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J OINT OPERATION PLANNING ANDEXECUTION SYSTEM (JOPES)

VOLUME I(PLANNING POLICIES AND PROCEDURES)

CJCSM 3 12 2.0 11 4 J u ly 2 0 0 0

CH 1 2 5 May 20 0 1

JOINT STAFF

WASHINGTON, D.C. 2 0 3 1 8

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CHAIRMAN OF THE

J OINT CHIEFS OF STAFF

MANUAL

J -3 CJ CSM 3122.01

DISTRIBUTION: A, B, C, J , S 14 J u ly 20 00

CH 1 25 May 2001

J OINT OPERATION PLANNING AND EXECUTION S YSTEM (J OPE S)

VOLUME I(PLANNING POLICIES AND PROCEDURES)

Referen ces(s): See En closu re U

1. Purpose

a. Th is pu blication sets forth plan n ing policies an d procedu res to govern

th e join t act ivities a n d per form an ce of th e Arm ed Forces of th e United Sta tes.

It p rovides m ilitar y gu idan ce for th e exercise of au th ority bycombatan t

comm an ders an d other joint force comm an ders an d prescr ibes doctr ine a ndselected joint tactics, techn iqu es, an d p rocedu res for joint operation s a n d

tra in ing. It provides m ilitary gu ida n ce for u se by th e Arm ed Forces in

preparing their appropriate plans.

b. Specifically this pu blication d escribes th e J oint Operation Plann in g and

Execut ion System (J OPES) fu n ctions a nd th e environm ents in wh ich plan n in g

for an d executing conventiona l an d n u clear joint military operations are

con du cted. J OPES applies to th e developm ent an d imp lemen tation of

operation plans an d operation orders prepa red in res pons e to Nationa l

Comm an d Au th orities (NCA) or th e Cha irm an of th e J oin t Ch iefs of Staff (CJ CS)

requirement s. It specifies th e policies, procedur es, an d forma ts to be u sed

across th e sp ectrum of plann ing, m obilization, deploym ent, em ployment,

mobilization , su sta inm ent, r edeploymen t, an d d emobilization a s a pplied to th e

mem bers of th e J oin t Plan ning an d Execu tion Com mu nity (J PEC). J OPES is

app licable across th e operational cont inu u m of peace an d war.

2. Can cellat ion. This ma n u al su percedes J oint Pu b 5-03.1, 4 Au gust 1993.

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3. Applicability

a. Doctrine and s elected joint ta ctics, tech niques, procedur es, and gu idan ce

estab lish ed in th is p u blication app ly to th e J oint Staff, Defens e comb at s u pport

agencies, comm an ders of comb ata n t comm an ds, Services, su bu nified

comm an ds, joint task forces , an d s u bordina te componen ts of these comma nds .Th ese pr inciples a n d gu ida n ce also ma y apply wh en s ignifican t forces of one

nation or Service are attached to forces of another nation or Service or when

sign ifican t forces of one n at ion or S ervice su pp ort forces of an oth er n at ion or

Service.

b. Th is m an u al will be followed except when , in th e ju dgmen t of th e

comm an der, exception al circu m sta n ces dictat e oth erwise. If a conflict arises

between th e cont ents of th is m an u al and th e con tents of Service pu blication s,

th is m an u al will ta ke pr ecedence for th e activities of joint forces u n less th e

Cha irm an of th e J oin t Chiefs of Sta ff (h ereafter referred to as Cha irm an ) h as

provided m ore curren t a nd specific guidan ce to the contra ry.

c. Comm an ders of forces operating as pa rt of a m u ltina tion al (alliance or

coalition ) m ilita ry comm an d s h ou ld follow mu ltin at ion al procedu res r at ified by

th e United States. For procedur es not rat ified by th e Un ited States,

comm an ders s h ould follow the m u ltina tiona l comma nd s pr ocedu res where

applicable.

4. Responsibilities

a. A J oint Sta ff directorate proposa l to the Chairma n th at would ch an ge

source documentation information reflected in this publication will include, as

an enclosu re to their proposal , all proposed ch an ges wh ich would n eed to be

ma de to this pu blication .

b. Milita ry Services a n d oth er organ izat ion s will n otify the Director, J -3,

J oint Staff, when ch an ges to sou rce docu men ts reflected in t his pu blication a re

initiated.

c. Recom men dat ions for cha nges to th is pu blication sh ould be su bm itted to

th e Director for Operat ions (J -3), J oin t Sta ff, Was h in gton, D.C., 2031 8-30 00 .

5. Su mm ary of Cha nges. Th is is the in it ial joint m an u al wh ich replaces J oint

Pub 5-03.1. Cha nges inclu de comm ents from CINC, J oin t Staff, Service, an d

agency Action Officers (AOs) as well as forma t a n d s tru ctu ra l chan ges IAW J SM

5701 .01, 28 Febru ary 1995. Largest chan ges inclu de a newly writ ten TPFDD

LOI concept in En closu res G a n d R, rem oval of World Wide Military Comm an d

and Control System (WWMCCS) procedures and descriptions, inclusion of

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GCCS pr ocedu res a nd descriptions, in clu sion of Comm on Opera tiona l Pictu re

(COP) reportin g procedu res a n d requ iremen ts, a nd inclus ion of terrorist th reat

reporting an d evalua tion requ iremen ts.

6. Releas ab ility. Th is m an u al is ap proved for lim ited releas e. DOD

comp onent s (to includ e the comb ata nt comm an ds) an d other Federal agenciesma y obtain copies of th is m an u al throu gh controlled Int ernet a ccess only

(lim ited to .m il an d .gov u sers ) from th e CJ CS Directives Hom e Page--

ht tp:/ / wwwdtic.mil/ doctrin e/ jel.htm . J oin t Staff activit ies ma y access or

obta in copies of th is ma n u al from t h e J oin t Sta ff LAN

7. Reports Requirements . Reports required by th is man u al are exempt from

norm al reporting procedur es in a ccorda nce with DOD Manu al 8910.01M.

8. Bas is an d Policy

a. J OPES app lies to the developmen t an d implemen tation of operation

plans a n d operation orders prepa red in resp onse to the NCA or the CJCS. It

specifies the policies, procedures, and formats to be used to develop and

execute p lan s for deployment, employm ent, m obilization, s u sta inm ent,

redeploymen t, an d demobilization b y mem bers of th e J PEC.

b. Th is m an u al is n ot inten ded to restr ict th e au th ority of th e join t force

comm an der from organizing forces a n d execu ting the m iss ion in th e most

app ropriate m an n er to en su re u nity of effort in th e accomp lish men t of th e

overall m iss ion . Gu ida n ce perta in ing to the emp loym ent of forces is n ot

conta ined in th is man u al .

c. CJ CSM 312 2.01 is bas ed on th e followin g primary sou rces:

(1) Goldwa ter -Nich ols DOD Reorgan izat ion Act of 19 86 .

(2) DOD Directive 5100 .1, 25 Septem ber 19 87 , "Fu n ction s of th e

Departm ent of Defens e an d i ts Major Comp onen ts."

(3) J oin t Pu b 0-2, 24 Febru ar y 19 95 , "Unified Action Arm ed Forces

(UNAAF)."

(4) J oint Pu b 1-01, 14 Septemb er 1993, "J oint Pu blication System, J oin t

Doctrine an d J oint Tactics, Techn iques , an d Procedu res Developmen t

Program."

(5) J oin t Pub 5 -0, 13 April 199 5, "Doctrine for Plann in g J oin t

Operations."

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(5) J oin t Pub 5 -0, 13 April 199 5, "Doctrine for Plann in g J oin t

Operations."

(6) Unified Comm an d Plan.

(7) J oin t Str at egic Capa bilities Pla n (J SCP FY).

(8) CJ CSI 310 0.01, 1 Septemb er 1997, "J oint Str ategic Plan n in g

System."

9. Effective Da te. Th is m an u al is effective u pon receipt

S.A. FRY

Vice Admiral, U.S. Navy

Director, J oin t Sta ff

Enclosure(s):

A - Introduction

B - J oin t Plan ning Process

C - Deliberate Plan n ing Process

D - Review of Oper at ion Pla n s

E - Crisis Action Plan n ing

F - J OPES Adm in ist ra tion

G - Crisis Action Plan n ing Checklists

H- Pha se I - Crisis Reporting

I - CJ CS War n ing Order

J - Comm an ders Est imate

K - CJ CS Plan ning Order

L - CINCs Alert Order

M - CJ CS Deploymen t Prepara tion Orders, Deployment Orders, a nd

Redeployment Orders

N - CJ CS Execut e OrderO - Sam ple Operation Order

P - Sam ple Comm an ders Evalua tion Requ est

Q - Sam ple OPREP-1, Comp onen ts Evalu ation Respon se

R - Hold for Fu tu re Use CH-1

S Protection of Movem en t Inform at ion

T - Con cept Developm ent Forma ts

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CHAIRMAN OF THE J OINT

CHIEFS OF S TAFF

NOTICE

J 3 CJ CSM 3122.01 CH-1

DISTRIBUTION: A, B, C, J , S 25 May 20 01

CHANGE 1 TO CJ CS MANUAL 31 22 .0 1

1. Holders of CJ CSM 312 2.0 1, 1 4 J u ly 20 00 , J OINT OPERATION PLANNING

AND EXECUTION SYSTEM (J OPES ) Volu m e I, PLANNING POLICIES AND

PROCEDURES, ar e requ ested to m ak e th e followin g cha n ges:

a. Pen -an d-In k Cha nges

(1) Page 4, En closu re R: Ch an ge TPFDD In st ru ctions to Hold for

Futu re Use.

(2) Page A-4, su bpa ra graph 7.b: Cha n ge (CJ CSM 312 2.03 ) to (CJ CSM

3122 .03A with Cha n ge 1, 6 Septemb er 20 00) an d (CJ CSM 3122.04) to

(CJ CSM 3 12 2.0 4A).

(3) Page A-4, su bpa ra graph 7.c: Cha n ge (CJ CSM 312 2.02 ) to (CJ CSM3122 .02B, 25 May 200 1).

(4) Page C-9, su bp ar agra ph 7 .b.(3): Cha n ge En closu re R to En closu re

H to CJ CSM 312 2.02B.

(5) Page C-10, su bp ar agra ph 7.b .(4): Cha n ge En closu re R to

Enclosu re H to CJ CSM 3122.02B.

