7.4. Vignettes

7.4.1.

Continuity of Government – CIMIC Support to Government Continuity During Regional Cyber Disruption

Purpose

To illustrate the role of CIMIC in supporting the continuity of government (at the local level) and maintaining information flow during hybrid-enabled disruption of governmental services.

Operational Scenario

• Evolving, volatile security environment in a NATO member state
• Hybrid threat activity below Article 5 threshold
• Short-notice regional crisis response support to civil authorities

Situation

Friendly Forces:

• Multinational brigade deployed in support of national resilience tasks
• Brigade J9 (CIMIC) cell with limited liaison teams and organic communications assets
• Sovereign Host Nation’s civil protection structures remain in lead

Adversary / Threat:

• Suspected state-backed cyber actor conducting coordinated disruption
• Regional government IT networks degraded for 48+ hours
• Banking and e-government services are intermittently unavailable
• Information environment shows early signs of disinformation amplifying public frustration

Environment:

• Dense urban area in Region Y
• High civilian dependence on digital public services
• Growing queues at government service centres (“one-stop shops”)
• Increasing public anxiety and pressure on local authorities

Mission

Brigade J9 (CIMIC) supports Host Nation civil authorities in Region Y NLT 0600 tomorrow in order to facilitate information flow, enable temporary service continuity measures, and help reduce civilian friction resulting from cyber-enabled disruption.

Execution

Following a large-scale cyber incident, multiple municipal and regional administrative services in Region Y became unavailable. Citizens are unable to process essential documentation, social support requests, and business-related paperwork. Concurrent disruptions in electronic banking further increase public concern.

Local authorities retain legal responsibility but face significant capacity shortfalls in public communication, queue management, and alternative service arrangements. Public messaging is inconsistent across municipalities.

The brigade is tasked to provide limited military support to civil authorities. The J9 cell is requested to:

• establish liaison with affected municipal offices,
• support the set-up of temporary public information points,
• facilitate communication between civil authorities and the local population in close coordination with Host Nation primacy,
• assess emerging civil friction risks.

Military involvement must remain clearly supportive, visible but non-intrusive, and fully coordinated with Host Nation authorities.

Key Takeaways

• CIMIC plays a critical enabling role in civil continuity during hybrid disruptions below Article 5.
• Early (civil-military) information synchronisation is essential to prevent escalation of civilian frustration.
• Visible military support must be carefully calibrated to avoid perceptions of overreach in peacetime.
• Hybrid effects on civil systems can rapidly create tactical-level CIMIC demands.

7.4.2.

Resilient Energy supplies – CIMIC Support to Civil Authorities During Prolonged Power Outage

Purpose

To illustrate the role of CIMIC in supporting civil authorities and the civilian population during a prolonged disruption of local energy distribution caused by hybrid-enabled infrastructure failure.

Operational Scenario

• Peacetime environment in a NATO member state
• Hybrid activity below Article 5 threshold affecting critical infrastructure
• Military support to civil authorities in response to regional energy disruption

Situation

Friendly Forces:

• Multinational brigade present in Region Y conducting routine training activities
• Brigade J9 (CIMIC) cell with liaison teams and limited deployable communication assets
• Host Nation emergency management authorities remain responsible for crisis coordination

Adversary / Threat:

• Suspected cyber intrusion targeting the regional electricity distribution management system
• Manipulation of control systems caused overload in a key substation
• Subsequent cascading failure disconnected several urban districts from the grid

Environment:

• Urban area with dense residential population
• Winter conditions increasing reliance on electrical heating and services
• Several critical civilian facilities (municipal administration, small health centres, public transport nodes) affected by the blackout

Mission

Brigade J9 (CIMIC) supports Host Nation authorities in Region Y in order to facilitate civil-military cooperation, assist in communication with the civilian population, and support mitigation measures aimed at maintaining essential services during the prolonged power outage.

Execution

Following the disruption of a regional electricity distribution node, large parts of the city experience a prolonged blackout. Restoration efforts by the energy provider are ongoing, but initial estimates indicate that power may not be fully restored for several days.

