AFDD Template Guide 

20 September 2002

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PUBLIC AFFAIRS 

OPERATIONS 

Air Force Doctrine Document 2-5.3 

 24 June 2005

This document complements related discussion found in Joint Publication 3-61, 

Doctrine for Public Affairs in Joint Operations
BY ORDER OF THE AIR FORCE DOCTRINE DOCUMENT 2-5.3 

SECRETARY OF THE AIR FORCE 24 JUNE 2005 

SUMMARY OF REVISIONS 

 This document is substantially revised and must be completely reviewed. The entire 

document has been changed to reflect a more operational focus for public affairs (PA) 

operations. Several vignettes have been replaced throughout to reinforce the concepts of PA 

operations with current examples. The more substantive revisions include adding the 

relationship of PA operations to information operations (page 2) and adding a separate chapter 

on public affairs in information operations activities (Chapter 3, page 19). Chapter One includes 

a definition of PA (page 1), the commander’s responsibility for PA operations (page 1), and a 

discussion on effects-based information operations (pages 2-3). This revision also borrows 

heavily from the principles found in Air Force Doctrine Document 2-9, Intelligence, 

Surveillance, and Reconnaissance Operations. It adds the principles of PA operations (page 7) 

to what was formerly described as public affairs fundamentals. Public affairs functions have 

been changed to tasks (page 15). In addition, a discussion of strategic communications planning 

has been added to the tasks (page 17). Chapter Four, Operational Engagement, includes an 

examination of assessment (page 31). Chapter Five, Public Affairs Readiness, adds a section on 

resources (page 33). 

Supersedes: AFDD 2-5.4, 25 October 1999 

OPR: HQ AFDC/DR (Lt Col Todd Wold) 

Certified by: AFDC/DR (Col Scott Walker) 

Pages: 49 

Distribution: F 

Approved by: Bentley B. Rayburn, Major General, USAF 

 Commander, Air Force Doctrine Center 
FOREWORD 

 America's national security rests on a strategy of full spectrum dominance supported by 

effects-based planning and operations. To support this full spectrum dominance, public affairs 

(PA) operations must be planned and conducted within an effects-based framework. PA 

operations integrate activities from different information and media disciplines to support 

commanders across the full range of military operations. PA operations span the spectrum of the 

information environment and battlespace, and are an important part of information operations 

(IO). As such, PA operations must be comprehensively planned and prioritized. The 

coordination and deconfliction of PA operations and IO are essential to Air Force credibility, and 

must be part of the overall planning effort. 

 America's strategies are predicated on developing and maintaining a highly trained force, 

leveraging decisive information, and achieving dominant effects. PA operations inform the 

public to gain and maintain the trust and support required to recruit, train, equip, and sustain 

such a dominant force. PA operations provide global influence in the international public 

information environment by highlighting and publicizing the professionalism and readiness of 

those forces sustaining the peace and deterring aggression. 

 PA operations leverage information in support of national security objectives. As such, 

PA operations are, and will remain, an important operational military capability and one of 

increasing importance in the 21st century national security environment. Simply put, PA 

operations are, and must be, an integral part of both air and space planning and operations. The 

end result is that effective and efficiently planned and conducted PA operations enable 

commanders to achieve information dominance across the battlespace and across the spectrum of 

conflict. 

BENTLEY B. RAYBURN 

Major General, USAF 

Commander, Air Force Doctrine Center 
iii

TABLE OF CONTENTS 

INTRODUCTION ......................................................................................................................... iv 

FOUNDATIONAL DOCTRINE STATEMENTS........................................................................ vi 

CHAPTER ONE—The Character Of Public Affairs...................................................................... 1 

Public Affairs Defined................................................................................................................ 1 

Commander’s Responsibility...................................................................................................... 1 

Department of Defense Guidance on Public Affairs .................................................................. 2 

Relationship to Information Operations ..................................................................................... 2 

Relationship to Agile Combat Support....................................................................................... 3 

Relationship to Effects-based Operations................................................................................... 3 

Global Information Environment................................................................................................ 3

Media Environment .................................................................................................................... 4 

Society’s Reliance on Information ............................................................................................. 5

CHAPTER TWO—Principles, Capabilities, and Tasks................................................................. 7 

Principles .................................................................................................................................... 7 

Capabilities ............................................................................................................................... 12 

Tasks ......................................................................................................................................... 15 

CHAPTER THREE—Public Affairs Relationship To Information Operations........................... 19 

Roles in Information Operations............................................................................................... 19 

Strategic Effects........................................................................................................................ 19 

Counterpropaganda................................................................................................................... 21 

Psychological Operations ......................................................................................................... 22 

Analysis and Dissemination...................................................................................................... 23 

CHAPTER FOUR—Operational Engagement............................................................................. 25 

Command Relationships While Deployed................................................................................ 25 

Integration With Air and Space Operations.............................................................................. 26 

Planning, Deployment, Execution, and Assessment................................................................. 29 

Planning ................................................................................................................................ 29 

Deployment........................................................................................................................... 30 

Execution .............................................................................................................................. 30 

Assessment............................................................................................................................ 31 

CHAPTER FIVE—Public Affairs Readiness............................................................................... 32 

General...................................................................................................................................... 32 

Training..................................................................................................................................... 32 

Education .................................................................................................................................. 33 

Resources.................................................................................................................................. 33 

Suggested Readings ...................................................................................................................... 35 

Appendix....................................................................................................................................... 36 

Glossary ........................................................................................................................................ 37 
iv

INTRODUCTION 

PURPOSE 

 This document articulates fundamental Air Force principles for conducting public affairs 

(PA) operations and provides commanders with operational-level guidance for employing and 

integrating those capabilities across the range of air, space, and information operations. 

APPLICATION 

 This Air Force doctrine document (AFDD) applies to all active duty, Air Force Reserve, 

Air National Guard, and civilian Air Force personnel. 

 The doctrine in this document is authoritative, but not directive. Therefore, commanders 

need to consider the contents of this AFDD and the particular situation when accomplishing their 

missions. Airmen should read it, discuss it, and practice it. 

SCOPE 

 This AFDD discusses fundamentals of planning and employment of PA capabilities for 

tasks across the range of military operations, or typically assigned to the commander, Air Force 

forces, or the joint force air and space component commander.

 The informational instrument of national power has a diffuse and complex 

set of components with no single center of control. In the American culture, 

information is freely exchanged with minimal government controls.... 

Information readily available from multiple sources influences domestic and 

foreign audiences including citizens, adversaries, and governments. It is 

important for the official agencies of government, including the Armed 

Forces, to recognize the fundamental role of the media as a conduit of 

information. The Armed Forces must assure media access consistent with 

classification requirements, operations security, legal restrictions, and 

individual privacy. The Armed Forces must also provide timely and accurate 

information to the public. 

—Joint Publication 1 

 Joint Warfare of the Armed Forces of the United States 
v

COMAFFOR / JFACC / CFACC 

A note on terminology

One of the cornerstones of Air Force doctrine is “the US Air

Force prefers—and in fact, plans and trains—to employ through a

COMAFFOR who is also dual-hatted as a JFACC.” (AFDD 1) 

To simplify the use of nomenclature, Air Force doctrine

documents will assume the above case unless specifically stated

otherwise. The term “commander, Air Force forces” (COMAFFOR)

refers to the Title 10 Service responsibilities while the term “joint force

air and space component commander” (JFACC) refers to the joint

operational responsibilities. 

While both joint and Air Force doctrine state that one individual

will normally be dual-hatted as COMAFFOR and JFACC, the two

responsibilities are different, and are typically executed through

different staffs. 

Normally, the COMAFFOR function executes operational

control/administrative control of Air Force forces through a Service Astaff while the JFACC function executes tactical control of all joint air

and space component forces through an air and space operations center

(AOC). 

When multinational operations are involved the JFACC

becomes a combined forces air and space component commander

(CFACC). Likewise, though commonly referred to as an AOC, in joint

or combined operations the correct title is JAOC or CAOC. 
vi

FOUNDATIONAL DOCTRINE STATEMENTS 

 Foundational doctrine statements are the basic principles and beliefs upon which Air 

Force doctrine documents (AFDDs) are built. Other information in the AFDDs expands on or 

supports these statements. 

 The Air Force conducts public affairs operations to communicate timely, accurate, and useful 

information about Air Force activities to Air Force, domestic, and international audiences. 

(page 1) 

 Truth is the foundation of all public affairs operations. (page 1) 

 Public affairs operations give commanders awareness of the international public information 

environment and the means to use information to take offensive and preemptive defensive 

actions as part of Air Force air, space, and information operations. (page 1) 

 Public affairs operations are a force multiplier by analyzing and influencing the information 

environment’s effect on military operations. (page 2) 

 Involved and sustained public engagement establishes Air Force information dominance, 

making the Air Force a preferred source of information to internal and external audiences. 

(page 2) 

 Public affairs operations are an important and necessary military capability of influence 

operations. (page 2) 

 The global information environment is so pervasive that every Airman is considered by the 

general public as a reliable source of information, and whose views, whether personal or 

professional, are sought by the media, posted to web sites, or relayed by family and friends as 

Air Force statements. (page 5) 

 Timely, accurate, and useful information provided during peacetime builds credibility with 

news media representatives and the public, translating into relationships vital to the 

warfighter. (page 5) 

 Public affairs contribute to global influence and deterrence by making foreign leaders and 

audiences aware of US capabilities and resolve. (page 14) 

 Public affairs serve as the Air Force lead for the counterpropaganda mission in the public 

information environment by countering adversary propaganda and maintaining public 

support and trust for US military operations. (page 20) 

 Public affairs personnel are members of the commander’s personal staff, but should be fully 

integrated into the activities of the air and space operations center, and should coordinate and 

synchronize with the activities of the information warfare flight. (page 25) 
vii

 The synergy between public affairs operations, which use open-source information, and 

operations that primarily use classified information, is crucial to gaining and maintaining 

information dominance. (page 28) 

 Positive and/or balanced media coverage at the outset of military action can rapidly influence 

public opinion and affect strategic decision making. (page 30) 

 Education in public affairs operations equips Airmen to represent the Air Force to the public 

and achieve desired information effects. (page 34) 
1

CHAPTER ONE 

THE CHARACTER OF PUBLIC AFFAIRS 

PUBLIC AFFAIRS DEFINED 

Public Affairs (PA) is defined as “Those public information, command information, and 

community relations activities directed toward both the external and internal publics with 

interest in the Department of Defense.” (Joint Publication [JP] 1-02). The Air Force conducts 

PA operations to communicate timely, truthful, and useful information about Air Force 

activities to Air Force, domestic, and international audiences. PA operations assist 

commanders to achieve effects such as deterring conflict, fostering public trust and support for 

operations, countering adversary propaganda or misinformation that may affect unit morale or 

readiness, driving a crisis back to peace, or waging war. By disseminating information 

concerning air and space capabilities, preparations, and results, PA operations enhance Airman 

morale and readiness to accomplish the mission, gain and maintain public support for military 

operations, and communicate United States resolve in a manner that provides global influence 

and deterrence. Truth is the foundation of all public affairs operations, both in terms of 

credibility and capability. Timely and agile dissemination is essential to help achieve desired 

information effects.

COMMANDER’S RESPONSIBILITY 

 PA operations are a commander’s responsibility because of the asymmetrical effects 

associated with, and achieved by, PA operations. Even those PA operations conducted at the 

operational and tactical level may generate strategic effects. Commanders are ultimately 

responsible for successful integration of PA capabilities into operations. Commanders require a 

clear understanding of PA’s role in operations to help achieve their desired effects. 

