Goverment/Military
robrt.24
joint_operation_planning.pdf
26 December 2006
Joint Operation Planning
Joint Publication 5-0
This edition of Joint Publication 5-0, Joint Operation Planning, reflects the current doctrine for conducting joint, interagency, and multinational planning activities across the full range of military operations. This vital keystone publication forms the core of joint warfighting doctrine and establishes the framework for our forces’ ability to fight as a joint team.
As our Nation continues into the 21st century, the joint operation planning process and supporting capabilities will continue to evolve as our forces transform to meet emerging challenges. The engine for this change in the planning arena is the Adaptive Planning (AP) initiative.
Adaptive planning is defined as “the joint capability to create and revise plans rapidly and systematically, as circumstances require.” The Secretary of Defense signed the Adaptive Planning Roadmap on 13 December 2005, directing that as AP processes and capabilities mature, it will succeed the Department of Defense’s current planning processes and capabilities. Since the Roadmap was published, the Contingency Planning Guidance, the Joint Strategic Capabilities Plan, the Joint Programming Guidance, and the Strategic Planning Guidance have all directed that AP processes and capabilities be used for the development of Top Priority contingency plans.
This publication incorporates all AP initiatives currently approved for implementation and complements the AP processes and procedures defined in the latest version of the Chairman of the Joint Chiefs of Staff Manual 3122.01A, Joint Operation Planning and Execution System (JOPES) Volume I. The next revision of both the JP 5-0 and the JOPES 3122 series (manuals, instructions and guide) will further incorporate AP principles and formally establish the adaptive planning and execution system for planning and executing joint operations.
I encourage all leaders to understand the purpose and intent of the Adaptive Planning initiative, to study and understand the doctrinal concepts contained in this publication, and to teach these to your subordinates. Only then will we be able to fully exploit the remarkable military potential inherent in our joint teams. You should ensure the widest possible distribution of this keystone joint publication. I further request that you actively promote the use of all joint publications at every opportunity.
PETER PACE General, United States Marine Corps Chairman of the Joint Chiefs of Staff
PREFACE
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1. Scope
Joint Publication 5-0 is keystone doctrine for joint operation planning throughout the range of military operations.
2. Purpose
This publication has been prepared under the direction of the Chairman of the Joint Chiefs of Staff. It sets forth joint doctrine to govern the joint operation planning activities and performance of the Armed Forces of the United States in joint operations, and provides the joint doctrinal basis for US military coordination with other agencies and for US military involvement in multinational operations. It provides military guidance for the exercise of authority by combatant commanders and other joint force commanders (JFCs). It is not the intent of this publication to restrict the authority of the JFC from organizing the force and executing the mission in a manner the JFC deems most appropriate to ensure unity of effort in the accomplishment of the overall objective.
3. Application
a. Joint doctrine established in this publication applies to the Joint Staff; to commanders of combatant commands, subunified commands, joint task forces, subordinate components of these commands, and combat support agencies; and to the Services.
b. The guidance in this publication is authoritative; as such, this doctrine will be followed except when, in the judgment of the commander, exceptional circumstances dictate otherwise. If conflicts arise between the contents of this publication and the contents of Service publications, this publication will take precedence unless the Chairman of the Joint Chiefs of Staff, normally in coordination with the other members of the Joint Chiefs of Staff, has provided more current and specific guidance. Commanders of forces operating as part of a multinational (alliance or coalition) military command should follow multinational doctrine and procedures ratified by the United States. For doctrine and procedures not ratified by the United States, commanders should evaluate and follow the multinational command’s doctrine and procedures, where applicable and consistent with US law, regulations, and doctrine.
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Preface
JP 5-0
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SUMMARY OF CHANGES REVISION OF JOINT PUBLICATION 5-0, DATED 13 APRIL 1995 (INCLUDES CONSOLIDATION OF JOINT PUBLICATION 5-00.1,
“JOINT DOCTRINE FOR CAMPAIGN PLANNING,” DATED 25 JANUARY 2002)
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Reduces discussion of senior leader planning responsibilities
Conforms to revised Chairman of the Joint Chiefs of Staff Manual 3122.01A, Joint Operation Planning and Execution System (JOPES), by discussing “contingency” and “crisis action” planning, levels of planning detail, and other changes
Incorporates the new construct of “strategic communication”
Reduces discussion of the Joint Strategic Planning System and related national systems
Incorporates the “joint operation planning process” (JOPP) to complement JOPES
Incorporates discussion of the estimate process from Joint Publication (JP) 3-0, Joint Operations
Discusses the use of “effects” as an element of operational design in joint operation planning
Discusses the commander’s and staff’s roles in joint operation planning
Expands the discussion of transportation and deployment planning
Incorporates a detailed discussion of “assessment”
Incorporates a discussion of developing a “systems perspective” of the operational environment
Incorporates relevant information from JP 5-00.1, Joint Doctrine for Campaign Planning
Expands the discussion of elements of operational design consistent with JP 3-0, Joint Operations
Incorporates a hypothetical vignette to help explain the JOPP steps in Chapter III and elements of operational design in Chapter IV
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Summary of Changes
JP 5-0
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TABLE OF CONTENTS
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EXECUTIVE SUMMARY ................................................................................................ ix
CHAPTER I JOINT STRATEGIC PLANNING
SECTION A. JOINT STRATEGIC PLANNING – TYPES AND SCOPE ........................ I-1 • Introduction ............................................................................................................... I-1 • Joint Strategic Planning.............................................................................................. I-1 • Security Cooperation Planning ................................................................................... I-3 • Force Planning........................................................................................................... I-4 • Joint Operation Planning ............................................................................................ I-4 • The Scope of Joint Operation Planning ..................................................................... I-5
SECTION B. ORGANIZATION AND RESPONSIBILITIES.......................................... I-6 • General ...................................................................................................................... I-6 • Joint Planning and Execution Community .................................................................. I-7 • Chairman of the Joint Chiefs of Staff ......................................................................... I-8 • Combatant Commanders ............................................................................................ I-9 • Subordinate Joint Forces .......................................................................................... I-10 • Combat Support Agencies ........................................................................................ I-10
SECTION C. JOINT OPERATION PLANNING ........................................................... I-11 • General .................................................................................................................... I-11 • Joint Operation Planning and Execution System Overview....................................... I-12 • Global Planning ....................................................................................................... I-22 • Types of Joint Operation Plans and Orders ................................................................... I-23 • Availability of Forces for Joint Operations .................................................................... I-26
CHAPTER II STRATEGIC DIRECTION
• General .................................................................................................................... II-1 • Strategic Communication ......................................................................................... II-2
SECTION A. NATIONAL-LEVEL SYSTEMS ............................................................. II-3 • Introduction ............................................................................................................. II-3 • National Security Council System ............................................................................ II-3 • Planning, Programming, Budgeting, and Execution Process ..................................... II-4 • Joint Strategic Planning System ............................................................................... II-4
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SECTION B. INTERAGENCY, INTERGOVERNMENTAL ORGANIZATION, AND NONGOVERNMENTAL ORGANIZATION CONSIDERATIONS ............................. II-6
• General .................................................................................................................... II-6 • Interagency Planning and Coordination .................................................................... II-6
SECTION C. MULTINATIONAL CONSIDERATIONS ............................................... II-9 • General .................................................................................................................... II-9 • Multinational Operations ......................................................................................... II-9 • Multinational Planning and Coordination ................................................................ II-10 • Review of Multinational Plans ................................................................................ II-11
CHAPTER III THE JOINT OPERATION PLANNING PROCESS
SECTION A. INTRODUCTION .................................................................................. III-1 • General ................................................................................................................... III-1 • The Commander’s Role in Joint Operation Planning ............................................... III-3 • The Staff’s Role in Joint Operation Planning ........................................................... III-3
SECTION B. THE RELATIONSHIP OF STRATEGIC GUIDANCE, TERMINATION, END STATE, OBJECTIVES, EFFECTS, AND THE SYSTEMS PERSPECTIVE OF THE OPERATIONAL ENVIRONMENT .................................................................... III-5
• General ................................................................................................................... III-5 • National and Multinational Strategic Guidance ....................................................... III-5 • Termination of Military Operations and the Military End State ................................ III-7 • Military Objectives ............................................................................................... III-11 • Effects .................................................................................................................. III-12 • Joint Intelligence Preparation of the Operational Environment .............................. III-16
SECTION C. THE JOINT OPERATION PLANNING PROCESS STEPS .................. III-19 • The Joint Operation Planning Process ................................................................... III-19 • Planning Initiation ................................................................................................ III-19 • Mission Analysis .................................................................................................. III-20 • Course of Action Development ............................................................................. III-28 • Course of Action Analysis and Wargaming............................................................ III-30 • Course of Action Comparison .................................................................................. III-32 • Course of Action Approval ...................................................................................... III-34 • Concept of Operations Development ........................................................................ III-34 • Plan or Order Development ..................................................................................... III-41
SECTION D. THE ESTIMATE PROCESS ................................................................. III-51 • The Estimate ......................................................................................................... III-51
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SECTION E. PLANNING AND ASSESSMENT DURING EXECUTION.................... III-55 • Execution ............................................................................................................... III-55 • Assessment ............................................................................................................ III-57
CHAPTER IV OPERATIONAL ART AND DESIGN
SECTION A. INTRODUCTION .................................................................................. IV-1 • Operational Art ....................................................................................................... IV-1 • Operational Design ................................................................................................. IV-2 • The Campaign ........................................................................................................ IV-2
SECTION B. OPERATIONAL DESIGN ...................................................................... IV-4 • Strategic Guidance .................................................................................................. IV-4 • Operational Design Elements .................................................................................. IV-4 • Phasing .................................................................................................................. IV-32
APPENDIX
A Flexible Deterrent Options ................................................................................. A-1 B Sample Estimate Format..................................................................................... B-1 C Joint Operation Plan Format ............................................................................... C-1 D References ......................................................................................................... D-1 E Administrative Instructions ................................................................................. E-1
GLOSSARY
Part I Abbreviations and Acronyms .................................................................... GL-1 Part II Terms and Definitions ............................................................................... GL-4
FIGURE
I-1 Joint Strategic Planning ................................................................................ I-2 I-2 The Joint Planning and Execution Community .............................................. I-7 I-3 Joint Operation Planning Activities, Functions, and Products....................... I-14 I-4 Joint Operation Planning Products .............................................................. I-24 II-1 National Strategic Direction ........................................................................ II-5 III-1 Effects and Command Echelons ............................................................... III-13 III-2 The Interconnected Operational Environment .......................................... III-17 III-3 The Joint Operation Planning Process ...................................................... III-20 III-4 Mission Analysis Key Steps ..................................................................... III-21 III-5 Mission Analysis ..................................................................................... III-23 III-6 Course of Action Characteristics .............................................................. III-28 III-7 Course of Action Development ................................................................ III-29 III-8 Course of Action Analysis and Wargaming .............................................. III-30
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III-9 Sample Wargaming Steps ........................................................................... III-32 III-10 Course of Action Comparison ..................................................................... III-33 III-11 Course of Action Approval ......................................................................... III-35 III-12 Plan Development Activities ........................................................................ III-42 III-13 Plan Review Criteria .................................................................................. III-50 III-14 Commander’s Estimate .............................................................................. III-52 III-15 Functional Staff Estimates ........................................................................... III-53 III-16 Planning During Execution ........................................................................... III-58 III-17 Assessment Levels and Measures ............................................................... III-60 IV-1 Elements of Operational Design ..................................................................... IV-5 IV-2 Characteristics of Centers of Gravity .............................................................. IV-9 IV-3 Identifying Centers of Gravity ....................................................................... IV-11 IV-4 Analyzing Critical Factors ........................................................................... IV-13 IV-5 Direct Versus Indirect Approach .................................................................. IV-18 IV-6 Sample Physical Line of Operations ............................................................. IV-20 IV-7 Sample Logical Lines of Operations ............................................................. IV-22 IV-8 Notional Operation Plan Phases .................................................................. IV-34 IV-9 Phasing Model .......................................................................................... IV-36 A-1 Examples of Requested Diplomatic Flexible Deterrent Options .......................... A-2 A-2 Examples of Requested Informational Flexible Deterrent Options ....................... A-3 A-3 Examples of Requested Military Flexible Deterrent Options .............................. A-4 A-4 Examples of Requested Economic Flexible Deterrent Options ........................... A-5
EXECUTIVE SUMMARY COMMANDER’S OVERVIEW
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Describes the Nature of Joint Strategic Planning
Discusses Strategic Communication
Describes the Joint Operation Planning and Execution System
Describes the Joint Operation Planning Process (JOPP)
Describes Operational Art, Operational Design, the Design Elements, and the Relationship to JOPP
Incorporates “Effects” in JOPP and in the Assessment Process
Provides a Sample Joint Operation Plan Format
Joint Strategic Planning
Planning for the employment of military forces is an inherent responsibility of command.
