jp 5-0 doctrine for planning joint operations95).pdfi preface 1. scope joint pub 5-0 is the keystone...

13 April 1995

Doctrine forPlanning

Joint Operations

Joint Pub 5-0

A key ingredient in fighting andwinning wars is joint operations planning.The joint operation planning process entailsthe development of the best possible plansfor potential crises across the range ofmilitary operations involving forces thatcan reasonably be expected in a CINC’sarea of responsibility. We will continue todevelop plans using the collective wisdomavailable among all military planning staffs.

It is essential that we most efficientlyplan to use the remaining resourcesentrusted by American citizens as forces aredownsized. Diverse threats to our nationalinterests frequently require large, complex

operations. The more complex the operation, the more comprehensive the planningmust be to ensure success.

The products of our planning efforts must be able to stand up to the strongestscrutiny, including the ultimate test: execution! It is incumbent upon you to ensurethe plans are firmly rooted in the guidance contained in this publication. Thispublication guides a commander’s development of warfighting and employmentaspects of the plan. Each reader is encouraged to become an expert on this vitalsubject.

JOHN M. SHALIKASHVILIChairman

of the Joint Chiefs of Staff

i

PREFACE

1. Scope

Joint Pub 5-0 is the keystone documentof the joint planning series. It sets forthfundamental principles and doctrine thatguide planning by the Armed Forces of theUnited States in joint or multinationaloperations.

2. Purpose

This publication sets forth doctrine togovern the joint activities and performanceof the Armed Forces of the United Statesin joint operations as well as the doctrinalbasis for US military involvement inmultinational and interagency operations.It provides military guidance for theexercise of authority by combatantcommanders and other joint forcecommanders, as cited in references, andprescribes doctrine for joint operations andtraining. It provides military guidance foruse by the Armed Forces in preparing theirappropriate plans. It is not the intent ofthis publication to restrict the authority ofthe joint force commander (JFC) fromorganizing the force and executing themission in a manner the JFC deems mostappropriate to ensure unity of effort in theaccomplishment of the overall mission.

3. Application

a. Doctrine and guidance established inthis publication apply to the commandersof combatant commands, subunifiedcommands, joint task forces, andsubordinate components of thesecommands. These principles and guidancealso may apply when significant forces ofone Service are attached to forces of anotherService or when significant forces of oneService support forces of another Service.

b. The guidance in this publication isauthoritative; as such, this doctrine will befollowed except when, in the judgment ofthe commander, exceptional circumstancesdictate otherwise. If conflicts arise betweenthe contents of this publication and thecontents of Service publications, thispublication will take precedence for theactivities of joint forces unless the Chairmanof the Joint Chiefs of Staff, normally incoordination with the other members of theJoint Chiefs of Staff, has provided morecurrent and specific guidance.Commanders of forces operating as part ofa multinational (alliance or coalition)military command should followmultinational doctrine and proceduresratified by the United States. For doctrineand procedures not ratified by the UnitedStates, commanders should evaluate andfollow the multinational command’sdoctrine and procedures, where applicable.

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TABLE OF CONTENTS

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PAGE

EXECUTIVE SUMMARY ......................................................................................... vii

CHAPTER IPRINCIPLES AND CONCEPTS

� Introduction .............................................................................................................. I-1

SECTION A. JOINT PLANNING OVERVIEW ...................................................... I-1

� Military Planning ..................................................................................................... I-1� Scope of Joint Operation Planning .......................................................................... I-3

SECTION B. RESPONSIBILITY FOR PLANNING FOR THE EMPLOYMENTOF JOINT FORCES.................................................................................................... I-4

� General ..................................................................................................................... I-4� Chairman of the Joint Chiefs of Staff ...................................................................... I-5� Joint Chiefs of Staff ................................................................................................. I-6� Combatant Commanders .......................................................................................... I-6

SECTION C. CONCEPTS ......................................................................................... I-7

� Single Process .......................................................................................................... I-7� Interoperable Joint Planning and Execution System ............................................... I-7� Joint Operation Planning by the Combatant Commanders ..................................... I-8� Joint Operation Planning and Plans Process ........................................................... I-9� Types of Planning Processes ................................................................................... I-9� Types of Plans and Orders ..................................................................................... I-10� Assigned, Apportioned, and Allocated Forces ...................................................... I-13� Adequacy, Feasibility, Acceptability, and Compliance with Joint Doctrine......... I-13� Coordination With Other Planning ........................................................................ I-14

SECTION D. ORGANIZATION FOR PLANNING............................................... I-16

� Introduction ............................................................................................................ I-16� National Structure .................................................................................................. I-16� Organizing for Joint Planning................................................................................ I-18

SECTION E. PROCEDURES FOR PLANNING JOINT OPERATIONS ............. I-19

� Introduction ............................................................................................................ I-19� JOPES Functions ................................................................................................... I-19

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CHAPTER IISTRATEGIC DIRECTION AND INTEGRATION

� Introduction ............................................................................................................ II-1

SECTION A. NATIONAL SYSTEMS AND PROCESSES ................................... II-1

� Introduction ............................................................................................................ II-1� National Security Council System......................................................................... II-1� Planning, Programming, and Budgeting System................................................... II-2� Joint Strategic Planning System ............................................................................ II-4

SECTION B. SUPPORTING SYSTEMS ................................................................ II-7

� Introduction ............................................................................................................ II-7� Service Planning Systems ...................................................................................... II-8

SECTION C. JOINT STRATEGIC CAPABILITIES PLAN ................................ II-10

� Introduction .......................................................................................................... II-10� JSCP Base Document .......................................................................................... II-10� JSCP Supplemental Instructions .......................................................................... II-12

SECTION D. JOINT MOBILIZATION PLANNING........................................... II-12

� Introduction .......................................................................................................... II-12� Responsibilities .................................................................................................... II-12� Integration Concepts ............................................................................................ II-13� Joint Industrial Mobilization Planning Process (JIMPP) .................................... II-13

SECTION E. EMPLOYMENT PLANNING ........................................................ II-14

� Introduction .......................................................................................................... II-14� Employment Planning ......................................................................................... II-14� Key Planning Concepts ........................................................................................ II-15

SECTION F. CAMPAIGN PLANNING ............................................................... II-18

� Introduction .......................................................................................................... II-18� Campaign Plans ................................................................................................... II-18� Strategic Integration............................................................................................. II-18� Types of Campaign Plans .................................................................................... II-19� Relationship of Campaign Planning to Joint Operation Planning ...................... II-19� Elements of Theater Campaign Plans .................................................................. II-20� Summary .............................................................................................................. II-21

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SECTION G. MULTINATIONAL PLANNING ................................................... II-21

� Introduction .......................................................................................................... II-21� Multinational (Alliance or Coalition) Operations ............................................... II-21� Multinational Planning ........................................................................................ II-21� Review of Alliance and Coalition Plans .............................................................. II-22

CHAPTER IIIJOINT OPERATION PLANNING AND EXECUTION

� Introduction ........................................................................................................... III-1

SECTION A. OVERVIEW ..................................................................................... III-2

� General .................................................................................................................. III-2� JOPES Planning Processes ................................................................................... III-2

SECTION B. DELIBERATE PLANNING PROCESS .......................................... III-3

� Introduction ........................................................................................................... III-3� Planning Cycles and Schedules ............................................................................ III-3� Deliberate Planning Process ................................................................................. III-3

SECTION C. CRISIS ACTION PLANNING ........................................................ III-9

� Introduction ........................................................................................................... III-9� Relationship to Deliberate Planning ..................................................................... III-9� CAP Procedures .................................................................................................. III-10� Deployment Orders, Redeployment Orders, and Deployment Preparation Orders .......................................................................................... III-15

SECTION D. SUMMARY .................................................................................... III-16

� Joint Planning Summary ..................................................................................... III-16

CHAPTER IVASSESSMENT

� Introduction ........................................................................................................... IV-1� Responsibilities ..................................................................................................... IV-1� Integration ............................................................................................................. IV-2� Preparedness and Capability ................................................................................. IV-2

APPENDIX

A References ......................................................................................................... A-1B Administrative Instructions .............................................................................. B-1

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GLOSSARY

Part I�Abbreviations and Acronyms ................................................................. GL-1Part II�Terms and Definitions ........................................................................... GL-3

FIGURE

I-1 Types of Military Planning ........................................................................... I-2I-2 Scope of Joint Operation Planning ............................................................... I-3I-3 The Joint Planning and Execution Community ............................................ I-8I-4 Joint Operation Planning Processes .............................................................. I-9I-5 Types of Joint Operation Plans ................................................................... I-11I-6 JOPES Functions ........................................................................................ I-19II-1 Joint Strategic Planning System ................................................................. II-4II-2 Joint Strategic Planning System Interfaces ................................................ II-6II-3 Developing the JSCP .................................................................................. II-11II-4 Key Planning Concepts .............................................................................. II-15II-5 Fundamentals of Campaign Plans ............................................................. II-20III-1 Joint Publication 5-0 Series Hierarchy ...................................................... III-1III-2 JOPES Deliberate Planning Process and Crisis Action Planning

Process Functional Alignment ............................................................... III-2III-3 The Deliberate Planning Process ............................................................... III-4III-4 Concept Development Phase ..................................................................... III-5III-5 Plan Development Phase ........................................................................... III-6III-6 Time-Phased Force Deployment Data ....................................................... III-7III-7 Comparing Crisis Action Procedures with Deliberate

Planning Procedures ............................................................................ III-10III-8 Summary of Crisis Action Planning Phases ............................................ III-11III-9 Joint Planning Summary .......................................................................... III-17

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Executive Summary

Joint operation planning is conducted within the chain ofcommand that runs from the National Command Authorities(NCA) to the combatant commanders and is primarily theresponsibility of the Chairman of the Joint Chiefs ofStaff and the combatant commanders. Joint operationplanning includes the preparation of operation plans(OPLANs), OPLANs in concept format (CONPLANs),functional plans, campaign plans, and operation orders byjoint force commanders, as well as those joint planningactivities that support the development of these plans andorders. Joint operation planning is a sequential processperformed simultaneously at the strategic, operational, andtactical levels of war.

Joint operation planning encompasses planning for thefull range of activities required for conducting joint opera-tions. These activities include the mobilization, deployment,employment, sustainment, and redeployment of forces.

Mobilization Planning. Primarily the responsibilityof the Services, mobilization planning is directedtoward assembling and organizing national resourcesto support national objectives in times of war and formilitary operations other than war.

Joint Planning Overview

Joint operation planningis directed towardemployment of militaryforces within the contextof a military strategy toattain specified objectivesfor possiblecontingencies.

Planning for jointoperations includes:

Mobilization Planning

Scope of Joint Operation Planning

EXECUTIVE SUMMARYCOMMANDER'S OVERVIEW

•

•

•

•

Covers Joint Operation Planning Processes and Concepts

Discusses Strategic Direction and Integration

Addresses both Deliberate and Crisis Action Planning

Covers the Relationship Between Joint Operation Planningand Assessment

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Deployment Planning. Deployment planning is theresponsibility of the combatant commanders in closecoordination with US Transportation Command.

Employment Planning. Employment planningprescribes how to apply force to attain specifiedmilitary objectives. Employment planning conceptsare developed by the combatant commanders throughtheir component commands.

Sustainment Planning. Sustainment planning isdirected toward providing and maintaining levels ofpersonnel, materiel, and consumables required tosustain the planned type of combat activity for theappropriate duration and at the desired level of intensity.

Redeployment Planning. Redeployment planning isdirected towards the transfer of units, individuals, orsupplies deployed in one area to another, or to anotherlocation within the area, or to the zone of interior forthe purpose of further employment.

Joint operation planning employs an integrated processentailing similar policies and procedures during war andmilitary operations other than war, providing for orderlyand coordinated problem solving and decisionmaking.In its peacetime application, the process is highly structuredto support the thorough and fully coordinated developmentof deliberate plans. In crisis, the process is shortened, asnecessary, to support the dynamic requirements of changingevents. In wartime, the process adapts to accommodategreater decentralization of joint operation planningactivities.

Interoperable planning and execution systems are essentialto effective planning for joint operations. The activities ofthe entire planning community must be integrated throughan interoperable joint system that provides for uniformpolicies, procedures, and reporting structures supportedby modern communications and computer systems. Thesystem designed to provide interoperability is the JointOperation Planning and Execution System (JOPES).JOPES is first and foremost policies and procedures thatguide joint operation planning efforts.

Deployment Planning

Employment Planning

Sustainment Planning

Redeployment Planning

The Joint OperationPlanning and ExecutionSystem (JOPES) providesa single process,interoperable planningand execution.

Planning Concepts

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Executive Summary

Plans are proposed under different processes depending onthe focus of a specific plan. The processes are labeled ascampaign, deliberate, or crisis action planning; however,they are interrelated.

Campaign Planning. Combatant commanderstranslate national and theater strategy into strategic andoperational concepts through the development oftheater campaign plans. The campaign plan embodiesthe combatant commander’s strategic vision of thearrangement of related operations necessary to attaintheater strategic objectives. Campaign planningencompasses both the deliberate and crisis actionplanning processes. If the scope of contemplatedoperations requires it, campaign planning begins withor during deliberate planning. It continues throughcrisis action planning, thus unifying both planningprocesses.

Deliberate Planning. Deliberate planning preparesfor a possible contingency based upon the best availableinformation and using forces and resources apportionedfor deliberate planning by the Joint StrategicCapabilities Plan (JSCP). It relies heavily onassumptions regarding the political and militarycircumstances that will exist when the plan isimplemented. Deliberate planning is conductedprincipally in peacetime to develop joint operationplans for contingencies identified in strategic planningdocuments.

Crisis Action Planning (CAP). CAP is based oncurrent events and conducted in time-sensitivesituations and emergencies using assigned, attached,and allocated forces and resources. Crisis actionplanners base their plan on the actual circumstancesthat exist at the time planning occurs. They followprescribed CAP procedures that parallel deliberateplanning, but are more flexible and responsive tochanging events.

Joint operation planningis categorized as:

Campaign planning

or

Deliberate planning

or

Crisis action planning.

Types of Planning Processes

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Types of Deliberate Plans. Deliberate plans are preparedunder joint procedures and in prescribed formats as eitheran OPLAN, CONPLAN with or without time-phased forceand deployment data (TPFDD), or functional plan.

OPLANs. An OPLAN is a complete and detailedoperation plan containing a full description of theconcept of operations and all required annexes withassociated appendixes. It identifies the specific forces,functional support, deployment sequence, and resourcesrequired to execute the plan and provides closure estimatesfor their movement into the theater. An OPLAN can beused as the basis of a campaign plan (if required) and thendeveloped into an operation order (OPORD).

CONPLAN Without TPFDD . A CONPLAN is anoperation plan in an abbreviated format that wouldrequire considerable expansion or alteration to convert itinto an OPLAN, campaign plan, or OPORD. A CONPLANcontains the Commander of a combatant commands(CINC’s) Strategic Concept and those annexes andappendixes either required by the JSCP or deemed necessaryby the combatant commander to complete planning.

CONPLAN With TPFDD . A CONPLAN with TPFDD isthe same as a CONPLAN except that it requires moredetailed planning for phased deployment of forces.Detailed planning may be required to support a contingencyof compelling interest and critical to national security butis not likely to occur in the near term.

Functional Plans. Functional plans involve the conductof military operations in a peacetime or permissiveenvironment. These plans are traditionally developedfor specific functions or discrete tasks (e.g., nuclearweapon recovery or evacuation, logistics, communications,or continuity of operations) but may also be developed toaddress functional peacetime operations such as disasterrelief, humanitarian assistance, peacekeeping, orcounterdrug operations.

Deliberate Plans areprepared as:

Operation Plans(OPLANs)

OPLANs in ConceptFormat Without Time-Phased Force andDeployment Data

OPLANs in ConceptFormat With Time-Phased Force andDeployment Data

Functional Plans

Types of Deliberate Plans

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Executive Summary

Supporting Plans. Supporting plans are prepared as taskedby the supported combatant commanders in support of theirdeliberate plans. They are prepared by supportingcombatant commanders, subordinate joint forcecommanders, component commanders, or other agencies.

Campaign Plans. Campaign planning can be started priorto or during deliberate planning but is not completed untilcrisis action planning. Campaign planning and principlesare the responsibility of the combatant commander.

Operation Order . OPORDs are prepared under jointprocedures in prescribed formats during crisis actionplanning. They are in the form of a directive issued by acommander to subordinate commanders for the purpose ofeffecting the coordinated execution of an operation.

Assigned forces are those forces that have been placedunder the combatant command (command authority)of a unified commander by the Secretary of Defense in his“Forces For Unified Commands” memo. Forces andresources so assigned are available for normal peacetimeoperations of that command.

Apportioned forces and resources are those madeavailable for deliberate planning as of a certain date.They may include those assigned, those expected throughmobilization, and those programmed. They are apportionedby the JSCP for use in developing deliberate plans and maybe more or less than those allocated for execution planning.

Allocated forces and resources are those provided bythe NCA for execution planning or actual implementation.The allocation of forces and resources is accomplishedthrough procedures established for crisis action planning.

The categories of forceand resource availabilityare:

Assigned

Apportioned

Allocated

Supporting Plans

Campaign Plans and Operation Orders

Assigned, Apportioned, and Allocated Forces and Resources

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Adequacy determines whether the scope and the conceptof planned operations as contained in the CINC’s StrategicConcept satisfy the tasking and will accomplish the mission.Feasible plans accomplish assigned tasks with resourcesthat are available within the time frames contemplated bythe plan. Acceptable plans are proportional and worththe expected cost. They provide for accomplishment ofthe mission with available resources without incurringexcessive losses in personnel, equipment, materiel, time,or position. Operation plans will be consistent with jointdoctrine as stated in approved and test publicationscontained in the Joint Publication System.

The Chairman of the Joint Chiefs of Staff organizes thejoint planning and execution community (JPEC) for jointoperation planning by establishing supported andsupporting command relationships between thecombatant commands. The supported commander is thecombatant commander having primary responsibility forall aspects of a task assigned by the JSCP or other jointoperation planning authority. Supporting commandersprovide augmentation forces or other support to a designatedsupported commander or commanders or developsupporting plans. Such support is provided in accordancewith the principles set forth in Joint Pub 0-2, “UnifiedAction Armed Forces (UNAAF),” and may include thepreparation of plans that support the joint operation plan ofthe supported commander.

The JSCP provides the strategic direction required tocoordinate the planning efforts of the combatantcommanders in pursuit of national strategic objectives andto integrate their efforts with those of the remainder of theJPEC. The JSCP is the link between strategic planningand joint operation planning. It is the primary vehiclethrough which the Chairman of the Joint Chiefs of Staffexercises his responsibility to provide for the preparationof joint operation plans. The JSCP initiates deliberate jointoperation planning by assigning planning tasks to thecombatant commanders, apportioning major combatforces and resources, and issuing planning guidance to

Joint operation plansshould be consistent withjoint doctrine and aredeveloped in conformancewith the criteria ofadequacy, feasibility, andacceptability.

For every operation,supported and supportingcommand relationshipsmust be establishedbetween the combatantcommands.

The Joint StrategicCapabilities Plan providesthe strategic directionrequired to focus thedeliberate planningefforts of the combatantcommanders.

Adequacy, Feasibility, Acceptability, and Consistencywith Joint Doctrine

Organizing for Joint Planning

Joint Strategic Capabilities Plan

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Executive Summary

integrate the joint operation planning activities of the entireJPEC within a coherent, focused framework.

Mobilization is the process by which the Armed Forcesor part of them are brought to a state of readiness forwar or other national emergency. Depending on the threatto be countered, mobilization may range from manpoweraugmentation of the active force to widespread involvementof the nation’s economic, political, and industrial resources.Planning and executing mobilization activities areaccomplished primarily by the Military Departments andServices. However, operation planning for majorcontingencies relies heavily on timely mobilization of thenecessary forces and capabilities.

Employment is the strategic, operational, or tactical useof forces within an operational area. Employmentplanning defines how existing and projected capabilitieswill be used to attain objectives. It involves military actionsrequired to pursue warfare successfully: evaluating enemyactions and capabilities, devising and selecting courses ofaction (COAs), and positioning forces and resources; tocreate advantages in combat and exploit resultingopportunities to attain objectives despite enemy resistance.

Preparation of a campaign plan is appropriate whencontemplated military operations exceed the scope of asingle major operation. Campaign planning is conductedduring both deliberate and crisis action planning. Acampaign is a series of related joint major operationsthat arrange tactical, operational, and strategic actionsto accomplish strategic and operational objectives withina given time and space. It orients on the enemy’s centersof gravity ; achieves simultaneous and synchronizedemployment of all available land, sea, air, space-basedassets, and special operations forces; clearly defines an endstate that constitutes success, failure, mission termination,or exit strategy; and serves as the basis for subordinateplanning. Campaign plans are the operational extensionof a combatant commander’s theater strategy. They translatestrategic concepts into unified plans for military action byspecifying how operations, logistics, and time will be used

Joint mobilizationplanning is the planningfor moving systematicallyand selectively from anormal state of peacetimepreparedness to anappropriate warfightingposture.

Employment planningdefines how existing andprojected capabilities willbe used to obtainobjectives.

The campaign planembodies the combatantcommander’s vision ofthe arrangement ofoperations necessary toattain strategic objectives.

Joint Mobilization Planning

Employment Planning

Campaign Planning

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to attain theater strategic objectives. Campaign planning isa primary means by which combatant commanders arrangefor strategic unity of effort and through which they guidethe planning of joint operations within their theater. Inaddition, by means of a campaign plan, combatantcommanders give the NCA and the Chairman of the JointChiefs of Staff information needed for intertheatercoordination at the national level. Theater campaigns areconducted by joint forces. They may follow more thanone line of operation. Theater campaigns synthesizemobilization, deployment, employment, sustainment, andtheir subordinate operations or campaigns into a coherentwhole. Subordinate campaign plans can be created byjoint task forces or subunified commands if required.All other planning is for operations supporting thecampaign. Campaign planning has its greatest applicationin the conduct of combat operations, but can also be usedin situations other than war. Campaign plans guide thedevelopment of supporting OPLANs or OPORDs andfacilitate national-level coordination of strategic prioritiesand resource allocations. Tasking for strategic requirementsor major contingencies may require the preparation ofseveral alternative plans for the same requirement usingdifferent sets of forces and resources to preserve flexibility.For these reasons, campaign plans are based onreasonable assumptions and are not normally completeduntil after the NCA selects the COA during CAP.Deliberate plans may include elements of campaignplanning, however these elements will have to be updatedas in any deliberate plan used at execution.

Planning for multinational operations is accomplished innational and international channels. Collective securitygoals, strategies, and combined operation plans aredeveloped in accordance with individual treaty or allianceprocedures. Deliberate joint operation planning formultinational operations is performed through nationalchannels but in accordance with US doctrine andprocedures. Coordination of these separate planningchannels is accomplished at the national level throughestablished coalition bodies and at the theater andoperational levels by commanders of combatant commandsor other subordinate joint US commands who areresponsible within both channels for operation planningmatters.

Multinational planning isaccomplished in nationaland internationalchannels.

Multinational Planning

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Executive Summary

The JOPES is the principal system within the Departmentof Defense for translating policy decisions into operationplans and OPORDs in support of national securityobjectives. To accomplish this task, JOPES consists of adeliberate and a crisis action planning process.

Joint operation planning prepares for the use of existingcapabilities to achieve objectives defined in national militarystrategy. The resultant plans are a measurement of thenation’s ability to successfully prosecute the nationalmilitary strategy within the constraints of available forcesand resources. This measurement provides a means ofassessing the balance between strategy and capabilities,determining risks, and focusing the acquisition of additionalresources and capabilities. Assessments derived throughjoint operation planning provide insight into the strengthsand deficiencies of the Nation’s existing militarycapabilities. Consequently, they can be an invaluable sourceof information for force development planning and thedevelopment of national military strategy.

This publication establishes responsibilities for planningfor joint operations. It promulgates doctrine, principles,and concepts that govern: (1) planning for the mobilization,deployment, employment, sustainment, and redeploymentof forces for joint operations; (2) development and executionof joint operation plans, campaign plans, and operationorders; (3) integration of the Joint Operation Planning andExecution System with other joint systems and processes;(4) integration of joint operation planning with theadministrative and logistic functions of the MilitaryDepartments and Services; and (5) use of joint operationplanning to support functions of capability assessment andforce development.

JOPES consists of fivebasic planning functionsand the deliberate andcrisis action planningprocesses.

Joint operation planningplays a vital role inassessing nationalwarfighting capabilitiesand programmingimprovement.

Joint Operation Planning and Execution System

Assessment

CONCLUSION

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“But in truth, the larger the command, the more time must go into planning;the longer it will take to move troops into position, to reconnoiter, toaccumulate ammunition and other supplies, and to coordinate otherparticipating elements on the ground and in the air. To a conscientiouscommander, time is the most vital factor in his planning. By proper foresightand correct preliminary action, he knows he can conserve the most preciouselements he controls, the lives of his men. So he thinks ahead as far as hecan. He keeps his tactical plan simple. He tries to eliminate as many variablefactors as he is able. He has a firsthand look at as much of the ground ascircumstances render accessible to him. He checks each task in the planwith the man to whom he intends to assign it. Then—having secured inalmost every instance his subordinates’ wholehearted acceptance of thecontemplated mission and agreement on its feasibility—only then does heissue an order.”