 Commanders employ PA forces to assess the information environment in coordination 

with international affairs specialists (formerly called foreign area officers), country teams, and 

intelligence personnel. PA personnel must maintain awareness of, and advise the commander 

and planners regarding, public opinion and political, social, and cultural shifts affecting air, 

space, and information operations. Public affairs operations give commanders awareness of 

the international public information environment and the means to use information to take 

offensive and preemptive defensive actions as part of Air Force air, space, and information 

operations. Commanders face the challenge of balancing the task of informing the public with 

the need to maintain operational security, a traditional cornerstone of successful military 

planning and execution. PA operations are an important military capability of information 

Public sentiment is everything. With public sentiment, nothing can 

fail; without it, nothing can succeed. 

 —Abraham Lincoln 
2

operations (IO), providing public information to defend against adversary propaganda and 

misinformation directed at domestic and international audiences. PA operations are a force 

multiplier by analyzing and influencing the information environment’s effect on military 

operations and delivering increased battlespace awareness to the commander through analysis 

of the information environment. PA capabilities are most effective when planned and executed 

as an integral part of an overall operation. 

 PA operations deliver open and honest two-way communication within the Air Force and 

to the public. Commanders instill trust and enhance morale by personally communicating within 

their commands. As spokespersons for the Air Force, the Department of Defense (DOD), and 

the US Government, commanders and their representatives play a vital role in building public 

support for military operations and communicating US resolve to international audiences. 

 Providing the maximum disclosure of timely and accurate information as rapidly as 

possible enables the commander to seize the information initiative. Involved and sustained 

public engagement establishes Air Force information dominance, making the Air Force a 

preferred source of information to internal and external audiences. 

DEPARTMENT OF DEFENSE GUIDANCE ON PUBLIC AFFAIRS 

 It is DOD policy to make available timely and accurate information so the public, the 

Congress, and the news media may assess and understand the facts about national security and 

defense strategy. DOD Directive (DODD) 5122.5, Principles of Information, enclosure 2, 

delineates principles of information that apply in supporting the DOD policy. Refer to the 

appendix of this document for the complete listing of those principles. 

RELATIONSHIP TO INFORMATION OPERATIONS 

 PA operations are an integral military capability of both informational flexible deterrent 

options (IFDO) and IO. A flexible deterrent option (FDO) is “a planning construct intended to 

facilitate early decision by laying out a wide range of interrelated response paths that begin with 

deterrent-oriented options carefully tailored to send the right signal. The flexible deterrent option 

is the means by which the various deterrent options available to a commander...are implemented 

into the planning process” (JP 1-02). Information operations are the integrated employment of 

the core capabilities of influence operations, electronic warfare operations, and network warfare 

operations, in concert with specified integrated control enablers, to influence, disrupt, corrupt or 

usurp adversarial human and automated decision making while protecting our own (AFDD 2-5, 

Information Operations). Influence operations are operations focused on affecting the 

perceptions and behaviors of leaders, groups, or entire populations by protecting operations, 

communicating military perspective, and projecting information to achieve desired effects across 

the cognitive domain. These effects should result in modified behavior or a change in an 

adversary’s decision cycles that will align with the commander’s objectives. Public affairs 

operations are an important and necessary military capability of influence operations. 
3

 PA operations can be a force multiplier by assessing and influencing the information 

environment’s effect on military operations. PA operations in support of influence operations 

are predicated upon the ability to project accurate (truthful), timely, and useful information. 

Refer to Chapter 3 and AFDD 2-5 for further discussion on IO, and the PA relationship with IO. 

RELATIONSHIP TO AGILE COMBAT SUPPORT 

Agile combat support (ACS) is the Air Force's distinctive capability to create, protect, 

and sustain air and space forces. It is how the Air Force supports its forces, a force poised to 

respond to global taskings within hours that must also be able to support and protect that force 

with equal facility. ACS includes the integrated actions of public affairs operations to 

communicate timely, accurate, and useful information about Air Force activities to Air Force, 

domestic, and international audiences. For additional information, see AFDD 1, Air Force Basic 

Doctrine, and AFDD 2-4, Combat Support. 

RELATIONSHIP TO EFFECTS-BASED OPERATIONS 

 Effects-based operations (EBO) are operations that are planned, executed, and assessed 

in order to create specific effects that contribute directly to desired military and political 

outcomes (AFDD 2, Organization and Employment). The basic methodology of EBO 

encompasses objectives, effects, and actions. Objectives are clearly defined, decisive, attainable, 

and measurable goals toward which every military operation should be directed. Effects are the 

full range of outcomes, events, or consequences that result from a particular action or set of 

actions. Actions are individual deeds or acts of will that can be either kinetic (physical, material) 

or non-kinetic (logical, behavioral). 

 Properly planned, executed, and assessed, PA operations are fundamentally effects-based 

operations in terms of creating an “effect” by disseminating timely, truthful, and accurate 

information to achieve a particular objective. However, the success of PA operations is 

contingent upon the desired effects of PA operations being related to appropriate objectives. 

GLOBAL INFORMATION ENVIRONMENT 

 As used in this document, the global information environment (GIE) is defined as all 

individuals, organizations, or systems that collect, process, and distribute information. The 

collection, processing, and distribution of information in the GIE may directly affect military 

operations. The public information environment is a substantial subsystem of the GIE that 

includes all individuals, organizations, or systems that collect, process, and disseminate 

information for public consumption. The public information environment is comprised of many 

subsystems ranging from interpersonal communication to international public information, mass 

media, and the internet. 

 The public media and international organizations are a part of the dynamic GIE. 

Although they are not part of the US government or the armed Services, these public information 

elements can nevertheless directly affect the success or failure of military operations. 
4

 Global communication capabilities make news and information simultaneously available 

from the strategic to the tactical levels of military operations. Communication technologies and 

the expansion of international media alliances have affected the conduct of military operations in 

a degree unprecedented to operations before DESERT STORM. In addition, commanders and 

PA operators should be aware that information released for an internal audience can quickly 

enter the external media environment and act as a force multiplier for delivering information 

directly to the public via worldwide web sites, e-mail list servers or other means. 

 Audiences perceive information through the prism of their own national, cultural, 

political, and regional perspectives. This can substantially alter the reception of the message, 

especially when the information is of interest to populations of foreign countries. 

 The modern information environment is characterized by 24-hour media reporting and 

real-time analysis of events, allowing audiences in the US and throughout the world to receive 

real-time information from national leaders and from the theater of operations. Domestic and 

international decision makers may be influenced simultaneously by the flow of information, 

accurate or inaccurate. The resulting effect may be political pressure on national leaders and 

military commanders to change strategic goals, policy, guidance, objectives, and procedures that 

affect military operations. 

MEDIA ENVIRONMENT 

 Mass media outlets are key actors in the GIE. Their role has significant implications for 

modern warfare. Through technology and a complex web of formal and informal support and 

integration relationships, today's mass media outlets possess global reach with capabilities and 

tactics that mirror those of the modern US military. Most major national and international media 

outlets actively gather, synthesize, and distribute news and information around the clock at a 

very high tempo. Though all media outlets have their own editorial policy and define and cover 

news differently, most major national and international outlets focus heavily on military 

operations during times of international crisis and war. The operational reality for the US 

military is that the media are, and will continue to be, key actors during crises and conflicts. 

 Most media outlets cover military operations from multiple perspectives. They 

simultaneously pursue stories on all aspects of warfare—strategic, operational, tactical, 

Americans today live in a media renaissance: Consumers have a 

breathtaking array of news and entertainment choices; individuals can turn

themselves into news outlets on the Internet; cable and satellite television,

along with satellite radio, supplement traditional broadcasting networks; and

newspapers from around the world are available online. 

—The Washington Post, editorial, “Who can own Media?”

May 31, 2003
5

Knowing that Iraqi military leaders were watching the same satellite feeds we

were – from CNN as well as from Al Jazeera and other cable networks – Pentagon 

officials were in contact with Iraqi generals by radio, cell phone, even e-mail. The 

messages we were sending were simple and direct: Surrender your forces.

Opposition is hopeless. If you don't believe us, just turn on your TV. 

—Lucian K. Truscott IV, International Herald Tribune, 

2003

diplomatic, economic, and human interest. They leverage technology and a complex network of 

reporters and sources to provide audiences insight into as many dimensions of the news as 

possible. As with military operations, senior editors and producers at these outlets make 

important strategic decisions at a rapid pace, often with less than perfect situational awareness. 

In this modern, highly competitive industry, media place tremendous emphasis on seizing the 

initiative, and then providing agile, timely responses to world events. 

 

The evolution of the global and public information environments increased the demand for 

information and the competition to discover and report unique stories. The 24-hour news cycle 

results in more analysis and editorial commentary that may or may not present an accurate 

account of military operations. Modern military operations are widely viewed events where at 

least one side’s actions are watched in real time by the global audience: US public audiences, 

allies, and adversaries. Worldwide audiences, including US deployed forces and their 

adversaries, can receive a wide range of information from a growing number of sources. This 

information may be of dubious or unknown quality and could be part of an adversary’s 

propaganda or misinformation campaign. The tremendous growth of internet use and its 

ubiquitous global access make it a popular medium to deliver such information. 

 The growing access to the internet, web logs, cell phones, and e-mail by deployed 

Airmen is difficult to control and may make Airmen “official” Air Force spokespersons in the 

public information environment whether or not they are aware of that status. The global 

information environment is so pervasive that every Airman is considered by the general 

public as a reliable source of information, and whose views, whether personal or 

professional, are sought by the media, posted to web sites, or relayed by family and friends 

as Air Force statements. Commanders and PA personnel need to actively engage Airmen to 

make them aware of their potential role in the information dominance campaign from a public 

affairs perspective as well as an operations security (OPSEC) perspective. 

SOCIETY’S RELIANCE ON INFORMATION 

 Society’s demonstrated reliance on and demand for current information concerning world 

events present commanders with a valuable opportunity to employ PA operations. Timely, 

accurate, and useful information provided during peacetime builds credibility with news 

media representatives and the public, translating into relationships vital to the warfighter. 
6

 The relationship built between the military and the public in peacetime is vital to mission 

success in wartime or during contingencies since information coming from US/coalition forces 

will have a greater likelihood of being accepted as credible, truthful, and useful than would the 

adversary’s information. The truth-based relationship strengthens PA operational capabilities to 

counter adversary propaganda and misinformation, to leverage credibility to shape global 

influence and deterrence, to build public trust and support, and to enhance Airman morale and 

readiness. 

 Although US adversaries have used and misled domestic and international media to 

communicate propaganda during many conflicts, PA operations conducted by the US are truthbased and will not intentionally mislead the US Congress, public, or media. 

Because the battles in a counterinsurgency are small scale and often

clandestine, the story line is rarely obvious. It becomes a matter of perceptions, and

victory is awarded to those who weave the most compelling narrative. Truly, in the 

world of postmodern, 21st century conflict, civilian and military public affairs officers

must become war fighters by another name. They must control and anticipate a whole 

new storm system represented by a global media, which too often exposes

embarrassing facts out of historical or philosophical context. 

—Wall Street Journal, May 27, 2004 
7

CHAPTER TWO 

PRINCIPLES, CAPABILITIES AND TASKS 

 Three major facets of PA operations interlace to produce the best possible support to 

commanders. The principles of public information are foundational, time-proven guidelines to 

which commanders and PA operators should adhere regardless of situation, across the spectrum 

of conflict. Building upon the principles, core capabilities describe the areas in which PA 

operations directly provide capability to the commander. Finally, tasks are divided into five 

broad, continuing activities performed to provide PA operations capabilities. 