Joint operation planning is the overarching process that guides joint force commanders (JFCs) in developing plans for the employment of military power within the context of national strategic objectives and national military strategy to shape events, meet contingencies, and
Military planning is performed at every echelon of command and across the range of military operations. Joint planning integrates military actions with those of other instruments of national power and our multinational partners in time, space, and purpose to achieve a specified end state. The military’s contribution to national strategic planning consists of joint strategic planning with its three subsets: security cooperation planning, joint operation planning, and force planning.
Joint operation planning includes all activities that must be accomplished to plan for an anticipated operation — the mobilization, deployment, employment, and sustainment of forces. Planners recommend and commanders define criteria for the termination of joint operations and link these criteria to the transition to stabilization and achievement of the end state. Planning also addresses redeployment and demobilization of forces. Joint operation planning is an inherent command responsibility established by law and directive. This fundamental responsibility extends from the President and Secretary of Defense (SecDef), with the advice of the Chairman of the Joint Chiefs of Staff (CJCS), to the combatant commanders (CCDRs) and their
Joint Operation Planning
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respond to unforeseen crises.
The headquarters, commands, and agencies involved in joint operation planning or committed to conduct military operations are collectively termed the Joint Planning and Execution Community.
Planning for joint operations is continuous across the full range of military operations using two closely related, integrated, collaborative, and adaptive processes — the Joint Operation Planning and Execution System (JOPES) and the joint operation planning process (JOPP).
subordinate joint force commanders (JFCs). The CJCS transmits the orders of the President and the SecDef to the CCDRs and oversees the combatant commands’ planning activities. The Joint Chiefs of Staff (JCS) function in the planning process as advisers to the President, National Security Council, and SecDef.
Although not a standing or regularly meeting entity, the Joint Planning and Execution Community (JPEC) consists of the CJCS and other members of the JCS, the Joint Staff, the Services and their major commands, the combatant commands and their subordinate commands, and the combat support agencies.
The Joint Operation Planning and Execution System (JOPES) and the Joint Operation Planning Process (JOPP) share the same basic approach and problem-solving elements, such as mission analysis and course of action development. The combination of JOPES and JOPP promotes coherent planning across all levels of war and command echelons, whether the requirement is for a limited, single-phase operation such as noncombatant evacuation or for a multiphase campaign involving high-intensity combat operations. JOPES formally integrates the planning activities of the entire JPEC during the initial planning and plan refinement that occurs both in peacetime and when faced with an imminent crisis. While JOPES activities span many organizational levels, the focus is on the interaction which ultimately helps the President and SecDef decide when, where, and how to commit US military capabilities in response to a foreseen contingency or an unforeseen crisis. JOPP is a less formal but proven analytical process, which provides a methodical approach to planning at any organizational level and at any point before and during joint operations. The focus of JOPP is on the interaction between an organization’s commander, staff, the commanders and staffs of the next higher and lower commands, and supporting commanders and their staffs to develop a joint operation plan (OPLAN) or operation order (OPORD) for a specific mission.
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Executive Summary
JOPES consists of a multivolume set of Chairman of the Joint Chiefs of Staff unclassified and classified manuals.
Contingency planning is planning that occurs in non-crisis situations.
Contingency planning facilitates the transition to crisis action planning.
JOPES Volume I provides the foundation for joint operation planning. JOPES is used in the development and implementation of OPLANs and OPORDs prepared in response to requirements from the President, the SecDef, or the CJCS. It specifies policies, procedures, and reporting structures — supported by modern communications and computer systems — for planning the mobilization, deployment, employment, sustainment, redeployment, and demobilization of joint forces. It also contains sample formats for key documents such as the CJCS warning order, commander’s estimate, and OPORD. JOPES Volume I provides for orderly and coordinated problem solving and decisionmaking in two related but distinct categories — contingency planning and crisis action planning (CAP). These categories differ primarily in level of uncertainty, available planning time, and products.
A contingency is an anticipated situation that likely would involve military forces in response to natural and man-made disasters, terrorists, subversives, military operations by foreign powers, or other situations as directed by the President or SecDef. The JPEC uses contingency planning to develop plans for a broad range of contingencies based on tasks identified in the Contingency Planning Guidance (CPG), Joint Strategic Capabilities Plan (JSCP), or other planning directive. Contingency planning begins when a planning requirement is identified in the CPG, JSCP, or a planning order, and continues until the requirement no longer exists. The JSCP links the Joint Strategic Planning System to joint operation planning, identifies broad scenarios for plan development, specifies the type of joint OPLAN required, and provides additional planning guidance as necessary. A CCDR may also initiate contingency planning by preparing plans not specifically assigned but considered necessary to discharge command responsibilities.
Within the context of JOPES, a crisis is an incident or situation involving threat to the United States, its territories, citizens, military forces, possessions, or vital interests. It typically develops rapidly and creates a condition of such diplomatic, economic, or military importance that the President or SecDef considers a commitment of US military forces and resources to achieve national objectives. It may occur with little or no warning. It is fast-breaking and requires accelerated decisionmaking. Sometimes a single crisis may spawn another crisis elsewhere. JOPES provides additional crisis action procedures for the time-sensitive development of OPORDs for the likely use of military forces in response to a crisis. While contingency planning normally is
Joint Operation Planning and Execution System
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Strategic communication is the focused United States government processes and efforts to understand and engage key audiences to create, strengthen, or preserve conditions favorable to advance national interests and objectives through the use of coordinated information, themes, plans, programs, and actions synchronized with other instruments of national power.
JFC’s should coordinate and integrate their operations with other agencies early in the planning process.
conducted in anticipation of future events, CAP is based on circumstances that exist at the time planning occurs.
Strategic communication (SC) is a natural extension of strategic direction, and supports the President’s strategic guidance, the SecDef’s National Defense Strategy, and the CJCS’s National Military Strategy. SC planning and execution focus capabilities that apply information as an instrument of national power to create, strengthen, or preserve an information environment favorable to US national interests. SC planning establishes unity of US themes and messages, emphasizes success, accurately confirms or refutes external reporting on US operations, and reinforces the legitimacy of US goals. This is an interagency effort, which provides an opportunity to advance US regional and global partnerships. Coordination, approval, and implementation of a SC strategy and specific information objectives, audiences, themes, and actions will be developed and synchronized with other US agencies and approved by the SecDef. Joint operation planning must include appropriate SC components and ensure collaboration with the Department of State’s diplomatic missions. CCDRs consider SC during peacetime security cooperation planning, and incorporate themes, messages, and other relevant factors in their security cooperation plans (SCPs). During contingency planning and CAP, CCDRs review SC guidance during mission analysis, and their staffs address SC issues, as appropriate, in their staff estimates. CCDRs can brief the SecDef on their SC planning during SCP, contingency planning, and CAP in-progress reviews.
Integrating the interagency community effectively can be vital to successful military operations, especially during theater shaping and during the stability and enable civil authority phases of an operation when JFCs may also operate in support of other United States Government agencies. JFCs and their staffs must consider how the capabilities of the agencies or other nongovernmental organizations can be leveraged to assist in accomplishing military missions and the broader national strategic objectives. JFCs should coordinate directly with interagency representatives within their operational areas during planning to ensure appropriate agreements exist that support their plans (such as working with US embassies to secure overflight rights with other nations).
Strategic Communication
Interagency Planning and Coordination
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Multinational operations is a collective term to describe military actions conducted by forces of two or more nations.
Joint operation planning blends two complementary processes. The first is the joint operation planning process; the second process is operational design.
While supported CCDR’s are the focal points for interagency coordination in support of operations in their areas of responsibility, interagency coordination with supporting commanders is just as important. At the operational level, subordinate commanders should consider and integrate interagency capabilities into their estimates, plans, and operations.
Joint forces should be prepared for combat and noncombat operations with forces from other nations within the framework of an alliance or coalition under US or another nation’s leadership. Planning for multinational operations is accomplished in multinational and national channels. Multinational force commanders develop multinational strategies and plans in multinational channels. JFCs perform supporting joint operation planning for multinational operations in US national channels. Coordination of these separate planning channels occurs at the national level by established multinational bodies or coalition member nations and at the theater-strategic and operational levels by JFCs, who are responsible within both channels for operation planning matters. US doctrine and procedures for joint operation planning also are conceptually applicable to multinational problems. The fundamental issues are much the same for both situations.
JOPP is an orderly, analytical planning process, which consists of a set of logical steps to analyze a mission, develop, analyze, and compare alternative courses of action (COAs), select the best COA, and produce a plan or order. Operational design is the use of various design elements in the conception and construction of the framework that underpins a joint OPLAN and its subsequent execution. The JFC and staff use operational design elements throughout JOPP.
Commanders direct throughout planning. This direction takes the form of interaction with the staff, guidance on the development of products, and decisions at key points in the process, such as approval
Multinational Planning and Coordination
The Joint Operation Planning Process
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The commander is the focal point of decision- making and execution during military operations.
The role of the staff is to support the commander in achieving situational understanding, making decisions, disseminating directives, and following directives through execution.
JOPP underpins planning at all levels and for missions across the full range of military operations.
of a COA. In CAP, this interaction typically is continuous as the JOPP steps are compressed and blend together. Commanders ensure that subordinate commands have sufficient time to plan, particularly in a CAP situation. They do so by issuing warning orders at the earliest opportunity and by collaborating with other commanders, agency leaders, and multinational partners as appropriate to ensure a clear understanding of the commander’s mission, intent, guidance, and priorities. Commanders resolve command-level issues that are beyond the staff’s authority.
The staff’s effort during planning focuses on developing effective plans and orders and helping the commander make related decisions. The staff does this by integrating situation- specific information with sound doctrine and technical competence. The staff’s planning activities initially focus on mission analysis, which develops information to help the commander, staff, and subordinate commanders understand the situation and mission. During COA development and comparison, the staff provides recommendations to support the commander’s selection of a COA. Once the commander approves a COA, the staff coordinates all necessary details and prepares the plan or order.
JOPP applies to both supported and supporting JFCs and to joint force component commands when the components participate in joint planning. This process is designed to facilitate interaction between the commander, staff, and subordinate headquarters throughout planning. JOPP helps commanders and their staffs organize their planning activities, share a common understanding of the mission and commander’s intent, and develop effective plans and orders. This planning process applies to contingency planning and CAP within the context of the responsibilities specified by the Chairman of the Joint Chiefs of Staff Manual 3122 series (JOPES). JOPP also is used by joint organizations that have no specific JOPES responsibilities. Furthermore, JOPP supports planning throughout the course of an operation after the CJCS, at the direction of the President or SecDef, issues the execute order. In common application, JOPP proceeds according to planning milestones and other requirements established by the commanders at various levels.
JOPP begins with planning initiation, and moves through mission analysis, COA development, COA analysis and wargaming, COA comparison, COA approval, and plan or order development.JOPP consists of a set ofseven steps.
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The operational environment encompasses the air, land, sea, space, and associated adversary, friendly, and neutral systems (political, military, economic, social, informational, infrastructure, legal, and others), which are relevant to a specific joint operation. Understanding this environment has always included a perspective broader than just the adversary’s military forces and other combat capabilities within the traditional battlespace. However, current and future strategic and operational requirements and types of operations can benefit by a more comprehensive view of all systems in this environment relevant to the mission and operation at hand.
A systems understanding of the operational environment considers more than just an adversary’s military capabilities, order of battle, and tactics. Instead, it strives to provide a perspective of interrelated systems that comprise the operational environment, relevant to a specific joint operation. Among other benefits, this perspective helps intelligence analysts identify potential sources from which to gain indications and warning. It also helps analysts with center of gravity analysis and planners with operational design by identifying nodes in each system, the links (relationships) between the nodes, critical factors, and potential decisive points. This allows commanders and staffs to consider a broader set of options to focus limited resources, create desired effects, and achieve objectives.
The use of effects during planning is reflected in the steps of JOPP. The CCDR plans joint operations based on analysis of national strategic objectives and development of theater strategic objectives supported by measurable strategic and operational desired effects and assessment indicators. At the operational level, a subordinate JFC develops supporting plans, which can include objectives supported by measurable operational-level effects and assessment indicators. Joint operation planning uses measurable desired effects to relate higher-level objectives and effects to component missions and tasks. Like end state and objective, joint doctrine includes effects as an element of operational design.
Joint Intelligence Preparation of the Operational Environment
Using Effects in Planning and Assessment
The operational environment is the composite of the conditions, circumstances, and influences that affect the employment of capabilities and bear on the decisions of the commander.
A system is a functionally related group of elements forming a complex whole.
An effect is a physical and/or behavioral state of a system that results from an action, a set of actions, or another effect.
