Consolidate the information below to explain the civil affairs CORE COMPETENCIES into several bullet points that can be discussed in about 5 minutes


CORE COMPETENCIES 
2-16. The CA branch provides four core competencies nested within CAO. CA forces may execute
competencies prior to, simultaneously with, or in the absence of other military operations across the conflict
continuum and throughout the range of military operations. The CA core competencies are mutually
supporting. The missions nested under the core competencies are capabilities executed to accomplish the
designated role of the branch. The CA branch has the overall responsibility to perform these missions to—
 Enable the commander to visualize the common operational picture.
 Consolidate gains.
 Extend the culminating point.
 Identify civil resources and capabilities.
 Understand the civil component of the OE.
 Produce effects in the civil component of the OE.
 Synchronize, coordinate, and integrate civil knowledge into the warfighting functions and other
Army processes.
TRANSITIONAL GOVERNANCE 
2-17. The introduction of foreign military forces into sovereign territories often has a destabilizing effect on
the integrity of local governance structures and their ability to control activities within defined political
boundaries. When U.S. forces deploy to remove threat forces from a friendly country (or to defeat the security 
forces and governance structures of a belligerent country or non-state actor) they must be prepared to assume
certain governance responsibilities over newly liberated or occupied territories until those responsibilities are
able to be transferred to another authority. In DODD 5100.01, this military government requirement is listed
as the sixth of thirteen specific functions of the Army. In turn, DODD 2000.13 requires the DOD to maintain
a capability to provide expertise in civilian sector functions that normally are the responsibility of civilian
authorities.
2-18. According to NSPD-44, while the DOS has the lead for stabilization and reconstruction, the DOD has
a requirement to support that effort. DODD 5100.01 directs the Army to establish military government when
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occupying enemy territory, and DODD 2000.13 identifies military government as a directed requirement 
under CAO. 
2-19. Within its capabilities, and in accordance with international law, the occupying force must maintain an
orderly government in the occupied territory and must have, as its ultimate goal, the creation of a legitimate
and effective civilian government.
2-20. CA forces conduct TG to assure appropriate control and the continuation of government functions during
times of destabilization. CA forces assure the effective transition of governance from civilian control to military 
control and then back to civilian control as smoothly and efficiently as possible. All CA missions are essential
to proper execution of TG, but TG has two primary missions, which are—
 Provide transitional military authority.
 Provide SCA.
2-21. These missions give the Army the capability to better understand its military government role and to execute 
the legal responsibilities to the residents of liberated and occupied territories defined by international law and, 
specifically, the 1954 Hague Convention for the Protection of Cultural Property in the Event of Armed 
Conflict and the 1899 Convention for the Pacific Settlement of International Disputes. DODD 5100.01 
mandates that the DOD maintains the capability to conduct military government operations. The DOD supports 
this mandate through TG. 
2-22. CA forces providing TG use CMI, and the developed civil networks within the AO to support the
establishment of SCA or transitional military authority that will enable the accomplishment of U.S. military
objectives. SCA and transitional military authority support the whole of government approach and U.S.
diplomatic, informational, military, and economic instruments of national power abroad through execution
of governance tasks mandated by U.S. policy and international law.
GOVERNMENT EXPERTISE
2-23. CA forces have two distinct areas of expertise which are interrelated:
 Governance.
 Government functions.
2-24. Governance is the state’s ability to serve the citizens through the rules, processes, and behavior by
which interests are articulated, resources are managed, and power is exercised in a society (JP 3-24).
Governance speaks to the administration of control by authorities exercising the role of the government.
Government functions, however, refers to the structure that is used to conduct governance. That structure
includes all the public systems used to create laws, administer justice, provide essential services, and maintain
order. Expertise in government functions, therefore, is an expertise in those systems. Expertise in governance, 
however, is an understanding of how those systems are related and utilized to provide for the needs of a
population.
Governance 
2-25. Officers and noncommissioned officers provide governance expertise, while government function
specialties within CA formations are the vehicle for the provision of government function expertise. Further,
commanders and unified action partners have access to governmental sector expertise in the form of
government function specialists, who have extensive civilian experience in provision of specific civil sectors.
2-26. CA forces provide TG expertise to military commanders to enable and enhance options for interacting
with and influencing civil populations and institutions. CA forces execute TG through understanding the civil
factors throughout the competition continuum. These civil factors include, but are not limited to—
 Security.
 Justice.
 Reconciliation.
 Humanitarian assistance.
 Social well-being.
 Governance and participation.
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28 July 2021 FM 3-57 2-5
 Economic stabilization.
 Infrastructure.
 Culture.
2-27. CA responsibilities to enhance, enable, and provide governance include—
 Developing monitoring and evaluation plans for TG.
 Providing government function specialists.
 Developing civil networks, as necessary, to provide resources, capabilities, and expertise within
the stability framework to assist in stabilizing the OE.
 Providing instruction, mentorship, and expertise to newly formed government agencies, as required.
 Assisting in the development of predictive analysis about government and civil sectors.
 Developing and updating running assessments of relevant civil networks (which include features,
composition, and structure).
 Advising military commanders on civil impacts to military operations and impacts of military
operations to the civil component at echelon.
 Advising military commanders on integration of CAO and civil network capabilities into military
plans and operations.
Government Functions 
2-28. CA force structure contains civil sector expertise within each of the focus areas, which fall under the
five government function specialty areas (depicted in figure 2-1). Technically qualified and experienced
individuals, known as CA government function specialists, advise, enable, and assist commanders and their
direct civilian counterparts with stabilizing and providing governance expertise for the OE until appropriate
civilian control is possible. Within their area of specialization, they possess the critical skills necessary to
establish, support, or reestablish capability and capacity, as well as understand the regional and local impact
of culture on that capability.
Figure 2-1. Government function specialty areas and focus areas 
Note: Appendix B provides a detailed description of each focus area. 
2-29. The preponderance of government function expertise capability is maintained within the United States
Army Reserve, while a minimal capability comprised of the other Army government function specialist
capabilities resides within the active component CA formations.
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2-30. Depending on the OE in which CA units perform TG, the missions conducted to accomplish TG are
distinct, complementary, and performed with varying levels of frequency, magnitude, and concentration.