PRINCIPLES 

 The purpose of Air Force PA operations is to communicate timely, accurate, and useful 

information about Air Force activities to DOD, Air Force, domestic, and international audiences. 

PA operators enhance their ability to meet commanders’ information requirements by adhering 

to the following principles of public information: 

 Tell the truth. 

 Deliver time-critical information in time.

 Engage the media. 

 Practice security at the source. 

 Coordinate and be consistent. 

 Strive for accuracy.

 Integrate with other operations. 

 Be relevant. 

 Seek fusion of information. 

 Ensure unity of effort. 

 Be survivable, sustainable, and deployable. 

Tell the truth 

Truth is the foundation of all public affairs operations. Truth enables credibility; 

credibility allows US military personnel to be believed or heard over an adversary or competing 

message. 
8

 Commanders should use PA operations to provide accurate and useful information to the 

public in a timely manner. The long-term success of Air Force operations depends on 

maintaining the integrity and credibility of officially released information. Lying or attempting 

to deceive the public will destroy trust and support for the Air Force and PA operations. 

Deliver time-critical information in time 

 Commanders should be prepared to release timely, coordinated, and approved 

information about military operations. Commanders should know the guidance for media 

engagement prior to initiating operations. Establishing media guidance requires aggressive 

coordination through the chain of command, and establishing the guidance prior to initiating 

operations will enable the commander to provide time-critical information. Difficult issues and 

events that are potentially unfavorable to the Air Force should be addressed openly, honestly, 

and as soon as possible; maximum disclosure permissible with minimum delay. 

 Information should be released quickly, even though it may be uncomplimentary for the 

Air Force. Attempting to deny unfavorable information or failing to acknowledge its existence 

leads to media speculation, creates the perception of a cover-up, and results in lost public trust in 

the Air Force while degrading the effects of other capabilities of PA operations. The delay in 

addressing unfavorable issues also provides adversaries with an uncontested opportunity to 

dominate the public information environment, twisting the facts to support their claims. 

Engage the media 

 Reporters covering operations should be given access to units and Airmen and, whenever 

feasible, be included in the operation at the unit level. Integrating journalists into units gives the 

media a unique perspective, a chance to know the Airmen, and an opportunity to understand and 

experience the Air Force. The increased access and insight allow a reporter to more thoroughly 

and accurately tell the Air Force story, strengthening our global influence and deterrence, 

building public trust and support, and enhancing Airman morale. 

A B-1 Lancer flying an Operation ENDURING FREEDOM mission crashed

into the Indian Ocean the night of December 12, 2001. Shortly afterward, Defense

Department spokeswoman Victoria Clark addressed reporters at a Pentagon press

conference explaining the situation and that all four crewmembers had been rescued.

Media access to the crew was granted very quickly, including video of the Airmen

aboard the Navy ship involved in the rescue. The very next day, because the military

was proactively addressing the press with information, it became a non-story. When 

Defense Secretary Donald Rumsfeld and Chairman of the Joint Chiefs of Staff Gen

Richard Myers held their regularly scheduled press conference, only one question

was asked about the cause of the B-1 crash. 

 —Pentagon News Service Report, 2002
9

 Differences in philosophies, values, and perspectives may lead to misunderstandings 

between military professionals and the media. The media will be a constant factor in any 

military operation, and rather than considering the media as an adversary, commanders and 

planners need to actively engage them whenever practicable. 

 Providing accurate and timely information to the media educates the media about military 

operations, creates a bond of trust between the media and the military, and results in more 

accurate reporting. 

 All Airmen should be trained to have a basic ability to engage members of the news 

media with general Air Force and individual professional information. They may become 

spokespersons for the Service and, in some cases, may be considered by the media to be more 

credible sources than commanders or senior officials. By projecting confidence and commitment 

during interviews, or while talking to family and friends, Airmen help to promote public support 

for military operations, enhance Airman morale, and strengthen global influence and deterrence 

efforts. Telling the Air Force story contributes to mission accomplishment, can communicate 

restraint, indicates resolve, and serves as a deterrent. 

 Commanders and planners can promote more accurate reporting by educating the media 

on military activities to help overcome communication difficulties and improve the media’s 

understanding of the military. Similar efforts should be directed towards civic leaders and 

domestic / international audiences to enhance their understanding of military operations, help 

generate public understanding and support at home and abroad for military operations, and help 

shape the information environment. 

 

Practice security at the source 

 All Air Force personnel—military and civilian—are responsible for safeguarding 

sensitive information. As a source of information, every person should be aware of operational 

security issues, whether being interviewed by a reporter or sharing information with a spouse or 

a friend. The speed at which information passes through the GIE makes attempts to censor 

military operations impractical, if not impossible. As a result, Airmen should understand what 

information is approved or not approved for release. This is why it is important that information 

be approved for public dissemination before it is released. 

 PA personnel should work closely with operational security managers to ensure PA 

products are as thorough as possible without endangering operations security. Commanders 

should ensure security reviews are performed and release authority is granted at the lowest 

possible level to ensure the effectiveness of their PA operations. Unnecessarily lengthy security 

reviews of operational information may degrade operational effectiveness. The tone and 

message will be set by the first to enter the public information environment. The timely release 

of information is a force multiplier, while delays limit the effectiveness of PA operations and 

increase the opportunity for adversaries to get their story out first. 
10

Coordinate and be consistent 

 Commanders should strive for the release of coordinated and consistent information at all 

levels of command. The GIE provides the public with information about military operations 

from a variety of military units. Sources in theater and at the Pentagon are often quoted in the 

same media reports. Conflicting statements or inconsistent information can cause skepticism, 

undermine public trust and support, damage Airmen’s morale, and degrade the strength of global 

influence and deterrence efforts. Commanders should ensure the Air Force puts forth a 

consistent message through its many Airman “voices.” Information should be appropriately 

coordinated and in compliance with official DOD, supported command, Service, and major 

command guidance before it is released to the public. Commanders should ensure PA operations 

are coordinated, integrated, and deconflicted with air, space, and information operations. 

Psychological operations (PSYOP) information and the information prepared for public release 

should be coordinated and deconflicted to ensure the messages to the respective audiences are 

not contradictory. 

Strive for accuracy 

 One of the most demanding tasks for PA professionals during operations is the need to 

balance expediency with requirements for accuracy. At times it may be necessary to release as 

much accurate information as is available and provide updates as more information is obtained. 

Accuracy of all the information must always be the higher priority, but it should not 

unnecessarily delay release of accurate information available at the time. 

 Every member of the Air Force can help provide accurate information to the public about 

the Air Force and its operations. Commanders should educate and encourage their military and 

civilian personnel to tell the Air Force story by providing them with timely, accurate information 

appropriate for public release. 

In April 1999 Operation ALLIED FORCE F-16s mistakenly struck two civilian 

convoys in Kosovo. For almost a week, conflicting information came from NATO,

EUCOM, and Washington. Images of the scene led evening newscasts. After a week

of conflicting stories and negative media headlines, NATO approved the Aviano AB

commander to brief the “ground truth” to the international media. His highly

detailed explanation set the issue to rest that day. However, some officials came to

believe that NATO’s slow response to the incident could have cost NATO its

credibility. Had NATO been given accurate information to immediately release –

putting the incident into the proper context for the world audience – the Serbs would

have been denied the enormous propaganda value the incident and its initial handling

gave them. 

—Opportunity Lost: Public Affairs, Information

Operations, and the Air War Against Serbia

A P J l S 2000
11

Integrate with other operations 

 PA operations are most effective when their capabilities are integrated into strategic, 

operational, and tactical plans and employed by commanders at all levels to achieve desired 

effects. Failure to integrate PA operations in the strategy development and planning phases can 

result in a reduced ability to affect the public information environment and increased likelihood 

of conflicting with other objectives. 

 It is vital to overall operational success that PA is a part of the strategy development and 

planning phases. Similarly, as an essential element of operations, PA must be fully aware of 

operations goals and objectives and be fully integrated at all levels. 

Be relevant 

 PA operations must be well-planned, executed, and assessed. This is necessary to ensure 

PA operations are relevant to commanders, the operations are fully integrated, and the operations 

meet desired objectives. PA products and resources must be developed and focused to achieve 

and complement the commander’s intent and operational objectives. Likewise, these products 

and resources must be continually assessed to ensure they adequately address public interest. 

Seek fusion of information 

 Information from many sources is combined, evaluated, and analyzed to produce 

predictive awareness of the public information environment and identify PA opportunities. This 

process is called fusion. Fusion helps defeat adversary propaganda and misinformation efforts by 

providing PA operators with information from multiple sources, building a more complete 

picture of the public and GIE. Care must be taken not to promote fusion at the expense of 

timeliness: significant information that accurately tells a part of the story should be released as 

soon as possible to help gain information dominance for the Air Force. 

Ensure unity of effort 

 PA organizations at all levels should have clearly defined relationships that minimize 

duplication, enhance sharing of information throughout the public affairs structure, and are 

mutually supportive. PA at all levels must speak with one voice to address common issues. As 

part of unity of effort, PA operators must maintain a close relationship within the operations and 

support communities and other government agencies engaging in the public information 

environment. 

Be survivable, sustainable, and deployable 

 PA resources and operations must be survivable to ensure their capabilities are available 

when needed. Important components of survivability include redundancy of critical information 

and protection against adversarial information operations and misinformation attempts. PA 
12

The reason the Pentagon pushed for embedding on such a large scale in Iraq

was to counter the level of disinformation and misinformation that the Iraqi regime 

was famous for producing. They (Iraqis) have a long history of misinformation, and

senior leaders knew we needed to have a first-hand, unbiased set of eyes to see what

was happening on the battlefield to counter the Iraqi regime and dominate the 

information market with factual information. 

—Pentagon project officer, 2004

systems and equipment must be built to be easily deployable. Deployable resources should be 

easy to transport and set up, and be capable of immediate connectivity into the host-unit 

communications architecture. Finally they must be easily sustainable by the host-unit 

communications personnel. This entails ensuring they can operate regardless of whether it is at 

an austere location with minimum support or an established location with robust support 

availability. 

CAPABILITIES 

 PA operations deliver four capabilities to commanders. The following are the core 

capabilities of PA operations: 

 Providing trusted counsel to leaders. 

 Building and sustaining public trust and support.

 Enhancing Airman morale and readiness. 

 Supporting global influence and deterrence. 

 These synergistic capabilities are core contributions of PA operations to the Air Force and are 

conducted across the full spectrum of military operations. PA operations are most effective when 

these capabilities are integrated into strategic, operational, and tactical plans and executed with 

direct support from commanders at all levels to achieve desired effects. 

Trusted counsel to leaders 

 PA operations provide commanders and other Air Force leaders candid, timely, and 

accurate counsel and guidance concerning the effects of the public information environment on 

the Air Force’s ability to meet operational objectives. This capability includes providing 

predictive awareness of the global public information environment through the observation, 

analysis, and interpretation of domestic and foreign media reporting, public opinion trends, 

lessons learned from the past, and preparing leaders to engage the media. This counsel helps 

commanders make well-informed decisions regarding the public information environment’s 

effect on operations and to forecast possible results. PA support to commanders is integral to 

operational success as media and public interest increase during operations and can affect the 

outcome. 
13

Broadcast operations during contingencies are often the local

commander's best internal information tool. In Operation IRAQI FREEDOM

the insurgents were deploying a new type of improvised explosive device

(IED). These new IEDs were being disguised in a completely new way and had

proven to be effective and deadly. Command came to the broadcasters to help

get the word to the troops as quickly as possible. American Forces NetworkIraq immediately wrote and broadcast a series of IED spots to make the

coalition troops aware of the new threat. The spots played throughout Iraq

and were credited in getting the troops smart on the new IEDs. 