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Commanders continuously assess the operational environment and the progress of operations, and compare them to their initial vision and intent. The assessment process begins during mission analysis when the commander and staff consider what to measure and how to measure it to determine progress toward accomplishing a task, creating an effect, or achieving an objective. Commanders adjust operations based on their assessment to ensure objectives are met and the military end state is achieved. The assessment process is continuous and directly tied to the commander’s decisions throughout planning, preparation, and execution of operations. Staffs help the commander by monitoring the numerous aspects that can influence the outcome of operations and provide the commander timely information needed for decisions.
Assessment occurs at all levels and across the entire range of military operations. Assessment at the operational and strategic levels typically is broader than at the tactical level (e.g., combat assessment) and uses measures of effectiveness (MOEs) that support strategic and operational mission accomplishment. Strategic- and operational-level assessment efforts concentrate on broader tasks, effects, objectives, and progress toward the end state. Continuous assessment helps the JFC and joint force component commanders determine if the joint force is “doing the right things” to achieve objectives, not just “doing things right.” The JFC also can use MOEs to determine progress toward success in those operations for which tactical-level combat assessment ways, means, and measures do not apply. Tactical-level assessment typically uses measures of performance to evaluate task accomplishment.
Operational art integrates ends, ways, and means across the levels of war. It is the thought process commanders use to visualize how best to efficiently and effectively employ military capabilities to accomplish their mission. Operational art also promotes unified action by helping JFCs and staffs understand how to facilitate integration of other agencies and multinational partners toward achieving the national strategic end state.
In applying operational art, the JFC draws on judgment, perception, experience, education, intelligence, boldness, and character to visualize the conditions necessary for success before committing forces. Operational art requires broad vision, the ability to anticipate, and the skill to plan, prepare, execute, and
Operational Art and Design
Assessment is a process that measures progress of the joint force toward mission accomplishment.
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assess. The JFC uses operational art to consider not only the employment of military forces, but also their sustainment and the arrangement of their efforts in time, space, and purpose.
While operational art is the manifestation of informed vision and creativity, operational design is the practical extension of the creative process. Together they synthesize the intuition and creativity of the commander with the analytical and logical process of design. The key to operational design essentially involves (1) understanding the strategic guidance (determining the end state and objectives); (2) identifying the adversary’s principal strengths and weaknesses, and; (3) developing an operational concept that will achieve strategic and operational objectives.
Operational design is intrinsic to JOPP. JOPP provides a logical set of planning steps through which the commander and staff interact, and operational design supports JOPP by providing a number of design elements to help the commander and staff visualize and shape the operation to accomplish the mission. These elements of operational design comprise a tool that is particularly helpful during COA determination. Resulting design alternatives provide the basis for selecting a COA and developing the detailed concept of operations.
As the operation progresses, planning generally occurs in three distinct but overlapping timeframes: future plans, future operations, and current operations.
The joint force plans directorate (J-5) focuses on future plans. The timeframe of focus for this effort varies according to the level of command, type of operation, JFC’s desires, and other factors. Typically the emphasis of the future plans effort is on planning the next phase of operations or sequels to the current operation. In a campaign, this could be planning the next major operation (the next phase of the campaign).
Planning also occurs for branches to current operations (future operations planning). The timeframe of focus for future operations planning varies according to the factors listed for future plans, but the period typically is more near-term than the future plans timeframe. Future planning could occur in the J-5 or joint planning group, while future operations planning could occur in the operations directorate (J-3) or joint operations center.
Planning During Execution
Operational art is the application of creative imagination by commanders and staffs — supported by their skill, knowledge, and experience — to design strategies, campaigns, and major operations and organize and employ military forces.
Operational design is the conception and construction of the framework that underpins a joint operation plan and its subsequent execution.
Planning continues during execution.
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Finally, current operations planning addresses the immediate or very near-term planning issues associated with ongoing operations. This occurs in the joint operations center or J-3.
This publication is the keystone document of the joint planning series. It provides fundamental principles and doctrine that guide the Armed Forces of the United States in the planning of joint operations across the range of military operations.
CONCLUSION
CHAPTER I JOINT STRATEGIC PLANNING
I-1
“To a conscientious commander, time is the most vital factor in his planning. By proper foresight and correct preliminary action, he knows he can conserve the most precious elements he controls, the lives of his men. So he thinks ahead as far as he can. He keeps his tactical plan simple. He tries to eliminate as many variable factors as he is able. He has a firsthand look at as much of the ground as circumstances render accessible to him. He checks each task in the plan with the man to whom he intends to assign it. Then — having secured in almost every instance his subordinates’ wholehearted acceptance of the contemplated mission and agreement on its feasibility — only then does he issue an order.”
General Mathew B. Ridgway The Korean War, 1967
SECTION A. JOINT STRATEGIC PLANNING — TYPES AND SCOPE
1. Introduction
Planning for the employment of military forces is an inherent responsibility of command. It is performed at every echelon of command and across the range of military operations. Joint planning integrates military actions with those of other instruments of national power and our multinational partners in time, space, and purpose to achieve a specified end state. The military’s contribution to national strategic planning consists of joint strategic planning with its three subsets: security cooperation planning, joint operation planning, and force planning. This publication discusses each type, but focuses predominantly on joint operation planning.
2. Joint Strategic Planning
a. Joint strategic planning provides strategic guidance and direction to the Armed Forces of the United States for security cooperation planning, joint operation planning, and force planning (see Figure I-1). Joint strategic planning occurs primarily at the national- and theater-strategic levels to help the President, Secretary of Defense (SecDef), and other members of the National Security Council formulate political-military assessments, define political and military objectives and end states, develop strategic concepts and options, and allocate resources. At the national- strategic level, the Chairman of the Joint Chiefs of Staff (CJCS), in consultation with other members of the Joint Chiefs of Staff (JCS), performs joint strategic planning to:
(1) Advise and assist the President and SecDef regarding the strategic direction of the Armed Forces of the United States and the preparation of policy guidance.
(2) Advise the SecDef on program recommendations and budget proposals to conform to priorities established in strategic plans.
(3) Transmit the strategic guidance and direction of the President and SecDef to the combatant commands, military Services, and combat support agencies.
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b. The Joint Strategic Planning System (JSPS) is the primary means by which the CJCS performs joint strategic planning. The products of the JSPS, such as the National Military Strategy (NMS) and the Joint Strategic Capabilities Plan (JSCP) provide the strategic guidance and direction for joint strategic planning by the combatant commander (CCDR) and for the other categories of military planning.
c. CCDRs prepare strategic estimates, strategies, and plans to accomplish their assigned missions based on strategic guidance and direction from the President, SecDef, and CJCS. CCDRs develop and modify strategic estimates continuously. They develop strategies that translate national direction and multinational guidance into concepts to meet strategic objectives. Strategic plans provide authoritative direction; assign missions, tasks, forces, and resources; designate assumptions and objectives; establish operational limitations (constraints and restraints), including rules on the use of force and rules of engagement (ROE); and define policies and concepts to be integrated into subordinate or supporting plans.
d. Geographic CCDRs (GCCs) focus joint strategic planning on their specific areas of responsibility (AORs) as defined in the Unified Command Plan (UCP). Functional CCDRs (FCCs) generally accomplish joint strategic planning with a global focus. Strategic planning for possible execution of multiple operations across AOR boundaries requires prioritization of effort by the SecDef or President and coordination with all affected CCDRs. The SecDef may task the CJCS or an FCC to conduct such planning and assign command relationships as appropriate.
JOINT STRATEGIC PLANNING
CONTINGENCY PLANNING
CRISIS ACTION PLANNING
JOINT OPERATION PLANNING
SECURITY COOPERATION
PLANNING
FORCE PLANNING
JOINT STRATEGIC PLANNING
Figure I-1. Joint Strategic Planning
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Chapter II, “Strategic Direction,” and Chairman of the Joint Chiefs of Staff Instruction (CJCSI) 3100.01A, Joint Strategic Planning System, provide information on the JSPS.
3. Security Cooperation Planning
a. Security cooperation is the means by which Department of Defense (DOD) encourages and enables countries and organizations to work with us to achieve strategic objectives. Security cooperation consists of a focused program of bilateral and multilateral defense activities conducted with foreign countries to serve mutual security interests and build defense partnerships. Security cooperation efforts also should be aligned with and support strategic communication themes, messages, and actions. The SecDef identifies security cooperation objectives, assesses the effectiveness of security cooperation activities, and revises goals when required to ensure continued support for US interests abroad. Although they can shift over time, examples of typical security cooperation objectives include: creating favorable military regional balances of power; advancing mutual defense or security arrangements; building allied and friendly military capabilities for self-defense and multinational operations; and preventing conflict and crisis.
b. DOD’s senior civilian and military leadership — in conjunction with CCDRs, Service Chiefs, and support agencies — focus their activities on achieving the security cooperation objectives identified by the SecDef. Security cooperation planning links these activities with security cooperation objectives by identifying, prioritizing, and integrating them to optimize their overall contribution to specified US security interests. Security cooperation activities are grouped into six categories:
(1) Military contacts, including senior official visits, port visits, counterpart visits, conferences, staff talks, and personnel and unit exchange programs.
(2) Nation assistance, including foreign internal defense, security assistance programs, and planned humanitarian and civic assistance activities.
(3) Multinational training.
(4) Multinational exercises, including those in support of the Partnership for Peace Program.
(5) Multinational education for US personnel and personnel from other nations, both overseas and in the United States.
(6) Arms control and treaty monitoring activities.
c. In response to direction in the DOD Security Cooperation Guidance (SCG), CCDRs, Service Chiefs, and combat support agencies’ directors prepare security cooperation strategies in accordance with SCG objectives for CJCS review and SecDef approval, with the GCCs as the supported entities. These strategies serve as the basis for security cooperation planning. Collaboration among the combatant commands, Services, and combat support agencies is essential. Equally important is the close coordination
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with US agencies that represent other instruments of national power, and particularly with the US chiefs of mission (ambassadors) in the GCCs’ AORs. The functional combatant commands, Services, and DOD agencies communicate their intended security cooperation activities to the responsible GCCs, execute their activities in support of approved security cooperation strategies, and assist in the annual assessment of the effectiveness of their security cooperation activities.
The DOD Security Cooperation Guidance and Chairman of the Joint Chiefs of Staff Manual (CJCSM) 3113.01A, Responsibilities for the Management of Security Cooperation, prescribe guidelines and procedures for developing security cooperation strategies and plans. Joint Publication (JP) 3-08, Interagency, Intergovernmental Organization, and Nongovernmental Organization Coordination during Joint Operations Volume I, discusses how to facilitate coordination and cooperation with US Government agencies, and intergovernmental, nongovernmental, and regional security organizations.
4. Force Planning
a. At the national strategic level, force planning is associated with creating and maintaining military capabilities. It is primarily the responsibility of the Services and US Special Operations Command (USSOCOM) and is conducted under the administrative control that runs from the SecDef to the Secretaries of the Military Departments to the Service Chiefs. The Services recruit, organize, train, equip, and provide forces for assignment to combatant commands and administer and support these forces. In areas peculiar to special operations, USSOCOM has similar responsibility for special operations forces (SOF), with the exception of organizing Service components. Force planning at this level is outside the scope of this publication.
b. At the theater strategic level, force planning encompasses all those activities performed by the supported CCDR, subordinate component commanders, and support agencies to select, prepare, integrate, and deploy the forces and capabilities required to accomplish an assigned mission. Force planning also encompasses those activities performed by force providers to develop, source, and tailor those forces and capabilities with actual units. Chapter III, “Joint Operation Planning Process,” describes this aspect of force planning in greater detail.
5. Joint Operation Planning
a. Joint operation planning — the focus of JP 5-0 — is the overarching process that guides joint force commanders (JFCs) in developing plans for the employment of military power within the context of national strategic objectives and national military strategy to shape events, meet contingencies, and respond to unforeseen crises. Planning is triggered when the continuous monitoring of global events indicates the need to prepare military options. Joint operation planning is an adaptive, collaborative process that can be iterative and/or parallel to provide actionable direction to commanders and their staffs across multiple echelons of command.
b. Joint operation planning includes all activities that must be accomplished to plan for an anticipated operation — the mobilization, deployment, employment, and sustainment of forces. Planners recommend and commanders approve criteria for the termination of joint operations and link these criteria to the
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transition to stabilization and achievement of the end state. Planning also addresses redeployment and demobilization of forces.
c. Section C of this chapter provides more information on joint operation planning, with a focus on the Joint Operation Planning and Execution System (JOPES). Chapter III, “The Joint Operation Planning Process,” provides details on the joint operation planning process (JOPP), a less formal but proven analytical process for planning at any organizational level.
6. The Scope of Joint Operation Planning
a. Joint operation planning encompasses the full range of activities required to conduct joint operations. These activities include the mobilization, deployment, employment, sustainment, redeployment, and demobilization of forces.
