Escalate the PSYOP message.
z
Highlight the target pointer.
z
Demonstrate sniper precision strike capability.
z
Employ riot control measures.
z
Use NL munitions.
z
Use RCAs (if approved).
z
Move through the crowd using riot control formations and movement
techniques.
z
Use the graduated response matrix (GRM)
2-56. With the increased participation of US forces in contingency operations around the world, it accentuates the need to establish procedures for applying graduated military responses to situations that threaten these missions.
Numerous GRMs and similar products exist throughout the military. These
products graphically portray available responses in a graduated manner. The
intent of these products is to give the on-scene commanders a list of options
with which to control or defuse a situation before it gets out of hand. Most
threats can be eliminated without loss of life or collateral damage by
effectively applying the resources available.
PLAN A GRADUATED RESPONSE MATRIX
2-57. The planning for and development of a GRM begins with the mission
analysis portion of the military decision-making process (MDMP). Some
missions require US forces to enforce treaties or accords to protect the lives of civilians in uncertain or hostile environments (such as noncombatant
evacuation operations [NEO]) or to provide large-scale humanitarian
assistance. These missions require some sort of graduated response criteria to maintain order and prevent uncertain environments from becoming hostile.
The development of a GRM requires the following seven steps:
z
Identify the need for a GRM.
z
Establish a team to develop the GRM.
z
Develop targets.
z
Coordinate staff functions.
z
War-game.
z
Receive command approval.
z
Operate deliberately.
Identify the Need for a Graduated Response Matrix
2-58. Not all missions require a GRM. The decision to use a GRM requires
careful consideration. Once it is agreed that a GRM is necessary, it requires
guidance from the commander regarding the response options available.
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Determining the appropriate responses is based on the facts, assumptions,
and limitations identified during mission analysis.
2-59. Planners (staff) must agree on the intent of the GRM. The GRM can be
used as a training and rehearsal tool. It provides leaders with the most likely vignettes that can be incorporated into a COA analysis, predeployment
training, and rehearsals. The GRM can also be used as a handy reference
during situations that require graduated responses.
Establish a Team to Develop the Graduated Response Matrix
2-60. Establish a GRM development team with a broad range of skills,
knowledge, and professionalism. The following list of individuals makes up a
typical GRM team:
z
Provost marshal or senior military police advisor.
z
FSE.
z
Brigade legal officer.
z
PSYOP representative.
z
Land information warfare or information operations officer.
2-61. Since the GRM is designed to give commanders graduated options for
dealing with both hostile and nonhostile threats to the mission, this team
composition allows for target selection, application of the ROE, and attack
methods using both NL and lethal means.
Develop Targets
2-62. The FSE, in conjunction with the S2 section, develops targets for both
lethal and NL attacks. In the case of stability operations, these targets are
usually not the conventional specific point or piece of equipment on the
ground. They are more situational than specific. The GRM identifies
situations or acts that subordinate elements could face during the mission.
The sample GRM in Figure 2-1 shows three possible situations or acts that on-scene commanders could expect to encounter. From the targeting standpoint,
these are groups of more specific targets.
2-63. During mission analysis, the fire support officer (FSO) identifies both lethal and NL assets available to the unit. A tactical PSYOP team (TPT)
attached to the unit is an example of a NL attack asset that should not be
overlooked. The following are examples of what the FSO should look for:
RCAs.
TPTs.
Electronic warfare assets.
CA teams.
Information operations (IO) teams.
Artillery smoke projectiles.
Aircraft (AH-64s, OH-58Ds, and AC-130s).
Mortars.
2-64. The lethal assets described could be used in a NL show of force or
demonstration to defuse a situation before it requires lethal force. The critical element of this mission analysis is not to focus solely on lethal assets. In
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Control Force Operations
Crowd
Nonlethal Response
Action
Command
Riot Control Means
Show of Force
Demonstration of Force
Presence/PSYOP
(if approved)
Unarmed
- Ensure that the
- Display force along with
- Do not demonstrate force
- Employ RCAs at the
Civilians
on-site commander
escalating the dispersal
toward unarmed civilians.
point of penetration.
of the TPT directs
proclamation.
