools are not to serve as the standard means of covering U.S.
military operations. But pools may sometimes provide the only
feasible means of early access to a military operation. Pools
should be as large as possible and disbanded at the earliest
opportunity-within 24 to 36 hours when possible. The arrival of
early access pools will not cancel the principle of independent
coverage for journal ists al ready i n the area.
C. Even under conditions of open coverage, pools may be appropriate
for specific events, such as those at extremely remote locations or
where space is limited.
D. Journalists in a combat zone will be credentialed by the U.S.
military and will be required to abide by a clear set of military
security ground rules that protect U.S. forces and their
operations. Violation of the ground rules can result in suspension
of credentials and expulsion from the combat zone of the
journalists involved. News organizations will make their best
efforts to assign experienced journalists to combat operations and
then make them familiar with U.S. military operations.
E. Journalists will be provided access to all major military units.
Special operations restriction may limit access in some cases.
F. Military public affairs officers should act as liaisons but should
not interfere with the reporting process.
G. Under conditions of open coverage, field commanders will permit
journalists to ride on military vehicles and aircraft whenever
feasible. The military will be responsible for the transportation of
pools.
H. Consistent with its capabilities, the military will supply PAOs
with facilities to enable timely, secure compatible transmission of
pool material and will make these facilities available whenever
possible for filing independent coverage. In cases when
government facilities are unavailable, journalists will, as always,
file by any other means available. The military will not ban
communications systems operated by news media organizations,
but electromagnetic operational security in battlefield situations
may require limited restrictions on the use of such systems.
I. These principles will apply as well to the operations of the
standing DoD National Media Pool system.
B-1
Appendix C
PUBLIC AFFAIRS ESTIMATE
SAMPLE PA ESTIMATE
FM 6-99(101-5)
Classification
Headquarters
Place of issue
Date, time, and time zone
Message Ref. no.
PUBLIC AFFAIRS OPE RATIONS ESTIMATE NO.
References: Maps, charts, or other documents.
Ti me zone used throughout the esti mate:
1. MISSION
This paragraph lists the command's restated mission from a public affairs
perspective.
2. THE SITUATION AND CONSIDERATIONS
The paragraph describes the strategic and operational media environment in which
the operation is being conducted and identifies the critical factors that might impact
on the command's mission -- the "action and reaction" within global media channels.
It identifies the media environment across the operational continuum, describing it
from "austere" for low media interest and capability in a limited AOR communication
infrastructure to "dynamic" for high media interest and capability in a high-tech
AOR infrastructure. At a minimum, this paragraph must include:
a. Information environment. This paragraph describes the characteristics
of the operation and the information environment in the area of
operations. It identifies any activities or issues affecting the over-all
mission and the command's public affairs objectives.
b. Media presence. An assessment of the news media presence in the
theater of operations prior to deployment and the likely presence of
additional news media during the conduct of operations. This assessment
C-1
FM 3-61.1
should address the authority under which media representatives are
operating and the degree of control that can be imposed on their efforts.
c. Media capabilities. An assessment of the media's information collection
and communication technology, specifically identifying their level of
visual information acquisition and satellite communication capabilities.
It includes an analysis of the logistics support, transportation assets, and
host-nation communications infrastructure available to them.
d. Media content. An assessment of the global media's presentation of
information and their agendas, and an analysis and prioritization of the
potential strategic and operational issues confronting the command in
the news media. This media content analysis will provide an evaluation
of the quantity of coverage and the nature of that coverage.
e. Public opinion. Assessment of national and international attitude about
the operation and command, leaders, and soldiers conducting it. This
paragraph should include both the perceptions held by major audience
groups and the relative solidity or strength of those attitudes. A public
opinion analysis should include as a minimum an analysis of the
following groups:
■ American public
■ Civilian political leaders
■ Coalition and allied forces and their publics
■ International audience
■ I nternal command audience
■ Home station public
f. Information channel availability. An assessment of the information
channels avail able for the communication of information in and out of the
AOR. It identifies the means available to the commander for receipt,
transmission, and dissemination of voice, data, text, graphics, and digital
visual imaging. It describes command, coalition, and local national
facilities and equipment available, to include an analysis of available
telephone lines for voice and data transmission, the accessibility of audio
and video channels, the prevalence of private communications devices
such as soldier-owned cellular telephones, facsimile machines,
computers, portable radios and televisions, still and video cameras, and
the nature and flow of the information possible through these channels.
g. I nformation needs. This is an assessment of the information needs of the
previously identified key publics. It analyzes key internal and external
audiences and assesses theirs news and information expectations. It
identifies the types of information made avail able to these key audiences.
h. Personnel situation. Describes the present dispositions of public affairs
personnel and units that affect the PA mission, and the assets needed
and available. State known personnel problems, if any, that may affect
the PA situation. Consult the personnel estimate for details. (Examples
of personnel include shortages of PA NCOs and skilled operators for
equipment.)
i. Public Affairs situation. This summarizes current PA objectives and
identifies specific courses of action for each objective. At high levels of
command, detail information in a summary with a reference to an annex
to the estimate. Subparagraphs will include all current (PAG) from OSD
(PA).
j. Logistical situation. State known logistic problems, if any that may
affect the PA situation. See logistic estimate for details. (Examples of
C-2
logistic problems include the lack of transportation and adequate
facilities.)
Assumptions. Until specific planning guidance from the commander
becomes available, you may need assumptions for initiating planning or
preparing the estimate. Modify these assumptions as factual data or
planning guidance becomes available.
3- ANALYSIS OF COURSES OF ACTION
Analyze each course of action based on the public affairs objectives in paragraph 2i.
Indicate problems and deficiencies. At a minimum, subparagraphs should include
media facilitation and support, news and information provision, and force training
and support.
Analyze each COA from a PA point of view to determine its advantages and
disadvantages for conducting PA. The detail in which the analysis is made is
determined by the level of command, scope of operations, and of urgency of need.
4. COMPARISON OF COURSES OF ACTION
Compare each course of action. List advantages and disadvantages of each course of
action under consideration. Include methods of overcoming deficiencies or
modification required for each course of action.
5. CONCLUSIONS
a. Indicate whether you can support the command mission (restated in
paragraph from the public affairs viewpoint.
b. I ndicate which COAs you can best support.
c. List major public affairs deficiencies, which commander must consider.
Include specific recommendations about methods of eliminating or
reduci ng thei r effects.
(Public Affairs Officer)
ANNEXES: (As required)
DISTRIBUTION:
(NOTE: The headings listed in this assessment are for example only. Use headings
appropriate to your command's operations.)
Classification
PA Operations Estimate
C-3
Appendix D
PUBLIC AFFAIRS ANNEX
SAMPLE PA ANNEX
FM 6-99(101-5)
(Classification)
(Change from oral orders, if any)
Copy of copi es
Issuing headquarters
Place of issue (may be in code)
Date-time group of signature
M essage reference no.
AN NEX_ (PUBLIC AFFAIRS) TO OPE RATIONAL ORDER
References: Maps, charts, and other relevant documents
Time zone used throughout order:
1. SITUATION
A brief general description of the situation, information affecting public affairs
support, which paragraph 1 of the OPORD does not cover, and intended purpose of
this annex.
a. Friendly forces. Outline the higher headquarters' plan (and PA annex) and
adjacent unit PA plans. Provide information on friendly coalition forces,
which may impact the PA mission. Note PA resources supporting the unit.
(Who, where, when), (higher, allied and adjacent headquarters).
b. Attachments and detachments. Identify all augmenting PA units supporting
this command and all attached/assigned subordinate units. I nclude effective
dates, if applicable.
c. Enemy forces. List information not included in the OPLAN/OPORD, which
may impact the PA mission. (Who, where, when, disinformation, rumors,
propaganda and OPSEC).
d. Media. Identify media in the area, (who, where, pools, US. international,
local-host country).
e. Assumptions. List any additional assumptions or information not included in
the general situation, which will impact the PA mission.
2. MISSION
Clearly, concisely state the public affairs mission. (Internal information for deployed
and non-deployed forces, media facilitation and staff operations).
3. EXECUTION
a. Concept of operation. Briefly summarize the public affairs operation plan.
Include PA priorities. (Intent --access, information, welfare, morale, will to
win) (Concept-who, where, what, why, when) (Specifics-task to a
D-1
FM 3-61.1
subordinate; who is to do what, where, when, covers non-PAs too, actions
with media: credential, train, transport)
b. Outline of PA tasks. Identify and assign supporting PA tasks to each
element of subordinate and supporting units. Assign specific tasks to
elements of the command charged with public affairs tasks, such as
requirements for PA augmentation.
c. Coordinating instructions. Give details on coordination, task organization
and groupings. List instructions, which apply to two or more subordinate
elements or units. Refer to supporting appendixes (PA assessment) not
referenced elsewhere. (Public Affairs Guidance, media in country, media
enroute with US forces, media contact report, handover checklist, and task
organization).
4. SERVICE SUPPORT
a. A statement of the administrative arrangements applicable to this operation.
If they are lengthy or are not ready for inclusion in the OPORD, these
arrangements may be issued separately and referenced here.
b. A statement of the logistical arrangements applicable to this operation.
Specific coordination should be included if possible, but arrangements may be
issued separately and referenced here, if they are too lengthy. (Class I -IX and
water), (Services: billets, medical, laundry and mortuary), (Transport:
ground, air, TOE, tasked rented/leased, contracted).
5. COMMAND AND SIGNAL
List signal, visual imaging and satellite communications policies, headquarters and
media center locations or movements, code words, code names, and liaison elements.
(PAO location, media center, J I Bs, sub-J I Bs, phones, faxes, e-mail and web page).
ACKNOWLEDGE:
NAME (Commander's last name)
RANK (Commander's rank)
OFFICIAL:
APPENDIXES: (List PA assessment appendix)
DISTRIBUTION:
Classification
D-2
Appendix E
PUBLIC AFFAIRS GUIDANCE
SAMPLE PA GUIDANCE
Public Affairs Guidance (PAG) is the operational tool that guides
commanders and their public affairs officers in the application of doctrine
and policy during major military operations, exercises, and contingencies.
The information below is tended to assist local commanders in preparing
and obtaining approved guidance.
DoD policy requires that PPAG be provided to the Assistant Secretary of
Defense-Public Affairs (ASD-PA) by the Unified and Specified commands
and others, as required for all major operations.
This requirement includes major training exercises that could attract
national and/or international attention. PPAG may not be used without
ASD-PA approval.
Upon receipt of the warning order, the commander, through his PAO,
should request PAG from high headquarters. PAG may be included in
alert notification or operational orders (see Part Three: Operational
Planning). Commanders of major units/commands will direct their PAOs
to prepare PPAG to forward the proposal through MACOM and
Unified/Specified command PA channels to ASD-PA.
Commanders of Unified/Specified commands should ensure that the
PPAG has been coordinated with appropriate organizations within the
theater of operations whenever possible (e.g., embassies, country teams,
host governments, subordinate commands).
Upon receipt of the PPAG, the ASD-PA coordinates and staffs the PPAG
within the DoD and Department of State.
The ASD-PA then issues a message either approving, modifying, or
disapproving the PPAG. PPAG is broken down into subject, references
and then eight paragraphs (Information/explanation, Purpose and
coordination for PPAG, PA Approach, Public Statement, Q&As,
Contingency Statement, Miscellaneous Information, Point of Contact).
The format for PPAG follows:
SUBj ECT
The subject line of the PPAG should state "PROPOSED PUBLIC
AFFAIRS GUIDANCE -followed by the exercise and/or event name(U)."
For coordination, it is best if the subject is unclassified.
If an exercise or event is so sensitive that the actual name cannot be
used, an unclassified short title should be used; e.g., "PROPOSED
PUBLIC AFFAIRSGUIDANCE -CC-(U)."
REFERENCES
Pertinent messages or other documents shall be cited in the reference
section. If the PPAG is based on PA policy in the Significant Military
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FM 3-61.1
Exercise Brief, then theSMEB message Date-Time-Group (DTG) shall be
listed.
EXERCISE INFORMATION
The first paragraph of the PPAG shall explain the references, the
exercise, and any significant existing or anticipated problems associated
with the exercise. The information in this paragraph is not for release so
may remain classified after the PAG is approved for release. This
paragraph may restate some PA information from the SMEB.
COORDINATION INFORMATION
The second paragraph shall explain the purpose of the message;
identify it as being fully coordinated and theater-approved; request ASD-
PA approval and specify the date it is required for use. If the PAG is
transmitted to the ASD-PA before it is fully coordinated, it is the
responsibility of the submitting command to ensure that the ASD-PA is
promptly informed of the results of the remaining coordination. The
submitting command should always follow-up a PPAG message with a
phone call to ensure that the primary addressee(s) is aware that the
message is en route. When the submitting command is a supporting
CINC from outside the supported CINC's AOR, the supported CINC is
responsible for theater coordination.
PA APPROACH
The third paragraph shall discuss the public affairs approach for the
exercise; i.e., active or passive. This may be a restatement of the PA
policy indicated in theSMEB.
• Active Approach
■ For this discussion, an "active approach" involves efforts made
to stimulate public or press interest such as distributing press
releases and inviting the press to observe the exercise. If an
exercise or event is to be publicly announced, this paragraph
shall state who will make the announcement, the method of
announcement, and preferred time, and date for the
announcement. If unusual circumstances prevail, the rationale
for the recommendation should also be included. Part I and II
exercises shall normally be announced by the ASD(PA) by
issuing a news release (blue top). Other lesser exercises or
training deployments, if announced by the ASD(PA), normally
shall be made by release of a memorandum for correspondents
(MFC). The preferred release time and/or date of exercise
announcements is 1200 Eastern Standard Time (E.S.T.) on
either Tuesdays or Thursdays in conjunction with the normally
scheduled DoD press briefing. If a combined announcement is
desired with a host country, complete details of the methods,
time, and procedure shall be included in this paragraph. The
active approach is recommended whenever possible to ensure
appropriate media coverage of specific commands and/or units.
• Passive Approach
■ A "passive approach" is where no action is taken to generate
media and/or public interest in an issue or activity beyond
answering specific inquiries. If a passive approach is desired,
E-2
Appendix E
the PPAG shall so indicate and specify that the PAG is for
response to query (RTQ) only. It shall also specify who is
authorized to respond; e.g., "Only OASD(PA) may RTQ," or "All
of the following addressees may use this PAG for RTQ only."
To de-emphasize an event, it is best to authorize release or
RTQ at the I owest possi bl e I evel .