(1) Mobilization. Mobilization is the process by which the Armed Forces or part of them are brought to a state of readiness for war or other national emergency. Mobilization may include activating all or part of the Reserve Component. Mobilization is primarily the responsibility of the Military Departments and Services in close cooperation with the supported commanders and their Service component commanders.
JP 4-05, Joint Mobilization Planning, discusses joint mobilization planning in greater detail.
(2) Deployment. Deployment encompasses the movement of forces and their sustainment resources from their original locations to a specific destination to conduct joint operations. It specifically includes movement of forces and their requisite sustaining resources within the United States, within theaters, and between theaters. Deployment is primarily the responsibility of the supported commanders and their Service component commanders, in close cooperation with the supporting CCDRs and US Transportation Command (USTRANSCOM).
JP 3-35, Joint Deployment and Redeployment Operations, discusses joint deployment planning in greater detail.
(3) Employment. Employment encompasses the use of military forces and capabilities within an operational area (OA). Employment planning provides the foundation for, determines the scope of, and is limited by mobilization, deployment, and sustainment planning. Employment is primarily the responsibility of the supported CCDRs and their subordinate and supporting commanders.
JP 3-0, Joint Operations, this publication, and numerous other publications in the joint doctrine system discuss joint employment planning in greater detail.
(4) Sustainment. Sustainment is the provision of logistics and personnel services required to maintain and prolong operations until successful mission accomplishment. The focus of sustainment in joint operations is to provide the JFC with the means to enable freedom of action and endurance and extend operational reach. Effective sustainment determines the depth to which the joint force can
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conduct decisive operations; allowing the JFC to seize, retain and exploit the initiative. Sustainment is primarily the responsibility of the supported CCDRs and their Service component commanders in close cooperation with the Services, combat support agencies, and supporting commands.
JP 4-0, Joint Logistic Support, JP 1-0, Personnel Support to Joint Operations, and other joint logistic doctrine publications discuss joint sustainment planning in greater detail.
(5) Redeployment. Redeployment encompasses the movement of units, individuals, or supplies deployed in one area to another area, or to another location within the area for the purpose of further employment. Redeployment also includes the return of forces and resources to their original location and status. Redeployment is primarily the responsibility of supported commanders and their Service component commanders, in close cooperation with the supporting CCDRs and USTRANSCOM.
JP 3-35, Joint Deployment and Redeployment Operations, discusses joint redeployment planning in greater detail.
(6) Demobilization. Demobilization is the process of transitioning a conflict or wartime military establishment and defense-based civilian economy to a peacetime configuration while maintaining national security and economic vitality. It includes the return of Reserve Component units, individuals, and materiel stocks to their former status. Demobilization is primarily the responsibility of the Military Departments and Services, in close cooperation with the supported commanders and their Service component commanders.
JP 4-05, Joint Mobilization Planning, discusses demobilization planning in greater detail.
SECTION B. ORGANIZATION AND RESPONSIBILITIES
7. General
a. Joint operation planning is an inherent command responsibility established by law and directive. This fundamental responsibility extends from the President and SecDef, with the advice of the CJCS, to the CCDRs and their subordinate components and JFCs. Joint force Service and functional components conduct component planning that could involve planning for the employment of other components’ capabilities, such as when the joint force air component commander plans for the employment of all air assets made available. The CJCS transmits the orders of the President and the SecDef to the CCDRs and oversees the combatant commands’ planning activities. The JCS function in the planning process as advisers to the President, National Security Council (NSC), and SecDef.
b. The CJCS, CCDRs, and subordinate JFCs have primary responsibility for planning the employment of joint forces. Although not responsible for directing the combatant commands’ Service forces in joint operations, the Military Departments participate in joint operation planning through execution of their responsibilities to: organize, train, equip, and provide forces for assignment to
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the combatant commands; administer and support those forces; and prepare plans implementing joint strategic mobility, logistic, and mobilization plans.
8. Joint Planning and Execution Community
a. The headquarters, commands, and agencies involved in joint operation planning or committed to conduct military operations are collectively termed the Joint Planning and Execution Community (JPEC). Although not a standing or regularly meeting entity, the JPEC consists of the CJCS and other members of the JCS, the Joint Staff, the Services and their major commands, the combatant commands and their subordinate commands, and the combat support agencies (see Figure I-2).
b. In the planning process, the President and SecDef issue policy, strategic guidance, and direction. The President, assisted by the NSC, also issues policy and strategic direction to guide the planning efforts of Federal agencies that represent other instruments of national power. The SecDef, with the advice and assistance of the CJCS, organizes the JPEC for joint operation planning by establishing supported and supporting command relationships among the combatant commands. A supported commander is identified for each planning task, and supporting CCDRs, Services, and combat support agencies are designated as appropriate. Similarly, supported commanders
Figure I-2. The Joint Planning and Execution Community
THE JOINT PLANNING AND EXECUTION COMMUNITY
JOINT OPERATION PLANNING AND EXECUTION SYSTEM
Chairman of the Joint Chiefs of Staff
SUPPORTED COMBATANT COMMAND
Supporting Combatant Commands
Service and Functional Components
SUBORDINATE COMMANDS
MILITARY SERVICES
Subordinate Unified Commands
Joint Task Forces
Service Major Commands
Combat Support Agencies
Strategic Guidance
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establish supported and supporting command relationships among their subordinate commanders. This process provides for unity of command in the planning and execution of joint operations and facilitates unity of effort within the JPEC.
(1) The supported commander has primary responsibility for all aspects of a task assigned by the JSCP, the Contingency Planning Guidance (CPG), or other joint operation planning authority. In the context of joint operation planning, the supported commander prepares operation plans (OPLANs) or operation orders (OPORDs) in response to requirements generated by the President or the SecDef.
(2) Supporting commanders provide forces, assistance, or other resources to a supported commander in accordance with the principles set forth in JP 0-2, Unified Action Armed Forces (UNAAF). Supporting commanders prepare supporting plans as required. Under some circumstances, a commander may be a supporting commander for one operation while being a supported commander for another.
See CJCSI 3141.01C, Responsibilities for the Management and Review of Contingency Plans, for a more complete discussion of the JPEC. See JP 0-2, Unified Action Armed Forces (UNAAF), and JP 3-0, Joint Operations, for a more complete discussion of supported and supporting relationships.
9. Chairman of the Joint Chiefs of Staff
a. The CJCS, as the principal military adviser to the President, SecDef, and rest of the NSC, is assigned specific responsibilities in the areas of joint strategic planning and joint operation planning. In carrying out these responsibilities, the CJCS consults with and seeks the advice of other members of the JCS and CCDRs.
b. Subject to the direction, authority, and control of the President, the guidance of the SecDef, and pursuant to Title 10, US Code, the CJCS is responsible for:
(1) Preparing military strategy and assessments of the associated risk.
(2) Assisting the President and the SecDef in providing for the strategic direction of the Armed Forces of the United States, including the direction of operations conducted by the CCDRs.
(3) Preparing strategic plans and supporting plans for joint intelligence, logistic, and mobility. Recommending the assignment of logistic responsibilities in accordance with those plans and determining logistic support available to execute the CCDR’s OPLANs.
(4) Providing for the preparation and review of military mobilization plans, security cooperation plans, and joint operation plans.
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(5) Advising the SecDef on the critical deficiencies and strengths in force capabilities (including manpower, logistic, and mobility support) identified during the preparation and review of OPLANs and assessing the impact of such deficiencies and strengths on meeting national security objectives and policies.
(6) Reviewing the CCDRs’ plans and programs to determine their adequacy, feasibility, acceptability, completeness, and compliance with joint doctrine.
(7) Integrating interagency and multinational partners into planning efforts as appropriate.
(8) Issuing the execute order.
CJCSI 3141.01C, Responsibilities for the Management and Review of Contingency Plans, discusses the joint planning and execution community in greater detail.
10. Combatant Commanders
a. CCDRs plan at the national and theater strategic levels of war through participation in the development of NMS, and the development of theater estimates, strategies, and plans. The supported CCDR normally participates in strategic discussions with the President, SecDef, and CJCS, and with multinational partners. The supported CCDR’s strategy links US national strategy to operational-level activities. The CCDR’s planning efforts guide joint operation planning at the operational level, which links the operational and tactical employment of forces to strategic objectives. The focus at this level is on operational art — the employment of military forces to attain strategic objectives through the design, organization, integration, and conduct of strategies, campaigns, major operations, and battles.
b. CCDRs develop OPLANs for possible contingencies across the range of military operations. When crises arise, or when otherwise directed, CCDRs expand, refine, and adapt existing plans or develop new plans as the basis for OPORDs. When military operations are directed, CCDRs deploy and employ forces and other capabilities to accomplish assigned missions. Their joint operation planning responsibilities are described in the UCP, JSCP, CPG, SCG, and JP 0-2, Unified Action Armed Forces (UNAAF). Other planning activities of the CCDRs include:
(1) Conducting strategic estimates, identifying required resources, and identifying, assessing, and managing risks.
(2) Assisting the CJCS in developing national military strategy and formulating theater and security cooperation strategies in conformance with national strategic plans.
(3) Identifying and planning for contingencies not specifically assigned by the President, SecDef, or CJCS.
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(4) Preparing and executing joint OPORDs.
(5) Advising the CJCS and SecDef of other agencies’ capabilities desired or required for OPLAN execution.
c. Functional combatant commands participate in joint operation planning typically as a supporting command to a supported geographic combatant command. USTRANSCOM and its component commands plan and execute the transportation aspects of global mobility operations and provide centralized traffic management while providing deployable forces to support intertheater and intratheater mobility and in-transit visibility. USTRANSCOM is the joint force provider for mobility forces, and recommends sourcing of mobility forces to geographic combatant commands. It also is the distribution process owner, and synchronizes and integrates distribution- related activities of all force and material providers. US Joint Forces Command (USJFCOM) is the primary joint force provider, joint force trainer, and joint deployment process owner. From assigned forces, USJFCOM provides ready joint forces and capabilities, and recommends global joint sourcing solutions for forces and capabilities worldwide, less designated forces sourced by USSOCOM, US Strategic Command (USSTRATCOM), and USTRANSCOM. USJFCOM, USSTRATCOM, and USSOCOM provide assigned functional forces based in the continental United States (CONUS).
d. For joint operation planning, USJFCOM and USSOCOM make recommendations to the Joint Staff regarding the apportionment and allocation of forces and resources. As the DOD intelligence, surveillance, and reconnaissance (ISR) manager (although not assigned ISR forces), USSTRATCOM will make ISR force allocation recommendations to the Joint Staff. During execution, the Services, USJFCOM, and USSOCOM will identify the specific units and support to be allocated to source the CCDRs OPLANs. The Services maintain Reserve Component forces for the expansion of Service capabilities and capacity in times of heightened military need, and prepare detailed mobilization, sustainment, and mobility plans containing the identification of the actual forces and support allocated.
11. Subordinate Joint Forces
The commanders of subordinate joint forces perform joint operation planning functions similar to those of the CCDRs for their assigned missions or OAs. They accomplish these functions under the direction of the establishing authority. Their Service component commands conduct joint operation planning both within the chain of command that runs from the President through the SecDef to CCDRs and under the administrative control of the Military Departments.
12. Combat Support Agencies
Combat support agencies are DOD agencies, such as the Defense Logistics Agency, so designated in law or by the SecDef. They are supporting agencies in the same manner as supporting combatant commands. Supported commanders may assign missions and tasks to them consistent with their assigned functions in OPLANs and OPORDs. The intelligence community falls
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generally in this category, although there are specific channels for requests and requirements for intelligence support depending on the type of intelligence required.
SECTION C. JOINT OPERATION PLANNING
13. General
a. Joint operation planning is an adaptive process. It occurs in a networked, collaborative environment, which requires dialogue among senior leaders, concurrent and parallel plan development, and collaboration across multiple planning levels. Clear strategic guidance and frequent interaction between senior leaders and planners promote early understanding of, and agreement on, planning assumptions, considerations, risks, and other key factors. The focus is on developing plans that contain a variety of viable, embedded options for the President and SecDef to consider as the situation develops. This facilitates responsive plan development and modification, resulting in constantly up-to-date plans. Joint operation planning process also promotes greater involvement with other US agencies and our multinational partners.
KEY TERM
joint operation planning -- Planning activities associated with the preparation of joint operation plans and operation orders for the conduct of military operations by joint force commanders.
b. Planning for joint operations is continuous across the range of military operations using the closely related, integrated, collaborative, and adaptive JOPES and JOPP. JOPES and JOPP share the same basic approach and problem-solving elements, such as mission analysis and course of action (COA) development. The combination of JOPES and JOPP promotes coherent planning across all levels of war and command echelons, whether the requirement is for a limited, single-phase operation such as noncombatant evacuation or for a multiphase campaign involving high-intensity combat operations. See Chapter IV, “Operational Art and Design,” for more discussion on campaigns.
c. JOPES formally integrates the planning activities of the entire JPEC during the initial planning and plan refinement that occurs both in peacetime and when faced with an imminent crisis. While JOPES activities span many organizational levels, the focus is on the interaction which ultimately helps the President and SecDef decide when, where, and how to commit US military capabilities in response to a foreseen contingency or an unforeseen crisis. The majority of JOPES activities and products occur prior to the point when the CJCS approves and issues the execute order, which initiates the employment of military capabilities to accomplish a specific mission.
d. JOPP is a less formal but proven analytical process, which provides a methodical approach to planning at any organizational level and at any point before and during joint operations. The focus of JOPP is on the interaction between an organization’s commander, staff, the commanders and staffs of the next higher and lower commands, and supporting commanders and their staffs.
