U.S. Army John F. Kennedy Special Warfare Center and School
The U.S. Army’s Special Operations Center of Excellence
The Institute for Military Support
to Governance
Briefer: COL Warmack
Type of Brief: Information
Date:
Version: v5
The overall classification of this brief is: UNCLASSFIED/FOUO
BACKGROUND
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Historic Roots
• WWII - Civil Affairs and Military Government
was a single organizational structure
designed to conduct occupation duty in
Europe and Asia.
The
• The School of Military Government (SOMG)
was established in Charlottesville, Virginia in
1942.
• The SOMG lacked capacity throughput to meet demand, therefore establishing
the Civil Affairs Training Schools (CATS) at premier academic institutions such as
Harvard, Yale, Princeton, Stanford, University of Michigan, etc.
• The SOMG and CATS generated approximately 6,000 Military Government
officers.
• The SOMG and Military Government capability eroded due to lack of
demand in Cold War conflicts like Korea and Vietnam.
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Functional Specialist Program
• The concept of Functional Specialists derives
from our history in World War II – Civil Affairs and
Military Government, to conduct occupation duty in
post-war Europe and Asia
• Relied upon the inherent civilian skills brought into
uniform
• The current model is flawed due to –
o Alignment with Unified Action Partners operational lines
o Depletion of historical inventory of experts due to retirements and operational tempo
o An inability to procure veritable talent and deliver the right skill, at the right place, at the right
time
o An inability to adjudicate a practitioners capability to plan and execute at the local,
provincial, or national / regional level
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Veritas et Libertas4
Why Military Governance? The Blueprint
National Defense Strategy, Sustaining U.S. Global Leadership: Priorities for 21st Century
Defense – Deter and Defeat Aggression (A Primary Mission of U.S. Armed Forces) . . . “includes
being able to secure territory and populations and facilitate a transition to stable governance on a
small scale for a limited period using standing forces and, if necessary, for an extended period with
mobilized forces.”
DoDD 5100.01 Functions of the DoD and Its Major Components – Directs the Army to
“occupy territories abroad and provide for the initial establishment of a military government,
pending transfer of responsibility to other authority.”
DoDD 3000.005 Stability Operations – Directs DoD components to Conduct, Support, or
Lead Stability Operations.
JP 3-07 Stability Operations – Defines Transitional Military Authority as “a temporary military
government exercising the functions of civil administration in the absence of a legitimate civil
authority.”
JROCM #162-11 CA DOTMLPF Recommendation – Doctrine, Organizational, and Personnel
changes to CA formations in general and CA Functional Specialty capabilities in governance,
economic stability, public health and welfare, rule of law, infrastructure, public education, and
public information.
FM 27-10 Law of Land Warfare – The legal authority for military government or transitional
military authority is the Hague Convention, Number IV in 1907.
ADRP 3-07 Stability Operations – Army doctrine in conducting transitional military authority.
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IMSG generates the civil sector expertise for:
PREVENT
“…build the capacity of partners to secure populations, protect
infrastructure, and strengthen institutions as a means of protecting
common security interests, preventing conflict…”
“…address shared interests and enhance partners’ security,
governance, economic, development, essential services, rule of law,
and other critical functions as part of unified action.”
SHAPE
“…engagement with partners to co-develop mutually beneficial capabilities and
capacities to address shared global interests.”
WIN
“civil military operations in a multinational environment with partners and
among diverse populations to support allies and partners, protect and reassure
populations, and isolate and defeat enemies within the operational environment
in support of unified action.”
(Army Capstone Concept, 19 DEC 2012)
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Gaps Derived from JROCM 162-11
•The Army requires the capability to procure, educate, and
incorporate the necessary civil sector expertise to integrate
and support Unified Action planning and execution.
•The Army requires a mechanism to capture lessons learned, cross-pollinate best
practices with Unified Action Partners, and develop concepts that foster efficient
integration and transition.