General Mathew B. Ridgway: The Korean War, (1967)

CHAPTER IPRINCIPLES AND CONCEPTS

I-1

1. Introduction

Planning for the employment of militaryforces is an inherent responsibility of com-mand. Planning is performed at everyechelon of command, and it is conductedacross the range of military operations.

SECTION A. JOINTPLANNING OVERVIEW

2. Military Planning

Military planning includes two broadcategories of planning: force planning andjoint operation planning. (See Figure I-1.)

a. Force Planning. Force planning isassociated with the creation and main-tenance of military capabilities. It isprimarily the responsibility of the MilitaryDepartments, Services, and US SpecialOperations Command (USSOCOM) andis conducted under administrative controlthat runs from the Secretary of Defense tothe Secretaries of the Military Departmentsto the Chiefs of the Services. The Services

recruit, organize, train, equip, and provideforces for assignment to combatant com-mands and administer and support theseforces. USSOCOM has similar responsibilityfor special operation forces, with theexception of organizing Service components.Force planning is outside the scope of thispublication. However, Chapter IV, “Assess-ment,” discusses how joint operationplanning influences force planning.

b. Joint Operation Planning. Jointoperation planning is the focus of thisdocument. It is directed toward theemployment of military forces within thecontext of a military strategy to attainspecified objectives for possible contin-gencies. Joint operation planning isconducted within the chain of command thatruns from the National Command Authorities(NCA) to the combatant commanders andis primarily the responsibility of theChairman of the Joint Chiefs of Staff andthe combatant commanders. At thenational level, the Chairman of the JointChiefs of Staff, in coordination with theChiefs of the Services, is principally

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Joint Pub 5-0

responsible for the unified planning toemploy the Armed Forces in support ofnational security objectives. Joint operationplanning includes the preparation of plans(e.g., operation plans (OPLANs) andcampaign plans) and orders (e.g., operationorders (OPORDs)) by the combatantcommanders as well as those joint planningactivities that support the development ofthese operation plans or orders. Theseactivities also incorporate the functions ofthe Military Departments and Services.Joint operation planning is a sequentialprocess performed simultaneously at thestrategic, operational, and tactical levels ofwar.

• At the strategic level, joint operationplanning involves the development ofstrategic military objectives and tasksin support of national security strategyand the development of force andmateriel requirements necessary toaccomplish those tasks. Strategy is theart and science of developing andemploying armed forces and otherinstruments of national power in asynchronized fashion to secure nationalobjectives. The NCA translates policyinto national strategic militaryobjectives. These military objectivesfacilitate theater strategic planning. Ageographic combatant commander

usually participates in discussions withthe NCA through the Chairman of theJoint Chiefs of Staff and with allies andcoalition members. The combatantcommanders plan at the strategic levelof war through participation in thedevelopment of national militarystrategy, the development of theaterestimates, and theater strategies. Thetheater strategy is thus an element thatrelates to both US national strategyand operational activities within thetheater.

• Joint operation planning at the opera-tional level links the tactical employ-ment of forces to strategic objectives.The focus at this level is on operationalart --the employment of military forcesto attain strategic and/or operationalobjectives through the design, organi-zation, integration, and conduct ofstrategies, campaigns, major operations,and battles. Operational art determineswhen, where, and for what purposemajor forces will be employed andshould influence the enemy dispositionbefore combat. It governs the deploy-ment of those forces, their commitmentto or withdrawal from battle, and thearrangement of battles and majoroperations to achieve operational andstrategic objectives.

Figure I-1. Types of Military Planning

TYPES OF MILITARY PLANNING

JOINT OPERATION PLANNINGFORCE PLANNING

MILITARY PLANNING

Focus of this Pub

I-3

Principles and Concepts

• At the tactical level of planning, tacticsis the employment of units in combat.It includes the ordered arrangement andmaneuver of units in relation to eachother and to the enemy in order to usetheir full potential. Tactics are employedto fight and win engagements and battles.

3. Scope of Joint OperationPlanning

As shown in Figure I-2, joint operationplanning encompasses planning for the fullrange of activities required for conductingjoint operations. These activities include themobilization, deployment, employment,sustainment, and redeployment of forces.

a. Mobilization Planning. Primarily theresponsibility of the Services, mobilizationplanning is directed toward assembling andorganizing national resources to supportnational objectives in time of war and formilitary operations other than war. Mobili-zation planning includes bringing all or partof the Armed Forces of the United States tothe necessary state of readiness to meet therequirements of the specific contingency.Mobilization planning may include planningfor the activation of all or part of the Reserve

components, as well as assembling andorganizing personnel, supplies, and materiel.Joint mobilization planning is discussed inChapter II, “Strategic Direction andIntegration.”

b. Deployment Planning. Deploymentplanning is the responsibility of the suppor-ted combatant commanders in close coordina-tion with the United States TransportationCommand (USTRANSCOM). Deploymentplanning is planning to move forces andtheir sustainment resources from theiroriginal locations to a specific operationalarea to conduct joint operations outlinedin a given plan. It involves planning forthe continental United States (CONUS),intertheater (strategic), and intratheatermovement of forces and the requiredresources to sustain them. Strategicdeployment planning focuses on the inter-theater movement of forces and resourcesusing national, allied and coalition strategicdeployment capabilities.

c. Employment Planning. Employmentplanning prescribes how to apply force/forces to attain specified military objec-tives. Employment planning concepts aredeveloped by the combatant commandersthrough their component commands.Employment planning provides the founda-tion and determines the scope of mobilization,deployment, sustainment, and redeploy-ment planning. Employment planning isdiscussed in Chapter II, “Strategic Directionand Integration.”

d. Sustainment Planning. Sustainmentplanning is directed toward providing andmaintaining levels of personnel, materiel,and consumables required to sustain theplanned levels of combat activity for theestimated duration and at the desired levelof intensity. Sustainment planning is theresponsibility of the combatant commandersin close coordination with the Services andDefense agencies.

SCOPE OFJOINTOPERATION PLANNING

Mobilization Planning

Deployment Planning

Employment Planning

Sustainment Planning

Redeployment Planning

Figure I-2. Scope of JointOperation Planning

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e. Redeployment Planning. Redeploy-ment planning is directed toward the trans-fer of units, individuals, or suppliesdeployed in one area to another area, or toanother location within the area, or to theCONUS for the purpose of further employ-ment. The demobilization of Reserve forcesis considered during redeployment planning.

SECTION B.RESPONSIBILITY FORPLANNING FOR THEEMPLOYMENT OF

JOINT FORCES

4. General

Joint operation planning is an inherentcommand responsibility established by lawand directive. This fundamental respon-sibility extends from the President andSecretary of Defense as the NCA, with theadvice of the Chairman of the Joint Chiefsof Staff, to the combatant commandersand their subordinates in the chain ofcommand. The Chairman of the Joint

Chiefs of Staff transmits the orders of thePresident and the Secretary of Defense, asdirected by the Secretary of Defense, to thecombatant commanders. The Chairman ofthe Joint Chiefs of Staff also oversees theactivities of combatant commands. TheJoint Chiefs of Staff function in the planningprocess in their capacities as advisers to thePresident, National Security Council (NSC),and Secretary of Defense. Although notwithin this branch of the chain of command,the Military Services and their majorlogistic agencies participate in jointoperation planning through execution oftheir responsibilities to: (a) organize, train,equip, and provide forces for assignmentto the combatant commands; (b) administerand support those forces; and (c) prepareplans implementing joint strategic mobility,logistic, and mobilization plans. However,the Chairman of the Joint Chiefs of Staffand the combatant commanders haveprimary responsibility for planning theemployment of joint forces. Their respon-sibilities, as defined in statute and directive,provide the framework for joint planningdoctrine.

The lift capability required to move units from one area to another, or to anotherlocation within the area, is of primary importance in the development ofredeployment plans.

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5. Chairman of the Joint Chiefsof Staff

As the principal military adviser to thePresident, NSC, and Secretary of Defense,the Chairman of the Joint Chiefs of Staff isassigned specific joint operation planningresponsibilities in the areas of strategicdirection, strategic planning, and jointoperation planning. In carrying outfunctions, duties, and responsibilities, theChairman of the Joint Chiefs of Staff will,as he considers appropriate, consult withand seek the advice of the other membersof the Joint Chiefs of Staff and the combatantcommanders. Subject to the direction,authority, and control of the President andthe Secretary of Defense, the Chairmanof the Joint Chiefs of Staff is responsiblefor (per United States Code, title 10):

a. Preparing military strategy andassessments of the associated risk. Thisincludes the following:

• A national military strategy to sup-port national objectives within policyand resource level guidance providedby the Secretary of Defense. Suchstrategy will include the preparation ofbroad military options with the adviceof the other members of the JointChiefs of Staff and the combatantcommanders.

• Net assessments to determine the capa-bilities of the Armed Forces of theUnited States and its allies as comparedto the capabilities of potential adver-saries.

b. Assisting the President and the Secretaryof Defense in providing for the strategicdirection of the Armed Forces of the UnitedStates, including the direction of operationsconducted by the combatant commanders.

c. Preparing strategic plans, includingplans that conform with resource levelsprojected by the Secretary of Defense to beavailable for the period of time for whichthe plans are to be effective.

d. Preparing joint logistic and mobilityplans to support strategic plans andrecommending the assignment of logisticand mobility responsibilities to the MilitaryServices.

e. Advising the Secretary of Defense onthe preparation of policy guidance for thepreparation and review of joint operationplans.

f. Providing for the preparation andreview of joint operation plans thatconform to policy guidance from thePresident and the Secretary of Defense.

g. Preparing joint logistic and mobilityplans to support joint operation plans andrecommending the assignment of logisticresponsibilities to the Armed Forces inaccordance with those plans, and ascertainingthe logistic support available to execute thejoint operation plans of the combatantcommanders (CINCs). The Chairman ofthe Joint Chiefs of Staff will also reviewand recommend to the Secretary of Defenseappropriate logistic guidance for theMilitary Services that, if implemented, willresult in logistic readiness consistent withapproved plans.

h. Advising the Secretary of Defense onthe critical deficiencies and strengths inforce capabilities (including manpower,logistic, and mobility support) identifiedduring the preparation and review of jointoperation plans and assessing the effect ofsuch deficiencies and strengths on meetingnational security objectives and policies andon strategic plans.

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i. Preparing integrated plans for militarymobilization.

j. Reviewing the plans and programsof the combatant commanders to determinetheir adequacy, consistency, acceptability,and feasibility for performing assignedmissions.

k. Participating, as directed, in thepreparation of multinational plans formilitary action in conjunction with thearmed forces of other nations.

6. Joint Chiefs of Staff

The members of the Joint Chiefs of Staffare military advisers to the President, theNSC, and the Secretary of Defense asspecified in subparagraphs a and b.

a. Advice and Opinions of MembersOther Than the Chairman of the JointChiefs of Staff

• When the Chairman of the Joint Chiefsof Staff provides advice to the President,the NSC, or the Secretary of Defense,any member of the Joint Chiefs of Staffmay submit advice or an opinion indisagreement with that of the Chair-man of the Joint Chiefs of Staff oradvice or an opinion in addition to theadvice provided by the Chairman of theJoint Chiefs of Staff. If a membersubmits such advice or opinion, theChairman of the Joint Chiefs of Staffwill present that advice or opinion atthe same time he presents his ownadvice. The Chairman of the JointChiefs of Staff will also, as he considersappropriate, inform the President, theNSC, and the Secretary of Defense ofthe range of military advice andopinion with respect to any matter.

• The Chairman of the Joint Chiefs ofStaff will establish procedures toensure that the presentation of his ownadvice to the President, the NSC, or theSecretary of Defense is not undulydelayed by the submission of theindividual advice or opinion of anothermember of the Joint Chiefs of Staff.

b. Advice on Request. The othermembers of the Joint Chiefs of Staff,individually or collectively, in their capacityas military advisers, will provide adviceto the President, the NSC, or the Secretaryof Defense on a particular matter when thePresident, the NSC, or the Secretary requestssuch advice.

7. Combatant Commanders

The combatant commanders areresponsible for the development andproduction of joint operation plans.During peacetime, they act to deter war andprepare for war by planning for thetransition to and from war and militaryoperations other than war. During war,combatant commanders plan and conductcampaigns and military operations toaccomplish assigned missions. Their jointoperation planning responsibilities aredescribed in the Unified Command Plan(UCP) and Joint Pub 0-2, “Unified ActionArmed Forces, (UNAAF),” and includeconducting operations within assignedgeographic or functional areas.

a. Combatant command responsibilitiesinclude planning and conducting militaryoperations in response to crises, to includemaintaining the security of the commandand protecting the United States and itspossessions and bases against attack orhostile incursion. The Joint StrategicCapabilities Plan (JSCP) tasks the combatant

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commanders to prepare joint operationplans that may be OPLANs, OPLANs inconcept format (CONPLANs) with orwithout time-phased force and deploymentdata (TPFDD), or functional plans.

b. The other planning activities of thecombatant commanders include:

• Conducting strategic estimates.

• Assisting the Chairman of the JointChiefs of Staff in developing nationalmilitary strategy.

• Formulating theater or functionalstrategies in conformance with nationalstrategic plans.

• Developing campaign plans for con-ducting large-scale military operations.

• Preparing and executing joint OPORDsassigned by the Chairman of the JointChiefs of Staff.

• Identifying and planning for contin-gencies not specifically assigned by theChairman of the Joint Chiefs of Staff.

• Preparing plans required to dischargeresponsibilities described in the UCPand the UNAAF.

SECTION C. CONCEPTS

8. Single Process

Planning for joint operations is continu-ous throughout the range of militaryoperations. As such, joint operationplanning employs an integrated processentailing similar policies and proceduresduring war and military operationsother than war, providing for orderly

and coordinated problem solving anddecisionmaking. In its peacetime appli-cation, the process is highly structured tosupport the thorough and fully coordinateddevelopment of deliberate plans. In crisis,the process is shortened, as necessary, tosupport the dynamic requirements ofchanging events. In wartime, the processadapts to accommodate greater decentrali-zation of joint operation planning activities.In all its applications, the basic processremains fundamentally unchanged andprovides a consistent and logical approachfor integrating the activities of the NCA,Chairman of the Joint Chiefs of Staff, othermembers of the Joint Chiefs of Staff,combatant commanders, and all othermembers of the Joint Planning and ExecutionCommunity (JPEC) (see Figure I-3) in acoherent planning and execution process toattain military objectives.

9. Interoperable Joint Planningand Execution System

Interoperable planning and executionsystems are essential to effective planningfor joint operations. The activities of theentire planning community must be inte-grated through an interoperable joint systemthat provides for uniform policies, pro-cedures, and reporting structures sup-ported by modern communications andcomputer systems. The system designed toprovide interoperability is the JointOperation Planning and ExecutionSystem (JOPES). JOPES encompasses theentire JPEC as shown in Figure I-3. JOPESis, first and foremost, policies and pro-cedures that guide joint operation planningefforts. JOPES is the focus of the Joint Pub5-03 series. JOPES Automated Data Pro-cessing (ADP) provides computer support,primarily for transportation planningassociated with deployment operations.

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NSC CIA

STATE DEPARTMENT DOD

CJCS

COMBAT SUPPORT AGENCIES

SUPPORTEDCOMMAND

SUBORDINATECOMMANDERS

SUPPORTINGCOMMANDS

JOPES

SUBORDINATEUNIFIED

COMMANDS

JTF

USTRANSCOMMTMCAMCMSC

COMPONENTCOMMANDS

ARFORAFFORNAVFORSOFMARFORFUNCTIONAL

SERVICESUSAUSAFUSNUSMCUSCG

LOGISTICS AGENCIES

THE JOINT PLANNING AND EXECUTIONCOMMUNITY

NCA

10. Joint Operation Planningby the CombatantCommanders

Joint operation plans are prepared andimplemented by the combatant commanders,subordinate joint force commanders, andother designated component commanderswho perform such planning under thestrategic and operational direction of theNCA and the Chairman of the Joint Chiefsof Staff. In peacetime, these designatedcommanders prepare plans for areas andmissions as directed in the JSCP and othersuch areas as determined by the combatantcommander. Those joint operation plans

Figure I-3. The Joint Planning and Execution Community

tasked in the JSCP for CJCS approval arereviewed by the Joint Staff, Services, andDOD agencies. All other plans are approvedby the CINCs. When directed by the NCAthrough the Chairman of the Joint Chiefsof Staff, deliberate plans may be convertedto campaign plans and OPORDs and imple-mented by the combatant commanders.During crisis situations for which anapproved OPLAN does not exist, thecombatant commanders, in concert withmembers of the JPEC as appropriate, developcourses of action (COAs) in response tospecific situations or tasking and preparecampaign plans and joint OPORDs toexecute COAs approved by the NCA.

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11. Joint Operation Planningand Plans Process

Joint operation planning can occuranywhere within the range of militaryoperations and may be performed deliberatelyor under crisis action conditions. Jointoperation planning is coordinated at thenational level to support Secretary ofDefense Contingency Planning Guidance(CPG), strategic requirements in theNational Military Strategy, and emergingcrises. This is achieved by assigningplanning tasks and relationships among thecombatant commanders and apportioning orallocating them the forces and resourcesavailable to accomplish those tasks.

12. Types of Planning Processes

“Be audacious and cunning in yourplans, firm and persevering in theirexecution, determined to find a gloriousend.”

Clausewitz: Principles of War, (1812)

Plans are proposed under differentprocesses depending on the focus of aspecific plan. The processes are labeledeither campaign, deliberate, or crisis action

planning; however, they are interrelated.(See Figure I-4.) As an example, campaignand crisis action planning for OperationDESERT SHIELD and Operation DESERTSTORM were based on an existing (althoughnot yet completed) deliberate plan.

a. Campaign Planning. Combatantcommanders translate national and theaterstrategy into strategic and operationalconcepts through the development oftheater campaign plans. The campaign planembodies the combatant commander’sstrategic vision of the arrangement ofrelated operations necessary to attaintheater strategic objectives. Campaignplanning encompasses both the deliberateand crisis action planning processes. If thescope of contemplated operations requiresit, campaign planning begins with orduring deliberate planning. It continuesthrough crisis action planning, thus unifyingboth planning processes. As stated in JointPub 1, “Joint Warfare of the Armed Forcesof the United States,” “Campaign planningis done in crisis or conflict (once the actualthreat, national guidance, and availableresources become evident), but the basis andframework for successful campaigns is laidby peacetime analysis, planning, andexercises.” The degree to which the amount

JOINT OPERATION PLANNING PROCESSES

JOINT OPERATION PLANNING

DELIBERATE PLANNING CRISIS ACTION PLANNING

CAMPAIGN PLANNING*

* Based on theater-unique conditions, campaign planning principles will be used todevelop plans and orders.

Figure I-4. Joint Operation Planning Processes

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of work accomplished in deliberate planningmay serve as the core for a campaign planis directly dependent on the particulartheater and objectives. Campaign planningis discussed in Chapter II, “StrategicDirection and Integration.”

b. Deliberate Planning. Deliberateplanning prepares for a possible con-tingency based upon the best availableinformation and using forces and resourcesapportioned for deliberate planning by theJSCP. It relies heavily on assumptionsregarding the political and military circum-stances that will exist when the plan isimplemented. Deliberate planning isconducted principally in peacetime todevelop joint operation plans for contin-gencies identified in strategic planningdocuments. It is accomplished in prescribedcycles that complement other DOD plan-ning systems and is performed in accor-dance with formally established procedures.Deliberate planning is a highly structuredprocess that engages the commanders andstaffs of the entire JPEC in the methodicaldevelopment of fully coordinated, complexplanning for all contingencies and thetransition to and from war. Plans developedduring deliberate planning provide afoundation for and ease the transition tocrisis resolution. Work performed duringthe deliberate planning process allows theJPEC to develop the processes, procedures,and planning expertise that are criticallyneeded during crisis action planning.Deliberate planning is discussed in ChapterIII, “Joint Operation Planning and Execution.”

c. Crisis Action Planning (CAP).Crisis action planning is based on currentevents and conducted in time-sensitivesituations and emergencies using assigned,attached, and allocated forces and resources.Crisis action planners base their plan onthe actual circumstances that exist at the

time planning occurs. They followprescribed crisis action planning proceduresthat parallel deliberate planning, but aremore flexible and responsive to changingevents. The procedures provide for thetimely flow of information and intelligence,rapid execution planning, and the com-munication of the decisions of the NCA tocombatant commanders. Crisis actionplanning and crisis action planning pro-cedures are discussed in Chapter III, “JointOperation Planning and Execution.”

13. Types of Plans and Orders

Plans and operation orders are preparedaccording to deliberate, campaign and crisisaction planning procedures. (See Figure I-5.)

a. Types of Deliberate Plans. Deli-berate plans are prepared under jointprocedures and in prescribed formats aseither an OPLAN, CONPLAN with orwithout TPFDD, or functional plan.Supporting plans are also developed insupport of each of these plans to satisfy thesupported CINC’s planning requirements.The term “operation plan” is a generic termthat includes OPLANs, CONPLANs withor without TPFDD, and Functional Plans.

• OPLANs. An OPLAN is a completeand detailed operation plan containinga full description of the concept ofoperations and all required annexeswith associated appendixes. It identifiesthe specific forces, functional support,deployment sequence, and resourcesrequired to execute the plan andprovides closure estimates for theirmovement into the theater. An OPLANcan be used as the basis of a campaignplan (if required) and then developedinto an OPORD. OPLANs are nor-mally prepared when:

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•• The contingency has a compellingnational interest, a specific threat, iscritical to national security, andrequires detailed prior planning.

•• The nature (large scale) of thecontingency requires detailed priorplanning for complex issues.

•• Detailed planning will contribute todeterrence by demonstrating readinessand resolve.

•• Detailed planning is required to sup-port multinational planning. OPLANsfacilitate the transition to war and,through the development of supportingplans, establish the feasibility of theplan’s concept of operations.

•• Detailed planning is necessary todetermine force and sustainmentrequirements, determine availableresources to fill identified require-ments, and validate shortfalls.

• CONPLANs

•• CONPLANs Without TPFDD. ACONPLAN is an operation plan in anabbreviated format that would requireconsiderable expansion or alteration toconvert it into an OPLAN, campaignplan, or OPORD. A CONPLAN con-tains the CINC’s Strategic Concept,Annexes A-D and K, and other annexesand appendixes either required by theJSCP or deemed necessary by theCINC to complete planning. CONPLANsare generally developed to meetcommon type missions that maydevelop rapidly and require implemen-tation of like action but under markedlydifferent circumstances; e.g., noncom-batant evacuation operations. Unlessspecified in the JSCP, detailed supportrequirements are not calculated andTPFDD files are not prepared.

•• CONPLANs With TPFDD. ACONPLAN with TPFDD is a CONPLAN

CAMPAIGN PLANNING

TYPES OF JOINT OPERATION PLANS

JOINT OPERATION PLANNING

DELIBERATE PLANNING

OPLANCONPLANwith/without

TPFDD

FUNCTIONALPLAN

CAMPAIGNPLAN OPORD

CRISIS ACTION PLANNING

Figure I-5. Types of Joint Operation Plans

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that requires more detailed planningfor phased deployment of forces.Detailed planning may be required tosupport a contingency of compellinginterest and critical to national securitybut is not likely to occur in the nearterm. These conditions require planningassociated with the warfighting/employment aspects of the plan for aclear understanding of the CINC’sconcept of operations. Phasing, centersof gravity, and commander’s intentenhance a clear understanding of whatforces are required and when they haveto be deployed (e.g., TPFDD) in orderto achieve the national objective. ACONPLAN with TPFDD may also berequired where the primary purpose isforce movement planning in supportof alliances. In this case campaignplanning principles should be consi-

dered and incorporated to the maxi-mum extent possible. Recognizing,however, that the level of detailcontained in these plans is dependentupon similarly detailed alliance plan-ning that these CONPLANs support,a campaign orientation may not bepossible in all cases.

• Functional Plans. Functional plansinvolve the conduct of militaryoperations in a peacetime or permis-sive environment. These plans aretraditionally developed for specificfunctions or discrete tasks (e.g.,nuclear weapon recovery or evacua-tion, logistics, communications, orcontinuity of operations) but may bedeveloped to address functional peace-time operations such as disaster relief,humanitarian assistance, peacekeeping,or counterdrug operations. Functionalplans will be written using the JOPESprocedures and formats specified for aCONPLAN (without a TPFDD).

b. Supporting plans are prepared astasked by the supported combatantcommanders in support of their deliberateplans. They are prepared by supportingcombatant commanders, subordinate jointforce commanders, component commanders,or other agencies. These commanders oragencies may, in turn, assign their sub-ordinates the task of preparing additionalsupporting plans. Employment plansnormally are the responsibility of thecommander who will direct the forces whenthe supported plan is implemented. In manycases, however, the political or militarysituation cannot be clearly forecast, soemployment planning may be delayed untilcircumstances require it. In the absence ofCJCS instructions to the contrary, thecombatant commanders responsible for thesupported plans will review and approvesupporting plans.