PUBLIC STATEMENT
The fourth paragraph shall contain a statement that explains the
exercise and/or event. The statement shall be for public release in an
active PA approach or for RTQ in a passive PA approach. For ease of
coordination, each paragraph of the statement shall be identified as a
sub-paragraph of the message; for example: The following statement is
for initial public release: (TEXT FOLLOWS): QUOTE.
EXERCISE (NAME)
THE EXERCISE WILL
PREVIOUS MILITARY
FOR ADDITIONAL INFORMATION,
CONTACT (UNQUOTE).
As indicated above, the last paragraph of the statement shall identify
points of contact where additional information may be obtained.
QUESTIONS AND ANSWERS (Q&AS)
The fifth paragraph shall contain a list of proposed Q&As to enable the
user to respond to the majority of anticipated questions. They should all
be contained in one paragraph and should be numbered sequentially; e.g.,
Ql, Al; Q2, A2; Q3, A3, etc. Q&As are for use in both active and passive
PA approaches, but are strictly for RTQ only and shall not be given to
media as handouts.
CONTINGENCY STATEMENT
The sixth paragraph of the PPAG shall contain a contingency
statement to be used efore release of the final PAG. Usually, the
contingency statement should be that we don't discuss exercises before
they have been formally announced. However, this approach can be
modified, as appropriate, depending on the circumstances of the exercise.
If a contingency statement is not required, so state in Paragraph 6 of the
PAG.
MISCELLANEOUS INFORMATION
The seventh paragraph shall contain other pertinent information to
include the following items (when a certain sub-paragraph is not
applicable, so state):Media Information Centers (e.g., J oint Information
Bureaus (J IBs), Press Information Centers (PICs), exercise PA elements,
etc.) Discuss whether centers are joint or combined; delineate who is
responsible for the establishment; give generic description of its
E-3
FM 3-61.1
composition (e.g., U.S. Army desk (0-4 and E-6/E-7), U.S. Navy/Marine
desk (USN 0-4/0-5, and USMC E-5/ E-6), etc.); establish the center's
functions (coordination of all exercise media and/or PA activities,
clearance of U.S. military-generated news material before release,
production of news material for release, escort of accredited news media
representatives); etc.
• Command Relationships
■ Designation of sole approving authority for all exercise-related
news materials; procedures for the release and/or clearance of
information (to include list of addressees for notification in
case of accident and/or incident); request for participating
commands and/or units to ensure that the media center is
action and/or information addressee on all messages with
potential PA impact (to include incident and/or accident
reports); hometown news release requirements and/or
instructions (passive PA approach may make hometown
releases inappropriate); etc.
• Media Coverage
■ State whether media coverage is encouraged or solicited, giving
rationale; news media transportation instructions; point of
contact (POC) and procedures for handling such requests;
requirements for news media representatives (valid passport,
working media visa, local accreditation requirements, funds for
food, lodging, return travel (if military air is not available),
etc.); instructions regarding assistance to continental United
States (CONUS)-based units for handling request from news
media for accompanying travel before and following public
announcement of the exercise; etc.
• DoD National Media Pool
■ Each exercise is a potential opportunity for activation and
deployment of the DoD National Media Pool to cover exercise
activities. As a minimum, planning should include
arrangements for local ground and/or air transportation,
special clothing or equipment to be provided, messing,
billeting, protection of media equipment and gear, local escort
requirements, and communications support for filing of pool
products. Sponsoring commands shall indicate whether the
exercise should be considered for a pool deployment. Identify
the primary POC should the pool be activated.
• Internal Media and Audiovisual Coverage
■ Provide instructions on assistance that will be provided to this
effort; degree of freedom of movement (to include whether
escorts are necessary); screening of visual information (VI)
materials upon completion of exercise; sponsoring command
POC for handling internal information matters; etc. Also
include guidelines for Armed Forces audiovisual teams
documenting the exercise.
• Media Opportunities
■ If known well enough in advance, provide chronology of
potential exercise events that would be of interest to media.
• Miscellaneous PA Considerations
E-4
.Appendix E
■ Indicate any other proposed PA activities or considerations; if
there are none, then so state.
POINTS OF CONTACT
The eighth paragraph shall state the originating POC's name and
phone number.
DECLASSIFICATION INSTRUCTIONS
Declassification instructions shall be the last part of the message and in
accordance with subsection 4-207 of DoD 5200.1-R (reference (d)).
E-5
Appendix F
PUBLIC AFFAIRS OPERATIONS BRIEFINGS
BRIEFINGS
The purpose of a briefing and the desired response or result determines
the briefing technique. Basically, there are four briefing types: the
information briefing, the decision briefing, the mission briefing, and the
staff briefing.
The Information Briefing. The information briefing informs the
listener and deals primarily with facts and background information. The
Information Briefing contains an introduction to the subject and the
scope of the subject area. It then presents the high-priority information
requiring immediate attention and complex information involving
complicated plans, systems, statistics, or charts. It may also explain
controversial situations or information, which require elaboration.
The Decision Briefing. The Decision Briefing includes many of the
elements of the information, but goes further by seeking a decision from
the decision-maker. At the beginning, the briefer clearly states that he is
seeking a decision; at the end, he requests the decision.
The Mission Briefing. The Mission Briefing gives special instructions,
amplifies the mission, elaborates on new orders, or assigns taskings to
subordinate elements. This briefing usually follows the five-paragraph
operations order format. But the briefer may also choose the information
briefing format.
The Staff Briefing. The Staff Briefing informs the commander and staff
of the current operational situation. Its purpose is to generate a
coordinated or unified effort and in a tactical environment. It serves to
keep the entire staff aware of each section's activities, thus aiding
coordinated action. While there is no specific briefing format,
commanders usually tailor this type of briefing to fit their information
needs. PAOs address the major PA activities and the PA implications of
the operational situation and other staff sections activities.
In a commander's staff briefing, the PAO is responsible for providing a
summary of the "global information environment (GIE)." The PAO
should present this information at the beginning of the briefing, following
the intelligence summary. The PAO's Gl E summary, combined with the
G2/S2's intelligence preparation of the battlefield (IPB) briefing, helps to
complete the picture of the operational situation, which the other
elements of the command must react.
Preparation. After conducting the initial analysis of the situation, the
briefer gathers and organizes information, prepares visual aids, and then
rehearses, briefing only what is essential. Before developing the briefing,
the briefing officer or NCO must know and understand:
• the higher headquarters mission
• the higher commander's intent
• the commander's personal guidance and intent
• all aspects of the PA estimate of the situation
• the command's objectives
F-1
FM 3-61.1
While much of the information required for a GIE presentation can be
found in previously published PA Area Studies, a significant amount of
situational information should pulled directly from the PA Estimate of
the Situation and updated to present the latest information available.
BRIEFING FORMAT
The PA briefing format should follow an outline similar to the PA
Esti mate of the Situation:
Mission - Command mission including PA objectives
Situation and Conditions
I nformation environment
PA situation
Media presence
Media capabilities
Media content
Public opinion
Information channel availability
Information needs
Current Operations/Actions
F utu re Operati ons/Acti ons
F-2
Appendix G
PUBLIC AFFAIRS AREA STUDIES
FORMAT FOR PA AREA STUDIES
Public Affairs area studies provide the PA specialist and the PA planner
a starting point to begin their campaign planning process. These studies
are produced either to address long-term general background information
or to address immediate short-term needs.
BASIC STUDY
A PA study is a document that succinctly describes the most PA-pertinent
characteristics of a country, geographical area, or region. It serves as an
immediate reference for the planning and conduct of PA operations.
TITLE PAGE
The title page of a Media Environment Study (MES) must show the
country, area, group, or other subject of the study. It should also show
the classification, the copy number, the date-time group, and command
post location. (The originating unit should keep a record of the names,
grades, and duty assignments of the authors.)
EXECUTIVE SUMMARY
The executive summary should address the strategic significance of the
area under study. (The authors should write the executive summary last,
in a clear, brief, accurate, and coherent form.)
NOTE: The commander reading the summary should us its information
to decide how to employ Public Affairs in that area.
TABLE OF CONTENTS
Executive Summary
Introduction
Chapters
1. H i story and I deology
2. Government and Politics
3. Foreign Relations and Policy
G-1
FM 3-61.1
4. Society and Culture
5. Economy
6. Military Establishment
7. Communication Process and Effects
Endnotes
APPENDIX
A. Country Summary
B. Government Structure
C. Communications Facilities
D. Glossary
Bibliography
Distribution
INTRODUCTION
G-2
The introduction outlines the study's intent, cites the directive requiring
the study, and explains the study's format.
The study's intent is to provide a summary of aspects of subject country
significant to GIE. The study should identify psychological
vulnerabilities, characteristics, insights, and opportunities that exist in
subject country.
It is prepared as a basic source document for further development of
estimates, plans, and annexes.
Although this study can help develop contingency plans, it is not tailored
to any particular plan. Rather, its neutral data and insights can be used
to analyze possible political and military developments in the region.
Insert here a paragraph referencing the authority directing the study and
stating the research cutoff date and provisions for updating the study.
Focus the PA study on the Gl E aspects of the many topics addressed. Do
not view this document as a comprehensive and self-contained area
study.
I nstead, use it as a complement to such other standard references as the
Department of the Army Area Handbook Series. In addition, the PA
study should include:
Results from standard open source products.
Tries to be more analytical than descriptive in nature, making it subject
to varying individual perspectives.
Works well when PA specialists compare it with studies on other
countries in the region or area.
Is not a U.S. foreign policy statement or comprehensive analysis of
subject country, except in areas with direct Gl E relevance.
.Appendix G
Insert here a statement of U.S. policy goals toward the country in
question. This information comes from the proper USA Country Plan,
Department of State Policy Memorandum, or similar document, in the
priority order.
Because certain gaps exist in getting PA study material (classification
level, availability of complete and timely information, or time limits on
research), listing these gaps here to aid future research and guide PA
study users to further inquiries.
Insert here issues or GlE-relevant material (such as an area map) not
included, addressed, or completely answered elsewhere.
CHAPTER 1
HISTORY AND IDEOLOGY
I n this chapter, review the evolution of the state and its people, focusing
on aspects having GIE and Public Affairs significance. Do not detail
chronology of the country's development. Keep in mind, however, the
country's history has an important relationship to the country's historical
perspective, attitudes, and current world position.
Because of its special importance to PA, in this chapter, cover historical
issues thoroughly. An historical analysis of current political, economic,
and military policies gives PA personnel a solid base for the study.
CHAPTER 2
GOVERNMENT AND POLITICS
In this chapter, summarize the country's political system. Give a
description of its political power sources, policy making process, and the
political complexities of the government.
When discussing the political system, pay close attention to the role of
individuals, special interest groups, and political parties. Include the
population's political attitudes, values, and view of the political system.
Also discuss the government's function in society.
CHAPTER 3
FOREIGN RELATIONS AND POLICY
In this chapter, summarize the country's foreign relations. Describe its
political alignment in world affairs and its relationship with the United
States. Describe the foreign policy of the country. Also analyze and
interpret why the country acts as it does in international affairs.
CHAPTER 4
SOCIETY AND CULTURE
I n this chapter, analyze the subject country's social setting. Provide the
PA personnel with the knowledge needed to understand potential
audiences.
Cover the country's social organization and cultural and behavioral
patterns and characteristics. Place special emphasis on the society's
social values and the role of the family.
G-3
FM 3-61.1
Address culture, social organization, education, customs, ethnic
composition, and the interrelated effects of religion, language, and
history.
CHAPTERS
ECONOMY
In this chapter, present a brief description of the characteristics,
structure, and dynamics of the national economy. Cover the subject
country's economic strengths and weaknesses, current economic and
labor problems, and economic potential
Describe the country's economic base and the importance of agriculture,
industry, and trade. This information helps determine if the present
economic structure meets the people's needs.
These economic considerations explain many of the sociological conditions
that impact public opinion. Address society's perceptions of the wisdom
of government economic policies.
Also describe individual or group perceptions of how members of society
stand to gain or lose from those policies.
CHAPTER 6
MILITARY ESTABLISHMENT
In most countries, the military establishment involves itself in internal
politics as well as external defense. Even when the military
establishment does not directly compete for political power, its actions
influence social and political development. Analyze the following topic
areas:
• Emergency of the modern military establishment.
• Military roles in the political, economic, and social spheres, and the
effects of those rules.
• Issues creating cohesion or conflict within the armed forces.
Leadership.
Conflicts within the military establishment.
Extent, quality, and influence of foreign military aid.
CHAPTER 7
COMMUNICATION PROCESS AND EFFECTS
List essential information about communication patterns for the
implementation of a PA program. Include the foil owing information:
Manner and social means of communication (not technical data on
communications facilities).
Languages and language groups, nonverbal communication, and
nonverbal symbols specific to the country's culture or cultures.
Distinctive styles in rhetoric or visual arts, including dramatic, poetic,
and musical forms. All these forms are significant to PA.
Data on the society's formal and informal leadership positions where the
incumbents are key communicators and opinion leaders.
Analysis of the reading and listening habits of the society.
G-4
ENDNOTES
Appendix G
Analysis of printed formats.
Analysis of media effectiveness. Also address freedom of the press issues,
if any.
LIST PUBLICATIONS, DOCUMENTS, AND OTHER SOURCES USED
IN PRODUCING THIS BPS. NUMBER TEXT REFERENCES
SEQUENTIALLY WITHIN THE STUDY.
APPENDIXA
COUNTRY SUMMARY
APPENDIX B
Give the reader a brief overview of the subject country, its geography, and
its people. These background data and statistics should include the
following items:
Country. Identify the country, tell when formed, and show previous
control .
Government. State briefly the type of government, method of appointing
or electing leaders, and length of terms. List current leader or leaders
and political power in country.
Size, location, and geographical subdivision. List the size of the area in
square miles or kilometers, and give the general location. Show any
geographical subdivision, such as coasts, mountains, and flatlands.
Population. State the number of people and the area density. Show the
heavily populated areas.
Languages and dialects. List the official language, languages spoken by
the population, percentage of population speaking each language, and
areas of the concentrations.
Labor. Outline the total work force, the area of endeavor, and the
percentages.
Religions and sects. List the religions of the area and the percentage of
the population that practices each.
Education. List the types of systems and the primary emphasis of each.
Literacy rates. Latest statistics.
Health. List the general conditions of the populace. Describe the medical
care system.
J ustice. Describe the justice and court systems.
