text: Chapter 2
  relationships, partner military capacity and capabilities for internal and external self-defense, and peacetime
  and contingency access, all of which are critical to planning multidomain operations and achieving combatant
  command objectives and JSCP end states. Commanders strive for a clear understanding of the conditions that
  make up the current situation, including the relevant population, FSF, and other factors. From this
  understanding, commanders visualize desired conditions that represent a desired end state. The host nation
  or regional security organization helps to determine desired conditions associated with the partner FSF. After
  envisioning a desired end state, commanders then design and conceptualize how to influence the current
  situation to achieve that end state.
  2-82. The changing nature of each OE affects the execution of SFA activities and missions. When
  considering an OE, a key planning factor for SFA is the foreign defense establishment’s capabilities and
  capacity to support and participate in multinational operations where interoperability is essential to success.
  This includes a thorough understanding of the regional security organizations; the region’s history, culture,
  and languages; the host-nation leaders; and political, economic, and social dynamics. The conditions of an
  OE can rapidly change, and those planning and those executing SFA activities must assess these changes
  continuously. They must measure and evaluate the effectiveness of programs that prevent and deter and
  determine whether further means should be applied towards meeting the combatant command objectives.
  Two types of environments underpin an OE: permissive and uncertain.
  2-83. A permissive environment is an OE in which host country military and law enforcement agencies have
  control as well as the intent and capability to assist SFA activities that a unit intends to conduct. Under this
  condition, maximum support of the host country to SFA activities is expected, and thus they would require
  little or no assembly of combat forces in country. In such an environment, a theater army can expect hosting
  nation concurrence and possible support. The theater army’s primary concerns may be sustainment functions
  involving logistics support, emergency medical treatment, transportation, administrative processing, and
  coordination with DOS and other agencies. While a minimum number of security forces may be used, prudent
  preparations should be in place to enable the force conducting SFA activities to respond to threats as required.
  SFA personnel should plan for the potential of isolation and ensure they have issued isolated soldier guidance
  to all personnel even when operating under the most permissive of environments. Theater armies should
  anticipate resource scarcity, language barriers, and a reluctance to adopt more disciplined, professional
  practices as the major barriers to continued progress.
  2-84. An uncertain environment is an OE in which the hosting government security forces, whether opposed
  to or receptive to operations that a unit intends to conduct, do not have effective control of the territory and
  population in the intended operational area. An uncertain environment is most likely to be found in less
  developed countries that have lost government control of an area following a disaster, or in areas that
  traditionally harbor insurgents or terrorist elements that may oppose U.S. presence regardless of the
  humanitarian mission. Because of the uncertainty, the theater army may elect to reinforce the host nation
  with additional security units or a reaction force. Approved rules of engagement (ROE) are disseminated
  early to ensure that the force conducting SFA activities has knowledge of and is sufficiently trained and
  proficient in application of the ROE. Planning for SFA activities in an uncertain environment should take
  into consideration the possibility for escalation to a hostile environment. In an uncertain environment SFA
  forces may anticipate opposition from insurgents, warlords, criminal gangs, outside forces, or others desiring
  instability. Usually, a military show of force is sufficient to maintain control of the situation, however
  planning should include refined personnel recovery plans that ensure all Soldiers are issued isolated Soldier
  guidance in the event they become isolated. Prudent employment of military information support operations
  can prevent the degeneration of a permissive or uncertain environment into a hostile environment.
  OPERATIONAL VARIABLES
  2-85. Army planners analyze an OE in terms of eight interrelated operational variables: political, military,
  economic, social, information, infrastructure, physical environment, and time. Operational variables are those
  broad aspects of an OE, both military and nonmilitary, that may differ from one operational area to another
  and affect campaigns and major operations. Depending on the relationship with a given country, situations
  may exist where a country may be a good partner and share similar interests with the United States, but access
  is not granted for the purpose of training and equipping the partner FSF.