By late summer 1994 the expansion of refugee operations just to the south of Florida had reached a crisis. The U.S. naval base at Guantanamo Bay in Cuba was already host to more than 14,000 Haitian refugees. With existing camps at McCall airfield filling to capacity, U.S. personnel immediately began construction of others in the Radio Range complex. As Coast Guard and Navy vessels began interdicting more than 3,000 Cuban rafters per day, it was distressing to realize that they also would have to be quartered. Gitmo was ill- prepared to provide for the security, health, and welfare of an additional 34, 000 Cubans at what would amount to $1 million per day. The subsequent efforts of JTF-160 transformed Guantanamo while forcing the departure of military dependents to the United States. This survey of Operation Sea Signal focuses on security and operations associated with displaced persons with emphasis on the critical role of civil affairs (CA) and psychological operations (PSYOP). The rapid buildup of military infrastructure to support Sea Signal revealed potential flaws in deploying CA personnel. Sufficient capabilities, which should have been a planning factor, were deployed reactively rather than proactively. The delayed arrival of the 96th Civil Affairs Battalion as well as both Army Reservists from the 416th Civil Affairs Battalion and Marine Reservists from the 4th Civil Affairs Group did not jeopardize the mission, but their presence could have facilitated communication with refugees. The initial table of organization for JTF-160, based on CA assets on the ground, was inadequate for Sea Signal. The primary mission was humanitarian assistance. CA support to Sea Signal included both civilian containment and control and civic assistance.


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