(6) Page C-12, su bp ar agra ph 7 .c.(2): Cha n ge En closu re R to

Enclosu re H to CJ CSM 3122.02B.

(7) Page E-1, su bp ar agra ph 1 , 13th lin e: Delete an d Execu tion (CAPE)

and replace with (CAP).

(8) Page GL-2: Delete CAPEcrisis action plan n ing an d execut ion .

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(9) Write CH-1 in th e right m ar gin b y all pen an d ink ch an ges.

b. Page Su bsti tu tion

Rem ove Pa ge(s ) Add Pa ge(s )

i th ru iv i thr u iv

ix th ru xii ix th ru x

A-5 th ru A-6 A-5 th ru A-6

E-13 thru E-18 E-13 thru E-20

I-5 th ru I-6 I-5 th ru I-6

I-A-7 th ru I-A-10 I-A-7 th ru I-A-10

I-A-13 th ru I-A-14 I-A-13 th ru I-A-16

M-A-3 th ru M-A-4 M-A-3 th ru M-A-4

M-B-3 th ru M-B-4 M-B-3 th ru M-B-4

M-C-3 th ru M-C-4 M-C-3 th ru M-C-4

N-A-5 th ru N-A-6 N-A-5 th ru N-A-6O-5 thru O-6 O-5 thru O-6

R-1 th ru R-4 R-1 th ru R-2

R-A-1 thru R-A-12

R-B-1 thru R-B-6

R-C-1 thru R-C-2

R-D-1 th ru R-D-2

R-E-1 th ru R-E-2

R-F-1 th ru R-F-2

R-G-1 th ru R-G-4

U-1 thru U-24 U-1 thru U-24

2. Su mm ary of th e cha nges is as follows:

a . Removal of En closu re R, TPFDD Letter of In st ru ction (LOI). Th is

guidan ce is n ow ma int ained in CJ CSM 312 2.02B, 25 May 200 1.

b. Addition of historical su pport requ iremen t to CJ CS Warn ing Order.

c. Revision of force protection sta tem ent u sed in deploymen t orders,

warn ing orders, etc.

d. Updates to references.

3. Wh en the prescribed action h as been ta ken, this tran sm ittal sh ould be filed

behind t he record of cha n ges pa ge in t he ba sic docum ent.

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4. Releas ab ility. Th is n otice is ap pr oved for lim ited releas e. DOD

comp onent s (to includ e the comb ata nt comm an ds) an d other Federal agencies

m ay obta in copies of th is n otice th rou gh cont rolled In tern et acces s on ly (limited

to .mil an d .gov u sers ) from th e CJ CS Directives Hom e Page

ht tp:/ / wwwdtic.mil/ doctrin e/ jel.htm . J oin t Staff activit ies ma y access or

obta in copies of th is ma n u al from t h e J oin t Sta ff LAN.

For th e Cha irm an of th e J oin t Ch iefs of Sta ff:

S. A. FRY

Vice Admiral, U.S. Navy

Director, J oin t Sta ff

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DISTRIBUTION

Dist ribu tion A, B, C, an d J plu s t h e followin g:

Copies

Secr eta ry of Defens e ..... ..... ..... ..... ......... ..... 2

Comm an da n t, US Coas t Gu ar d .................. 5

Comm an der , US Elemen t, NORAD ......................... 2

Direct or, Cen tr a l In telligen ce Agen cy ........... ..... ... 2

Director, Feder al Em ergen cy Man agem en t Agency ........ 2

Direct or, J oint War fight ing Cen ter ....... 2

Comm an ding General , Marine Corps Com bat

Develop m en t Cen te r .... 2

Pres iden t, Nationa l Defen se Un ivers ity ................... 5

Pres iden t, Arm ed Forces Sta ff College .................... . 5

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LIST OF EFFECTIVE PAGES

Th e followin g is a list of effective pa ges for CJ CSM 312 2.0 1. Use th is list to

verify th e curr ency an d completenes s of th e docum ent . An "O" in dicates apage in th e origina l docu men t.

PAGE CHANGE PAGE CHANGE

1 t h r u 4 O J - 1 t h r u J - 4 O

i 1 J -A-1 th ru J -A-6 O

ii O K-1 th ru K-6 O

iii th ru iv 1 K-A-1 th ru K-A-14 O

v th ru ix O L-l th ru L-6 O

x 1 L-A-1 th ru L-A-8 O

A-1 th ru A-4 O M-1 th ru M-4 O

A-5 1 M-A-1 th ru M-A-2 O

A-6 O M-A-3 1

B-1 th ru B-12 O M-A-4 O

C-1 th ru C-28 O M-B-1 th ru M-B-2 O

D-1 th ru D-10 O M-B-3 1

E-1 th ru E-12 O M-B-4 th ru M-B-6 O

E-13 th ru E-20 1 M-C-1 th ru M-C-2 O

F-1 th ru F-12 O M-C-3 1

G-1 th ru G-2 O M-C-4 th ru M-C-6 O

G-A-1 th ru G-A-2 O N-1 th ru N-6 O

G-B-1 th ru G-B-4 O N-A-1 th ru N-A-4 O

G-C-1 th ru G-C-6 O N-A-5 1

G-D-1 th ru G-D-2 O N-A-6 O

G-E-1 th ru G-E-4 O N-B-1 th ru N-B-4 O

G-F-1 th ru G-F-4 O N-C-1 th ru N-C-4 O

G-G-1 th ru G-G-2 O O-1 th ru O-5 O

H-1 th ru H-2 O O-6 1

H-A-1 thr u H-A-2 O O-7 th ru O-8 O

H-B-1 th ru H-B-2 O P-1 th ru P-4 O

H-C-1 th ru H-C-4 O Q-1 th ru Q-2 O

I-1 th ru I-4 O R-1 th ru R-2 1I-5 th ru I-6 1 S-1 th ru S-6 O

I-A-1 th ru I-A-7 O T-1 th ru T-2 O

I-A-8 th ru I-A-9 1 T-A-1 th ru T-A-4 O

I-A-10 th ru I-A-12 O T-B-1 th ru T-B-4 O

I-A-13 th ru I-A-16 1 T-C-1 th ru T-C-12 O

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LIST OF EFF ECTIVE PAGE S (Con t.)

PAGE CHANGE PAGE CHANGE

T-D-1 th ru T-D-4 O U-1 th ru U-24 1T-E-1 th ru T-E-6 O GL-l th ru GL-56 O

T-F-1 th ru T-F-6 O

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RECORD OF CHANGES

Cha nge No. Date of Cha nge Date Entered

Name of Person

Entering Change

Change 1 25 May 20 01 23 Ju ly 20 01 JWFC

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TABLE OF CONTENTS

Page

En closu re A -- INTRODUCTION

Pu rpos e A-1

J oin t Pla n n in g Proces s A-1J OPES Overview A-2

J oin t Pla n n in g a n d Execu t ion Com m u n ity (J PEC) A-2

J OPES Meth odology A-2

J OPES Procedu ra l Pr in cip les A-3

J OPES Procedu res , Gu ida n ce, a n d ADP Su pport A-4

En closu re B -- J OINT PLANNING PROCESS

Pu rpos e B-1

Th e Nationa l Secu rity Cou n cil (NSC) Syst em B-1

Role of th e J oin t Stra tegic Pla n n in g Sys tem (J SPS) B-1

Lin k in g Progra m s a n d Stra tegy B-3

J SPS-Rela ted As s es s m en ts B-5

Ma jor Docu m en ts Im pa ctin g J SPS B-4

Pla n nin g, Progra m min g, a n d Bu dgetin g Sys tem (PPBS) B-5

J oin t Opera tion Pla n n in g a n d Execu t ion Sys tem B-6

J OPES Fu n ction s B-7

J OPES Pla n n in g Proces s B-10

En closu re C -- D ELIBERATE PLANNING PROCES S

Pu rpos e C-1

Applica bility C-1

Delibera te Pla n n in g Proces s for OPLANs C-2

Delib er a t e Pla n n i n g Pr oc es s for CONPLANs a n d FUNC PLANs C-3

Pla n n in g Cycle Res pon sibilit ies an d Tim e Requ irem en ts C-4

Con flict in g Gu ida n ce C-7

Delibera te Pla n n in g Procedu res C-7

TPFDD Ma in ten a n ce C-26

J OPES Sta n da rd Referen ce File Ma in ten a n ce C-26

Ch a n ges to Opera t ion Pla n s C-26

En closu re D -- REVIEW OF O PERATION PLANS

Pu rpos e D-1

Sou rces of Pla n s Reviewed D-1

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Res pon s ib ilit ies for CJ CS Review D-1

Types of Review D-2

CJ CS Con t in gen cy Pla n Review Progra m D-9

En clos u re E -- CRISIS ACTION PLANNINGPurpose E-1

Rela tion s h ip to Delibera te Pla n n in g E-1

Cris is Act ion Pla n n in g Ph a s es E-1

Pos t Execu t ion Activit ies E-2

Opera t ion Pla n s E-2

J oint Plan ning and Execu tion Comm u nity (J PEC) Respon sibilit ies E-2

Com m u n ica t ion E-5

Sin gle-Cris is Procedu res E-6

Mu lt ip le-Cris is Con dition s E-15

Mu lt ip le-Cris is Procedu res E-15

Los s of J OPES a n d / or GCCS Acces s E-17

En closu re F -- J OPE S ADMINISTRATION

Pu rpos e F-1

Gen era l F-1

J OPES Adm in is t ra tion F-1

Problem Reports a n d Ch a n ge Requ es ts F-5

TPFDD Ma n a gem en t F-9

Los s of J OPES Acces s (Sin gle Site) F-10

Los s of SIPRNET Acces s (Sin gle Site) F-10

Los s of J OPES Con trol Fa cility F-11

Los s of SIPRNET a t Mu lt ip le Sites or Worldwide F-11

Ca ta s t roph ic Fa ilu re of GCCS F-11

En clos u re G --CRISIS ACTION PLANNING CHECKLISTS G-1

Appen dix A -- Situ a t ion Developm en t G-A-1

Appen dix B -- Cr is is As s es s m en t G-B-1

Appen dix C -- Cou rs e of Act ion Developm en t G-C-1

Appen dix D -- Cou rs e of Act ion Select ion G-D-1

Appen dix E -- Execu t ion Pla n n in g G-E-1Appen dix F -- Execu t ion G-F-1

App en dix G -- Man agem en t of Civil Airlift Au gmen ta tion

Res ou rces Du rin g Cris es G-G-1

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En closu re H -- PHASE 1--CRISIS REPORTING H-1