Administration. Outline the breakdown of the governmental andjudicial
districts, counties, or precincts.
Transportation. List the methods of transportation available and include
the total capabilities. This information may include the number of
airlines, airfields, kilometers and kinds of highways, and kilometers of
waterways and depth.
Armed forces. List organization and strengths.
Police. List the types and areas of responsibilities.
G-5
FM 3-61.1
GOVERNMENT STRUCTURE
APPENDIXC
GLOSSARY
List the formal government structure, key positions, and organizations of
the country. Outline the chain of government control, including political
parties, if applicable. A schematic diagram may be helpful.
Include only branches of government and their key positions, not names.
COMMUNICATION FACILITIES
Give a brief overview of the subject country's media facilities. Include the
facilities' locations and levels of technical sophistication. Cover printing,
publishing, and the distribution of radio and television receivers, studios,
transmitters, and relay facilities. Include news service facilities. Write
this appendix as if the U.S. PA units will use this equipment or contract
for its services. Since PA personnel may get operating supplies or repair
parts from in-country sources, provide the foil owing information:
• Make.
• Model.
• Type.
• Series.
• Name of manufacturer.
Any other technical information on the repair or operation of this
equipment.
Prepare a glossary that lists in alphabetical order all acronyms and
foreign words used in the study. List also all words and terms that have
special meaning and need to be defined.
BIBLIOGRAPHY
DISTRIBUTION
List the source material used. Include the name of the author, the title of
the publication, the publisher, and the date of publication.
Dissemination is accomplished by the originating agency for the
recipients within PA. I ndude in the distribution list the identification of
recipient agency (by code), the number of copies furnished, and the office
symbol of the red pi ent.
G-6
Appendix H
BRIEFINGS AND PRESS CONFERENCE FORMATS
NEWS BRIEFING AND PRESS CONFERENCE FORMAT
Before the Presentation
Know your publics
Anticipate interests, concerns and questions
Consider the latter in preparation
Prepare your presentation
Develop a strong introduction
Develop a maximum of three key messages
Assemble your supporting data
Prepare audiovisual aids
Practice
Prepare for answering questions
Anticipate what questions will arise
Prepare answers to those questions
Practice questioning and responding
The Opening Statement
A strong openi ng statement sets the tone for the press conference or news
briefing and is crucial in attempting to establish trust and build
credibility. The elements of a strong opening are:
Introduction
A statement of personal concern
A statement of organizational commitment and intent
A statement of purpose and plan for the meeting
Key messages and supporting data
A maxi mum of three "take-home poi nts"
I nformation to support the key messages
Conclusion
A summarizing statement
Total time for all presenters should be 15 minutes or less. Do not have too
many presenters. Three is usually sufficient.
Introduction
H-1
FM 3-61.1
Remember that perceived empathy is a vital factor in establishing trust
and building credibility and your publics assess it in the first 30 seconds.
Examples are:
Statement of personal concern: "As a resident of this community I'm
interested in the safety and well-being of our families and
neighborhoods."
Statement of organizational commitment and intent: " I'm here to share
with you the knowledge and confidence I have in the military's ability to
assist the citizens of our community. They have been trained in their
occupational skill to assist with the task at hand."
Statement of purpose and plan for the presentation: Today I would like
to share with you the most current information regarding the (incident.) I
will also be available to answer additional questions or to continue the
discussion.
Key messages and supporting data
The key messages are points you want your publics to have in their
minds after the presentation. They should:
Address central issues.
Be short and concise.
Examples are:
"We have trained personnel and emergency response plans in pi ace to aid
in protecting the health, safety and welfare of the public. We are working
with local and state officials to handle the incident.
"We are actively respondi ng to the emergency...."
To develop your key messages:
Brainstorm
Think freely and jot down all pieces of information you wish to
communicate.
Select key messages
Identify the most important ideas. Repeat the process until you list is
down to three items.
Identify supporting data
Other information you listed probably provides support to your key
messages. Organize it to reflect this.
Conclusion
Restate verbatim your key messages.
Add a future action statement --- What is your organization going to do
about this problem in the short and long term?
H-2
Appendix I
WAIVER OF LIABILITY STATEMENT
Whereby, I NAME passport no:_
am about to travel with forces, and whereas I am doing so entirely upon my
own initiative, risk and responsibility; now, therefore, in consideration of the permission
extended to me; I do hereby for myself, my heirs, executors and administrators, remiss,
release and forever discharge and its member officers, agents and employees
acting officially or otherwise, from any and all claims, demands actions or causes of
action, on account of my death or on account of any injury to me or my property which
may occur from any cause during my stay, travel as well as all ground, flight or sea
operations incidents thereto.
I also agree to withhold any classified information, which may be accidentally disclosed
to me, and to respect embargo restrictions, which may be imposed on information which,
if disclosed, may jeopardize operational security. During my stay with forces, I
will not interfere with operations. I understand that failure to comply with these security
restrictions will result in the loss of authorization to accompany and may result in
cancellation of my press registration.
Signature Witness
Printed Name Nationality
Address:
Please provide the following information for a person to be notified in an emergency
(preferably next immediate relative):
1-1
Appendix J
SAMPLE PRE-DEPLOYMENT CHECKLIST
INTRODUCTION
A multitude of factors make each deployment uniquely different from other
deployments. Each factor must be carefully examined to determine its impact on the
mission, actions before deployment and what equipment is taken.
(Unit Basic Load). In all other instances the chances of drawing the UBL are
remote. Certainly if the unit is deploying for war it would draw the unit's basic load
of ammunition Exercise or deployment duration will affect the quantity of
expendable supplies.
This checklist, like all others, is based on what has occurred before and what we have
come to expect in the future. As equipment and missions change, so too must the
checklist. Bottom line, expect the unexpected and react accordingly; use the checklist
as a guide to help you through deployment preparation. Add to it whenever the need
arises.
CHECKLIST ITEMS
1. Each HQ element and unit should have a 45-day supply of expendables identified
and set aside for contingency operations. This supply should be inventoried
quarterly and stockage rotated accordingly.
2. Maintain and update a master list of all areas and topics that can affect
individual readiness. This includes all shots, dental status, family support plan,
check to bank, etc.
3. The PAO or detachment commander (or deploying team leader) should:
a. Review and update PA estimates annexes and plans.
b. Obtain and comply with applicable published Public Affairs Guidance.
c. Inventory and inspect TOE equipment for accountability and
serviceabi I ity before deployment.
d. Figure total weight and cube of equipment before moving to assembly
area.
e. Check dependency clause in TOE document or OPLAN to determine who
will be supporting and who is supporting us. Ensure responsible parties
know the relationship. Establish liaison with units OPCON; attached or
any new parent organization.
f. Ensure accompanying equipment not on TOE is listed on interim
authorization document (such as facsimile machines or cellular phones).
g. Prepare an internal OPORD for your element detachment or team.
h. Review the essential elements of friendly information (EEFI) contained in
the base OPLAN/OPORD and ensure each soldier understands them.
4. All leaders must consider the need for the foil owing:
a. Will flak vests be required?
b. Should each soldier take a footlocker instead of a dufflebag?
c. Will weapons' carrying/security cases be needed/available? (Will weapons
and protective masks be required?)
d. Will desert or jungle uniforms be required, and if so, what fund can be
used to pay for alterations, sewing and patches?
e. Is there an opportunity for a service contract to be initiated at the
deployed location? Cameras, video, computers, etc.? if not, and cameras
go down and must be swapped out, what is the plan?
f. Will the deployment be considered TDY? If so, who prepares orders?
What fund cite will beused? Are rental vehicles available? (AreweTDY
under field conditions and required to carry meal card?)
J-1
FM 3-61.1
g. Will a fund cite be made available after redeployment to pay for repairs?
(Make this request soon after being tasked - don't wait until
redeployment to find out you've got to use unit funds to repair
equipment.)
h. If departing from location other than current station, what type of
transportation to that location is to be used for personnel and equipment?
i. Will personnel and equipment travel together at all times? (Insist that
they do whenever possible!)
j. Does each team have a credit card holder for authorized payments or
purchases?
k. Has an express mail system been established to ensure timely transit of
products to home station? With what frequency? (If you arethe ARFOR
or sub-JIB, have the division PAO's/PAD's establish a plan to get
products to you for review, release or use).
I. Under what conditions will the MPAD or team(s) work? Fixed site, field
conditions, etc. Will we need to deploy our own tents for sleep and work?
m. Is the heat a condition that will affect computers, cameras, batteries, etc?
If so, is air conditioning available? Refrigerators for film? What about
humidity problems? Air conditioning may help but can dehumidifiers do
better... consider charcoal bags placed in shipping cases,
n. From what unit(s) do we draw support... rations, billets, fuel, etc.?
o. If one team is deployed for a lengthy duration, is there an opportunity for
the teams to be rotated?
p. If deploying a risograph or other commercial printing machine, what
quantity of copies and frequency (daily, weekly) is desired? What is the
plan for distribution of copies? What is the plan for paper replenishment?
q. Has every effort been made to ensure deployed asset has commercial
phones avai I abl e to assi st transmi tti ng di gi tal photographs, respondi ng to
query, accidents and incidents, fax capability, etc.
r. Has unit/team packing list been carefully checked to ensure the easy-to-
forget yet must- have items are not forgotten. Glue sticks, chalk, scotch
tape, blank overheads, etc.
J-2
Appendix K
PAO SOP OUTLINE
Chapter 1, Alert Notification Procedures
Annex A, Notification Procedures
Annex B, Section Telephone Contact Roster
Chapter 2, Individual Preparation
Annex A, Individual Admin Checklist
Annex B, POV Storage Plan, Procedures for Completing Post
POV Storage Forms.
AnnexC, Personal Property Storage Plan
Section 1, Power of Attorney
Section 2, State of Obligations
Section 3, DD Form 1299, Application for
Shipment/Storage of Personal Property.
Section 4, DD Form 1701, Household Goods I nventory
Annex D, Recommended Personal Readiness Equipment
Annex E, Family Member P re-deployment Checklist
Chapter 3, Unit Preparation
Annex A, Unit Equipment List
Chapter 4, Tactical Vehicle Preparation
Annex A, Vehicle Preparation Standards
Annex B, Vehicle Load Card
Annex C, Vehicle I nspection Checklist
Annex D, J oint Airlift Inspection Record
Annex E, HMMWV Configuration and Load Plan
Chapter 5, Rear Detachment Operations
Annex A, Communications
Annex B, Logistics Coordination
Chapter 6, Public Affairs Checklists
Annex A, P re-Deployment Checklists
Annex B, Guide for Media Interviews
AnnexC, METL and Tasks, Conditions, Standards
Annex D, DoD Principles of Information
Annex E, Policy on the News Coverage of U.S. Military in
Combat
Annex F, PA Guidance on Terrorism Counteraction
Annex G, PA Guidance on Counter-Drug Operations
Annex H, Standard PA Ground Rules
Annex I, Spokesperson Guidelines
AnnexJ , Command Unique Media Operations Center
Guidelines
Chapter 7, Field Operations
Annex A, Tactical Uniform
Annex B, Installation Security
AnnexC, Tactical communication
Annex D, Personal Hygiene
Annex E, Morale, Welfare and Recreation
K-1
Appendix L
EXAMPLE OF MEDIA OPERATIONS CENTER
Operations of a media center will need the foil owing support:
• Communications
• Vehicle support (day-to-day operations and media transport
tactical or non-tactical as needed)
• Billeting and rations for media center personnel
• Admin support personnel for 24-hour operations
• Office space (hard site if possible) and power as needed
MEDIA OPERATIONS CENTER
Headquarters Group
Media Operations Group
Figure L-1. Media Operations Center
L-1
Appendix M
NEW MEDIA INQUIRY FORMAT (SAMPLE)
This format is intended as an example only and should be adapted to local needs and SOPs.
In addition to query forms, PAOs should maintain a separate log of all inquiries.
MEDIAQUERY SHEET
Query Number:
Deadline:
CALLER'S NAME:
CALLER'S NEWS ORGANIZATION:
CALL TAKEN BY: TIME:
QUESTION (use reporter's precise wording):_
DATE:
RESPONSE (if written releaseis made, attach a copy):_
SOURCE OF INFORMATION/COORDINATION (e.g., G-3, surgeon):
RELEASED TO:_
TIME /DATE:
RELEASE METHOD: In Person Phone
RELEASED BY: RELEASE NUMBER:
News Release
M-1
Appendix N
GUIDE FOR MEDIA INTERVIEWS
GUIDELINES
1. Considerations
a. When human safety or other serious concerns are involved, deal with those
considerations first.
b. Communicate only information that is approved for external distribution.
Always tell the truth.
c. Know to whom you are speaking. Get the person's name and telephone
number, if necessary.
d. Do not be intimidated. You may tell a reporter that you need to clarify an
important matter before you can answer questions.
e. Talk from the public's viewpoint. Avoid jargon. Speak within the audience's
frame or reference.
f. If the questions do not lie within the framework of approved statements or
within your area of expertise, find the appropriate technical advisor or
spokesperson.
g. State the most important fact at the beginning. Place your own headline on
the answer.
h. Attack problems in your answers, not people.
i. Do not repeat offensive or negative language. Do not let other people put
words in your mouth.
j. Direct questions deserve equally direct and forthright answers.
k. Do not exaggerate the facts. Listen to how your answer "sounds" when
spoken.
I. Ignore cameras and microphones. Talk to the reporter.
m. During videotaped interviews, it is all right to stop your statement and start
over.
n. Do not say "no comment." Explain why you do not have an immediate
answer.
o. Keep your composure, even if a news reporter gets snappy.
p. Be prepared to provide sufficient evidence for statements you make.
q. Be especially alert about photos. You have little control over photos taken off
military reservation property, but you have every right to control photos
taken on the military reservation.
r. Be aware of your surroundings and follow local OPSEC rules when
determining interview location
2. What will be asked?
a. What happened and where? When did this occur
N-1
FM 3-61.1
b. Are there injuries or deaths as a result? How many and to whom?
c. What actions is the unit taking to control the situation?
d. Have chemicals or other hazardous substances been released into the
environment? What kinds? How much?
e. What types of hazards are presented to people off-site?
f. Have off-site emergency response personnel been notified? Which ones?
g. Are unit operations shut down?
h. Has the site or facility been evacuated?
i. How many people are employed at this site?
j. What do you do at this site?
k. How old is the facility? Does it meet current regulations?