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Although the ultimate product is an OPLAN or OPORD for a specific mission, the process is continuous throughout an operation. Even during execution, it produces plans and orders for future operations as well as fragmentary orders (FRAGORDs) that drive immediate adjustments to the current operation. JOPP provides an orderly framework for planning in general, particularly for organizations that have no formal JOPES requirements. See Chapter III, “The Joint Operation Planning Process,” for more information on JOPP.
e. The JOPP supports the systematic, on-demand, creation and revision of executable plans, with up-to-date options, as circumstances require. A premium is placed on flexibility. The incorporation of collaboration capabilities, relational databases, and decision-support tools promotes planning with real-time access to relevant information and the ability to link planners and selected subject matter experts regardless of their location. The goal is shortened planning timelines and current, high-fidelity, up-to-date plans.
f. Joint operation planning has the inherent flexibility to adjust to changing requirements for adaptive plans, developed collaboratively and shaped by frequent interaction among key senior leaders. JP 5-0 and JOPES (see paragraph 14) incorporate initiatives to make the planning process more adaptive to an ever-changing world environment. These initiatives — such as levels of planning detail, the requirement for more frequent in-progress reviews between CCDRs and the SecDef, and the use of collaboration technology — provide more and better options during plan development, increase opportunities for consultation and guidance during the planning process, and promote increased agility in plan implementation.
g. Joint operation planning produces a number of products in various levels of detail. Paragraph 14e “Contingency Planning” of this chapter provides information on levels of detail, while paragraph 16 “Types of Joint Operation Plans and Orders” describes planning products. JP 5-0 focuses on the joint OPLAN and the process to develop it. A joint OPLAN is the most detailed of the planning products, and provides a complete concept of operations (CONOPS), all annexes applicable to the plan, and the time-phased force and deployment data (TPFDD) for the specific operation. Joint operation planning also converts these plans into OPORDs ready for execution when required.
14. Joint Operation Planning and Execution System Overview
a. JOPES consists of a multivolume set of CJCS unclassified and classified manuals. Three primary unclassified sources for JOPES information are:
(1) CJCSM 3122.01A, Joint Operation Planning and Execution System (JOPES) Volume I (Planning Policies and Procedures), hereafter referred to as “JOPES Volume I.”
(2) CJCSM 3122.02C, Joint Operation Planning and Execution System (JOPES) Volume III (Crisis Action Time-Phased Force and Deployment Data Development and Deployment Execution), hereafter referred to as “JOPES Volume III.”
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(3) CJCSM 3122.03B, Joint Operation Planning and Execution System (JOPES) Volume II (Planning Formats), hereafter referred to as “JOPES Volume II.”
b. JOPES Volume I provides the foundation for joint operation planning. JOPES is used in the development and implementation of OPLANs and OPORDs prepared in response to requirements from the President, the SecDef, or the CJCS. It specifies policies, procedures, and reporting structures — supported by modern communications and computer systems — for planning the mobilization, deployment, employment, sustainment, redeployment, and demobilization of joint forces. It also contains sample formats for key documents such as the CJCS warning order (WARNORD), commander’s estimate, and OPORD. JOPES Volume II provides planning formats and additional guidance, while JOPES Volume III provides crisis action TPFDD development information. JOPES applies to joint operations across the range of military operations and to all JPEC members.
c. JOPES Volume I provides for orderly and coordinated problem solving and decision- making in two related but distinct categories — contingency planning and crisis action planning (CAP). These categories differ primarily in level of uncertainty, amount of available planning time, and products. First, the process is highly structured to support iterative, concurrent, and parallel contingency planning throughout the planning community to produce thorough and fully coordinated OPLANs when time permits. Second, the process is shortened in CAP, as necessary, to support the dynamic requirements of changing events. During actual military operations, the process adapts to accommodate greater decentralization of joint operation planning activities. Contingency planning and CAP share common planning activities and are interrelated.
d. Joint operation planning encompasses a number of elements, including three broad operational activities, four planning functions, and a number of related products (see Figure I-3).
(1) Situational Awareness
(a) This operational activity addresses procedures for describing the strategic environment, including threats to national security. This occurs while continuously monitoring the national and international political and military situations so that emerging crises can be determined and analyzed, decision makers notified, and the specific nature of the threat determined. This activity emphasizes timely, relevant, and accurate information concerning the status of enemy, friendly, and neutral forces (such as enemy capabilities and intentions), and resources. All organizational levels are supported by this activity during contingency and crisis action planning and execution.
(b) Situational awareness encompasses two activities: situation development and situation assessment. During situation development, an event with possible national security implications occurs, is recognized, and is reported. Through continual situation assessment of political, military, economic, social, infrastructure, information, and other factors, those events affecting national security are identified and reported to the National Military Command Center
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(NMCC). The JFC considers possible requirements for military force and initiates reviews of plans within the context of current strategic guidance.
(c) Situational awareness actions support both contingency and crisis action planning. Situational awareness encompasses five related activities — (1) monitoring the global situation; (2) identifying that an event has occurred; (3) recognizing that the event is a problem or a potential problem; (4) reporting the event; and (5) assessing the event. An event is a national or international occurrence assessed as unusual and viewed as potentially having an adverse impact on US national interests and national security. The recognition of the event as a problem or potential problem follows from the observation.
(2) Planning
(a) Planning translates strategic guidance and direction into executable OPLANs and OPORDs for contingency or crisis action response. Joint operation planning may be based on defined tasks identified in the CPG and the JSCP. Alternatively, joint operation planning may be based on the need for a military response to a current event, emergency, or time-sensitive contingency. Contingency planning is normally initiated by a CPG, JSCP, or a planning directive tasking. It is based on assigned planning guidance, derived assumptions, and apportioned forces and combat support activities. CAP is initiated to respond to a current event, emergency, or
Figure I-3. Joint Operation Planning Activities, Functions, and Products
Joint Operation Planning Activities, Functions, and Products
Situational Awareness
Planning
Execution
Operational Activities
Planning Functions
Strategic Guidance
Concept Development
Plan Development
Plan Assessment (Refine, Adapt, Terminate,
Execute)
Products
Deployment Order
Execute Order
Alert Order
Planning Order
Warning Order
Approved Mission
Approved Plan
Approved Concept
Concept Plan (CONPLAN)
Operation Plan (OPLAN)
IPR IPR IPR { Base Plan (BPLAN) Operation
Order
Six Month Review Cycle
IPR in-progress review
Joint Operation Planning Activities, Functions, and Products
Situational Awareness
Planning
Execution Operational Activities
Planning Functions
Strategic Guidance
Concept Development
Plan Development
Plan Assessment (Refine, Adapt, Terminate,
Execute)
Products
Deployment Order
Execute Order
Alert Order
Planning Order
Warning Order
Approved Mission
Approved Plan
Approved Concept
Concept Plan
Operation Plan
IPR IPR IPR { Base Plan Operation
Order
Six Month Review Cycle
IPR in-progress review
Joint Operation Planning Activities, Functions, and Products
Situational Awareness
Planning
Execution Operational Activities
Planning Functions
Strategic Guidance
Concept Development
Plan Development
Plan Assessment (Refine, Adapt, Terminate,
Execute)
Strategic Guidance
Concept Development
Plan Development
Plan Assessment (Refine, Adapt, Terminate,
Execute)
Products
Deployment Order
Execute Order
Alert Order
Planning Order
Warning Order
Approved Mission
Approved Plan
Approved Concept
Concept Plan
Operation Plan
IPR IPR IPR { Base Plan Operation
Order
Six Month Review CycleSix Month Review Cycle
IPR in-progress review
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time-sensitive contingency. It is based on planning guidance, actual circumstances, and assigned and allocated forces and combat support activities. In both cases, planning is initiated from a continuous awareness of global events, recognition of the need for a prepared military response to support the National Security Strategy (NSS), and follows a collaborative, iterative planning process.
(b) Planning Functions:
1. Strategic Guidance. This function is used to formulate politico-military assessments at the strategic level; develop and evaluate military strategy and objectives; apportion and allocate forces and other resources; formulate concepts and strategic military options; and develop planning guidance leading to the preparation of COAs. The President, SecDef, and CJCS — with appropriate consultation with additional NSC members, other US government (USG) agencies, and multinational partners — formulate suitable and feasible national strategic objectives that reflect US national interests. The CCDR may provide input through one or more commander’s assessments. The CCDR crafts military objectives that support national strategic objectives with the advice and consent of the CJCS and SecDef. This process begins with an analysis of existing strategic guidance such as the JSCP and CPG for contingency planning or a CJCS WARNORD, planning order (PLANORD), or alert order (ALERTORD) in CAP. It includes mission analysis, threat assessment, and development of assumptions, which as a minimum will be briefed to the SecDef during the mission analysis in-progress review (IPR). During this initial IPR, the CCDR should consider discussing USG strategic communication guidance. The primary end product of the strategic guidance function is the supported commander’s mission statement.
2. Concept Development. In concept development during contingency planning, the supported commander develops a CONOPS for SecDef approval based on SecDef and CJCS planning guidance and resource apportionment provided in Global Force Management (GFM) guidance and Service documents. GFM aligns force apportionment, assignment, and allocation methodologies in support of the national defense strategy (NDS) and joint force availability requirements. In CAP, the supported commander develops, analyzes, and compares alternative COAs based on planning guidance, resource allocations from previously approved OPLANs, and a CJCS WARNORD. In time-sensitive situations, a WARNORD may not be issued and a PLANORD or ALERTORD might be the first strategic guidance received by the supported commander. Using the strategic guidance and the CCDR’s mission statement, planners prepare evaluation request messages to solicit COA input from subordinate units and develop preliminary COAs based upon staff estimates. The supported commander recommends a COA in the commander’s estimate for SecDef approval. The commander also requests the SecDef’s guidance on interagency coordination and makes appropriate recommendations. As a basis for this discussion, the commander could brief the highlights of the OPLAN’s annex V, (“Interagency Coordination),” during one or more of the IPRs. Concept development should consider a range of options to provide greater flexibility and speed transition during a crisis. The concept development IPR should address to the SecDef the CCDR’s estimate, which broadly outlines how forces will conduct integrated joint operations to accomplish the mission. Products from concept development include an approved COA and commander’s estimate containing termination criteria, supportability estimates, and (if time allows) an integrated TPFDD of estimated force and logistic requirements by operation phase. If developed, the TPFDD must ensure forces and mission visibility by phase to accommodate effective force integration and enable rapid adaptation as the situation changes.
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3. Plan Development. This function is used to fully develop an OPLAN, operation plan in concept format (CONPLAN), or an OPORD with applicable supporting annexes and to refine preliminary feasibility analysis. This function fully integrates mobilization, deployment, employment, sustainment, conflict termination, redeployment, and demobilization activities through the six-phase construct. Detailed planning begins with the SecDef’s approval for further planning in a non-crisis environment or when the CJCS issues a WARNORD in a CAP situation. The primary product is an approved plan or order.
4. Plan Assessment (Refine, Adapt, Terminate, Execute). During this function, the supported commander refines the complete plan while supporting and subordinate commanders, Services, and supporting agencies complete their plans for review and approval. In general, the supported commander will, when required, submit the plans for the SecDef’s approval. All commanders continue to develop and analyze branches and sequels as required. The supported commander and the Joint Staff continue to evaluate the situation for any changes that would trigger plan refinement, adaptation, termination, or execution. The CCDR will brief the SecDef during the plan assessment IPR of any identified requirements to adapt, terminate, or execute an OPLAN.