Appen dix A -- Sam ple OPREP-3 Pin n acle Com m an d

Assessment H-A-1

Appen dix B -- Sam ple OPREP-3 Pin n acle

Comm an d Assessm ent / CINC Assessm ent H-B-1

Appen dix C -- Reques t for Forces Mess age Form at H-C-1

En closu re I -- CJ CS WARNING ORDE R I-1

Appen dix A -- Sa m ple Forma t for CJ CS War n ing Order I-A-1

En closu re J -- COMMANDERS ES TIMATE J -1

Appen dix A--Sample Comm an der 's Estima te J -A-1

En closu re K -- CJ CS PLANNING ORDE R K-1

Appen dix A -- Sa m ple Forma t for CJ CS Plan n in g Order K-A-1

En closu re L -- CINCs ALERT ORDER L-l

App en dix A -- Sa m ple Form at for CJ CS Alert Ord er L-A-1

En closu re M -- CJ CS D EPLOYMENT PREPARATION ORDERS ,

DEPLOYMENT ORDERS , AND RED EPLOYMENT ORDERS M-1

Appen dix A -- Sam ple Form at for CJ CS Deploymen t

Prepa ra tion Order M-A-1

Appen dix B -- Sa m ple Forma t for CJ CS Deploymen t Order M-B-1

Appen dix C -- Sa m ple Forma t for CJ CS Redeploymen t Order M-C-1

En closu re N -- CJ CS EXECUTE ORDER N-1

Appen dix A -- Sa m ple Forma t for CJ CS Execut e Order N-A-1

Appen dix B -- Su pported Comm an der Execu te Order N-B-1

Appen dix C -- Sam ple Format for Su pported Comm an der

Execute Order N-C-1

En closu re O SAMPLE OPERATION ORDE R O-1

En clos u re P -- SAMPLE COMMANDERS EVALUATION REQUEST P-1

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En clos u re Q -- S AMPLE OPREP-l COMPONENTS E VALUATION

RESPONSE Q-1

En closu re R(HOLD FOR FUTURE USE ) R-1

En closu re S -- PROTECTION OF MOVEMENT INFORMATION S-1

En closu re T -- CONCEPT DE VELOPMENT FORMATS T-1

App en dix A -- Plan n ing Direct ive T-A-1

Appen dix B -- Person n el Est im at e T-B-1

App en dix C -- In telligen ce Es tim at e T-C-1

App en dix D -- Logist ic Es tima te T-D-1

Appen dix E -- Comm an d, Con trol, Comm u nications, a nd

Comp u ter Systems Estimate T-E-1

Appen dix F -- Comm an ders Estim at e of th e Situ at ion T-F-1

En closu re U -- Referen ces U-1

GLOSSARY

Part I-Abb reviat ion s an d Acronym s GL-l

Part II-Term s an d Definitions GL-13

FIGURES

B-1 Key Relat ion sh ips B-3

B-2 J OPES Operationa l an d Su pporting Fu nctions B-7

B-3 Fu nctiona l Process - Major Inp u ts an d Ou tpu ts B-8

B-4 J OPES Deliberate Plan ning Process an d Crisis

Action Plan n in g Process Fu n ction al Align m ent B-11

C-1 Plan Relat ion sh ips C-1

C-2 Th e Delibera te Plan n in g Process C-3

C-3 Concept Developm ent Pha se C-9C-4 Plan Developmen t Pha se C-11

E-1 CJ CS Order Matrix E-4

E-2 Flow Diagra m of th e Crisis Action Procedu res E-7

M-1 Deploymen t Order Matrix M-3

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ENCLOSURE A

INTRODUCTION

1. Purp ose. This cha pter provides an overview of th e J oint Opera tion Plan ning

an d Execu tion System (J OPES) an d i ts u se in th e joint operation p lan n in gprocess. It describes the J OPES processes an d the environm ents in which

plann ing for an d execut ion of joint military operations are condu cted. Du ring

th is process, comm an ders a nd their staff are encou raged to coordinate early

an d often with th eir J oin t Sta ff an d Defens e agencys cou nterp arts as th ey

prepa re th eir plan s, th e CINCs Strategic Concept, a nd th e detailed su pporting

annexes .

2. J oint Plan ning Process. J oin t operation plan ning is a coordina ted process

u sed by a comm an der to determine th e best meth od of accomplish in g th e

m iss ion . In pea cetime, th e process is called delibera te plan n ing. In crisis

situ at ions , it is called crisis act ion plan n in g. Execution of a delibera te plan is

accomplish ed us ing crisis action procedu res. J oint plan n ing is cond u cted

u nd er J OPES policy an d procedu res with au toma ted da ta p rocess ing (ADP)

su pp ort. J oin t plan n ing h as its origins in th e followin g five in terrelated

systems that affect the development of operation plans (OPLANs, CONPLANs,

and FUNCPLANs) and operation orders (OPORDs):

a. Nat iona l Secu rity Coun cil (NSC) System , which gener at es Nation al

Secu rity Directives (NSDs).

b. J oin t Strategic Plan ning System (J SPS), which, throu gh the J oint

Stra tegy Review (J SR), gen erat es Ch airm an 's Gu ida n ce, the National Milita ry

Stra tegy (NMS), J oin t Str at egic Capa bilities Plan (J SCP), th e Cha irma n 's

Progra m Ass ess m ent (CPA), CJ CSM 312 2.02 , Crisis Action Time-Pha sed Force

an d Deployment Da ta Developmen t an d Deployment Execution , an d oth er

joint planning guidance.

c. Plan n in g, Progra m m ing, an d Bud getin g System (PPBS), which gen erat es

the Defense Planning Guidance (DPG), Program Objective Memorandums

(POMs), Iss u e Books , Progra m Decision Memora n du m s (PDM), Bu dget Est imat e

Su bm ission (BES), Progra m Bu dget Decision (PBD), an d th e Defens e bu dget.

d. J OPES policy, which cons ists of CJ CSM 3122 .01, J OPES Volu me I

(Plan n in g Policies an d Procedu res), an d CJ CSM 312 2.03 , J OPES Volu m e II

(Plan n in g and Execut ion Forma ts a nd Gu idan ce) with clas sified su pplement.

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levels of decision making in deliberate and crisis action planning environments.

J OPES in clu des five operationa l process es (th reat iden tification a n d

as sess men t, s tr ategy determina tion, cours e of action developmen t, detailed

plann ing, a nd imp lemen tation ) governing both deliberate an d crisis a ction

plann ing process es. Together with th e two JOPES su pporting fu n ctions

(simu lation an d a n alysis , an d m onitorin g), th ey form th e J OPES m ethodology.

6. J OPES Procedu ra l Prin ciples

a. Single Set of ADP Procedu res. J OPES embodies a single set of ADP

procedures th at , comb ined with adm inistra tive policies a n d pr ocedu res, govern

all as pects of m ilita ry operation plan n ing an d execut ion (includ in g thea ter-level

nu clear an d chemical plans ). This sin gle, networked system en su res tha t all

par t icipa nt s in a ll aspects of join t m ilitary plann ing an d execu tion u se th e

sa me vocabu lary, procedu res, an d join t ADP su pport , th u s facilitat ing th e

tra n sition from plan n ing an d tr ainin g to the effective execu tion of m ilita ry

operations.

b. Use of Exist ing or Progra m m ed Cap ab ilities an d Resour ces. J OPES

plann ing is capa bilit ies-bas ed. Military plan ners u se th e forces an d resou rces

sp ecified for regiona l or global plan n ing, as a pp ropriate, in th e J SCP, CJ CS

orders, Service capabilities documents, Allied and Coalition agreements, and

app roved operation plans or operation orders. Usin g th e forces an d resour ces

ap portioned for plan n in g, th e CINCs s elect th ose forces th ey inten d to em ploy

with in th eir plans to comp lete the ass ign ed mission. The compa rison of

requ ired forces an d s u s ta inmen t agains t sou rced forces an d s u s ta inmen t will

iden tify sh ortfalls. For contin gen cies with ou t globa l implications , plan n ers u se

th e apportioned forces a nd resou rces detailed in J SCP for regional plans . For

contingencies with global implications, the apportioned forces and resources

ma de available to the su pported comm an d will be allocated by the Ch airma n

an d comb ined agencies wh en necessa ry IAW in terna tional agreement s an d

u nd ersta nd ings. Thu s, plan ning in J OPES begin s with compa ring th e force

requirements (validated by the Supported Commander) to available (including

comba t , comba t su ppor t , and comba t service sup por t ) an d resources

app ortioned. Su pporting com ma nd s an d agen cies, as well as th e Services and

combin ed en tities, confirm force an d res ou rce availab ility an d a ctively sour ce

requ irements d u r ing the plann ing process . During th is s ta ge in the plann ing

process, relevan t person nel an d logist ic data are n eeded to ass ess forcesu sta in ability an d tran sporta tion feasibility, requirin g coordina tion an d

cooperation with th e su pporting DOD an d a ppropriate foreign a gencies.

c. Sh ortfall Iden tification an d Risk An alysis. J OPES conta ins sp ecific

procedures for the s u pported comm an der to identify shortfalls b etween th e

validat ed requ iremen t a n d th e Provided Comm an ders s ourcing at variou s

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points in the plan ning process . The su ppor ted comm an der then a t tempts to

resolve shortfalls, conducts risk analysis if the shortfalls are not resolved, and

redefin es th e Concept of Operation in th e plan if th e resu ltan t r isk is too great .

d. Plan s Mainten an ce. Com pleted and app roved plans will be ma int ained

an d u pda ted as required. A new plan is required only when th e th reat ,taskings, forces assigned, resources available, or concept of operations change

to the extent th e sup por ted comm an der and the Chairman deem it necessary

to develop a new plan . Otherwise, com ma nd ers an d th eir sta ffs concentra te on

keeping exist ing plan s an d orders up to date an d executa ble. In s u pport of th e

J OPES goal of developing a n d m ainta inin g executa ble plan s, comm an ders will

u se appropr ia te methods a t their d isposal to keep plan s cu rrent an d accura te ,

in clu ding plan ma in tena nce conferences an d newsgroup s. Th e t ime-ph as ed

force an d deploym ent da ta (TPFDD), wh ich is Appen dix 1 to An n ex A of th e

Plan , is on a s epara te an d dist in ct mainten an ce cycle and is discus sed in

Enclosu re C, pa ragraph 8, TPFDD Mainten an ce.

