Forged in the Fire, Legal Lessons Learned During Military Operations, 1994-2008

446 Pages·2008·23.04 MB·English

FORGED IN THE FIRE
LESSONS LEARNED DURING
MILITARY OPERATIONS
(1994-2008)
2008

CENTER FOR LAW AND MILITARY OPERATIONS

1 September 2008
FORGED IN THE FIRE

11
FOREWORD

The Judge Advocate General (TJAG) established the Center for Law and Military
Operations (CLAMO) in 1988 at the direction ofthe Secretary ofthe Army. CLAMO's
mission is to examine the legal issues that arise during all phases of military operations
and devise training and resource strategies for addressing them. It seeks to fulfill this
mission in five ways. First, it is the central repository within The Judge Advocate
General's Corps (JAGC) for all-source data, information, memoranda, after action
materials and lessons learned pertaining to legal support to operations, foreign and
domestic. Second, it supports Judge Advocates (JAs) by analyzing all data and
information, developing lessons learned across all military legal disciplines, and
disseminating these lessons and other operational information to the Army, Marine
Corps, and Joint communities through publications, instruction, training, and databases
accessible to operational forces, worldwide. Third, it supports JAs in the field by
responding to requests for assistance, engaging in a continuous exchange of information
with the Combat Training Centers (CTCs) and their JA observer-controllers, and creating
operational law training guides. Fourth, itfacilitates the integration oflessons learned
from operations and the CTCs into emerging doctrine and the curricula of all relevant
courses, workshops, orientations, and seminars conducted at The Judge Advocate
General's Legal Center and School (TJAGLCS). Fifth, in conjunction with TJAGLCS, it
sponsors conferences and symposia on topics of interest to operational lawyers.
Over the last 14 years, CLAMO has published a variety of source materials on
legal issues faced in several different types ofmilitary operations, to include Law and
Military Operations in Haiti 1994-1995; Law and Military Operations in the Balkans
1995-1998; Law and Military Operations in Kosovo 1999-2001; Legal Lessons Learned
From Afghanistan and Iraq, Volume I; Legal Lessons Learnedfrom Afghanistan and
Iraq, Volume II; Law and Military Operations in Central America: Hurricane Mitch
ReliefEfforts, 1998-1999; Us. Government Interagency Complex Contingency
Operations Organization and Legal Handbook; Domestic Operational Law Handbook
for Judge Advocates; Rules ofEngagement (ROE) Handbookfor Judge Advocates; and
the Rule ofLaw Handbook (A Practitioner's Guide for Judge Advocates).
Judge Advocates have used these resources for over a decade and they continue to
be in demand today. A recurring comment from the field, however, concerns the
difficulty encountered when trying to research an issue on a specific topic such as claims,
rules of engagement, or rule oflaw. Before the introduction of this compendium, JAs
had to research volume by volume and compile their information from a variety of
sources. This often led to the additional frustration of re-reading the same lessons from
one operation to the next. This compendium attempts to gather all available lessons in
several key operational law areas and place them under one heading that JAs can quickly
read, search and digest. Its intended use is alongside the handbooks, which summarize
the law applicable to a particular area. CLAMO will update this compendium as our JAs
and paralegals continue to be forged in the fire by practicing law in the most challenging,
yet rewarding, environment imaginable - the U.S. military.
111
FORGED IN THE FIRE

Forged in the Fire - Legal Lessons Learned During Military Operations is
organized in the standard format for JAGC after action reports (AARs). The format is
based upon the six core legal disciplines found in Field Manual 27-100, plus the
emerging areas of our practice in multinational, interagency, domestic and domestic
support operations, and the Joint Vision 2020 concept of doctrine, organization, training,
materiel, leadership, personnel, and facilities (DOTMLPF) as it is used to translate
emerging joint operational concepts into joint warfighting capabilities.
The AAR format appears at the beginning ofthe International and Operational
Law chapter. The framework provides a guide to JAs and other legal personnel as they
capture specific lessons learned during the course of a deployment. Use of this format
also permits the standardization of data collection in a way that provides an improved,
systemic ability to cross-reference data trends across different organizations. The
CLAMO database reflects the AAR format. The template as it exists now is merely a
framework. The expectation is that, with your contribution and ideas, it will expand to
include other legal issues and themes.
The contents ofthis publication are not to be construed as official positions,
policies, or decisions ofthe U.S. Army, The Judge Advocate General of the U.S. Army,
the U.S. Marine Corps, the Staff Judge Advocate to the Commandant of the Marine
Corps, the U.S. Department of State, or the Legal Adviser of the U.S. Department of
State. Everything in CLAMO is a product of the imagination, contribution, and
innovation of our JAs and legal personnel in the field. CLAMO welcomes and solicits
suggestions and contributions of relevant operational law materials from the field. Please
send your comments or ideas on how to improve or expand this publication to
[email protected].
IV
TABLE OF CONTENTS