The time-phased deployment of properlyequipped forces to locations where they can bestbe used is a challenge that planning must solveto achieve national objectives.

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c. Campaign Plans and OperationOrders

• Campaign Plans. Campaign planningcan begin before or during deliberateplanning but is not completed untilcrisis action planning. Campaignplanning and principles are the respon-sibility of the combatant commander.Campaign plan models are containedin proposed Joint Pub 5-00.1, “JointTactics, Techniques, and Proceduresfor Campaign Planning.” Campaignplans are discussed in Chapter II,“Strategic Direction and Integration.”

• Operation Order. OPORDs areprepared under joint procedures inprescribed formats during crisis actionplanning. They are in the form of adirective issued by a commander tosubordinate commanders to effect thecoordinated execution of an operation.

14. Assigned, Apportioned, andAllocated Forces

Joint operation planning uses uniformcategories to define the availability of forcesand resources for planning and conductingjoint operations. Availability categories areassigned, apportioned, and allocated.

a. Assigned. Assigned forces andresources are those in being that have beenplaced under the combatant command(command authority) of a unified com-mander by the Secretary of Defense in his“Forces For Unified Commands” memoran-dum. Forces and resources so assigned areavailable for normal peacetime operationsof that command.

b. Apportioned. Apportioned forcesand resources are those assumed to beavailable for deliberate planning as of aspecified date. They may include those

assigned, those expected through mobiliza-tion, and those programmed. They areapportioned by the JSCP for use in develop-ing deliberate plans and may be more or lessthan the forces actually allocated forexecution planning.

c. Allocated. Allocated forces andresources are those provided by the NCAfor execution planning or actual imple-mentation. The allocation of forces andresources is accomplished through pro-cedures established for crisis actionplanning. In actual implementation,allocated augmenting forces becomeassigned or attached forces when they aretransferred or attached to the receivingcombatant commander.

15. Adequacy, Feasibility,Acceptability, andCompliance with JointDoctrine

Joint operation plans are developed inconformance with the criteria of adequacy,feasibility, acceptability, and compliancewith joint doctrine.

a. Adequacy. Adequacy determineswhether the scope and concept of plannedoperations satisfy the tasking and willaccomplish the mission. Planning assump-tions should provide guidelines for thedevelopment of the plan to increase theeffectiveness of the concept of operations.These assumptions must be reasonable andconsistent with strategic guidance.

b. Feasibility. Feasibleplans accom-plish assigned tasks with resources thatare available within the time framescontemplated by the plan. Measures toenhance feasibility include ensuringeffective employment schemes, sufficiencyof resources and capabilities, and maintain-ing alternatives and reserves.

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c. Acceptability. Acceptable plans areproportional and worth the anticipatedcost. They provide for accomplishment ofthe mission with available resources withoutincurring excessive losses in personnel,equipment, materiel, time, or position. Theyare consistent with the law of war and aremilitarily and politically supportable.

d. Compliance with Joint Doctrine.Operation plans will comply with jointdoctrine as stated in approved and testpublications contained in the Joint Publica-tion System. Incorporation of appropriatejoint doctrine when preparing operationplans facilitates crisis action planning andthe execution of operations.

16. Coordination With OtherPlanning

The validity and utility of joint operationplanning are enhanced when planning iscoordinated with other DOD planningactivities. Deliberate planning is cyclical,and must be integrated with other planningcycles whose primary objectives are thedefinition and assessment of nationalmilitary strategy, the development ofmilitary capabilities, and the managementof resources. Synchronized with otherplanning, joint operation planning promotessynergy and coherence in defense planning.

STRATEGIC PLANNING SYSTEM: THE EARLY YEARS

In the National Security Act of 1947 the first listed duty of the Joint Chiefs ofStaff was “to prepare strategic plans and to provide for the strategic directionof the military forces.” During the first five years following enactment of thebasic legislation the Joint Chiefs of Staff discharged their planningresponsibility in a rather unsystematic manner. Plans were drawn to meetparticular contingencies but they were not prepared or revised on a regularschedule. The plans were not interrelated in a comprehensive system, norwere they scheduled to provide timely guidance for the necessary annualdecisions concerning budgets, force levels, deployments, and mobilization.

Until late in 1949 the unsystematic approach to planning resulted from therelatively small size of the Joint Staff. The National Security Act Amendmentsof that year authorized enlarging the Joint Staff to 210 officers, more thandouble the number previously assigned, but not many months later theoutbreak of the conflict in Korea imposed new requirements on the JCSsupporting organization. Thus, although the Director, Joint Staff, had submittedrecommendations for placing JCS planning on a systematic basis as early asDecember 1949, a formal JCS “Program for Planning” was not adopted untilmid-1952.

On 14 July 1952 the Joint Chiefs of Staff issued JCS Memorandum of Policy(MOP) 84, which called for the preparation each year of joint strategic plansfor the long-, mid-, and short-range. The Joint Long-Range Strategic Estimate(JLRSE) would treat the five-year period starting on 1 July approximately fiveyears after the approval of the estimate by the Joint Chiefs of Staff. It wasdesigned to translate US national policy into long-range supporting militarystrategy and objectives and also provide guidance for research by identifyingdesirable objectives for technical development.

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The Joint Strategic Objectives Plan (JSOP), the mid-range plan, would applyto the four-year period beginning 1 July three years after approval by the JointChiefs of Staff. In addition to providing strategic guidance for the mid-rangeperiod, this plan would provide specific guidance for the pre-D-day developmentof the forces needed to support it and for the preparation of Service budgetrequests for the fiscal year beginning two years after the plan was approved.It would also provide guidance for mobilization planning by the Services andthe Munitions Board. The plan would have three sections. The first wouldprovide guidance for the preparation of the part of the annual budget dealingwith the development of the US and allied military forces needed duringpeacetime and in military conflict short of total war. The second would guidepreparation of the part of the annual budget devoted to supporting the US andallied forces necessary to conduct combat operations during the initial phaseof general war. The third would guide preparation of the part of the annualbudget addressed to developing the additional forces and resources neededprior to D-day for the mobilization base and to meeting mobilizationrequirements during 48 months of general war. To assure the orderlyimplementation, the JSOP was to be ready for JCS consideration by 1 Mayeach year, and the Joint Chiefs of Staff were to give their final approval by 30June.

The Joint Strategic Capabilities Plan (JSCP), the short-range plan, assumedthat D-day would occur on l July following JCS approval. It would guide theemployment of available US and allied military forces under conditions of peace,in limited military conflict, and during the initial phase of general war. It wouldalso guide the expansion of US and allied forces during the first 48 months ofgeneral war. The JSCP would be submitted to the Joint Chiefs of Staff by 1November each year; they would complete action on it by 31 December.

From the first, this planning system failed to operate as anticipated. Under theschedule established by Policy Memorandum 84, the Joint Chiefs of Staffshould have completed the following plans by the end of 1954: two Joint Long-Range Strategic Estimates, covering the period from 1 July 1958 through 30June 1964; two Joint Strategic Objectives Plans, for D-days of 1 July 1956 and1 July 1957; and three Joint Strategic Capabilities Plans for fiscal years1954,1955, and 1956. But the planning tasks had proved more exacting andthe problems of coordination more extensive than expected, and progresshad been hindered even more by the fundamental disagreements among theServices over strategic concepts that the effort revealed. As a result, the JointChiefs of Staff had completed only one plan, the JSCP for FY 1955, and thiswas finished more than three months behind schedule. Two plans were inprogress at the end of 1954: the next JSCP, for FY 1956, and a Joint Mid-RangeWar Plan (JMRWP) for a D-day of 1 July 1957. No JLRSE existed even in draftform and none was in sight within the near future. To complete the two plansunder preparation became the first order of business for the Joint Chiefs ofStaff in the field of strategic planning during the period 1955-1956.

SOURCE: Condit, Kenneth W., “The Joint Chiefs of Staff and NationalPolicy, 1955-1956,” History of the Joint Chiefs of Staff, V ol VI,

Joint Staff Historical Office, 1992.

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SECTION D. ORGANIZATIONFOR PLANNING

17. Introduction

Two factors shape the framework inwhich the planning and execution of jointoperations occur. The first is a permanent-ly established national organization.This structure consists of a hierarchy ofindividuals and organizations with continu-ing responsibilities and relationships. Asecond factor is the process through whichthe permanent organization responds tothe requirements of a specific contingency.

18. National Structure

The national structure for joint operationplanning and execution includes the NCAand the JPEC.

a. National Command Authorities.The ultimate authority for national defenserests with the President. The President isassisted by the NSC, which is the principalforum for the development of nationalsecurity policy. The Secretary of Defenseis the principal adviser to the President forall matters relating to the Department ofDefense and is a member of the NSC. ThePresident and the Secretary of Defense(or their duly authorized alternates orsuccessors) are the NCA, and they aloneare vested with the lawful authority to directthe Armed Forces of the United States inthe execution of military action, includingthe movement of forces or the initiation ofoperations. In peacetime, the Secretary ofDefense issues policy guidance for jointoperation planning and reviews jointoperation plans with the assistance of theUnder Secretary of Defense for Policy. Incrisis and war, the Secretary plays a pivotalrole in crisis action planning and execution.The Chairman of the Joint Chiefs of Staffis the principal military adviser to the NCA.

b. Joint Planning and ExecutionCommunity. The headquarters, com-mands, and agencies involved in planningfor the mobilization, training, preparation,movement, reception, employment, support,and sustainment of forces assigned orcommitted to a theater of war or theater ofoperations are collectively termed theJPEC. The JPEC consists of the Chairmanof the Joint Chiefs of Staff and othermembers of the Joint Chiefs of Staff, theJoint Staff, the Services, the combatantcommands and their component commands,subunified commands, joint task forces(JTFs) (if established), and Defenseagencies (See Figure I-3.)

• Chairman of the Joint Chiefs ofStaff. The Chairman of the JointChiefs of Staff, in coordination withthe other members of the Joint Chiefsof Staff, manages the joint operationplanning process. In peacetime, theChairman assigns planning tasks andresources, establishes planning rela-tionships, and approves joint OPLANs.In crisis and war, the Chairman of theJoint Chiefs of Staff orchestrates thedevelopment of strategic options andCOAs, resolves conflicts in resources,provides recommendations and riskassessments to the NCA, conveys NCAdecisions to the combatant comman-ders, and monitors the deployment andemployment of forces.

• S e r v i c e s . T h e S e r v i c e s a n dUSSOCOM provide interoperableforces for assignment to the combatantcommanders and provide for logisticsupport to the combatant commanders.USSOCOM’s responsibility to equipspecial operations forces (SOF) islimited to special operations-peculiarequipment, materiel, supplies andservices, and Service-common equip-ment specified in appropriate written

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agreements. The Services also maintainreserve forces and prepare for theexpansion of capabilities in time ofwar . For joint operation planning, theServices and USSOCOM make re-commendations regarding the ap-portionment of forces and resourcesto the Joint Staff and, upon approval,identify the specific units and supportto be allocated to the combatantcommanders’ joint operation plans.The Services prepare detailed mobiliza-tion, sustainment, and mobility planscontaining the identification of theactual forces and support allocated.

• Combatant Commands. The com-batant commanders are principallyresponsible for the preparation andimplementation of joint operationplans. During peacetime, theyparticipate in the development ofnational military and theater strategiesand develop operation plans in thedeliberate planning process. This is acontinual process. During crises, theyexpand and refine existing plans ordevelop new plans, and recommend

courses of action. When militaryoperations are required in time ofconflict, combatant commandersconduct joint operations. Campaignsare planned and conducted when thecontemplated military operationsexceed the scope of a single major jointoperation or battle.

• Service Component Commands. TheService componentcommands per-form joint planning functions bothwithin the chain of command and underthe administrative control of theMilitary Departments. Within thechain of command, the Servicecomponent commands recommend theproper force composition and employ-ment of Service forces, provide Serviceforces and support information for jointplanning, and prepare component-leveloperation plans or OPORDs in supportof taskings assigned to the combatantcommands. Under administrativecontrol, the Service component com-mands prepare and execute administra-tive and logistic plans to supportoperating forces.

AEGIS cruisers represent formidable capability and are integral to both deliberateand crisis action planning.

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• Special Operations ComponentCommands. Combatant commanderswith geographic responsibilities estab-lish theater special operations com-mands (SOCs) as subordinate unifiedcommands to serve as the joint forcespecial operations component com-mander (JFSOCC) of their unifiedcommand. Similarly, subordinatejoint force commanders may establisha joint special operations task forcecommander to serve as the JFSOCC ofa subordinate joint force. This indi-vidual typically exercises operationalcontrol or tactical control over assignedand attached forces in order to enhanceunity of effort of special operationsthroughout the joint force. USSOCOMprovides similar support to the theaterSOCs that the Services provide to theirrespective Service component com-mands within the combatant commands.The JFSOCC reports to the joint forcecommander (JFC) and is the principaladviser for special operations withinthe joint force. The JFSOCC providesrecommendations on organization andemployment considerations for SOFand, when directed, prepares compo-nent-level operation plans. Joint Pub3-05, “Doctrine for Joint SpecialOperations,” and Joint Pub 3-05.3,“Joint Special Operations OperationalProcedures,” contain additional infor-mation on special operations.

• Subordinate Joint Commands. Whenestablished, subunified commands andJTFs perform joint planning functionssimilar to those of the combatantcommands for specified missions ordesignated joint operations areas.Such functions are accomplishedunder the direction of the authority thatestablished the subordinate command.

19. Organizing for JointPlanning

The Chairman of the Joint Chiefs of Stafforganizes the JPEC for joint operationplanning by establishing supported andsupporting command relationshipsbetween the combatant commands.(Refer to Joint Pub 0-2, “Unified ActionArmed Forces (UNAAF),” and Joint Pub3-0, “Doctrine for Joint Operations,” for amore complete discussion of such commandrelationships between combatant com-mands and between subordinate commandsof joint forces.) A supported commanderis identified for each planning task, andsupporting commanders, Services,USSOCOM, and agencies are designated asappropriate. This process provides for unityof command in the planning and executionof joint operations and facilitates unity ofeffort within the JPEC.

a. Supported Commander. The sup-ported commander is the combatant com-mander having primary responsibility forall aspects of a task assigned by the JSCPor other joint operation planning authority.In the context of joint operation planning,this term refers to the commander whoprepares operation plans, campaignplans, or operation orders in response toCJCS requirements.

b. Supporting Commanders. Support-ing commandersprovide augmentationforces or other support to a designatedsupported commander or commandersor develop supporting plans. Suchsupport is provided in accordance with theprinciples set forth in Joint Pub 0-2,“Unified Action Armed Forces (UNAAF),”and may include the preparation of plansthat support the joint operation plan of thesupported commander. Under somecircumstances, a commander may be a

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supporting commander for one contingencywhile being a supported commander foranother. USTRANSCOM, US SpaceCommand, US Strategic Command andUSSOCOM perform unique functions insupport of the other combatant commands.For example, USTRANSCOM and itstransportation component commands planand execute the transportation aspects ofworldwide strategic mobility operations,integrate deployment-related ADP systems,and provide centralized wartime trafficmanagement.

SECTION E. PROCEDURESFOR PLANNING JOINT

OPERATIONS

20. Introduction

The joint operation planning processis a coordinated joint staff procedureused by commanders to determine the bestmethod of accomplishing assigned tasksand to direct the actions necessary toaccomplish those tasks. JOPES is used toconduct joint planning. JOPES facilitatesthe building and maintenance of OPLANsand CONPLANs (with or without TPFDDs).It aids in the development of effectiveoptions and OPORDs through adaptationof OPLANs or plan creation in a no-planscenario. JOPES provides policies andprocedures to ensure effective managementof planning operations across the spectrumof mobilization, deployment, employ-ment, sustainment, and redeployment. Aspart of the Worldwide Military Commandand Control System (WWMCCS), JOPESsupports the deployment and transportationaspects of joint operation planning andexecution. (The Global Command andControl System is replacing the WWMCCS.See Chapter II, “Strategic Direction andIntegration,” paragraph 6.c.) DetailedJOPES guidance is provided in the Joint Pub5-03 series.

21. JOPES Functions

JOPES contains five basic planningfunctions--threat identification and assess-ment, strategy determination, course ofaction development, detailed planning, andimplementation as shown in Figure I-6.

a. Threat Identification and Assess-ment. This function involves detectingactual and potential threats to nation-al security, alerting decisionmakers, andthen determining threat capabilities andintentions. This function supports allorganizational levels during planning andexecution. It gives information for strategicplanning and resource allocations at thenational level, by developing courses ofaction and detailed planning at the opera-tional level, and monitoring and adjustingoperations during execution.

b. Strategy Determination. Thisfunction furnishes direction from thenational level for developing courses ofaction. It assists the NCA and the CJCS informulating appropriate options to counterthe threat. Strategy determination involvesformulating politico-military assessments,clearly defining political and militaryobjectives or end states, developing

JOPES FUNCTIONS

Threat Identification & Assessment

Strategy Determination

Course of Action Development

Detailed Planning

Implementation

Figure I-6. JOPES Functions

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strategic concepts and options, apportioningforces and other resources, and formulatingplanning guidance.

c. Course of Action Development.COA development support includes JOPESfunctions that help the supported com-mander’s staff develop and test alternativeCOAs based on NCA/CJCS task assign-ments, guidance, and force and resourceallocation. This facilitates development ofthe CINC’s Strategic Concept in deliberateplanning and the commander’s estimate incrisis action planning.

d. Detailed Planning. This functionsupports preparation of the approvedconcept of operations or COA for imple-mentation. It facilitates the following:

• Development and time-phasing ofdetailed force lists and requiredsustainment.

• Development of directives, schedules,and orders.

• Determination ofsupport require-ments, including medical, civil engi-neering, air refueling, host-nationsupport, and transportation needs.

• Identification and resolution of forceand resource shortfalls and con-straints.

The result is development of detailed, fullyintegrated mobilization, deployment,employment, sustainment, and redeploy-ment activities based on the approvedconcept of operations or COA.

e. Implementation. This function givesdecisionmakers the tools to monitor ,analyze, and manage plan execution.Planning is a cyclic process that continuesthroughout implementation. Of particularimportance is the ability to redirect forces,adjust priorities, or influence events as thesituation unfolds. Implementation usuallyends with some type of replanning effort,such as redeployment or redirection ofoperations.

CHAPTER IISTRATEGIC DIRECTION AND INTEGRATION

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“In total war it is quite impossible to draw any precise line between militaryand non-military problems.”

Winston Churchill: Their Finest Hour, (1949)

1. Introduction

This chapter describes planning thatprovides the strategic context andframework within which joint operationsare planned. The emphasis is on those jointprocesses and plans that provide directionand integrate the JPEC in a unified effortfor joint operation planning and execution.

SECTION A. NATIONALSYSTEMS AND PROCESSES

2. Introduction

This section discusses national-levelsystems and processes that influenceplanning for joint operations. The focusis on the interrelationships and how othernational-level systems complement andsupport the operation planning responsi-bilities identified in Chapter I, “Principlesand Concepts.” Four interrelated defenseplanning systems (the NSC System,the Planning Programming and BudgetingSystem (PPBS), the Joint Strategic PlanningSystem (JSPS), and JOPES) directlyimpact the joint operation planningprocess. This section briefly describes theNSC System, PPBS, and JSPS. Chapter III,“Joint Operation Planning and Execution,”discusses JOPES.

3. National Security CouncilSystem

The NSC system is the principal forumfor deliberation of national security policyissues requiring Presidential decision.The NSC system provides the frameworkfor establishing national strategy and policyobjectives. The NSC develops policyoptions, considers implications, coordinatesoperational problems that require inter-departmental consideration, developsrecommendations for the President, andmonitors policy implementation. TheChairman of the Joint Chiefs of Staffdischarges a substantial part of his statutoryresponsibilities as the principal militaryadviser to the President, the NSC, and theSecretary of Defense through the institu-tional channels of the NSC. The Chairmanof the Joint Chiefs of Staff regularly attendsNSC meetings and presents his views andthose of the other members of the JointChiefs of Staff and the combatant com-manders. The NSC prepares nationalsecurity guidance that, with Presidentialapproval, implements national securitypolicy. These policy decisions provide thebasis for military planning and program-ming.

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4. Planning, Programming, andBudgeting System

The PPBS is another major national-level system related to the joint operationplanning and execution process. The DODmilitary strategy formulation and resourcemanagement system develops and integratesdefense policy, military strategy, Serviceprograms, and the DOD budget. Thissystem’s ultimate objective is the acquisi-tion and allocation of resources to meetthe warfighting needs of the combatantcommanders. The PPBS applies JSPSderived national military strategy andrecommended forces, and translates theminto budgetary requirements to be presentedto Congress. The PPBS encompassesthree phases:

a. Planning. The planning phase of thePPBS articulates the national policy,military strategy, and the force require-ments to support the national defense. Inresponse to guidance from the President andthe Secretary of Defense regarding projectedbudget levels and national security objec-tives, the Chairman of the Joint Chiefsof Staff, in coordination with the othermembers of the Joint Chiefs of Staff, usesthe JSPS to develop national militaryobjectives, strategy, recommendedforces, options, assessments, and evalua-tion of risk for the President’s considera-tion. Following review by the Secretary ofDefense, the President considers therecommendations of the Chairman of theJoint Chiefs of Staff and makes hisstrategy and option decisions, which arethen incorporated in the development of theDefense Planning Guidance (DPG). TheDPG is developed by the Under Secretaryof Defense for Policy in close coordinationwith the Chairman of the Joint Chiefs ofStaff, the combatant commanders, theServices, and others. The final DPG isreviewed by the Chairman of the Joint

Chiefs of Staff, the Chiefs of the Services,the combatant commanders, and othermembers of the Defense Planning ResourcesBoard (DPRB) before being forwarded tothe Secretary of Defense for approval andpublication. The DPG is the link betweenplanning and programming as it articulatesnational defense strategy and appropriateforce structure requirements, together withprogramming guidance sufficient to accom-plish national security objectives to theMilitary Departments, the Defense agencies,and USSOCOM for the development of theirProgram Objective Memorandums (POMs).

b. Programming. The programmingphase of the PPBS focuses on the develop-ment of POMs and the integration ofthose POMs into a coherent defenseprogram to support the warfightingrequirements of the combatant commanders.With the exception of USSOCOM’s specialoperations-unique requirements, thecombatant commanders provide theirrequirements to the Services through theirService components and identify theirhighest priority needs to the Secretary ofDefense and the Chairman of the JointChiefs of Staff by means of the IntegratedPriority List (IPL) . The Military Depart-ments, Defense agencies, and USSOCOMdevelop their POMs based on the combatantcommand requirements and strategicconcepts and guidance contained in theDPG. The POMs express the Services’ totalrequirements and include assessments ofrisk, as well as descriptions of how well thePOMs support the requirements of thecombatant commanders. The Chairman ofthe Joint Chiefs of Staff assesses the overallbalance and adequacy of the compositePOM force and support levels in view ofapproved strategy and the requirements ofthe combatant commanders and documentshis assessment in the Chairman’s ProgramAssessment (CPA). In a coordinated effort,program issues are identified by the

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Strategic Direction and Integration

combatant commanders and DPRB membersand are resolved by the DPRB. The resultsare promulgated in the Secretary’s Pro-gram Decision Memorandum (PDM).The PDM is the link between program-ming and budgeting.

c. Budgeting. The final phase of thePPBS is budgeting. Once the PDMs arereceived, budget estimates are preparedby each of the Military Departments, theDefense agencies, and USSOCOM andsubmitted to the Secretary of Defense. TheDefense budget is reviewed by the Officeof the Secretary of Defense and the Officeof Management and Budget to ensure thatit is consistent with fiscal guidance.

Changes to the budget are documentedin Program Budget Decisions (PBDs).During this final phase of budgeting, theChairman of the Joint Chiefs of Staff, theChiefs of the Services, and the combatantcommanders assess the impact of PBDs onwarfighting capabilities. Their concerns arepresented to the Secretary of Defense.Final changes are incorporated withprevious PBDs to establish the DODportion of the President’s budget, which issubmitted to Congress for funding. Whenthe President signs the congressionalappropriations act into law, the Services,Defense agencies, and USSOCOM exe-cute the budget to procure forces andcapabilities.

WAR PLANNING BY THE WAR COLLEGE

Under Major General Leonard Wood’s reorganization of the War DepartmentGeneral Staff in September of 1910, the War College Division (WCD) was givenresponsibility for preparing plans for the national defense, operating the ArmyWar College (AWC), and handling military intelligence.

At this time, war plans were developed through the interaction of two groups,the War Plans Committee in the WCD and student planning committees in theAWC. Student committees dealt with various geographical areas and wereresponsible for working out details within the existing general plans. In sodoing, they assisted the War Plans Committee, which was charged withfinalizing the contingency plans.