7. J OPES Procedur es, Gu idan ce, an d ADP Su pport . Procedu res, guidan ce,

an d d escription s of ADP system s u pport n ecess ary to condu ct joint operation

plann ing an d execution a nd to sup port exercises a re con tained in th e J OPES

volumes:

a. J OPES, Volu m e I (CJ CSM 31 22 .01), "Plan n in g Policies an d Procedu res,"

provides policy, guidance, and procedures for the development, coordination,

dissem inat ion , review, app roval, an d imp lem ent ation of joint OPLANs a n d

OPORDs. Volu m e I also contains st an dar d forma ts an d minimu m content for

Crisis Action Plan n ing (CAP) procedu res orders , letters, rep orts, an d t h e CAP

checklists .

b. J OPES, Volu m e II (CJ CSM 31 22.0 3A with Ch an ge 1, 6 Septem ber 20 00 ), CH-1

"Plan ning Forma ts a nd Guidance," prescr ibes s ta nda rd formats an d m inimu m

conten t for operat ion plans , concept s u mm aries , an nexes , a ppendixes , tabs , an d

exhibits. It is fu n ction ally orien ted an d provides directiona l, procedu ra l, and

plann ing gu ida nce keyed to certain plan an n exes. Formats for clas sified su bjects

an d deta iled fu nctiona l area guidan ce are contained in th e Su pplement (clas sified)

to J OPES, Volu m e II (CJ CSM 31 22 .04 A). CH-1

c. Man u al for Tim e-Pha sed Force an d Deploym ent Da ta (TPFDD) Developm entan d Deploymen t Execution (CJ CSM 3122 .02B, 25 May 200 1). This ma nu al CH-1

esta blish es pr ocedu res for th e TPFDD an d for deploym en t of forces with in th e

context of J OPES in s u pp ort of joint military opera tion s. J OPES procedu res for

TPFDD development and the deployment of forces are prescribed in Enclosures A

th rough F an d a re done s o with in th e cont ext of th e six ph as es of crisis action

plan n ing (CAP). Th is m an u al in clu des forma ts for Cour se of Action

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(COA) Plan Iden tification Nu m ber (PID) a n n ou n cemen ts, Deploymen t Es tima te

Reques ts, Requ est for TPFDD Sou rcing, a n d TPFDD Valida tion . CJ CSM

3122 .02B, 25 May 200 1 a lso conta in s a sa mp le TPFDD Letter of In stru ction

(LOI) and instructions for incorporating contractor deployment requirements

into the TPFDD.

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(INTENTIONALLY BLANK)

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ENCLOSURE B

J OINT PLANNING PROCESS

1. Purp ose. This chapt er describes th e in terrelation sh ips of th e as sociated

n at ion al-level system s for n at iona l secu rity policy, milita ry st ra tegy, force an dsu sta inmen t requ irements , an d plans a nd th eir impa ct on th e jo int p lann ing

process.

2. Th e Nationa l Secu rity Cou n cil (NSC) Syst em . Th e NSCis th e principal

foru m for delibera tion of n at iona l secur ity policy iss u es r equ irin g Presiden tial

decision. Th e NSC system p rovides th e fra m ework for esta blish in g n at iona l

st ra tegy an d policy objectives. Th e NSC develops policy option s, cons iders

imp lication s, coordinat es operation al problems th at requ ire in terdepart men tal

con sideration, develops recomm end ation s for th e President, an d m onitors

policy imp lemen tation . The Cha irm an dischar ges a su bst an tial par t of th e

sta tu tory responsibilit ies a s th e principal m ilitary a dviser to th e President, th e

NSC, an d th e Secretary of Defens e thr ough t he ins titu tiona l cha n nels of th e

NSC. The Cha irm an regu larly atten ds NSC meetings and p resent s th e views of

th e Joint Chiefs of Staff an d the combat an t comm an ders. The NSC prepares

Nat ion al Secu rity Directives (NSDs) th at, with President ial a ppr oval, implemen t

n at ion al secu rity policy. Th ese policy decisions provide th e bas is for both

military plann in g and p rogram ming.

3. Role of th e J oin t Stra tegic Plan n in g System (J SPS)

a. The J SPS (CJ CSI 310 0.01) is th e prima ry forma l mea ns by which th e

Cha irm an , in cons u ltation with th e oth er mem bers of th e J oint Sta ff an d th e

CINCs, ca rries ou t p lann in g an d p olicy respon sibilities deta iled in Title 10,

USC. Th e resp ons ibilities in clu de:

(1) Providing advice an d as sista n ce to th e Presiden t an d Secretar y of

Defens e on th e stra tegic direction of th e Arm ed Forces a nd th e prepa ration of

policy guida n ce.

(2) Prepar ing m ilitary str at egy, st ra tegic plan s, an d stra tegic

assessments .

(3) Providin g ad vice to th e Secreta ry of Defen se on t h e effect th a t critical

force capa bility deficien cies a n d s tren gths will h ave on accom plish ing na tion al

secu rity objectives, implemen ting policy, an d execut ing stra tegic plan s.

(4) Providing advice on program recomm end ations an d bu dget proposa ls

to conform with p riorities es tab lish ed for th e CINCs a n d in s tra tegic plan s.

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b. Th e J SPS is a flexible system th at forms th e bas is for in tera ction with

other DOD systems; provides supporting military advice to the DOD Planning,

Programming, and Budgeting Systems (PPBS); and provides strategic guidance

for us e in J OPES. Figure B-1 shows th e relations h ips b etween various

program s an d plan ning docu ments .

c. Th e JSPS provides th e mean s for the Cha irm an , in consu ltation with th e

other m emb ers of th e J oin t Chiefs of Sta ff an d th e CINCs, to syst ema tically

review the national security environment and US national security objectives;

evaluate r isks and threats; assess current strategy and exist ing or proposed

program s a nd bu dgets; an d propose military stra tegy, forces, an d programs

n ecessa ry to achieve na tion al secu rity objectives in a resou rce-limited

environment.

d. J SPS provides for the cont in u ous s tu dy of th e strategic environm ent to

ident ify con dit ions or tren ds th at m ay warran t a cha nge in th e strat egic

direction of th e Arm ed Forces. Th e prin cipa l m echa n ism for this stu dy is th e

J oin t Str at egy Review (J SR). A decision to m odify th e str at egic direction of th e

Arm ed Forces b as ed on th is r eview would be r eflected in t h e Nation al Milita ry

Str at egy (NMS) or th e J oin t Vision.

(1) Th e NMS articulat es h ow the Un ited St at es will emp loy th e military

elemen t of power to s u pport th e n ation al secu rity objectives fou n d in th e

Pres iden ts Nat ion a l Secu rity Stra tegy (NSS).

(2) Th e Cha irma n s vision, referred to as J oin t Vision 20 10 , describes

th e opera tion al concept s an d capa bilities requ ired of fu tu re join t forces. It

provides a conceptu al template for th e condu ct of fu tu re m ilitary operation s

an d es tabl ish es a comm on azimu th for the Services , comba tan t comm an ds,

Defens e agencies, an d J oin t Sta ff as th ey develop plan s an d program s to evolve

th e joint force to meet fu tu re operations requiremen ts.

e. Th e JSPS produ cts, part icularly th e NMS, assist th e Ch airma n in

providing for the preparation of contingency plans and development of the

J oin t Stra tegic Cap ab ilities Plan (J SCP). Th e J SCP provides s tra tegic gu idan ce,

estab lish es requirement s, an d ap portions res ources to the CINCs an d Service

Chiefs to accomp lish tas ks a nd m iss ions ba sed on n ear-term m ilitary

capabilities.

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Figu re B-1. Key Relat ion sh ips

4. Link ing Programs an d Strategy

a. The stra tegy, plans , an d concepts developed with in th e J SPS mu st be

supported by a programmatic system that identif ies, budgets, and acquires the

capabilities required.

b. Th e Cha irm an t ran slates the J oint Vision an d the NMS int o

programmatic advice to the NCA, synchronized with the key milestones in theDOD PPBS. The Ch airma n formu lates his ad vice from two sources:

(1) Forma l au th orita tive plan n in g an d program m at ic ad vice is provided

early in th e program ming cycle in accordan ce with th e J oint Plan ning

Docum en t (J PD). Th is ea rly ad vice tak es ad van ta ge of th e fu ll pa rticipa tion of

th e combata nt comm an ds, Services, an d Defens e agencies. Becau se the PPBS

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is a n iterative process , th e J PD begin s th e new cycle an d is congruen t with th e

Cha irm an s Program Ass ess m ent (CPA) from t h e previou s cycle plus an y

intervening program adjus tm ents an d s t ra tegy chan ges .

(2) Th e J oin t Requ irem en ts Oversights Cou n cil (J ROC), us ing th e J oin t

War figh ting Cap ab ilities Ass ess m en t (J WCA) process , a lso provides th eCha irm an program ma tic advice an d bu dgetary alternatives.

c. Th ese sources ar e the bas is for the Chairma ns Program

Recomm en da tion (CPR) an d th e CPA. Wh ile th e J PD an d CPR ar e prepa red in

order to as sist th e Secretary of Defens e in prepar ing th e Defens e Plan n ing

Gu ida n ce (DPG), th e CPA as ses ses th e conform an ce of th e Services Progra m

Objective Memoran du m (POM) forces with t h e priorities esta blish ed in s tra tegic

plan s an d to meet the requirements of the comba tan t comm an ds.

(1) The J PD, th e CPR, an d th e CPA together m ake u p th e Chairma ns

plann ing an d programm atic advice to th e Secretary of Defens e. Comb in ed,

th ey presen t the au th oritat ive advice of th e Ch airma n a nd oth er memb ers of

th e Joint Chiefs of Staff. The J PD, bas ed on s trategic gu idan ce, represen ts th e

best p ossible early au th oritat ive plann in g and program ma tic ad vice of th e

Chairman to the Secretary of Defense as he begins the process of developing

th e DPG. Con cur rently, the J PD inform s th e J WCA an d J ROC processes of th e

broad stra tegic plann in g and program ming direction a nd priorit ies of th e

Cha irm an an d other mem bers of th e J oint Ch iefs of Staff.