 

—Director, AFN Iraq, 2004

Public trust and support 

 PA operations support a strong national defense—preparing the nation for conflict and 

war—by building and sustaining public trust and understanding of Air Force contributions to 

national security. These operations make Americans aware of the value of spending tax dollars 

on readiness, advanced weapons, training, personnel, and the associated costs of maintaining a 

premier air and space force. With public support, Air Force leaders are able to successfully 

recruit, train, and equip Airmen to meet Air Force operational requirements. 

 PA operations give commanders the means to gain and maintain support for the Air 

Force among diverse public audiences. These operations strengthen the bonds between the Air 

Force and the public through open, honest dialogue. Data and imagery, continuously available 

in near-real time in the GIE, can have an immediate effect on public support. Likewise, distorted 

information and imagery distributed by an adversary can have an adverse effect on national will 

and the support of Air Force operations. PA capabilities, integrated with other operational 

capabilities and employed effectively, can ensure the Air Force story is told while also 

preempting and degrading an enemy’s effectiveness in misleading the public. 

 To fight and win in the information age, commanders should employ public affairs 

communications that foster ongoing public understanding and support of operational 

requirements. Commanders also can leverage public affairs capabilities like the Hometown 

News program, community outreach and civic leader tours, band performances, American Forces 

Radio and Television News Services (AFRTS), Image Express, the worldwide web, and other 

products that can transcend traditional media and audience boundaries. Use of the full range of 

capabilities expands the reach of PA operations messages to garner public trust and support for 

Air Force operations. 

Airman morale and readiness 

 Airman morale and readiness directly translate into combat capability for the Air Force. 

PA operations enable Airmen to understand their roles in the mission, explaining how policies, 

programs, and operations affect them and their families. 

 

 PA operations convey truthful, credible, and useful information to achieve Airman 

morale and readiness, and provide Air Force capability to counter misinformation and 
14

Air Force Bands bring synergistic effects to bear that enhance the

image of the Air Force and can open doors for relations, operations, and

military-to-military contacts. In 2001, public support for unique Air Force

training exercises was enhanced by Unites States Air Forces Europe band

engagements in local areas around a former East German air base. The band

also cultivated tremendous relationships in other former Communist areas

deliberately chosen for public performances. For many of these important

civilian and military leaders, seeing, hearing, and talking to Air Force band

members formed their first personal impressions of the American military—

impressions they passed on to others in their communities. 

—Multiple Sources

propaganda directed at our forces. PA tools such as base newspapers, commanders’ calls, Air 

Force News products, AFRTS, performances by Air Force bands, and official Air Force web 

sites are components of this capability. PA operations counter adversary propaganda efforts and 

help to minimize the loneliness, confusion, boredom, uncertainty, fear, rumors, and other factors 

that cause stress and undermine efficient operations.

 PA operations also contribute to readiness by helping to increase the Airmen’s 

understanding of the law of armed conflict (LOAC), rules of engagement (ROE) and respect for 

the protections provided to noncombatants and detainees through the presentation of such 

information in radio or TV broadcasts, base newspapers, base bulletins, base websites, etc. 

 Informed and knowledgeable Airmen have higher morale and can be relied upon to 

effectively deliver Air Force themes and messages as they explain their mission to media 

representatives, public groups, or individuals. With Airmen as credible, reliable spokespeople, 

PA operations can more effectively deliver global influence, deterrence, enhanced public trust 

and support as Airmen convey Air Force themes and messages in the public information 

environment. 

Global influence and deterrence 

Public affairs contribute to global influence and deterrence by making foreign 

leaders and audiences aware of US capabilities and resolve. Commanders should employ PA 

operations to develop and implement communication strategies to inform national and 

international audiences about how air and space power affects global events. Building the 

awareness of national and international audiences about US resolve to employ its strength can 

enhance support from friendly countries. The same information may deter potential adversaries, 

driving a crisis back to peace before the use of kinetic force becomes necessary. 

 Information and power projection demonstrating US or friendly force capabilities and 

resolve to adversary and international public audiences can be effective in causing adversary 

decision makers to seek other options short of conflict when they may otherwise not be deterred 
15

from conflict. In addition to integrating PA operations during the strategy development and 

planning phases of an operation, commanders strengthen the effectiveness of PA capabilities 

when PA operations at all levels are unified with a common message and theme. Exclusion of 

PA in the early stages of strategy and operational planning limits the effectiveness of PA 

operations to seize the information initiative from the beginning of an operation and 

consequently degrades the commander’s ability to gain information superiority. 

 

 PA operations should be planned for and integrated at multiple levels for employment of 

offensive PA strategies to help ensure operational success. PA operations also can employ 

defensive strategies to preempt adversary propaganda and misinformation attempts that 

otherwise could weaken Air Force global influence and deterrence, Airman morale and 

readiness, and public trust and support. 

TASKS 

 PA operations begin at home, before the first Airman deploys, and continue long after the 

last Airman is redeployed. PA operations focus on five synergistic tasks to achieve the desired 

effects of its four capabilities. Despite the distinctions among the tasks, PA organizations should 

be organized for desired effects and not necessarily around these five tasks. For instance, there 

is no longer any real distinction between internal information and media operations—

communications with these two audiences should be consistent. 

The tasks in PA operations are: 

 Internal information. 

 Media operations.

 Community relations. 

 Security review. 

 Strategic communication planning.

Internal information 

 Providing timely, accurate, and useful information to Air Force personnel results in 

informed support for the Air Force mission and degrades the effectiveness of adversary 

disinformation, propaganda, or deception campaigns. PA operations provide the tools to help 

commanders respond to concerns of Air Force members and their families, and to enhance 

Airman morale and readiness. Although joint task force (JTF) commanders may establish a 

command information operation within the JTF public affairs structure, Service-specific internal 

information remains the responsibility of the Service component commander. 

 PA operations inform Airmen, contractors, retirees, and all affiliated family members 

throughout the Air Force's active, National Guard, and Reserve components on Air Force 

operations and issues. This audience should be a high priority in any communication strategy to 
16

ensure maximum combat effectiveness and readiness to deploy and support Air Force operations. 

Effective internal information also delivers the highest sustainable morale, productivity, and 

retention. 

 AFRTS and musical operations play important roles with internal information. Each 

employs unique delivery methods to inform and entertain audiences worldwide. These 

operations enhance Airman morale and can influence foreign decision makers and public 

audiences as they provide information that demonstrates Air Force readiness, operational 

capabilities, and resolve to use air and space power to achieve operational objectives. 

Media operations 

 PA operations interact with the mass media to provide a flow of information to the 

public. Wider public awareness occurs when this information reaches national opinion leaders 

since they may amplify the information in their varied public interactions. Effective media 

operations bring Air Force issues to the public agenda and help to gain and maintain public 

support for Air Force operations. Commanders may need to engage local, regional, national, or 

international media representatives, depending on the operation. Commanders who aggressively 

use PA operations to gain predictive awareness of the public information environment can often 

successfully preempt media issues and set the tone and message in the GIE. Conversely, failure 

to employ effective media operations can place commanders in a reactive stance, responding to 

the public debate established by an adversary or questions driving the news media agenda. A 

reactive posture allows for messages and tones in the national or international media to be set by 

others, and degrades the effectiveness of PA operations. 

 Modern technologies tend to blur the lines between internal information and media 

operations in the GIE. Commanders and PA operators should be aware that information released 

for internal audience consumption can quickly enter the external media environment. 

The biggest difference for the [Air Force] is host nation access. Most of the

countries we're operating in have chosen not to grant media access to their bases.

The challenge for us is finding ways—through real-time transmission of information 

and imagery, use of websites, interviews and everything else we can think of while

respecting the conditions of our host nations—to create virtual access to our bases 

and people. 

—Brig Gen Ronald Rand

Air Force Director of Public Affairs 

during Operation IRAQI FREEDOM
17

Community relations 

 

Effective community relations build an informed public that is more inclined to be 

supportive of Air Force operations and initiatives and less susceptible to the effects of adversary 

misinformation attempts or inaccurate media reports. In many deployed environments, effective 

community relations are vital to the success of Air Force operations. Forward-area community 

relations in a contingency will usually fall within the scope of a civil affairs plan (see JP 3-57, 

Joint Doctrine for Civil-Military Affairs Operations). PA operators must be aware of the civil 

affairs efforts and, when possible, complement them in PA products and operations. 

 In peacetime, active community relations programs help to build greater acceptance for 

Air Force operations within US and international audiences. Greater public acceptance of the 

Air Force can be a key to future operational success since it may lead to basing or overflight 

rights, shortened community “no-fly” or quiet hours, and other operationally important 

community support efforts.

Security review 

 The security review program directly supports other Air Force information security 

activities by providing clearance and review of official information for security, accuracy, 

propriety, and adherence to policy. The intent is not to censor unclassified information—security 

review helps prevent the inadvertent release of classified material and information with essential 

elements of friendly information or technology transfer. Commanders should ensure PA 

operations are closely integrated with their staffs to minimize delay in providing security review 

of operational products like imagery, weapons and cockpit video, and other products that 

demonstrate Air Force capabilities. The security review also promotes consistency in the type of 

unclassified information released to the public. 

Strategic communication planning 

 As used in this document, strategic communication encompasses the planning, execution, 

and assessment of integrated and coordinated US government themes and messages that advance 

US interests and policies through a synchronized interagency effort supported by public 

The flight test area R-2508 at Edwards AFB, home of the Air Force Flight Test

Center (AFFTC), is 160 miles long by 60 miles wide and contains several communities

that regularly complain about the noise from test aircraft. The US Air Force Band of

the Golden West, working closely with the AFFTC public affairs office, created a

series of concerts called "A Different Kind of Air Force Noise," targeting specific

communities in the area. The band invited senior Air Force leaders from Edwards to

serve as concert sponsors and explain AFFTC's mission and its importance to the Air

Force. The communities targeted, once responsible for 70 percent of noise complaints

received by the base, now comprise only 5 percent of complaints. 

—Multiple Sources
18

During Operation ALLIED FORCE in 1999, the 48th Fighter Wing at RAF

Lakenheath deployed two fighter squadrons to Italy. Additionally, combat sorties were

flown over Serbia from RAF Lakenheath by a third fighter squadron. This meant

around-the-clock operations and night-flying for the base, operational security 

concerns regarding the base and US children of deployed parents in local British

schools, and decreased numbers of American patrons at local businesses. The 48th

Fighter Wing commander invited local community leaders to a briefing about RAF

Lakenheath’s role in the operation and the operation’s importance to European

stability. The interaction also was an opportunity for community leaders to ask

questions and highlight concerns from their constituents. As a result, the community

leaders offered their public support for the US and NATO mission and established a

lasting relationship with base leaders to address potentially adverse public issues 

during the operation. 

—Multiple Sources

diplomacy, public affairs, and military information operations in concert with political, 

economic, information, and military actions. 

 Strategic communication planning is necessary for all other PA capabilities and tasks. 

PA operators must gain awareness of the aspects of the total information environment affecting 

their location or operation. They should also have the means to evaluate and analyze aspects of 

the GIE. PA operators rely on portions of operation plans (OPLANS), lessons learned and an 

understanding of the information environment to build plans that help to achieve a commander’s 

desired effects. It is essential to overall mission success that PA is a part of the strategy 

development and planning phases of an operation to ensure its capabilities are employed to their 

full effectiveness. 