- Use PSYOP to
the broadcast of
- Display force in a
exploit the
the dispersal
graduated manner, such
psychological effect.
proclamation and/
as a helicopter hovering
or passes
- Move through the
over a crowd or soldiers
handbills.
crowd using riot
with charged weapons.
control formations and
- Escalate the tone
- Exploit the psychological
movement techniques.
of the dispersal
effect of a show of force.
proclamation from
information to a
warning of force.
Armed
- Display force along with
Civilians
escalating the dispersal
(knives,
proclamation.
clubs)
- Highlight the target pointer.
- Demonstrate sniper precision
strike capabilities.
Armed
- Do not use RCAs—
Crowds/
they may escalate
Military
the situation.
(firearms)
e
Hostile intent/hostile act occurs by armed threat.
Crowd
Lethal Response
Action
Small Arms
Sniper Response
Aerial Fires
Indirect Fires
Direct Fire
Unarmed
- Ensure that target
- Determine that sniper
- Determine that small arms
- Determine that air
Sampl
Civilians
leaders or
attack is insufficient.
direct fire is ineffective.
assets are unavailable
troublemakers are
or ineffective.
- Consider demonstrating
- Use the minimum response
targeted.
capabilities.
necessary.
- Use the minimum
- Use the minimum
response necessary.
- Exploit the psychological
- Use a minimal precision strike
response
effect of a lethal
initially; use subsequent fires
- Ensure that the
necessary.
response.
based on the situation.
response is directed
- Exploit the
by the on-site
- Escalate gradually,
- Exploit the psychological
psychological
commander.
starting with a small
impact of each strike.
effect of an attack.
caliber, single round and
work up to a large caliber,
automatic.
Armed
- CAS/indirect fires must be authorized by the
Civilians
MACOM commander.
(knives,
- Consider requesting permission for use when—
clubs)
•
All lesser means have been ineffective.
•
There are physical eyes on target.
•
Proximity to civilians has been considered.
•
Risk to friendly forces/evacuees outweighs the
risk of collateral damage.
Armed
Civilians/
Military
(firearms)
Figure 2-1. Sample GRM Card
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stability operations, the Army wants to prevent acts of hostility first and then be prepared, if necessary, to apply lethal force.
2-65. Graduated responses can range from command presence through the
show of force, a demonstration, the use of RCAs, and other techniques (such as the application of lethal force using snipers, small arms, AC-130s, and indirect fires).
Coordinate Staff Functions
2-66. To coordinate staff functions the rest of the GRM team assembles to
complete the escalation sequence for each response. PYSOP and legal
representatives are critical attendees during the escalation sequencing
process. In the area of psychological operations, the TPT must exploit the
effects of all responses.
2-67. The legal officer evaluates each escalation of force option and graduated response to ensure that it is consistent with the ROE. The GRM is designed to
recommend applications of force consistent with the ROE, yet not limit the
leader or individual soldier’s right of self-defense. A GRM should clearly show that if a hostile act occurs, lethal options would be first and foremost.
2-68. In the case of lethal responses, the commander’s guidance must again
be applied. For example, lethal responses are allowed only in self-defense.
War-Game
2-69. Once the types of escalations for each potential graduated response are determined and annotated, the GRM must then be war-gamed. The staff must
walk through each act or situation from the on-scene commander’s standpoint.
Receive Command Approval
2-70. Once the GRM has been war-gamed, it must be submitted to the
commander for approval. This is the final check to ensure that the GRM team
has applied the commander’s guidance correctly and met his intent.
Operate Deliberately
2-71. Operating deliberately affords commanders ample opportunity to plan
and prepare for possible civil disorder situations. Through the effective
gathering of information and a working cooperation with local government
and police officials, commanders can often be made aware of dates, times,
locations, and what groups may assemble before the operation. The purpose is
to gather as much information as possible who is involved, where they are
assembling, what incident promoted the activity, and what seems to be the
prevailing attitude of the assembling crowd.
2-72. Civil disturbance operations are dynamic, ever-changing environments
requiring effective communications both up and down the chains of command.