I. INTERNATIONAL & OPERATIONAL LAW 1

LA. AFTER A CTION REPORT (AAR) FORMAT 1

LB. ARMS CONTROL 5

LC CIVIL AFFAIRS (CA) 6

I. C.1. Haiti 6

I.C.2. Bosnia 9

I. C.3. Operations IRAQI FREEDOM & ENDURING FREEDOM 11

LD. CIVILIANS & CONTRACTORS ON THE BATTLEFIELD 18

I.D.1. Emergency Essential (EE) Civilians Supporting Military Operations 18

I.D.2. Contingency Contracting Personnel (CCP) 20

LE. DETENTIONOPERATIONS 28

I.E. 1. Legal Framework 28

I.E. 2. Article 5 Tribunals 32

I.E. 3. Article 78 Reviews 34

I.E. 4. Plans, Procedures, & Facilities 36

I.E. 5. Interrogation 50

I.E. 6. Use ofForce 51

LF. ENVIRONMENTAL ISSUES 53

J.P.1. Proactive Measures 53

I.P.2. Analyzing Environmental Law Issues 54

I.P.3. Lessons Learned. 55

LG. FOREIGN &INTERNATIONAL RELATIONS 57

I.G.1. Us. Government-Intergovernmental Organization (IGO) Interaction 57

I. G.2. Us. Government - Non-Governmental Organization (NGO) Interaction 62

J. G. 3. Us. Government - Multinational Partner Interaction 63

I. G.4. Us. Government - Host Nation (HN) Interaction 64

LH. HUMAN RIGHTS LA W 66

LL INFORMATION OPERATIONS (10) 68

LJ. INTELLIGENCE ISSUES 75

LK. INTERNATIONAL AGREEMENTS &SOFAS 79

IX.1. Peace Agreements 79

I.K.2. Agreements Governing the Conduct ofHostilities 81

I.K.3. Status ofForces Agreements (SOFAs) 87

I.K.4. Acquisition and Cross-Servicing Agreements (ACSAs) 92

LL. LAWOF WARILAWOFARMED CONFLICT 93

I.L.1. Training 94

I. E. 2. Code ofConduct 96

I.L.3. LOW Violations (War Crimes) 97

I.L.4. Legal Review ofWeapons 100

I.L.5. Occupation Law 105

LM. LEGAL BASIS FOR OPERATIONS 110

I.M 1. Operations in Haiti 11 0

I.M2. Operations in Bosnia 112

I.M3. Operations in Kosovo 114

I.M4. Operations in Afghanistan 117

I.M5. Operations in Iraq 121

LN. RULEOFLAW(ROL) 127

I.N 1. Understand Developing Doctrine 128

I.N2. Interagency Coordination and an Integrated RoL Plan 129

I.N3. Understand How RoL Initiatives Are Part ofthe Counterinsurgency Mission 130

I.N4. Develop Comparative Law Knowledge 131

v
FORGED IN THE FIRE

I.N 5. Build Local Relationships 132

I.N 6. Assess Key Justice Sector Institutions & Their Interaction with Each Other 133