I. Why did this situation occur? (DO NOT SPECULATE.)
m. Are there safety rules covering the situation? Were they violated?
n. Has a Site Emergency Response Plan been activated? What does that
involve?
o. Tell me about your organization?
p. Will this situation have national ramifications, or will its effect likely be
limited to a single site or region?
q. How much money is this going to cost the taxpayers?
r. Is there insurance coverage for the I oss or damage? How much?
s. Are commanders handling the situation locally or is a higher headquarters
taking control?
t. Has this occurred anywhere within the unit before? Why weren't you ready?
u. What do your soldiers think about this situation?
v. For accidents and incidents, don't speculate causes. Use "ongoing"
investigation statements.
N-2
Appendix O
MEDIA RESEARCH AND ANALYSIS
AN INTRODUCTION
Since the early part of the 20th century, when there was almost no
interest in the size of audiences or in types of people that comprised
various audiences, business leaders and their organizational
communicators have increasingly come to rely on research for nearly
every major decision they make. This expanded demand for information
has created a particular demand for media communication research
capabilities, specifically -- the development of a scientific basis for media
analysis and media effects.
The importance of mass communications research and media analysis is
partly due to the realization that gut feelings or reactions are not entirely
reliable or credible bases for decisions. Although common sense is often
accurate, Army commanders and other decision-makers need additional,
more objective information to evaluate problems, especially when lives
are at stake. Thus, the past 50 years have witnessed continuing
evolution of media analysis, combining research and intuition to create a
higher probability of success.
This evolution has resulted in a "scientific" approach to media research
known as media content analysis.
SCIENTIFIC RESEARCH: A DEFINITION
Scientific Research is defined as a "Systematic, controlled, empirical,
and critical investigation of hypothetical propositions about the
presumed relationships among observed phenomena." This
definition contains the basic terms that are necessary in defining the
method of scientific research and describes a procedure that has been
accepted for centuries. I n the 16th century, for example, scientist Tycho
Brahe conducted years of systematic and controlled observation to prove
wrong many of Aristotle's theories of the universe. By gaining an
understanding of the phenomena, he challenged the accepted beliefs and
knowledge of the time with his own hypotheses. Thus, scientific research
was begun.
Whether we realize it or not, we all conduct research as a matter of
course in our day-to-day life whenever we speculate about the possibility
of something -- we start with an idea or concept and test it.
All research begins with a basic question or proposition about a specific
phenomenon -- for example, Why do Americans usually support the
soldiers within the Army when they may not support the operation the
soldiers are involved in? What factors determine why Americans will
support the political justification for military involvement? What types of
messages are most effective in garnering support for American forces?
0-1
FM 3-61.1
The answers to these questions can be forecast to some degree with well-
designed research studies. There are some difficulties, however. The
Army media analyst faces the problems of determining which data
collection methods can most accurately provide answers to the questions
at issue, and in gaining adequate access to information prior to and
during military operations. In the pages that follow, we will describe the
methods and procedures PA professionals may use in overcoming these
difficulties.
RESEARCH APPROACHES
There are several research approaches or "methods of knowing" which
have been used to conduct studies: intuition, authority, and science.
I n the intuition approach, one assumes that something is true because it
is "self-evident" or "stands to reason." An example of this type of thinking
would be if some Public Affairs leaders resist efforts to perform area
studies because they believe they already "know" their AO.
The authority method seeks to promote a belief in something because a
trusted or credible source says it is true. Here, the emphasis is on the
source, not the methods the source may have used to gather his
information.
The scientific method approaches learning as a series of small steps,
with each step identifying more specific information and leading to a
more clearly identifiable conclusion.
For example, one study or source provides only an indication of what may
or may not be true; the "truth" is found only through a series of objective
analyses.
This means that the scientific method is self-correcting in that changes in
thought or theory must be continually reviewed, that issues and
situations require constant monitoring.
The scientific method has become a valuable tool to produce accurate and
useful data in mass media research. This annex focuses solely on the
scientific approach and forms the fundamental basis for media content
analysis in Army Public Affairs.
MEDIA RESEARCH:THE SCIENTIFIC METHOD
The goal of Public Affairs media research is to provide the methodology to
support situational assessment, planning and decision-making that is
fast, inexpensive, reliable and valid. The application of scientific
methodologies to media research by Public Affairs personnel
accompl ishes this goal .
Five basic characteristics, or tenets, distinguish the scientific method
from the other methods of research. A research approach that does not
follow these tenets cannot be considered a scientific approach:
• Scientific research is objective. Science tries to rule out
eccentricities of judgment by researchers. When a study is
undertaken, explicit rules and procedures are constructed and the
researcher is bound by them, letting the chips fall where they may.
Objectivity also requires that scientific research deal with facts
rather than interpretations of facts.
0-2
.Appendix O
• Science is empirical. Researchers are concerned with a world
that is knowable and potentially measurable. (Empiricism derives
from the Greek word for "experience.") Analysts must be able to
perceive, understand, and classify what they study and reject
nonsensical explanations of events. For example, a newspaper
editor's claim that declining readership rates are "God's will"
would be rejected by scientific researchers because such statements
cannot be perceived, classified or measured. Experience shows that
there are usually easily identifiable reasons for declining
readership.
• Scientific research is systematic and cumulative. No single
research study stands alone, nor does it rise or fall by itself. Astute
research analysts always use previous studies as building blocks
for their own work. One of the first steps taken in conducting
research is the review of all available literatureon the topic so that
the current study will draw on the heritage of past research.
• Scientist attempt to find order and consistency in their
findings. In its basic form, scientific research begins with a single,
carefully observed event and progresses ultimately to the
formulation of theories and laws. A theory is a set of related
propositions that present a systematic view of phenomena by
specifying relationships among concepts. Researchers develop
theories by searching for patterns of uniformity to explain and
describe the information collected.
• Scientific research is predictive. Science is concerned with
relating the present to the future. In fact, scientific researchers
strive to develop theories because they are useful in predicting
behavior. The importance of theories lies in their ability to predict
an outcome or an event successfully. If a theory generates
predictions that are supported by data, and the results are always
the same, the theory can be used to make predictions in other
similar situations.
MEDIA ANALYSIS STEPS
Evaluation of a problem must follow a standard sequence of steps to
increase the chances of producing relevant data. Analysts who do not
follow a prescribed set of steps increase the amount of error possible in
the study.
These steps are:
• Select a topic (issue, situation, perception, or belief).
• Review existing research and other available information on the
topic.
• Develop hypotheses and research questions.
• Determine an appropriate methodology, format or design.
• Collect relevant data.
• Analyze and interpret the results.
• Present the results in appropriate form (Information Paper, PA
Study or PA Estimate)
• Validate and replicate the study when necessary.
0-3
FM 3-61.1
The use of the scientific method of research is intended to provide an
objective, unbiased evaluation of data pertaining to an issue or event. To
investigate hypotheses systematically, media analysts must follow these
steps. However, merely following the eight steps does guarantee that the
research is good, valid, reliable or useful.
A countless number of intervening variables (influences) can destroy even
the most well-planned research effort. Unanticipated events occurring
during the research period may impact the results and they must be
accounted for during the process. However, PA analysts must remain
focused on the purpose of the research effort and not lose sight of the
original objectives.
STEP 1-- SELECTING ATOPIC, DETERMINING RELEVANCE
Selecting a research topic is usually not a concern for Public Affairs
analysts -- planning guidance, current situations, and most importantly,
the operational issues confronting our commands, will guide the
application of media content analysis. In most instances, the Public
Affairs analyst will receive planning guidance well in advance of an
operation, which will help determine the issues to be addressed.
Once the basic subject has been chosen, the next step is to ensure that it
is relevant to the operation or situation at hand. This can be
accomplished by answering six basic questions.
• What is the goal of this research effort?
• Is the subject too broad?
• Can the subject really be studied?
• Is the subject significant?
• Can the results of the research be generalized, communicated and
understood?
• Does the issue lend itself to analysis?
Underlying all eight steps of the Media Analysis process is the necessity
for validity. In other words, are all eight steps (from topic selection to
data analysis to presentation and interpretation) the correct ones to
follow in trying to answer these questions?
The answers to these questions will help focus the research you must do,
make information gathering easier, and ensure the results are valid.
STEP 2-- REVIEWOTHER RESEARCH AND INFORMATION
Media analysts should always begin studies by consulting all literature,
research, and other information available on the topic. The review
provides information about what work has been done, how it was done,
and what the results were as they apply to a given subject. It not only
allows analysts to learn from (and eventually add to) previous media
research, but also saves time, effort and money.
The review also helps to identify the facts pertaining to the situation
being studied.
Completed media content analysis also provides a starting point for PA
leaders who will follow in your position after you move on.
0-4
.Appendix O
STEP 3-- DEVELOP HYPOTHESES AND RESEARCH QUESTIONS
After the general research are has been identified and the existing
information reviewed, the analysts must state the problem or issue as a
workable hypothesis or research question.
(Example: "The American public is losing confidence in the Army's
ability to protect its soldiers, resulting from the media's portrayal of
Army leaders as negligent and soldiers as lacking competence in avoiding
fratricide.")
A hypothesis is a formal statement regarding the relationship between
variables and is tested directly. In the example cited above, those
variables are the news media, the messages they send, and the perception
and understanding of those messages by the American public. With a
hypothesis, the predicted relationship between the variables is either
true or false. I dentifying the degree of "trueness" or "falseness" and their
implications is essential to the development of information campaign
strategies.
On the other hand, a research question is a formally stated question
intended to provide indications about something, and is not limited to the
relationships between variables. Research questions are generally used
in situations where an analyst is unsure about the nature of the problem
under investigation. The intent is merely to gather preliminary
information. Research questions are generally used to identify the focus
and scope of a research project.
STEP 4-- DETERMINE AN APPROPRIATE
METHODOLOGY/RESEARCH PROGRAM DESIGN
Given the variety of situations facing Public Affairs personnel, different
approaches to media research are required. Some issues lend themselves
more toward survey methodology via telephone, E-mail, or standard mail;
others are best attacked through in-person interviews. Still other
problems necessitate a controlled evaluation situation designed to
eliminate extraneous variables by targeting analysis to specific media
types. (An example of this approach would be a study of how a newspaper
covered a specific story over a six-month period.)
The approach selected by the analyst depends on the goals and purpose of
each particular study. Regardless of whether the problems or issue being
addressed is a local one, affecting only a fraction of a community
audience, or a national issue affecting us all, all research requires a
design of some type. All procedures, including all variables, samples, and
measurement instruments, must be pre-designed with hypothesis and
research questions in mind.
There are four characteristics of research design that should be noted if a
research study is to produce reliable and valid results:
• Accurate setting. For a study to have external validity, the study
must be conducted as an historical account of the situation during
the time frame studied. The analyst must have a clear
understanding of the events unfolding around him and attempt to
document as much related information as possible.
• Clear cause-and-effect relationships. The analyst must make
every attempt to identify spurious dependent relationships and
0-5
FM 3-61.1
weed them out. The results of a study can be interpreted with
confidence if and only if all confounding effects are identified.
STEP 5 -COLLECT RELEVANT DATA
STEP 6- ANALYZE AND INTERPRET THE RESULTS
STEP 7 -PRESENT THE RESULTS IN APPROPRIATE FORM (PA
STUDY OR PA ESTIMATE)
STEP 8- VALIDATE AND REPLICATE THE STUDY WHEN
NECESSARY
0-6
Appendix P
INFORMATION PROGRAM EVALUATION
METHODS
How our audiences perceive the Army is critical to the success of all
operations we are involved in. Internally, the Army's people require
certain information to function effectively. The more they know and
understand, the better they perform. Information about the operation,
the unit's particular mission, how the commander feels about the
situation, and a host of other subjects are of interest to both soldiers and
civilians. Externally, the general public has specific needs for
information about what their Army is doing and how they are doing it.
This appendix explains methods for measuring success in the conduct of
PA information programs.
Command information is communication between the commanders and
those commanded. Command Information is different from the Public
Affairs function of Information Provision in that it is the commander's
responsibility to inform his people. Commanders must communicate
their intentions and the troops, community, indeed the general public,
must know his concerns and intentions. It is especially important to note
that PA Information Provision techniques and procedures are just one
channel that the commander may use in communicating to his audiences.
A poorly recognized fact is that the communication links between the
commander and his audiences occur on various levels and assorted
channels. This type of communication no longer fits the "top-down"
communications model of the cold war Army. The explosion of today's
digital technology has provided individual soldiers, civilians, family
members, and the general public the ability to bypass rigid, controlled,
vertical communication systems in favor of the common user,
multidirectional, reciprocal, simultaneous, real-time transactive
communications systems. Americans have the power to bypass the
gatekeepers and ignore canned, shoddily produced, dated industrial age
information products, in favor of accessing on-line information services or
the Internet directly. Information is passed in all directions, continually.
These audiences will have access to many more sources of information,
which makes evaluating the effects of Army PA Information Programs all
the more difficult.
This explosion of information technology has also highlighted how critical
it is for PA elements to stay up to date on communications technologies,
information services, and socio-economic trends of these forces at work.
Despite the rapid change in the information environment, the general
steps for evaluating information program effects has remained the same:
• Determine the command's mission and the commander's method
for accomplishing that mission.
• Identify all the various audiences interested in information related
to the command, its members, and the mission.
P-1
FM 3-61.1
Identify a public opinion baseline -- the template against which
new public opinion information will be compared.
Gather identify all the messages communicated and identify which
audiences' received such information.
Gather information on the information program impacts. This is
done reviewing unit newspapers, letters to editors, responses to
information programs fact sheets, formations, surveys, and
interviews. Check related bulletin boards on all on-line
information services. Check related Newsgroups on world-wide-
web nodes, which commonly carry related information. Monitor
discussion groups on on-line services.
Attend commander's calls, staff meetings, formations, briefings,
and other gatherings where audience reaction, troop morale and
I ike information will be discussed.
Evaluate the knowledge of the targeted organizations. This is
accomplished through in-person question/answer surveys and
interviews, E-mail surveys, and electronic town hall meetings, etc.
Coordinate with other staff elements addressing similar
information issues (SJ A, Chaplain, PMO, IG, etc.).
Produce a summary of information gathered in an impact
assessment.
P-2
Appendix Q
PRINCIPLES OF PA SERVICE AND STANDARDS
INTRODUCTION
1. This checklist identifies the primary tasks associated with the
functions of Public Affairs, and establishes standards for successful
accomplishment of those tasks. Standards of service equate to minimum
exceptions of an operational commander and will be used to judge unit
readiness, leader effectiveness, and individual soldier performance.