(2) Th e CPR provides m ore sp ecificity on pr ogra m s of greates t concern to

th e Ch airma n m u ch later in th e DPG process. Fin ally, bu ilding on the

in forma tion developed in both th e J PD and th e CPR prepara tion processes, th e

CPA provides t h e Cha irm an s a ss ess m ent of th e adequ acy of th e Services an d

Defens e agencies POMs a n d, wher e app licab le, provides recomm end at ions to

the Secretary of Defense on specific alternative program and budget proposals

based u pon th e Chairman s a ssessm ent of current an d fu ture joint operat ions

requirements .

5. J SPS-Related Ass essm ents . Th e J SPS provides for t imely an d su bsta n tive

par ticipa tion by the J oint Staff, Services, comb ata nt comma nd s, an d Defens e

agencies in th e developmen t of each J SPS docum ent. As program s are

developed and r esour ces are allocated, J SPS products a nd J SPS-relateddocuments provide a means to evaluate capabil i t ies and assess program and

budget adequacy and, where appropriate, propose changes.

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con stra int s to th e Military Departm ents , th e Defens e agencies, an d USSOCOM

for th e developm ent of th eir POMs.

b. Programm ing. Th e program ming pha se of th e PPBS focuses on th e

development of POMs and the integration of those POMs into a coherent

defens e program to su pport th e warfightin g requ iremen ts of th e comb ata ntcomm an ders . With th e exception of USSOCOMs s pecial operat ions (SO)-

peculiar requirements, the combatant commanders provide their requirements

to the S ervices th rough th eir compon ents an d identify their h ighest p riority

needs t o the Secretary of Defens e an d th e Chairma n b y mea ns of an int egrated

pr iority list (IPL). Th e Milita ry Depa rtm en ts , Defen se agen cies, an d USSOCOM

develop their POMs based on th e comba tan t comma nd requ irements an d

stra tegic con cepts an d guidan ce contained in th e DPG. The POMs express th e

Services total requ iremen ts an d inclu de as sess men ts of r isk as well as

descriptions of h ow well the POMs s u pport th e requirements of th e com bata nt

comm an ders. The Chairma n as sess es the overall balan ce an d adequa cy of th e

compos ite POM force an d s u pp ort levels in view of ap proved str ategy an d th e

requ irements of the comba tan t comm an ders and d ocu ments h is assess ment in

th e CPA. In a coordina ted effort, program iss u es ar e iden tified by the

comba tan t comma nders an d DPRB memb ers an d a re resolved by the DPRB.

The r esu lts are p romu lgated in th e Secretarys Program Decision Memoran du m

(PDM). Th e PDM is th e link between p rogram m in g an d bu dgetin g.

c. Bu dgetin g. Th e fin al ph as e of th e PPBS is bu dgetin g. On ce th e PDMs

are received, bu dget est ima tes a re prepa red by th e CINCs an d each of th e

Military Departm ents , th e Defens e agencies, USSOCOM, an d s u bm itted to th e

Secret ar y of Defen se. Th e Defen se bu dget is reviewed by OSD an d Office of

Man agement an d Bu dget (OMB) to ensu re th at i t is cons isten t with th e fiscal

guidan ce. Cha nges to th e bu dget are docum ented in Program Bu dget

Decisions (PBDs). Du ring th is fina l ph as e of bu dgetin g, th e Cha irma n , th e

Service Ch iefs a nd th e comb ata n t comm an ders a ss ess th e imp act of PBDs on

warfighting cap ab ilities. Th eir con cern s ar e pres ent ed to th e Secreta ry of

Defens e. Fina l cha n ges are incorporated with p revious PBDs to establish th e

DOD portion of th e Presidents b u dget, which is su bm itted to Con gress for

fu n ding. When th e President signs t he congress ional appropriations act into

law, th e Services, Defens e agencies, an d USSOCOM execu te th e bu dget, forces

an d capa bilit ies are procu red, an d th e next J SCP is prepa red for the

Cha irm an s app roval.

8. J oint Operation Plan ning an d Execu tion System. J oint operation plann ing

is performed in a ccorda n ce with policies a nd procedures estab lish ed in a

form al DOD-directed, CJ CS-selected system : J OPES. J OPES is th e single

system for military operation plann ing an d execution. J OPES in clu des

policies, procedu res, reportin g stru ctu res, an d person nel su pported by C4I

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a. J OPES Operationa l Fu nctions

(1) Iden tify an d Ass ess Th reat . Th is fu n ction ad dres ses procedu res for

describin g threat s to n ationa l security while con tinu ous ly monitoring the

in terna tional polit ical an d m ilitary environm ent so th reats to na tional secu rity

can be detected an d an alyzed, alert ing decision m akers , an d determ ining thespecific na tu re of th e threa t . Determining enem y cap abilit ies an d intent ions is

emp h as ized u sing this fu n ction . All organ izat ion al levels are su pport ed by th is

fu n ction du rin g deliberate a nd crisis action plann ing an d execu tion.

(2) Determ in e Stra tegy. Using th is fu n ction , th e NCA, Cha irma n , an d

J oin t Sta ff, with a ppr opriate cons u ltation with Allied an d Coalition m emb ers,

form u lat e su ita ble an d feas ible m ilitary objectives to coun ter th e th rea ts. Th is

function is used in formulating politico-military assessments, developing and

evaluating military strategy and objectives, apportioning forces and other

resour ces, formu lating concepts a nd m ilitary options, an d d eveloping plan n in g

guidan ce lead in g to th e pr epa ra tion of COAs, OPLANs, CONPLANs, Fu n ction al

Plan s, an d OPORDs. This process begins with an an alysis of exist ing strat egy

guidance in light of the intelligence estimate and ends with issuance of either

th e J SCP in p eacet ime or a CJ CS WARNING or PLANNING ORDER du ring

crisis action plann in g situ ations .

JSRSINDICATIONS &

WARNINGSOPREPS/INTSUM

APPROVED CONOPSALERT ORDER/

PLANNING ORDER

INTELLIGENCEASSESSMENTS

JSCP,WARNING ORDER

APPROVEDOPLAN/OPORD

EXECUTE ORDERSTATUS RPTS

REPLAN/REDEPLOY

THREAT

IDENTIFICATIONAND ASSESSMENT

STRATEGYDETERMINATION

IMPLEMENTATION

COADEVELOPMENT

DETAILEDPLANNING

Figure B-3. Fu n ctional Process es Major Inp u ts an d Outp u ts

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(3) Develop Cou rs e of Action (COA). In COA de velopm en t du rin g

pea cetim e, the su pp orted comm an der develops th e CINCs Str at egic Concept

(CSC) bas ed on J oint Staff an d Service plan ning guidan ce an d res ource

app ortionm ent provided in th e J SCP an d Service docum ents . In crisis

si tuations, the supported command develops COAs based on planning

guidan ce an d res our ce allocation from ap proved Plan s a n d CJ CS WARNING orALERT ORDERS. Using th is J OPES fu n ction , coup led with th e J OPES su pport

function simulation and analysis , force, sustainment, and transportation

feas ibility ar e an alyzed. Th e Services, thr ough Service compon ent comm an ds

an d su pport ing comm an ds , provide su pp ortab ility estima tes of th e CINCs

Strat egic Concept or COAs to the su pported comma nd er. Produ cts from COA

developm ent in clu de CINCs Stra tegic Concept ; CJ CS-app roved CONOPS; the

Comm an ders Estimate, in clu ding COAs; s u pportab ility estimates; a nd , t ime

perm itt ing, an int egrated t ime-pha sed da tab as e of n otiona l combat , comb at

support (CS), and combat service support (CSS) force requirements, with an

estimate of required sustainment.

(4) Plan in Deta il. Th is fu n ction is u sed in developin g an OPLAN, an

operat ion p lan in concept form at (CONPLAN) an d a n OPORD with n ecessa ry

su pp orting an n exes an d in determ in in g prelim ina ry m ovemen t feas ibility. Th is

fu n ction provides a deta iled, fully in tegrated sch edu le of m obilization ,

deployment, employment, and sustainment activit ies based on the CJCS-

ap proved CSC or COA. Detailed plan n in g begin s with th e Ch airm an s guidan ce

in th e form of an ap proval for fu rth er plann in g in a peacetime en vironm ent or a

CJ CS ALERT or PLANNING ORDER in a crisis action plan n ing situ at ion an d

end s with a CJ CS-app roved Plan or NCA-app roved OPORD.

(5) Im plemen t. Th is fu n ction provides decision ma kers th e tools to

mon itor, an alyze, an d contr ol events du rin g the cond u ct of military operations .

It en compas ses th e execut ion of military operation s a n d p rovides p rocedu res to

iss u e OPORDs; condu ct m obilization , deployment, employmen t, a nd

su sta in men t activit ies; and a djust operations where required. Force Protection

an d Operat ions Security (OPSEC) iss u es ar e addr essed h ere, in par t icular th e

THREAT LEVEL an d terr orist t h reat in th e th eater of operat ions to pers onn el,

facilities, a n d res ou rces. Appr opriate THREATCON levels a re evalu at ed a n d

in itiated t o provide ma xim u m protection for pers onn el, facilities, an d

resou rces. Add ition ally, In form ation Opera tion s (IO) issu es ar e addr ess ed, in

par ticular th ose actions tak en to ach ieve informa tion s u periority, bothoffens ively an d defen sively. Th e ability to mon itor an d comp ar e actu al with

sch edu led events is cru cial to as sess ing m iss ion a ccomp lish m ent; controlling,

directing, replann ing, redirecting, or term in ating operations ; an d cond u ctin g

redeploymen t. Plan ning is a cyclic process tha t cont inu es throu ghout

imp lemen tation. Imp lemen tation begins with th e CJ CS EXECUTE ORDER an d

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con tinu es th rough some type of replan ning effort , su ch a s r edeploymen t or

redirection of opera tion s.

b. Su pporting Fu nctions . Th e two su pporting fu nctions previous ly

identified in Figure B-1, monitoring and simulation & analysis, complement the

operationa l fu nctions to com plete th e conceptu al fram ework of J OPES.