These plans considered various wars that might hypothetically occur.Sometimes, however, developments in the real world added particular urgencyto such planning.

The situation in Mexico in early 1912, for example, prompted a review andrevision of the existing war plan. This plan, in brief, called for a main effort tobe made along the axis Vera Cruz-Mexico City. A secondary thrust was to bemade from the north, from Laredo to Monterrey. Finally, static defense was tobe organized along the entire 1600 mile common border. Several problemareas surfaced during the course of this review. For instance, the plan calledfor 435,000 American troops. There was much head scratching among theplanners as to where these forces would come from since only 35,000 couldbe provided from the regular Mobile Army units in the continental United States.The planners were further discommoded when the Commissary General,Brigadier General Henry G. Sharpe, pointed out that there were no provisionsin the plan for the establishment and operation of a logistical base and line ofcommunications.

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Wood, as Chief of Staff of the Army, was not happy over how his own planningsystem actually worked in practice. Neither the proposed plan nor thecommentary on it from the special staff sections pleased him. They showedthe General Staff in a bad light and suggested that it was an inadequate planningagency. He, therefore, pointed out to the President of the AWC, who alsoserved as Chief of the WCD, that the present plan needed work and that hewould immediately give it his attention.

SOURCE: Hixson, John A., “War Planning by the War College,” published inVignettes of Military History, Vol. II, US Army Military History Research

Collection. Office of Military History, Army War College, 1976.

5. Joint Strategic PlanningSystem

The JSPS is the primary formal meansby which the Chairman of the JointChiefs of Staff, in coordination with theother members of the Joint Chiefs of Staffand the combatant commanders, carries outhis statutory responsibilities required bytitle 10, US Code, 6 April 1991, and furtherdelineated in DOD 5100.1, 25 September1987. CJCS memorandum of policy(MOP) 7, to be revised as CJCSI 3100.01,provides policy and procedures governingthe operation of the JSPS. The purpose andoutputs of the JSPS are summarized inFigure II-1. The central process of the JSPSis the Joint Strategy Review (JSR). TheJSR is a continuous process that assessesthe strategic environment for issues and

factors that affect the National MilitaryStrategy (NMS) in the near-term or thelong-range. It continuously gathers infor-mation; examines current, emerging andfuture issues, threats, technologies, organi-zations, doctrinal concepts, force structuresand military missions; and reviews andassesses current strategy, forces, andnational policy objectives. The JSRfacilitates the integration of strategy, jointoperation planning, and program assess-ment. When significant changes or factorsin the strategic environment are identified,JSR issue papers are presented to theChairman of the Joint Chiefs of Staff, theChiefs of the Services, and the combatantcommanders. These papers will provideentering arguments for proposed changes tothe NMS, Joint Planning Document (JPD),and JSCP and solicit the Chairman’s guid-

JOINT STRATEGIC PLANNING SYSTEM

Chairman of the Joint Chiefs of Staff (CJCS) dischargesstrategic planning responsibilities

Series of complementary documents

CJCS military advice to National Command Authorities

CJCS formal input to Planning, Programming, andBudgeting System

Figure II-1. Joint Strategic Planning System

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ance for changing the military strategy ifrequired. The four products of the JSPS are:

a. National Military Strategy. TheNMS provides the advice of the Chair-man, in coordination with the othermembers of the Joint Chiefs of Staff andthe combatant commanders, to the Presi-dent, the National Security Council, andthe Secretary of Defense on the recom-mended NMS and fiscally constrainedforce structure required to attain nationalsecurity objectives. The NMS is designedto assist the Secretary of Defense in thepreparation of the DPG and to guide thedevelopment of the JSCP. FollowingSecretary of Defense review, the NMS isforwarded to the President. The NMS maybe used to determine the CJCS position onmatters of strategic importance for use inNCA-directed actions.

b. The Joint Planning Document. TheJPD supports the NMS by providingconcise programming priorities , require-ments, or advice to the Secretary ofDefense for consideration during prepara-tion of the DPG. Published as stand-alonedocuments addressing specific functionalareas, JPD volumes are coordinated andcollaborated with the Chiefs of the Services,combatant commanders and Defenseagencies, and serve as a conduit for inputto the DPG.

c. Joint Strategic Capabilities Plan.The JSCP provides guidance to thecombatant commanders and the Chiefs ofthe Services to accomplish tasks andmissions based on current military capabili-ties. It apportions resources to combatantcommanders, based on military capabilitiesresulting from completed program andbudget actions. The JSCP provides acoherent framework for capabilities-basedmilitary advice provided to the NCA. It isreviewed at least biennially for requiredchanges.

d. Chairman’s Program Assessment.The CPA assists the Chairman of theJoint Chiefs of Staff in fulfilling hisresponsibility to provide advice to theSecretary of Defense on how well thePOMs conform to established priorities.It also provides assistance to the Secretaryin decisions concerning the defenseprogram subsequent to receipt of the POMs.The CPA summarizes the views of theChairman on the balance and capabilitiesof the POM force and the support levelsrequired to attain US national securityobjectives.

e. Joint Strategic Planning SystemInteractions. The JSPS is a flexible andinteractive system intended to providesupporting military advice to the DODPPBS and strategic guidance for use inJOPES. The JSPS provides the means forthe Chairman, in coordination with the othermembers of the Joint Chiefs of Staff andthe combatant commanders, to review thenational security environment and USnational security objectives. Additionally,it provides the means to evaluate the threat;assess current strategy and existing orproposed programs and budgets; andpropose military strategy, programs, andforces necessary to achieve those nationalsecurity objectives in a resource-limitedenvironment consistent with policies andpriorities established by the President andthe Secretary of Defense. The JSPS is alsoa formal means by which the other membersof the Joint Chiefs of Staff and the com-batant commanders carry out some of theirstatutory responsibilities. Therefore, theJSPS process must establish the opportunityfor their timely and substantive participationin the development of every JSPS document.As programs are developed and resourcesallocated, JSPS products and JSPS-related documents provide a means toevaluate capabilities and to assess theadequacy and risk associated with theprograms and budgets of the Military

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Departments and Defense agencies and,where appropriate, propose changes tothose programs and budgets in conformitywith strategic priorities. Figure II-2illustrates the various JSPS products andJSPS-related document interfaces.

f. JSPS Plans and Documents. TheJSPS comprises plans and documents thatare described in CJCS MOP 7, to be revisedas CJCSI 3100.01, and will not be super-seded by other documents without theexpress approval of the Chairman, in

coordination with the other members of theJoint Chiefs of Staff.

g. JSPS-Related Assessments andGuidance. In addition to the JSPS plansand documents included in CJCS MOP 7,to be revised as CJCSI 3100.01, assessmentsare performed and planning guidance isissued to support those plans and documents.The following is a list of assessments andguidance that contain critical JSPS-related information and other keydocuments.

Figure II-2. Joint Strategic Planning System Interfaces

CHAIRMAN'SGUIDANCE

Top-Down guidance

JOINT PLANNINGDOCUMENT

CHAIRMAN'S PROGRAMASSESSMENT

Adequacy/CapabilityAssessment of POM Force

NCA GUIDANCECINC/SERVICE/

AGENCY

SECDEF,DEFENSE

PLANNING &RESOURCES

BOARD

SECDEFPRESIDENT

SECDEF

POMs

OPLANDEVELOPMENT

PREPAREDNESSASSESSMENT

DEFENSEPLANNINGGUIDANCE

(DPG)CONTINGENCY

PLANNINGGUIDANCE (CPG)

Strategic VisionDirectionMilitary StrategyFuture EnvironmentsSecurity NeedsOptionsAssessments

Strategic DirectionMilitary StrategyStrategic LandscapeSecurity NeedsPrograms/BudgetsRisk EvaluationStrategic DirectionStrategic PlansOperation PlansLogistic PlansNet AssessmentsCINC Requirements

CINC RequirementsNet AssessmentsPrograms/BudgetsRisk Evaluation

JOINT STRATEGIC PLANNING SYSTEM

NATIONAL MILITARYSTRATEGY

JOINT STRATEGYREVIEW

JOINT STAFF, SERVICE,CINC EFFORT

continuous assessment of theStrategic Environment-

What has changed?

JOINT STRATEGICCAPABILITIES PLAN

Guidance & Tasking forDeliberate Planning

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• Joint Military Net Assessment(JMNA). The JMNA is prepared bythe Chairman in coordination with theother members of the Joint Chiefs ofStaff and the combatant commanders.It is submitted annually to the Secretaryof Defense for his approval andsubmission to Congress in conjunctionwith the submission of the defensebudget. The JMNA fulfills theSecretary of Defense’s statutory dutyto submit to Congress an annualcomprehensive net assessment of thedefense capabilities and programs ofthe Armed Forces of the United Statesand its allies compared with those ofpotential adversaries.

• Logistics Sustainability Analysis(LSA). The LSA of an operation planwill be completed during the develop-ment and maintenance of the com-batant commanders' operational plan.The LSA provides a broad assessmentof key logistic capabilities by:documenting the results of a processthat assures an integrated evaluation ofkey logistic capabilities, identifyinglogistic support short-falls and assess-ing the risks, and providing a baselinefor the Joint Monthly ReadinessReview (JMRR) process. The LSAbuilds upon assessments, which areformed in collaboration with theServices, supporting commanders, andDOD Agencies. The LSA assesses thecombined support capabilities repre-sented by the four pillars of logistics:material, logistic support forces,infrastructure, and lift . The LSAintegrates the assessments of theindividual pillars of logistics byoptimizing and balancing theircontributions as both enablers andconstrainers of logistic support.Preparation of this analysis is a two stepprocess. It begins with the Services andDOD Agencies assessment of their

ability to support the CINC's plan,followed by the CINC's assessment ofthe inputs along with supported com-mander's analysis of theater require-ments and capabilities.

• Defense Planning Guidance. TheDPG furnishes the Secretary ofDefense’s programming and fiscalguidance to the Military Depart-ments for development of departmentPOMs for the defense planningperiod. The DPG includes majorplanning issues and decisions, strategyand policy, strategic elements, theSecretary’s program planning objec-tives, the Defense Planning Estimate,the Illustrative Planning Scenarios, anda series of studies. The DPG is a majorlink between JSPS and the PPBS.

• Contingency Planning Guidance.The CPG fulfills the Secretary ofDefense’s statutory duty to provideannually to the Chairman of the JointChiefs of Staff written policy guid-ance for joint operation planning.The Secretary provides this guidancewith the approval of the President aftercoordination with the Chairman of theJoint Chiefs of Staff. The CPG is theprimary source document for the JSCP.

SECTION B. SUPPORTINGSYSTEMS

6. Introduction

Systems that facilitate joint operationplanning are the WWMCCS and theService planning systems. These systemsand their relationship to joint planning aredescribed below.

a. Worldwide Military Command andControl System. WWMCCS is the systemthat provides the means for operationaldirection and technical administrative

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support for command and control of USmilitary forces. It supports joint operationplanning and implementation. WWMCCSfurnishes the multipath channel of securecommunications that transmits tacticalwarning and assessment intelligence to theNCA and direction from the NCA to thecombatant commanders. WWMCCSconsists of the National Military CommandSystem (NMCS), the command, control,communications, and computer (C4)systems of the combatant commanders, theWWMCCS-related management andinformation systems of the MilitaryDepartments, the C4 systems of the Servicecomponent commands, and the C4 supportsystems of DOD agencies. Informationflow is enhanced by formalized reportingstructures defined in the Joint Pub 1-03series and by standard, compatible ADP C4systems connected in a network of reportingsystems and data bases defined in the JointPub 6-03 series. The ADP system supportsfour basic functional areas: resource andunit monitoring, conventional planning andexecution, nuclear planning and execution,and tactical warning and attack assessmentintelligence.

b. WWMCCS Intercomputer Network(WIN). WIN provides planners with themeans to review, update, and transferdata rapidly between WWMCCS loca-tions. It permits real-time secure com-munications. WIN enables commandersand staffs to work critical compartmentedplans and OPORDs by innate characteristicsof user IDs and other system safeguards.Within WIN, the telecommunicationsnetwork permits access to computerresources at separate WWMCCS locationsand use of those resources. The WIN filetransfer service supports the exchange oflarge volumes of data such as TPFDD filesbetween members of the JPEC. The WINTeleconference enables interconnectedmembers of the JPEC to confer and exchangetextual information simultaneously.

c. Global Command and ControlSystem (GCCS). The GCCS is replacingWWMCCS . GCCS furnishes warfightersat all levels with needed connectivity, rapidaccess, flexibility, and simplicity inoperations for a comprehensive, inter-operable, global command and controlcapability.

d. National Military Command Sys-tem. The NMCS is the priority compo-nent of WWMCCS that supports theNCA and the Joint Chiefs of Staff inexercising their military commandresponsibilities, including planning andexecuting joint operations. It includes theNational Military Command Center(NMCC), the Alternate National MilitaryCommand Center, the National EmergencyAirborne Command Post, and othercommand centers designated by theSecretary of Defense. It also includes thecommunications connecting those commandcenters with the headquarters of thecombatant commanders, Services, and othercommands and agencies that support jointoperation planning via the WWMCCS. TheNMCS also provides coordination withactivities outside the Department ofDefense (e.g., the White House SituationRoom and the Central Intelligence Agency(CIA) Operations Center) that have opera-tion planning and execution functions. TheChairman of the Joint Chiefs of Staff isresponsible to the Secretary of Defense foroperating the NMCS to meet the needs ofthe NCA.

7. Service Planning Systems

The Secretary of each Military Depart-ment is responsible for the associatedServices’ efficiency and its preparedness formilitary operations. Each has Service-unique planning systems that supportplanning for joint operations. Thesesystems incorporate strategic guidance fromJoint Staff documents, program guidance

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from Military Department channels, andpromulgate the guidance of the Chiefs ofthe Services to the component commandersfor joint operation planning. The Servicecomponent commanders receive guidancethrough the chain of command and theadministrative control channel. Thecomponent commanders are the commonlink in these two and support the combatant

commanders. The Service planning sys-tems are documented in the publicationsdescribed in the following subparagraphs.

a. Army Mobilization and OperationsPlanning and Execution System(AMOPES). The AMOPES is an inte-grated planning and execution system usedto ensure that Army capabilities areavailable to support the combatant com-manders during military operations. Itprovides a single source document forissuing policies, procedures, guidance, andplanning assumptions for all levels ofmobilization, as well as for militaryoperations without the involuntary callupof the Reserve component forces. Itprovides policy and guidance for follow-onactivities of military operations to include

redeployment and demobilization.AMOPES provides US Army mobilizationand operations planning guidance, includ-ing the availability, apportionment, andemployment of US Army forces. Annex Rof AMOPES describes the US Army CrisisAction System and its relationships to CJCScrisis action planning.

b. Navy Capabilities and MobilizationPlan (NCMP). The NCMP is the basic USNavy document for transmitting mobiliza-tion and operations planning guidance andfor allocating forces. It provides directionand guidance to second-echelon commands,including the US Coast Guard, responsiblefor developing logistic support and mobili-zation plans.

c. Marine Corps Capabilities Plan(MCP) and Marine Corps MobilizationManagement Plan (MPLAN). The MCPand MPLAN are the basic US Marine Corpsoperations planning documents. The MCPpresents Marine Corps capabilities to jointforce commanders and staffs; providesguidance and information to joint forcecommanders and staffs on the deployment

The National Emergency Airborne Command Post provides the National CommandAuthorities with back-up capability to exercise their military commandresponsibilities.

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and employment of Marine Corps forces;identifies Marine Corps forces apportionedto the unified commanders in the JSCP; andfuses guidance, information, planning, andcapabilities from Services' planning andjoint planning channels and imparts it tojoint force commanders and staffs. TheMPLAN provides policies, procedures, andresponsibilities for the expansion of theMarine Corps to specific levels of mobiliza-tion. MPLAN Volume III contains aprioritized list of Selected Marine CorpsReserve units needed to augment andreinforce the Marine Expeditionary Forcesfor major regional contingencies. It alsocontains information on base, station, andCONUS requirements to support mobiliza-tion and Fleet Marine Force deployments.It is intended to provide information fordeliberate planning and to provide apredictable basis for refining requirementsduring crisis action.

d. Air Force War and MobilizationPlan (WMP). The Air Force WMP,published in six volumes, provides majorcommands and US Air Force staff agencieswith consolidated guidance concerning thesupport of combatant forces and mobiliza-tion planning. The WMP provides consoli-dated lists of OPLANs, lists of combat andsupport forces available to supportOPLANs, planned positioning and use ofaircraft forces in support of joint OPLANs,basic planning factors, and base use.

e. Coast Guard Capabilities Manual(CG CAPMAN) and Coast Guard Logis-tic Support and Mobilization Plan (CGLSMP). The CG CAPMAN and CG LSMPsupport the NCMP and contain operationalguidance and force apportionment forcontingencies and war.

SECTION C. JOINTSTRATEGIC CAPABILITIES

PLAN

8. Introduction

The JSCP provides the strategic direc-tion required to coordinate the planningefforts of the combatant commanders inpursuit of national strategic objectivesand to integrate their efforts with thoseof the remainder of the JPEC. The JSCPis the link between strategic planningaccomplished through the JSPS and jointoperation planning conducted throughJOPES. The major factors used in develop-ing the JSCP are shown in Figure II-3. It isthe primary vehicle through which theChairman of the Joint Chiefs of Staffexercises his responsibility to provide forthe preparation of joint operation plans. TheJSCP and its annexes, as well as theadministrative procedures governing itspreparation, are described in detail in CJCSMOP 7, to be revised as CJCSI 3100.01.The JSCP initiates deliberate jointoperation planning by:

a. Assigning planning tasks to thecombatant commanders.

b. Apportioning major combat forcesand resources.

c. Issuing planning guidance to integratethe joint operation planning activities of theentire JPEC within a coherent, focusedframework.

9. JSCP Base Document

The JSCP base document provides:

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a. A summary of the current nationalmilitary strategy for deterrence and warand a statement of general strategictaskings to combatant commanders. TheJSCP provides the strategic directionrequired to coordinate the efforts of thecombatant commanders in the attainmentof national military objectives.

b. Planning guidance to the combatantcommanders governing the developmentof plans.

c. Planning guidance to the Servicesand Combat Support Agencies for sup-porting the combatant commanders in theexecution of assigned objectives and tasks.

d. A list of major combat forces expectedto be available during the planning periodunder various conditions of mobili-zationand apportionment of those forces to thecombatant commanders for planning.

e. Service- and force-unique infor-mation and limitations on the use of speci-fic forces as required to meet plan taskings.

f. An intelligence estimate for planning.This estimate is an appraisal of availableintelligence relating to a specific situationor condition with a view to determining thecourses of action open to the enemy orpotential enemy and the order of probabilityof their adoption. It will support activitiesduring the JSCP planning cycle.

DEVELOPING THE JOINT STRATEGICCAPABILITIES PLAN (JSCP)

PRINCIPAL DIRECTIONSRegional orientationPeacetime engagementFlexibility

Deterrence and defenseCrisis response optionsStrategic agilityDecisive force

SELECTED STRATEGICCONCEPTS

JSCP

National MilitaryStrategy

Joint PlanningDocument

Defense PlanningGuidance

PLANNINGCONSIDERATIONS

RealisticManageable workloadSimple and understandablePriorities for planningand training

Contingency Planning GuidanceGuidanceTasks

Figure II-3. Developing the JSCP

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10. JSCP SupplementalInstructions

The supplemental instructions to theJSCP provide additional planning guid-ance, capabilities, and amplification oftaskings for planning in specified functionalareas. JSCP supplemental instructions are:

a. CJCSI 3110.02, “Intelligence.”

b. CJCSI 3110.03, “Logistics.”

c. CJCSI 3110.04, “Nuclear.”

d. CJCSI 3110.05, “Psychological.”

e. CJCSI 3110.06, “Special Operations.”

f. CJCSI 3110.07, “Nuclear, Biological,Chemical Defense; Riot Control Agents;and Herbicides.”

g. CJCSI 3110.08, “Mapping, Charting,and Geodesy.”

h. CJCSI 3110.09, “Command andControl Warfare (C2W).”

i. CJCSI 3110.10, “Command, Control,Communications, and Computer Systems.”

j. CJCSI 3110.11, “Mobility.”

k. CJCSI 3110.12, “Civil Affairs.”

l. CJCSI 3110.13, “Mobilization.”

m. CJCSI 3110.14, “Military OperationsOther Than War (MOOTW).”

n. CJCSI 3110.15, “Special TechnicalOperations.”

SECTION D. JOINTMOBILIZATION PLANNING

11. Introduction

Mobilization is the process by whichthe Armed Forces or part of them arebrought to a state of readiness for waror other national emergency. Dependingon the threat to be countered, mobilizationmay range from manpower augmentationof the active force to widespread involve-ment of the nation’s economic, political, andindustrial resources. Planning and execut-ing mobilization activities are accomp-lished primarily by the Military Depart-ments and Services. However, operationplanning for major contingencies reliesheavily on timely mobilization of thenecessary forces and capabilities. Thismandates that joint operation planningand mobilization planning be closelyintegrated. This section describes jointmobilization concepts and plans throughwhich such integration is achieved. Acomprehensive discussion of jointmobilization doctrine is contained in JointPub 4-05, “Mobilization Planning.”

12. Responsibilities

The foundation of joint mobilizationconcepts and procedures is established bystatute. The National Security Act, asamended, delineates broad responsibilitiesfor mobilization.

a. Military Departments and Services.Each of the Military Departments plansfor the expansion of its peacetimecomponents to meet the needs of crisis orwar and submits coordinated mobilizationinformation to the Chairman of the JointChiefs of Staff. Each Service plans for theexpansion of its peacetime components inaccordance with integrated joint mobiliza-tion plans.

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b. Chairman of the Joint Chiefs ofStaff. The Chairman of the Joint Chiefs ofStaff performs specific mobilizationresponsibilities. With the assistance of theJoint Staff and in coordination with theother members of the Joint Chiefs of Staff,the Chairman prepares integrated plansfor military mobilization; provides guid-ance for use by the Military Departments,the Services, and the Defense agencies inthe preparation of their respective detailedplans; and submits general strategicrecommendations for the development ofindustrial mobilization programs to theSecretary of Defense.

13. Integration Concepts

The DOD Master Mobilization Guide(MMG) governs coordinated planningfor mobilization within the Departmentof Defense. The MMG and the DPGprovide the guidance of the Secretary ofDefense relative to mobilization planningto support joint operations. The MMGidentifies mobilization responsibilitiesand describes tasks to be performed inpeacetime and at the time of mobilization.It also delineates functional relationshipsamong DOD components for mobilizationplanning and execution. The Chairman andthe other members of the Joint Chiefs ofStaff amplify the Secretary’s guidance byissuing their guidance for use by theServices and developing integrated plansfor joint mobilization. Based on theguidance of the Secretary of Defense, theMilitary Departments and the Services arerequired to develop coordinated mobiliza-tion plans for assembling, preparing,moving, and supporting mobilized forcesand capabilities. The process for integrat-ing mobilization planning with jointoperation planning is outlined below:

a. The JSCP tasks the combatant com-mander to develop deliberate plans andapportions forces and resources for plan-ning. It contains Service-providedavailability times for major combatforces designated to augment combatantcommands.

b. The mobilization annex of the JSCPprovides guidance to the Services fordeveloping supporting mobilization plansfor those contingencies that require mobili-zation.

c. The combatant commanders, eitherdirectly or through their componentcommands, identify requirements notlisted in the JSCP but required to supportjoint operations. Identified forces areprovided by the Services.

d. The combatant commander devel-ops OPLANs or OPORDs incorporatingService-provided mobilization information.

e. The Services develop detailedmobilization plans to support the OPLANsof the combatant commanders.

f. The Chairman of the Joint Chiefsof Staff reviews the OPLANs of thecombatant commanders to ascertain theeffect of mobilization capabilities on theadequacy and feasibility of joint OPLANs.

14. Joint IndustrialMobilization PlanningProcess (JIMPP)

The goal of the Industrial Prepared-ness Program (IPP) is to provide anindustrial base capable of producingcritical military items essential to thereadiness and sustainment needs of the

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Armed Forces of the United States acrossthe range of military operations. TheJIMPP is the deliberate planning tool thatprovides documented industrial mobiliza-tion plans and analytical processes torespond to a crisis or war. The processunifies industrial mobilization planning andanalytical efforts by focusing on war-fighting requirements and capabilities.The JIMPP is used by the Joint Staff,Services, and Defense agencies to:

a. Estimate the capability of the industrialbase to support execution of OPLANsdeveloped through deliberate planning orCOAs derived through crisis action planning.

b. Establish a baseline national indus-trial mobilization capability assessmentbased on the potential military demandsidentified through the JSPS.

c. Coordinate the industrial mobiliza-tion planning of the Services.

d. Identify and provide DOD industrialmobilization requirements to the IPP.

SECTION E. EMPLOYMENTPLANNING

15. Introduction

This section discusses the role of employ-ment planning in joint operation planning,describes employment planning considera-tions and functions at the national, theater,and subordinate command levels, andintroduces new employment planningconcepts for incorporation into JSCP-taskedplans.