CA forces provide expertise in civilian sector functions and stability function tasks that are normally the
responsibility of civilian authorities in order to establish or improve local government capability, or to
perform military government functions until necessary conditions are established. The goal for TG is to return
governance control to the appropriate civil authorities as soon as possible. CA forces executing TG provide,
enhance, and enable—
 The conduct of governance.
 Building capabilities and capacity.
 Administrative control.
 Sustainability.
 Resources development.
 Transition of the AO to civil control.
2-31. Figure 2-2 illustrates the implementation of TG across the competition continuum.
Figure 2-2. Transitional governance across the competition continuum 
2-32. CA forces are trained, educated, and organized to provide commanders with governance expertise,
support host-nation civil administration, and execute the functions of a civil administration. TG is enabled
by the CA core competencies of CNDE, CKI, and CMI to effectively gain situational understanding, ensure
CAO are achieving the desired end state of the supported commander, and assess effects in the civil
component of the OE.
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2-33. TG executed by CA forces can be different within the same AO or joint operations area based on mission
requirements, the desired end states of the commander, and the capabilities and resources of the established
local civil networks. At the operational level, CA units inside the theater of operations for large-scale combat
operations may be conducting different TG requirements than CA units outside the theater of operations.
At the tactical level, CA units in the division consolidation area may be at a different point on the SCA graph
performing different missions than a CA unit in the corps consolidation area.
2-34. During the competition phase, CA units are primarily providing governance expertise to their
supported military commander and conducting SCA to—
 Establish assessments of the civil component.
 Create situational understanding.
 Compete with adversaries to gain positions of advantage.
 Build partner capacity to deny freedom of maneuver or action to near peer adversaries.
 Set conditions in theater through persistent and episodic engagement.
2-35. As the joint force quickly transitions to armed conflict, CA forces mobilize civil networks and partners
to enable joint reception, staging, onward movement and integration; populace and resources control (PRC);
and FHA all in support of SCA.
2-36. During the commencement of offensive operations, CA units focus on establishing or reestablishing
contact with civil authorities or civil networks. This enables situational understanding (which enhances the
decision making of the commander), targeting, execution of effects, and reduction of civil interference (which 
preserves combat power). CA units can also be allocated or task-organized to engage, assess, and evaluate
the civil components of bypassed population centers to begin the stabilization processes.
Note: These bypassed population centers must meet the bypass criteria established by the ground 
force commander. 
2-37. CA forces engage, assess, and evaluate the civil components of bypassed population centers through
building and mobilizing of friendly civil networks. These actions lead to preservation of combat power and
extend the operational reach of the supported commander. As units establish area security and designate
consolidation areas, the balance of tasks should shift more heavily towards stability operations tasks aimed
at consolidation of gains and focused on the control of populations and key nodes. The primary stability
operations tasks are—
 Establish civil security.
 Establish civil control.
 Restore essential service.
 Provide support to governance.
 Provide support to economic and infrastructure development.
 Conduct security cooperation.
2-38. The frequency, magnitude, and concentration of TG performed increases as consolidation area
boundaries extend. The President has the authority to implement transitional military authority and the
SecDef and joint forces commander exercise that authority. At the culmination of offensive operations (when
transitional military authority is authorized) the commander must make the decision whether to exercise that
authority or support a local civil administration that still has the capability to conduct governance.
2-39. The Joint Chiefs of Staff formulate broad policies and conduct initial planning for transitional military
authority. However, CACOM commanders, CAO staff of combatant commanders (CCDRs), theater Civil
Affairs planning teams (CAPTs), and CAO staff of Army Service Component Command should begin
transitional military authority planning prior to the initiation of armed conflict.
2-40. If transitional military authority is exercised, CA commanders establish military government or
provide advice and expertise to the commander and the governor. The commander and governor require this
advice and expertise to exercise functions of civil administration until established transition criteria are met
and/or until the arrival of the designated civil control transfer date.
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2-41. If transitional military authority is not established, CA forces continue to provide SCA within occupied
areas and gradually decrease the frequency, magnitude, and concentration of tasks performed as the civilian
authorities increase capacity to levels prescribed by the stabilization plan of the DOS. The goal should always 
be to transition control to civilian authorities as soon as established local government is able to stand on its
own and transition criteria are met.
Transitional Governance in Syria 
After the liberation of portions of Northern Syria from Islamic State (IS) forces in late 
2016, one thing was abundantly clear; if U.S. and Syrian Democratic Forces (SDF) 
were to consolidate operational gains it was imperative that governance be restored. 
For nearly two years IS had controlled the region, and the city of Manbij in particular, 
overseeing the normal functions of government such as essential services. Civil Affairs 
teams on the ground partnered with the Syrian Democratic Forces to initially identify 
specific priorities for stabilization and humanitarian efforts. Those priorities were 
relayed to DOS, USAID, and NGOs to begin the process of stabilization. 
As the area became more stable and as IS fighters were increasingly pushed from the 
region, the reestablishment of government became a top priority. Civil Affairs teams 
advised and assisted the local population of Manbij in the creation of the Manbij Civil 
Council. The Manbij Civil Council was specifically formed with male and female 
membership representing all ethnic groups within the area. Once created the council 
began immediately the process of restoring essential services and partnering with the 
international community to establish work throughout the five USG stability sectors to 
bring economic and individual prosperity back to the region. The Manbij Civil Council 
was so successful that its model was copied numerous times throughout the region as 
IS was pushed further and further back. Manbij, in particular, became such a 
prosperous area that dislocated persons from across the country flocked to the city for 
a new start. From the beginning, Civil Affairs teams on the ground, partnering with local 
leaders, assisted in the transition towards inclusive and prosperous governance and 
stability for the people of Manbij and surrounding areas. 
TRANSITIONAL MILITARY AUTHORITY
2-42. Under this authority, CA forces can provide TG to provide continuity of necessary government
functions until they can be transferred to the appropriate civilian authorities. Transitional military authority
enables commanders to achieve civil security and enable civil control and stability. The DOS has the lead on
foreign policy and controls the majority of the resources which can be used under 22 USC. These resources
are typically tied to achieving U.S. interests. Once an interim civilian government is established, military
resources are engaged to provide SCA.
2-43. During transitional military authority, the following must exist:
 Military Governor. A military governor is the military commander or other designated person,
who, in an occupied territory, exercises supreme authority over the civil population subject to the
laws and usages of war and to any directive received from the government of the commander or
another superior.
 Military Government Ordinance. A military government ordinance is an enactment on the
authority of a military governor promulgating laws or rules, which regulate the occupied territory
under such control.