• The Army requires the capability to manage a network of relationships in order
to leverage the private sector.
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Developing a way ahead for IMSG
• Received
Hon. Thomas Lamont (Assistant Secretary of the Army
JUN 2011
for Manpower and Reserve Affairs) Memorandum
• Reviewed
Joint Requirements Oversight Council (JROC) Civil Affairs
DEC 2011
DOTMLPF Change Recommendation Memorandum
• Met
GEN Rodriguez (CDR, FORSCOM), LTG Cleveland
OCT 2012
(CDR, USASOC), LTG Talley (CDR, USARC / Chief, USAR)
• Presented
US Institute of Peace
FEB 2013
• Collaborated
US Army War College, West Point Center for
FEB 2013
Civil-Military Operations, DoS Bureau of Conflict and
Stabilization Operations
• Briefed
LTG Cleveland (CDR, USASOC)
MAR /APR 2013
• Briefed
USARC / OCAR Senior Leaders
MAR 2013
• Submitted
38G Military Occupational Classification & Structure Packet
JUN 2013
• Briefed
LTG Talley (CDR, USARC / Chief, USAR)
JUL 2013
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PHASE I
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IMSG Mission – Phase I
Mission – The Institute for Military Support to Governance (IMSG)
establishes a corporate body to research, analyze, and shape the policies,
authorities, and doctrine required to leverage and employ civil sector
expertise in contingencies.
Functions –
• Shape policy and develop doctrine and training related to civil sector expertise.
• Leverage the private sector
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IMSG Phase I Timeline
PHASE I KEY TASKS –
1. “Get the shingle out”
2. Distribute white papers
3. Research, analyze and
shape policies, authorities,
and doctrine
Publish First White
Paper
IMSG Initial
Team in place
JUN 13
JUL 13
BG Director identified
and in-place
Develop MOU
Develop Draft
Charter
AUG 13
SEP 13
OCT 13
NOV 13
Develop IMSG
TDA
DEC 13
JAN 14
FEB 14
Determine Charter
Members
Facilities
Established
Publish Charter
MAR 14
PHASE I OUTCOME –
• 38G Implementation
• Doctrinal Production
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IMSG Proposed Structure
Aide-De-Camp
TPU / AGR 38A
CPT
Academic
Dean
Director
Institute for Military Support
to Governance
US
Asst Dean
GS-14
Operations &
Integration
Section
Deputy
Director, AGR
38A COL
Private Sector
Integrator 38 A
MAJ
Essential and
Humanitarian
Services Dept
Operations
Officer, AGR
38A MAJ
Director
USAR COL
Director
USAR COL
Director
USAR COL
Director
USAR COL
Director (Econ)
USAR COL
Director
USAR COL
Asst
Operations, DA
Civilian
Lead Coord
AGR 38A LTC /
MAJ
Lead Coord
AGR 38A LTC /
MAJ
Lead Coord
AGR 38A LTC /
MAJ
Lead Coord
AGR 38A LTC /
MAJ
Director (Infra)
USAR COL
Lead Coord
AGR 38A LTC /
MAJ
Asst
Operations,
AGR 38A CPT
Partners –
-USAID
-Dept of
Education
Partners –
-Military Police
-Maneuver COE
-National, state,
and local law
enforcement
entities
Partners –
-DOS
-USAID
-JAG
-Court systems
Partners –
-DOS
-USAID
-State
Government
-Local
Government
Operations
NCO, AGR E8
Civil Security
Department
Rule of Law
Department
Governance
Department
Lead Coord
AGR 38A LTC /
MAJ
Partners –
-USAID
-USACE
-Department of
Agriculture
-Chamber of
Commerce
Public Affairs
Officer, MAJ
USAR
TPU / IMA
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USAR
AGR
DAC
(USASOC)
Economy and
Infrastructure
Department
AC
Homeland
Integration
Department
Partners –
-DHS
-Private/Public
Partnerships
AGR
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PHASE II
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Proposed IMSG Mission – Phase II
Mission – The Institute for Military Support to Governance (IMSG) is
corporate body to research, analyze, and shape the policies, authorities, and
doctrine; manages and leverages a network of relationships; conduct
professional credentialing of Military Governance Officers; and support
concept development for experimentation in order to provide civil sector
expertise to the Joint Force Commander and achieve Unified Action.