16. Employment Planning

Employment is the strategic, operational,or tactical use of forces within an operationalarea. Employment planning defines how

existing and projected capabilities will beused to attain objectives. It involvesmilitary actions required to pursue warfaresuccessfully: evaluating enemy actions andcapabilities, devising and selecting COAs,and positioning forces and resources tocreate advantages in combat and exploitresulting opportunities to attain objectivesdespite enemy resistance. Employmentplanning influences and drives planningin the other mission areas of jointoperation planning. Mobilization, deploy-ment, sustainment, and redeploymentplanning support the concepts and require-ments developed through employmentplanning. Detailed planning for the actualuse of forces and materiel within theoperational area is normally accomplishedas part of joint operation planning bysubordinate commanders, such as com-ponent and subordinate joint forcecommanders. However, in the broadercontext of joint operation planning, eachlevel of command plans for the employmentof its available forces and resources toachieve specified objectives.

a. National Level. At the national level,strategic plans provide for the global andtheater employment of national capabilitiesto achieve national security and militaryobjectives. This planning considers globalrequirements, national capabilities, and thetheater strategies and campaigns of thecombatant commanders. The JSCP describesstrategic concepts, defines supportingregional objectives, and apportions forcesand resources among the combatant com-manders to attain prioritized nationalobjectives. National strategic planning formobilization, deployment, sustainment, andredeployment is based on the plannedemployment of forces in the individualtheaters.

b. Theater Level. Employment plan-ning at the theater level focuses on

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organizing and positioning assigned andaugmenting forces for the conduct oftheater campaigns or major operationsto attain strategic and/or theater objectives.The combatant commander’s strategicemployment concept defines objectives,organizes forces, arranges and prioritizesoperations, assigns tasks, and prioritizes themovement of forces and support to andwithin the theater. It provides strategicdirection to the employment planning ofsubordinate commands and, when appro-priate, supports alliance, coalition ortreaty plans for the employment ofmultinational forces. Theater strategicemployment planning provides the foun-dation for the concept of operations forjoint OPLANs prepared by the combatantcommander and the framework for mobili-zation, deployment, sustainment, andredeployment planning.

c. Subordinate Level. Subordinatecommands, such as component commandsand subordinate joint force commands,normally accomplish the detailed em-ployment planning for the conduct ofjoint operations to perform missionstasked by the combatant commanders.

When part of an alliance or a coalitionorganization, detailed employment planningis performed within the multinational orbilateral chain of command in support ofmultinational strategies, campaigns, andmissions. Under these circumstances,multinational employment plans becomethe basis for joint OPLANs preparedwithin the US chain of command that planfor moving, preparing, and sustaining USforces dedicated to multinational operations.

17. Key Planning Concepts

To facilitate coordination of strategicpriorities, deliberate and crisis actionplans should contain key planningconcepts that enhance understanding ofthe combatant commander’s strategicvision and the sequence of operationsneeded to attain the commander’stheater objectives. These concepts areshown in Figure II-4.

Because of the ambiguous nature of thethreat in some plans, all of these conceptsmay not be applicable. Where possible,they should at least be considered andidentified in the plan.

KEY PLANNING CONCEPTS

Combatant commander's strategic intent and operational focus.

Orientation on the strategic and operational centers of gravity of thethreat.

Protection of friendly strategic and operational centers of gravity.

Phasing of operations (such as prehostilities, lodgment, decisivecombat and stabilization, follow through, and post hostilities), toinclude the commander's intent for each phase.

To the extent possible, plans should incorporate the following concepts ofjoint operation planning doctrine:

Figure II-4. Key Planning Concepts

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DESERT STORM CAMPAIGN PLAN

General H. Norman Schwarzkopf, in his autobiography, “It Doesn’t Take a Hero,”recounts the events of November 14, 1990, the day he briefed his seniorcommanders on his campaign plan to drive the Iraqi forces from Kuwait duringDesert Storm. After asserting that this would be the most important meetingof the war, General Schwarzkopf acknowledges the twenty-two generals whowere in attendance, commenting “that no other theater commander in historyhad ever been blessed with such an array of talent,” and describes his battleplan...

“The first thing that we’re going to have to do is, I don’t like to use the word‘decapitate,’ so I think I’ll use the word ‘attack,’ leadership, and go after hiscommand and control. Number two, we’ve got to gain and maintain airsuperiority. Number three, we need to cut totally his supply lines. We alsoneed to destroy his chemical, biological, and nuclear capability. And finally,all you tankers, listen to this. We need to destroy—not attack, not damage,not surround—I want you to destroy the Republican Guard. When you’re donewith them, I don’t want them to be an effective fighting force anymore. I don’twant them to exist as a military organization.’ For the benefit of the Vietnamvets—practically the whole room—I emphasized that ‘we’re not going into thiswith one arm tied behind our backs. We’re not gonna say we want to be asnice as we possibly can, and if they draw back across the border that’s finewith us. That’s bullshit! We are going to destroy the Republican Guard.’ If wewere ordered to go on the offensive, we would be free to use our full militarystrength and attack across the border into Iraq.

‘I’m now going to tell you all some stuff that not very many people know about,in Washington particularly,’ I said, and described the four phases of attackwe’d mapped out for Desert Storm: strategic bombing first; then gaining controlof the Kuwaiti skies; then bombing Iraqi artillery positions, trench lines, andtroops. At last I turned to the plan for the ground offensive—a fully realizedversion of the envelopment I’d proposed to [Chairman of the Joint Chiefs ofStaff, General] Powell three weeks before. Using the map, I showed thecommanders where I wanted them to maneuver their units. The plan covereda huge area: in order to make sure we fought the campaign on our own terms,we had extended the boundary of the battlefield westward so that itencompassed a rectangle roughly the size of Pennsylvania. Saddam’s forceswere concentrated at the eastern end, in and around Kuwait. Desert Shieldforces would keep them from moving south; to their east was the natural barrierof the gulf; to their north was the Euphrates, which would become a naturalbarrier once [Joint Force Air Component Commander, Lieutenant General]Chuck Horner’s air force dropped the bridges that crossed it; and to the westwere hundreds of miles of desert that would become our main avenue of attack.

‘I anticipated,’ I said, ‘a four-pronged ground assault.’ Along the Saudi-Kuwaitiborder near the gulf, I wanted two divisions of U.S. Marines and a Saudi taskforce to thrust straight into Kuwait, with the objective of tying up Saddam’sforces and eventually encircling Kuwait City. Nodding in [U.S. MarineCommander in DESERT STORM, Lieutenant General, Walter E.] Boomer’sdirection, I said, ‘I’ll leave it to Walt Boomer to figure out how he wants to do

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that, but it also gives him the capability to come in from the sea with hisamphibious forces.’ I’d reserved a second corridor, in the western part ofKuwait, for a parallel attack by the pan-Arab forces led by two armored divisionsfrom Egypt and another Saudi task force. Their objective would be the roadjunction northwest of Kuwait City that controlled Iraqi supply lines. Eventuallythey would enter Kuwait City and have the dirty job of fighting the Iraqis houseto house if necessary.

Meanwhile from the west would come the U.S. Army’s power punch. Lookingat [Commander, XVIII Airborne Corps, Lieutenant General] Gary Luck, Iindicated a section of Saudi-Iraqi border more than three hundred and fiftymiles inland. ‘I am probably going to send the XVIII Airborne Corps very deep,’I said, showing how I wanted Luck’s divisions to race north from that area tothe Euphrates, blocking the Republican Guard’s last route of retreat. Oncethat sector was secured I told him, he would hook his forces east, ready tojoin the attack on the main body of the Iraqi army. Finally I turned to[Commander, VII Corps, Lieutenant General] Fred Franks. ‘I think it’s prettyobvious what your mission is going to be’, I said, moving my hand along thedesert corridor just to the west of Kuwait, ‘attack through here and destroythe Republican Guard.’ I wanted to pin them with their backs against the sea,and then go in and wipe them out. I couldn’t resist adding, ‘Once they’regone, be prepared to continue the attack to Baghdad. Because there isn’tgoing to be anything else out there.’ I allowed that taking Baghdad wouldprobably be unnecessary, because by then the war would have ended.

After a question-and-answer session I tried to set a tone for the coming months.‘Let me leave you with one thought, guys. In order for this to succeed—becausethe enemy is still going to outnumber us—it is going to take, for lack of abetter word, killer instinct on the part of all of our leaders out there.’ I pointedagain at the map. ‘What I’m saying is when the Marines hit the wire right hereand when the Army forces hit the wire over here...we need commanders in thelead who absolutely, dearly understand that they will get through . And thatonce they’re through they’re not going to stop and discuss it. They are goingto go up there and destroy the Republican Guard. I cannot afford to havecommanders who do not understand that it is attack, attack, attack, attack,and destroy every step of the way. If you have somebody who doesn’tunderstand it, I would strongly recommend that you consider removing himfrom command and putting in somebody that can do the job.

‘Because, let’s face it, the prestige of the United States military is on ourshoulders. But more importantly, the prestige of the entire United States ofAmerica rests on our shoulders. There isn’t going to be anybody else in thisthing except us. There are no more forces coming. What we got is what’sgoing to do the job. And for our country we dare not fail. We cannot fail, andwe will not fail. Anybody in here who doesn’t understand that, get out of theway. Any questions? Okay, good luck to you. You know what needs to bedone.”

SOURCE: General H. Norman Schwarzkopf with Peter Petre: It Doesn’tTake a Hero, Bantam Books, 1992.

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SECTION F. CAMPAIGNPLANNING

18. Introduction

The theater campaign plan embodiesthe combatant commander’s vision of thearrangement of related major operationsnecessary to attain strategic objectives.Preparation of a campaign plan is appro-priate when contemplated military opera-tions exceed the scope of a single majoroperation. Campaign planning is appropriateto both deliberate and crisis action planning.

19. Campaign Plans

A campaign is a series of related jointmajor operations that arrange tactical,operational, and strategic actions toaccomplish strategic and operationalobjectives within a given time and space.A campaign plan describes how a seriesof joint major operations are arrangedin time, space, and purpose to achieve astrategic objective. It orients on theenemy’s centers of gravity; achievessimultaneous and synchronized employ-ment of all available land, sea, air, space-based assets, and special operations forces;clearly defines an end state that constitutessuccess, failure, mission termination, or exitstrategy; and serves as the basis forsubordinate planning. Two of the mostimportant aspects of this plan are thesynchronized employment of forces andthe concept for their sustainment.Campaign plans are the operational exten-sion of a combatant commander’s theaterstrategy. They translate strategic conceptsinto unified plans for military action byspecifying how operations, logistics, andtime will be used to attain theater strategicobjectives. Through theater campaignplans, combatant commanders defineobjectives; describe concepts of operations

and sustainment; arrange operations in time,space, and purpose; organize forces;establish command relationships; assigntasks; and synchronize air, land, sea, space,and special operations, often in coordinationwith allies, interagency operations, non-governmental operations, and even UnitedNations operations. Campaign planningis a primary means by which combatantcommanders arrange for strategic unityof effort and through which they guidethe planning of joint operations withintheir theater. It communicates the com-mander’s purpose, requirements, objectives,and concept to subordinate components andjoint forces, as well as to supportingcommands and Services, so that they maymake necessary preparations. In addition,by means of a campaign plan, combatantcommanders give the NCA and the Chair-man of the Joint Chiefs of Staff informationneeded for intertheater coordination at thenational level.

“In forming the plan of a campaign, it isrequisite to foresee everything theenemy may do, and be prepared withthe necessary means to counteract it.Plans of the campaign may be modifiedad infinitum according to thecircumstances, the genius of thegeneral, the character of the troops,and the features of the country.”

Napoleon Il: Maxims of War, (1831)

20. Strategic Integration

Campaign plans are used by nationalauthorities as well as by subordinates.Submission of a well-conceived campaignplan to the Chairman of the Joint Chiefs ofStaff gives the combatant commander’sestimated time-phased force requirementsfor consolidation with other combatantcommand forecasts at the national level.The campaign plan may be used to

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influence the joint strategic planningprocess. As an example, during OperationDESERT SHIELD, Commander in Chief,US Central Command’s campaign planbriefing to the NCA for the expulsion ofIraqi forces from Kuwait identified therequirement for, and resulted in, thedeployment of a second Army corps toSouthwest Asia.

21. Types of Campaign Plans

a. Theater Campaign. Campaigns areconducted by joint forces. They mayfollow more than one line of operation.Theater campaigns synthesize deploy-ment, employment, sustainment, andsubordinate operations into a coherentwhole. Additional guidance is availablein Joint Pub 3-0, “Doctrine for JointOperations.” Procedures for campaignplanning will be published in Joint Pub5-00.1, “Joint Tactics, Techniques, andProcedures for Campaign Planning.” Thispub is currently in development.

b. Subordinate Campaign. Subordi-nate JFCs may develop subordinatecampaign plans or operation plans thataccomplish (or contribute to the accom-plishment of) theater strategic objectives.Thus, subordinate unified commandstypically develop campaign plans toaccomplish assigned missions. Also, JTFscan develop and execute campaign plansif missions require military operations ofsubstantial size, complexity, and durationand cannot be accomplished within theframework of a single major joint opera-tion. Subordinate campaign plans shouldbe consistent with the strategy, theaterguidance, and direction developed by thecombatant commander and should contri-bute to achieving combatant commandobjectives (see Joint Pub 3-0, “Doctrine forJoint Operations”).

22. Relationship of CampaignPlanning to JointOperation Planning

Campaign planning has its greatestapplication in the conduct of combatoperations, but can also be used in situationsother than war. Campaign plans guide thedevelopment of supporting OPLANs orOPORDs and facilitate national-levelcoordination of strategic priorities andresource allocations. The use of campaignplanning is refocused as the scale ofcontemplated operations and the imminenceof hostilities decreases. During peacetimedeliberate planning, combatant commandersprepare joint OPLANs, including campaignplans, in direct response to taskings in theJSCP. Tasking for strategic requirementsor major contingencies may require thepreparation of several alternative plans forthe same requirement using different setsof forces and resources to preserve flexi-bility. For these reasons, campaign plansare based on reasonable assumptions andare not normally completed until afterthe NCA selects the course of actionduring CAP. Deliberate plans may includeelements of campaign planning, howeverthese elements will have to be updated asin any deliberate plan used at execution.Execution planning conducted is for theactual commitment of forces when conflictis imminent. It is based on the currentsituation and includes deployment andinitial employment of forces. When a crisissituation develops, an assessment isconducted that may result in the issuanceof a CJCS WARNING ORDER. COAs aredeveloped based on an existing OPLAN orCONPLAN, if applicable. The combatantcommander proposes COAs and makes anyrecommendations when the Commander’sEstimate is forwarded to the NCA. TheNCA select a COA and, when directed, the

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Chairman issues a CJCS ALERT ORDER.The combatant commander now has theessential elements necessary for finalizingthe construction of a campaign plan usingthe approved COA as the centerpiece of theplan.

23. Elements of TheaterCampaign Plans

Theater campaign plans are timesensitive, iterative, and adaptive, dependingon the mission and forces available.Fundamentals of campaign plans are shownin Figure II-5.

Provide broad strategic concepts of operations and sustainmentfor achieving multinational, national, and theater strategicobjectives.

Provide an orderly schedule of decisions.

Achieve unity of effort with air, land, sea, space, and specialoperations forces, in conjunction with interagency, multinational,nongovernmental , private voluntary, or United Nations forces, asrequired.

Incorporate the combatant commander's strategic intent andoperational focus.

Identify any special forces or capabilities the enemy has in thearea.

Identify the enemy strategic and operational centers of gravityand provide guidance for defeating them.

Identify the friendly strategic and operational centers of gravityand provide guidance to subordinates for protecting them.

Sequence a series of related major joint operations conductedsimultaneously in depth.

Establish the organization of subordinate forces and designatecommand relationships.

Serve as the basis for subordinate planning and clearly definewhat constitutes success, including conflict terminationobjectives and potential posthostilities activities.

Provide strategic direction; operational focus; and major tasks,objectives, and concepts to subordinates.

Provide direction for the employment of nuclear weapons asrequired and authorized by the National Command Authorities.

FUNDAMENTALS OF CAMPAIGN PLANS

Figure II-5. Fundamentals of Campaign Plans

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result of formal agreements between twoor more nations for broad, long-termobjectives. The North Atlantic TreatyOrganization is one example. Thesealliance operations are technically com-bined operations, though in common usage“combined” is often used as a synonym(though not technically defined as such) forall multinational operations. A coalitionis an ad hoc arrangement between twoor more nations for common action, forinstance, the coalition that defeated Iraqiaggression against Kuwait in the Gulf War,1990-1991.

27. Multinational Planning

Planning for multinational operationsis accomplished in national and inter-national channels. Collective securitygoals, strategies, and combined OPLANsare developed in accordance with individualtreaty or alliance procedures. Deliberatejoint operation planning for multinationaloperations is performed through nationalchannels in accordance with US doctrineand procedures. Therefore, much of theinformation and guidance provided for jointoperations is conceptually applicable toalliance and coalition multinational problemsas well; the fundamental issues are muchthe same for both circumstances. Throughnational planning channels, host-nationsupport and contingency mutual supportagreements are developed to facilitatejoint operations. Coordination of theseseparate planning channels is accomplishedat the national level through establishedcoalition bodies and at the theater andoperational levels by commanders ofcombatant commands or other subordinatejoint US commands, respectively, who areresponsible within both channels foroperation planning matters.

a. Strategic Integration. In support ofeach treaty or alliance, a hierarchicalorganization of bilateral or multilateral

24. Summary

If a campaign plan is required by the size,complexity, and anticipated duration ofmilitary involvement, it will be all encom-passing for the theater. Subordinatecampaign plans can be created by JTFsor subunified commands if required. Allother planning is for operations supportingthe campaign. Campaign plans areapplicable to the deliberate, as well as thecrisis action planning process when theassumptions, mission, forces, and threatcenters of gravity are reasonably welldefined (for example in Korea), andprovide the strategic and operationalframework within which more detailedOPLANs are prepared. Procedures forcampaign planning will be provided in JointPub 5-00.1, “Joint Tactics, Techniques, andProcedures for Joint Campaign Planning.”

SECTION G.MULTINATIONAL PLANNING

25. Introduction

Collective security is a strategic goal ofthe United States, and joint operationplanning will frequently be accomplishedwithin the context of treaty or allianceoperation planning for multinationaloperations. There is no single doctrine formultinational action, and each alliance orcoalition develops its own protocols andoperation plans. Consequently, US plan-ning for joint operations must accommodateand complement the requirements of theNation’s collective security arrangements.

26. Multinational (Alliance orCoalition) Operations

Multinational operations is a collectiveterm to describe military actions con-ducted by forces of two or more nations,typically organized within the structure ofa coalition or an alliance. An alliance is a

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bodies is established to define objectivesand strategy and to coordinate strategicdirection for planning and executingmultinational operations. Generally, thisorganization parallels the US organizationfor national security, and the NCA and theirsenior military and civilian staffs participatein appropriate bodies of the alliance or treatyorganization. Through dual involvement inthe national and international securityprocesses, US leadership provides the meansto integrate national and theater strategicplanning with that of the treaty or allianceorganizations. Within the alliance or treatystructure, US participants ensure that ob-jectives and strategy complement US in-terests and are compatible with US capa-bilities. Within the US national structure,US participants ensure that alliance or treatycommitments are reflected in national militarystrategy and are adequately addressed instrategic direction for joint operation planning.

b. Theater Integration. Joint operationplanning is integrated with alliance or co-alition planning at the theater or opera-tional level by the commander of US na-tional forces dedicated to the alliance orcoalition military organization. Normally,this will be the combatant commander orthe commander of the subunified commandor JTF responsible for the geographic areawithin which multinational operations areto be planned and executed. These com-manders function within the US chain ofcommand and that of multinational orga-nizations. Within alliance and coalitionorganizations, they command or support thedesignated commander of multinationalforces and plan, as appropriate, for multi-national employment in accordance withstrategic direction and guidance emanatingfrom treaty or alliance leadership. Withinthe US chain of command, they commandjoint US forces and prepare joint operation

plans in response to taskings from the NCAand the Chairman of the Joint Chiefs ofStaff. These taskings include developingjoint OPLANs to support each treaty oralliance commitment within the geographicarea of responsibility and planning forunilateral US contingencies within the samearea. In this dual capacity within the USand alliance or coalition chains of command,the US commander coordinates alliance orcoalition planning with joint operationplanning.

c. Bilateral Planning. When directedby the NCA through the Chairman of theJoint Chiefs of Staff, designated UScommanders participate directly with thearmed forces of other nations in preparingbilateral OPLANs. Bilateral operation plan-ning involves the preparation of combined,mutually developed and approved plansgoverning the employment of the forces oftwo nations for a common contingency.Bilateral planning may be accomplishedwithin the framework of a treaty or allianceor in the absence of such arrangements.Bilateral planning is accomplished inaccordance with specific guidance providedby the NCA and the Chairman of the JointChiefs of Staff.

28. Review of Alliance andCoalition Plans

US joint strategic or operation plansprepared in support of alliance andcoalition objectives and plans are devel-oped, reviewed, and approved exclusivelywithin US operational channels. Theyare not shared in total with alliance orcoalition partners. Selected portions and/or applicable planning and deployment datamay be released in accordance withapplicable CJCS Instructions. Coordinationwith alliance and coalition planning is

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attained through US representatives andcommanders within each collective securityorganization and through the formalexchange of information in mutuallydevised forums, documents, and plans. Thereview and approval of alliance andcoalition plans is accomplished in accor-dance with unique procedures adoptedby each alliance or coalition organization

French troops prepare for a formation of the multinational coalition, which wasformed to defeat Iraqi aggression against Kuwait during Operation DESERTSHIELD/STORM.

and may or may not include separate USreview or approval. Bilateral operationplans routinely require national level USapproval. Joint Pub 5-03.1, “Joint Opera-tion Planning and Execution System,Volume I, (Planning Policies and Pro-cedures),” describes review and approvalprocedures for joint and multinationaloperation plans.

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Intentionally Blank

CHAPTER IIIJOINT OPERATION PLANNING AND EXECUTION

III-1

Figure III-1. Joint Publication 5-0 Series Hierarchy

“A good plan violently executed Now is better than a perfect plan next week.”

George S. Patton, Jr.: War As I Knew It, (1947)

1. Introduction

Joint operations are planned and im-plemented through prescribed processesthat integrate the NCA, the Chairman andthe other members of the Joint Chiefs ofStaff, and combatant commanders withina unified planning system. This chapter

describes the formal process for planningjoint operations and the planning andexecution systems that govern such activities.This publication is broad in scope. Moredetailed guidance can be found in otherJoint Pub 5-0 series publications as shownin Figure III-1.

DOCTRINE FOR PLANNING JOINTOPERATIONS

KEYSTONE PUBLICATION

JOINT PUBLICATION 5-0 SERIES HIERARCHY

JOINT PUB 5-0

JOINT OPERATIONPLANNING AND

EXECUTION SYSTEMVOLUME I

PLANNING POLICIESAND PROCEDURES

These joint pubs are beingrevised. They are beingupdated and republished asCJCS instructions.

JP 5-03.1JP 5-03.11JP 5-03.2JP 5-03.21

JOINT TACTICS,TECHNIQUES, ANDPROCEDURES FORJOINT CAMPAIGN

PLANNING

JOINT PUB 5-00.1

JOINT TASK FORCEPLANNING GUIDANCE

AND PROCEDURES

JOINT PUB 5-00.2

JOINT PUB 5-03.1


EXECUTION SYSTEMVOLUME III

AUTOMATED DATAPROCESSING SUPPORT

JOINT PUB 5-03.3

JOINT PUB 5-03.21


EXECUTION SYSTEMVOL II, SUPPLEMENTALPLANNING FORMATS

AND GUIDANCE(CLASSIFIED)

*

*JOINT OPERATION

PLANNING ANDEXECUTION SYSTEM

EXECUTION PLANNING

JOINT PUB 5-03.11 *

*JOINT OPERATION

PLANNING ANDEXECUTION SYSTEM

VOLUME IIPLANNING FORMATS

AND GUIDANCE

JOINT PUB 5-03.2 *

- CJCSI 3122.01- CJCSM 3122.02- CJCSI 3122.03- CJCSI 3122.04

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SECTION A. OVERVIEW

2. General

The JOPES functions described inChapter I, “Principles and Concepts,”emphasize joint operation planning fordeterrence and effective transition towar. The preparation of joint operationplans by combatant commanders inresponse to strategic direction from theNCA and the Chairman of the Joint Chiefsof Staff, taken in conjunction with otherDOD planning cycles, constitute thenational strategy for military response to thefull spectrum of potential threats identifiedthrough the national security planning

process. Therefore, JOPES provides themeans to respond to emerging crisissituations or transition to war throughrapid, coordinated execution planningand implementation.