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28 July 2021 FM 3-57 2-9
2-44. CA provides transitional military authority through its commanders, governance expertise, and its
government function specialist capabilities. All CA forces are skilled in governance and understand the
importance of the five USG stability sectors to the implementation of governance at any level. These stability
sectors are—
 Establish civil security.
 Establish civil control.
 Restore essential services.
 Provide support to governance.
 Provide support to economic and infrastructure development.
2-45. CA government function specialists have additional expertise within each of the USG stability sectors
to facilitate governance. CA forces enable the continuity of government functions by providing a bridge to
the more robust governance expertise of the DOS and other entities.
Note: See Appendix B for more detailed information on the role of CA in governance. 
SUPPORT TO CIVIL ADMINISTRATION
2-46. SCA is a critical function of support to government operations, which is aligned with the six primary
Army stability operations tasks. Support to governance is a stability operations task required for obtaining a
stable population-centric OE. SCA is assistance given by CA forces to stabilize or enhance the operations of
the governing body of a foreign country, by assisting an established or interim government. SCA occurs when
CA forces support the DOS in the implementation of interim civil authority or U.S. foreign policy in support of
host-nation internal defense and development.
Note: ADP 3-07 provides information on the critical aspects of SCA. Its discussion of movement 
corridors and personnel recovery provides guidance to CA forces when conducting these aspects 
of SCA. 
Note: CA forces can gain a baseline understanding of an OE through several means, which 
include, but are not limited to, the reviews of current country studies by other CA forces and 
government entities. 
2-47. During the competition phase, SCA can complement, support, enhance, and enable security cooperation,
theater security cooperation activities, deterrence, foreign internal defense (FID), and CCDR campaign plans as
a function of stability operations.
2-48. During armed conflict, SCA is implemented through execution of stability operations tasks. SCA is
essential to consolidate gains that are made in offensive operations. In the close area, CA units establish contact
with existing civil authorities and prioritize SCA efforts. As consolidation areas are established, U.S. forces will
increase stability operations. Based on historical data from World War II liberation of occupied territories in the
European theater, a typical sequence of events may look like—
 Dislocated civilian (DC) operations and FHA.
 Re-establishment of local government.
 Provision of emergency supplies.
 Public health and sanitation surveys.
 Organization and training of auxiliary police.
 Issuance of passes for necessary civilian travel.
 Liaison with resistance groups.
 Procurement of civilian labor for the Army.
 Assistance to Army in its relations with the civilian population.
 Restoration to nearly normal pre-conflict conditions.
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Note: CA is critical to the planning, coordinating, and execution of the above tasks (and others) 
with civilian entities. These critical CA capabilities impact the commander’s influence and use of 
command and control to consolidate gains within the OE. 
2-49. The CA responsibilities during SCA in armed conflict are designed to enable the operational and
support functions of the commander with respect to the continuity of government in a foreign nation or host
nation (HN). Failure to consolidate gains leads to governance vacuums that will be exploited by adversaries.
2-50. In return to competition, if transitional military authority is not directed, CA units will continue to
provide SCA while gradually transitioning to civilian authorities and decreasing SCA. Continued CMI will
ensure SCA operations are synchronized with unified action partners.
2-51. CA responsibilities in SCA include—
 Monitoring and anticipating future requirements of the IPI in terms of the CA functional specialty
areas.
 Engage and develop civil networks to facilitate TG requirements.
 Develop civil capacity and identify resources and capabilities to support the commander’s mission. 
 Coordinating and synchronizing collaborative interagency or multinational SCA operations.
 Execution of selected SCA operations.
 Performing quality control assessments of SCA operations and costs.
 Facilitating the arbitration of problems arising from the execution of SCA operations.
 Coordinating and synchronizing transition of SCA operations from military to indigenous
government or international transitional government control.
 Targeting and prioritizing SCA with inputs from the CNDE process.
 Mobilizing civil networks to provide civil security and civil control.
 Mobilizing civil networks to enhance emergency management plans.
CIVIL NETWORK DEVELOPMENT AND ENGAGEMENT 
2-52. The execution of CNDE enables commanders to develop courses of action that create effects in the
civil component which consolidate gains and create multiple dilemmas for an enemy force attempting to act
and maneuver through that area. Civil networks also enable commanders to assess the effects of IO and other
nonlethal actions in the OE. CNDE and its associated tasks are critical functions of CAO. Supported
commanders utilize CA forces to extend command and control influence where it is not normally present or
established in order to leverage the civil entities within the operational area and achieve desired end states.
CA forces conduct CNDE to enable the operations of the commander.
2-53. When developing and engaging civil networks, CA forces use rigor and diligence to ensure that civil
networks are not threats (and do not become threats) to the civil component. Constant monitoring of these
civil networks is critical to assess changes in motivation and loyalties. As CA forces identify civil networks
within the AO, they categorize the civil networks, and provide them to the appropriate staff entity. For
example, an identified threat network goes to the S-2, an identified sustainment network goes to the S-4, and
a network that requires targeting goes to the S-3.
2-54. The CNDE process consists of the following six steps:
 Develop a civil network engagement plan.
 Conduct civil network engagement.
 Analyze civil networks.
 Develop selected civil networks.
 Evaluate developed civil networks.
 Integrate mobilized civil networks.
2-55. Step one of the CNDE process closely corresponds with the plan activity of the operations process.
Steps two through six correspond to the execute activity of the operations process. Assessment is continuous
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throughout all steps and is part of the overall assessment activity of the operations process. While figure 2-3 
portrays a cyclical CNDE process, all steps may be executed simultaneously. 
Figure 2-3. Civil network development and engagement process 
DEVELOP A CIVIL NETWORK ENGAGEMENT PLAN
2-56. The civil network engagement plan organizes CA capabilities to address civil information
requirements and civil resource requirements (including host-nation or foreign nation support). This plan is
achieved through interaction and integration with civil networks for current or future operations in specific
geographic areas. Civil information and resource requirements are derived from multiple sources which
include, but are not limited to—
 Higher headquarters information and resource requirements
 Gaps in pre-deployment assessments and information databases.
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 Commander’s intent.
 Mission analysis.
 Commander’s critical information requirements (CCIRs).
 Priority intelligence requirements of supported and CA unit commanders.
 Planned branches and sequels to combat operations, including consolidation activities and
transition of governance activities to civil authorities.
