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Security Assistance Planning for Equipping the ROYG Armed

ServicesOffice of Military Cooperation

SOC-Forward

NAVCENT

YEMEN

August 2010

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Purpose / Agenda

• Purpose: Unity of effort and strategic plan for equipping the units of the MoD & MoI with FMF, 1206, & 1208 (& 1203).

• Agenda:– Current Guidance

– Proposed Capability Packages– Preview of FY11 FMF and Section 1203– Path Forward

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OMC-SA Strategic Objectives

• From COM FY11 Yemen Mission Strategic Plan (MSP):– Goal #1: Yemen Is a Stable State Where Violent Extremists

Cannot Operate• Performance Indicator #1: Violent extremists cannot operate in Yemen

– FY 2011 Target: The ROYG demonstrates the political will to use its counter-terrorism strike capability and pursue extremists in all tribal areas, resulting in a 10% increase in the number of CT raids in the areas outside of major cities in comparison to FY2010. In support of the expanded effort, FID assistance increases...

– Goal #2: Yemen Limits the Regional Impacts of Terrorism, Trafficking, and Piracy

• Performance Indicator #1: Yemen conducts effective military and police operations to curtail piracy and maritime terrorism

– FY 2011 Target: Piracy in the Gulf of Aden abates by 25% from 2010 levels in the face of international action, including participation by YNAV and YCG. …10% increase in arrests of terrorists and smugglers over 2010 levels…

• Performance Indicator #2: The flow of weapons, drugs, terrorists and foreign fighters across Yemeni borders declines

– FY 2011 Target: …A multi-agency coordination and communication center is created, linking all Yemeni border forces. Installation of electronic fencing along the land borders between exit/entry points begins. A quick reaction force is created to monitor areas between land border entry/exit points…

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FY11 Prioritized List of Capability Packages

Package Recipient Est. Cost

1. Yemen Counterterrorism Aviation Support

YSOF CT Aviation Squadron

$99M (incl. STOL a/c)

2. Yemen Counterterrorism Direct Action Force Support

YSOF HMFYSOF MCTBPres Guard

$7M

3. Yemen Navy Operations Support and Capacity Building

YNAV $41M

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Package #1: Yemen Counterterrorism Aviation Support

• Cost: Approx $99M• Capability Improvement: Establishment of a dedicated aviation unit in

support of the Counterterrorism mission. Increased ability to project and support Yemen SOF forces into terrorist safe havens and prohibitive parts of the country.

• Purpose: Project force, attack targets, and disrupt AQAP.• Package Details:

– 2 Mi-17/171 rotary wing aircraft w/ secure comm suite– 1 Short Takeoff & Landing (STOL) fixed wing aircraft**– PLUS 2-year Total Package support (training, spares, etc.) for all aircraft– Key parts & limited base servicing equipment for up to 4 additional Mi-171 aircraft– On-site U.S. training/assistance teams– 2 English language labs

• Risks/Issues: Requires continued commitment from ROYG to establish this dedicated unit and provide resources to operate and sustain these aircraft. Risk of capability being used to intercede against Houthi Rebels or Southern Secessionists, or for other purposes counter to U.S. interests.

** Assuming the aircraft IS NOT provided as part of FY10 Security Assistance ($35M)5

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Package #2: Yemen Counterterrorism Direct Action Force Support

• Cost: Approx $7M• Capability Improvement: Increased ability to defend

against terrorist attacks and project force against land and littoral targets.

• Purpose: Disrupt AQAP attacks. Project force and attack targets.

• Package Details:– Personal & team gear/weapons for YSOF Maritime

Counterterrorism Battalion (MCTB)– Tactical gear for YSOF Hard Mission Force (HMF)– Personal & protective gear for Presidential Guard– IED “jammer” systems for Presidential Guard

• Risks/Issues: Risk of weapons/ammo being used to intercede against or intimidate Houthi Rebels or Southern Secessionists, or for other purposes counter to U.S. interests.

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Package #3: Yemen Navy Operations Support and Capacity Building

• Cost: Approx $41M• Capability Improvement: Increase in YNAV capability to patrol territorial

waters off 2500km coastline and ability to respond to significant maritime threats and targets. Increased YNAV ability to support Coalition and international counter-piracy efforts.

• Purpose: Interdict the smuggling of weapons, terrorists, and the terrorism funding supplied by narcotics, human trafficking, and piracy.

• Package Details:– 1 110-ftSwiftship patrol boat w/ secure comm gear & weapons package– 2 secure comm C2 base stations w/MIRC chat– PLUS 2-year Total Package support (training, spares, etc.)– 6 night vision binoculars**– Maintenance training labs or courses for major ship mechanical and electrical

systems

• Risks/Issues: Requires commitment from YNAV to provide resources to operate, dock, and sustain this ship. Requires commitment from YNAV to work cooperatively (and transparently) with the YCG and Coalition forces on coastal patrols and interdiction.