(1) Mon itoring. Th is su pp orting fu n ction su pp orts each of th e oth er

J OPES fu n ctions b y obtaining cur rent a ccura te in forma tion concerning the

sta tu s of fr ien dly, enemy, an d n eutr al forces a nd resou rces in accomplish ing

m iss ion ta sk s. Exam ples of inform at ion process ed are objective

accomplish ment ; cons u mption data ; an d th e s ta tu s of movement ,

procu rem ent , m obilizat ion , forces, a n d facilities.

(2) Simu lat ion an d An alysis. Th is su pp orting fu n ction offers var iou s

au tomated techn iques th at enh an ce each of the other J OPES fu nct ions .

Examples of simulation and analysis applications, when feasible, are force-on-

force ass ess m ent s (su ita bility); gener at ion of force requirem ent s; compa rison of

requirement s to capa bilit ies, su ch a s cons u mp tion da ta; closu re profiles

(feasibility); and generation of mobilization and sustainment requirements

based on n eed.

10. J OPES Plan ning Process. J oint operation plann ing an d execu tion is a

con tinu ous , iterative process. Based on the Cha irm an s J SCP plann ing

requ iremen ts , th e CINCs p repa re four types of delibera te plan s; OPLANs,

CONPLANs (with a n d with out TPFDDs), an d fu n ction al plan s. Th ese plan s

facilitate th e rap id tran sition to crisis resp ons e for poten tial, perceived, an d

iden tified th rea ts to US secu rity in terest s. Crisis Action p lan n ing begin s with

th e deliberately produ ced plan an d continu es th rough military option s election

an d COA, operation plan , an d operations order developmen t an d

imp lemen tation; an d end s when t he requ iremen t for the plan is can celed, the

operat ion is term inat ed, or the crisis is sa tisfactorily resolved. Figur e B-4

sh ows th e J OPES operational fu n ctions aligned with th e deliberate a nd crisis

action p lan n in g processes.

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CONCEPTDEVELOPMENT

PHASE II

PLAN REVIEWPHASE IV

SUPPORTINGPLANS

PHASE V

INITIATIONPHASE I

DELIBERATEPLANNINGPROCESS

CRISIS ACTIONPLANNINGPROCESS

JSCP

APPROVED FORFUTURE

PLANNING

PLANDEVELOPMENTPHASE III

ALERT ORDERand/or

Planning Order

EXECUTEORDER

E P Q @ T A V I 8 U D P I T

STRATEGYDETERMINATION IMPLEMENTATION

THREATIDENTIFICATION& ASSESSMENT

COADEVELOPMENT

DETAILEDPLANNING

EXECUTIONPHASE VI

SITUATIONDEVELOPMENT

PHASE I

CRISISASSESSMENT

PHASE II

COADEVELOPMENT

PHASE III

EXECUTIONPLANNINGPHASE V

COASELECTIONPHASE IV

WarningORDER

Figur e B-4. Deliberate Plan n ing Process an d Crisis Action

Planning Process Functional Alignment

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(INTENTIONALLY BLANK)

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ENCLOSURE C

DELIBERATE PLANNING PROCESS

1. Pu rpos e. Th is enclosu re des cribes the applicab ility of J OPES to delibera teplann ing, describes th e deliberate p lan ning process for operation plan s,

outl ines respons ibilit ies an d recomm ended t im e requirements for the plan n in g

cycle, and provides guidance for resolving conflicts.

2. Applicab ility. With th e exception of th e Sin gle In tegrated Op erat ion al Plan

(SIOP), J OPES ap plies to opera tion plan s p repa red b y CINCs in res pon se to

CJ CS requiremen ts. Operation plans a re prepa red in complete forma t

(OPLANs) or in con cept form at (CONPLANs) a s d escr ibed b elow. Figu re C-1

sh ows th e re la t ionsh ip of the var ious terms u sed in J OPES an d th e plan ning

process in gen eral .

3/$16

Deliberate Plans / Contingency PlansCrisis Action

Plans

Operation PlansFunctional

Plans

OPLANs CONPLANs

OPLAN or

CONPLAN or

OPORDUse

Complete Format

1Use Concept

Format

2Use Functional

FormatUse JOPES Vol II

Format

1 All app licab le plan element s in J OPES Vol. II mu st be inclu ded.2 Plan Sum m ary, Bas ic Plan, a nd Ann exes A, B, C, D, J , K, V, & Z, a t a m inimum , are r equired.

Figur e C-1. Plan Relat ions h ips

a. OPLANs. An OPLAN is a com plete an d deta iled join t plan a n d in clu des a

fu ll descr iption of th e concept of operat ion s, a ll an n exes ap plicab le to the p lan ,

as well as Time Pha sed Force Deploym en t Data (TPFDD). It iden tifies the

specific forces, fun ctiona l su pport , a nd resour ces requ ired to execute th e planan d provides closu re estimat es for their m ovem ent into the th eater . OPLANs

can be qu ickly developed into an OPORD. OPLANs a re norm ally prep ar ed

when:

(1) Th e con tingency is critical to n at iona l secu rity an d requ ires d etailed

prior p lan ning.

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(2) Detailed plann in g will contr ibu te to deterr ence by dem ons tra ting

readiness through plan ning.

(3) Detailed plan n in g is requ ired to su pp ort alliance or comb in ed

plann ing. OPLANs facilitate th e tran sit ion to war an d, th rough t he

developmen t of su pporting plans b y both su pporting comma n ds a nd Defens ecomba t su pport a gencies, est ab lish th e feas ibility of th e plans concep t of

operations.

b. CONPLANs. A CONPLAN is an opera tion plan in an a bb revia ted form at

th at ma y require considerable expan sion or al teration to convert i t int o an

OPLAN or OPORD. A CONPLAN con ta ins a Pla n S u m m ar y, Bas ic Pla n ,

Ann exes A th rough D, J , K, V an d Z, an d th ose ann exes an d ap pen dixes

deem ed n ecessa ry by the CINC to complete plan n ing. A CONPLAN m ay or ma y

not h ave an a ss ociated TPFDD.

c. Fu n ctiona l Plan s (FUNCPLAN). FUNCPLANs in volve th e cond u ct of

military operations in a peacetime or n onh ostile environm ent. Examp les

in clu de p lan s for disas ter rel ief, n ation as sistan ce, logist ics, commu n ication s,

su rveillan ce, protection of US citizens , n u clear weapon recovery an d

evacuation, humanitarian assistance, peacekeeping, peace enforcement, and

con tinu ity of operations. Requiremen ts for these plan s m ay be satisfied by

comm an d p u blications ; e.g., USCINCEUR Recons titu tion Plan , USCINCJ FCOM

Plat form Protection SOP. Unless s pecifically directed, no requ irem ent exists t o

su bm it th ese plan s to the J oint St aff for review and Ch airma n a pproval, but

in form ation copies will be su bm itted to the J oin t Sta ff, J -7, for in tern al J oin t

Sta ff distribu tion . As a m inimu m , includ e th e followin g as pa rt of a FUNCPLAN:

Plan Su mm ary, Basic Plan , an d An nexes A, B, C, D, J , K, V, & Z, an d th ose

an n exes an d a ppen dixes deemed n ecess ary by the CINC to complete plann ing.

3. Deliber at e Plan n ing Proces s for OPLANs

a. Deliberate plan n in g is des ign ed as a cyclic process du ring peacetime

con ditions an d pr ovides th e J PEC an opportu nity to develop an d refin e plan s to

be u sed in wartim e. In its ba sic form , delibera te plan n ing h as five forma l

ph as es (see Figur e C-2). Th ese ph as es produ ce a fam ily of plan s (th e

su pported comm an ders plan, su pporting plans , and plan s designed for

concu rren t execu tion ). Followin g th e five form al deliberate plan n in g ph as es,th e fam ily of plans is m ainta ined. Althou gh plann in g is ess entially a sequ ential

process, the n eed for concu rrent , para llel, an d detailed plan ning mu st be

recognized by all concerned in the joint planning process.

b . Forces an d su s ta inmen t requ irements a re developed by the sup por ted

comm an der an d sou rced by the Services , su ppor t ing comm an ders , an d

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Defense agencies, particularly the designated combat support agencies (DIA,

DISA, DTRA, NIMA, an d NASA). Th e sou rced forces a n d su st a inm en t requ irin g

comm on-u ser l ift ar e t ime-ph as ed by the su pported CINC an d m ovemen t is

analyzed by USCINCTRANS and appropriate combined transportation entities.

The su pported comm an der prepar es the variou s an n exes tha t provide detailed

gu idan ce to su ppor ted comm an d componen ts an d su bordina te comm an ders .The su ppor ted comman der is a u thor ized to task su ppor t ing comm an ds a nd

DOD agen cies to pa rt icipate in th e plan ning process to inclu de su bm itt ing

su pport ing plan s , as required. The su ppor ted comm an d ma y a lso request

J oint Staff as sistan ce in gain in g plan ning su pport from a gencies ou tside the

Departm ent of Defens e. Su pporting com ma nd s an d agencies sh ould be

in formed of su pport requ iremen ts a s ear ly as poss ible in the p lan ning process .

Figur e C-2. Th e Delibera te Plann in g Process

c. Th e form at an d con ten t for an OPLAN ar e prescribed in CJ CSM 312 2.03 ,

J OPES, Volu m e II.

4. Deliber at e Plan n ing Process for CONPLANs an d FUNCPLANs

a. Th e plan n ing proces s for CONPLANs is th e sa m e as for OPLANs, except

th at t h e CONPLAN process n orm ally om its th e resou rce deta il developed in th e

Plan Developm ent Ph as e u n less it is a CONPLAN with a TPFDD. Th e plan n ing

6400brf.PPT 1

18-24 Months

The Planning Process

Provides:q Specific

Regional

Planning Tasksq Apportioned

Forcesq Planning

Assumptions

Developed

By:q Other

CINCsq Component

Commandsq OSD/JS

Concept

CINCsStrategic

CJCSREVIEW

ANDAPPROVAL

CJCSREVIEW

ANDAPPROVAL

JSCPJSCP

Phase IPhase IInitiationInitiation

Phase IIPhase IIConceptConcept

DevelopmentDevelopment

Phase IIAPhase IIAConceptConceptReviewReview

Phase IIIPhase IIIPlanPlan

DevelopmentDevelopment

Phase IVPhase IVPlanPlan

ReviewReview

Phase VPhase VSupportingSupporting

PlansPlans

DevelopedThrough:

q MissionAnalysis

q CC Estimatesq Subordinate

Tasks.