2-57. CA forces (including individuals and teams) identify individuals, organizations, and existing networks
of people who are able to provide civil information, produce desired effects, or fulfill resource requirements
in the OE. CA forces are trained and required to develop new, or engage existing, civil networks within the
civil populations, government and nongovernment organizations, the private sector, unified action partners,
and others who reside or conduct business in and around the immediate AO.
2-58. The main outputs of this step include—
 A developed civil information collection plan.
 A CND plan to identify specific answers to CCIRs and targeting identification.
 A mission order or concept of operations (CONOPS) that directs targeted CR and CE that answers
all information resource requirements.
 Civil network identifications in an area study.
 The use of initial or deliberate assessment and surveys of identified civil networks to confirm
critical civil information.
2-59. Other outputs include, but are not limited to—
 Updates to the CA running estimate.
 Identification of additional mission tasks to be executed.
 Purpose.
 Objective.
 Effects.
 Measures of performance.
 Measures of effectiveness.
2-60. All these outputs, once analyzed and evaluated, provide civil knowledge that will be integrated by
CAO staff, at echelon, into the command’s planning processes. This information will be used to update the
common operational picture through knowledge management and inform the warfighting functions as
necessary.
2-61. CA forces work with other information-related capabilities to plan, prepare, execute, and assess
communication activities. CNDE is used to understand and shape the information environment to create
effects in the cognitive dimension that support information dominance and freedom of action. CA forces
coordinate and synchronize objectives, effects, measures of effectiveness, and measures of performance with
the other information-related capabilities.
CONDUCT CIVIL NETWORK ENGAGEMENT
2-62. The key tasks in conducting civil network engagement are CR and CE. CA forces conduct CR across
time and space to enhance the supported commanders’ situational understanding and facilitate decisionmaking.
2-63. CR is a targeted, planned, and coordinated observation and evaluation of specific civil aspects of the
OE for the purpose of collecting civil information. The civil information collection plan drives CR and CE
to understand the following in order to enhance situational understanding and facilitate decision making—
 Impacts of the civil component on military operations.
 Impacts of military operations on the civil component.
 Development of assessments and running estimates.
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2-64. The purpose of CR is to—
 Verify or refute civil information.
 Assess the OE.
 Locate, identify, survey, and observe areas, structures, capabilities, organizations, people, and
events (ASCOPE).
 Detect and monitor changes in the civil component.
2-65. CR and CE enable the synchronization of the CA collection efforts with the commander’s critical
information requirements and specific requests for information through the operations process. The outcomes
from CR and CE add to the understanding of civil considerations and ultimately become inputs to the
common operational picture of the commander.
2-66. CR and CE are also conducted systematically over time to observe and assess certain civil aspects of
the environment through routine engagement, patterned civil observance, utilizing active and passive sensors, 
virtual sensors, and other means to support assessments of effects, measures of performance, and measures
of effectiveness.
2-67. Civil engagement is a targeted, planned, and coordinated meeting with known or potential
contacts in a civil network that is designed to develop or maintain relationships and to share or collect
information. There may be times when CEs are ad hoc or spontaneous—as with chance meetings with new
members of a potential or existing network—but these meetings are also conducted according to a planned
and rehearsed format designed to build relationships; enable partners and increase stability; collect, confirm,
or deny information; foster legitimacy; and promote cooperation and unity of effort.
2-68. CA forces may conduct CE in conjunction with maneuver unit patrols, hold unified action partner
meetings with local leaders, or conduct IO unit polls and surveys. All CEs can be conducted physically, or
virtually if the conditions of the OE will not allow for a physical presence. CE is critical to fully understanding 
the key leaders and their desires, interactions, and intentions in the ever-changing conditions of the OE.
CE is necessary to achieve accurate nodal analysis and identification of civil networks that have the greatest
capabilities and resources to support the commander’s operational plan. It also preserves combat power by
enabling military forces to tap into civilian resources that otherwise go unnoticed or unutilized. Through
targeted CE, civil networks could be influenced to mobilize civilian resources to support U.S. military
objectives.
2-69. The inputs to this step include constructing or updating the civil information collection plan based on— 
 Planned and targeted activities for engagements and information reporting requirements, such
as—
 CCIRs, which includes priority intelligence requirements and friendly force information
requirements.
 Named areas of interest.
 Targeted areas of interest.
 CONOPS for CND, CR, and CE.
 An assessment crosswalk of—
 Task.
 Purpose.
 Objectives.
 Effects.
 Measures of performance.
 Measures of effectiveness.
2-70. These inputs include civil network information and possible answers to information requirements order 
to better understand and assess the OE, build partner capacity, enable unity of effort, enhance freedom of
action, and/or disrupt threats. CA forces must integrate, collaborate, and synchronize with other informationrelated capabilities, unified action partners, host-nation entities, and sensitive activities in order to achieve
the commander’s lines of effort, desired effects and enable unity of effort.
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ANALYZE CIVIL NETWORKS
2-71. CA forces and CAO staff analyze civil network information, which is gained through CND, CR, and CE, 
to have an improved understanding of the strengths, vulnerabilities, capabilities, and motivations of local civil 
networks. Through this analysis, commanders can better understand which civil networks in their AO are friendly, 
neutral, threatening, or unknown in nature. This detailed analysis and mapping of the civil networks allows 
commanders and primary staff entities to decide which networks to engage with and which networks to develop. 
The analysis of civil network information also allows for the identification of critical capabilities, critical 
requirements, and critical vulnerabilities of the civil environment to identify centers of gravity for more effective 
targeting, such as natural resources, transportation, power generation, and protected sites. 
Note: For further information and discussion on the center of gravity, see ADP 5-0. 
2-72. Civil network analysis is a process that identifies and analyzes the relative importance and
influence of nodes within a civil network through network visualizations and qualitative and
quantitative analytical methods. CA forces conduct civil network analysis (CNA) utilizing multiple
methods of network analysis, which include, but are not limited to—
 Organization mapping.
 Nodal analysis.
 Network function analysis.
 Network template analysis.
 Critical factors analysis.
 Link analysis.
 Social network analysis.
2-73. CA forces collate, process, analyze, and disseminate this civil network information for integration into
targeting and operations planning. CAO staff integrate this information into the operations process through CKI
in order to increase the commander’s and staff’s understanding of the OE and to further refine options for the
commander to extend the command influence or to produce desired effects in the civil component of the OE.