 PA operations can play an important role in the transition from combat operations to post-conflict stabili

can help define public perception of ongoing nation building or other stability operations and are 

contingent upon the clear and proper articulation of allied objectives. Success will in large part 

be determined by the amount and quality of planning efforts for PA operations in preparation for 

transition between types of operations. 
19

CHAPTER THREE 

PUBLIC AFFAIRS RELATIONSHIP TO INFORMATION OPERATIONS 

ROLES IN INFORMATION OPERATIONS 

 PA operations are an important component of IFDOs and build a commander’s predictive 

awareness of the international public information environment and the means to use information 

to achieve effects across the spectrum of Air Force operations. PA operations are a key military 

capability of IO through the ability to achieve decisive effects in support of influence operations, 

and in support of the other military capabilities of influence operations, such as 

counterpropaganda operations. As an important military capability of information operations,

public affairs operations are a force multiplier by analyzing and influencing the 

information environment’s effect on military operations. PA operations have the opportunity 

to achieve the greatest effect before the onset of hostilities. The strategic effect PA operations 

can achieve highlights the importance in ensuring PA personnel are involved at the earliest 

planning stages as well as during the execution and assessment of operations. It also highlights 

the importance of ensuring PA operations are synchronized and deconflicted with IO. 

STRATEGIC EFFECTS 

 PA operations can achieve effects at the strategic level. One crucial PA operation is the 

execution of IFDOs listed in the Joint Chiefs of Staff (JCS) joint strategic capabilities plan 

(JSCP). Along with diplomatic, military, and economic means, the JCS recognizes information 

as an instrument of national power. IFDOs are options available to commanders as alternative, 

non-kinetic courses of action to accomplish operational missions other than “bombs on target.” 

IFDOs heighten public awareness; promote national and coalition policies, aims, and objectives 

for an operation; seek to build public support for operations; and counter adversary propaganda 

and disinformation in the public information environment. 

Air Force PA operations are among the commander’s IFDO options that enable a 

commander to address issues surrounding a crisis or conflict through the use of public 

information. These options include: 

 Maintaining an open dialog through the media with domestic and international audiences. 

 Articulating US (and/or coalition) policies, aims, and objectives. 

 Gaining and maintaining public support for the operation. 

 Heightening adversary awareness of the potential for conflict. 

 Combating adversary deception efforts. 

 Countering adversary propaganda efforts. 
20

The news media and other information networks in the public information environment 

have a significant impact on military operations, national will, political direction, and national 

security objectives. Public affairs contribute to global influence and deterrence by making 

foreign leaders and populations aware of US capabilities and resolve. PA operations 

comprise a powerful capability that can be used to achieve far-reaching effects on an adversary, 

while defending friendly forces from an adversary’s efforts to manipulate the public information 

environment. Public affairs serve as the Air Force lead for the counterpropaganda mission 

in the public information environment by countering adversary propaganda and 

maintaining public support and trust for US military operations. 

 Maintaining an open dialogue with the news media communicates the leadership’s 

concern with the issues and allows the correct information to be placed in the public information 

environment and helps to satisfy the media’s near-constant desire for current information. PA 

operations provide truthful, timely, and accurate information, helping to stem media speculation 

and prevent the possibility of the media presenting only one side of the story—the adversary’s. 

This flow of information heightens public awareness and helps gain and maintain public support. 

The increased media attention may also place enormous pressures on foreign leaders and 

governments, affecting their decision-making processes. 

 Heightening adversary awareness of the potential for conflict by maintaining issue 

prominence in the public information environment helps focus national and international 

pressure on our opponents or would-be adversaries. Consistent interest is sometimes difficult to 

achieve because news media outlets must use their resources to gather stories of interest to 

readers and viewers. A lull in operations may result in disinterested media. To lessen the 

likelihood of disinterested media, PA operations should include news media in unit deployment 

preparations, expand the number of regional and hometown media involved, offer high-level 

spokespersons, provide strong visuals and offer opportunities to do and see things they otherwise 

would not—like embedding reporters with operational units. These efforts take careful planning 

and a clear understanding of the effect desired by keeping issues in the news. 

 PA operations also deliver a virtual force projection IFDO. While a common approach is 

to withhold information to prevent any possible degradation of planned or actual military 

operations, commanders should consider the possible advantages of releasing certain 

information—time-critical and truthful information—after proper security review to demonstrate 

US resolve, intent, or preparations. Rather than providing an advantage to an adversary, the 

carefully coordinated release of operational information in some situations can intimidate a rival 

government or adversary, deter conflict, and counter adversary propaganda while also 

maintaining or building support for military operations. 
21

 

 Operations security protects friendly forces by denying an adversary critical information 

about US or coalition operations. A critical information list of sensitive information and 

indicators is developed prior to a contingency to help ensure that deploying military personnel 

and embedded media are aware of information considered non-releasable. While dealing openly 

with the media and providing accurate information, Air Force personnel must ensure the release 

of information does not adversely affect national security or threaten the safety of US and 

coalition forces. Commanders should emphasize this approach, which protects sensitive 

information and enables PA operations to deliver their full potential. Embedded media may 

encounter classified information and should sign a nondisclosure agreement as part of their 

ground rules for being embedded. This method allows the reporter to truly become part of the 

unit, building understanding and knowledge which improves their work. Nondisclosure 

agreements also help to ensure the reporter does not deliberately disclose classified information. 

COUNTERPROPAGANDA 

 Counterpropaganda operations involve those efforts to negate, neutralize, diminish the 

effects of, or gain an advantage from foreign psychological operations or propaganda efforts. 

Numerous organizations and activities (e.g., intelligence, surveillance, and reconnaissance [ISR] 

operations; PA; or other military units and commanders) can identify adversary propaganda 

operations attempting to influence friendly populations and military forces. Commanders at all 

levels should integrate activities designed to disseminate truthful information; mitigate adversary 

messages; and disrupt, degrade, and disable adversary psychological operations. Such efforts 

might range from specific PA operations to convey accurate information to the targeted 

audiences and mitigate the intended effects of adversary psychological operations, to efforts to 

physically destroy adversary psychological operations resources and assets. 

 Public affairs serves as the Air Force lead for the counterpropaganda mission in the 

public information environment by countering adversary propaganda and maintaining public 

support and trust for US military operations. Gaining and maintaining the information initiative 

in a conflict can be a powerful weapon to defeat propaganda. Integrated use of PA operations 

and other IO capabilities to respond to collateral damage charges also represents a valuable tool 

As tensions grew in the days before the US launched Operation IRAQI

FREEDOM in 2003, the US publicly highlighted the devastating capabilities 

of its newest weapon—the Massive Ordnance Air Blast, or MOAB.

International media used the video images and information provided to tell the

story of one of the tools now in the US arsenal for use against Iraq and other

possible adversaries. The media called the weapon the “monster bomb” and

the “Mother of All Bombs,” sending a clear message of extraordinary

capability to the US population—and a strong, visual warning to would-be 

aggressors. The images and information did not result in a peaceful solution 

to the problems in Iraq but are an important piece of information thousands of

Iraqi soldiers may have used in their decisions to surrender. 

—Multiple Sources
22

for the commander. The commander must strive to gain and maintain the information initiative 

by rapidly providing truthful and accurate information to the public first. The first out with 

information often sets the context, frames the public debate, and often drives others into a 

reactionary stance in order to refute the information. It is extremely important to get complete, 

truthful information out first—especially information about friendly forces’ mistakes so that it is 

friendly forces that expose the errors and put them into accurate context. This helps to disarm 

adversary propaganda and defeat attempts by an adversary to exploit these mistakes for their 

propaganda value. Use of PA capabilities, such as AFRTS, to fully inform friendly forces about 

international, national, and internal events can help insulate friendly forces from the effects of 

adversary propaganda operations. 

 Adversaries of the US have used propaganda during many conflicts, and most 

propaganda activities play out through the domestic and international news media. While we 

may anticipate an adversary will twist information to suit their propaganda purposes against the 

US, our PA operations are truth-based, and will not intentionally misinform the US Congress, 

public, or media. 

 

PSYCHOLOGICAL OPERATIONS (PSYOP) 

 PSYOP is defined as “Planned operations to convey selected information and indicators 

to foreign audiences to influence their emotions, motives, objective reasoning, and ultimately the 

behavior of foreign governments, organizations, groups, and individuals. The purpose of 

psychological operations is to induce or reinforce foreign attitudes and behavior favorable to the 

originator's objectives.” (JP 1-02). Air Force PSYOP contribute to counterpropaganda missions 

by amplifying key themes and messages among foreign audiences, reaching populations in 

media markets inaccessible by PA operations, identifying adversary propaganda themes and 

methods, and providing psychosocial data on prospective target audiences. PA operations 

disseminate a continuous flow of trusted, reliable, timely, and accurate information to military 

and civilian Air Force people, their families, the media, and the public. This capability allows 

PA operations to help defeat adversary efforts to diminish national will, degrade morale, and turn 

world opinion against Air Force operations. Countering such messages from adversaries can be 

vital to successful operations and accomplishing mission objectives. 

 US policy prohibits PSYOP targeted at or intended to mislead or influence any US 

citizens whether within or outside the US. Under US law it is a crime to knowingly and willfully 

deceive Congress or any other US department or agency. Although PA operations may provide 

truth-based information that assists in countering adversary PSYOP, PA personnel do not engage 

in PSYOP. 

 Commanders should ensure PA operations are deconflicted with PSYOP. For example, 

PSYOP are designed to convey selected truthful information and indicators to foreign leaders 

and audiences with the goal of influencing their emotions, motives, reasoning, and behavior in a 

manner favorable to friendly objectives. PA operations communicate US resolve and 

commitment to international audiences in a manner that can shape the GIE and inform decision 

makers. PSYOP information and information prepared for public release must be coordinated to 

ensure the messages to the respective audiences are not contradictory. Public trust in and 
23

In late 1990, before the start of Operation DESERT STORM, US

amphibious training was conducted in the Persian Gulf. The training

demonstrated the US force's amphibious capability, as well as US and

Coalition resolve concerning the crisis. Inevitably, journalists asked if an

amphibious invasion was planned. In keeping with operational guidelines for

discussing information with the media, military officials wouldn't comment on

future operations. Even though an amphibious landing ultimately was not

conducted during Operation DESERT STORM, Iraqi perception of the US and

Coalition capability and resolve may have caused them to conclude that an

amphibious invasion was likely. As a result of their perception, Iraqi forces 

may have focused additional attention and resources that could have been

employed elsewhere to defend against an amphibious invasion that never

materialized. 

—DOD Final Report to Congress,

 Conduct of the Persian Gulf War, April 1992

support for the Air Force could be undermined or lost if the perception develops that a 

spokesperson attempted to deceive or lie to the public directly or through the media. Lying, or 

the perception of it, immediately degrades the effectiveness of military operations and destroys 

domestic and friendly-nation support. Not only is using false information in PA operations 

contrary to DOD policy and practice, but if false information were ever intentionally used in PA 

operations, the public trust and support for the Air Force could be undermined and the 

capabilities provided by PA operations would be degraded. 

 Commanders also should be aware that, in the GIE, the media and the US public could 

receive information related to military deception plans or efforts. Public affairs and military 

deception operations should be coordinated to ensure that credibility of US operations and 

communications is retained. Close coordination also can prevent the inadvertent compromise of 

a deception plan. PA operations can document displays of force but must not simulate force 

projection by using false information. 

