Joint Publication 3-28

Joint Publication 3-28
Name	Joint Publication 3-28
Caption	Joint doctrine publication
Publisher	United States Department of Defense
Released	2018
Subject	Military civil affairs; population-centric operations

Joint Publication 3-28

Joint Publication 3-28 is a United States doctrine document addressing civil affairs and related population-focused activities employed by the United States Army, United States Marine Corps, United States Navy, United States Air Force, and United States Space Force in support of joint operations. It provides doctrinal guidance that connects tactical civil affairs actions with strategic objectives articulated by senior leaders such as the Secretary of Defense, the Chairman of the Joint Chiefs of Staff, and combatant commanders like those of United States Central Command and United States Europe Command. The publication informs planning by linking civil interactions to campaigns overseen by entities including Joint Staff (United States), United States Africa Command, and multinational partners such as North Atlantic Treaty Organization and partner nations.

Overview

The publication articulates a framework for civil affairs activities that intersects with efforts led by organizations such as the United States Agency for International Development, Department of State, USAID, and intergovernmental actors like the United Nations and European Union. It situates civil affairs within the construct of campaign design promulgated by the Goldwater–Nichols Act reforms and aligns with operational concepts referenced by leaders such as General David Petraeus, General James Mattis, and planners from the Joint Chiefs of Staff. The document addresses civil considerations across phases ranging from stability operations reminiscent of Operation Iraqi Freedom and Operation Enduring Freedom to humanitarian assistance seen in responses to events like the 2004 Indian Ocean earthquake and tsunami.

History and Development

The doctrinal lineage traces back to foundational manuals used during the World War II reconstruction period and evolved through Cold War era guidance influencing doctrine during events such as the Vietnam War and later conflicts including Operation Desert Storm. Revisions reflect lessons from interventions in Haiti and stabilization efforts after the Balkans conflicts, incorporating concepts advanced by scholars and practitioners familiar with cases like the Marshall Plan and initiatives led by figures linked to RAND Corporation studies. The publication underwent updates influenced by policy shifts from administrations including those of President George W. Bush and President Barack Obama, and guidance from the National Security Council and interagency reviews after commissions such as the Commission on Wartime Contracting.

Scope and Purpose

JP 3-28 delineates the application of civil affairs forces during joint operations to achieve effects compatible with campaign objectives set by strategic authorities including the President of the United States and theater commanders like leaders of United States Southern Command. It defines relationships with civilian institutions such as the International Committee of the Red Cross, non-governmental organizations like Médecins Sans Frontières, and multinational coalitions assembled under mandates from bodies such as the United Nations Security Council. The publication sets boundaries for activities ranging from civil reconnaissance to governance support consistent with treaty obligations like those stemming from the Geneva Conventions and cooperative agreements among allies including those of the Five Eyes partnership.

Key Concepts and Principles

Core principles include population-centric planning, unity of effort among actors such as U.S. Agency for International Development and partner militaries like the British Army, and adherence to legal frameworks exemplified by the Uniform Code of Military Justice and statutes shaped by congressional oversight committees like the House Armed Services Committee. It emphasizes civil considerations in operational design similar to themes addressed by theorists who studied campaigns like the Tet Offensive and policies influenced by the Hague Conventions. The publication highlights command relationships familiar to staff structures including those of the Joint Staff (United States) and theater-level commands such as United States Indo-Pacific Command.

Implementation and Doctrinal Integration

Implementation requires coordination across components such as the U.S. Army Civil Affairs and Psychological Operations Command and service civil affairs units in the United States Marine Corps Forces Special Operations Command where relevant. Integration occurs through joint planning processes codified in directives from offices like the Office of the Secretary of Defense and is exercised in joint training venues including exercises hosted by groups like Vigilant Shield and multinational events organized with partners such as NATO Allied Command Transformation. Doctrine synchronization draws on lessons from operations in theaters including Iraq, Afghanistan, and stabilization activities in regions like the Sahel.

Organizational Roles and Responsibilities

The publication assigns roles to entities such as combatant commanders, joint task force commanders, component commanders, and specialized staffs including civil-military operations centers similar to those employed during Operation Unified Protector. It clarifies how organizations like the United States Agency for International Development and embassies under chargé d’affaires and ambassadors interact with civil affairs elements, and it details liaison functions with international organizations such as the World Health Organization during crises like pandemics comparable to responses managed by Centers for Disease Control and Prevention collaborations.

Criticisms and Controversies

Critics argue that the publication’s guidance can blur lines between military and civilian roles historically debated in inquiries such as the Commission on Wartime Contracting and reviews of post-conflict governance seen after Iraq War stabilization efforts. Scholarly critiques from institutions like Harvard University, Oxford University, and think tanks including the Brookings Institution and Center for Strategic and International Studies note risks of politicization when civil affairs activities intersect with diplomatic initiatives led by the Department of State. Debates continue about resource prioritization raised in hearings before the Senate Armed Services Committee and about accountability mechanisms reflected in case studies from operations in places like Somalia and Bosnia and Herzegovina.

Category:United States Department of Defense publications