3. JOPES Planning Processes

JOPES is the principal system within theDepartment of Defense for translatingpolicy decisions into operation plans andOPORDs in support of national securityobjectives. To accomplish this task, JOPESconsists of a deliberate and a crisisplanning process as shown in Figure III-2.The focus of this chapter is on these twoprocesses.

Figure III-2. JOPES Deliberate Planning Process and Crisis ActionPlanning Process Functional Alignment

JOPES DELIBERATE PLANNING PROCESS AND CRISISACTION PLANNING PROCESS FUNCTIONAL ALIGNMENT

DELIBERATEPLANNINGPROCESS

CRISIS ACTIONPLANNINGPROCESS

APPROVED FORFURTHER PLANNING

PHASE IINITIATION

PHASE IICONCEPT

DEVELOPMENT

PHASE IIIPLAN

DEVELOPMENT

PHASE IVPLAN

REVIEW

PHASE VSUPPORTING

PLANS

ALERTORDER

EXECUTEORDER

PHASE ISITUATION

DEVELOPMENT

PHASE IIICOA

DEVELOPMENT

PHASE IVCOA

SELECTION

PHASE VEXECUTIONPLANNING

PHASE IICRISIS

ASSESSMENT

PHASE VIEXECUTION

THREATIDENTIFICATION &ASSESSMENT

STRATEGYDETERMINATION

COADEVELOPMENT

DETAILEDPLANNING

WARNINGORDER

JSCP

IMPLEMENTATION

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Joint Operation Planning and Execution

SECTION B. DELIBERATEPLANNING PROCESS

“In times of peace the general staffshould plan for all contingencies of war.Its archives should contain thehistorical details of the past and allstatistical, geographical, topographical,and strategic treatises and papers forthe present and future.”

Jomini: Precis de l’ Art de laGuerre, (1838)

4. Introduction

This section describes how the jointoperation planning process is appliedduring peacetime to develop jointOPLANs, CONPLANs (with and withoutTPFDD) or functional plans to support thenational military strategy. Deliberateplanning involves the participation of theentire JPEC in a coordinated planning effortto counter potential threats with availableresources.

5. Planning Cycles andSchedules

The process for joint operation planningbegins when a requirement is identified andcontinues until the requirement no longerexists. Deliberate planning is performedin a continuous cycle that complementsand supports other DOD planning cycles.A new deliberate plan usually begins withthe publication of a change to the JSCP. Thedeliberate planning cycle usually beginswith the publication of a new JSCP. Incoordination with the JPEC, the Joint Staffdevelops and issues a planning schedule thatcoordinates plan development activities andestablished submission dates for jointOPLANs.

6. Deliberate Planning Process

Deliberate planning is accomplished infive phases: initiation, concept develop-ment, plan development, plan review, andsupporting plans. See Figure III-3.

a. Initiation. Planning tasks areassigned to supported commanders,forces and resources are apportioned, andplanning guidance is issued during thisphase. The JSCP links the JSPS to jointoperation planning, identifies broadscenarios for plan development, specifiesthe type of plan required (i.e., OPLANs,CONPLANs [with or without TPFDDs] orfunctional plans) and provides additionalplanning guidance as necessary. Acombatant commander may also initiatedeliberate planning by preparing plans notspecifically assigned but considered neces-sary to discharge command responsibilities.

b. Concept Development. The conceptdevelopment phase of deliberate planningis accomplished by the supportedcommander responsible for developing theplan. Concept development follows sixsteps: mission analysis, planningguidance development, staff estimates,commander’s estimate, CINC’s StrategicConcept, and CJCS review. See FigureIII-4. The assigned task is analyzed, amission statement is developed, andplanning guidance is prepared and issuedto the staff as well as subordinate andsupporting commands in step one. Duringstep two, alternative COAs are developedand distributed for staff estimates ofsupportability to be completed in step three.In step four, alternative COAs are war-gamed, analyzed, and compared to producea commander’s estimate containing thecommander’s decision on the preferred

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PHASE I, INITIATION

PHASE II, CONCEPT DEVELOPMENT

PHASE III, PLAN DEVELOPMENT

PHASE IV, PLAN REVIEW

PHASE V, SUPPORTING PLANS

CINC RECEIVES PLANNING TASK FROM CJCSMAJOR FORCES AVAILABLE FOR PLANNING

MISSION STATEMENT IS DEDUCEDSUBORDINATE TASKS ARE DERIVEDCINC'S STRATEGIC CONCEPT DEVELOPED

THE PRODUCT: A CONCEPT OF OPERATIONS

FORCES SELECTED AND TIME-PHASEDSUPPORT REQUIREMENTS COMPUTEDSTRATEGIC DEPLOYMENTS SIMULATED/ANALYZEDSHORTFALLS IDENTIFIED AND RESOLVEDOPERATION PLAN COMPLETED

THE PRODUCT: A COMPLETE OPLAN

OPLAN/CONPLAN REVIEWED & APPROVED BY CJCSCINC REVISES PLAN IAW REVIEW COMMENTS

THE PRODUCT: AN APPROVED PLAN

SUPPORTING PLANS PREPARED

THE DELIBERATE PLANNING PROCESS

Figure III-3. The Deliberate Planning Process

COA. The selected COA is then expandedinto the CINC’s Strategic Concept that issubmitted to the Chairman of the JointChiefs of Staff for review and approval.When approved, the CINC’s StrategicConcept provides the basis for plandevelopment.

c. Plan Development

• A CJCS-approved concept of opera-tions is expanded into a completeOPLAN during the plan developmentphase of deliberate planning. Plandevelopment is accomplished by a

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CONCEPT DEVELOPMENT PHASE

INITIATION PHASE

PURPOSE:To analyze assigned tasks to determine mission andto prepare guidance for subordinates.

PURPOSE:To issue CINC's Guidance, inform all planners &participants, and develop courses of action.

PURPOSE:To determine supportability of courses of action byappropriate staff directors.

PURPOSE:To formally compare courses of action for CINC todevelop the strategic concept.

PURPOSE:To formally develop and distribute CINC's decisionand guidance to all participants.

PURPOSE:To determine if scope and CONOPS are sufficient toaccomplish tasks, assess validity of assumptions,and evaluate compliance with CJCS taskings andguidance.

PLAN DEVELOPMENT PHASE

STEP 1MISSIONANALYSIS

STEP 2PLANNINGGUIDANCE

STEP 3STAFF

ESTIMATES

STEP 4COMMANDER'S

ESTIMATES

STEP 5CINC'S

CONCEPT

STEP 6CJCS CONCEPT

Figure III-4. Concept Development Phase

designated supported commander,normally a combatant commander,with the assistance of supporting andsubordinate commanders. The sup-ported commander guides the plandevelopment process by publishing aLetter of Instruction (LOI) to co-ordinate the activities of the commandsand agencies involved. Eight steps can

be identified in the plan developmentphase as shown in Figure III-5. Theseeight steps provide a logical planningstructure within which the forces andresources required to execute theconcept of operations are progressivelyidentified, sequenced, and coupledwith transportation capabilities toproduce a feasible OPLAN. This

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phase of deliberate planning isheavily dependent on JOPES ADPto produce the TPFDD.

• Although the plan development phasegenerally follows a prescribed sequence,shortfall identification is performedthroughout the process. The sup-ported commander continuously iden-tifies limiting factors and capabilitiesshortfalls as plan development pro-gresses. Where possible, the com-mander resolves the shortfallsthrough planning adjustments andcoordination with component andsupporting commanders. If the short-falls cannot be reconciled and theresources provided by the JSCP or theServices are inadequate to perform theassigned task, the supported commanderreports these limiting factors and hisassessment of the associated risk to theChairman of the Joint Chiefs of Staff.The Chairman of the Joint Chiefs ofStaff and the Chiefs of the Servicesconsider shortfalls and limiting factorsreported by the supported commanderand coordinate resolution. HOW-EVER, THE COMPLETION OFASSIGNED PLANS IS NOTD E L AY E D P E N D I N G T H ERESOLUTION OF SHORTFALLS.If shortfalls cannot be resolved withinthe JSCP time frame, the completedplan will include a consolidatedsummary and impact assessment ofunresolved shortfalls.

• One of the most time-consuming andintensively managed aspects of plandevelopment is constructing theOPLAN TPFDD. A TPFDD is thecomputer-supported data base por-tion of an OPLAN, necessary tocomplete Appendix 1 to Annex A ofthe OPLAN. See Figure III-6. Thesupported commander providesTPFDD development guidance andFigure III-5. Plan Development Phase

PLAN DEVELOPMENTPHASE

Steps listed above are not necessarilysequential and may occur simultaneously**

STEP 1FORCE PLANNING

STEP 2SUPPORT PLANNING

STEP 3NUCLEARPLANNING

STEP 7TPFDD REFINEMENT

STEP 8DOCUMENTATION

STEP 4TRANSPORTATION

PLANNING

STEP 6TRANSPORTATION

FEASIBILITYANALYSIS

STEP 5SHORTFALL

IDENTIFICATION

CONCEPT DEVELOPMENTPHASE

CONOPS

PLAN REVIEW PHASEOPLAN

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milestones to the JPEC through aTPFDD LOI. TPFDD developmentinvolves the sequential developmentand refinement of forces, logistics, andtransportation data in a process collec-tively termed TPFDD refinement. ATPFDD normally contains assigned,augmentation, and supporting forceswith accompanying supplies. AsTPFDD refinement progresses, anestimate of resupply and personnelrequirements to sustain the force basedon consumption factors, computermodeling, and past experience is added.In addition, a fully refined TPFDDmust be made transportation feasible.Therefore, USTRANSCOM plays akey role in the refinement process byhosting and coordinating refinementconferences and assessing transportationfeasibility.

•• Forces refinement is conducted incoordination with supported andsupporting commanders, Services, theJoint Staff and other supportingagencies to confirm that forces aresourced and tailored within JSCP

guidance and to assess the adequacy ofthe combat support and combat servicesupport sourced by the Services.USTRANSCOM provides sealift andairlift capability estimates based on liftapportionment throughout the processto ensure transportation feasibility.

•• Logistic refinement is conductedprimarily by the Services, the DefenseLogistics Agency (DLA), and Servicecomponent commanders under theoverall direction of the supportedcommander. Logistic refinementconfirms the sourcing of logisticrequirements in accordance with JSCPguidance and assesses the adequacy ofresources provided through supportplanning. USTRANSCOM coordinateson logistic planning matters and hostsconferences dedicated to logisticplanning and refinement.

•• Transportation refinement simulatesthe planned movement resources toensure that the plan is transportationfeasible. USTRANSCOMusescomputer simulation to determine

TIME-PHASED FORCE DEPLOYMENT DATA

A computer data base

Construction requires intensive planner datamanipulation using JOPES automated dataprocessing tools

Transportation oriented

When generated, contains resupply cargo andpersonnel planning data

Priority and sequencing of deploying forcesDeployment routing of forcesDetailed cargo descriptionsPassenger data

Figure III-6. Time-Phased Force Deployment Data

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transportation feasibility. In turn, thesupported commander adjusts TPFDDrequirements as necessary to remainwithin lift capability.

•• Following TPFDD refinement, thesupported commander completes thedocumentation of the plan and coordi-nates distribution of the TPFDD withinthe JOPES network as appropriate.The supported CINC then submits theOPLAN with the TPFDD file to theChairman of the Joint Chiefs of Stafffor review.

•• At the end of the OPLAN develop-ment cycle, or biennially duringperiods of extended maintenancecycles, the Joint Staff will host asustainability conference to reviewcurrent LSA issues. The review willconvert any operational logistic defi-ciencies into programming requirements.

d. Plan Review. In the plan reviewphase of deliberate planning, the Chairmanof the Joint Chiefs of Staff conducts afinal review of OPLANs submitted by thesupported commander. The Chairman ofthe Joint Chiefs of Staff, in coordinationwith the other members of the Joint Chiefsof Staff, Services, and Defense agencies,assesses and validates joint OPLANsprepared by supported commanders usingthe criteria of adequacy, feasibility, accepta-bility, and compliance with joint doctrine.It is a formal process that evaluates theentire plan, including TPFDD and othercomputer-supported data files, to determinewhether taskings have been met andwhether resources have been used effectivelywithin the constraints of JSCP apportionmentguidance. The review also identifiesunresolved shortfalls in force and resourcecapabilities. Upon completion of the

review, the supported commander isinformed that the plan is approved ordisapproved for reasons stated. Plans thatcontain critical shortfalls that are beyondthe supported commander’s ability toresolve will be approved with these short-falls identified. In such cases, the supportedcommander will be provided with guidanceregarding specific actions planned orprogrammed to redress the shortfalls.Approved plans remain so until supersededor canceled. Upon notification that a planhas been approved, the supported comman-der incorporates CJCS-directed changesand directs the completion of supportingplans by supporting and subordinatecommanders.

e. Supporting Plans. During this finalphase of the deliberate planning process, thesupported commander directs the com-pletion and submission of supportingplans to the CJCS-approved OPLAN.These plans focus on the mobilization,deployment, employment, sustainment,and redeployment of forces and resourcesin support of the concept described in thesupported commander’s approved plan.Supporting plans are developed concurrentlywith operation plans and are required to besubmitted to the supported commanderwithin 60 days of the Chairman of the JointChiefs of Staff’s plan approval. The plansare developed by component commanders,subordinate joint force commanders,supporting commanders, and other agenciesas directed by the supported commander.The review and approval of supportingplans is the responsibility of the com-mander they support. However, theChairman of the Joint Chiefs of Staff maybe requested to resolve critical issues thatarise during the review of supporting plans,and the Joint Staff may coordinate thereview of any supporting plans on behalf

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of the Chairman and the other members ofthe Joint Chiefs of Staff should circumstancesso warrant. Employment planning isnormally accomplished by the subordinatecommands that will direct the forces if theplan is executed. It may be delayed whenthe politico-military situation cannot beclearly forecast or it may be excluded fromsupporting plans if employment is to beplanned and executed within an alliance ortreaty framework.

SECTION C. CRISIS ACTIONPLANNING

7. Introduction

This section describes how the basicplanning process is adapted and employedto plan and execute joint operations incrisis situations. A crisis is defined, withinthe context of joint operation planning andexecution as an INCIDENT or SITUATIONinvolving a threat to the United States, itsterritories, citizens, military forces, andpossessions or vital interests that developsrapidly and creates a condition of suchdiplomatic, economic, political, or militaryimportance that commitment of US militaryforces and resources is contemplated toachieve national objectives. An adequateand feasible military response to a crisisdemands a flexible adaptation of the basicplanning process that emphasizes the timeavailable, rapid and effective commu-nications, and the use of previouslyaccomplished joint operation planningwhenever possible. In crisis situations, theJPEC follows formally established CAPprocedures to adjust and implementpreviously prepared joint operation plansor to develop and execute OPORDs whereno useful joint operation plan exists for theevolving crisis. A campaign plan may also

be developed if warranted by the scope ofcontemplated operations. CAP proceduresprovide for the rapid and effectiveexchange of information and analysis, thetimely preparation of military COAs forconsideration by the NCA, and theprompt transmission of NCA decisionsto supported commanders.

8. Relationship to DeliberatePlanning

CAP procedures provide for the transitionfrom planning of military operations to theirexecution. Deliberate planning supportscrisis action planning by anticipatingpotential crises and developing jointoperation plans that facilitate the rapiddevelopment and selection of a COA andexecution planning during crises. Deli-berate planning prepares for hypotheticalcrises based on the best available infor-mation and using forces and resourcesavailable for the planning period. It reliesheavily on assumptions regarding thepolitical and military circumstances thatwill exist when the plan is implemented.These ambiguities make it unlikely that anyjoint operation plan will be usable withoutmodification as a given crisis unfoldsbecause every crisis situation cannot beanticipated. However, the detailed analysisand coordination accomplished in the timeavailable for deliberate planning canexpedite effective decisionmaking andexecution planning during a crisis. As thecrisis unfolds, assumptions and projectionsare replaced with facts and actual condi-tions. Therefore, CAP includes the consi-deration and exploitation of deliberatejoint operation planning wheneverpossible. A comparison of CAP anddeliberate planning procedures is shown inFigure III-7.

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9. CAP Procedures

Crisis action planning and executionare accomplished within a flexible

framework of six phases as summarizedin Figure III-8. These six phases integratethe workings of the NCA and the JPECinto a single unified process that sequen-

COMPARING CRISIS ACTION PROCEDURESWITH DELIBERATE PLANNING PROCEDURES

Hours or days

For security reasons,possibly very limited toclose-hold procedures

6 Phases from situationdevelopment toexecution

Warning order to CINC:CINC assigns tasks withevaluation requestmessage

Allocated in theWarning, Planning,Alert, or Execute order

Warning order fromCJCS; CINC'sevaluation request

Communicatesrecommendations ofCINC to the CJCS-NCA

NCA decide COA

Execute order

Campaign Plan (if reqd)with supportingOPORDs or OPORDwith supporting

18-24 months

Participates fully

5 Phases from initiation tosupporting plans

JSCP to CINC: CINCassigns tasks withplanning or other writtendirective

Apportioned in JSCP

Planning Directive issuedby CINC after planningguidance step of conceptdevelopment phase

Communicates the CINC'sdecision to staff andsubordinate commanders

CINC decides COA withreview by CJCS

When operation plan isimplemented, it isconverted to an OPORD,and executed with anExecute order

OPLAN or CONPLAN withsupporting plan

CRISIS ACTIONPLANNING

DELIBERATEPLANNING

Time available toplan

JPEC involvement

Phases

Documentassigning task

Forces for Planning

Early planningguidance to staff

Commander'sestimates

Decision of COA

ExecutionDocument

Products

Figure III-7. Comparing Crisis Action Procedures withDeliberate Planning Procedures

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Joint Operation P

lanning and Execution

ASSESS THAT EVENTMAY HAVE NATIONALIMPLICATIONS

REPORT EVENT TONCA/CJCS

NCA/CJCS DECIDE TODEVELOP MILITARYCOA

CINC SENDSCOMMANDER'SESTIMATE WITHRECOMMENDED COA

NCA SELECT COA

CJCS RELEASES NCACOA SELECTION INALERT ORDER

CINC SENDS OPORD CRISIS RESOLVED

REDEPLOYMENT OFFORCES

MONITOR WORLDSITUATION

RECOGNIZE PROBLEM

SUBMIT CINC'SASSESSMENT

CINC'S REPORT/ASSESSMENTRECEIVED

INCREASEAWARENESS

INCREASE REPORTING

JS ASSESS SITUATION

JS ADVISE ONPOSSIBLE MILITARYACTION

NCA-CJCS EVALUATION

CJCS SENDS WARNINGORDER

DEVELOP COA'S

CINC ASSIGNS TASKS TOSUBORDINATES BYEVALUATION REQUESTMESSAGE

CINC REVIEWSEVALUATION RESPONSEMESSAGE

CREATE / MODIFY TPFDD

USTRANSCOMPREPARES DEPLOYMENTESTIMATES

EVALUATE COA'S

CJCS PRESENTSREFINED ANDPRIORITIZED COA'S TONCA

CJCS ADVICE TO NCA

CJCS MAY SENDPLANNING ORDER TOBEGIN EXECUTIONPLANNING BEFORESELECTION OF COA BYNCA

CINC RECEIVES ALERTORDER OR PLANNINGORDER

CINC DEVELOPSOPORD

REFINE TPFDD

FORCE PREPARATION

NCA DECIDE TOEXECUTE OPORD

CJCS SENDS EXECUTEORDER BY AUTHORITYOF SECDEF

CINC EXECUTESOPORD

JPEC REPORTSEXECUTION STATUS

BEGIN REDEPLOYMENTPLANNING

SUMMARY OF CRISIS ACTION PLANNING PHASES

EVENT OCCURS WITHPOSSIBLE NATIONALSECURITYIMPLICATIONS

EVENT

ACTION

OUTCOME

PHASE ISITUATION

DEVELOPMENT

PHASE IICRISIS

ASSESSMENT

PHASE IIICOURSE OF

ACTIONDEVELOPMENT

PHASE IVCOURSE OF

ACTIONSELECTION

PHASE VEXECUTIONPLANNING

PHASE VIEXECUTION

1. CAP phases are scenario dependent since actual planning time can vary from hours to months. Therefore, phases may be conducted sequentiallyconcurrently, compressed, or eliminated altogether.

2. The NCA, in coordination with the CJCS, may elect to return to situation monirtoring at any point during CAP.

NOTES:

Figure III-8. S

umm

ary of Crisis A

ction Planning P

hases

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tially provides for the identification of apotential requirement for military response;the assessment of the requirement andformulation of strategy; the development offeasible COAs by the supported commander;the selection of a COA by the NCA; and,when directed by the NCA, implementationof the approved COA by the supportedcommander.

a. Situation Development. During theinitial phase of crisis action planning,events that have potential nationalsecurity implications are detected,reported, and assessed to determinewhether a military response may berequired. The focus of this phase of crisisaction planning is on the combatantcommander in whose area the eventoccurs and who will be responsible for theexecution of any military response. Thecombatant commander may be the first todetect and report the event to the NMCC.However, crisis action planning may beinitiated by a report to the NMCC from anyof the national means used to continuouslymonitor the worldwide situation. If notincluded within the initial report, thesupported commander prepares andsubmits an assessment of the event to theNCA and the Chairman of the Joint Chiefsof Staff. The assessment normally includesamplifying information regarding thesituation, actions being taken, forcesavailable, expected time for earliest com-mitment of forces, and major constraints onthe employment of forces. If the timesensitivity of the situation is such thatnormal CAP procedures cannot befollowed, the commander’s assessment mayalso include a recommended COA. It thenserves as the commander’s estimatenormally prepared in a subsequent phase ofcrisis action planning. The situationdevelopment phase ends when thesupported commander’s assessment is

submitted to the NCA and the Chairman ofthe Joint Chiefs of Staff.

b. Crisis Assessment. During the crisisassessment phase of crisis action planning,the NCA, the Chairman, and the othermembers of the Joint Chiefs of Staffanalyze the situation through availableintelligence and determine whether amilitary option should be prepared. Thisphase is characterized by increased infor-mation and intelligence gathering, NCAreview of options, and preparatory actionby the JPEC. The phase begins with thereceipt of the supported commander’s reportand assessment of the event. The Chairmanof the Joint Chiefs of Staff, in coordinationwith the other members of the Joint Chiefsof Staff, assesses the situation from amilitary perspective and provides advice tothe NCA on possible military options. TheNCA identify national interests and objec-tives and consider possible diplomatic,informational, economic, and military alter-natives to achieve objectives. The flexibilityof the CAP provides the latitude for theNCA to remain in this phase pendingadditional information, return to the pre-crisis situation, or progress to the nextphase of CAP. The crisis assessment phaseends with a strategic decision by the NCAto return to the precrisis situation, or to havemilitary options developed for considera-tion and possible use. The NCA decisionprovides strategic guidance for jointoperation planning and may include specificguidance on the COAs to be developed.

c. COA Development. The COAdevelopment phase of crisis actionplanning implements an NCA decision orCJCS planning directive to developmilitary options. In response to thatdecision, the Chairman of the Joint Chiefsof Staff issues a planning guidance directiveto the supported commander directing the

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preparation of COAs. Normally, thedirective will be a CJCS WARNINGORDER, but other CAP-prescribed ordersmay be used if the nature and timing of thecrisis mandate acceleration of the planning.The directive establishes commandrelationships and identifies the missionand any planning constraints. It eitheridentifies forces and strategic mobilityresources and establishes tentative timingfor execution, or it requests the supportedcommander develop these factors. If theNCA direct development of a specific COA,the directive will describe the COA andrequest the supported commander’sassessment. In response to the directive,the supported commander, with thesupport of subordinate and supportingcommanders, develops and analyzesCOAs. Joint operation plans arereviewed for applicability and used whenneeded. Based on the combatantcommander’s guidance, supportingcommanders, subordinate joint forcecommanders, and component commandersbegin TPFDD development. Timepermitting, a TPFDD is generated for eachCOA. USTRANSCOM reviews theproposed COAs and prepares deploymentestimates. The Services monitor thedevelopment of COAs and begin planningfor support forces, sustainment, andmobilization. The supported commanderanalyzes the COAs and submits hisrecommendations to the NCA and theChairman of the Joint Chiefs of Staff. Thesupported commander’s estimate describesthe selected COAs, summarizes thesupported commander’s evaluation of theCOAs, and presents recommendations. TheCOA development phase of crisis actionplanning ends with the submission of thesupported commander’s estimate.

d. COA Selection. The focus of theCOA selection phase is on the selection of

a COA by the NCA and the initiation ofexecution planning. The Chairman of theJoint Chiefs of Staff, in coordination withthe other members of the Joint Chiefs ofStaff, reviews and evaluates the COAsprovided in the supported commander’sestimate and prepares recommendationsand advice for consideration by the NCA.The NCA select a COA and direct thatexecution planning be accomplished.Upon receipt of the NCA decision, theChairman of the Joint Chiefs of Staffissues a CJCS ALERT ORDER imple-menting the NCA decision. A CJCS ALERTORDER is a formal, CAP-prescribed orderapproved by the Secretary of Defense andtransmitted to the supported commanderand other members of the JPEC to announcethe COA selected by the NCA and to initiateexecution planning. The CJCS ALERTORDER describes the selected COA insufficient detail to allow the supportedcommander, in coordination with othermembers of the JPEC, to conduct thedetailed planning required to deploy forces.It will contain guidance to amplify orchange earlier guidance provided in theCJCS WARNING ORDER. In some cases,a PLANNING ORDER is used to initiateexecution planning activities before acourse of action is formally selected bythe NCA. Used in this manner, thePLANNING ORDER saves time and allowsthe Chairman of the Joint Chiefs of Staffadditional flexibility in directing militaryactivities. The PLANNING ORDER willnot normally be used to direct thedeployment of forces or to increase forcereadiness. If force deployment is directed,the PLANNING ORDER will require theapproval of the Secretary of Defense.Issuance of either the PLANNINGORDER or the ALERT ORDER marksthe beginning of execution planning.