** NVDs may require Country Team assessment & Enhanced End-Use-Monitoring

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Preview of FY11 FMF

• Approved by Country Team ($35M total):

– English Language ($2M)

– 2 CH-46E helicopters ($10M)

– 1 F-5 aircraft ($5M)

– CTU Expansion ($6M)

– YSOF Expansion ($6M)

– Parts & training for YCG ($2M)

– Engines & parts for YNAV ($2M)

– YAF Mobile Training Team ($1M)

– Spare parts for YAF aircraft ($1M)

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• Potential Adjustments:– YSOF vehicle maintenance and

support (HMMWVs, ILAVs, cargo vehicles)

– Mobile Hoist assembly and/or pier construction

– 4 Huey II helicopters, plus FLIR and fuel bladders

– YAF C-130 depot maintenance (PDM) cycle

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1203 Package: Yemen Coast Guard Operations Support and Capacity Building

• Cost: Approx $16M• Capability Improvement: Dramatic increase in YCG capability to patrol

littoral areas of 2500km coastline and ability to respond from remote YCG outposts.

• Purpose: Interdict the smuggling of weapons, terrorists, and the terrorism funding supplied by narcotics and human trafficking.

• Package Details:– 62 4x4 light duty vehicles (SUVs) w/ secure comm gear– 12 secure comm C2 base stations– 22 fuel trucks & 12 water trucks– 26 fuel storage tanks w/ transfer equipment– 130 night vision binoculars**– 1 diesel engine maintenance training lab– PLUS 2-year Total Package support (training, spares, etc.)

• Risks/Issues: Requires commitment from YCG to provide resources to operate and sustain this fleet. Risk of capability being used to intercede against Southern Secessionists or for other purposes counter to U.S. interests.

** NVDs may require Country Team assessment & Enhanced End-Use-Monitoring9

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Path Forward / Actions

1. Round 1 coordination with POL (Complete)2. Meet with the CDA3. Submit proposal paperwork to USCENTCOM NLT 18

Aug4. Leahy certifications against recipient units5. Round 1 coordination with USCENTCOM, DSCA,

and Implementing Agencies6. Draft COM cable for 1206 advocacy7. Pre-coordination with recipient ROYG units

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Backup

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Security Assistance Overview

• Of the many types of security assistance programs, the three most prevalent employed in Yemen** are Foreign Military Financing (FMF) non-repayable loan/grants , “Section 1206” [of the National Defense Authorization Act] for building capacity of foreign military forces to conduct counterterrorist or stability operations, and International Military Education and Training (IMET). Given the state of the Yemen economy, almost all Security Assistance materiel and services supplied to Yemen comes out of U.S. Government appropriated funds, as opposed to Foreign Military Sales (FMS) or other reimbursable programs.

** Proposed “Section 1203” not addressed here

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DoD Guidance for Section 1206

• Section 1206 authority by law has discrete uses: (1) “To build the capacity of a foreign country’s national military forces in order for that

country to— (A) conduct counterterrorism operations; or (B) participate in or support military and stability operations in which the United States Armed Forces

are participating.

(2) To build the capacity of a foreign country’s maritime security forces to conduct counterterrorism operations.”

• Section 1206 differs fundamentally from State Department programs like FMF. Maintaining these distinctions is one of the main reasons Congress provided 1206.

− Speed to meet urgent and emergent requirements was key when creating 1206 given the fluid situation in many parts of the world.

− Even more fundamental than speed, however, 1206 addresses Combatant Commanders’ military requirements to build capacity of partners to execute certain CT or stabilization missions for which they are responsible. DoD must be willing to pay to meet military requirements, but all 1206 decisions are “dual key” to ensure they accord with U.S. foreign policy objectives overseen by the Secretary of State.

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FMF Summary

• Foreign Military Financing grants and “donations” of Excess Defense Articles (EDAs) provided over $105M worth of materiel to the Republic of Yemen Government (ROYG) from FY02-FY08, including aircraft and ship parts and maintenance equipment, 2.5 ton military cargo trucks, M16 and M60 machine guns, ammunition, armored personnel carriers and HMMWVs, vehicular parts and maintenance equipment, marine hoists and pier, and 25’/42’ fast response boats. FMF was funded at $2.8M for FY09, $12.5M for FY10, and is projected at $35M for FY11. This covers the following types of materiel/services for the stated ROYG customers:

• – Ministry of Defense (MoD) Yemen Special Operations Forces (YSOF): small

arms, sniper rifles, ammunition, body armor, night vision devices, U.S. team training

– MoD Yemen Air Force (YAF): C-130, F-5 and Bell helicopter aircraft parts and maintenance, U.S. team training, English language labs

– Ministry of Interior (MoI) Yemen Coast Guard (YCG): Ford transport vehicles, small arms, ammunition, body armor, training in the U.S.

