text: Chapter 1
  unity of effort could be a military commander and a civilian leader ensuring that governance and economic
  lines of effort are fully coordinated with military operations. Unity of effort among nationally, culturally,
  and organizationally distinct partners is difficult to maintain, given their different layers of command. To
  achieve unity of effort requires participants to overcome cultural barriers and set aside parochial agendas. It
  also requires that each organization understand the capabilities and limitations of the others.
  COORDINATION
  1-52. In counterinsurgency operations, coordination efforts should include key participants from the outset.
  The joint commander, through the strategic concept, works with the engaged civilian organizations to build
  an interagency coordination plan during the joint operation planning process. Subordinate joint force
  commanders and Army commanders also build civilian organization participation into their operations
  plans. This is essential in integrating other government agencies and NGOs. Within an area of
  responsibility and a joint operations area, appropriate decisionmaking structures are established at
  combatant command, joint task force headquarters, and tactical levels in order to coordinate and resolve
  military, political, and humanitarian issues.
  1-53. The complex diplomatic, informational, military, and economic context of insurgency and
  counterinsurgency precludes military leaders from exercising unity of command over civilian
  organizations—and they should not try to do so. Interagency partners, NGOs, and private organizations
  have many interests and agendas that military forces cannot control. In addition, the degree of
  independence of local institutions affects their legitimacy to the population. However, military leaders
  should make every effort to ensure that counterinsurgency actions are as well integrated as possible, taking
  into consideration the distinct mission, need for independence, and security requirements of other
  organizations. Coordination between the various actors in a counterinsurgency is essential.
  1-54. U.S. government agencies should participate in coordination meetings to ensure integration with
  military and host-nation plans. At the joint headquarters level, the commander establishes joint interagency
  coordination groups. A joint interagency coordination group provides timely, usable information and
  advice from an interagency perspective to the commander. Joint interagency coordination groups share and
  integrate information and assist with synchronization, training, and exercises. Joint interagency
  coordination groups may include representatives from other federal departments and agencies, state and
  local authorities, and liaison officers from other commands and DOD components. The interagency
  representatives and liaison officers are the subject matter experts for their respective agencies and
  commands. They provide the critical bridge between the commander and interagency organizations. (See
  JP 3-08 for more information on joint and interagency coordination.)
  1-55. Coordination between NGOs may be difficult or impossible. Direct interaction among various
  organizations may be impractical or undesirable because of various goals of NGOs and a NGO’s desire to
  be seen by the society as autonomous. The differing goals and fundamental independence of NGOs and
  local organizations usually prevent formal relationships governed by command authority. In the absence of
  such relationships, military leaders seek to cooperate with other participants to contribute to achieving
  counterinsurgency objectives. Informal or less authoritative relationships include coordination and liaison.
  Basic awareness and general information sharing may be all that is possible. Nevertheless, NGOs and other
  organizations may resist or refuse cooperation because of the appearance of cooperating with military
  forces. However, government and internal agencies offer links to the various NGOs so coordination can be
  accomplished without directly interacting with NGOs and causing potential security issues for them.
  1-56. Commanders are responsible for coordinating the activities of military forces and cooperative
  nonmilitary organizations in their areas of operations. To carry out this responsibility, military and civilian
  leaders may establish a coordinating structure, such as an area coordination center or civil-military
  operations center at each subordinate political level of the host-nation government. Area coordination
  centers and civil-military operations centers provide forums for sharing information, conducting
  coordination and liaison, and ensuring an effective and efficient division of labor. Active commander
  involvement ensures coordination, establishes liaison (formal and informal), and shares information.
  Influencing and persuading groups outside a commander’s authority requires skill and subtlety. In some
  cases, informal meetings with a civilian group at a civil-military operations center will grow to an informal