(3) Execution. Execution starts when the execute order (EXORD) is issued. This component is comprised of mobilization, deployment, employment, sustainment, redeployment, rotation, and demobilization activities. Protection and operations security are critical throughout. Deployment encompasses all force preparation and movement to support an operation and all redeployment operations. Thoroughly planned, verified and fully documented TPFDD is the basis for force mobility and visibility. Effective command and control (C2) of deployment through the validation process ensures units are prepared and enables adaptability to unforeseen operational events. Those units requiring transportation support must provide planning (movement requirement) information to the supporting command as early as possible and must comply with transportation directives to ensure in-transit visibility and C2 of their movements, to include joint reception, staging, onward movement, and integration (JRSOI). Sustainment is the provision of personnel, logistic, and other support required to maintain and prolong operations or combat until successful accomplishment or revision of the mission or of the national objective. Employment incorporates all activities required to complete the assigned mission. It spans the phases of the operation. Situation awareness and planning continue throughout employment. Phase transition criteria and operation assessment processes support situation awareness and enable rapid transition to branches or sequels. Employment continues until the mission is accomplished or as otherwise directed by the SecDef or President. The ability to monitor and compare actual with scheduled events is crucial to assessing mission accomplishment, terminating operations, and conducting redeployment.
e. Contingency Planning
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(1) Contingency planning is planning that occurs in non-crisis situations. A contingency is a situation that likely would involve military forces in response to natural and man-made disasters, terrorists, subversives, military operations by foreign powers, or other situations as directed by the President or SecDef. The JPEC uses contingency planning to develop plans for a broad range of contingencies based on tasks identified in the CPG, JSCP, or other planning directive. Contingency planning facilitates the transition to CAP.
(2) Plans are derived from the best available information, using forces and resources apportioned and allocated per GFM guidance. Contingency planning encompasses the activities associated with the development of OPLANs for the deployment, employment, and sustainment of apportioned forces and resources in response to a hypothetical situation identified in joint strategic planning documents. This category of planning relies heavily on assumptions regarding the circumstances that will exist when a crisis arises. The transition from contingency planning to CAP and execution should be as seamless as possible. To ensure this, planners must develop fully documented concepts of operation which detail the assumptions, enemy forces, operation phases, prioritized missions and force positioning. Detailed, war-gamed, refined, and fully documented contingency planning supports sound force acquisition and training in preparation for the most likely operational requirements. It also enables rapid comparison of the hypothetical conditions, operation phases, missions and forces of the OPLAN to the actual requirements of CAP. Work performed during contingency planning allows the JPEC to develop the processes and procedures, as well as the analytical and planning expertise that are critically needed during CAP.
(3) Contingency planning begins when a planning requirement is identified in the CPG, JSCP, or a planning order, and continues until the requirement no longer exists. The JSCP links the JSPS to joint operation planning, identifies broad scenarios for plan development, specifies the type of joint OPLAN required, and provides additional planning guidance as necessary. A CCDR may also initiate contingency planning by preparing plans not specifically assigned but considered necessary to discharge command responsibilities. If a situation develops during a contingency planning cycle that warrants contingency planning but was not anticipated in the CPG/JSCP, the SecDef, through the CJCS, tasks the appropriate supported CCDR and applicable supporting CCDRs, Services, and combat support agencies out-of-cycle to begin contingency planning in response to the new situation. The primary mechanism for tasking contingency planning outside of the CPG/JSCP cycle will be through strategic guidance statements from the SecDef and endorsed by message from the CJCS to the CCDRs.
(4) Plans are produced and adapted periodically to ensure relevancy. Contingency planning most often addresses military options requiring combat operations; however, plans must account for other types of joint operations across the range of military operations. For example, operations during phase IV (Stabilize) of a campaign or operation and most stability operations are very complex and require extensive planning and coordination with non-DOD organizations, with the military in support of other agencies. Contingency planning occurs in prescribed cycles in accordance with formally established procedures that complement and support other DOD planning cycles. In coordination with the JPEC, the Joint Staff develops and issues a planning schedule that coordinates plan development activities and
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establishes submission dates for joint OPLANs. The CJCS can also direct out-of-cycle contingency planning when circumstances warrant disruption of the normal planning cycle.
(5) Contingency planning encompasses four levels of planning detail, with an associated planning product for each level.
(a) Level 1 Planning Detail — Commander’s Estimate. This level of planning involves the least amount of detail, and focuses on producing a developed COA. The product for this level can be a COA briefing, command directive, commander’s estimate, or a memorandum. The commander’s estimate provides the SecDef with military COAs to meet a potential contingency. The estimate reflects the supported commander’s analysis of the various COAs available to accomplish an assigned mission and contains a recommended COA.
(b) Level 2 Planning Detail — Base Plan. A base plan describes the CONOPS, major forces, concepts of support, and anticipated timelines for completing the mission. It normally does not include annexes or a TPFDD.
(c) Level 3 Planning Detail — CONPLAN. A CONPLAN is an operation plan in an abbreviated format that may require considerable expansion or alteration to convert it into an OPLAN or OPORD. It includes a base plan with annexes required by the JFC and a supported commander’s estimate of the plan’s feasibility. It may also produce a TPFDD if applicable.
(d) Level 4 Planning Detail — OPLAN. An OPLAN is a complete and detailed joint plan containing a full description of the CONOPS, all annexes applicable to the plan, and a TPFDD. It identifies the specific forces, functional support, and resources required to execute the plan and provide closure estimates for their flow into the theater. OPLANs can be quickly developed into an OPORD. An OPLAN is normally prepared when:
1. The contingency is critical to national security and requires detailed prior planning.
2. The magnitude or timing of the contingency requires detailed planning.
3. Detailed planning is required to support multinational planning.
4. The feasibility of the plan’s CONOPS cannot be determined without detailed planning.
5. Detailed planning is necessary to determine force deployment, employment, and sustainment requirements, determine available resources to fill identified requirements, and validate shortfalls.
(6) Contingency planning is a collaborative process that engages the SecDef, CJCS, JCS, CCDRs, and staffs of the entire JPEC in the development of relevant plans for all contingencies identified in the CPG, JSCP, and other planning directives. Contingency planning also includes JPEC concurrent, collaborative, and parallel joint planning activities. The JPEC review those plans tasked in the JSCP for
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SecDef approval. The Under Secretary of Defense for Policy also reviews those plans for policy considerations in parallel with their approval by the CJCS. A CCDR can request a JPEC review for any tasked or un-tasked plans that pertain to the AOR. In addition, the CCDR can request a JPEC review during any planning function in the process, including plan assessment. CCDRs may direct the development of additional plans by their commands to accomplish assigned or implied missions.
(7) When directed by the President or SecDef through the CJCS, CCDRs may convert Level 1, 2, and 3 plans into Level 4 OPLANs or into fully developed OPORDs for execution. Combatant commands continue contingency planning even when engaged in actual contingency operations. Additionally, many contingency planning resources often are required for CAP, and some contingency planning may be interrupted or delayed until the contingency is stabilized or resolved.
(8) JOPES Volume I provides details for COA development and selection as well as for plan review and approval during contingency planning. Details include process information for interaction between the supported commander, the SecDef, and the President and formats for various planning products.
CJCSI 3141.01C, Responsibilities for the Management and Review of Contingency Plans, governs the formal review and approval process for CONOPS and OPLANs.
f. Crisis Action Planning
(1) A crisis is an incident or situation involving a threat to the United States, its territories, citizens, military forces, possessions, or vital interests. It typically develops rapidly and creates a condition of such diplomatic, economic, or military importance that the President or SecDef considers a commitment of US military forces and resources to achieve national objectives. It may occur with little or no warning. It is fast-breaking and requires accelerated decisionmaking. Sometimes a single crisis may spawn another crisis elsewhere. JOPES provides additional CAP procedures for the time-sensitive development of OPORDs for the likely use of military forces in response to a crisis.
(2) CAP encompasses the activities associated with the time-sensitive development of OPORDs for the deployment, employment, and sustainment of assigned, attached, and allocated forces and resources in response to an actual situation that may result in actual military operations. While contingency planning normally is conducted in anticipation of future events, CAP is based on circumstances that exist at the time planning occurs. There are always situations arising in the present that might require US military response. Such situations may approximate those previously planned for in contingency planning, though it is unlikely they would be identical, and sometimes they will be completely unanticipated. The time available to plan responses to such real-time events is short. In as little as a few days, commanders and staffs must develop and approve a feasible COA, publish the plan or order, prepare forces, ensure sufficient communications systems support, and arrange sustainment for the employment of US military forces.
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(3) In a crisis, situational awareness is continuously fed by the latest intelligence and operations reports. An adequate and feasible military response in a crisis demands flexible procedures that consider time available, rapid and effective communications, and relevant previous planning products whenever possible.
(4) In a crisis or time-sensitive situation, the CCDR uses CAP to adjust previously prepared OPLANs. The CCDR converts these plans to executable OPORDs or develops OPORDs from scratch when no useful OPLAN exists.
(5) CAP activities are similar to contingency planning activities, but CAP is based on dynamic, real-world conditions vice static assumptions. CAP procedures provide for the rapid and effective exchange of information and analysis, the timely preparation of military COAs for consideration by the President or SecDef, and the prompt transmission of their decisions to the JPEC. CAP activities may be performed sequentially or in parallel, with supporting and subordinate plans or OPORDs being developed concurrently. The exact flow of the procedures is largely determined by the time available to complete the planning and by the significance of the crisis. Capabilities such as collaboration and decision-support tools will increase the ability of the planning process to adapt quickly to changing situations and improve the transition from contingency planning to CAP. The following paragraphs summarize the activities and interaction that occur during CAP. Refer to JOPES Volume I for detailed procedures.
(a) When the President, SecDef, or CJCS decides to develop military options, the CJCS issues a planning directive to the JPEC initiating the development of COAs and requesting that the supported commander submit a commander’s estimate of the situation with a recommended COA to resolve the situation. Normally, the directive will be a WARNORD, but a PLANORD or ALERTORD may be used if the nature and timing of the crisis warrant accelerated planning. In a quickly evolving crisis, the initial WARNORD may be communicated vocally with a follow-on record copy to ensure that the JPEC is kept informed. If the directive contains force deployment preparation or deployment orders, SecDef approval is required.
(b) The WARNORD describes the situation, establishes command relationships, and identifies the mission and any planning constraints. It may identify forces and strategic mobility resources, or it may request that the supported commander develop these factors. It may establish tentative dates and times to commence mobilization, deployment or employment, or it may solicit the recommendations of the supported commander regarding these dates and times. If the President, SecDef, or CJCS directs development of a specific COA, the WARNORD will describe the COA and request the supported commander’s assessment. A WARNORD sample is in JOPES Volume I.
(c) In response to the WARNORD, the supported commander, in collaboration with subordinate and supporting commanders and the rest of the JPEC, reviews existing joint OPLANs for applicability and develops, analyzes, and compares COAs. Based on the supported commander’s guidance, supporting commanders begin their planning activities.
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(d) Although an existing plan almost never completely aligns with an emerging crisis, it can be used to facilitate rapid COA development. An existing OPLAN can be modified to fit the specific situation. An existing CONPLAN can be fully developed beyond the stage of an approved CONOPS. TPFDDs related to specific OPLANs are stored in the JOPES database and available to the JPEC for review.
(e) The CJCS, in consultation with other members of the JCS and CCDRs, reviews and evaluates the supported commander’s estimate and provides recommendations and advice to the President and SecDef for COA selection. The supported commander’s COAs may be refined or revised, or new COAs may have to be developed to accommodate a changing situation. The President or SecDef selects a COA and directs that detailed planning be initiated.
(f) On receiving the decision of the President or SecDef, the CJCS issues an ALERTORD to the JPEC to announce the decision. The SecDef approves the ALERTORD. The order is a record communication that the President or SecDef has approved the detailed development of a military plan to help resolve the crisis. The contents of an ALERTORD may vary, and sections may be deleted if the information has already been published, but it should always describe the selected COA in sufficient detail to allow the supported commander, in collaboration with other members of the JPEC, to conduct the detailed planning required to deploy, employ, and sustain forces. However, the ALERTORD does not authorize execution of the approved COA.
(g) The supported commander develops the OPORD and supporting TPFDD using an approved COA. Understandably, the speed of completion is greatly affected by the amount of prior planning and the planning time available. The supported commander and subordinate and supporting commanders identify actual forces, sustainment, and mobility resources and describe the CONOPS in OPORD format. They update and adjust planning accomplished during COA development for any new force and sustainment requirements and source forces and lift resources. All members of the JPEC identify and resolve shortfalls and limitations.
(h) The supported CCDR submits the completed OPORD for approval to the SecDef or President via the CJCS. After an OPORD is approved, the President or SecDef may decide to begin deployment in anticipation of executing the operation or as a show of resolve, execute the operation, place planning on hold, or cancel planning pending resolution by some other means. Detailed planning may transition to execution as directed or become realigned with continuous situational awareness, which may prompt planning product adjustments and/or updates.
(i) In CAP, plan development continues after the President or SecDef decides to execute the OPORD or to return to the pre-crisis situation. When the crisis does not lead to execution, the CJCS provides guidance regarding continued planning under either crisis action or contingency planning procedures.
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(6) CAP provides the CJCS and CCDRs a process for getting vital decision-making information up the chain of command to the President and SecDef. CAP facilitates information sharing among the members of the JPEC and the integration of military advice from the CJCS in the analysis of military options. Additionally, CAP allows the President and SecDef to communicate their decisions rapidly and accurately through the CJCS to the CCDRs, subordinate and supporting commanders, the Services, and combat support agencies to initiate detailed military planning, change deployment posture of the identified force, and execute military options. It also outlines the mechanisms for monitoring the execution of the operation.