– MoI Counterterrorism Unit (CTU): armored personnel carriers, night vision devices, small arms, ammunition, medical supplies, body armor, secure comm gear, training

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Section 1206 Summary

• Section 1206 funding for Yemen has been authorized since program inception in FY06. Approximately $97M was spent from FY06-09; $155.3M is being executed in FY10; the FY11 request has yet to be submitted. This covers the following types of materiel/services for the stated ROYG customers:– MoD YSOF: 50 HMMWVs, small arms, ammunition, tactical

comm., individual equipment– MoD YAF: 4 medium-lift helicopters, helicopter parts, and

support; 1 fixed-wing medium airlift transport– MoD Border Guard: 350 Ford 4x4 patrol vehicles, secure

communications gear– Presidential Guard: 4 Mine Resistant Ambush Protected

(MRAP) vehicles, tactical comm– MoI YCG: two 87’ Protector Class (deep water) boats, tactical

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IMET Summary

• The International Military Education and Training (IMET) program was funded at $1.0M for FY09, $1.1M for FY10, and is projected at $1.1M for FY11. This covers expenses for 20-25 Yemen military students to attend various schools in the U.S. such as the Armed Forces’ academies, Command & Staff Colleges, and War Colleges; National Defense University; and English language and technical schools. This program is considered a very effective return on investment in terms of partnering and advancing U.S. diplomatic or policy goals.

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Section 1206 Funding Cycle

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Solution Types

• Breakout– Revolutionary change to the conduct of warfare– Multiple times increase in capability over existing systems– Technological innovation/leap

• Incremental– A capability achieved through

• Evolution of an existing capability• Modification of an existing weapon system

• IT System– A capability developed and deployed using information technology

• Non-Materiel Change– Employs existing capabilities in alternate ways to accomplish the mission

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CBA Analysis – How Much is Enough?

Low MediumRigor

JROCGap Analysis/CBA

MDASolution Analysis/AoA

Low Medium HighRigor

Recap IT Capability

Incremental Improvement

Breakout Capability

HMMWV Build more Predators

Improve sensor

Space Radar

MDA = Milestone Decision Authority

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“Relevant but imperfect” analysis not “perfect but irrelevant” analysisComponent responsible for determining depth of analysis and defending results

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One Process to Avoid

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Buy Shiny New Toy

Receive Shiny

New Toy

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Proposed Yemen SA Planning Cycle

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COM’s Mission Strategic Plan

CENTCOM’s Country Plan

MoD YSOF – SOC Fwd

MoI CTU – SOC Fwd

MoD Border Gd - SOC

Fwd

Pres Grd - SOC Fwd

MoD YAF – OMC

MoD DMI - OMC

MoI YCG – NAVCENT

MoD YNAV – NAVCENT

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Proposed Yemen SA Planning Cycle

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COM’s Mission Strategic Plan

CENTCOM’s Country Plan

MoD YSOF – SOC Fwd -- Force Application? (weapons, ammo, IPE, etc.)

-- Force Enhancement? (Intel, C3, GPS, etc.)

-- Force Projection? (transport, airlift, ships, etc.)

-- Force Support? (logistics, facilities, training, manpower, etc.)

-- Political will and backing?

-- What the ROYG wants

-- Support from other countries

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Budgeting & Procurement Considerations

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Buy Shiny New Toy+ Spares,

Manuals, Trng

Operations & Maintenance

-- Personnel

-- Facilities, Consumables/Ammo, Repairs, Parts, Inspections, Preventive

Maintenance, Cleaning/Restoration,

Calibrations, Upgrades

TIME

CO

ST

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Budgeting & Procurement Considerations

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Buy Shiny New Toy+ Spares,

Manuals, Trng

Operations & Maintenance

-- Personnel

-- Facilities, Consumables/Ammo, Repairs, Parts, Inspections, Preventive

Maintenance, Cleaning/Restoration,

Calibrations, Upgrades

1206 $$$($100+M)

Buy Shiny Toys

+ Spares, Manuals, Trng

TIME

CO

ST

Other Trng

Buy Toys

FMF $$$(~$10-30M)

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Buy Shiny New Toy

Buy Shiny New Toy

Budgeting & Procurement Considerations

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Buy Shiny New Toy

Buy Shiny New Toy Buy Shiny

New Toy

Buy Shiny New Toy

Buy Shiny New Toy

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YEMEN SA SUPPORT

FY07 FY08 FY09 FY10 FY11

FMF $9.7M $4.2M $2.8M $12.5M $35.0M**

1206 $26.0M ----- $67.3M $155.3M $TBD

1203** $75.0M**

** Requested