The outage disrupts traffic management systems, public lighting, electronic payment systems, and some municipal administrative services. Public concern grows as residents seek reliable information regarding the duration of the disruption and the availability of essential services.

Local authorities activate emergency response procedures but face challenges in maintaining effective communication with the population and coordinating temporary mitigation measures across multiple municipalities.

The brigade’s CIMIC cell establishes liaison with municipal emergency coordination centres and supports civil authorities by facilitating information exchange between local authorities, infrastructure providers, and affected communities.

CIMIC teams assist in identifying urgent civilian needs, support the dissemination of official information to the population, and coordinate with civil authorities regarding the potential use of military capabilities, such as mobile power generators or temporary lighting, to support priority civilian locations.

All activities are conducted in close coordination with Host Nation authorities, ensuring that military support remains complementary to civilian-led crisis management structures.

Military involvement must remain clearly supportive, visible but non-intrusive, and fully coordinated with Host Nation authorities.

Key Takeaways

• Energy disruptions can rapidly generate complex effects (even in our operations as well), requiring coordinated CIV-MIL response.
• CIMIC liaison and information exchange are critical for aligning military support with civilian-led crisis management.
• Clear and coordinated communication with the population helps reduce uncertainty and maintain public trust during infrastructure disruptions.
• Military capabilities may provide temporary mitigation, but must remain fully integrated within Host Nation response structures.

7.4.3.

Uncontrolled Movement of People – CIMIC Support During Sudden Cross-Border Displacement

Purpose

To illustrate the role of CIMIC in supporting civil authorities and mitigating the impact of sudden population displacement on military mobility and civilian safety.

Operational Context

• Escalating conflict in a neighbouring region near NATO’s eastern flank.
• Large-scale civilian displacement towards neighbouring NATO member states.
• NATO forces deployed to reinforce deterrence and defence posture.

Situation

Friendly Forces:

• Multinational brigade deployed to Hungary and Slovakia as part of NATO reassurance and deterrence measures.
• Brigade J9 cell with liaison teams and limited transport and communication assets.
• Host Nation border management, police, and disaster management authorities responsible for managing refugee reception.

Adversary / Threat:

• Intensified fighting in neighbouring Ukraine following a significant operational breakthrough by Russian forces.
• Rapid civilian displacement towards neighbouring NATO member states.
• The sudden influx overwhelms existing border reception capacities.

Environment:

• Major highways and secondary main roads leading from the border heavily congested with civilian vehicles and pedestrians.
• Abandoned vehicles and personal belongings further obstruct movement along key transport routes.
• Local authorities struggling to balance humanitarian needs with maintaining critical transportation corridors.

Mission

Brigade J9 supports HN civil authorities in Hungary and Slovakia in order to facilitate civil-military cooperation, assist in managing civilian movement near key transportation corridors, and help mitigate the humanitarian impact of the sudden influx of displaced persons.

Execution

Following the sudden deterioration of the security situation across the border, large numbers of civilians begin moving toward crossing points into neighbouring NATO member states. Within hours, reception facilities become overwhelmed and thousands of displaced persons continue moving inland using major highways and secondary roads.

The heavy presence of civilian vehicles, pedestrians, and improvised roadside stopping points severely disrupts traffic flow along key transportation corridors also designated for military movement. Abandoned vehicles and scattered belongings further complicate the situation.

Local authorities activate emergency response mechanisms but face significant challenges in managing the scale and speed of the population movement while maintaining safe and functional transportation routes.

The brigade’s CIMIC cell establishes liaison with regional crisis management authorities, police, and humanitarian organisations involved in refugee reception.

CIMIC teams assist by facilitating communication with displaced civilians, helping direct movement away from critical military mobility corridors, and supporting local authorities in establishing temporary reception and rest areas away from key transport routes.

Where appropriate and upon request from Host Nation authorities, military support may be provided by means and capabilities available to the force, including the transport of vulnerable civilians to designated reception facilities, assistance in the establishment of temporary reception areas, and support to the coordination of essential services such as water, food, shelter, and medical assistance.

All support activities are conducted in close cooperation with HN authorities and humanitarian actors to ensure that military efforts complement the civilian-led response while maintaining operational mobility requirements.