(7) Abbreviated Procedures. The preceding discussion describes the activities sequentially. During a crisis, they may be conducted concurrently or even eliminated, depending on prevailing conditions. In some situations, no formal WARNORD is issued, and the first record communication that the JPEC receives is the PLANORD or ALERTORD containing the COA to be used for plan development. It is also possible that the President or SecDef may decide to commit forces shortly after an event occurs, thereby significantly compressing planning activities. No specific length of time can be associated with any particular planning activity. Severe time constraints may require crisis participants to pass information verbally, including the decision to commit forces.
15. Global Planning
a. When the scope of contemplated military operations exceeds the authority of a single CCDR to plan and execute, the President or SecDef directs the CJCS to implement global planning procedures and assist the SecDef in the strategic direction and integration of the planning effort. The President or SecDef normally makes the decision to implement global planning procedures as a UCP responsibility delegated to a CCDR or during the assessment of the situation. The commander’s assessment supporting this decision could be either the assessments of multiple CCDRs addressing a similar threat or a single assessment from a CCDR addressing the threat from a global, cross-AOR perspective. Situations that may trigger this assessment range the spectrum from major combat operations to the threat of asymmetric attack that extend across combatant command boundaries and require the strategic integration of the campaigns and major operations of two or more GCCs. One example of a persistent, asymmetric threat that is inherently global and poses risk cross-AOR boundaries is adversary exploitation and attack of DOD computer networks on the global information grid.
b. Per Title 10 of the US Code, the SecDef may assign the CJCS responsibility for overseeing the activities of the combatant commands. Such assignment by the SecDef does not confer any command authority on the CJCS and does not alter CCDRs’ responsibilities prescribed in Title 10, US Code, Section 164(b)(2). A CCDR delegated that authority to do so will lead the global planning effort for the purposes of planning, integrating, and coordinating a commander’s estimate from a global perspective, but does not have the authority to execute the resulting plan.
c. When the President or SecDef decides to implement global planning procedures, the CJCS or delegated CCDR, with the authority of the SecDef, issues a planning directive to the JPEC and assigns or assumes the role of a supported commander for planning purposes
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only. The CJCS or delegated CCDR performs a mission analysis; issues initial global planning guidance based on national strategic objectives and priorities; and develops global COAs in coordination with the affected combatant commands, Services, and combat support agencies. The purpose of this global COA is to mitigate operational seams and vulnerabilities from a global perspective. This will be achieved through a recommendation for the optimal allocation, prioritization, or reallocation of forces and capabilities required to develop a cohesive global concept of operation. Global planning procedures will detail how GCCs will employ forces and capabilities within their AOR in support of another CCDR. The threat from transnational terrorists illustrates the need for this unity of effort. The global COA will be based largely on recommendations of the affected CCDRs. These GCC COAs may require reiteration or refinement as initial planning apportionments are adjusted for compliance within the global concept of operation. Planners must be aware of competing requirements for potentially scarce, low-density/high- demand, strategic resources such as intelligence collection assets and transportation and ensure global planning is coordinated with GFM procedures.
d. When the President or SecDef selects a COA under global planning procedures and directs that detailed planning be initiated, the CJCS issues an ALERTORD announcing the decision. The Joint Staff or delegated CCDR expands the approved global COA into a CONOPS or base plan and develops the OPLAN or OPORD and supporting TPFDD in coordination with the affected combatant commands and other JPEC members. When the OPLAN or OPORD is complete, the CJCS or delegated CCDR forwards it to the Under Secretary of Defense for Policy for review before final approval by the President or SecDef. When the President or SecDef approves the plan, the CJCS directs the affected combatant commands, Services, and combat support agencies to prepare and submit supporting plans for approval by the CJCS or delegated CCDR.
e. Global planning procedures are also applicable during CAP. Global-crisis conditions exist when CAP procedures are in progress for situations that threaten two or more CCDRs and competing demands for forces and capabilities exceed availability. The CJCS or delegated CCDR is required to mitigate operational seams and vulnerabilities and resolve the conflict over forces, resources, capabilities, or priorities from a global perspective.
f. When the President or SecDef direct execution of the OPORD or OPLAN, they will also select a CCDR as supported commander for implementation of the global plan. In the case of global operations, there could be more than one supported commander for different phases of the operation and different theaters may be in different phases of the operation. Or one CCDR may be designated as supported commander to ensure cross-AOR coordination and the synchronized employment of forces and capabilities, such as global efforts to support counter proliferation and combat weapons of mass destruction (WMD). Global planning procedures do not absolve GCCs of assigned roles and responsibilities in their AORs.
16. Types of Joint Operation Plans and Orders
Joint operation planning encompasses the preparation of a number of planning and execution- related products. Some (such as execute orders and deployment orders) are specific to JOPES. Other products (such as OPLANs, OPORDs, and FRAGORDs) are also developed and used by
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military organizations that have no specific JOPES planning requirements. Figure I-4 lists a number of these products, and the following paragraphs provide brief descriptions.
a. Base Plan. In JOPES, this is a “level 2” planning document (see paragraph 14e) that contains paragraphs one through five of the standard OPLAN format, but does not contain annexes.
b. Concept Plan without TPFDD. In JOPES, this is a “level 3” planning document — an OPLAN in an abbreviated format that would require considerable expansion or alteration to convert it into an OPLAN or OPORD. A CONPLAN contains the basic plan, the commander’s CONOPS, and appropriate annexes (A, B, C, D, J, K, S, V, Y and Z) and appendixes. Unless directed in the JSCP, planners do not calculate detailed support requirements nor prepare TPFDD files.
c. Concept Plan with TPFDD. In JOPES, this is a “level 3” planning document that contains a TPFDD. It typically requires more detailed planning for the phased deployment of forces than does a CONPLAN without TPFDD. Phasing, identification of centers of gravity (COGs), and commander’s intent enhance a clear understanding of what forces are required and when they have to be deployed in order to achieve strategic objectives. A CONPLAN with TPFDD may also be required where the primary purpose is to plan for force movement in support of multinational operations. In this case, the supporting US commander should incorporate
Figure I-4. Joint Operation Planning Products
JOINT OPERATION PLANNING PRODUCTS
Networked collaboration across echelons
Responsive, flexible planning process
Iterative dialogue among senior leaders
Viable, embedded execution options
JOINT OPERATION PLANNING
CRISIS ACTION PLANNING
CONTINGENCY PLANNING
• COMMANDER’S ESTIMATE • BASE PLAN • CONCEPT PLAN (with or
without time-phased force and deployment data)
• OPERATION PLAN • WARNING ORDER
• PLANNING ORDER
• ALERT ORDER
• OPERATION ORDER
• EXECUTE ORDER
• FRAGMENTARY ORDER
• DEPLOYMENT ORDER
Planning Products
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multinational planning considerations to the maximum extent possible. However, the level of detail contained in supporting CONPLANs depends on the detail of the multinational planning that these CONPLANs support.
d. Operation Plan. In JOPES, this is a “level 4” planning document. In general, however, the term OPLAN commonly is used to refer to any complete and detailed plan that contains the base plan, all required annexes with associated appendixes, and a TPFDD file if applicable. Among many other requirements, the OPLAN identifies planning assumptions and the specific forces, functional support, deployment sequence, and resources required to execute the plan. It provides estimates for their movement into the operational area. An OPLAN can be used as a basis for rapid development of an OPORD. OPLANs can cover joint operations of any magnitude, from a single engagement, battle, or noncombat operation to a campaign consisting of multiple major operations and phases. Planning for a campaign is conducted when contemplated military operations exceed the scope of a single major operation. See Chapter IV, “Operational Art and Design,” for more information on campaigns.
e. Supporting Plan. Supporting CCDRs, subordinate JFCs, component commanders, and combat support agencies prepare supporting plans as tasked by the supported commanders in support of their plans. Supporting plans are prepared in OPLAN format and are developed responsively in collaboration with the supported commander’s planners. Supporting commanders or agencies may, in turn, assign their subordinates the task of preparing additional supporting plans. In the absence of instructions to the contrary, supported commanders will specify the level of detail required, and will review and approve supporting plans.
f. Operation Order. An OPORD is a directive issued by a commander to subordinate commanders for the purpose of effecting the coordinated execution of an operation. OPORDs are prepared under joint procedures in prescribed formats during CAP.
g. Fragmentary Order. A FRAGORD is an abbreviated form of an OPORD (verbal, written, or digital), which eliminates the need for restating information contained in a basic OPORD. It is usually issued as needed or on a day-to-day basis.
h. Warning Order. A WARNORD is a planning directive that initiates the development and evaluation of military COAs by a supported commander and requests that the supported commander submit a commander’s estimate.
i. Planning Order. A PLANORD is a planning directive that provides essential planning guidance and directs the initiation of plan development before the directing authority approves a military COA.
j. Alert Order. An ALERTORD is a planning directive that provides essential planning guidance and directs the initiation of plan development after the directing authority approves a military COA. An ALERTORD does not authorize execution of the approved COA.
k. Execute Order. An EXORD is a directive to implement an approved military COA. Only the President and the SecDef have the authority to approve and direct the initiation of
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military operations. The CJCS, by the authority of and at the direction of the President or SecDef, may issue an EXORD to initiate military operations. Supported and supporting commanders and subordinate JFCs use an EXORD to implement the approved CONOPS.
l. Prepare to Deploy Order and Deployment Order. The CJCS, by the authority of and at the direction of the President or SecDef, issues a prepare-to-deploy order (PTDO) or deployment order (DEPORD) to:
(1) Increase or decrease the deployment posture of units.
(2) Transfer forces from one CCDR to another with the gaining CCDR exercising that command authority over the gained forces as specified by the SecDef in the DEPORD.
(3) Deploy or redeploy forces from one CCDR’s AOR to another.
(4) In the case of a PTDO, propose the day on which a deployment operation begins (C-day) and the specific hour on C-day when deployment is to commence (L-hour).
(5) In the case of a DEPORD, establish C-day and L-hour.
(6) Direct any other activity that would signal planned US military action or its termination in response to a particular crisis event or incident.
JOPES Volume I and JOPES Volume II provide the procedures and formats for all JOPES planning directives.
17. Availability of Forces for Joint Operations
Joint operation planning uses four terms — assigned, attached, apportioned, and allocated — to define the availability of forces and resources for planning and conducting joint operations.
a. Assigned. Combatant commanders exercise combatant command (command authority) over assigned forces. Forces are assigned or reassigned when the transfer of forces will be permanent or for an unknown period of time, or when the broadest level of command authority is required or desired. Assigned forces are listed in the Forces for Unified Command Memorandum or as the SecDef designates. A force assigned to a combatant command may be transferred from that command only as directed by the SecDef.
b. Attached. In joint operations, attached forces and resources are placed under the operational control or tactical control of a CCDR or other JFCs for a relatively temporary situation. A force attached to a combatant command may be transferred from that command only as directed by the SecDef.
c. Apportioned. In the general sense, apportionment is the distribution for planning of limited resources among competing requirements. Specific apportionments (such as air sorties and forces for
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planning) are described as apportionment of air sorties and forces for planning, and so forth. The GFM guidance apportions major combat forces for contingency planning. They may include those assigned and those expected through mobilization. They may be more or less than the forces actually allocated for CAP. During force planning, CCDRs assume that apportioned forces will be made available for execution.
d. Allocated. In the general sense, allocation is the distribution at execution of limited resources among competing requirements for employment. Specific allocations (such as air sorties, nuclear weapons, forces, and transportation) are described as allocation of air sorties, nuclear weapons, and so forth. Allocated forces and resources are those provided by the President or SecDef for CAP. The allocation of forces and resources is accomplished in JOPES orders. Allocated augmenting forces become assigned or attached forces when they are transferred to the receiving CCDR. GFM supports allocation in support of specific requests for capabilities and forces as well as allocation in support of combatant command rotational force needs.
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Intentionally Blank
APPENDIX A FLEXIBLE DETERRENT OPTIONS
A-1
“In the Cold War, especially following the Cuban missile crisis, we faced a general status quo, risk-averse adversary. Deterrence was an effective defense. But deterrence based only upon the threat of retaliation is less likely to work against leaders of rogue states more willing to take risks, gambling with the lives of their people and the wealth of their nations…We must adapt the concept of imminent threat to the capabilities and objectives of today’s adversaries.”