2. The following definitions apply to this checklist:
Austere: No existing PA units, assets or Army signal information
infrastructure available in area of operations upon deployment.
Commercial communications infrastructure is not available. PA
elements must perform all missions and provide all PA support using
organic personnel and equipment.
Existing: PA units, assets and Army signal information
infrastructure in place before deployment. Commercial
communications infrastructure is available. Deploying PA element
assumes duties of or augments organic PA elements. Existing
personnel and equipment augmented by additional PA elements to
accomplish PA mission and provide PA support.
FUNCTIONS/TASK
CONDITION STANDARD
Planning
1. Perform Global Information
Environment analysis
2. Develop PA Estimate (COAs)
3. Develop PA Strategy (plan)
4. Develop PA Guidance
5. Coordinate PA Annex
Media Facilitation
1. I D media support requirements
2. Register news media
3. Coordinate media support
4. Provide media orientation
5. Coordinate news media interviews
6. Plan/coordinate news briefings
7. Establish Media OPS Center
8. Operate MOC
Existing
Austere
Existing
Austere
Existing
Austere
Existing
Austere
Existing
Austere
Existing
Austere
Existing
Austere
Existing
Austere
Existing
Austere
Existing
Austere
Existing
Austere
Existing
Austere
Existing
Austere
Q-l
FM 3-61.1
9. Provide media assistance/escort
Information strategy
1. I dentify target audiences
2. Identify information needs
3. Devel op i nfo themes/C M D messages
4. Gather info/develop products
5. Disseminate information to
deployed forces
6. Disseminate information to
families/home station audiences
7. Disseminate information to
national/local news media
8. Disseminate information to
general public
Public Affairs Training
1. I dentify trai ni ng needs
2. Develop unit PA Training plan
3. Develop Family Spt Training Plan
4. Develop Senior LDR Training Plan
5. Conduct unit PA training
6. Conduct Family SPT Training
7. Conduct Senior LDR Training
8. Prepare SMEs for Media interviews
9. Evaluate training efforts
Existing
Austere
Existing
Austere
Existing
Austere
Existing
Austere
Existing
Austere
Existing
Existing
Existing
Existing
Austere
Austere
Austere
Austere
Existing
Austere
Existing
Austere
Existing
Austere
Existing
Austere
Existing
Austere
Existing
Austere
Existing
Austere
Existing
Astere
Existing
Austere
Q-2
Appendix R
PRIVACY ACT/FREEDOM OF INFORMATION ACT
INTRODUCTION
This checklist addresses personal information about soldiers and any
living persons that can or cannot be released under the provisions of the
privacy act.
CHECKLIST ITEMS
• AGE (date of birth) =releasable. This information is public record.
• HOME OF RECORD/PRESENT ADDRESS =ln most cases, home
of record can be released if no street address is given. There is no
general rule for disclosure of this information. Widely different
circumstances surround each incident, and judgment is made on a
case-by-case basis. In most cases, the person's present
geographical location may be provided (city, state), but not the
street address. In each case, the desires of the actual person or
next of kin should be considered.
• MARITAL STATUS/DEPENDENTS = RELEASABLE. This
information is public record, including names, ages and sex of
dependents.
• AWARDS/DECORATIONS/CITATIONS =releasable.
• EDUCATION/SCHOOLING/SPECIALTY =releasable. Major area
of study, school, year of graduation, degree and specialty designator
is releasable.
• RACE =1 n most cases, NOT releasable. However, where the fact of
an individual's race is relevant in providing essential facts to the
Press, it may be released (such as in a racially oriented protest or
altercation.)
• CHARACTER OF DISCHARGE:
• ADMINISTRATIVE = NOT releasable, unless the individual
provides his written consent.
• PUNITIVE = releasable. This includes discharges resulting from
courts martial.
• DUTY STATUS =releasable.
• PERSONNEL BOARDS:
• Results of promotion boards and augmentation boards are
releasable.
• Results of administrative discharge boards and aviator flight
boards are NOT releasable.
• PHOTOGRAPHS IN THE CUSTODY OF THE DEPARTMENT OF
DEFENSE = releasable, unless they warrant an invasion of
anyone's personal privacy.
R-1
Appendix S
PA GUIDANCE ON TERRORISM COUNTERACTION
In view of the continuing media interest in the subject of terrorism, the
public affairs guidance contained in this message is provided to assist
PAOs in responding to media queries and in developing local contingency
plans.
TERRORISM IN GENERAL
a. U.S. POLICY. All terrorist acts are criminal. The U.S. Government
will make no concessions to terrorists. Ransom will not be paid and
nations fostering terror ism will be identified and isolated.
b. RESPONSIBILITY. Department of State is the lead agency for
response to international terrorist incidents that involve U.S. military
personnel and facilities outside the U.S. The administrator of the
Federal Aviation Administration is responsible for terrorist incidents that
affect the safety of DoD personnel or property aboard an aircraft in flight.
When terrorist incidents occur at military installations within CON US or
its possessions (Puerto Rico, Guam, Virgin Islands, American Samoa, and
trust territories), the FBI will be the lead agency. If the FBI declines to
exercise its authority, military authorities may take appropriate action
withi n the I i mits of thei r responsi bi I i ty to resolve the i nci dent.
c. NOTIFICATION. All terrorist incidents should be reported
immediately through channels, to OASD/PA. No public release of
information regarding a terrorist incident should be made without
OASD/PA approval except for cases involving public safety.
COMBATING TERRORISM
Combating terrorism can be divided into two major areas: counter-
terrorism (offensive measures) and anti -terrorism (defense measures).
• Counter-terrorism. The following statement may be used in
response to queries regarding counter-terrorist forces:
• "The U.S. Government has trained forces and equipment from all
four services to cope with terrorist incidents. We have also said
that command and control elements for these forces exist and have
been exercised. These elements report to the J oint Chiefs of Staff,
as do other command and control elements for military operations.
We do not comment on any details concerning the circumstances
under which these forces may be deployed, their identity, or
tactics."
• Requests for interviews or filming of counter-terrorism training
will not, repeat will not, be approved.
• Requests for photos of counter -terrorist forces personnel or their
training will not be approved.
• Because of the clear association/confusion surrounding the
relationship between special operations counter-terrorism forces,
S-1
FM 3-61.1
all requests for interviewing or filming special operations forces
and or training will be approved by OASD/PA.
• Questions beyond the scope of the above guidance should be
referred to OASD/PA..
• Anti -terrorism. The following guidance is applicable to media
request for information pertaining to anti-terrorism.
• DoD officials, senior leaders, commands and knowledgeable
individuals may discuss the subject of anti -terrorism as it pertains
to those areas/installations for which they are responsible.(Anti-
terrorism measures and procedures should be discussed in a
general manner without going into a checklist of specific details.)
• Media requests to film anti -terrorist training will be approved on
by OASD/PA.
• Photos of anti -terrorist training should be forwarded through
channels for approval.
QUERIES
In response to queries regarding a possible or real terrorist threat at a
particular base/installation/activity the PAO may acknowledge, if
appropriate, that increased security measures have been/will be taken
without going into specific details of all the measures taken. PAOs may,
when appropriate, acknowledge the obvious.
For example, increased security measures such as increased guards at
the gate or additional patrols, if they are obvious to the public may, in
some cases, be acknowledged. PAOs should, however, exercise care and
prudent judgment in any discussion of these or other security measures,
which have been/will be implemented.
S-2
Appendix T
BROADCAST OPERATIONS
This section focuses on the radio and television services provided by
Armed Forces Radio and Television Service at the unified command level
and the coordination necessary by Army component commanders to
ensure operational area support. It identifies and explains the AFRTS
mission and its capabilities. It also discusses planning considerations
and theater broadcast information requirements.
AFRTS CONTINGENCY BROADCAST OPERATIONS
The scope of the ABS mission of providing AFRTS radio and television
news, information and entertainment programming to DoD personnel
stationed overseas greatly expands during wartime to include support of
global contingency requirements. As new contingency plans are
developed based on emerging joint and Army doctrine, ABS must
consider how the additional broadcasting personnel and equipment
resources needed to support a rapid deployment broadcasting mission can
be obtained while simultaneously meeting increased requirements in
existing unified command theaters. The immediate response necessary to
meet contingency requires the development of AFRTS appendices to
Unified Command Operations Plans (OPLAN).
Army Broadcasting Service (ABS) is the Unified Command AFRTS
Planner (U CAP) for the U.S. Southern Command and the U.S. European
Command. ABS also has Geographic Area Planner (GAP) responsibilities
for U.S. Forces Korea (USFK). ABS and AFRTS networks within these
unified commands are responsible for updating and maintaining
appendix content under provisions of the American Forces Information
Service (AFIS) Concept Plan for Peacetime and Wartime Operations for
the Armed Forces Radio and Television Service (AFRTS CON PLAN 98-1)
and DoD Directive 5120.20-R
Contingency and/or Wartime Plans define the Mobilization/Contingency
mission. Force structure to support these plans may be packaged as
blocks, deployable units or detachments for ease of planning.
According to CON PLAN 98-1 and DoD Directive 5120.20-R, Unified
Commanders and Subordinate Commanders, with the advice of ABS,
determine the type of AFRTS Flexible Response Option (FRO) necessary.
Unified and Subordinate Command support is required for the current
levels of support contract and for any mission changes which affect
AFRTS service in theCINC'sarea of operation.
AFRTS Mission
Provide live news, information and entertainment programming, free of
censorship, to all DoD elements in pi ace or deployed worldwide.
Provide U.S. military theater commanders with sufficient electronic
media resources to effectively communicate DoD, Army, theater and AO
command information.
T-1
FM 3-61.1
Concept of Operations
Existing facilities and services will be the first AFRTS assets used to
respond to AF RTS taski ngs.
Upon implementation of a Contingency Plan or OP LAN, AFRTS assets in
the AO come under the direct operational control of the Unified Com-
mand for the period of the operation. When the operation is terminated,
normal command relationships will be resumed.
The AFRTS Commander reports directly to the Unified Commander
responsible for the theater of operations.
The AFRTS Commander retains direct command authority over AFRTS
personnel and equipment.
The AFRTS Commander is responsible for all AFRTS matters concerning
the operation, accomplishing direct coordination for the Unified Com-
mand with AFIS/AFRTS for all AFRTS issues requiring AFIS/AFRTS
action, and managing all AFRTS assets involved in the operation in
accordance with the AFRTS CON PLAN 98-1.
The AFRTS Commander will be a designated member of all public affairs
meeti ngs as a member of the staff.
The AFRTS Commander is authorized direct coordination with other
members of the unified command's staff to work specific AFRTS support
requirements.
All requests for command internal information or emergency an-
nouncements from AO organizations or personnel will be forwarded to the
director of public affairs for approval.
All public information released by public affairs officials will be available
for AFRTS use.
AFRTS radio and television electronic news gathering (ENG) will be
dedicated for the AFRTS "on-air" mission and in direct support of the
Unified Commander's internal information program.
AFRTS will provide full, factual and timely internal information and
news to military audiences in the AO, consistent with national and opera-
tional security, and host country sensitivities.
AFRTS will follow Operations security (OPSEC) and communications
security (COM SEC) rules.
AFRTS OPERATING PARAMETERS
AFIS is responsible for all AFRTS satellite programming services and
overall policy and guidance for their use.
The AFRTS Broadcast Center (AFRTS-BC) is responsible for providing
non-local and non-theater radio and television programming material to
AFRTS facilities in the AO, except as outlined in Flexible Response
Options (FROs).
The Television-Audio Support Activity (T-ASA) in Sacramento,
California, is responsible for providing technical and logistical support to
AFRTS.
The AFRTS facility in the AO will provide service based upon initial
Flexible Response Options (FROs) and continue operations until directed
T-2
.Appendix T
to modify its services by AFRTS, the Unified Command or as the mission
requirement dictates.
AFRTS will provide AO-wide announcements as required on both radio
and television in order to facilitate unified command needs.
At unmanned repeaters and cable distribution systems, local officials
may have AFRTS personnel make local announcements, if possible, in
coordination with the AFRTS commander or on-site command
representative, if approved by the director of public affairs for the
operation.
AFRTS NETWORK COMMANDER OR DESIGNATED
REPRESENTATIVE IN THE AREA OF OPERATIONS
The AFRTS network commander or designated representative will be co-
located with the unified command director of public affairs.
The AFRTS network commander or designated representative will have a
command function with direct operational command authority over all re-
sources assigned to support the AFRTS mission in theAO.
The AFRTS commander or designated representative will ensure a logis-
tics and engineering function responsible for providing advice and assis-
tance to maintenance personnel assigned to AFRTS outlets, and
maintaining unmanned equipment. This function will assist the AFRTS
chief engineer in developing new equipment support requirements as
changes occur in theAO.
The AFRTS network commander or designated representative will ensure
internal information ENG coverage of unified command activities of in-
terest to the members assigned in the AO. In joint service situations,
Army AFRTS representatives may also be responsible for the production
and duplication of radio and television internal information products for
use at AFRTS outlets and television programming for DoD, or satellite
cabled sites in theAO.
UNIFIED COMMAND RESPONSIBILITIES
The unified command provides logistic support for AFRTS. This includes
vehicles, POL, and supply requirements in the AO as noted in the
OPLAN. Also included is vehicle maintenance and POL for all AFRTS
contingency vehicles. If additional forces are deployed to support AFRTS,
the unified command assigns additional vehicles to support the expanded
maintenance and production requirements.
I f security and/or i ntel I igence forces determi ne that AF RTS faci I ities have
been identified as a potential target by hostile forces, the unified
command will notify the AFRTS facility and provide security to targeted
facilities.
If contract communications support is terminated during the imple-
mentation of the OPLAN, the unified command provides communications
support for AFRTS use in theAO.
This includes existing long-wire or microwave systems for distributing
the AFRTS signal and support for telephones, facsimile transmission and
computer equipment for AFRTS.
T-3
FM 3-61.1
If support cannot be obtained from existing assets, the unified command
should be prepared to augment the AFRTS mission as outlined in the
OPLAN.
The unified command provides personnel, administrative, vehicle and
other logistic support for all AFRTS personnel assigned in the AO and
those deployed to supplement that force. This includes unit line numbers
and entry clearances required for all deployed personnel supporting the
AFRTS mission.
The unified command obtains country clearance for construction of any
temporary transmitter towers required due to expanded AFRTS service,
which may occur as the operation unfolds.