They require advance preparation and planning using the established
troop-leading procedures (TLP) outlined in FM 3-19.4. The eight-step process of TLP aids commanders and their subordinate leaders in planning and
preparing for an operation. Most steps can be accomplished concurrently, but
rarely is there enough time to go through each step in detail. Despite this,
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leaders must follow these steps to ensure that nothing is left out of the
planning process. As outlined in FM 3-19.4, the following are the eight steps of TLP:
z
Receive and analyze the mission.
z
Issue a warning order.
z
Make a tentative plan.
z
Initiate movement.
z
Conduct a reconnaissance.
z
Complete the plan.
z
Issue the order.
z
Supervise, refine, and rehearse.
CONDUCT HASTY OPERATIONS
2-73. Conducting hasty operations seems to be the norm rather than the
exception. Unlike deliberate operations, hasty civil disorder operations are
reactionary in nature with little or no time for planning. In these situations, the event of a crowd gathering is already underway. There is very little, if any, advanced warning of the unfolding situation, and commanders are usually put
in the position of sending their soldiers into an already volatile, and perhaps hostile, environment.
2-74. Commanders should be in immediate and constant communication with
local civil and police authorities. The purpose is to gather as much information as possible about who is involved, where they are assembling, what incident
promoted the activity, and what seems to be the prevailing attitude of the
assembling crowd.
2-75. It is essential that commanders operating in environments where civil
disturbance operations are likely ensure that their soldiers receive training at all levels. Commanders and subordinate leaders need to instinctively rely on
the same TLP that they would in a deliberate operation. See FM 3-19.4.
CONDUCT TACTICAL OPTIONS
2-76. In the peacekeeping and peace enforcement environment, the use of
conventional firearms or the threat of their use may not be the solution to a
situation where US forces must separate two belligerent, hostile ethnic groups or prevent a similar group from entering an area that is off limits to them.
2-77. Crowd control options are often combined. Commanders choose their
options based on an evaluation of the particular crowd. Commanders select
any combination of control techniques and force options they think will
influence the particular situation (METT-TC). Commanders must always try
to choose the response that can be expected to reduce the intensity of the
situation.
Monitoring
2-78. Monitoring an assembled crowd consists of gathering necessary
intelligence and watching them to determine progress and development. It is
this gathered information that helps commanders select the appropriate
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actions. Gathered information can often be used to help defuse a situation
through persuasion.
2-79. Monitoring is continuous. Without timely information, responses could
cause the situation to escalate beyond what it should have or cause a response to be inadequate based on the situation.
2-80. Commanders may task teams with specific missions to monitor crowd
activity and note any new developments. Monitoring done by these
observation teams gives the commander up-to-the-minute information so he
can gauge crowd activity and intent in relation to the overall situation.
2-81. Observation teams monitor crowd activities to gather information. They
observe and report on crowd size, location, and mood and on the developing
situation. An observation team may consist of a marksman, a radio operator,
and an observer equipped with binoculars. They may be posted strategically
on rooftops and other high terrain that overlooks the crowd. Sometimes
observers use helicopter-mounted observation devices. This also affords
security for the operational forces. Commanders must know where their
observation teams are located so they are not mistaken for teams of snipers.
2-82. The timely flow of information may allow the commander to influence
the outcome of the situation with simple negotiations. Monitoring is
appropriate when more decisive action is not feasible because of crowd size or when the intensity of a situation might escalate. It is particularly useful in large, nonviolent demonstrations. Monitoring can serve as an interim
measure until more control forces arrive. It includes establishing
communication with crowd leaders to convey official interest and intent to the crowd. Monitoring also includes efforts to gain the cooperation of crowd
leaders.
2-83. Communication with crowd leaders and participants can help a
commander control a situation without more severe measures. If
communications exist with crowd leaders, the authorities may be able to
divert the leaders or the crowd from their stated or apparent goal. Pressure
can be put on leaders to channel the crowd into an area that minimizes
disruption to the community and aids crowd control operations. March routes
and demonstration areas can be limited to those that will help contain the
crowd and reduce their potential for disrupting the community. Pressure can
be positive (offering concessions) or negative (with deterrents).