TPFDDConferences:

q Forcesq Logistics

q Transportation

Review For:q Adequacyq Feasibilityq Acceptabilityq Joint

Doctrine

Review For:q Adequacyq Feasibilityq Acceptabilityq Joint

Doctrine

OSD ReviewOSD Review

(As Required)(As Required)OSD ReviewOSD Review

(As Required)(As Required)SecDef BriefSecDef Brief

(As Required)(As Required)

Interagency PlanningProcess

(As Required)

Interagency PlanningInteragency Planning

ProcessProcess

(As Required)(As Required)

ReviewReview

Annex VRepackaged as

Strategic ConceptPol-Mil Plan

Annex VAnnex VRepackaged asRepackaged as

Strategic ConceptStrategic ConceptPolPol-Mil Plan-Mil Plan

SecDef BriefSecDef Brief(As Required)(As Required)

NSC Review(As Required)

NSC ReviewNSC Review(As Required)(As Required)

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pr ocess for FUNCPLANS is sim ila r t o th a t u sed for OPLANs a n d CONPLANs,

bu t ad apted to m eet th e u nique requirements of the m iss ion being plann ed.

b. Th e form at an d con ten t for CONPLANs a n d FUNCPLANs a re pr escribed

in CJ CSM 31 22.0 3, J OPES, Volu m e II.

5. Plan n in g Cycle Respon sibilities an d Time Requ iremen ts

a. J OPES us es a plan ning cycle that begins with pu blication of th e J SCP. A

Plan is effective un til can celed or su pers eded by an other a ppr oved plan . In

gen eral , the deliberate p lan n ing cycle tak es from 1 8-24 m onth s t o comp lete.

Gu idelines for th e du ration of each ph as e of th e deliberate p lan n in g process

are pr ovided in pa ragraph 7 which gives a detailed discus sion of each ph as e.

b. Th e J oint Sta ff, in th e na me of th e Cha irm an , pu blish es the J SCP an d

the planning schedules and reviews OPLANs and CONPLANs submitted by

CINCs.

(1) J SCP provides guidan ce, as sign s tas ks, app ortions m ajor comb at

forces, a n d s pecifies item s of m at eriel an d lift a ss ets availab le for plan n ing.

(2) Followin g pu blication of th e J SCP, the J oin t Sta ff, J -7 Conventiona l

War Plan s Division , in coordinat ion with th e combat an t comm an ds, will

produ ce an initial plan n ing sch edu le for th e developm en t of OPLANs,

CONPLANs, an d FUNCPLANs ta sk ed in th e J SCP. Th e in itial plan n ing

sch edu le will be diss eminat ed by mess age an d will set forth s u bm iss ion da tes

an d dat es for TPFDD conferen ces. Th rou ghou t the plan n ing cycle, u pd at es will

be pu blish ed if dat es a re revised.

(3) Reviews of CINCs S tr a tegic Conce pt s , OPLANs an d CONPLANs ar e

con du cted in a ccorda n ce with provision s of Enclosu re C.

(4) The Cha irm an ma y imp lemen t th e task in g cont ained in a TPFDD

be fore form a l CJ CS r eview of th e PLAN.

c. CINCs develop OPLANs , CONPLANs, an d FUNCPLANs in r es pon s e to

CJ CS requiremen ts, J SCP tas king, an d self-determined contingencies; cond u ct

reviews of th eir OPLANs , CONPLANs, a n d FUNCPLANs a n d m ak erecomm end ations to th e Cha irm an regard ing th eir plan s cur rency, revision, or

resciss ion ; su bm it th e CINCs Stra tegic Concept s OPLANs , CONPLANs, an d

FUNCPLANs to the Ch airm an for review an d a pp roval; su bm it J CS directed,

CINC ap pr oved CONPLANs a n d F UNCPLANs to t h e Ch airm an for r eview;

su bm it CINC directed, C INC app roved CONPLANs a n d FUNCPLANs to th e

Cha irm an for informat ion.

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(1) Upon receipt an d an alysis of J SCP tas king an d plann ing gu idan ce,

su ppor ted comm an ders determine:

(a) New plan s tha t require developm en t.

(b) Exist ing plan s th at sh ould be can celed (see su bpa ragraph 5c(2)

below).

(c) Existin g plan s th at sa tisfy th e J SCP requ iremen ts (see

subparagraph 5c(3) below).

(d) Existin g plan s th at requ ire revision or fu rth er an alysis.

(2) Su pported comm an ders ma y request CJ CS ap proval to can cel CJ CS-

app roved operation plans , in clu ding operation plans related to ta sks no lon ger

app earing in th e JS CP. If th e plan is can celed, the su pported comm an ders will

reta in th e plan on file for 2 years . Upon expiration of th e 2-year per iod, th e

record copy of th e OPLAN (less Tim e-Pha sed Force an d Dep loymen t Da ta

(TPFDD) or CONPLAN specified as the permanent record will be retired to the

ap plicab le Federal Records Cent er. Records so retired will be m ar ked with

app ropriate instr u ctions t o ensu re their protection a gains t imp roper release in

accordan ce with CJ CSI 5714 .01, 29 April 1994 .

(3) If th e requirem ent for an existin g plan is n ot ch an ged by the J SCP

tasking, the supported commander should review the plan to determine

wheth er it is s till su fficient an d can still pa ss th e tests of accept ab ility,

feas ibility, ad equ acy, an d cons istency with join t doctrine. (See Enclosu re C

an d th e Gloss ar y for discu ss ion of th ese term s.) If th e plan s till su fficien tly

pass es th ese tes ts , the ta sking may be sa t is fied by a m essage to the Chairman

sta ting tha t th e plan ha s been reviewed, an alyzed, an d can st i ll meet th e J SCP

tas king. If th e CJ CS review resu lts in concu rrence, a CJ CS messa ge or

mem oran du m will app rove the plan for the ap propriate J SCP period.

(4) In m essa ges comm enting on th e in it ial plann ing schedu le, su pported

comm an ders ma y inclu de:

(a) Reques ts for can cellation (su bp ar agra ph 5c(2) ab ove) an dsta tem en ts of su fficien cy (su bp ar agra ph 5c(3) ab ove). Su ch requ ests or

sta temen ts elimina te the need to comm ent on plan n ing calenda r dates for

affected operation plans.

(b) Other plan ning int entions , includ in g recomm end ations to place

selected major plan s in a lengthen ed plann ing cycle or in plans ma int ena n ce.

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(5) Su pported comm an ders will estab lish a sch edu le for plan s

m ain ten an ce for exist ing OPLANs, CONPLANs, a n d FUNCPLANs in

coordina tion with th e J oin t Staff, com ponen t, su bordin ate, an d su pporting

comm an ds, th e Services , an d combat su ppor t agencies .

d. Du rin g a J SCP cycle, add it ional plan ning requ iremen ts m ay arise tha t

were not an ticipat ed when th e JSCP was developed. Under th ese

circum stan ces th e Chairman will norma lly task th e su ppor ted comma nder , th e

su pporting comm an ders, an d th e directors of defens e comb at su pport agencies

in a pers onal for (PFOR) m essa ge th at ou tlin es th e new requirement. The n ew

tas king will adh ere to J SCP prepara tion steps in terms of sta ffing th roughou t

th e J PEC prior to su bm iss ion to the Cha irm an for approval.

e. Du ring a J SCP cycle, circu ms tan ces may arise when th e Cha irm an

requires a deliberate plan t o be developed in less t ime tha n 1 8-24 m onth s, bu t

th ese circu ms tan ces do not requ ire th e in it iat ion of crisis action plann ing as

described in An nex E of th is ma n u al. In th ese cas es, there are ma n y

con siderations th at m u st be tak en into accou n t. Below is a ch ecklist for us e in

deliberate planning under a compressed t ime schedule.

En su re th at th e n ew (or pr eviou sly developed) Regiona l Tas king is

sta ffed/ re-sta ffed th rou gh th e J PEC to con firm its validity, prior to

th e in itiation of plan n ing.

Identify all apportioned forces.

Iden tify all exercises , plan s a n d TPFDD developm ent th at will

be effected .

Esta blish du e date for st rategic concept a n d fina l plan as soon

as possible after r egional ta sking is as signed (con sideration mu st

be given t o the importa nce of the new ta sking with regard to

ongoing J SCP tas ked plan developmen t).

If plan developm ent is accelerat ed an d will impa ct on oth erplans an d exercises, en su re th e J PEC is informed of CJ CS priori ty

given t o accelera ted plan developm en t.

Ensu re that a ll J PEC par t icipan ts are aware th at J oint Sta ff

J -7 is th e prima ry OPR to resolve all issu es res u ltin g from p lan

coordination.

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Cons ider h aving th e J oint Staff J -7 brief the resu lts of th eStra tegic Concept review to OSD to a ccelerat e ap proval of th e

plan.

Sch edu le th e CINC to brief th e Concept of Opera tion s t o

Cha irm an / Secretary of Defens e early in th e process to ensu replan development is progressing in the desired direction.

6. Conflicting Gu ida n ce

a. CINCs wh o are also comm an ders of combined comm an ds or who

con du ct coordinat ed plan n ing on a b ilatera l or combined b as is will report to

th e Ch airma n a ny conflicts between th e gu idan ce con tained h erein a n d

directives r eceived from intern at iona l au th orities or provisions of an y plan

estab lish ed by in terna tional agreemen t.

b. Th e Ch airm an of th e US Section (J -5 GLOBAL/ WESTHEM), Can ad a-

United States Military Cooperation Committee, will report to the Chairman any

con flicts b etween plans developed by th e committee an d th e guidan ce in th is

document .

c. If inst ru ction s in th is docu m ent conflict with gu ida n ce previou sly issu ed

by the J oint Staff, other th an in the J SCP or th at p ertaining to bilatera l or

combined plans, the provisions herein will have precedence pending resolution

of the conflict.

d. Gu idan ce approved after the pu blication of th is docu men t th at conflicts

with provisions herein will be reflected as an immediate change by message or

as a ch an ge in th e next revision of th is docu men t.