I.N 7. Develop Initiatives to Increase Public Supportfor the Rule ofLaw 133

I.N.8. Lessons Learned 133

1.0. RULES OF ENGAGEMENT (ROE) 143

1. 0.1. Rules ofEngagement (ROE) Planning & Application 143

1.0.2. ROE Training 150

LP. STABILITYOPERATIONS 153

II. ADMINISTRATIVE LAW 157

/LA. ARMY&AIR FORCE EXCHANGE SERVICE (AAFES)/MARINE CORPS COMMUNITY

SERVICES (MCCS) 158

/LB. ETHICS/JOINTETHICSREGULATION(JER) 159

ILe. FREEDOMOFINFORMATION(FOIA)/PRIVACYACT(PA) 162

ILD. HISTORICAL ARTIFACTS & WAR TROPHIES 165

Il.D.l. Background. 165

Il.D.2. Lessons Learned 167

ILE. INSPECTIONS 174

ILF. INTERNET USE 175

ILG. INVESTIGATIONS 176

II. G.l. Army Regulation (AR) 15-6 & JAGMAN Investigations 176

II. G.2. Line ofDuty Investigations 184

11.G.3. Mishap and Safety Investigations 184

11.G.4. Financial Liability Investigations ofProperty Loss (FLIPLs) 185

ILH. MEDICAL ISSUES 187

ILL MILITARYPERSONNEL LAW 189

11.1.1. Administrative Separations 189

11.1.2. Conscientious Objectors 189

11.1. 3. Hazing " 190

11.1.4. Letters ofReprimand 190

11.1.5. Casualties 191

II.J. MORALE, WELFARE & RECREATION/MARINE CORPS COMMUNITYSERVICES 193

ILK. PASSPORTS & VISAS 194

III. CIVIL LAW 195

lILA. CONTINGENCY CONTRACTING 197

IlI.A.l. Access to Contract Documents 197

I11.A.2. Performance Work Statements (previously Statements ofWork (SOWs)) 197

IIl.A.3. Contract Scope 198

InA. 4. Requirements Contracts 199

InA. 5. Acquisition Review Boards 201

InA. 6. Unauthorized Commitments 203

InA. 7. LOGCAP Contracting 204

InA. 8. International Contracts 206

1I1.B. FISCAL LAW 207

Ill.B.l. Use ofO&MFundsfor Development & Security Assistance 207

I11.B.2. Commander's Emergency Response Program (CERP) 221

I11.B.3. Military Construction (MiLCON) 228

IIl.B.4. Leases 231

I11.B.5. Donation & Disposal ofProperty 231

I11.B.6. Acquisition & Cross-Servicing Agreements (ACSAs) 234

I11.B.7. Visitors, Gifts, & Entertainment 237

IV. CLAIMS 239

IV.A. PRE-DEPLOYMENTPLANNING 241

IV.B. FOREIGNCLAIMSACT(FCA) 244

VI
Iv'B.I. Language & Culture Issues 244

Iv'B.2. Providing Access to Claims Services 245

Iv'B.3. Adjudicating Claims 247

Iv'B.4. Detecting Fraudulent Claims 250

Iv'B.5. Combat Exclusion 252

Iv'B.6. Claims Resultingfrom the Actions ofOthers 254

IV.C. DEATH CLAIMS &SOLATIA PAyMENTS 256

IV.D. CLAIMS ARISING FROMLAND USE 260

IV.E. MILITARY CLAIMS ACT(MCA) 262

IV.F. PERSONNEL CLAIMS ACT(PCA) 263

V. LEGAL ASSISTANCE 265

V.A. PREVENTIVELAWPROGRAMS 266

v'A.1. Soldier Readiness Programs (SRPs) 266

v'A.2. Debtor/Creditor Issues & Financial Management 269

V.B. ISSUES DURING DEPLOyMENT 271

v'B.I. Family Law 271

v'B.2. Landlord & Tenant Issues 273

v'B.3. Vehicle Repossession 274

v'B.4. Servicemembers Civil ReliefAct (SCRA) 274

V.C. ESTATEPLANNING 276

v'C.1. Wills 276

v'C2. Powers ofAttorney (POAs) 277

V.D. NATURALIZATION 280

v.E. DEPLOYING THE LEGAL ASSISTANCE OFFICE 283

v'E.1. Provision ofLegal Assistance 283

v,E. 2. Potential Conflicts ofInterest 283

v'E.3. Tax Assistance 285

v'E.4. Space & Equipment 285

v'E.5. Paralegals at Dispersed Locations 287

VI. MILITARY JUSTICE 289

VLA. JURISDICTION 291

VI.A.1. Operation ENDURING FREEDOM (OEF) 293

VI.A.2. Operation IRAQI FREEDOM (OIF) 295

VI.A.3. Provisional Units 304

VLB. MANAGINGADEPLOYEDMILITARYJUSTICEOFFICE 306

VLC MILITARYJUSTICE ATHOME STATION 308

VLD. CONDUCTING DEPLOYED COURTS-MARTIAL 310