Functions –
• Shape policy and develop doctrine and training related to civil sector expertise
• Leverage our ‘Fifth Force Provider’ – the private sector
• Extend operational reach
• Identify and coordinate with pertinent credentialing associations
• Establish advanced educational opportunities at premier academic institutions
• Perform talent management
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IMSG Proposed PH II Timeline
PHASE I KEY TASKS –
IMSG Initial
Team in place
Brief Key Decision
Makers
1. “Get the shingle out”
3Q FY 13
2. Distribute white papers
3. Research, analyze and
shape policies, authorities,
and doctrine
4Q FY 13
3. Inject 38G capabilities
into concepts and
experiments
BG Director identified and in-place
FDU
2Q FY 14
PHASE II KEY TASKS –
2. Develop Doctrine and
Training
MOCS Packet
thru HQDA
1Q FY 14
3Q FY 14
1. Establish credentialing
for 38G
Facilities
Established
4Q FY 14
IMSG
develops
recruit and
credential
plans
CA Proponent
Implement
DOTMLPF solutions
for 38G
1Q FY 15
2Q FY 15
3Q FY 15
Set conditions to
recruit and train 38G
4Q FY 15
IMSG
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38G
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Distinct Roles and Functions
Peacekeeping and Stability
Operations Institute
FOCUS –
Serve as the U.S. Army’s Center of
Excellence for Stability and Peace
Operations at the Strategic and
Operational levels in order to improve
military, civilian agency, international,
and multinational capabilities and
execution.
Center for the Study of
Civil-Military Operations
FOCUS –
• Developing West Point leaders to
capitalize on their understanding of
CMO within the framework of the broad
challenges they will face in military
service.
• Facilitate transformational changes to
Professional Military Education across
DoD and interested USG activities.
• West Point established as a wellspring
of Professional Military Education in the
realm of CMO.
Institute for Military
Support to Governance
FOCUS –
Phase I –
A corporate body to research, analyze,
and shape the policies, authorities, and
doctrine required to leverage and
employ civil sector expertise to support
Army and Joint Force Commanders at
the tactical, operational, and strategic
levels.
Phase II (Proposed) –
A corporate body to research, analyze,
and shape the policies, authorities, and
doctrine; manages and leverages a
network of relationships; conducts
professional credentialing of Military
Governance Officers; and supports
concept development for
experimentation required to leverage
and employ civil sector expertise to
support Army and Joint Force
Commanders at the tactical,
operational, and strategic levels to
achieve Unified Action.
Veritas et Libertas
IMSG and CMAG
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IMSG is a component of CA Futures Planning
CA Org.
Future
Force
Structure
Concept
CA Reassignment
Initiative
IMSG
Concept
CivilMilitary
Advisory
Group
(CMAG)
CA
Future
38G
Concept
Future
Core
Competencies
3-57.40
Rewrite
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Civil Military Advisory Group
• Part of SOCOM’s effort to expand the Global SOF network and ARSOF 2022’s vision of
“Operationalizing the CONUS base”
• Established national-level forum for stakeholders for civil-military collaboration, integration and
planning that can analyze, inform and develop strategies across the spectrum of conflict and
emerging crisis.
• Incremental build beginning with the establishment of a CMAG cell within the SOCOM CCF
structure.
• The CMAG cell would work to build and sustain relationships for collaboration, integration and
planning capability to support activities at both the operational and tactical level.