2-84. If the commander can gain the cooperation of crowd leaders, it can
decrease the potential for disorder, and if crowd leaders seek cooperation from authorities, officials should try to be accommodating. Crowd leaders can be
placed in liaison positions between the crowd and the control force. Crowd
leaders can be made responsible for managing the crowd by policing their own
activities.
2-85. Taking still pictures or videotaping the faces of individuals within a
crowd may prevent or reduce unlawful and violent acts. This could lessen
their sense of anonymity. If needed, photographs or videotapes can be used as
evidence for prosecution. To be effective, crowd members must see their
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presence being recorded. The photographer or cameraman should be in
uniform to let the crowd know who he or she is. Recorders must be close
enough to the crowd to be seen easily, but not close enough to be endangered.
Blocking
2-86. It is not uncommon for protests and demonstrations against the US or
its forces to occur outside the main entrances to military installations or US
Embassies. Because of the sensitive nature of equipment and information that
can be found at these locations, blocking unauthorized entry is critical.
2-87. Blocking is the physical denial of advance upon a facility or an area by a crowd. Commanders may have to task their forces to block a crowd. Blocking
physically denies crowd advance. Crowd control formations, particularly line
formations, along with barricades can be used to block advancing crowds.
Barricades of vehicles, concertina wire, and water-filled barrels are used to
block or channel the movement of the crowd.
Dispersing
2-88. Dispersing is taking deliberate actions to fragment an assembled crowd
in order to prevent the destruction of property or prevent injury. It is
extremely effective against smaller crowds in congested urban environments.
However, this may increase and spread lawless activity rather than reduce it.
Thus, the commander’s forces must control dispersal routes and the areas in
which the dispersal will occur. Forces must protect the facilities that could be considered likely targets of opportunity for dispersing individuals or groups.
Dispersal of the crowd may require apprehension of small groups still active
in the area. Proclamations, shows of force, crowd control formations, and
RCAs can disperse crowds.
2-89. Avoid (if possible) the dispersion of crowds into wide-open areas because it gives the crowd the opportunity to grow rapidly in size. The direction of
crowd movement is difficult to anticipate and channel.
2-90. Once the crowd has started to disperse, it may occasionally be necessary for the forces to advance, keeping the crowd on the move and in the right
direction. A crowd on the move should not be hurried to avoid panic. At no
time should the crowd be cornered in a position where there is the perception
of no escape. This invokes the “fight-or-flight” syndrome, possibly escalating violent activity.
2-91. Issuing a proclamation (see Figure 2-2, page 2-20) can help disperse a crowd. Proclamations officially establish the illegal nature of crowd actions
and put the populace on notice that the situation demands special measures.
Proclamations prepare the people for the presence of military authority and it tends to inspire respect. Proclamations support law-abiding elements and
psychologically bolster military forces trying to restore order. They also
demonstrate the gravity of the situation to all concerned and are excellent
ways to make a commander's intentions known to a crowd. It is also a good
way to reduce crowd size before direct action is taken. Commanders can make
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a verbal proclamation similar to the following statement: “In the name of the President of the United States, I command that you disperse and retire
peaceably to your homes. ” Such a proclamation may even make direct action unnecessary.
I. DISPERSAL
Unlawful Gathering
“Attention! Attention! This area must be cleared at once! Further unlawful behavior will not be tolerated. Clear this area at once or the necessary force to do so will be used.”*
Demonstration
“Disperse and retire peaceably! Disperse and retire peaceably! Attention all demonstrators!”
“The demonstration in which you are participating ends at ______. The permit that was agreed to by the leaders of the demonstration expires at that time. All demonstrators must depart from the ______ by _____. All persons who wish to leave voluntarily may board the buses. These buses will go to the _____. Those who wish to take buses should move to ______. Those demonstrators who do not leave voluntarily by ______ will be arrested and taken to a federal detention center. All demonstrators are urged to abide by the permit.”*
Warning of Looting
“Return to your homes! Someone may be looting them at this moment! During a disturbance, criminal activity is at its peak. Your family or your property may be in danger.”*
II. EMPLOYMENT OF TROOPS
ple
Employment