ANALYSIS AND DISSEMINATION 

 PA operations’ analytical and dissemination capabilities make them integral to enhancing 

air, space, and information operations. The collection, analysis, and release of information about 

ongoing Air Force operations are part of the daily workload of activities such as public affairs, 

broadcasting, visual information, combat camera, and recruiting. PA personnel have keen 

awareness of the public information environment as a result of communications with the chain of 

command and analyzing media products from varied sources. Commanders can leverage this 

situational awareness to adjust their PA operations to increase public awareness of Air Force 

operations, capabilities, and resolve. The information analyzed and disseminated can help 

provide predictive awareness of the public information environment to warfighters, allowing 

them to preempt some effects of a crisis, frame the public debate, and make well-informed 

decisions. 
24

 Assessing the GIE and the effects from PA operations gives the commander a more 

comprehensive view. Multiple aspects of the GIE require analysis to enable effective operations. 

The international news media, international web sites, internet discussions, and coalition PA 

operations are just a few elements forming and impacting the GIE. PA personnel must 

understand the priorities and perspectives of key domestic and international audiences to 

effectively assess the GIE and the effects of PA operations. 

 PA personnel should be able to evaluate public communication in a way that enables 

them to assess PA effectiveness in achieving commander’s objectives. Well-written objectives 

and targeted data collection are necessary to analyze the effect and impact of PA activities. 

There are two general types of research: formative and evaluative research. Formative research 

provides the analysis necessary to plan PA activities. Evaluative research provides analysis of 

the effectiveness and efficiency of these activities. PA personnel should look to all feedback 

sources to assist in evaluating what additional information, messages, and programs are 

necessary to improve the effectiveness and efficiency of the PA activities. In some cases, this 

information will be readily available through the internet, print media, television, radio, or 

existing opinion research. In other cases, PA personnel may need to plan to fund media clip 

services, media translation, or commissioned focus groups or polls in order to obtain the required 

information. 

 PA operations also process information from past Air Force operations for use in current 

or projected operations. Lessons learned, after-action reports, historical records, and museum 

programs are the primary resources for analyzing and preparing information for dissemination 

about the historical activities of the Air Force. The integrated efforts of these activities often 

result in dissemination of historical information to assist commanders in achieving desired 

effects in the public information environment. 

 Air Force broadcasters, combat camera teams, and visual information centers make a 

significant contribution to this operations area by visual storytelling and documenting current 

operations and events. The combined efforts and resulting increased public awareness contribute 

to public trust and support, global influence and deterrence, and help enhance Airman 

morale/readiness. PA requires quality information products from various sources to execute PA 

operations (for example, weapon systems video, combat camera, visual information imagery, 

subject-matter experts for media interviews, etc.). The synergy possible from effectively 

assessing the GIE and deploying quality information in a timely manner through PA operations 

may have potent effects on the overall effort. 

 The products and programs from these analytical and dissemination efforts can provide 

unique avenues to help commanders foster public understanding and support for air and space 

operations. They also can be sources of information to help warfighters apply lessons from the 

past to current operations. 
25

CHAPTER FOUR 

OPERATIONAL ENGAGEMENT 

PA operations are continuously conducted across the entire range of military operations 

and conflict. The continuous planning, execution, and assessment of the broad range of PA 

operations enhance a commander’s ability to shape the information environment, achieve desired 

effects, and meet operational objectives. The basic principles, capabilities, and tasks of PA 

operations remain the same whether units are at home station or deployed—only the specific 

focus of the operations change. PA operations are most effective in war or contingencies when 

integrated with other information operations capabilities and are part of strategy development, 

planning, and execution phases of operations. 

With the important advice and assistance PA provides to senior leaders and commanders, 

they are assigned as part of the joint force air and space component commander’s (JFACC’s) or 

commander, Air Force forces’ (COMAFFOR’s) personal staff while deployed. Because PA 

operations can achieve asymmetric effects PA personnel are members of the commander’s 

personal staff, but should be fully integrated into the activities of the air and space 

operations center (AOC) and should coordinate and synchronize with the activities of the 

information warfare flight (IWF). PA personnel in the AOC and working with the IWF 

develop communication strategy and plans, and monitor current operations for time sensitive 

communication events (TSCE). TSCE are real-time events with the potential to impact the 

overall operation in a positive or negative fashion (e.g., collateral damage event, successful 

strike using a first-ever employed platform, fratricide incidents, etc.). PA expertise is essential to 

interpret events in the information environment and enhances the operational courses of action 

(COAs) available to commanders, particularly when fully integrated into the campaign plan. 

COMMAND RELATIONSHIPS WHILE DEPLOYED 

Air Force PA personnel at all levels are organized as part of the commander’s personal 

staff. One unique aspect of PA personnel and Air Force units assigned or attached to a unified or 

joint command is that they are subject to PA guidance from the Office of the Assistant Secretary 

of Defense for Public Affairs (OASD-PA) as well as from unified command guidance. As such, 

they must coordinate efforts through the PA staff of the joint force commander (JFC). In 

overseas theaters, each US embassy has a country team that oversees PA operations to ensure 

they support established country plan objectives. Many information operations are strategic in 

nature and require PA personnel, in coordination with OASD-PA, to work closely with the 

country teams throughout planning and execution phases. This close coordination of effort 

ensures operational key themes and messages and PA and IO objectives support US objectives 

and diplomatic efforts within affected foreign nations and prevent conflicting communication 

efforts or other unintended consequences. 

PA operations are most effective when backed by the authority and credibility of the 

COMAFFOR or JFACC. Subordinating PA operations to a lower command echelon is contrary 
26

to DOD and CJCS policy, reduces access to critical information, hampers reaction time and may 

degrade PA credibility with various public audiences and media organizations. Maintaining the 

direct relationship between the commanders and PA staff provides the best opportunities for 

success when employing PA operations. 

During joint operations, the supported command has operational control of assigned 

forces and specified operational/tactical control of attached forces. An overall PA operations 

communication plan should be developed by the joint community and reflected in the PA annex 

to the OPLAN or contingency plan. Separate but mutually supporting plans also should be 

developed for each component. 

Air component PA planners normally will prepare the PA annex to the OPLAN and 

determine the communications requirements, associated costs and equipment, and total number 

of PA personnel required in theater. Air component PA planners are responsible for ensuring PA 

plans support the JFC’s intent and objectives. They also are responsible for ensuring the 

integration of public affairs forces into the AOC and IWF. PA personnel who deploy to forward 

locations in support of air expeditionary wings, groups, or other Air Force units will usually 

report through their chain of command to receive functional support and guidance from the 

COMAFFOR PA or air component PA. 

The JFC will normally establish a joint information bureau (JIB) or coalition press 

information center (CPIC) to provide guidance and supervision for media operations to all 

supporting components. AFRTS is also usually established as a part of the JFC’s PA operations. 

AFRTS requirements must be identified to the joint PA planner as a part of the joint PA 

capability requirement (See JP 3-61, Doctrine for Public Affairs in Joint Operations). 

Unless the JIB or CPIC also establishes a command information function, unit internal 

information initiatives will normally be coordinated with the COMAFFOR PA staff and provide 

support for Air Force units in the forward area and at home. 

INTEGRATION WITH AIR AND SPACE OPERATIONS 

The JFACC/PA and the JFACC/PA plans officer provide the direct operational PA 

connection to the JFACC and joint air and space operations center (JAOC). The senior public 

affairs officer (PAO—also referred to as the PA Director) is responsible for planning and 

executing PA operations to support and achieve the desired effects necessary to accomplish the 

commander’s operational objectives. The senior PAO is part of the commander’s personal staff, 

serving as the PA representative to the air component commander. 

PA liaisons may be aligned in the IWF or the strategy, combat plans, or combat 

operations divisions of the AOC. These liaisons in the AOC and IWF serve in a 

planning/deconflicting capacity. Liaisons to AOC divisions/teams coordinate plans with the 

senior PAO. PA operations are executed by the PA operations cell. 

A subordinate PAO serves as the operations officer and oversees PA operations. This 

individual also serves as a liaison within the JAOC IO team. The operations officer and 
27

subordinate PA personnel conduct media operations, community relations, and internal 

information programs. These PA personnel are a key link in ensuring PA operations and other 

operations are at a minimum deconflicted and where possible, integrated or synchronized to 

achieve effects-based results. 

The PA plans officer is responsible to coordinate with the PAO and the JFACC/PA 

operations officer to work with the strategy division, IWF, and other specialty teams to 

coordinate, integrate, and synchronize effects-based PA planning to operational objectives, phase 

transitions, etc. The PA plans officer integrates PA capabilities into operational plans and 

communication tasking orders to achieve the commander’s objectives. 

The COMAFFOR/PA plans officer is responsible for planning, managing, and sustaining 

deployed PA personnel within the AOR to ensure the right PA capabilities are leveraged to meet 

the commander’s intent. Multiple air expeditionary wings, groups, and other Air Force units 

may exist subordinate to the COMAFFOR. Air Force PA personnel assigned to these units will 

receive functional support and guidance from the COMAFFOR/PA and PA plans officer. 

Additional PA officers are appointed as necessary to the combined staffs to manage joint 

information bureaus, media support cells, or command information operations. 

IO teams help integrate IO activities into joint air and space operations plans (see AFDD 

2-5, Information Operations, and JP 3-13, Joint Doctrine for Information Operations, for 

detailed discussion of IO specialty team responsibilities). IO specialty teams plan and develop 

IO COAs that support air and space operations. They also ensure the JFC’s IO effects and 

objectives are fully integrated in the joint air operations plan. 

Air Force public affairs Airmen were integrated into the CENTAF (Central

Air Forces) AOC at a level never seen before in Operation IRAQI FREEDOM. A

PA officer served as full-time liaison to the AOC Strategy and Combat Plans cells

for two weeks prior to the initiation of combat. During combat, two PA Airmen

served on the AOC floor at all times. These PA officers maintained a constant

situational awareness of planned actions and ongoing combat ops and shared that

information with Air Force and joint PA Airmen across the theater. This enabled

CFACC (combined forces air and space component commander) to anticipate,

preempt and effectively mitigate much of the enemy propaganda intended to

constrain air operations. PA integration in the AOC also increased accuracy and

reduced cycle times for responses to media queries and enhanced PA integration

with other elements of information operations. 

—CFACC/PA during Operation IRAQI FREEDOM, 2003
28

The success of a campaign plan may depend on the information superiority achieved by 

coordinating and integrating all IO capabilities into a seamless effort. The composition of IO 

specialty teams may vary based on the overall mission of the force, the role of IO in 

accomplishing the JFC’s objectives, and the adversary’s IO capability. 

While PA operations should be closely coordinated with the IO specialty team, the timely 

flow of information for release in the public information environment should not be impeded if it 

will have a detrimental effect. PA professionals directly advise the commander and deliver 

truthful time critical information to meet commanders’ desired effects. 

 

During every phase of contingency operations, PA specialists should be represented in 

the AOC and IWF. The training and experience of PA professionals in dealing with the public 

and news media make them a key to achieving the commander’s objectives related to the public 

information environment. The PA role in coordinating and deconflicting information is vital 

because PA personnel are the agents for releasing official information to the public and keeping 

Air Force audiences informed. 

The characteristics of the GIE demand synergy between PA operations and the ISR 

division. The ISR division is the organization within the AOC primarily responsible for 

battlespace awareness. Battlespace awareness is the result of continuous information gathering 

and analysis, using a variety of functions. The synergy between PA operations, which uses 

open-source information, and operations, which primarily uses classified information, is 

crucial to gaining and maintaining information dominance. Close coordination to promptly 

sanitize and release sensitive information without compromising sources or operations can be 

highly valuable for countering adversary propaganda, illuminating adversary deception or denial 

tactics and to highlight US precision, discrimination, and discretion. 