VI.D.1. Court-Martial Convening Orders (CMCOs) 310

VI.D.2. Panels 310

VI.D.3. Choice ofVenue 311

VI.D.4. Media Issues 311

VI.D.5. Classified Information 312

VI.D.6. Logistic Issues 312

VLE. MAGISTRATES & JUDGES 316

VI.E.l. Judges 316

VI.E.2. Magistrates 317

VLF. INVESTIGATIONS & SEARCHES 318

VLG. CONFINEMENT 319

VLH. GENERAL ORDERS (GOs) 320

VLL MILITARYJUSTICE - JOINTENVIRONMENT 325

VLJ. SUMMARY COURTS-MARTIAL 328

VLK. URINALySIS 331

VLL. ALTERNATIVES TO COURT-MARTIAL 333

VI.L.1. Nonjudicial Punishment (NJP) 333

VB
FORGED IN THE FIRE

VlL.2. Administrative Separations 334

VlL.3. Letters ofReprimand 335

VLM. CIVILIANS ACCOMPANYING THE FORCE 336

VLN. TRIAL DEFENSE SERVICE (TDS) 337

VLO. REDEPLOyMENT 339

VII. MULTINATIONAL OPERATIONS 341

VILA. LEGAL ISSUES 343

VIlA. 1. International & Operational Law 343

VII.A.2. Administrative & Civil Law 358

VIlA.3 Military Justice 359

VIlA.4 Exchange Personnel 361

VILB. POLICYISSUES 362

VIlB.1 History, Legal System, Politics, Culture 362

VIlB.2. Legal Networking 363

VIlB.3. Communications & Cohesion 364

VIII. INTERAGENCY COORDINATION 367

VIlLA. COORDINATIONMECHANISMS 368

VIllA. 1. National Security Council (NSC) & Policy Coordination Committees (PCCs) 368

VIII.A.2. Us. Embassy Country Teams 368

VIII.A.3. Civil-Military Operations Centers (CMOCs) 369

VIII.A.4. Other Contingency Operations Coordination Mechanisms 369

VIILB. RECONSTRUCTION & STABILIZATION 370

VIII.B.1. DOS - Office ofthe Coordinatorfor Reconstruction & Stabilization (SICRS) 370

VIII.B.2. Department ofDefense (DOD) 371

VIlLe. POSSIBLE CONTINGENCY OPERATIONS 374

VIIlC1. Natural Disaster Assistance 374

VIII. C 2. Peace Operations 374

VIIlC3. Noncombatant Evacuation Operations (NEOs) 374

VIILD. LESSONS LEARNED 376

IX. DOMESTIC & DOMESTIC SUPPORT OPERATIONS 379

IXA. HOMELAND DEFENSE (HD) 380

IXA.1. Intelligence & Information Operations (10) 380

IXA.2. Standing Rules ofEngagement & Standing Rules for the Use ofForce 385

IXB. CIVIL SUPPORT (CS) ..•.....•.......••.....•...•...•................•.•.•.............................•.........••....•............ 387

IXB.1. Counterdrug (CD) Operations 387

IXB.2. Disaster Relief/Consequence Management 389

IXB.3. National Response Framework (NRF) 394

IXB.4. Rulesfor the Use ofForce (RUF) 395

X. DOCTRINE, ORGANIZATION, TRAINING, MATERIEL, LEADERSHIP, PERSONNEL, &

FACILITIES (DOTMLPF), & COUNTRY MATERIALS 399

XA. ARMYDOCTRINE 400

XB. ARMYORGANIZATION(FORCESTRUCTURE) 401

XB.1. Staffing the Brigade 401

XB.2. Staffing the Joint Command 402

XB.3. Staffing the Rear Detachment 402

Xe. TRAINING,MILITARYDECISION-MAKINGPROCESS(MDMP), & READINESS 405

X C1. Pre-Deployment Training 405

XC2. Military Decision-Making Process (MDMP) 408

XC3. Coordinating the Transfer ofAuthority (TOA) 409

XD. MATERIEL 413

XD.1. Portable Hard Drives & Storage Devices 413

XD.2. Communications Equipment 414

Vln
XD.3. lriformation Management 416

XD.4. Obtaining Supplies 420

XE. LEADERSHIP 422

XE.1. Taking Care ofSoldiers 422

XE.2. Evaluations 423

XE.3. Visits, Awards, & Ceremonies .423

XE.4. Taking Care ofFamilies 425

XF. PERSONNEL 427

XF.1. Accountability 427

XF.2. Work Schedules 427

XF.3. Assigning Office Duties 427

XF.4. Rotation ofDuty Positions 428

XF.5. Appointments & Designations 429

XF.6. Security Clearances 431

XG. FACILITIES 433

XH. COUNTRYMATERIALS 435

XH1. Host Nation Law & Legal System .435

IX