The National Security Strategy, September 2002
1. General
Flexible deterrent options are preplanned, deterrence-oriented actions carefully tailored to send the right signal and influence an adversary’s actions. The basic purpose of FDOs is to bring an issue to early resolution without armed conflict. They can be established to dissuade actions before a crisis arises or to deter further aggression during a crisis. FDOs are developed for each instrument of national power — diplomatic, informational, military, and economic, — but they are most effective when used to combine the influence across instruments of national power. FDOs facilitate early strategic decisionmaking, rapid de-escalation, and crisis resolution by laying out a wide range of interrelated response paths. Examples of FDOs for each instrument of national power are listed in Figures A-1 through A-4. Key goals of FDOs are:
a. Deter aggression through communicating the strength of US commitments to treaty obligations and regional peace and stability.
b. Confront the adversary with unacceptable costs for their possible aggression.
c. Isolate the adversary from regional neighbors and attempt to split the adversary coalition.
d. Rapidly improve the military balance of power in the AOR without precipitating armed response from the adversary.
2. Description of Deterrent Actions
a. Deterrence is the prevention from action by fear of the consequences. Deterrence is a state of mind brought about by the existence of a credible threat of unacceptable counteraction. FDOs are deterrent-oriented response options that are requested and may be initiated based on evaluation of indicators of heightened regional tensions.
b. FDOs serve two basic purposes. First, they assist in bringing an issue to early resolution before armed conflict by sending an appropriate message to belligerent parties. Second, they position US forces in a manner that facilitates implementation of OPLANs or OPORDs in the event that hostilities are unavoidable. They also facilitate an early decision by laying out a wide range of interrelated response paths that are carefully tailored to avoid the classic response of
A-2
Appendix A
JP 5-0
“too much, too soon, or too little, too late.” They are initiated before and after unambiguous warning. Although they are not intended to place US forces in jeopardy if deterrence fails, risk analysis should be an inherent step in determining which FDO to use, and how and when that FDO should be used. FDOs have the advantage of rapid de-escalation if the situation precipitating the FDO changes.
3. Flexible Deterrent Option Implementation
The President or SecDef direct FDO implementation, and the specific FDO or combination selected will vary with each situation. Their use will be consistent with US national security strategy. FDOs can be used individually, in packages, sequentially, or concurrently, but are primarily designed to be used in groups that maximize integrated results from all the diplomatic, informational, military, and economic instruments of national power. It is imperative that extensive, continuous coordination occurs with interagency and multinational partners in order to maximize the impact of FDOs.
Figure A-1. Examples of Requested Diplomatic Flexible Deterrent Options
EXAMPLES OF REQUESTED DIPLOMATIC
FLEXIBLE DETERRENT OPTIONS
Alert and introduce special teams (e.g., public diplomacy) Reduce international diplomatic ties Increase cultural group pressure Promote democratic elections Initiate noncombatant evacuation procedures Identify the steps to peaceful resolution Restrict activities of diplomatic missions Prepare to withdraw or withdraw US embassy personnel Take actions to gain support of allies and friends Restrict travel of US citizens Gain support through the United Nations Demonstrate international resolve
A-3
Flexible Deterrent Options
Figure A-2. Examples of Requested Informational Flexible Deterrent Options
EXAMPLES OF REQUESTED INFORMATIONAL
FLEXIBLE DETERRENT OPTIONS
Promote US policy objectives through public policy statements Ensure consistency of strategic communications themes and messages Encourage Congressional support Gain US and international public confidence and popular support Maintain open dialogue with the news media Keep selected issues as lead stories Increase protection of friendly critical information structure Impose sanctions on communications systems technology transfer Implement psychological operations
A-4
Appendix A
JP 5-0
Figure A-3. Examples of Requested Military Flexible Deterrent Options
EXAMPLES OF REQUESTED MILITARY
FLEXIBLE DETERRENT OPTIONS
Increase readiness posture of in-place forces Upgrade alert status Increase intelligence, surveillance, and reconnaissance Initiate or increase show-of-force actions Increase training and exercise activities Maintain an open dialogue with the news media Take steps to increase US public support Increase defense support to public diplomacy Increase information operations Deploy forces into or near the potential operational area Increase active and passive protection measures Ensure consistency of strategic communications messages
A-5
Flexible Deterrent Options
Figure A-4. Examples of Requested Economic Flexible Deterrent Options
EXAMPLES OF REQUESTED ECONOMIC FLEXIBLE DETERRENT OPTIONS
Freeze or seize real property in the United States where possible Freeze monetary assets in the United States where possible Freeze international assets where possible Encourage US and international financial institutions to restrict or terminate financial transactions Encourage US and international corporations to restrict transactions Embargo goods and services Enact trade sanctions Enact restrictions on technology transfer Cancel or restrict US-funded programs Reduce security assistance programs
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JP 5-0
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GLOSSARY PART I — ABBREVIATIONS AND ACRONYMS
GL-1
AFDD Air Force doctrine document ALERTORD alert order AOR area of responsibility
C2 command and control CAP crisis action planning CCDR combatant commander CCIR commander’s critical information requirement C-day unnamed day on which a deployment operation begins CJCS Chairman of the Joint Chiefs of Staff CJCSI Chairman of the Joint Chiefs of Staff instruction CJCSM Chairman of the Joint Chiefs of Staff manual CM consequence management CMO civil-military operations COA course of action COG center of gravity CONOPS concept of operations CONPLAN operation plan in concept format CONUS continental United States COP common operational picture CPG Contingency Planning Guidance
D-day unnamed day on which operations commence or are scheduled to commence
DEPORD deployment order DOD Department of Defense DOS Department of State DSPD defense support to public diplomacy
EXORD execute order
FCC functional combatant commander FDO flexible deterrent option FM field manual FRAGORD fragmentary order
GCC geographic combatant commander GFM Global Force Management
H-hour specific time an operation or exercise begins HNS host-nation support
GL-2
Glossary
JP 5-0
IGO intergovernmental organization IO information operations IPR in-progress review ISR intelligence, surveillance, and reconnaissance
J-2 intelligence directorate of a joint staff J-3 operations directorate of a joint staff J-5 plans directorate of a joint staff J-7 Operational Plans and Joint Force Development Directorate, Joint
Staff JCS Joint Chiefs of Staff JFC joint force commander JFLCC joint force land component commander JIACG joint interagency coordination group JIPOE joint intelligence preparation of the operational environment JOPES Joint Operation Planning and Execution System JOPP joint operation planning process JP joint publication JPEC joint planning and execution community JPG joint planning group JRSOI joint reception, staging, onward movement, and integration JSCP Joint Strategic Capabilities Plan JSPS Joint Strategic Planning System JTF joint task force
LAD latest arrival date L-hour specific hour on C-day at which a deployment operation
commences or is to commence LOC line of communications LOI letter of instruction LOO line of operations
MCDP Marine Corps doctrinal publication MOE measure of effectiveness MOP measure of performance
NDS national defense strategy NGO nongovernmental organization NMCC National Military Command Center NMS National Military Strategy NSC National Security Council NSS national security strategy
OA operational area OPLAN operation plan
GL-3
Glossary
OPORD operation order OSD Office of the Secretary of Defense
PA public affairs PLANORD planning order POLAD political advisor PPBE Planning, Programming, Budgeting, and Execution PTDO prepare-to-deploy order
ROE rules of engagement
SC strategic communication SCG Security Cooperation Guidance SCP security cooperation plan SecDef Secretary of Defense SOF special operations forces
TPFDD time-phased force and deployment data
UCP Unified Command Plan USG United States Government USJFCOM United States Joint Forces Command USSOCOM United States Special Operations Command USSTRATCOM United States Strategic Command USTRANSCOM United States Transportation Command
WARNORD warning order WMD weapons of mass destruction
GL-26
Glossary
JP 5-0
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Assess- ments/
Revision
CJCS Approval
Two Drafts
Program Directive
Project Proposal
J-7 formally staffs with Services and combatant commands
Includes scope of project, references, milestones, and who will develop drafts
J-7 releases Program Directive to Lead Agent. Lead Agent can be Service, combatant command or Joint Staff (JS) Directorate
STEP #2 Program Directive
The combatant commands receive the JP and begin to assess it during use
18 to 24 months following publication, the Director J-7, will solicit a written report from the combatant commands and Services on the utility and quality of each JP and the need for any urgent changes or earlier-than- scheduled revisions
No later than 5 years after development, each JP is revised
STEP #5 Assessments/Revision
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ENHANCED
JOINT
WARFIGHTING
CAPABILITY
Submitted by Services, combatant commands, or Joint Staff to fill extant operational void
J-7 validates requirement with Services and combatant commands
J-7 initiates Program Directive
STEP #1 Project Proposal
All joint doctrine and tactics, techniques, and procedures are organized into a comprehensive hierarchy as shown in the chart above. is the keystone publication. The diagram below illustrates an overview of the development process:
Joint Publication (JP) 5-0 Plans
JOINT DOCTRINE PUBLICATIONS HIERARCHYJOINT DOCTRINE PUBLICATIONS HIERARCHY
JP 1-0 JP 2-0 JP 3-0
PERSONNEL
JP 4-0 JP 5-0 JP 6-0
LOGISTICSINTELLIGENCE OPERATIONS COMMUNICATIONS
SYSTEMPLANS
JOINT
DOCTRINE
PUBLICATION
Lead Agent forwards proposed pub to Joint Staff
Joint Staff takes responsibility for pub, makes required changes and prepares pub for coordination with Services and combatant commands
Joint Staff conducts formal staffing for approval as a JP
STEP #4 CJCS Approval
Lead Agent selects Primary Review Authority (PRA) to develop the pub
PRA develops two draft pubs
PRA staffs each draft with combatant commands, Services, and Joint Staff
STEP #3 Two Drafts
JP 1
JOINT
WARFARE
JP 0-2
UNAAF
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- CHAIRMAN'S PAGE
- PREFACE
- SUMMARY OF CHANGES
- TABLE OF CONTENTS
- EXECUTIVE SUMMARY
- CHAPTER I JOINT STRATEGIC PLANNING
- SECTION A. JOINT STRATEGIC PLANNING — TYPES AND SCOPE
- 1. Introduction
- 2. Joint Strategic Planning
- 3. Security Cooperation Planning
- 4. Force Planning
- 5. Joint Operation Planning
- 6. The Scope of Joint Operation Planning
- SECTION B. ORGANIZATION AND RESPONSIBILITIES
- 7. General
- 8. Joint Planning and Execution Community
- 9. Chairman of the Joint Chiefs of Staff
- 10. Combatant Commanders
- 11. Subordinate Joint Forces
- 12. Combat Support Agencies
- SECTION C. JOINT OPERATION PLANNING
- 13. General
- 14. Joint Operation Planning and Execution System Overview
- 15. Global Planning
- 16. Types of Joint Operation Plans and Orders
- 17. Availability of Forces for Joint Operations
- APPENDIX
- APPENDIX A FLEXIBLE DETERRENT OPTIONS
- APPENDIX B SAMPLE ESTIMATE FORMAT
- APPENDIX C JOINT OPERATION PLAN FORMAT
- APPENDIX D REFERENCES
- APPENDIX E ADMINISTRATIVE INSTRUCTIONS
- GLOSSARY
- PART I — ABBREVIATIONS AND ACRONYMS
- PART II — TERMS AND DEFINITIONS
- FIGURE
- Figure I-1. Joint Strategic Planning
- Figure I-2. The Joint Planning and Execution Community
- Figure I-3. Joint Operation Planning Activities, Functions, and Products
- Figure I-4. Joint Operation Planning Products
- Figure II-1. National Strategic Direction
- Figure III-1. Effects and Command Echelons
- Figure III-2. The Interconnected Operational Environment
- Figure III-3. The Joint Operation Planning Process
- Figure III-4. Mission Analysis Key Steps
- Figure III-5. Mission Analysis
- Figure III-6. Course of Action Characteristics
- Figure III-7. Course of Action Development
- Figure III-8. Course of Action Analysis and Wargaming
- Figure III-9. Sample Wargaming Steps
- Figure III-10. Course of Action Comparison
- Figure III-11. Course of Action Approval
- Figure III-12. Plan Development Activities
- Figure III-13. Plan Review Criteria
- Figure III-14. Commander’s Estimate
- Figure III-15. Functional Staff Estimates
- Figure III-16. Planning During Execution
- Figure III-17. Assessment Levels and Measures
- Figure IV-1. Elements of Operational Design
- Figure IV-2. Characteristics of Centers of Gravity
- Figure IV-3. Identifying Centers of Gravity
- Figure IV-4. Analyzing Critical Factors
- Figure IV- 5. Direct Versus Indirect Approach
- Figure IV-6. Sample Physical Line of Operations
- Figure IV-7. Sample Logical Lines of Operations
- Figure IV-8. Notional Operation Plan Phases
- Figure IV-9. Phasing Model
- Figure A-1. Examples of Requested Diplomatic Flexible Deterrent Options
- Figure A-2. Examples of Requested Informational Flexible Deterrent Options
- Figure A-3. Examples of Requested Military Flexible Deterrent Options
- Figure A-4. Examples of Requested Economic Flexible Deterrent Options