2-74. The output of this step is the identification of selected civil networks to be influenced, enhanced,
enabled, and integrated into operations to support the commander’s mission and update the common
operational picture, increase shared understanding of the OE, create freedom of action, and/or disrupt threats
directly or indirectly.
DEVELOP SELECTED CIVIL NETWORKS
2-75. CA forces develop civil networks following a detailed analysis of the strengths, capabilities
vulnerabilities, and motivations of the civil entities that comprise a potential network. Development of these
civil networks is coordinated with supported command’s targeting and mission planning sections. CA forces
select and develop civil networks to—
 Increase their capability and/or capacity for improved shared understanding and assessment of
the OE.
 Enable maneuverability of Army forces.
 Export capacity building to other civil networks.
 Increase freedom of action for maneuver and maneuver support forces.
 Enable unified action.
 Disrupt threats.
2-76. Civil networks are developed through programs, activities, and directed themes and messages that
either support a friendly or neutral network or disrupt a threat network. The goal of developing civil networks
is to provide courses of action that preserve combat power, consolidate gains, conserve finite resources,
provide freedom of maneuver to friendly forces, and/or deny the enemy freedom of maneuver and access to
the civilian population.
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2-77. Civil networks are developed through capacity-building efforts such as training and advising, or
through projects aimed at building legitimacy. Formal governmental networks are aided through SCA
activities and assistance as directed by the command. Building friendly networks facilitates freedom of
maneuver for U.S. and partner forces. This enables initial contact with potential connecting nodes and
streamlines transitioning networks between different CA elements. It is critical that the incoming and
outgoing CA elements update each other on situational understanding and transfer critical civil information
and knowledge. This prevents duplicate efforts by different CA elements and the misuse of finite resources.
This passing of contacts must also occur during the transition between competition to conflict, and during
the rapid movement of CA forces towards the advancing forward line of troops.
2-78. Inputs to this step include analysis of which civil networks are capable of, willing to, and committed
to achieving the commander’s stated objectives and creating effects. This also includes a CND or assessment
plan through which CA forces (in conjunction with unified action partners) assess the civil networks’
capability, willingness, and commitment to achieve objectives and create effects.
EVALUATE DEVELOPED CIVIL NETWORKS
2-79. Before, during, and after development, civil networks must be continuously evaluated based on the
individual strengths, weaknesses, vulnerabilities, and motivations of the specific networks. Through
development, civil network capabilities are increased, strengths are enhanced, and weaknesses are mitigated.
Constant vetting is necessary for measuring and evaluating how and whether the direction and motivations
of the developed civil network are in tandem with U.S. objectives. Civil networks developed to enable or
provide governance must be continuously evaluated for appropriateness of action.
INTEGRATE MOBILIZED CIVIL NETWORKS
2-80. CA forces integrate established and developed civil networks with operations, thereby the influence of
a commander into the civil component and assisting in achieving the commander’s operational goals, end
states, and campaign objectives.
2-81. CA forces integrate mobilized friendly civil networks to bring collective action, social pressure, or
political pressure around an area of common interest in support of the commander’s objectives. When
military forces are required to assist in or execute governance, CA forces integrate and manage established
civil networks to meet, enable, or enact governance requirements. Established civil networks have
capabilities and resources that increase governance capacity and efficiency. This allows commanders to
preserve combat power (rather than expending it conducting TG, for example during civil security) and use
that combat power to achieve and maintain dominance within the AO.
2-82. By acting as sensors in the civil environment, friendly networks aid in providing early warning of
threats and increasing shared understanding of the OE. When CA forces integrate civil networks with
operations, this enables a commander’s freedom of movement by—
 Facilitating joint reception, staging, onward movement and integration through civil administration.
 Preserving combat power.
 Consolidating gains through the actions of civil security and civil control.
 Minimizing negative and maximizing positive civil influences.
2-83. Neutral networks can be influenced to self-mobilize and provide passive support to U.S. presence and
deny access to threat actors. Mobilized friendly and neutral civil networks are key to denying threat networks
freedom of maneuver and access to the resources and capabilities of the IPI. Neutral civil networks are
dependable recruiting bases in the civil environment to gain information on threats to the civil population.
These mobilized civil networks—in conjunction with (PRC) measures—when integrated into operations by
CA forces enable the commander to effectively allocate finite resources, create effects, and reduce
operational friction during all phases of operations and throughout the competition continuum to reach
mission end states and goals.
Note: Further discussion of PRC is available in Chapter 3 of this FM. 
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2-84. Once integrated into operations, CA forces utilize these civil networks to engage the OE and the
information environment to—
 Increase shared understanding of the civil component of the OE.
 Increase freedom of action.
 Find, disrupt, and defeat threats in the civil component, both directly and indirectly.
2-85. When integrated with ongoing operations, these networks can extend the operational reach of the
commander to access denied, politically sensitive, or normally inaccessible areas, thereby creating multiple
dilemmas for an adversary force. The integration of these networks can increase the commander’s ability to
reach desired objectives within the AO and reduce operational risk to the force.
2-86. When feasible, these networks are developed and expanded during competition by CA forces. Under
the control of a commander, the networks may be further utilized during large-scale combat operations to
conduct CR and CE in their designated AO. These civil networks are developed to conduct the functions of
government, assist in stability, or increase local civil capabilities and capacities. They may also function in
areas where the commander and assigned forces do not have physical access.
CIVIL KNOWLEDGE INTEGRATION 
2-87. CKI provides the commanders, staff, and unified action partners with accurate and timely civil
knowledge to update the common operational picture, facilitate decision making, update Army processes,
develop branches and sequels for current and future operations, and inform all warfighting functions. CKI is
the process whereby civil information is collected, analyzed, and evaluated; processed into civil knowledge;
and integrated into the planning processes of the supported element, higher headquarters, USG and DOD
agencies, international organizations, and NGOs. The CA company is limited in its ability to conduct this
process, but the CA company commander is able to request additional support and capabilities from higher
commands to support these requirements. The CAO staff, at every echelon, supports the development of civil
knowledge and its integration into the operations processes and mission planning requirements of the
commander and staff to achieve situational understanding at that echelon.