Key Takeaways

• Sudden population displacement can rapidly affect both humanitarian conditions and FoM.
• CIMIC liaison is essential to coordinate military support with civil authorities and humanitarian actors.
• Managing civilian movement near key transportation corridors helps preserve both civilian safety and operational FoM.
• Military support to reception facilities and temporary shelter can alleviate pressure on overwhelmed local systems.

7.4.4.

Food and Water Resources – CIMIC Support to Civil Authorities During Water Supply Contamination

Purpose

To illustrate the role of CIMIC in supporting civil authorities in managing civilian needs and coordinating mitigation measures during a disruption of safe drinking water supply caused by suspected hybrid interference.

Operational Context

• Peacetime environment in a NATO member state.
• Hybrid activity below Article 5 threshold affecting civilian infrastructure.
• Military support to civil authorities in response to a developing public health concern.

Situation

Friendly Forces:

• Multinational brigade present in Region Y conducting routine training activities.
• Brigade J9 cell with liaison teams.
• Host Nation civil protection and public health authorities responsible for crisis response.

Adversary / Threat:

• Several civilians were admitted to local hospitals with symptoms consistent with water contamination.
• Subsequent medical examinations indicate poisoning linked to the municipal drinking water system.
• Around the same time, dead and decomposing animal carcasses are discovered in several rural wells supplying nearby communities.
• The timing and distribution of incidents suggest deliberate contamination intended to undermine public confidence in local services.

Environment:

• Urban centre and surrounding rural communities dependent on the same regional water supply network.
• Limited local capacity for rapid water quality monitoring.
• Growing public concern following media reports about possible water contamination.

Mission

Brigade J9 supports HN civil authorities in Region Y in order to facilitate civil-military cooperation, assist in identifying urgent civilian needs, and support mitigation measures aimed at ensuring access to safe drinking water for the affected population.

Execution

Local hospitals begin reporting several cases of severe illness linked to suspected water contamination. Medical authorities initiate investigations, and precautionary warnings are issued advising residents to avoid consuming tap water until further notice.

Shortly afterwards, local authorities discovered animal carcasses in several wells in the rural areas surrounding the city. These wells feed smaller local distribution systems and are used as supplementary water sources by nearby communities. The discovery raises concerns of deliberate contamination.

As public concern grows and demand for safe drinking water increases, municipal authorities activate emergency response procedures. Immediate priorities include identifying alternative water sources, communicating clear guidance to the population, and coordinating the distribution of potable water.

The brigade’s CIMIC cell establishes liaison with municipal crisis management authorities, public health officials, and water utility representatives. CIMIC teams assist in gathering civil situation awareness and identifying the most affected communities.

In coordination with Host Nation authorities, military support may include facilitating the transport and distribution of potable water, assisting in the establishment of temporary water distribution points, and supporting the coordination of technical expertise required for water testing and remediation.

All military activities are conducted in close cooperation with civil authorities, ensuring that support measures complement and reinforce the civilian-led response.

Key Takeaways

• Disruptions to food and water systems can quickly generate public health concerns and civilian anxiety.
• CIMIC liaison enables rapid identification of civilian needs and coordination of mitigation measures.
• Access to clear and credible public communication is essential to prevent panic and maintain trust.
• Military support to water distribution and logistics can provide critical short-term relief when coordinated with HN authorities.

7.4.5.

Mass Casualties – CIMIC Support to Civil Authorities During Industrial Chemical Incident

Purpose

To illustrate the role of CIMIC in supporting civil authorities and facilitating Civil-Military Interaction during a large-scale industrial accident resulting in mass civilian casualties.

Operational Context

• Peacetime environment in a NATO member state.
• Hybrid interference suspected in the disruption of critical industrial control systems.
• Military support to civil authorities during a major public safety emergency.

Situation

Friendly Forces:

• Multinational brigade present in Region Y conducting routine training activities.
• Brigade J9 cell with liaison teams and limited communication and coordination capabilities.
• HN emergency services and civil protection authorities responsible for incident response and public safety.