The unified command provides electrical backup power for AFRTS facili-
ties if contract services are terminated during the implementation of the
OPLAN.
The unified command is responsible for obtaining necessary broadcast
frequencies in consultation with the host-nation government to meet
AFRTS broadcast requirements.
Flexible Response Options
Although each operation will differ, the following are general concepts of
AFRTS Flexible Response Options (FROs) available for peacetime
engagements, wartime operations and stability and support operations in
an area where little or no AFRTS service exists or where crisis situations
require a modification to existing AFRTS services. The unified command
AFRTS planner (UCAP) is responsible for developing specific equipment,
support and manning requirements to implement the AFRTS FROs that
best support the specific operation.
The Unified Commander for the area of operations must request AFRTS
radio and/or television services or for a change in present level of service
before deployment. The Unified Commander requests AFRTS assistance
through the unified command AFRTS planner responsible for the area of
operations. The request will then be forwarded to ABS and AF IS for final
approval.
FRO One: Direct to Ship (DTS) Service Support System. DTS is an U.S.
Navy peacetime capability that provides news, sports, information and
entertainment to audiences on ships at sea. A wartime adaptation of the
service can provide immediate access to three radio and two television
channels for land-based audiences including geographically separated
units down to the lowest level. A deployable AFRTS kit containing an
individual receiver decoder (I RD) provides service. This service provides a
single-source 24-hour capability of receiving all services, but only one
channel can be accessed at a time and no local or theater command
information would be avail able.
FRO Two: Satellite Direct Radio and Television (SDRTV). SDRTV is an
unmanned AFRTS satellite service that can be provided to virtually any
land based audience on the globe with up to 10 stereo radio channels and
six television news, sports, information and entertainment channels. In
the European theater it will include a regionally generated signal.
Service is provided at a single location using a deployable AFRTS kit
containing a simultaneous receiver decoder (SRD) that provides a
capability of receiving all services and accessing up to six radio and
television programming sources at a time. As a public affairs option,
T-4
.Appendix T
SDRTV provides an internal information data stream that can be
accessed with the addition of a computer, printer and proprietary
software to the SDRTV equipment package for use by public affairs
activities in providing support to deployed populations. Unified command
public affairs offices and the UCAP should consider coordinating the use
of the additional capability whenever a manned public affairs activity is
deployed.
FRO Three: Manned Radio Systems. Signal Distribution Systems. These
deployable systems include audio and video transmission and cable
systems that provide a capability to distribute, DTS, SDRTV or manned
radio service to an expanded autonomous geographic area such as a base
camp or Air Force base in an AO.
FRO Four: Manned Radio Systems. These deployable systems provide a
capability for local, live internal information and radio news. Various
types and sizes of local radio systems exist that can be used to establish a
range of services from simple local break away "radio-in-a-box" to a full
service facility with local production capability. Some of these systems
will include radio transmitter that can provide limited signal distribution
without deployment of FRO Three. This system can provide a limited
single-source radio service to outlying populations that are not served by
FRO One or Two, are not available or would not be appropriate
programming sources.
FRO Five: MOOTW Management, Local TV and Network Live Radio.
These deployable personnel and systems support the development of an
AFRTS management function to oversee dispersed AFRTS operations
and will add local television and network-wide live radio capability using
organic distribution systems. The capability will establish a network to
support operations in an AO comprising a large peacetime engagement of
medium to long duration encompassing a large geographic area where the
operations commander requires near real-time internal information
capability. The system provides network administrative, computer,
maintenance, engineering and operations support functions. These
functions provide the unified command director of public affairs with
AFRTS management expertise not normally available on the public
affairs staff. The television service system is designed to produce AO
information that can also be fed to the AFRTS Broadcast Center for
rebroadcast to DTS/STRTV audiences worldwide.
FRO Six: Theater Satellite Radio and Television Operations (TSRTO).
In a major regional conflict where large force deployments are planned
the AFRTS Broadcast Center will dedicate one channel of radio and one
television channel for use by the UCAP to broadcast directly to the
theater of operations. Programming will include time shifting "prime
time" so that each 12-hour shift receives prime time programming in the
first four and-one-half hours of off time. In conjunction with FRO One or
Two, this will provide a virtual network capability to the AO commander
and the PAO. It will appear to the audience as if the broadcast was
occurring in the AO when in fact it is originating from the Broadcast
Center. Initial spots can be unsophisticated radio readers and character-
generated (CG) messages on television. If there is a manned radio facility
providing theater and operation-specific internal information in place,
they will forward copies of all AO specific spots via computer to the
Broadcast Center for use initially as television CG messages within the
T-5
FM 3-61.1
dedicated TV channel. As with all internal information, they will be
developed in coordination with the PAO in theAO. If there is insufficient
AFRTS manning in place which would be the case if there were numerous
geographically-separated operating locations, the internal information
will be supplied, via computer, by theAO public affairs office. Base and
component command PAOs will be advised of the scheduling of theater
programming and encouraged to provide service-unique spots for use in
theater. Service will continue until a significant drawdown occurs, the
operation stabilizes to the point where local TV spots are not needed and
the presumption of pre-conflict programming will serve the majority of
the deployed population or an AO based network begins serving the
operation.
T-6
Appendix U
COMMUNITY SURVEY
COMMUNITY SURVEY EXAMPLE
I. The area
1 1. Manpower
A. Geographical description
1. Of areas surveyed-size of cities, counties.
2. Of surrounding area, if pertinent.
3. Climate, topography, annual and seasonal
temperatures, rainfall, etc. (one sentence
will suffice for each.)
4. Are the industries dispersed or
centralized? Attach a map of the Area
indicating the location of the principal
plants. The map should show the names
and numbers of principal streets and
highways furnishing access to these
plants.
B. Population
1. Of city
2. Of area.
3. Of labor market area, if different from
above.
4. Breakdown by sexes, color, native or
foreign born, educational level, percentage
of homeowners, etc.
C. Industrial data
1. Types of industries and number of each,
labor force of each, key products of the
area, and additional data as considered
applicable.
2. Does one type of industry dominate the
area? If so, give pertinent information
regardi ng the i ndustry.
Labor market rating
1. Is department of labor market
classification, a,b,c, or d?
2. Include supporting statistical data.
Unemployment
1. Totals and percentages of skilled,
semiskilled, and unskilled.
2. What types of skills are most commonly
available?
C. Source of labor supply
U-1
FM 3-61.1
1 1 1. Industrial facilities
IV. Housing
1. Compared to the World War II years,
what are the reserves of women,
handicapped, older-age groups, part-time
workers, and school graduates?
2. Has there been much intermigration to
total population?
D. Occupational classification of area workers. What are the
most common occupations of the area? The less common?
E. Skills in shortage category. List, with numbers of each, if
available. Make a comparison of this list with the
national shortage list.
F. Area wage schedules
1. List the wage schedules of major
occupations and industries.
2. How do they compare with national
averages?
3. How do they compare with neighboring
areas? With competing areas?
G. Requirement of defense industry in area
1. Is manpower available for present
production schedules? Current planned
production?
2. What skills are lacking for production
schedules, both present and future?
3. Do employers ordinarily use training
programs? If so, give some Examples.
H . Other perti nent i nfor mati on
1. Include current work stoppages, if any;
record of work stoppages During last 10
years.
2. Are workers highly organized? Principal
unions?
A. Facilities suited or adaptablefor defense production.
B. List facilities with current and World War II products.
C. Give current and capacity employment.
D. Give types of machinery.
E . What defense contracts are held or sought?
F. Vacant factory space. Describe space and indicate
production potential.
A. Housing regulations.
1. Is it a critical defense housing area under
public law 96? P. L. 139?
2. Local rent control?
B. Housing units available.
1. Number for sale, including 1, 2, and 3
bedrooms. Price ranges. Are the prices
reasonable?
2. Number for rent, including above
information. Apartments available.
Number, size, price ranges. Are the rents
reasonable?
U-2
.Appendix U
3. Sleeping rooms available. Number, price
ranges. Are the prices reasonable?
4. Building permits issued (in past 12
months)
5. Number for houses-1, 2, 3, or more
bedrooms.
6. N umber for apartments.
7. If houses, number for rent and
contemplated rental prices.
8. Housing units contemplated .
9. Number and sizes. How many bedrooms?
10. Number of these for rent.
11. Estimated rental rates.
C. Builders
1. Adequate number of experienced builders?
2. Do they have trained skeleton force?
3. Can other necessary housing construction
workers be secured?
4. Is land available? Under option?
5. Can materials be obtained?
6. What bottlenecks?
D. Building capital.
1. Is capital for the building of housing and
rental units readily available? If so, on
long- or short-term loans?
2. What are the sources of this capital?
3. Does the community object to construction
of more housing units now?
V.Adequacy of housing
For present work force? For expanded production? (quote a figure or
percentage, such As peak load in world war ii or 50 percent above present.)
This figure should be adequate to cover planned defense expansion known to
you at ti me of Survey.
VI .Other community facilities and services
Discuss each of the following items as to adequacy for the present work force
and for an expanded work force; give specific facts for each, as pertinent (yes
and no answers are not adequate.)
A. Water
B. Electric power
C. Gas
D. Sewerage
*Note: for items 1 through 4 above, describe sources of
supply, capacity, reserve storage, current use,
reserves on hand, plans for expansion-whether on
hand or projected.
E . Transportation: types and numbers
F. Highway and road systems: are the roads serving the
area adequate and in good? What is the present traffic
load and the peak capacity of these roads? Describe any
unsatisfactory factors. What action is contemplated or
considered necessary to assure free traffic movement
within the area? (survey requests will furnish, whenever
possible, specified information on any industrial and
U-3
FM 3-61.1
defense manpower requirement changes under
consideration for the area.) Contact with local, state, and
federal highway authorities should be made, if necessary,
to explore ful ly this phase of the survey.
1. Schools: number of each type of school,
crowding, shifts, new construction, etc.
2. Hospitals: number, number of beds,
population per bed.
3. Doctors: number, population per doctor
and per dentist.
4. Fire protection: size, ratios, and ratings.
5. Police protection: size, ratios, and ratings.
6. Shopping centers and shopping hours.
7. Recreational facilities: number of each
type.
8. Churches: all denominations.
9. Sanitation service (garbage collection).
10. Laundries, dry-cleaning businesses,
barber shops, beauty shops, etc.
11. Banking facilities (include arrangements
for shift workers).
12. Hotels: number and number of rooms,
scale of rates, etc.
13. Restaurants and other eating places.
14. Newspapers: number (morning, evening).
15. Municipal government (form, etc.).
16. Tax rate: local, county, state.
17. Cost of living index: get whatever
information is available Compare local
figures to national index.
*Note: include reference material, maps, booklets, etc., If possible.
U-4
Appendix V
AUDIENCE SURVEY
Audience surveys systematically gather information about the
effectiveness of CI programs and products as they relate to a particular
group of people. The commander and the PAO to make decisions about
management and direction of an internal information program or product
use the results.
PUBLIC AFFAIRS REQUIREMENT
The PAO will conduct a readership survey at least every two years (every
three years for the Reserve Components). Coordination with the DOIM
for possi bl e computer and analysis support is recommended. Additionally,
AR 600-46 can provide information on conducting surveys. The survey
will provide data on distribution effectiveness, reader awareness and
acceptance, readership and perceived usefulness of standing features and
topics covered, and opinions of the value and effectiveness of the
publication. Repeated surveys will provide trend data.
The survey may include any or all of the 20 questions listed in the
Readership Survey (RCS: SAOSA-223) (app H) in AR 360-81. However,
surveys not using these tested questions must be pretested to ensure
validity before being used in a survey. Survey respondents will be
selected using probability-sampling techniques.
Informal surveys, such as those included in a newspaper or conducted
randomly/haphazardly with a few people, are not substitutes for
readership surveys. This does not preclude an editor from periodically
publishing a coupon or set of questions to solicit informal feedback that is
not statistically protectable.
Before administering the survey, the survey managers must coordinate
with the agency that will provide response analysis to be sure
questionnaires; answer sheets, data entry program, or any other
materials are appropriate and usable. Survey conduct may be included in
the command's CE publication contract and may also be contracted by the
command for Army Funded newspapers, providing funds are available.
When civilian employees are surveyed, PAOs should also coordinate with
the civilian personnel officer for local union notification requirements.
Completed questionnaires may be analyzed by the local Director of
I nformation Management (DOI M) to provide percentages of responses to
survey questions. Where computer support is available (from the local
DOIM or DRM), responses will be analyzed using a program such as the
Statistical Program for the Social Sciences package. Questionnaires must
be constructed using the parameters of available software.
A written discussion of findings and conclusions drawn from the survey
will be forwarded within 60 days after the survey is completed through
V-1
FM 3-61.1
the local commander, appropriate major command, to HQDA (SAPA-CI-
PMN), Room 2E625, The Pentagon, WASH DC 20310-1510.
As a minimum, the report will contain the survey statistics, an analysis
of the data, identification of strengths and problem areas (e.g.,
distribution, more sports, etc.), recommended improvements and changes
to editorial policy, and an indication that the commander has reviewed
the results.
Surveys may be conducted any time. However, no newspaper's survey
report on file at HQDA should be older than 3 years (4 years for the
Reserve Components). This allows for the time to conduct a survey.
A copy of the most recent survey will also be submitted with the annual
CI Program Assessment Report (DA Form 510-R), unless the survey was
previously submitted to the MACOM and OCPA-HQDA.
The PAO will conduct electronic media surveys at least every two years
(every three years for the Reserve Components).
SURVEY ADMINISTRATION
Among the more common methods of conducting surveys are the mail
survey, face-to-face interview, and telephone interview. The mail survey
is the preferred method for purposes of this requirement, although other
methods, managed properly, may be used.
Survey respondents will be selected in a totally random manner (e.g.,
simple random, stratified, or systematic, using probability sampling
procedures). Survey managers will select samples, which achieve at least
a minimum of a +1- 5 percent reliability (error margin) at the 95 percent
confidence level.
Sample sizes shown for the various reliability levels (e.g., 4/- 5 percent
error margin) are the number of usable responses received, not the
number of questionnaires to be sent out. For a population of 5,000, 357
usable responses will accurately reflect, to within 4/- 5 percent, what the
entire 5,000 member audience would have said, had it completed the
survey.
Experience with mail audience surveys shows that they realize an
approximate 30 to 35 percent response rate. Therefore, send out at least
three times as many questionnaires as are needed for analysis.
Remember that incentives encourage responses.