PA operators at any level must be prepared to work in any security environment. PA 

planners must have the clearances and unescorted access (where permitted) to all elements of the 

AOC, including intelligence, special access programs (SAP) or special access requirements 

(SAR) facilities. PA forces cannot provide trusted counsel to commanders on PA operations 

without clearances and access to the full operational picture. PA personnel must understand Air 

Force warfighting organization, concepts, and terminology as well as basic principles of 

During IRAQI FREEDOM, PA planners in the AOC worked with PSYOP

planners to develop news releases about Commando Solo broadcasts and leaflet

drops. The PA operations cell released information about PSYOP efforts to US and

international news media as PSYOP missions were executed, keeping the public

informed of PSYOP as they occurred. This approach preempted the enemy’s

attempts to counter the PSYOP missions, as well as keeping the US and

international audiences informed of coalition communication efforts directed at

enemy forces. 

—Multiple Sources
29

classifying information and foreign disclosure procedures. Not only does this enable PA 

operators to properly communicate Air Force information and capabilities, but it increases their 

usefulness and credibility with the public, commanders, and other Air Force disciplines and 

functions. 

PLANNING, DEPLOYMENT, EXECUTION, AND ASSESSMENT 

Effective PA operations planning must be fully coordinated with and integrated into the 

strategy development and planning processes from the outset to achieve synergy with other 

plans. The PA plan is an important annex within the air operations plan. PA personnel, 

particularly those at air component commands, must also work closely with the IO team to 

develop IO courses of action and plans that are fully integrated and deconflicted throughout the 

planning, deployment, execution, and assessment phases of a campaign. 

PA operations use a communication tasking order (CTO) to synchronize its units and 

personnel efforts and deliver PA capabilities. The CTO is developed by the JFACC/PA in 

coordination with the PA plans officer in the strategy division to communicate the themes, 

messages, and the desired effects to PA operators and Airmen. It states operational and tactical 

PA effects to be achieved, and may assign specific PA tasks to specific PA operations assets. 

The CTO is built and adjusted following the EBO model. Employing PA operations within the 

construct of EBO provides flexibility to adjust PA efforts, as effects and effectiveness are 

measured and operational situations change. PA staff executing a CTO report progress and 

status through situational reports (SITREPs). Specific information provided in these SITREPs 

allows the COMAFFOR/PA, JFACC/PA and PA plans officer to monitor current progress in 

meeting PA operational and tactical objectives, sustain current CTOs, or draft a new order for 

release. 

Planning 

Air Force PA operations, through direct-liaison authority, support informational 

objectives of the US national leadership, the DOD, federal agencies, state and civil authorities, 

combatant commands, joint task forces, major commands, and subordinate units. Planning for 

PA operations is driven by the DOD and must be conducted at all levels of command and for 

operations across the spectrum of conflict. OASD-PA and the JFC’s plans for PA operations 

We need to tell the factual story—good and bad—before others seed the media 

with disinformation and distortions, as they most certainly will continue to do. Our

people in the field need to tell our story. Only commanders can ensure the media get to

the story alongside the troops. We must organize for and facilitate access of national

and international media to our forces, including those forces engaged in ground

operations.... To accomplish this, we will embed media with our units. These embedded

media will live, work, and travel as part of the units ... to facilitate maximum, in-depth 

coverage. 

 —Memo from Secretary of Defense Rumsfeld, 

2003
30

guide efforts at lower echelons of command. Planning by subordinate units should be based on 

the assessed information needs and opportunities of their commands and should be consistent 

with the plans and objectives of higher commands. Responsibility for coordination and 

deconfliction of planning and operations rests with the subordinate command PA staff. 

Planning for PA operations is reflected in two types of documents: communications 

plans and OPLANS. Commanders oversee the development of communication plans, which 

should use all activities available to carry out PA operations. These plans focus on strategic and 

tactical communication. Strategic plans provide direction for long-range communication efforts 

concerning the organizational mission and objectives, while tactical plans direct communication 

on specific operations, events, or issues. In OPLANS, commanders should identify the tasks and 

resources required to achieve their informational and strategic communication objectives in a PA 

annex. PA planners should review OPLANS and consider all PA tasks (internal information, 

media operations, community relations, security review, and strategic communication planning) 

to achieve desired effects in the information battlespace. This consideration should include all 

products and resources available – internal print, web products, Hometown News, radio and 

television broadcasting (internal and AFRTS), visual information services, civic groups and 

community relations, combat camera documentation, and musical programs. PA issues and 

requirements should be included in all aspects of peacetime, wartime, and contingency planning. 

Particular attention should be paid to the role PA plays during transition into and out of wartime 

operations, as public opinion and support are especially important during these times. 

Deployment 

Personnel engaged in PA operations should be among the first people sent into a theater 

(situation permitting) when engaged in deployed operations. Positive and/or balanced media 

coverage at the outset of military action can rapidly influence public and political opinion 

and affect strategic decision making. Therefore, commanders should consider deploying PA 

personnel, visual information technicians, combat camera teams, and broadcast experts with the 

first units. They should deploy with the equipment needed to accomplish their missions to 

ensure timely, accurate reporting and documentation of the operation. PA operations should be 

closely coordinated to obtain a synergy of effect and avoid duplication of effort. These PA 

assets also can help the commander interpret the public information environment from the 

strategy development and planning phases to the start of an operation, propose public affairs 

courses of action appropriate for the situation, and adjust decision making accordingly. 

Execution 

Commanders ensure PA operations are able to support the range of contingencies, from 

bare-base operations to establishing a JIB or CPIC (the focal point for interface between military 

forces and the media in theater). The primary goal is to expedite the flow of accurate and timely 

information about the activities of US and coalition forces. 

Effective PA operations at the joint task force or unified command level may require 

close coordination between the US military, the Department of State (DOS), and other US 

government agencies. Normally, an executive order defines agency responsibilities, functions, 

and interagency relationships. Either the senior DOS representative or the JFC will be assigned 
31

overall responsibility for US activities in the area. PA operations can also, and often do, work in 

concert with agencies outside the Air Force, including other Services, coalition partners, 

government agencies, and private organizations. 

In foreign countries, the President normally acts through an ambassador or chief of 

mission, who relies on a country team comprised of representatives from various agencies 

assigned to the US embassy or mission. The country team is concerned with matters involving 

PA operations and other activities that may affect the attitudes of the host-nation population. 

Therefore, commanders should require coordination of major PA initiatives with the appropriate 

country team to ensure release of consistent information supporting US national interests and 

command objectives. 

Assessment 

Assessment of PA operations is fundamental to the EBO plan/execute/assess cycle. PA 

measures of effectiveness must be developed and integrated as a subset of commanders’ 

information measures of effectiveness used to gauge success in gaining information superiority. 

PA professionals should use classified and unclassified information sources to measure the 

effectiveness of their efforts in the public information environment and accordingly adjust their 

communication strategies to achieve the commander’s desired effects. The JFACC/PA staff 

should consider these factors when building the CTO operational and tactical PA objectives. 

Objectives should be clear, concise, and attainable—and therefore measurable. As with all 

assessment, there should be both near-term and long-range evaluation of success. This 

assessment folds back into the planning effort to ensure mid-course updates to the plan are 

properly executed. 

 
32

CHAPTER FIVE 

PUBLIC AFFAIRS READINESS 

GENERAL 

Training and education play an important role in preparing commanders and PA 

personnel for PA operations and in integrating PA capabilities with air, space, and information 

operations. Leaders should, at a minimum, have a broad understanding of the principles, 

capabilities, and tasks used during PA operations and related activities. In addition, commanders 

must know how PA operations contribute to information superiority through IO planning. 

Commanders should integrate PA operations in all major exercises and wargames to build 

awareness of the role all Airmen have in PA operations. PA operators must be trained and 

educated about how PA operations integrate, complement, and enhance air, space, and 

information operations, and have a keen understanding of effects-based operations. To be 

effective, PA operators must have the appropriate security clearances to allow them access to 

operational information and IO collaborative tools. PA operators must be trained and proficient 

in strategy development and planning processes. 

TRAINING 

PA operators should be trained in their specialty areas to ensure they are ready and 

capable to perform PA tasks. They should be trained in IO planning and employment to ensure 

PA capabilities are appropriately and fully incorporated by the warfighter. 

Commanders may also require specific PA training. As the leader of PA operations, the 

commander is responsible for communicating the unit’s vision, mission, and objectives to its 

people and the public. The commander requires a thorough understanding of the information 

environment as well as the capabilities, functions and fundamentals of PA operations. The 

commander’s PA staff is responsible for providing the commander with needed PA training, 

although there are also several Air University courses for commanders that provide additional 

PA training. Commanders also may require media training so they understand guidelines on the 

release of information and develop interview strategies and skills needed to excel in media 

engagements. Media training is available through major command PA staffs and the Secretary 

of the Air Force Office of Public Affairs. In addition, commanders may benefit from just-intime training provided by their PA staff prior to meeting the media. This training prepares them 

with themes, strategies, and techniques for the interview environment. It also readies them to 

effectively articulate their responses and capitalize on questions, even those of a sensitive nature. 

Finally, PA operations and media issues should be added to exercises at all levels, where 

possible. Incorporating PA operations and media issues into exercises provides commanders, 

staffs, planners, and PA personnel the opportunity to exercise conducting PA operations and 

addressing PA or media issues that are likely to occur during military operations. 
33

EDUCATION 

The Air Force incorporates relevant aspects of PA into developmental education 

programs and products because each Air Force person has a role to play in PA operations. 

Education in PA operations prepares Airmen to represent the Air Force to the 

public and achieve desired information effects. Military operations often receive intense 

media attention, and PA awareness and media engagement training help Airmen fully understand 

that the decisions they make, what they say, and what they do can have immediate and lasting 

implications on the mission. 

Developmental education pursued at the appropriate time by officers, enlisted members 

and civilians provide a broader understanding of the role of PA in Air Force operations. 

Developmental education courses teach the effects of public information on military operations 

and the importance of integrating PA operations into strategy development and plans. These 

lessons are effectively applied and learned when PA operations are integrated into exercises and 

wargames. Courses that offer this education are taught through Air University; the College of 

Aerospace Doctrine, Research and Education (CADRE); and the CADRE Air Force Wargaming 

Institute. 

Every Airman should understand that PA operations are integral to air, space, and 

information operations. Additionally, all PA personnel should have a solid understanding of Air 

Force operational concepts, organizational structure, and terminology to enable accurate 

communication of the Air Force story and establish credibility with the public, commanders, and 

other operational personnel. 

RESOURCES 

PA operations must be resourced to succeed in the modern GIE. Its equipment must be 

of the highest possible quality and functionality to quickly project the Air Force story from any 

deployed location. PA operators must also be equipped to synchronize and interact with other 

Air Force functions in the classified voice and data environments to ensure PA capabilities are 

quickly and effectively leveraged to achieve the commander’s desired effects. 

PA planners should avoid duplicating available work done by other government agencies 

or the private sector in assessing the public information environment. However, accurate 

assessment of the public information environment may require the further commitment of 

additional resources to collect, translate, and analyze media content or to research public 

awareness, attitudes, and behaviors through focus groups or surveys. 