2-88. The CAO staff, at each echelon, is responsible for integrating civil knowledge into the supported Army
commands, processes, and warfighting functions. CAO staff integrate civil knowledge through the Army’s
knowledge integrating processes and through integration with unified action partners. CA forces, at all
echelons, are focused on the collection of civil information and data by the civil collection plan. The civil
collection plan is a product resulting from civil preparation of the battlefield (CPB) that directs CA forces to
conduct CND, CR, or CE to identify gaps in the CCIR, resources and capabilities within the civil component,
and identification of civil strengths and vulnerabilities. CKI enables the commander and staff to understand
and visualize the OE more clearly and provide situational awareness for all elements in the OE. The
integration of actionable civil knowledge provides the commander and subordinate unit commanders the
ability to achieve decision superiority.
Note: Chapter 3 provides a more detailed discussion on CPB. Chapter 4 describes the process with 
which CAO staff integrates civil knowledge into supported commands. 
2-89. CA forces are trained and organized to focus on the CCIRs related to the operational variables of political, 
military, economic, social, information, infrastructure, physical environment, and time (PMESII-PT) and civil 
considerations of the mission variables (mission, enemy, terrain and weather, troops and support available, time
available, civil considerations [METT-TC]) in the OE. According to DODD 2000.13, this requires the DOD to
maintain a capability to provide expertise in civilian sector functions that normally are the responsibility of
civilian authorities.
2-90. CA forces provide the commander with expertise on the civil component of the OE through the
collection and development of civil data and civil information into civil knowledge. Civil knowledge is then
prioritized and integrated into the knowledge management, military decisionmaking process (MDMP),
targeting, other operating processes, and warfighting functions of the command. This civil knowledge is
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28 July 2021 FM 3-57 2-17
critical to the commander’s understanding, visualization, and planning for permissive, uncertain, and hostile 
environments. Figure 2-4 depicts how data is converted to the achievement of understanding. 
Figure 2-4. Achieving understanding 
2-91. CA forces at all echelons collect civil data and information through the conduct of CND, CR, CE, and
initial and deliberate assessments and surveys. The data collected provides current civil component
information for analysis and evaluation through the CKI process. Civil considerations are analyzed and
developed from civil knowledge with use of the framework of ASCOPE within the civil component of the
commander’s OE.
2-92. The six steps of the CKI process are designed to logically generate situational understanding by taking
raw civil data from multiple sources, applying proven analysis techniques to the data, fusing the analyzed
data with the intelligence and information systems of units, prioritizing and integrating the resulting civil
knowledge at all military echelons and with unified action partners, and integrating civil knowledge. The
CKI process is conducted in the following six steps:
 Develop a civil information collection plan.
 Collect civil data.
 Process civil information.
 Analyze and evaluate civil information.
 Produce civil knowledge products.
 Integrate civil knowledge.
2-93. This civil knowledge informs all warfighting functions to ensure synchronization with the civil
component to reduce operational friction. This continual process ensures the timely availability of analyzed
and evaluated civil information to military forces throughout the AO in order to—
 Enhance understanding of the common operational picture.
 Update CA running estimates.
 Inform all integrating processes.
 Update critical information pertaining to all warfighting functions at higher echelons of command.
2-94. CA forces should also actively incorporate the supported unit’s information requirements into the civil
information collection plan to enhance the common operational picture, the CA running estimates, and the
IPB process through CKI. Every CA Soldier has the ability to conduct basic analysis and evaluation of civil
information. CMOCs, CKI sections, and higher CA headquarters analysts conduct in-depth analysis and
evaluation of that civil information as part of the process that enhances the situational understanding of the
supported commander, staff, and unified action partners.
2-95. The six steps are depicted in figure 2-5, page 2-18.
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2-18 FM 3-57 28 July 2021
Figure 2-5. Civil knowledge integration process 
DEVELOP A CIVIL INFORMATION COLLECTION PLAN
2-96. CA forces and staff identify specific requirements for civil information based on the commander’s
need for a detailed knowledge of civil capabilities, strengths, vulnerabilities, organizations, and resources.
A civil information collection plan is designed to identify specific CA elements to conduct CND, CE, and
CR to collect civil information and data that is used to develop civil knowledge. CA planners
2-97. CA planners integrate the civil knowledge into current and planned CAO and Army operations
processes and to inform the warfighting functions. The civil information collection plan initiates the process
of achieving CKI which enables commanders and staffs to visualize the common operational picture and
understand the civil component of the OE.
2-98. An effective civil information collection plan enhances the understanding of the OE and is translated (at
the tactical level) into CONOPS and mission directives. The civil information collection plan must be crossreferenced with current understanding of civil networks and sources of information that currently exist within a
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28 July 2021 FM 3-57 2-19
CA unit. Upon completion of cross-referencing and analysis, CA forces are assigned to conduct specific CND, 
CR, or CE missions to engage or reconnoiter for the information needed. 
Collect Civil Data 
2-99. CA forces collect civil data at all levels of operation through CND; CR; CE; data mining; and
collaboration with IPI, interorganizational entities, NGOs, and other government agencies. The pertinent civil 
data ultimately will become civil knowledge that will be used to inform the common operational picture,
assist in the commander’s visualization of the battlefield, and inform the warfighting functions.
2-100. The heart of collection is the daily interaction between U.S. forces and the various civilians in the
AO. The capture of these data points and the relevant contact information for each individual and entity is
equally important. The collection of civil data ultimately provides the commander with knowledge of civil
capabilities and resources that can be leveraged for military purposes. These leveraged capabilities and
resources can help meet military objectives, build capacity during TMA, consolidate gains, and help establish
civil control and civil security.
Process Civil Information 
2-101. CA forces process civil information by collating civil data into groupings and then physically and
mentally manipulating separate pieces of data into information. Processing structures the data into a usable
form for analysis and evaluation. Processing focuses on information management, which is the science of
using procedures and information systems to collect, process, store, display, disseminate, and protect
knowledge products, data, and information.
Note: Chapter 4 provides an example of a PMESII – ASCOPE crosswalk, which is used to collate 
civil data. 
Analyze and Evaluate Civil Information 
2-102. CA forces analyze civil information for patterns and indicators of behaviors or trends that may have
predictive value and application. That analysis is then evaluated, interpreted, and prioritized by CA personnel
to assess, predict, validate, and determine the impact of ongoing operations on the mission of the commander.
Analysis and evaluation molds civil information into civil knowledge.