Maybe the local MWR office or similar staff agency could provide bumper
stickers, discount coupons, or other incentive for completed responses.
FOCUS GROUPS
Focus groups. One of the most effective ways to learn how CI products are
being received is to conduct focus group interviews. Focus group
interviews are structured group discussions in which representative
members of the audience are brought together to discuss one or more CI
products or issues. These interviews or sessions can examine the
effectiveness of products or programs, gain suggestions for improving
existing products or programs, and determine the need for new products
or programs.
The key to effective focus group interviews is proper planning. Focus
group organizers must determine who will participate, and what are the
V-2
.Appendix V
specific objectives of the session (e.g., what topics or issues will be
discussed, what specific questions will be asked, what is to be done with
the results, etc.). The method of selecting participants should be
determined and the location for the meeting secured. While there is no
optimal size for focus groups, generally groups of six to 10 individuals are
manageable. Group makeup (officer/NCO/en listed, men/women,
military/civilian, active/reserve, retired/family member) depends on the
objectives of the session. Generally, homogeneous groups are preferable.
Often it will be necessary to hold more than one focus group session to
obtain information needed to evaluate a particular CI program or
product.
The moderator or group leader should be someone skilled in interview
techniques and knowledge about the product or program being evaluated.
It is often best not to have a high-ranking individual as the moderator
with a group of junior enlisted or young family members, as free flow of
information and opinions may be inhibited. The group leader must
facilitate the discussion, not serve as an interrogator.
Focus group sessions should be informal. Participants should be
encouraged to speak whenever they wish; the moderator should focus the
discussion on the topics without being overbearing. If participants agree,
it will be useful to videotape their comments for use in evaluating the
session.
It is important that all group members understand that their honest
opinions are being sought, and that the session is intended as a positive
method of improving CI within the organization. No punitive actions
should occur as a result of these sessions.
V-3
Appendix W
PA Lessons Learned
"What this century s history teaches us is that the Army's real
strength is its ability to change and adapt to the period's
requirements. Our ability to change was the key to victory in two
world wars and a cold war, and it will be the foundation for our
future success."
--General Dennis J. Reimer
INTRODUCTION
Explosive developments in information age technology have made the
prospect of sharing lessons and ideas across a wide audience a reality
today. With ready and easy access to E-mail and the Internet, soldiers
can distribute documents, graphics, and photographs with lightning
speed.
This appendix is based on an article published in the Center for Army
Lessons Learned (CALL) News from the Front!
This section provides public affairs officers (PAOs) with a tool for
capturing observations and an outlet for rapid analysis and
dissemination of tactics, techniques and procedures (TTPs) to the force.
The initial focus is on defining and narrowing the scope of TTPs. It is
important for officers and soldiers in the field to clearly understand the
process before proceeding to methodologies of collection. The next section
provides a structure for developing a narrative product for publication by
CALL. Such a product will provide a coherent article of information,
which can be quickly used by the force. The final section describes the
observation-gathering process. Understanding the process for collecting
data will prove invaluable to the operational planner and for producing
effective training tools for the future.
DEFINITION AND LIMITS
Focusing the collection effort is central to capturing meaningful
observations. Although CALL regularly sends combined arms assessment
teams (CAATs) to major exercises and actual operations to gather
observations, units from the field, including any public affairs section or
detachment, can provide great insight by planning for the collection of
information. In fact, only the Army as a whole can make CALL a
continuing conduit of information for use by soldiers.
By using the structure and tools described below, units can provide useful
TTP by establishing a collection effort as part of the originating operation
order (OPORD), with almost no interference with normal operations.
Indeed, the tools will enhance planning for future (and remedial) training
by incorporating the capturing of TTP into the plan.
TTP are often limited to the specific operation or exercise. The function
and use of TTPs are analogous to legal precedents. In law, if given
W-1
FM 3-61.1
circumstances of a case are generally similar to a prior case, it is assumed
that a judgmental decision for the present case should be the same.
However, circumstances in law often have aspects that are unique and
must be considered before rendering a new decision. When applying TTP,
study prior situations in context and use the lessons prudently.
STRUCTURING THE PAPER FOR USE BY CALL
PAOs at all levels can build upon the after-action review (AAR) process in
the plan by producing a publishable document. In almost all exercises,
units learn and consequently implement improvement measures. By
employing the structure below, units can effectively share information
throughout the force -- not only from Combat Training Center (CTC)
rotations but also from home-station training and exercises away from
the training centers.
Do not view the structure below as a rigid construct. Rather, it should
serve as a point of departure for unit writers. Although quantitative
material is useful for commanders and researchers, make this document
narrative in format. Use graphics to support the narrative, if possible.
Bring together data into a cohesive product that other units can readily
use without resorting to sifting through large amounts of charts, lists,
and disjointed bullets.
• Type of unit. Describe the type of unit the PAO supported
(mechanized infantry division, separate brigade).
• Context of event. Summarize the general setting for the exercise or
operation. (See Exercises and Actual Operations below. More
operational context information is provided in this section.)
• Commander's comments. If possible, the commander can provide a
brief (one or more paragraphs) commentary on public affairs
operations. Work closely with the unit's executive officer or chief of
staff for such input.
• Interaction with PSYOP, Civil Affairs, Signal. As information
operations continues to grow and doctrine is further developed,
interaction between various agencies will also continue to expand.
While ensuring coordination with PSYOP and civil affairs
operations, PAOs will continue to recognize the separation in
functions of the organizations required by law. Discuss the
coordination measures used.
• Media Relations.
• Summary of events. Provide a summary of events. Were press
conferences and interviews scheduled and executed? What was the
pace of daily operations? What was the routine daily schedule?
• Command messages. In developing this section, answer the
following questions in detail: What were the command messages?
More importantly, did the command messages come through to
print or broadcast? Were any command messages distorted or
misinterpreted? How can clarity be improved for the next
operation?
• Summary of higher headquarters' public affairs guidance (PAG).
Write a one or two paragraph summary of the initial and follow-up
PAG received from higher headquarters. (Provide a complete copy
as an appendix.) Provide answers to the following questions
W-2
Appendix W
following the summary: How did PAG influence operations? Was
the PAG clear and meaningful? Were excerpts used to create lower
level command messages?
• Media contacts. Describe the types and numbers of media contacts.
Did the unit encounter numerous print-journalist requests?
Electronic requests? Were there patterns in the requests? What
could a future media preparation package contain to answer some
questions in advance? How did the PAO prioritize media access?
Were major outlets afforded more opportunities?
• Summary of Media Releases. Summarize media releases in one or
two paragraphs. What were the major themes? What media
received the releases? Were releases used in stories? Were there
any comments from members of the media about the releases?
• Media Content Analysis. During and following an event, gather
press clippings and, if possible, record electronic media stories
about the event. What was the nature of the coverage? What was
the tenor of editorial comments? Did command messages get
exposure? Was the content of articles generally accurate? What
coul d PAOs do i n the future to i mprove the accuracy of content?
• Command Information Products. The command information
program in the field is fundamental in the minds of American
CIVIL WAR
"When the (Civil) war entered Pennsylvania, the Philadelphia Inquirer often sold
up to 25,000 copies of a single issue to the men in the field. During a lull in the
Battle of Cedar Creek in October 1864, observers later remarked that the first
thing the men did along the line was to sit down, boil coffee, and pull out their
newspapers."
soldiers. And, this phenomenon is nothing new to this culture.
• Because of this intense internal interest in events surrounding the
operation and events back home, it is imperative that PAOs
adequately address methods and practices used to inform the
soldiers. Answer the following questions in the narrative: Did
soldiers in the field receive consistent and timely information about
operations and world events? What was the distribution method?
How was it evaluated for effectiveness? Were reproduction
resources avail able and used adequately?
• Changes Incorporated in the Tactical Standing Operating
Procedures (SOPs). F rom the TTPs gathered, what changes will the
unit make to the SOP? Briefly describe why the unit is making the
change and what mechanisms to put in place to test the
effectiveness of the change.
EXERCISES AND ACTUAL OPERATIONS
Operational information is important for the reader to understand the
context in which the PAO operated. Provide the foil owing information for
W-3
FM 3-61.1
the CALL document to contribute to the reader's full understanding of
theevent(s):
• Mission - Summarize the unit's mission. (The focus here is not on
the PAO's mission, but on the mission of combat headquarters.)
• Commander's Intent -This information is available on theOPORD.
By incorporating this information, the reader will have an
appreciation of the context in which the PAO operated. Emphasize
the components of the i ntent:
■ Purpose
■ Method
■ Endstate
• New Equipment Used - Was new equipment available and used in
the operation? Describe the equipment. Was it useful? What were
the additional training requirements for using the equipment?
• New Techniques Used - Did the PAO incorporate techniques which
are not described in doctrinal manuals? Describe the techniques
employed.
• Structure - What was the structure of the PAO unit or shop? What
manning -- required versus on-hand? (Note: Do not provide
information that is classified under provisions of unit strength
reporting (USR) regulations. Seek to provide a document that is
free of classified material.)
• Operational Developments - How did the headquarters change its
plan during the operation? How did the change(s) affect PAO
operations? The descriptions here will bridge the gap between the
original plan and its actual implementation.
• TTPs applied during the mission and for future operations - In
bullet narrative, describe TTPs gathered in the operation. The
bullets must contain sufficient detail for the reader to understand
the situation and application possibilities for future operations.
Support the bullets by providing individual observations (seeTTP-
Gathering Process below) as a combined appendix. The narrative in
the base document must stand alone, with the appendix of
individual observations providing additional detail.
TTP-GATHERING PROCESS
Units can contact CALL when developing plans for collecting TTP. CALL
analysts can provide observer guidance, assist in delineating
responsibilities of observers, identify documents or reference for use in
developing a collection plan, and describe col lection methodology.
• Observations. Individual observations assist in providing the basis
for the narrative document described above. Use the form below to
capture observations and develop a database for use in narrative
development. Provide a copy of each observation to CALL as an
appendix to the narrative. (Note: Any document published by
CALL will not list units nor individuals by name. Refer to units by
level ("the division" instead of "the 101st Airborne Division") and
personnel by position ("a brigade chaplain" instead of "Chaplain
J ones"). The purpose of CALL publications is to share ideas - not to
point fingers.
W-4
_Appendix W
• Observation Forms. The observation form ( Appendix A ) can be used
for individual observations. A Microsoft Word version is available.
Contact CALL via E-mail at call@leavenworth.army.mil or DSN
552-9571 (commercial 913-684-571) to receive a copy of the
document. The document contains key components which aid the
researcher in preparing analyses:
• Observer Name - The observer's name is used administratively
only. No observer's name will appear in a CALL product.
• Administrative Information - Like the observer's name, unit
information is used administratively only. Unit names do not
appear in CALL products.
• Observation Indicators- Check all the appropriate blocks.
• Interoperability Indicators- Check all the appropriate blocks.
• Environmental Indicators- Check the appropriate block.
• File Name - Employ a system that differentiates each observation.
One method is for observers to use name initials combined with
sequence number and date (J ohn Smith's first observation of May
5th would read, jsmay0105). Other systems are acceptable if
plainly explained.
• Observation Title- Give the observation a brief, distinct title.
• Observation - 1 n one sentence, summarize the observation.
• Discussion - Provide as much detail as necessary to provide a clear
picture to the analyst or future reader. The length of the discussion
will vary.
• Lesson Learned - 1 n the context of your observation, provide a TTP.
• DTLOMS I mplications - Describe how the observation impacts one
or more areas in DTLOMS:
■ Doctrine
■ Training
■ Leadership Development
■ Organization
■ Materiel
■ Soldier Support
Include other media support, such as photos, sketches, or slide
presentations in support of the narrative text.
Provide the narrative text, appendices and other material to CALL at the
following locations: call@leavenworth.army.mil, or Department of the
Army, Center for Army Lessons Learned, 10 Meade Avenue, Fort
Leavenworth, Kansas 66027-1350.
In addition to maintaining and expanding a database of information,
CALL publishes News From the Front!, and a host of other publications
for easy use by the force. Importantly, much of what is available has
originated from the field -- from soldiers just like you. News From the
Front! is published six times per year and provides a forum for a wide
variety of topics of interest to the field. Other publications, including
newsletters, CTC Bulletins, special editions, Handbooks, and more, focus
on specific topics. Much of the published holdings of CALL can be found
on the CALL website, http://call.army.mil, post libraries, or by contacting
W-5
FM 3-61.1
CALL at the E-mail address listed above. Various search engines are
available on the website to assist researchers.
CONCLUSION
Sharing information is possible with rapid and potentially colossal
results. Leaders and soldiers who understand theTTP-gathering process
can build plans for the future into every OPORD. By incorporating a plan
to collect data and produce a clean narrative product for use by the force,
soldiers throughout the Army gain maximum benefit from existing and
future advancements in information technology. PAOs can focus on
critical elements for successful media relations operations and command
information programs in the field. Planners can easily adapt collection
plans to exercises or actual operations-- anywhere in the world.
Learning is crucial for continued success on the battlefield. PAO planners
must inculcate a practice of gaining a full understanding of the process
and incorporating it into future exercises and actual operations.
W-6
Appendix X
MEDIA GROUND RULES
OPERATION DESERT STORM GROUND RULES
The following information should not be reported because its publication
or broadcast could jeopardize operations and endanger lives:
(1) For U.S. or coalition units, specific numerical information on troop
strength, aircraft, weapons systems, on-hand equipment or supplies
(e.g. artillery, tanks, radars, missiles, trucks, water), including
amounts of ammunition or fuel moved by support units or on hand in
combat units. Unit size may be described in general terms such as
"company-size, multi-battalion, multi-division, naval task force and
carrier battle group." Number and amount of equipment and supplies
may be described in general terms such as "large, small, or many."
(2) Any information that reveals details of future plans, operations or
strikes, including postponed or cancelled operations.
(3) Information, photography and imagery that would reveal the
specific location of military forces or show the level of security at
military installations or encampments. Locations may be described as
follows: all Navy embark stories can identify the ship upon which
embarked as a dateline and will state that this report is coming "from
the Persian Gulf, Red Sea or North Arabian Sea." Stories written in
Saudi Arabia may be datelined "Eastern Saudi Arabia, near the
Kuwaiti border, " etc. For specific countries outside Saudi Arabia,
stories will state that the report is coming from the Persian Gulf
region unless that country has acknowledged its participation.
(4) Rules of engagement details.
(5) Information on intelligence collection activities, including targets,
methods and results.