• In an ambiguous and complex environment the CMAG will systematize the relationships and
mechanisms required to better integrate whole of government (Unified Action Partners) and other
relevant partners’ efforts in support of USG objectives.
CMAG is not a duplicative effort but complementary to meet operational
requirements.
Unified Goals
Institute for Military
Support to Governance
Common Goals
Civil Military Advisory Group
Information Analysis and Fusion
Procure Talent
Coordinate with Stakeholders
Standing Expertise
Academic Research
Cross-Pollinate Best Practices
Educational Opportunities
Establish Credentialing Gates
Operational Support
Experimentation
Concept Development
Veritas et Libertas
Operational Framework
GEF
Department of
State (DOS)
USSOCOM
F PROCESS
Current
Gap
Relevant
Partners
USAID
CONPLAN 7500
95th Civil Affairs Brigade (Airborne)
CMAG
GCC
MSP
Theater
CMSE
TSOC
TSCP
TSOC
Forward
SOF CA BN
CAPT
SOF CA
Company
CMOC
US Embassy
COP
USEMB
Country Team
CMSE
DOD GWOT Campaign Construct/ 7500
Indirect Approach
Shape and Stabilize
1. Enable Partners to Combat VEOs
2. Deter Tacit and Active support to VEOs
3. Erode Support for Extremist Ideologies
Increase Friendly Freedom of Action
Reduce Enemy Freedom of Action
SOF CA
Team (CAT)
Function: Support TSOC planning efforts;
Coordinate SOF CA ISO TSOC Objectives;
Build Partnership activities; Provide Civil
Component of TSOC OPE; Coordinate Crisis
Response.
Function: Provide Civil Component of OPE;
Fuse CMSE/CAT CIM data ISO Regional
Targeting Priorities; Develop plans to engage
threats to civil society by, with and through
legitimate indigenous authorities IOT reduce,
mitigate and eliminate civil vulnerabilities.
Function: Conduct Targeted CAO; Conduct
CIM; Leverage Country Team programmatics,
HN assets and NGO capabilities ISO TSOC
Objectives.
Preventative
Engagement
Non-Conflict Environment
PHASE 0
Conflict Environment
IMSG Concept Potential Scenario: Crop Failure in Sudan
JTF HOA soldiers report wheat crop failures in rural South Sudan
Harvard
Kennedy
School of
Government
Naval
Postgraduate
School
Hoover
Institution
Stanford
University
Northwestern
Center for
Public Safety
US Army
PKSOI
USAID
AFRICOM
DOS
UVU Institute of
Emergency Services
and Homeland Security
Notre Dame
School of
Business
UNC Institute for
Global Health &
Infectious Diseases
IMSG
USC Keston Institute
for Public Finance and
Infrastructure Policy
Institute
Of Peace
National
Defense
University
CMAG
USCAPOC
Borlaug Institute for
International
Agriculture
Texas A & M
Kenya
Agricultural
Research
Institute
JTF HOA
Stem rust is a fungus that damages wheat and other cereal crops. In recent years, a particularly virulent
strain (Ug99) emerged in Uganda and is currently spreading to Kenya, Ethiopia, Sudan and Yemen.
Ug99 is becoming more virulent as it spreads. This strain of stem rust fungus causes crop yield losses
of 50 to 70 percent resulting in food insecurity, population vulnerability and, without intervention, famine.
Ug99 is a threat to global agriculture and the global food supply.
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38G
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IMSG supports 38G Concept Development
CA Org.