Adversary / Threat:

• A suspected cyber intrusion disrupts control systems at a chemical production facility located near the city.
• Failure of the pressure regulation system results in the release of toxic industrial gases.
• The exact cause remains under investigation, but the incident occurs in a context of broader hybrid activity targeting civilian infrastructure.

Environment:

• Industrial facility located near a densely populated urban area.
• Prevailing winds carry the toxic plume toward residential districts.
• The local public warning system fails to activate, likely due to a separate but potentially linked cyber disruption, further delaying the timely warning of the civilian population and subsequent protective actions.
• Hospitals and emergency services quickly become overwhelmed by casualties.

Mission

Brigade J9 supports HN authorities in Region Y in order to facilitate Civil-Military Interaction, assist in identifying urgent civilian needs, and support the mitigation of the incident’s impact on the affected population.

Execution

Following the accidental release of toxic gases from the industrial facility, large parts of the nearby urban area are exposed to hazardous substances. The delayed warning results in significant civilian exposure before authorities are able to initiate protective measures.

Emergency services respond rapidly but face severe pressure due to the number of casualties and the need to secure contaminated areas while simultaneously supporting evacuation and medical response efforts.

The brigade’s CIMIC cell establishes liaison with municipal crisis management authorities, emergency services, and relevant civil protection agencies in order to support situational awareness and coordination.

CIMIC teams assist in facilitating communication between civil authorities, humanitarian organisations, and other relevant actors involved in the response. Through established networks, CIMIC may support the coordination of additional assistance mechanisms, including engagement with international disaster response coordination entities.

Where appropriate, and upon request from HN authorities, military support may be provided by means and capabilities available to the force, including support to information dissemination for the affected population, assistance in the organisation of evacuation or shelter arrangements, and coordination with relevant actors contributing to medical and humanitarian relief efforts.

All military activities are conducted in close coordination with HN authorities to ensure that military support complements the civilian-led response.

Key Takeaways

• Industrial accidents can rapidly generate mass casualty situations requiring coordinated civil-military response.
• CIMIC plays a key role in facilitating coordination between civil authorities, emergency services, and supporting organisations.
• Effective information sharing and liaison support helps align military assistance with civilian response priorities.
• Military support must remain complementary to HN emergency management structures.

7.4.6.

Telecommunication – CIMIC Support to Civil Authorities During Large-Scale Communication Network Disruption

Purpose

To illustrate the role of CIMIC in supporting civil authorities and facilitating Civil-Military Interaction during a large-scale disruption of civilian communication systems affecting public information and crisis response coordination.

Operational Context

• Peacetime environment in a NATO member state.
• Suspected hybrid activity targeting civilian communication infrastructure.
• Military forces present in the area are conducting routine training and readiness activities.

Situation

Friendly Forces:

• Multinational brigade present in Region Y conducting routine training activities.
• Brigade J9 cell with liaison teams and limited communication and coordination assets.
• HN authorities and telecommunications providers are responsible for maintaining civilian communication services.

Adversary / Threat:

• A coordinated cyber incident disrupts several major telecommunications service providers.
• Mobile networks and internet services become unreliable or unavailable across large parts of the region.
• At the same time, misleading and unverified information begins circulating through remaining online platforms and informal channels, contributing to confusion among the population.

Environment:

• Urban area with a high dependence on digital communication services for public information, financial transactions, and emergency coordination.
• Civil authorities experience difficulty disseminating reliable guidance to the population.
• Local emergency services report increased public enquiries and growing uncertainty among residents.

Mission

Brigade J9 supports HN authorities in Region Y in order to facilitate Civil-Military Interaction, assist in maintaining information flow to the civilian population, and help mitigate the civil effects of the communication disruption.

Execution

Following the disruption of several telecommunications networks, large parts of the population experience limited access to mobile communication and internet-based services. Civil authorities face difficulties disseminating timely information regarding the situation and ongoing response measures.

The reduction in reliable communication channels coincides with the circulation of inaccurate and misleading information through informal networks and word-of-mouth communication, further complicating crisis management efforts.