Produce Civil Knowledge Products 
2-103. CA forces package civil knowledge into easily disseminated products. Civil knowledge products
and services are relevant, accurate, timely, and usable by commanders and staffs. These products are then
disseminated to relevant partners, NGOs, interagency partners, or integrated into the Army operations process 
through the Army’s integrating functions.
Integrate Civil Knowledge 
2-104. CA forces integrate civil knowledge into the knowledge management, MDMP, targeting operations,
and warfighting functions of the supported command. This process is generally conducted by CA personnel
on the staff but is also completed by CA elements that have been integrated into the supported command’s
operations. This civil knowledge is critical to forming the common operational picture, and framing the
commander’s understanding, visualization, and planning for permissive, uncertain, and hostile environments.
2-105. If there is no CA staff assigned to the supported unit, the commander of the CA element (as allocated
by echelon) is required to become that CA staff officer while maintaining the command relationship with the
CA unit. Each CA unit, at each echelon, is required to ensure the command receives CA staff support.
Note: Due to the large number of interactions with local and host-nation partners, CA units require 
a significant investment in foreign disclosure training and training about assets that are authorized 
to conduct foreign disclosure. 
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2-20 FM 3-57 28 July 2021
CIVIL-MILITARY INTEGRATION 
2-106. Successful military operations place an increased emphasis on civil considerations in order to
achieve U.S. goals and objectives. By design, CA forces seek out and work with the civilian populations,
private entities, government institutions, international organizations, NGOs, interagency, and multinational
partners that reside or operate in and around an AO or area of interest. Bringing these capabilities and
resources together under the influence of the commander and across the competition continuum, enables
CAO to integrate, coordinate, and synchronize civil capabilities and resources within the area. CMI is the
requirement of the CA force to incorporate the interests, functions, capabilities, and vulnerabilities of these
nonmilitary groups into military plans and operations to enable unity of effort. CMI fosters unified action
with the military force to achieve a desired outcome through the collaboration, integration, and
synchronization of partner knowledge and capabilities.
Civil-Military Integration in Somalia 
In 1992, Soldiers of the 96th Civil Affairs Battalion deployed to Somalia in support of 
Operation Restore Hope. Their primary mission was to conduct liaison between military 
commanders, local leaders, and members of NGOs. This was accomplished through 
the staffing of Humanitarian Operations Centers (HOCs) in Humanitarian Relief 
Sectors throughout Somalia. CA forces conducted medical and engineer assessments 
of facilities, coordinated medical and engineer civic action projects, and conducted 
liaison between military forces and local Somali communities. 
Relations between the CA forces, NGOs, and local communities were generally 
positive in nature. The Somalis respected the CA function as liaison between military 
security forces and NGOs. This respect and access allowed for CA forces to better 
map and understand the factional dynamics and coordinate actions between NGOs, 
locals, and military elements. 
2-107. There are two primary CMI actions that CA forces conduct within this construct. CA forces establish
a civil-military information sharing architecture and establish a CMOC. These actions are executed
exclusively by CA forces at all echelons, or by partner or allied forces augmented with properly manned and
equipped CAO staff elements. Properly executed CMI—through the use of civil networks—increases shared
understanding of the OE through information and knowledge transfer with unified action partners, preserves
combat power through increased capacity of civilian administration, and consolidates gains through rapid
stabilization efforts.
ESTABLISH CIVIL-MILITARY INFORMATION SHARING ARCHITECTURE
2-108. One of the most important actions to ensure CMI establishment is to create a civil-military information
sharing architecture. CA forces establish a civil-military information architecture (that is, information exchange
systems and processes) to share information between CA forces and applicable partners, such as—
 Developed or existing civil networks.
 Coalition forces.
 NGOs and governmental organizations.
 Host-nation governments.
 Elements of the private sector.
2-109. A well-defined and well-designed civil information architecture provides the best mechanism to
support understanding of the civil component of the OE. The OE includes natural and human-made terrain;
friendly, neutral, and threat elements among civil populations and government institutions; and the
interactions between the civil populace and key terrain in the civil component. In austere environments, CA
forces may have limited access to U.S. Army mission command systems, or even electricity. CA forces and
staffs may adapt their civil information architecture to concepts that can be written in text or posted on white
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28 July 2021 FM 3-57 2-21
boards for sharing with the HN and partners. Presentation of civil products is dependent on OE restrictions, 
such as no electricity or other restrictive conditions. 
2-110. Information-sharing systems must use the lowest classification possible to ensure the widest
distribution of information needed to coordinate with civilian agencies and organizations operating in the
same operational area as military forces. During large scale combat operations, or in response to a disaster,
the organic military information infrastructure enables CA forces to rapidly establish information-sharing
architecture to store, integrate, and disseminate critical civil information. This is accomplished by tying local
civilian entities into the military system or by providing data connections to civilian systems. This exchange
of information increases the amount of information collected and supports an improved situational
understanding, increased trust with other entities within the AO, unity of effort, and a more detailed common
operational picture.
2-111. At the staff level this architecture is centered on the technology and population-centric systems used
to manage and disseminate data with partners. Sharing this architecture is mainly done in a technological
manner, but also includes people and processes as well. Placing liaison officers within participating
government agencies and host-nation institutions, receiving liaison officers from other government agencies
placed inside commands, and conducting scheduled information-sharing meetings and other interactions are
key to achieving CMI.
2-112. Information-sharing architecture also includes working groups and coordination groups. The United
Nations cluster system is an example of a coordination group and is a common system established to coordinate
efforts following disasters. CA liaison officers assigned to participate in the United Nations cluster system (and
other information-sharing platforms) should be empowered by their command to freely disseminate properly
vetted and releasable civil knowledge products that are beneficial to the response effort. Liaison officers should
be placed within other governmental organizations, such as the DOS or the United States Agency for
International Development (USAID). In addition, liaison officers from organizations such as USAID and the
DOS, should be placed in the command for seamless planning and coordination.
Note: For more information on the United Nations cluster system, see FM 3-07. 
2-113. In large-scale combat operations, a supported CCDR might elect to establish a joint interagency
coordination group or joint interagency task force tailored to meet the operational requirements of the
combatant command. The joint interagency coordination group (or equivalent organization) provides the
CCDR with the capability to collaborate, at the operational level, with civilian USG departments and
agencies. The joint interagency coordination group (or equivalent organization) complements the interagency 
coordination that takes place at the national strategic level through the DOD, National Security Council, and
Homeland Security Council systems. Members participate in deliberate planning and crisis action planning
and provide links back to their parent organizations to help synchronize joint force operations with the efforts
of civilian USG departments and agencies.