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e. Execution Planning. An NCA-approved COA is transformed into anOPORD during the execution planningphase of crisis action planning. In thisphase, the JPEC performs the detailedplanning necessary to execute the approvedCOA when directed by the NCA. Ifrequired by the situation, the supportedcommander will initiate campaign planningor refine a campaign plan already indevelopment. This should guide thedevelopment of the OPORD. Actualforces, sustainment, and strategicmobility resources are identified and theconcept of operations is described inOPORD format. Following CAP proceduresand using capabilities provided throughJOPES and WWMCCS, the supportedcommander develops the OPORD andsupporting TPFDD by modifying anexisting OPLAN, expanding an existingCONPLAN (with or without TPFDD), ordeveloping a new plan. Supportingcommanders providing augmenting forcesidentify and task specific units and providemovement requirements. Componentcommanders identify and update sustain-ment requirements in coordination with the

Services. USTRANSCOM developstransportation schedules to support therequirements identified by the supportedcommander. A transportation schedule doesnot mean that the supported commander’sTPFDD or COA is transportation feasible;rather, the schedules developed are the mosteffective and realistic given the numbersand types of assets and their location inrelation to C-day and L-hour. The Servicesdetermine mobilization requirements andplan for the provision of nonunitsustainment. Force preparation action isaccomplished throughout the JPEC inaccordance with deployment posturesdirected by the Secretary of Defense, anddeployability posture reporting is initiated.The Chairman and the other membersof the Joint Chiefs of Staff monitorexecution planning activities, resolveshortfalls when required, and review thesupported commander’s OPORD forfeasibility and adequacy. The executionplanning phase terminates with an NCAdecision to implement the OPORD. Inthose instances where the crisis does notprogress to implementation, the Chairmanof the Joint Chiefs of Staff provides

The availability of strategic mobility resources to respond to deployment andsustainment requirements is a primary consideration in establishing a courseof action and its execution planning.

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guidance regarding continued planningunder either crisis action or deliberateplanning procedures. If the NCA decide toexecute the OPORD, planning enters itsfinal phase: execution.

f. Execution. The execution phasebegins when the NCA decide to executea military option in response to the crisis.During this phase, a military response isimplemented and operations are con-ducted by the supported commanderuntil the crisis is resolved. When theSecretary of Defense authorizes theChairman of the Joint Chiefs of Staff todirect the supported commander toimplement the OPORD, the Chairmanissues a CJCS EXECUTE ORDER. TheCJCS EXECUTE ORDER directs thedeployment and employment of forces,defines the timing for the initiation ofoperations, and conveys guidance notprovided in earlier CAP orders andinstructions. The supported commander, inturn, issues an EXECUTE ORDER tosubordinate and supporting commandersthat directs the execution of their OPORDs.Subordinate and supporting commandersexecute their OPORDs and conductoperations to accomplish objectives. Thesupported commander monitors move-ments, assesses and reports the achievementof objectives, and continues planning asnecessary. The Chairman of the JointChiefs of Staff monitors the deploymentand employment of forces, acts to resolveshortfalls, and directs action needed toensure successful termination of the crisis.USTRANSCOM manages common-userglobal air, land, and sea transportation,reporting the progress of deployments to theChairman of the Joint Chiefs of Staff andthe supported commander. The executionphase of crisis action planning continuesuntil the crisis is terminated or themission is terminated and force redeploy-

ment has been completed. If the crisis isprolonged, the process may be repeatedcontinuously as circumstances change andmissions are revised. If the crisis expandsto major conflict or war, crisis actionplanning will evolve into, and be absorbedwithin, the larger context of implementationplanning for the conduct of the war.

10. DEPLOYMENT ORDERS,REDEPLOYMENTORDERS, ANDDEPLOYMENTPREPARATION ORDERS

The DEPLOYMENT PREPARATIONor DEPLOYMENT ORDER will beissued upon decision of the NCA tocommence preparations for the conductof a military operation. DEPLOYMENTPREPARATION or DEPLOYMENT OR-DERS may be incorporated within WARN-ING ORDERS, PLANNING ORDERS,ALERT ORDERS, and EXECUTEORDERS. However, deployment orpreparation for deployment of forces isoften necessarily independent of theseorders. Therefore, DEPLOYMENT OR-DERS and DEPLOYMENT PREPARA-TION ORDERS may be issued at any pointin the CAP process. They can be issuedby the Chairman of the Joint Chiefs ofStaff, after authorization by theSecretary of Defense, to:

a. Increase or decrease the deployabilityposture of units.

b. Deploy forces.

c. Redeploy forces.

d. In the case of a DEPLOYMENTPREPARATION ORDER, propose C-dayand L-hour, or in the case of a DEPLOY-MENT ORDER establish C-day and L-hour.

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e. Direct any other action that wouldsignal planned US military action or itstermination in response to a particular crisisevent or incident.

SECTION D. SUMMARY

11. Joint Planning Summary

Figure III-9 shows the interrelationshipsof deliberate planning and CAP. Deliberateplanning provides the foundation forCAP through development of detailed plansto counter likely contingencies. During

CAP, existing plans, if available, areexpanded or modified to meet the crisissituation. Development, adjustment, andrefinement of the TPFDD is at the heart oftransportation planning and execution.Throughout CAP, planning information isexchanged through WWMCCS, on securephone, or by OPREP messages. The endproduct of execution planning is theOPORD published by the supportedcommander. The NCA exercise theultimate authority over the selection ofthe COA, deployment of forces, andexecution of an OPERATION ORDER.

III-17

Joint Operation P

lanning and Execution

Figure III-9. Joint P

lanning Sum

mary

JSCP

DELIBERATE PLANNING

JOINT PLANNING SUMMARY

NOPLAN

ISITUATION

DEVELOPMENT

IICRISIS

ASSESSMENT

IIICOURSE OF

ACTIONDEVELOPMENT

IVCOURSE OF

ACTIONSELECTION

VEXECUTIONPLANNING

VIEXECUTION

CRISIS ACTIONPLANNING

OPORD

AND/OR

CJCSWARNING

ORDER

CJCSEXECUTEORDER

CJCSPLANNING

ORDER

CJCSALERTORDER

MODIFYEXPANDDEVELOP

DEPLOYMENTDATA BASE

DETERMINE FEASIBLECOURSES OF ACTION

CONPLAN OPLAN

ESTABLISH DATA BASE

ESTABLISH DATA BASE

UPDATE &MAINTAIN

DATA BASES

JOPES

DEPLOYMENTDATA BASE

TPFDD?

TPFDD

DEPLOYMENTPLANS / SCHEDULES

MONITORMOVEMENT

IICONCEPT

DEVELOPMENT

IINITIATION

IIIPLAN

DEVELOPMENT

IVPLAN

REVIEW

VSUPPORTING

PLANS

TPFDDMAINTENANCE

CRISIS

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Intentionally Blank

CHAPTER IVASSESSMENT

IV-1

“Again and again we have owed peace to the fact that we were prepared forwar.”

Theodore Roosevelt: Lecture at the Naval War College, (June 1897)

1. Introduction

The objective of joint operation planningand execution is the attainment of militaryobjectives in support of national securitypolicy. Previous chapters in this publicationdescribed the principles, concepts, andprocesses that govern the preparation andimplementation of joint OPLANs andOPORDs in support of that objective. Thischapter focuses on the secondary, butvital, role that joint operation planningplays in assessing national warfightingcapabilities and programming impr ove-ment. Joint operation planning prepares forthe use of existing capabilities to achieveobjectives defined in national militarystrategy. The resultant plans are ameasurement of the Nation’s ability tosuccessfully prosecute the nationalmilitary strategy within the constraintsof available forces and resources. Thismeasurement provides a means of assessingthe balance between strategy and capabilities,determining risks, and focusing the acquisitionof additional resources and capabilities.This chapter summarizes the requirementsfor assessments and the concepts andprocesses through which joint operationplanning supports these requirements.

2. Responsibilities

As the principal military adviser to theNCA, the CJCS is responsible forrecommending national military strategyto attain national security objectives andfor assessing the national militarycapability and readiness to perform themissions identified in the strategy. TheChairman’s specific responsibilities for

assessment of capabilities and readiness aredefined in title 10, US Code, and includethe following:

a. Advising the Secretary of Defense oncritical strengths and deficiencies in forcecapabilities (including manpower, logistics,and mobility support) identified during thepreparation and review of joint operationplans and assessing the effect of suchdeficiencies and strengths on meetingnational security objectives and policy andon strategic plans.

b. Establishing and maintaining auniform system for evaluating the pre-paredness of each combatant command tocarry out missions assigned to the command.

c. Reviewing the plans and programsof the combatant commanders to determinetheir adequacy and feasibility for theperformance of assigned missions.

d. Ascertaining the logistic supportavailable to execute the joint operationplans of the combatant commanders, andreviewing and recommending to theSecretary of Defense logistic guidance forthe Military Services that, if implemented,will result in logistic readiness consistentwith the approved plans.

e. Periodically, not less often than everytwo years, reporting to the Secretary ofDefense on the responsiveness andreadiness of designated combat supportagencies. Those include the DefenseInformation Systems Agency, DefenseIntelligence Agency, DLA, DefenseMapping Agency, National Security

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Agency, Central Imagery Office, and anyother Defense agency designated as acombat support agency by the Secretary ofDefense.

f. Developing a uniform readinessreporting system for reporting thereadiness of combat support agencies.

g. Advising the Secretary of Defenseon the extent to which the programrecommendations and budget proposalsof the Military Departments and other DODcomponents conform to the prioritiesestablished in strategic plans and with thepriorities established for the requirementsof the combatant commanders.

h. Advising the Secretary of Defenseon the priorities of requirements, espe-cially operational requirements, identifiedby the combatant commanders.

i. Submitting to the Secretary ofDefense alternative program recom-mendations and budget proposals withinprojected resource levels and guidanceprovided by the Secretary of Defense withthe priorities established in strategic plansand with the priorities for the requirementsof the combatant commanders.

3. Integration

Assessments derived through jointoperation planning provide insight intothe strengths and deficiencies of theNation’s existing military capabilities.Consequently, they can be an invaluablesource of information for force develop-ment planning and the development ofnational military strategy. The greatestuse of joint operation planning as a vehiclefor assessing capabilities and influencingother defense planning is realized whendeliberate planning is accomplishedwithin a disciplined planning cycle that

complements the PPBS and the JSPS.These three DOD planning systems mustbe integrated within a mutually supporting,complementary process. Joint operationplanning conducted in response to thestrategic direction provided by the JSPSmust produce approved plans within a timeframe that permits consideration of theresults of that planning in the next succeedingstrategy development evolution. Conversely,the JSPS, in conjunction with the PPBS,must provide timely strategic direction thatallows the necessary time for the detaileddevelopment of adequate and feasibleOPLANs. A disciplined deliberate planningprocess, coordinated with PPBS and JSPSand supported by an effective JOPES, isessential to exploiting the full potential ofjoint operation planning as a way to assesscapabilities and program improvement.

4. Preparedness and Capability

The Chairman of the Joint Chiefs ofStaff has the responsibility to monitorand assess the readiness of US militaryforces to fight and meet the demands ofthe National Military Strategy. TheChairman's Readiness System (CRS)supports the Chairman in meeting thisresponsibility. Joint operation plansprovide the foundation for the CRS--they are the standards against whichreadiness is measured in the JMRR. Thissenior forum is designed to assess bothUnit Readiness, as reported by the Services,and Joint Readiness, as reported by thecombatant commanders. The end productof the CRS is senior level consensus onthe readiness of the force to successfullyexecute JSCP tasks. Significant shortfallsor deficiencies are assessed in terms of riskand may be remedied through operationalor programmatic actions. Joint operationplans have a major role in the process toaddress remedies to shortfalls and deficien-cies.

IV-3

Assessment

FORCE DEVELOPMENT — THE OLD WAY

Armed Forces planners continuously grapple with the intricacies andcomplexities of Force Development. Nagging questions of how the Armyshould be organized and equipped run head-on into budgetary, personnel,and international constraints. The presence of trained operations and ForceDevelopment specialists in today’s Army attests to the growing complexitiesof planning and developing a force structure. The thing to keep in mind,however, is that wartime expedients tend to overcome the thoughtful andcareful methods used by development planners during peacetime.

The basic method of Force Development used by the Union Army in theAmerican Civil War was to recruit new regiments rather than to replaceindividual losses within a given regiment. In a back-up system, two or moreunderstrength regiments were sometimes consolidated into one. Suchconsolidation sounded good in theory, but in practice it created much bitternessamong outfits reluctant to lose their separate identity. The problem was badenough when the merged units were from the same state or region. Butproblems were far worse when an understrength regiment from one state wasmerged with a regiment from another state.

An extreme example of this kind of problem, with its simple solution occurredin August, 1863, when the 2nd Rhode Island Cavalry Regiment (four companiesstrong) was ordered to be absorbed into the 1st Louisiana (Union) CavalryRegiment. The Rhode Islanders vocally surrounded the order and refused toleave their camp. The Louisianians then surrounded the camp and persuadedthe Rhode Island regiment to unite with them. The persuasion technique wasdirect. The New Englanders were peremptorily ordered to form ranks with theSouthern regiment. Many obeyed at last but only grumblingly and halfheartedly; others remained defiant. The colonel of the 1st Louisiana then sortedout the main dissenters, who steadfastly refused to join the consolidatedregiment. All attempts to dissuade them failed until FORCE development wasapplied. The Louisianians singled out two leading dissenters and summarilyshot them in full view of the others. The remaining Rhode Islanders promptlybroke camp and merged with the 1st Louisiana. Force Development the oldway was simple, direct, extreme if necessary, and effective.

SOURCE: Shepard, James C., “FORCE Development—The Old Way,”published in Vignettes of Military History, Vol. II, US Army Military History

Research Collection, Office of Military History, Army War College, 1972.

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APPENDIX AREFERENCES

A-1

Joint Pub 5-0 is based on the following primary references:

1. Goldwater-Nichols Reorganization Act of 1986.

2. Title 10, United States Code, April 1993.

3. CJCS MOP 7, 17 March 1993 (to be revised as CJCSI 3100.01), �Joint StrategicPlanning System.�

4. DOD Directive 5100.1, 25 September 1987, �Functions of the Department of Defenseand Its Major Components.�

5. Joint Pub 0-2, 24 February 1995, �Unified Actions Armed Forces.�

6. Joint Pub 1-01, w/ch 1, 30 July 1992, �Joint Publication System, (Joint Doctrine andJoint Tactics, Techniques, and Procedures Development Program).�

7. Joint Pub 1-02, 23 March 1994, �DOD Dictionary of Military and Associated Terms.�

8. Unified Command Plan (UCP), 6 October 1993.

9. Joint Strategic Capabilities Plan (JSCP).

10. Joint Pub 3-0, 1 February 1995, �Doctrine for Joint Operations.�

A-2

Appendix A

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Intentionally Blank

APPENDIX BADMINISTRATIVE INSTRUCTIONS

B-1

1. User Comments

Users in the field are highly encouraged to submit comments on this publication to theJoint Warfighting Center, Attn: Doctrine Division, Fenwick Road, Bldg 96, Fort Monroe,VA 23651-5000. These comments should address content (accuracy, usefulness,consistency, and organization), writing, and appearance.

2. Authorship

The lead agent and Joint Staff doctrine sponsor for this publication is the Director forOperational Plans and Interoperability (J-7).

3. Change Recommendations

a. Recommendations for urgent changes to this publication should be submitted:

TO: JOINT STAFF WASHINGTON DC//J7-CWPD/J7-JDD//

Routine changes should be submitted to the Director for Operational Plans andInteroperability (J-7), 7000 Joint Staff Pentagon, Washington, D.C. 20318-7000.

b. When a Joint Staff directorate submits a proposal to the Chairman of the JointChiefs of Staff that would change source document information reflected in thispublication, that directorate will include a proposed change to this publication as anenclosure to its proposal. The Military Services and other organizations are requestedto notify the Director, J-7, Joint Staff, when changes to source documents reflected inthis publication are initiated.

c. Record of Changes

CHANGE COPY DATE OF DATE POSTEDNUMBER NUMBER CHANGE ENTERED BY REMARKS______________________________________________________________________________________________________________________________________________________________________________________________________

B-2

Appendix B

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4. Distribution

a. Additional copies of this publication can be obtained through Service publicationcenters.

b. Only approved pubs and test pubs are releasable outside the combatant commands,Services, and Joint Staff. Release of any joint publication to foreign governments orforeign nationals must be requested through the local embassy (Defense Attache Office)to DIA Foreign Liaison Branch, C-AS1, Room 1A674, Pentagon, Washington D.C.20301-7400.

c. Additional copies should be obtained from the Military Service assignedadministrative support responsibility by DOD Directive 5100.3, 1 November 1988,�Support of the Headquarters of Unified, Specified, and Subordinate Joint Commands.�

By Military Services:

Army: US Army AG Publication Center2800 Eastern BoulevardBaltimore, MD 21220-2898

Air Force: Air Force Publications Distribution Center2800 Eastern BoulevardBaltimore, MD 21220-2896

Navy: CO, Navy Aviation Supply OfficeDistribution Division (Code 03443)5801 Tabor AvenuePhiladelphia, PA 19120-5000

Marine Corps: Marine Corps Logistics BaseAlbany, GA 31704-5000

Coast Guard: Coast Guard Headquarters, COMDT (G-REP)2100 2nd Street, SWWashington, D.C. 20593-0001

d. Local reproduction is authorized and access to unclassified publications isunrestricted. However, access to and reproduction authorization for classified jointpublications must be in accordance with DOD Regulation 5200.1-R.

GLOSSARYPART I—ABBREVIATIONS AND ACRONYMS

GL-1

ADP automated data processingAFFOR Air Force forcesAMOPES Army Mobilization and Operations Planning and Execution

SystemAMC Army Materiel Command, Air Mobility CommandARFOR Army forces

C4 command, control, communications, and computersCAP crisis action planningCG CAPLAN Coast Guard Capabilities PlanCG LSMP Coast Guard Logistic Support and Mobilization PlanCIA Central Intelligence AgencyCINC commander of a combatant command; commander in chiefCJCS Chairman of the Joint Chiefs of StaffCOA course of actionCONPLAN operation plan in concept formatCONOPS concept of operationsCONUS continental United StatesCPA Chairman’s Program AssessmentCPG Contingency Planning GuidanceCRS Chairman's Readiness System

DLA Defense Logistics AgencyDPG Defense Planning GuidanceDPRB Defense Planning Resources Board

GCCS Global Command and Control System

IPL integrated priority listIPP Industrial Preparedness Program

JFC joint force commanderJFSOCC joint force special operations component commanderJIMPP Joint Industrial Mobilization Planning ProcessJMNA Joint Military Net AssessmentJMRR Joint Monthly Readiness ReviewJOPES Joint Operation Planning and Execution SystemJPD Joint Planning DocumentJPEC Joint Planning and Execution CommunityJSCP Joint Strategic Capabilities PlanJSPS Joint Strategic Planning SystemJSR Joint Strategy ReviewJTF joint task force

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Glossary

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LOI letter of instructionLSA logistics sustainability analysis

MARFOR Marine forcesMCP Marine Corps Capabilities PlanMOP memorandum of policyMPLAN Marine Corps Mobilization Management PlanMSC Military Sealift CommandMTMC Military Traffic Management Command

NAVFOR Navy forcesNCA National Command AuthoritiesNCMP Navy Capabilities and Mobilization PlanNMCC National Military Command CenterNMCS National Military Command SystemNMS national military strategyNSA National Security AgencyNSC National Security Council

OPLAN operation planOPORD operation order

PBD program budget decisionPDM Program Decision MemorandumPOM Program Objective MemorandumPPBS Planning, Programming, and Budgeting System

SOC special operations commandSOF special operations forces

TPFDD time-phased force and deployment data

UCP Unified Command PlanUSA United States ArmyUSAF United States Air ForceUSCG United States Coast GuardUSMC United States Marine CorpsUSN United States NavyUSSOCOM United States Special Operations CommandUSTRANSCOM United States Transportation Command

WIN Worldwide Military Command and Control System(WWMCCS) Intercomputer Network

WMP Air Force War and Mobilization PlanWWMCCS Worldwide Military Command and Control System

GL-3

GlossaryPART II--TERMS AND DEFINITIONS

acceptability. Operation plan reviewcriterion. The determination whether thecontemplated course of action is worththe cost in manpower, material, and timeinvolved; is consistent with the law ofwar; and militarily and politicallysupportable. (Joint Pub 1-02)

adequacy. Operation plan review criterion.The determination whether the scope andconcept of a planned operation aresufficient to accomplish the task assigned.(Joint Pub 1-02)

alert order. 1. A crisis-action planningdirective from the Secretary of Defense,issued by the Chairman of the Joint Chiefsof Staff, that provides essential guidancefor planning and directs the initiation ofexecution planning for the selected courseof action authorized by the Secretary ofDefense. 2. A planning directive thatprovides essential planning guidance anddirects the initiation of executionplanning after the directing authorityapproves a military course of action. Analert order does not authorize executionof the approved course of action. (JointPub 1-02)

alliance. An alliance is the result of formalagreements (i.e., treaties) between two ormore nations for broad, long-termobjectives which further the commoninterests of the members. (Joint Pub 1-02)

allocation. In a general sense, distributionof limited resources among competingrequirements for employment. Specificallocations (e.g., air sorties, nuclearweapons, forces, and transportation) aredescribed as allocation of air sorties,nuclear weapons, etc. (Joint Pub 1-02)

apportionment. In the general sense,distribution for planning of limited

resources among competing require-ments. Specific apportionments (e.g., airsorties and forces for planning) aredescribed as apportionment of air sortiesand forces for planning, etc. (Joint Pub1-02)

area of operations. An operational areadefined by the joint force commander forland and naval forces. Areas of operationdo not typically encompass the entireoperational area of the joint forcecommander, but should be large enoughfor component commanders to accom-plish their missions and protect theirforces. (Joint Pub 1-02)

augmentation forces. Forces to betransferred from a supporting commanderto the combatant command (commandauthority) or operational control of asupported commander during the execu-tion of an operation order approved bythe National Command Authorities.(Joint Pub 1-02)

campaign. A series of related militaryoperations aimed at accomplishing astrategic or operational objective withina given time and space. (Joint Pub 1-02)

campaign planning. The process wherebycombatant commanders and subordinatejoint force commanders translate nationalor theater strategy into operationalconcepts through the development ofcampaign plans. Campaign planning maybegin during deliberate planning whenthe actual threat, national guidance, andavailable resources become evident, butis normally not completed until after theNational Command Authorities select thecourse of action during crisis actionplanning. Campaign planning isconducted when contemplated military

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operations exceed the scope of a singlemajor joint operation. (Joint Pub 1-02)

campaign plan. A plan for a series ofrelated military operations aimed ataccomplishing a strategic or operationalobjective within a given time and space.(Joint Pub 1-02)

centers of gravity. Those characteristics,capabilities, or localities from which amilitary force derives its freedom ofaction, physical strength, or will to fight.(Joint Pub 1-02)