The brigade’s CIMIC cell establishes liaison with municipal authorities, emergency management structures, and telecommunications operators IOT support shared situational awareness regarding the evolving civil impacts.

CIMIC teams assist in facilitating CIV-MIL cooperation by supporting the dissemination of verified information to local communities through available channels and by assisting civil authorities in the identification of areas where communication gaps may increase public uncertainty or tension.

Where appropriate, and upon request from HN authorities, military support may be provided by means and capabilities available to the force, including assistance in establishing temporary information points, supporting communication between local authorities and affected communities, or facilitating cooperation with relevant civil and humanitarian actors engaged in the response.

All military activities are conducted in close cooperation with HN authorities to ensure that military support complements the civilian-led response.

Key Takeaways

• Disruptions to civilian communication systems can significantly affect crisis response and public confidence.
• CIMIC engagement supports civil authorities in maintaining communication with the population during information disruptions.
• Civil-Military Interaction helps mitigate the effects of misinformation and communication gaps.
• Reliable information flow is a critical component of societal resilience during hybrid crises.

7.4.7.

Transportation – CIMIC Support to Civil Authorities During Disruption of a Key Transportation Hub

Purpose

To illustrate the role of CIMIC in supporting civil authorities and facilitating Civil-Military Interaction during the disruption of a critical transportation node affecting both civilian mobility and military movement.

Operational Context

• Peacetime environment in a NATO member state.
• Hybrid activity targeting critical transportation infrastructure.
• Military presence in the area conducting routine training and readiness activities.

Situation

Friendly Forces:

• Multinational brigade present in Region Y is conducting routine training activities.
• Brigade J9 cell with liaison teams and limited transport and communication capabilities.
• HN transportation authorities and law enforcement are responsible for managing the affected infrastructure.

Adversary / Threat:

• A suspected cyber intrusion affects the traffic management systems of a major regional railway and logistics hub.
• The disruption coincides with a physical incident involving signalling infrastructure, forcing the closure of several rail lines and adjacent road crossings.
• The combined effects severely limit the flow of civilian and commercial traffic through the area.

Environment:

• Major rail and road transportation node connecting several urban centres and industrial zones.
• Disruption causes large traffic congestion and delays in the movement of goods and commuters.
• The affected corridor is also part of a key transportation route designated for potential military mobility.

Mission

Brigade J9 supports HN authorities in Region Y in order to facilitate Civil-Military Interaction, support situational awareness regarding civil impacts, and assist in mitigating the disruption’s effects on civilian mobility and essential supply flows.

Execution

Following the disruption of the regional transportation hub, several rail lines and adjacent road crossings are temporarily closed while authorities investigate the cause of the incident and initiate repair works. The interruption rapidly affects commuter traffic, freight transport, and local supply chains.

Traffic congestion begins to extend into nearby municipalities, creating secondary effects such as delays in public transportation, disruptions in deliveries to local businesses, and growing frustration among commuters and residents.

The brigade’s CIMIC cell establishes liaison with regional transportation authorities, municipal crisis management offices, and relevant infrastructure operators IOT support information exchange and improve shared situational awareness of the civil impacts.

CIMIC teams assist in identifying areas where civilian traffic congestion or infrastructure disruption may create safety risks or additional pressure on local communities. Through established Civil-Military Interaction channels, CIMIC supports the alignment of military activities with civilian traffic management measures in order to avoid further strain on already congested routes.

Where appropriate and upon request from HN authorities, military support may be provided by means and capabilities available to the force, including assistance in information dissemination to the affected population, support to temporary traffic management measures, or the provision of limited transportation assets to help alleviate pressure on disrupted routes.

All military activities are conducted in close cooperation with Host Nation authorities to ensure that military support complements the civilian-led response.

Key Takeaways

• Disruptions to transportation infrastructure can quickly generate cascading effects across civilian mobility and supply chains.
• CIMIC engagement supports HN authorities in understanding and mitigating the civil impacts of transportation disruptions.
• Civil-Military Interaction helps align military activities with civilian traffic management measures during infrastructure crises.
• Maintaining FoM while minimising impact on civilian infrastructure is a key consideration for deployed forces.