(6) During an operation, specific information on friendly force troop
movements, tactical deployments and dispositions that would
jeopardize operational security and lives. This would include unit
designations, names or operations and size of friendly forces involved
until released by CENTCOM.
(7) Identification of mission aircraft points of origin, other than as
land or carrier based.
(8) Information on the effectiveness or ineffectiveness of enemy
camouflage, cover, deception, targeting, direct and indirect fire,
intelligence col lection or security measures.
(9) Specific identifying information on missing or downed aircraft or
ships while search and rescue operations are planned or underway.
(10) Special operations forces methods, unique equipment or tactics.
(11) Specific operating methods and tactics, (e.g. air ops angles of
attack or speeds, naval tactics and evasive maneuvers). General
terms such as "low" or "fast" may be used.
X-1
FM 3-61.1
(12) Information on operational or support vulnerabilities that could
be used against U .S. forces, such as details of major battle damage or
major personnel losses of specific U.S. or coalition units, until that
information no longer provides tactical advantage to the enemy and
is, therefore, released by CENTCOM .
* Damage and casualties may be described as "light," "moderate," or "heavy."
X-2
Glossary
AFRTS— Armed Forces Radio and Television Services
BOD— Broadcast Operations Detachment
C2 protect— command and control-protect— see command and control warfare
C2W— command and control warfare
command and control warfare— The integrated use of operations security
(OPSEC), military deception, psychological operations (PSYOP), electronic warfare
(EW), and physical destruction, mutually supported by intelligence, to deny
information to, influence, degrade, or destroy adversary command and control
capabilities, while protecting friendly command and control capabilities against such
actions. Command and control warfare applies across the operational continuum and
all levels of conflict. Also called C2W. C2W is both offensive and defensive:
C2-protection— To maintain effective command and control of own forces by turning
to friendly advantage or negating adversary efforts to deny information to, influence,
degrade, or destroy the friendly C2 system.
civil affairs— the activities of a commander that establish, maintain, influence, or
exploit relations between military forces and civil authorities, both governmental and
nongovernmental, and the civilian populace in a friendly, neutral, or hostile area of
operations in order to facilitate military operations and consolidate operational
objectives. Civil affairs activities (1) embrace the relationship between military forces
and civil authorities and population in areas where military forces are present; and
(2) involve application of civil affairs functional specialty skills, in areas normally the
responsibility of civilian government, which enhance conduct of civil-military
operations. These activities may occur prior to, during, or subsequent to other
military actions. They may also occur, if directed, in the absence of other military
operations.
combined operation— an operation conducted by forces of two or more allied
nations acting together for the accomplishment of a single mission.
command information— see internal information
community relations— establishing and maintaining effective relationships
between military and civilian communities through planning and active
participation in events and processes which provide benefits to both communities.
Glossary-1
FM 3-61.1
community relations program— that command function which evaluates public
attitudes, identifies the mission of a military organization with the public interest,
and executes a program of action to earn public understanding and acceptance.
Community relations programs are conducted at all levels of command, both in the
United States and overseas, by military organizations having a community relations
area of responsibility. Community relations programs include, but are not limited to,
such activities as liaison and cooperation with associations and organizations and
their local affiliates at all levels; armed forces participation in international,
national, regional, state, and local public events; installation open houses and tours;
embarkation in naval ships; orientation tours for distinguished civilians; people-to-
people and humanitarian acts; cooperation with government officials and community
leaders; and encouragement of armed forces personnel and their dependents to
participate in activities of local schools, churches, fraternal, social, and civic
organizations, sports, and recreation programs, and other aspects of community life
to the extent feasible and appropriate, regardless of where they are located.
GIE— global information environment
global information environment— all individuals, organizations, or systems, most
of which are outside the control of the military or National Command Authorities,
that collect, process, and disseminate information to national and international
audiences.
ground rules— conditions established by a military command to govern the conduct
of news gathering and the release and/or use of specified information during an
operation or during a specific period of time.
information age— the future time period when social, cultural, and economic
patterns will reflect the decentralized, nonhierarchical flow of information.
information architecture— Description and specifications of information systems
to include identification of communicators, information transmitted, equipment
specifications and network designs. Includes operational, system and technical
architectures.
information operations— continuous military operations within the military
information environment that enable, enhance, and protect the friendly force's
ability to collect, process, and act on information to achieve an advantage across the
full range of military operations; information operations include interacting with the
global information environment and exploiting or denying an adversary's information
and decision capabilities.
information strategy— a synchronized plan for using all available and appropriate
methods of communication to achieve specific goals of informing target audiences.
internal information— communication by a military organization with service
members, civilian employees and family members of the organization that creates an
awareness of the organization's goals, informs them of significant developments
affecting them and the organization, increases their effectiveness as ambassadors of
the organization, and satisfies their desi re to be kept informed about what is going on
in the organization and operation (also known as command information).
Glossary-2
.Glossary
J IB— joint information bureau
joint information bureau— facilities established by the joint force commander to
serve as the focal point for the interface between the military and the media during
the conduct of joint operations. When operated in support of multinational
operations, a joint information bureau is called a Combined Information Bureau or
an Allied Press Information Center.
joint force— a general term applied to a force composed of significant elements,
assigned or attached, of two or more Military Departments, operating under a single
joi nt force commander.
joint operations— a general term to describe military actions conducted by joint
forces, or by Service forces in relationships (e.g., support, coordinating authority),
which, of themselves, do not create joint forces.
J OPES — J oint Operations Planning and Execution System
joint task force— a joint force that is constituted and so designated by the Secretary
of Defense, a combatant commander, a subunified commander, or an existing joint
task force commander. Also called J TF.
media facilitation— the range of activities such as providing access and interviews
that assist news media representatives covering military operations.
media operations center— facility that serves as the focal point for the interface
between the military and the media covering an event or operation.
media pool— a limited number of news media who represent a larger number of
news media organizations for news gathering and sharing of material during a
specified activity. Pooling is typically used when news media support resources
cannot accommodate a large number of journalists. The DoD National Media Pool is
available for coverage of the earliest stages of a contingency. Additionally, the
combatant commanders may also find it necessary to form limited local pools to
report on specific missions.
METT-TC— mission, enemy, terrain, troops, time available and civilians
Ml E— military information environment
military information environment— the environment contained within the global
information environment, consisting of the information systems and organizations-
friendly and adversary, military and nonmilitary— that support, enable, or
significantly influence a specific military operation.
MPAD--M obi I e Public Affairs Detachment
Glossary-3
FM 3-61.1
multinational operations— a collective term to describe military actions conducted
by forces of two or more nations, typically organized within the structure of a
coalition or alliance.
news media representative— an individual employed by a civilian radio or
television station, newspaper, newsmagazine, periodical, or news agency to gather
information and report on a newsworthy event.
NGO— nongovernmental organization
nongovernmental organizations— transnational organizations of private citizens
that maintain a consultative status with the Economic and Social Council of the
United Nations. Nongovernmental organizations may be professional associations,
foundations, multinational businesses, or simply groups with a common interest in
humanitarian assistance activities (development and relief). "Nongovernmental
organizations" is a term normally used by non-United States organizations. Also
called NGO. See also private voluntary organizations.
PAD— Public Affairs Detachment. The small est of the PA units.
PAG— public affairs guidance
PAOC— Public Affairs Operations Center.
private voluntary organizations— private, nonprofit humanitarian assistance
organizations involved in development and relief activities. Private voluntary
organizations are normally United States-based. "Private voluntary organization" is
often used synonymously with the term "nongovernmental organization." Also called
PVO. See also nongovernmental organizations.
psychological operations— operations to convey selected information and
indicators to foreign audiences to influence their emotions, motives, objective
reasoning, and ultimately the behavior of foreign governments, organizations,
groups, and individuals. The purpose of psychological operations is to induce or
reinforce foreign attitudes and behavior favorable to the originator's objectives. Also
called PSYOP.
PSYOP— psychological operations
public affairs assessment— an analysis of the news media and public
environments to evaluate the degree of understanding about strategic and operations
objectives and military activities and to identify levels of public support. Includes
judgments about the public affairs impact of pending decisions and recommendations
about the structure of public affairs support for the assigned mission.
public affairs estimate— as assessment of a specific mission from a public affairs
perspective.
public affairs guidance— normally, a package of information to support the public
discussion of defense issues and operations. Such guidance can range from a
telephonic response to a specific question to a more comprehensive package. I ncluded
Glossary-4
.Glossary
could be an approved public affairs policy, news statements, answers to anticipated
media questions, and community relations guidance. Public affairs guidance also
addresses the method(s), timing, location and other details governing the release of
information to the public.
public information— A general term describing processes used to provide
information to external audiences through public media.
sustaining base — the home station or permanent location of active duty units and
Reserve Component units (e.g., location of armory or reserve center) that provides
personnel, logistic and other support required to maintain and prolong operations or
combat.
Glossary-5
Bibliography
Joint Pub 3-13. Joint Doctrine for Information Operations. 9 October 1998.
Joint Pub 3-61. Doctrine for Public Affairs in Joint Operations.
Joint Pub 1-02. DOD Dictionary of Military and Associated Terms. 24 March 1994.
DOD Directive 5122.5 Public Affairs Program. 12 February 1993.
DOD Directive 5120.20-R. Management and Operation of Armed Forces Radio and
Television Service. 9 November 1998.
FM 3-61 (46-1). Public Affairs Operations. 10 March 1997.
FM 3-100.71 (71-100). Division Operations. 28 August 1996.
FM 3-07.29 (90-29). Noncombatant Evacuation Operations. 17 October 1994.
FM 3-0 (100-5). Operations. 14 June 1993.
FM 3-13 (100-6). Information Operations. 27 August 1996.
FM 3-100.1 (100-15). Corps Operations. 29 October 1996.
FM 3-07.7 (100-19). Domestic Support Operations. 1 July 1993.
FM 3-07.6 (100-23). Peace Operations. 30 December 1994.
TRADOC PAM 525-5. Force XXI Operations. 1 August 1994.
AR 200-1. Environmental Protection and Enhancement. 23 April 1990.
AR 360-5. Public Information. 31 May 1989.
AR 360-61. Community Relations. 15 January 1987.
AR 360-81. Command Information Program. 20 October 1989.
Public Affairs Guidance on National Guard Bureau Environmental Programs, National
Guard Bureau Office of Public Affairs, 1994.
Commander's Guide to Environmental Management, U.S. Army Environmental Center,
1995.
Bibliography-1
FM 3-61.1
Bibliography-2
Index
annex, 3-11,3-12, D-1, D-2
acquisition, 5-6
area study, G-1
Armed Forces Radio and
Television Service, T-1
Army Broadcasting Service, T-1
audience survey, V-1
B
briefings, 4-12, H-1, H-2
brigade public affairs, 8-1 , 8-2, 8-3
Broadcast Operations, T-1
Broadcast Operations Detachment,
1-9, 1-10
Chief of Public Affairs, 2-2
Civil Affairs, 9-1
civilians, Army, 1-3
commanders and public affairs,
1-1, 1-2, 1-3,2-1,2-3,5-3
community assistance, 7-10
community readiness
enhancement, 7-11
community relations, 7-1
community social improvements,
7-12
community surveys, U-1
Corps PA Section, 2-3
crisis planning, 3-2
Defense Data Network, 5-10
deliberate planning, 3-2, 3-4, 3-5
Division PA Section, 8-4, 8-5, 8-6,
8-7
DOD Media Pool, 4-10, 4-11
DOD Media Guidelines, B-1, B-2
DOD Principles of information, 4-1 ,
A-1
electronic newsgathering,
5-6
estimate, public affairs, 3-6,
3-7,3-8,3-9,3-10,9-3,9-4,
C-1,C-2, C-3
Freedom of Information Act,
R-1, R-2
global information environment,
1-2
ground rules, media, 4-8
guidance, PA, 3-10, E-1, E-2,
E-3
I
information infrastructure, 5-9
information needs, 5-5
Information Operations, 2-4,
2-5, 9-1
IO Battlestaff, 9-2
IO campaign cycle, 9-4, 9-5
Information Program
Evaluation, P-1, P-2
Information Strategies, 5-1
Information Strategy Process,
5-4, 5-5, 5-6, 5-7, 5-8
internal audience, 5-1
internet, 5-10
interviews, 6-7, 6-8, 6-9, N-1,
N-2,
Joint Information Bureau, 4-2
Land Information Warfare
Activity, 9-3
logistical support, 2-5
M
media faciliation, 4-1 , 6-1 0,
6-11,
media analysis, 0-1
media operations center, 4-2,
4-6, L-1
media pools, 4-10, 4-1 1
media support, 4-6
METT-T, 3-15
Mobile PA Detachment Also
MPAD, 1-6, 1-7
operational level public affairs,
5-4
operational security, 5-7
organic PA sections , 1-4
planning, 3-1
pre-deployment checklist, J-1 ,
J-2, J-3
Principles of Information, 4-1 ,
A-1
Principles of PA Standards and
Service, Q-1,Q-2
Privacy Act, R-1, R-2
Psychological Operations
(PSYOPS), 9-1
Public Affairs Detachment, 1-4,
1-5
Public affairs elements, 1-3
Public Affairs Operations
Center (PAOC), 1-7, 1-8,
1-9
public affairs civilian, 1-3
public affairs NCO, 1-3
public affairs officer, 1-2
public affairs specialist, 1-3
lndex-1
FM 3-61.1
registration of media, 4-7
releasable information, 4-9
S
strategic level public affairs, 5-4
SOP, 3-16, 3-17, K-1, K-2
speakers' bureau, 7-2
T
tactical level public affairs, 5-4
tactical command post PA
section, 8-8
telecommunication systems, 5-9
Town Hall Meetings, 7-4, 7-5
Training, 6-1
non-PA personnel, 6-6; unit
soldiers, 6-6; family members,
6-6; commanders, SMEs, 6-6;
exercises, 6-9, 6-10
terrorism guidance, S-1, S-2
W
Waiver of Liability, 1-1
lndex-2
FM 3-61.1
1 OCTOBER 2000
By Order of the Secretary of the Army:
ERICK. SHINSEKI
General, United States Army
Official: Chief of Staff
U&rfjLJ
AjOEL B. HUDSON
Administrative Assistant to the
Secretary of the Army
0030714
DISTRIBUTION:
Active Army, Army National Guard, and U. S. Army Reserve: To be distributed in
accordance with the initial distribution number 115834, requirements for FM 3-61.1.
PIN: 078040-000
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