CINC’s Strategic Concept. Finaldocument produced in Step 5 of theconcept development phase of thedeliberate planning process. The CINC’sStrategic Concept is used as the vehicleto distribute the CINC’s decision andplanning guidance for accomplishingjoint strategic capabilities plan or otherChairman of the Joint Chiefs of Staff(CJCS) taskings. CJCS approval of thestrategic concept becomes the basis of theplan for development into an operationplan or operation plan in concept format.Formerly called “the concept ofoperations.” Also called CSC. (Joint Pub1-02)

coalition. An ad hoc arrangement betweentwo or more nations for common action.(Joint Pub 1-02)

coalition action. Multinational actionoutside the bounds of establishedalliances, usually for single occasions orlonger cooperation in a narrow sector ofcommon interest. (Joint Pub 1-02)

combatant command. A unified orspecified command with a broadcontinuing mission under a singlecommander established and so designatedby the President, through the Secretaryof Defense and with the advice and

assistance of the Chairman of the JointChiefs of Staff. Combatant commandstypically have geographic or functionalresponsibilities. (Joint Pub 1-02)

combatant command (command author-ity). Nontransferable command authorityestablished by title 10 (“Armed Forces”),United States Code, section 164, exercisedonly by commanders of unified orspecified combatant commands unlessotherwise directed by the President or theSecretary of Defense. Combatant com-mand (command authority) cannot bedelegated and is the authority of acombatant commander to perform thosefunctions of command over assignedforces involving organizing and employ-ing commands and forces, assigningtasks, designating objectives, and givingauthoritative direction over all aspects ofmilitary operations, joint training, andlogistics necessary to accomplish themissions assigned to the command.Combatant command (command author-ity) should be exercised through thecommanders of subordinate organizations.Normally this authority is exercisedthrough subordinate joint force com-manders and Service and/or functionalcomponent commanders. Combatantcommand (command authority) providesfull authority to organize and employcommands and forces as the combatantcommander considers necessary toaccomplish assigned missions. Opera-tional control is inherent in combatantcommand (command authority). Alsocalled COCOM. (Joint Pub 1-02)

combatant commander. A commander inchief of one of the unified or specifiedcombatant commands established by thePresident. Also called CINC. (Joint Pub1-02)

commander’s estimate of the situation.A logical process of reasoning by which

GL-5

Glossary

a commander cons iders a l l t h ecircumstances affecting the militarysituation and arrives at a decision as to acourse of action to be taken to accomplishthe mission. A commander’s estimatewhich considers a military situation sofar in the future as to require majorassumptions is called a commander’slong-range estimate of the situation.(Joint Pub 1-02)

concept of operations. A verbal or graphicstatement, in broad outline, of acommander’s assumptions or intent inregard to an operation or series ofoperations. The concept of operationsfrequently is embodied in campaign plansand operation plans; in the latter case,particularly when the plans cover a seriesof connected operations to be carried outsimultaneously or in succession. Theconcept is designed to give an overallpicture of the operation. It is includedprimarily for additional clarity ofpurpose. Also called commander’sconcept. (Joint Pub 1-02)

contingency. An emergency involvingmilitary forces caused by naturaldisasters, terrorists, subversives, or byrequired military operations. Due to theuncertainty of the situation, contingenciesrequire plans, rapid response, and specialprocedures to ensure the safety andreadiness of personnel, installations, andequipment. (Joint Pub 1-02)

course of action. 1. A plan that wouldaccomplish, or is related to, the accom-plishment of a mission. 2. The schemeadopted to accomplish a task or mission.It is a product of the Joint OperationPlanning and Execution System conceptdevelopment phase. The supportedcommander will include a recommendedcourse of action in the commander’sestimate. The recommended course ofaction will include the concept of

operations, evaluation of supportabilityestimates of supporting organizations,and an integrated time-phased data baseof combat, combat support, and combatservice support forces and sustainment.Refinement of this data base will becontingent on the time available forcourse of action development. Whenapproved, the course of action becomesthe basis for the development of anoperation plan or operation order. Alsocalled COA. (Joint Pub 1-02)

course of action development. The phaseof the Joint Operation Planning andExecution System within the crisis actionplanning process that provides for thedevelopment of military responses andincludes, within the limits of the timeallowed: establishing force andsustainment requirements with actualunits; evaluating force, logistic, andtransportation feasibility; identifying andresolving resource shortfalls; recom-mending resource allocations; andproducing a course of action via acommander’s estimate that contains aconcept of operations, employmentconcept, risk assessments, prioritizedcourses of action, and supporting databases. (Joint Pub 1-02)

crisis. An incident or situation involving athreat to the United States, its territories,citizens, military forces, possessions, orvital interests that develops rapidly andcreates a condition of such diplomatic,economic, political, or military impor-tance that commitment of US militaryforces and resources is contemplated toachieve national objectives. (Joint Pub1-02)

crisis action planning. 1. The JointOperation Planning and ExecutionSystem process involving the time-sensitive development of joint operationplans and orders in response to an

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Glossary

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imminent crisis. Crisis action planningfollows prescribed crisis action pro-cedures to formulate and implement aneffective response within the time framepermitted by the crisis. 2. The time-sensitive planning for the deployment,employment, and sustainment of assignedand allocated forces and resources thatoccurs in response to a situation that mayresult in actual military operations. Crisisaction planners base their plan on thecircumstances that exist at the timeplanning occurs. Also called CAP. (JointPub 1-02)

deliberate planning. 1. The JointOperation Planning and ExecutionSystem process involving the develop-ment of joint operation plans for contin-gencies identified in joint strategicplanning documents. Conducted princi-pally in peacetime, deliberate planning isaccomplished in prescribed cycles thatcomplement other Department of Defenseplanning cycles in accordance with theformally established Joint StrategicPlanning System. 2. A planning processfor the deployment and employment ofapportioned forces and resources thatoccurs in response to a hypotheticalsituation. Deliberate planners relyheavily on assumptions regarding thecircumstances that will exist when theplan is executed. (Joint Pub 1-02)

deployment order. A planning directivefrom the Secretary of Defense, issued bythe Chairman of the Joint Chiefs of Staff,that authorizes and directs the transfer offorces between combatant commands byreassignment or attachment. A de-ployment order normally specifies theauthority that the gaining combatantcommander will exercise over the trans-ferred forces. (Joint Pub 1-02)

deployment planning. Operationalplanning directed toward the movement

of forces and sustainment resources fromtheir original locations to a specificoperational area for conducting the jointoperations contemplated in a given plan.Encompasses all activities from origin orhome station through destination,specifically including intra-continentalUnited States, intertheater, and intra-theater movement legs, staging areas, andholding areas. (Joint Pub 1-02)

employment. The strategic, operational,or tactical use of forces. (Joint Pub 1-02)

employment planning. Planning thatprescribes how to apply force/forces toattain specified military objectives.Employment planning concepts aredeveloped by combatant commandersthrough their component commanders.(Joint Pub 1-02)

execute order. 1. An order issued by theChairman of the Joint Chiefs of Staff, bythe authority and at the direction of theSecretary of Defense, to implement aNational Command Authorities decisionto initiate military operations. 2. Anorder to initiate military operations asdirected. (Joint Pub 1-02)

execution planning. The phase of the JointOperation Planning and ExecutionSystem crisis action planning process thatprovides for the translation of anapproved course of action into anexecutable plan of action through thepreparation of a complete operation planor operation order. Execution planningis detailed planning for the commitmentof specified forces and resources. Duringcrisis action planning, an approvedoperation plan or other NationalCommand Authorities-approved courseof action is adjusted, refined, andtranslated into an operation order.Execution planning can proceed on thebasis of prior deliberate planning, or it

GL-7

Glossary

can take place in the absence of priorplanning. (Joint Pub 1-02)

feasibility. Operation plan review criterion.The determination of whether theassigned tasks could be accomplished byusing available resources. (Joint Pub1-02)

force planning. Planning associated withthe creation and maintenance of militarycapabilities. It is primarily the responsi-bility of the Military Departments andServices and is conducted under theadministrative control that runs from theSecretary of Defense to the MilitaryDepartments and Services. (Joint Pub 1-02)

functional plans. Plans involving theconduct of military operations in apeacetime or permissive environmentdeveloped by combatant commanders toaddress requirements such as disasterrelief, nation assistance, logistics,communications, surveillance, protectionof US citizens, nuclear weapon recoveryand evacuation, and continuity ofoperations, or similar discrete tasks. Theymay be developed in response to therequirements of the Joint StrategicCapabilities Plan, at the initiative of theCINC, or as tasked by the supportedcombatant commander, Joint Staff,Service, or Defense agency. Chairmanof the Joint Chiefs of Staff review ofCINC-initiated plans is not normallyrequired. (Joint Pub 1-02)

implementation planning. Operationalplanning associated with the conduct ofa continuing operation, campaign, or warto attain defined objectives. At thenational level, it includes the developmentof strategy and the assignment of strategictasks to the combatant commanders. Atthe theater level, it includes the develop-ment of campaign plans to attain assignedobjectives and the preparation of

operation plans and operation orders toprosecute the campaign. At lower levels,implementation planning prepares for theexecution of assigned tasks or logisticmissions. (Joint Pub 1-02)

intelligence. 1. The product resulting fromthe collection, processing, integration,analysis, evaluation, and interpretation ofavailable information concerning foreigncountries or areas. 2. Information andknowledge about an adversary obtainedthrough observation, investigation,analysis, or understanding. (Joint Pub1-02)

interoperability. 1. The ability of systems,units or forces to provide service to andaccept services from other systems, units,or forces and to use the services soexchanged to enable them to operateeffectively together. 2. The conditionachieved among communications-electronics systems or items of communi-cations-electronics equipment wheninformation or services can be exchangeddirectly and satisfactorily between themand/or their users. The degree ofinteroperability should be defined whenreferring to specific cases. (Joint Pub 1-02)

joint force commander. A general termapplied to a combatant commander,subunified commander, or joint task forcecommander authorized to exercise com-batant command (command authority)or operational control over a joint force.Also called JFC. (Joint Pub 1-02)

joint operations. A general term todescribe military actions conducted byjoint forces, or by Service forces inrelationships (e.g., support, coordinatingauthority), which, of themselves, do notcreate joint forces. (Joint Pub 1-02)

joint operation planning. Planning forcontingencies which can reasonably be

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anticipated in an area of responsibility orjoint operations area of the command.Planning activities exclusively associatedwith the preparation of operation plans,operation plans in concept format,campaign plans, and operation orders(other than the single integrated operationplan) for the conduct of militaryoperations by the combatant commandersin response to requirements establishedby the Chairman of the Joint Chiefs ofStaff. Joint operation planning iscoordinated at the national level tosupport Secretary of Defense ContingencyPlanning Guidance (CPG), strategicrequirements in the National MilitaryStrategy, and emerging crises. As such,joint operation planning includes mobili-zation planning, deployment planning,employment planning, sustainmentplanning, and redeployment planningprocedures. Joint operation planning isperformed in accordance with formallyestablished planning and executionprocedures. (Approved for inclusion inthe next edition of Joint Pub 1-02)

joint operation planning process. Acoordinated Joint Staff procedure used bya commander to determine the bestmethod of accomplishing assigned tasksand to direct the action necessary toaccomplish the mission. (Approved forinclusion in the next edition of Joint Pub1-02)

Joint Operation Planning and ExecutionSystem. A continuously evolving systemthat is being developed through theintegration and enhancement of earlierplanning and execution systems: JointOperation Planning System and JointDeployment System. It provides thefoundation for conventional commandand control by national- and theater-levelcommanders and their staffs. It isdesigned to satisfy their informationneeds in the conduct of joint planning and

operations. Joint Operation Planning andExecution System (JOPES) includes jointoperation planning policies, procedures,and reporting structures supported bycommunications and automated dataprocessing systems. JOPES is used tomonitor, plan, and execute mobilization,deployment, employment, and sustain-ment activities associated with jointoperations. Also called JOPES. (JointPub 1-02)

joint planning and execution community.Those headquarters, commands, andagencies involved in the training,preparation, movement, reception,employment, support, and sustainment ofmilitary forces assigned or committed toa theater of operations or objective area.It usually consists of the Joint Staff,Services, Service major commands(including the Service wholesale logisticscommands), unified commands (and theircertain Service component commands),subunified commands, transportationcomponent commands, joint task forces(as applicable), Defense LogisticsAgency, and other Defense agencies (e.g.,Defense Intelligence Agency) as may beappropriate to a given scenario. Alsocalled JPEC. (Joint Pub 1-02)

Joint Strategic Planning System. Theprimary means by which the Chairmanof the Joint Chiefs of Staff, in consulta-tion with the other members of the JointChiefs of Staff and the combatantcommanders, carries out his statutoryresponsibilities to assist the President andSecretary of Defense in providingstrategic direction to the Armed Forces;prepares strategic plans; prepares andreviews contingency plans; advises thePresident and Secretary of Defense onrequirements, programs, and budgets; andprovides net assessment on the capabili-ties of the Armed Forces of the UnitedStates and its allies as compared with

GL-9

Glossary

those of their potential adversaries. Alsocalled JSPS. (Joint Pub 1-02)

lines of operations. Lines which definethe directional orientation of the force intime and space in relation to the enemy.They connect the force with its base ofoperations and its objectives. (Joint Pub1-02)

mobilization. 1. The act of assemblingand organizing national resources tosupport national objectives in time of waror other emergencies. 2. The process bywhich the Armed Forces or part of themare brought to a state of readiness for waror other national emergency. Thisincludes activating all or part of theReserve components as well as assembl-ing and organizing personnel, supplies,and materiel. Mobilization of the ArmedForces includes but is not limited to thefollowing categories:

a. selective mobilization. Expansion ofthe active Armed Forces resulting fromaction by Congress and/or the Presidentto mobilize Reserve component units,individual ready reservists, and theresources needed for their support to meetthe requirements of a domestic emer-gency that is not the result of an enemyattack.

b. partial mobilization. Expansion of theactive Armed Forces resulting fromaction by Congress (up to full mobiliza-tion) or by the President (not more than1,000,000) to mobilize Ready Reservecomponent units, individual reservists,and the resources needed for their supportto meet the requirements of a war or othernational emergency involving an externalthreat to the national security.

c. full mobilization. Expansion of theactive Armed Forces resulting fromaction by Congress and the President to

mobilize all Reserve component units inthe existing approved force structure, allindividual reservists, retired militarypersonnel, and the resources needed fortheir support to meet the requirements ofa war or other national emergencyinvolving an external threat to thenational security.

d. total mobilization. Expansion of theactive Armed Forces resulting fromaction by Congress and the President toorganize and/or generate additional unitsor personnel, beyond the existing forcestructure, and the resources needed fortheir support, to meet the total requirementsof a war or other national emergencyinvolving an external threat to thenational security. (Joint Pub 1-02)

multination. Between two or more forcesor agencies of two or more nations orcoalition partners. (Joint Pub 1-02)

multinational operations. A collectiveterm to describe military actions conductedby forces of two or more nations,typically organized within the structureof a coalition or alliance. (Joint Pub 1-02)

National Command Authorities. ThePresident and the Secretary of Defenseor their duly deputized alternates orsuccessors. Also called NCA. (Joint Pub1-02)

operation. A military action or the carryingout of a strategic, tactical, service,training, or administrative militarymission; the process of carrying oncombat, including movement, supply,attack, defense, and maneuvers needed togain the objectives of any battle orcampaign. (Joint Pub 1-02)

operational control. Transferable commandauthority that may be exercised bycommanders at any echelon at or below

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the level of combatant command. Opera-tional control is inherent in combatantcommand (command authority). Opera-tional control may be delegated and is theauthority to perform those functions ofcommand over subordinate forcesinvolving organizing and employingcommands and forces, assigning tasks,designating objectives, and givingauthoritative direction necessary toaccomplish the mission. Operationalcontrol includes authoritative directionover all aspects of military operations andjoint training necessary to accomplishmissions assigned to the command.Operational control should be exercisedthrough the commanders of subordinateorganizations. Normally this author-ity is exercised through subordinatejoint force commanders and Service and/or functional component commanders.Operational control normally providesfull authority to organize commands andforces and to employ those forces as thecommander in operational controlconsiders necessary to accomplishassigned missions. Operational controldoes not, in and of itself, includeauthoritative direction for logistics ormatters of administration, discipline,internal organization, or unit training.Also called OPCON. (Joint Pub 1-02)

operational level of war. The level of warat which campaigns and major operationsare planned, conducted, and sustained toaccomplish strategic objectives withintheaters or areas of operations. Activitiesat this level link tactics and strategy byestablishing operational objectivesneeded to accomplish the strategicobjectives, sequencing events to achievethe operational objectives, initiatingactions, and applying resources to bringabout and sustain these events. Theseactivities imply a broader dimension oftime or space than do tactics; they ensurethe logistic and administrative support of

tactical forces, and provide the means bywhich tactical successes are exploited toachieve strategic objectives. (Joint Pub1-02)

operation order. A directive issued by acommander to subordinate commandersfor the purpose of effecting the coordinatedexecution of an operation. Also calledOPORD. (Joint Pub 1-02)

operation plan. Any plan, except for theSingle Integrated Operation Plan, for theconduct of military operations. Plans areprepared by combatant commanders inresponse to requirements established bythe Chairman of the Joint Chiefs of Staffand by commanders of subordinatecommands in response to requirementstasked by the establishing unified com-mander. Operation plans are preparedin either a complete format (OPLAN) oras a concept plan (CONPLAN). TheCONPLAN can be published with orwithout a time-phased force deploymentdata (TPFDD) file.

a. OPLAN. An operation plan for theconduct of joint operations that can beused as a basis for development of anoperation order (OPORD). An OPLANidentifies the forces and supplies requiredto execute the CINC’s Strategic Conceptand a movement schedule of theseresources to the theater of operations.The forces and supplies are identified inTPFDD files. OPLANs will include allphases of the tasked operation. The planis prepared with the appropriate annexes,appendixes, and TPFDD files asdescribed in the Joint Operation Planningand Execution System manualscontaining planning policies, procedures,and formats. Also called OPLAN.

b. CONPLAN. An operation plan in anabbreviated format that would requireconsiderable expansion or alteration to

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convert it into an OPLAN or OPORD.A CONPLAN contains the CINC’sStrategic Concept and those annexes andappendixes deemed necessary by thecombatant commander to completeplanning. Generally, detailed supportrequirements are not calculated andTPFDD files are not prepared. Alsocalled CONPLAN.

c. CONPLAN Wi th TPFDD. ACONPLAN with TPFDD is the same asa CONPLAN except that it requires moredetailed planning for phased deploymentof forces. (Joint Pub 1-02)

planning order. 1. An order issued by theChairman of the Joint Chiefs of Staff toinitiate execution planning. The planningorder will normally follow a com-mander’s estimate and a planning orderwill normally take the place of theChairman of the Joint Chiefs of Staff alertorder. National Command Authoritiesapproval of a selected course of action isnot required before issuing a Chairmanof the Joint Chiefs of Staff planning order.2. A planning directive that providesessential planning guidance and directsthe initiation of execution planning beforethe directing authority approves a militarycourse of action. (Joint Pub 1-02)

shortfall. The lack of forces, equipment,personnel, materiel, or capability,reflected as the difference between theresources identified as a plan requirementand those apportioned to a combatantcommander for planning, that wouldadversely affect the command’s ability toaccomplish its mission. (Joint Pub 1-02)

specified command. A command that hasa broad, continuing mission, normallyfunctional, and is established and sodesignated by the President through theSecretary of Defense with the advice andassistance of the Chairman of the Joint

Chiefs of Staff. It normally is composedof forces from only one Military Depart-ment. Also called specified combatantcommand. (Joint Pub 1-02)

staff estimates. Assessments of courses ofaction by the various staff elements of acommand that serve as the foundation ofthe commander’s estimate. (Joint Pub1-02)

strategic level of war. The level of war atwhich a nation, often as a member of agroup of nations, determines national ormultinational (alliance or coalition)security objectives and guidance, anddevelops and uses national resources toaccomplish these objectives. Activitiesat this level establish national andmultinational military objectives;sequence initiatives; define limits andassess risks for the use of military andother instruments of power; developglobal plans or theater war plans toachieve those objectives; and providemilitary forces and other capabilities inaccordance with strategic plans. (JointPub 1-02)

strategic plan. A plan for the overallconduct of a war. (Joint Pub 1-02)

subordinate command. A commandconsisting of the commander and all thoseindividuals, units, detachments, organi-zations, or installations that have beenplaced under the command by the author-ity establishing the subordinate command.(Joint Pub 1-02)

supported commander. The commanderhaving primary responsibility for allaspects of a task assigned by the JointStrategic Capabilities Plan or other jointoperation planning authority. In thecontext of joint operation planning, thisterm refers to the commander whoprepares operation plans, campaign plans,

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or operation orders in response torequirements of the Chairman of the JointChiefs of Staff. (Approved for inclusionin the next edition of Joint Pub 1-02)

supporting commander. A commanderwho provides augmentation forces orother support to a supported commanderor who develops a supporting plan.Includes the designated combatantcommands and Defense agencies asappropriate. (Joint Pub 1-02)

supporting plan. An operation planprepared by a supporting commander ora subordinate commander to satisfy therequests or requirements of the supportedcommander’s plan. (Joint Pub 1-02)

sustainment. The provision of personnel,logistic, and other support required tomaintain and prolong operations orcombat until successful accomplishmentor revision of the mission or of thenational objective. (Joint Pub 1-02)

tactical level of war. The level of war atwhich battles and engagements areplanned and executed to accomplishmilitary objectives assigned to tacticalunits or task forces. Activities at this levelfocus on the ordered arrangement andmaneuver of combat elements in relationto each other and to the enemy to achievecombat objectives. (Joint Pub 1-02)

theater of operations. A subarea within atheater of war defined by the geographiccombatant commander required toconduct or support specific combatoperations. Dif ferent theaters ofoperations within the same theater of warwill normally be geographically separateand focused on different enemy forces.Theaters of operations are usually ofsignificant size, allowing for operationsover extended periods of time. (Joint Pub1-02)

theater of war. Defined by the NationalCommand Authorities or the geographiccombatant commander, the area of air,land, and water that is, or may become,directly involved in the conduct of thewar. A theater of war does not normallyencompass the geographic combatantcommander’s entire area of responsibilityand may contain more than one theaterof operations. (Joint Pub 1-02)

theater strategy. The art and science ofdeveloping integrated strategic conceptsand courses of action directed towardsecuring the objectives of national andalliance or coalition security policy andstrategy by the use of force, threateneduse of force, or operations not involvingthe use of force within a theater. (JointPub 1-02)

time-phased force and deployment data.The Joint Operation Planning andExecution System data base portion of anoperation plan; it contains time-phasedforce data, non-unit-related cargo andpersonnel data, and movement data forthe operation plan, including:

a. In-place units.

b. Units to be deployed to support theoperation plan with a priority indicatingthe desired sequence for their arrival atthe port of debarkation.

c. Routing of forces to be deployed.

d. Movement data associated withdeploying forces.

e. Estimates of non-unit-related cargoand personnel movements to be con-ducted concurrently with the deploymentof forces.

f. Estimate of transportation require-ments that must be fulfilled by common-

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user lift resources, as well as thoserequirements that can be fulfilled byassigned or attached transportationresources. Also called TPFDD. (JointPub 1-02)

unified command. A command with abroad continuing mission under a singlecommander and composed of significantassigned components of two or moreMilitary Departments, and which isestablished and so designated by thePresident, through the Secretary ofDefense with the advice and assistanceof the Chairman of the Joint Chiefs ofStaff. Also called unified combatantcommand. (Joint Pub 1-02)

warning order. 1. A preliminary noticeof an order or action which is to follow.2. A crisis action planning directiveissued by the Chairman of the Joint Chiefsof Staff that initiates the development andevaluation of courses of action by asupported commander and requests thata commander’s estimate be submitted. 3.A planning directive that describes thesituation, allocates forces and resources,establishes command relationships,provides other initial planning guidance,and initiates subordinate unit missionplanning. (Joint Pub 1-02)

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Intentionally Blank

Assess-ments/

Revision

CJCSApproval

TwoDrafts

ProgramDirective

ProjectProposal

J-7 formally staffs withServices and CINCS

Includes scope of project,references, milestones,and who will developdrafts

J-7 releases ProgramDirective to Lead Agent.Lead Agent can beService, CINC, or JointStaff (JS) Directorate

STEP #2Program Directive

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The CINCS receive the pub andbegin to assess it during use

18 to 24 months followingpublication, the Director J-7, willsolicit a written report from thecombatant commands andServices on the utility and qualityof each pub and the need for anyurgent changes or earlier-than-scheduled revisions

No later than 5 years afterdevelopment, each pub is revised

STEP #5Assessments/Revision

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Submitted by Services, CINCS, or Joint Staffto fill extant operational void

J-7 validates requirement with Services andCINCs

J-7 initiates Program Directive

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STEP #1Project Proposal

All joint doctrine and tactics, techniques, and procedures are organized into a comprehensive hierarchyas shown in the chart above. is the keystone publication. The diagram belowillustrates an overview of the development process:

Joint Pub 5-0 Plans

JOINT DOCTRINE PUBLICATIONS HIERARCHY

JOINT PUB 1-0

PERSONNELand

ADMINISTRATION

JOINT PUB 4-0 JOINT PUB 6-0

LOGISTICS C4 SYSTEMS

JOINT PUB 0-2

JOINT PUB 1

UNAAF

JOINTWARFARE

JOINTDOCTRINE

PUBLICATION

Lead Agent forwards proposed pub to Joint Staff

Joint Staff takes responsibility for pub, makesrequired changes and prepares pub forcoordination with Services and CINCS

Joint Staff conducts formalstaffing for approval as a Joint Publication

STEP #4CJCS Approval

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Lead Agent selects Primary Review Authority(PRA) to develop the pub

PRA develops two draft pubs

PRA staffs each draft with CINCS, Services,and Joint Staff

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STEP #3Two Drafts

ENHANCEDJOINT

WARFIGHTINGCAPABILITY

INTELLIGENCE

JOINT PUB 2-0

OPERATIONS

JOINT PUB 3-0 JOINT PUB 5-0

PLANS