Future
Force
Structure
Concept
CA Reassignment
Initiative
CivilMilitary
Advisory
Group
(CMAG)
IMSG
Concept
IMSG
Required
Capabilities
CA
Future
Future
Core
Competencies
IMSG
38G
Concept
38G
Required
Capabilities
3-57.40
Rewrite
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IMSG Phase II: 38G (No Growth)
21
Grade
O6
O5
O4
O3
38A
41
159
433
974
38G
21
187
240
132
Total
62
346
673
1106
Total
1607
580
2187
187
38G
240
132
62
346
673
41
1106
159
Current
38A
38A
433
974
38G positions derived from existing 38A functional specialty authorizations
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38G Professional Tiering
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Master
38G Professional Tiering
Positions coded w/SI
for professional
expertise and
specialty skill
Bachelors
Bachelors
Education
Expert
Senior
*Masters
12 Yrs Exp
Terminal
Professional
Certifications
8 Years Experience
Professional Certifications
*4 Years Experience
*Professional Certifications
* Requires two
Basic
Masters
Master
Recognized
Expert in Field
PhD
UNCLASSFIED/FOUO
Distinguishes
professional abilities
for effective
employment
>4 Years Experience
Experience / Certifications
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IMSG Logic Map for Phase I
IMA (MOB)
Coordinate
w/ USARC
and SLDO
Transfer Positions
to SWCS Reserve
TDA
AGR
Coordinate
w/ USARC
G-3
Direct Military
Overhire
Auth
GS Civilian
Position
Description
& Org Chart
ID
Requirement
&
Authorization
Initial Talent
Recruitment
IMSG
Concept
IMSG
Provisional
TDA
38G Concept
38G
Required
Capabilities
IMSG Location
(Irwin Middle)
Refurb Work
Order
IMSG
Required
Capabilities
Transfer Positions
to SWCS AGR TDA
Submit Civ
Workforce
Management
Council Packet
IMSG
Troops to
Task
Analysis
IMSG
Tasks
Identified
Personnel
Vetting
Proposed
IMSG
TDA
Orders
Process
Orders
Process
Classification
Request
for
Personnel
Action
SWCS,
USASOC,
TRADOC, DA
approvals
IMSG in
ARSTRUCT
Start
Work
Project
complete
QA/QC
Hiring
Board
IMSG
POM Line
Publish
Charter
SWCS
submits to
DPW($8K)
(OCT13)
Design
Plan
DoD
Schools
vacate
(JAN14)
Establish Funding
Accounting
Procedures
Determine
Funding
Source
Submit to Critical Requirement
Review Committee
UFR
Board or
VOCO
Submit
UFR
Contracting
MIPR
DPW
Reoccupy
IMSG
Occupy
Temporary
Offices
Occupy
IMSG
As Is
Informs
Gain Line of
Accounting for
Provisional TDA
Leads To
PHASE I KEY TASKS –
1. “Get the shingle out”
UNCLASSFIED/FOUO
2.
Distribute white papers
3.
Research, analyze and shape policies, authorities, and doctrine
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IMSG Required Capabilities
Doctrine
Develop 38G / application of civil sector expertise doctrine
Organization
Input 38G / civil sector expertise to the Force Design Update
Process
Facilitate interaction between civil sector experts and Unified
Action Partners
Training
Coordinate IET for accessing 38G, Inform development of 38G
BOLC II
Material
Inform Force Development Update regarding Mil-Gov
requirements
Leadership & Education
Identify and Inform education opportunities on the application
of civil sector expertise within Unified Action.
Personnel
Manage personnel life cycle of 38G in conjunction with CA
personnel proponent
Facilities
CAAF through 2018
Policy
Identify suboptimal Mil-Gov and Military Support to
Governance policies and initiate corrective action
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Backup
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IMSG Summary
The Institute for Military Support to Governance –
• Creates the capability to meet long standing US military governance obligations
• Generates the civil sector expertise required to support future operations
• IMSG Phase I (no growth) – Focuses on policies, authorities, and doctrine
• IMSG Phase II – Generates 38G (converts existing 38A force structure)
• Credentials civil sector experts
• Develops 38G doctrine and training
• Supports concept development and experimentation
• Establishes advanced educational opportunities at premier academic institutions
• Performs talent management of civil sector experts
• Supports operational practitioners with situational research and analysis
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