Modern global communications technology has ushered in a new era, shifting values 

about warfare across the geopolitical landscape. Effects-based operations fundamentally 

transform Air Force PA operations to capitalize on these changes and develop flexible 

capabilities to achieve desired national security effects. The DOD depends on the Air Force to 
34

deliver information superiority for the US, making PA an integral and crucial part of air, space, 

and information operations. 
35

Suggested Readings 

AIR FORCE DOCTRINE PUBLICATIONS: 

(NOTE: ALL AIR FORCE DOCTRINE DOCUMENTS ARE AVAILABLE ON THE AIR 

FORCE DOCTRINE CENTER WEB SITE: HTTPS://DOCTRINE.AF.MIL) 

AFDD 1, Air Force Basic Doctrine

AFDD 2, Operations and Organization 

AFDD 2-4, Combat Support 

AFDD 2-5, Information Operations

AFDD 2-9, Intelligence, Surveillance, and Reconnaissance Operations 

JOINT PUBLICATIONS: 

(NOTE: ALL JOINT DOCTRINE PUBLICATIONS ARE AVAILABLE ON THE JOINT 

ELECTRONIC LIBRARY SITE: HTTP://WWW.DTIC.MIL/DOCTRINE) 

JP 3-13, Joint Doctrine for Information Operations

JP 3-53, Doctrine for Joint Psychological Operations

JP 3-54, Joint Doctrine for Operational Security

JP 3-58, Joint Doctrine for Military Deception

JP 3-57, Joint Doctrine for Civil-Military Affairs 

JP 3-61, Doctrine for Public Affairs in Joint Operations

OTHER PUBLICATIONS 

DOD Directive 5122.5, Principles of Information

27 September 2004 CJCS Memo: “Policy on Public Affairs Relationship to Information 

Operations” 
36

APPENDIX 

DODD 5122.5, Assistant Secretary of Defense for Public Affairs (ASD(PA)) 

27 September 2000, Enclosure 2 

E2. ENCLOSURE 2 

PRINCIPLES OF INFORMATION 

E2.1. INFORMATION 

It is DOD policy to make available timely and accurate information so that the public, the 

Congress, and the news media may assess and understand the facts about national security and 

defense strategy. Requests for information from organizations and private citizens shall be 

answered quickly. In carrying out that DOD policy, the following principles of information shall 

apply: 

E2.1.1. Information shall be made fully and readily available, consistent with statutory 

requirements, unless its release is precluded by national security constraints or valid statutory 

mandates or exceptions. The "Freedom of Information Act" will be supported in both letter and 

spirit. 

E2.1.2. A free flow of general and military information shall be made available, without 

censorship or propaganda, to the men and women of the Armed Forces and their dependents. 

E2.1.3. Information will not be classified or otherwise withheld to protect the Government from 

criticism or embarrassment. 

E2.1.4. Information shall be withheld when disclosure would adversely affect national security, 

threaten the safety or privacy of US Government personnel or their families, violate the privacy 

of the citizens of the United States, or be contrary to law. 

E2.1.5. The Department of Defense's obligation to provide the public with information on DOD 

major programs may require detailed Public Affairs (PA) planning and coordination in the 

Department of Defense and with the other Government Agencies. Such activity is to expedite the 

flow of information to the public; propaganda has no place in DOD public affairs programs. 

DODD 5122.5, Sep. 27, 2000 

 ENCLOSURE 2
37

Glossary 

ABBREVIATIONS AND ACRONYMS 

AB air base 

ACS agile combat support 

AF Air Force 

AFDD Air Force doctrine document 

AFFTC Air Force Flight Test Center 

AFRTS American Forces Radio and Television Service 

AOC air and space operations center 

AOR area of responsibility 

CADRE College of Aerospace Doctrine Research and Education 

CFACC combined force air component commander (JP 1-02); combined 

force air and space component commander (USAF)

CFACC/PA combined force air component commander/public affairs (JP 1-

02); combined force air and space component commander/public 

affairs (USAF)

CIA Central Intelligence Agency 

COA course of action 

COMAFFOR commander, Air Force forces 

CPIC coalition press and information center 

CTO communication tasking order 

DOD Department of Defense 

DODD Department of Defense directive 

DOS Department of State 

EBO effects-based operations 

FDS foundational doctrine statement 

GIE global information enviroment 

IFDOs informational flexible deterrent options 

IO information operations 

ISR intelligence, surveillance and reconnaissance 

IWF information warfare flight 

JAOC joint air operations center (JP1-02), joint air and space operations 

center (USAF)

JCS Joint Chiefs of Staff 

JFACC joint force air component commander (JP 1-02); joint force air and 

space component commander (USAF)

JFC joint force commander 
38

JIB joint information bureau 

JTF joint task force (JP 1-02) 

JSCP joint strategic capabilities plan 

LOAC law of armed conflict 

OPSEC operations security 

MOAB massive ordnance air blast 

NATO North Atlantic Treaty Organization 

OASD-PA Office of the Assistant Secretary of Defense for Public Affairs 

OPLAN operations plan 

PA public affairs 

PAO public affairs officer 

PSYOP psychological operations 

RAF Royal Air Force 

ROE rules of engagement 

SAP special access program 

SAR special access requirement 

SITREP situation report 

TSCE time-sensitive communication event 

US United States 

USAFE United States Air Forces Europe 

DEFINITIONS 

battlespace The environment, factors, and conditions which must be understood to 

successfully apply combat power, protect the force, or complete the mission. This 

includes the air, land, sea, space, and the included enemy and friendly forces, facilities, 

weather, terrain, the electromagnetic spectrum; and information environment within the 

operational areas and areas of interest. (JP 1-02) [The commander’s conceptual view of 

the area and factors which he must understand to successfully apply combat power, 

protect the force, and complete the mission. It encompasses all applicable aspects of air, 

sea, space, and land operations that the commander must consider in planning and 

executing military operations. The battlespace dimensions can change over time as the 

mission expands or contracts, according to operational objectives and force composition. 

Battlespace provides the commander a mental forum for analyzing and selecting courses 

of action for employing military forces in relationship to time, tempo, and depth.] [Air 
39

Force Glossary] {Italicized definition in brackets applies only to the Air Force and is 

offered for clarity.}

effect A full range of outcomes, events, or consequences of a particular action or set of 

actions. The action can derive from any element of power—economic, political, military, 

diplomatic, or informational—and may occur at any point across the continuum from 

peace to global conflict. (AFDD 2-1.2)

effects based Actions, such as operations, targeting, or strategy, that are designed to 

produce distinctive and desired effects while avoiding unintended or undesired effects. 

(AFDD 2-1.2) 

fusion In intelligence usage, the process of examining all sources of intelligence and 

information to derive a complete assessment of activity. (JP 1-02) 

global information environment All individuals, organizations or systems that collect, 

process and distribute information. (AFDD 2-5.3) 

influence operations Employment of capabilities to affect behaviors, protect operations, 

communicate commander’s intent, and project accurate information to achieve desired 

effects across the cognitive domain. These effects should result in differing behavior or a 

change in the adversary decision cycle, which aligns with the commander’s objectives.

(AFDD 2-5) 

information 1. Facts, data, or instructions in any medium or form. 2. The meaning that a 

human assigns to data by means of the known conventions used in their 

representation.(JP 1–02) 

information operations. Actions taken to affect adversary information and information 

systems while defending one's own information and information systems. Also called IO. 

(JP 1-02) [Information operations are the integrated employment of the core capabilities 

of influence operations, electronic warfare operations, network warfare operations, in 

concert with specified Integrated Control Enablers, to influence, disrupt, corrupt or 

usurp adversarial human and automated decision making while protecting our own.] 

(AFDD 2-5) {Italicized definition in brackets applies only to the Air Force and is offered 

for clarity.}

information superiority That degree of dominance in the information domain which 

permits the conduct of operations without effective opposition.(JP 1-02). The Air Force 

prefers to cast ‘superiority’ as a state of relative advantage, not a capability, and views 

information superiority as: [The degree of dominance in the information domain which 

allows friendly forces the ability to collect, control, exploit, and defend information 

without effective opposition.] (AFDD 2-5) {Italicized definition in brackets applies only 

to the Air Force and is offered for clarity.}
40

joint force air component commander. The commander within a unified command, 

subordinate unified command, or joint task force responsible to the establishing 

commander for making recommendations on the proper employment of assigned, 

attached, and/or made available for tasking air forces; planning and coordinating air 

operations; or accomplishing such operational missions as may be assigned. The joint 

force air component commander is given the authority necessary to accomplish missions 

and tasks assigned by the establishing commander. Also called JFACC. (JP 1-02) 

kinetic actions. Those actions taken through physical, material means like bombs, 

bullets, rockets and other munitions. (AFDD 2-1.9) 

non-kinetic actions. Those logical or behavioral actions such as computer network 

attack on an enemy system or a psychological operation aimed at enemy troops. While 

non-kinetic actions have a physical component, the effects they impose are mainly 

indirect—functional, systemic or psychological. (AFDD 2-1.9) 

operational level of war The level of war at which campaigns and major operations are 

planned, conducted, and sustained to accomplish strategic objectives within theaters or 

other operational areas. Activities at this level link tactics and strategy by establishing 

operational objectives needed to accomplish the strategic objectives, sequencing events 

to achieve the operational objectives, initiating actions, and applying resources to bring 

about and sustain these events. These activities imply a broader dimension of time or 

space than do tactics; they ensure the logistic and administrative support of tactical 

forces, and provide the means by which tactical successes are exploited to achieve 

strategic objectives. (JP 1-02) 

propaganda Any form of communication in support of national objectives designed to 

influence the opinions, emotions, attitudes, or behavior of any group in order to benefit 

the sponsor, either directly or indirectly. (JP 1-02) 

public affairs Those public information, command information, and community relations 

activities directed toward both the external and internal publics with interest in the 

Department of Defense. Also called PA. (JP 1-02) 

public information environment All individuals, organizations or systems that collect, 

process and disseminate information for public consumption. (AFDD 2-5.3) 

psychological operations Planned operations to convey selected information and 

indicators to foreign audiences to influence their emotions, motives, objective reasoning, 

and ultimately the behavior of foreign governments, organizations, groups, and 

individuals. The purpose of psychological operations is to induce or reinforce foreign 

attitudes and behavior favorable to the originator’s objectives. Also called PSYOP. (JP 

1-02) 
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strategic communication The planning, execution, and assessment of integrated and 

coordinated US Government themes and messages that advance US interests and policies 

through a synchronized interagency effort supported by public diplomacy, public affairs, 

and military information operations in concert with other political, economic, information 

and military actions. (AFDD 2-5.3) 

strategic level of war The level of war at which a nation, often as a member of a group 

of nations, determines national or multinational (alliance or coalition) security objectives 

and guidance, and develops and uses national resources to accomplish these objectives. 

Activities at this level establish national and multinational military objectives; sequence 

initiatives; define limits and assess risks for the use of military and other instruments of 

national power; develop global plans or theater war plans to achieve these objectives; and 

provide military forces and other capabilities in accordance with strategic plans. (JP 1-

02) 

tactical level of war The level of war at which battles and engagements are planned and 

executed to accomplish military objectives assigned to tactical units or task forces. 

Activities at this level focus on the ordered arrangement and maneuver of combat 

elements in relation to each other and to the enemy to achieve combat objectives. (JP 1-

02) 

Web log (weB LOG or BLOG) Web page that serves as a publicly accessible personal 

journal for an individual. Typically updated daily, blogs often reflect the personality of 

the author. (source: webopedia.com. http://sbinfocanada.about.com/cs/blogarticles/f/ 

blogdef.htm)