Note: Due to the large number of interactions with local and host-nation partners, CA units require 
a significant investment in foreign disclosure training and assets that are authorized to conduct 
foreign disclosure. 
ESTABLISH AND MAINTAIN CIVIL-MILITARY OPERATIONS CENTER
2-114. Based on the operations plan of the commander, CA units (from the company through CACOM)
establish CMOCs, as necessary, to serve as a mechanism for integration, coordination, and synchronization of
the efforts of U.S. forces with unified action partners and IPI. A CMOC is task-organized with CA and other
enabling assets (such as military intelligence, engineering, medical, and transportation) to meet specific mission
tasks assigned to the CA element by the commander. The CMOC—in coordination with the S-9, G-9, and
J-9—is designed to share information, identify and distribute resources, and assist in the execution of CAO.
Figure 2-6, page 2-22, shows a notional CA CMOC configuration.
2-115. As an extension of mission command, the CMOC provides the supported commander the ability to
integrate, coordinate, and synchronize the activities of stakeholders, which are not under command authority,
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2-22 FM 3-57 28 July 2021
in an effort to enable unified action. This is a critical requirement in unified land operations during all phases of 
operations and across the competition continuum. The CMOC is critical in the integration, coordination and 
synchronization of CMI, CAO, and CMO in— 
 Defense support to stabilization during competition.
 Joint reception.
 Staging onward movement and integration during transition to armed conflict.
 Consolidation activities, defense support to stabilization, and TG in rear areas (within transitional
military authority or SCA, as appropriate) during armed conflict and return to competition.
2-116. During unified land operations conditions may shift from offense to defense to stabilization, and
multiple conditions can exist simultaneously within an AO. CMOCs are an asset for the commander in their
role of collecting, analyzing, and evaluating information from multiple sources to track and understand
changing conditions. They can also play a role in planning future operations by integrating with stabilization
focused departments, agencies, and organizations.
Figure 2-6. Notional Civil Affairs civil-military operations center configuration 
2-117. During conditions that primarily favor offensive operations, CMOCs at the tactical level remain as
mobile as the headquarters element. CMOCs—
 Provide information on resources within an OE that can assist the commander in achieving stated
goals and end states, while reducing internal resource consumption.
 Plan populace control measures to increase freedom of maneuver.
 Plan CAO to increase stability in newly liberated areas, and liaises with joint, interagency, and
interorganizational partners to prepare for the transition to stability operations.
Civil Affairs Operations 
28 July 2021 FM 3-57 2-23
 Generate broad-spectrum information regarding the civil component, which commanders use to
develop an understanding of their OE.
 Support the commander and associated S-9, G-9, and J-9 staff elements by enabling consolidation
of gains through planning and conduct of the minimum-essential stability operations tasks to
establish civil security and provide immediate needs where they exist as a result of combat
operations.
2-118. The ability of the CMOC to coordinate directly with local government is often limited to the tactical
level. When coordinating with the local government, CMOCs initiate PRC measures, humanitarian
assistance, stability operations tasks, and other stabilization activities designated by the commander.
Coordination with the civil component (such as IPI, international organizations, NGOs) the private sector,
and the interagency, is minimized given the urgency of defeating lethal threats.
2-119. During conditions that favor primarily defensive operations, CMOCs become static, much like the
units they support. When static, CMOCs—
 Can focus on the civil conditions within a specific area.
 Increase the amount of civil information gleaned from civil network nodes and ground forces
operating in the area, the longer the CMOCs remain static.
 During mobile defense, work to establish, maintain, or hand off communication with civil entities
to ensure the planning for and conduct of minimum-stability tasks.
 Support the commander and associated S-9, G-9, and J-9 staff elements by enabling consolidation
of gains through planning for and conduct of minimum-essential stability operations tasks to
establish civil security and provide immediate needs where they exist as a result of combat
operations.
 Coordinate with entities within the civil component (such as IPI, international organizations,
NGOs, and the interagency) to—
 Identify threats to the civil populace.
 Execute TG.
 Coordinate civil capabilities and resources to support the commander’s mission.
2-120. Developed and integrated civil networks allow the commander to maintain influence over those
areas that might need to be bypassed or vacated during mobile defense. CMOCs also plan and direct
minimum-essential stability operations where the need exists because of combat operations. During defense,
coordination with civil components (such as IPI, international organizations, NGOs, and the interagency) is
essential and urgent. This is due to the importance of defeating lethal threats within the civil component, and
the need to rapidly and effectively consolidate gains to free resources for prosecuting the enemy in other
areas of the OE.
2-121. CMOCs continuously plan for and reinforce stability during operations to enable consolidation of
gains. During conditions where stability operations tasks prevail, a combination of offensive and defensive
operations will continue, but in lesser proportion than support to stabilization. In such conditions, CMOCs—
 Gain the time necessary to establish and reestablish civil networks through CA units of action
within the civil component.
 Plan for civil component assessments.
 Recommend initial procedures necessary for commanders to expand beyond the minimumessential stability operations tasks and conduct the full range of stability operations tasks.
 Provide greater visualization of the civil component of the OE to the commander to enable
effective mission planning.
2-122. CMOCs orchestrate assessments and recommend initial procedures necessary for commanders to
expand beyond the minimum-essential stability operations tasks to conduct the full range of stability
operations tasks. CMOCs plan and direct the implementation of PRC measures, SCA, FHA, and nation
assistance to achieve stability in the civil component of an OE. Through the commander, the CMOC has the
latitude and freedom of action (that is necessary during stability-oriented operations) to exercise all its
capabilities. When fully operational, the CMOC provides commanders with greater visualization of the civil
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2-24 FM 3-57 28 July 2021
component within an OE to achieve essential stability objectives through unified land operations via the 
execution of TG, CNDE, CKI, and CMI. 
2-123. The CMOC, at each CA echelon, is manned and equipped with the same mobility, communications,
and protection capabilities of its supported unit to facilitate quick and continuous interoperability in high
tempo, mobile, and static operations. It is also capable of locating and configuring itself in multiple
environments to facilitate the integration of, and interaction with, civilian partners who have varying degrees
of mobility, communications, and protection capabilities of their own. Finally, the CMOC is capable of
safeguarding the collection, storage, and transmission of sensitive or classified information in all operations.