7. Deliberate Plan n ing Procedu res. Procedu res for deliberate plann ing are

designed to assist the planning community in the timely, efficient development

of OPLANs a n d to provide a con sisten t foun da tion for th e Crisis plan n ing

process . Th e pha ses of th e deliberate plan n in g process follow:

a. Phas e I--In it iat ion . Init iat ion is th e ph as e in which plan ning tasks a re

as sign ed, resou rces a vailab le for plann in g are identified, an d t he grou nd work is

laid for p lann in g.

(1) Tas k Ass ign men t. In th e JSCP, th e Cha irm an ta sks th e CINCs to

develop operation plan s, operation plans in concept forma t, an d fu nctiona l

plans . When su ch tas kings are iss u ed by mes sa ge or oth er directive, they will

n orm ally be in corporat ed into th e n ext edition of J SCP. Th e extent of CINCs

plann ing is n ot limited by J SCP tas kings. Each CINC has broad

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respons ibilit ies a ss igned in th e Unified Comm an d Plan (UCP) an d J oint Pub 0-

2 an d m ay prepare wha tever p lan s a re necessary to d ischarge those

resp ons ibilities. Th e CINC m ay decide to prep ar e an opera tion p lan n ot

requ ired by J SCP, bu t deemed ess ent ial by th e CINC. In th is cas e, th e CINC

h as t h e au th ority to task forces ap portioned to the CINCs th eater . Th e CINC

ma y also decide to prepare a n operation plan not requ ired by J SCP that wou ldrequ ire forces not a pp ortion ed to the CINCs th eater . In th is case, th e CINC

mu st s u bmit the requiremen t for the operat ion plan to the Cha irma n for

ap proval before it is prep ar ed. CJ CS app roval will in clu de th e au th ority to task

required n on-J SCP apportion ed forces.

(2) Resour ces. Th e J oin t Staff an d the Services iden tify resou rces an d

provide gu idan ce to the su ppor ted comm an der . J SCP, other J SPS docu ments ,

join t d octrine, a n d S ervice plan n ing docu m ent s provide th e followin g: (a)

str at egic guida n ce an d int elligen ce, (b) Service doctrine a n d gu idan ce, (c)

resources available for planning, (d) combined information dominance and

sharing plan, and (e) priorities for accomplishing tasks.

(3) Review Previou s Opera tion s. Th e J oin t Center for Less ons Learn ed

(J CLL), as well as t h e J oin t Un iversa l Less ons Learn ed Syst em (J ULLS)

data bas e, shou ld be qu eried early in th e plan n in g process an d periodically

thereafter to obtain specific practical lessons in all areas of planning and

execution b as ed on a ctu al operation a n d exercise occur rences. A regu lar

review of th is inform ation du ring plan developmen t can alert plann ers t o

kn own pitfalls a n d to s u ccess fu l and inn ovative ideas .

b. Pha se II--Con cept Developm ent . Concept developm en t is the ph as e in

which all factors that can significantly affect mission accomplishment are

collected and analyzed, mission statement is deduced, subordinate tasks are

derived, COAs are d eveloped an d a n alyzed, th e best COA determined, a nd th e

CINC's Strat egic Concept developed an d docum ent ed. Th e sequ ent ial step s in

th is ph as e are shown in Figu re C-3.

(1) Miss ion An alysis . In th is step, the su pported comm an der 's ana lysis

of the J SCP tasking resu lts in a miss ion s ta tement .

(2) Plan n in g Gu ida n ce. Th is step h as two m ajor objectives:

(a) Provide th e su pp orted com m an der's sta ff with en ou gh

prelim in ar y guidan ce to allow work to begin on s ta ff estima tes. Represen ta tive

in forma tion m ight inclu de ch ara cterist ics of th e area of operations , enem y

capa bilit ies, th e mission sta temen t, as su m ptions , special weapon s, polit ical

an d psychological cons iderations , ten ta tive COAs, an ti-terrorism / force

protection guidance, and a planning schedule.

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(b) Make the ab ove in forma tion a vailab le to th e su bordin at e and

su pport ing comma nders an d other in teres ted p ar t ies through e ither writ ten

directives a long th e lin es of th e plan n in g directives illus tra ted in App end ix A to

Enclosu re T or a plann ing conference.

CONCEPT DEVELOPMENT

PHASEInitiation

Phase

Plan Development

Phase

STEP 1

MISSION

ANALYSIS

STEP 2

PLANNING

GUIDANCE

STEP 3

STAFF

ESTIMATES

STEP 4

COMMANDERS

ESTIMATES

STEP 5

CINCS

CONCEPT

STEP 6

CJCS CONCEPT

REVIEW

PURPOSE:

TO DETERMINE IF SCOPE AND CONOPS

ARE SUFFICIENT TO ACCOMPLISH TASKS.

ASSESS VALIDITY OF ASSUMPTIONS, AND

EVALUATE COMPLIANCE WITH CJCS TASKINGS

AND GUIDANCE

PURPOSE:

TO FORMALLY DEVELOP AND DISTRIBUTECINCS DECISION AND GUIDANCE TO

ALL PARTICIPANTS

PURPOSE:TO FORMALLY COMPARE COURSES OF ACTION.

FOR THE CINC TO DEVELOP HIS STRATEGIC CONCEPT

PURPOSE:

TO DETERMINE SUPPORTABILITY OF COURSESOF ACTION BY APPROPRIATE STAFF DIRECTORS

PURPOSE:

TO ISSUE CINCS GUIDANCE, INFORM ALL PLANNING

PARTICIPANTS, AND DEVELOP COURSES OF ACTION

PURPOSE:TO ANALYZE ASSIGNED TASKS TO DETERMINE MISSION

AND PREPARE GUIDANCE FOR SUBORDINATES

Figur e C-3. Concept Developm en t Pha se

(3) Sta ff Estim at es. Th e st aff estima tes developed in th is step pr ovide the

foun dat ion for the Comm an ders Estima te an d ad dress th e su pportab ility of

tenta tive COAs. Alth ough writ ten estimates are n ot ma n datory, us efu l forma ts for

key estimat es ar e provided in Appen dixes B th rou gh F to Enclosu re H to CJ CSM (CH-

312 2.02 Bfor u se as n eeded. Th e followin g st aff estima tes m ay be cons idered :

pers onn el, in telligence, opera tion s (in clu ding OPSEC, force protection / terrorist

th reat , an d military deception), logistics, an d C4 system s. Th e in telligen ce

estimate requires special coordina tion. In a ddit ion to the n orma l con su ltationwith supporting commanders and component commanders, early coordination

with DIA for su pp ort pr ovided by na tion al intelligence resou rces is es sen tial.

(4) Com ma nd ers Estima te. The Comm a nd ers Estima te su mm arizes th e

first th ree steps du ring concept developmen t an d produ ces the comm an ders

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decision on a COA to be followed. A sa m ple form at is p rovided in Appen dix F

to Enclosu re H to CJ CSM 312 202B. CH-1

(5) CINCs Str at egic Concept. Du ring this st ep of th e con cept

development phase, the supported commander prepares a Strategic Concept,

which is a n expans ion of th e selected COA, as a n arra tive sta temen t of h ow toconduct operations to accomplish the mission. The supported commander may

convene a concept d evelopm en t conference involving repres ent atives of

subordinate and supporting commands, the Services, Joint Staff , and other

in terest ed pa rties. Convening a con cept developm en t conferen ce to review th e

CINCs Stra tegic Concep t is h ighly recom m en ded.

(6) CJ CS Str a tegic Con cep t Review (Ph a s e IIA). Th e CINC will forwa rd

th e Stra tegic Concept, in th e forma t conta in ed in J OPES, Volu me II, Cha pter

III, to the Cha irm an for review an d a ppr oval (see En closu re C). On ce app roved

for fu rth er plan n in g by the Ch airma n, th e CINC's Strat egic Concept becomes

th e concept of operat ions for th e plan . For a CONPLAN, concept review

procedu res a re th e sa m e as for an OPLAN. For OPLANs an d CONPLANs, this

concept of opera tion s will u ltim at ely be us ed in pa ra graph 3 (Execut ion) of th e

Basic Plan . Th e con cept of operations is th e corn erstone u pon which all

deta iled plan n ing is ba sed . A deta iled des cription of th e con cept of opera tion s

will be includ ed in An n ex C to the plan .

c. Ph a se III -- Plan D evelopm en t

(1) Begin ning the Plan . Plan developmen t is th e pha se in which the

ba sic OPLAN or CONPLAN an d su pp orting ann exes are prep ar ed. Upon receipt

of th e CJ CS-approved concept of operation s, th e su pported comm an der

prep ar es t h e OPLAN or CONPLAN in th e form at pres cribed in J OPES, Volu m e

II, an d su bm its i t to the Cha irm an for forma l review and app roval. Du rin g this

ph as e: (a) th e su pported com ma nd er pu blish es an in it ial combined

in forma tion d ominan ce an d s h aring plan for tent ative ap proval; (b) th e

su pp orted com m an der pu blish es a TPFDD LOI; (c) th e force list is str u ctu red;

(d) th e non-u nit-related m ateriel, non-u nit related pers onn el, noncomb ata nt

evacu at ion operat ion (NEO) an d m edical evacu ees, enem y prison er of war

(EPW), retrograde cargo, an d tran sporta tion requirement s are determined; (e)

the nuclear, civil engineering, and medical support planning is conducted; (f)

the TPFDD is developed; (g) shortfalls are identified; (h) transportationfeas ibility is d eterm ined; an d (i) all th e elemen ts of th e plan ar e docu m ent ed for

TPFDD refinem ent a nd prepa ration of th e plan for su bm iss ion to th e Chairma n

for review an d a ppr oval. For clar ity, th e process of plan developm ent will be

described according to th e sequen tial steps sh own in Figu re C-4. In a ctu al

circu ms tan ces, these steps ma y overlap, be accomplish ed simu ltan eously, or

be repeated.

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CONOPS

DELIBERATE PLANNING

PLAN DEVELOPMENT PHASE

STEP 1 - FORCE PLANNING

STEP 2 - SUPPORT PLANNING

STEP 3 - CHEMICAL / NUC LEAR PLANNING

STEP 4 - TRANSPORTATION PLANNINGSTEP 4a NEO PLANN ING

STEP 5 - SHORTFALL IDENT IFICATION

STEP 6 - TRANSPO RTATION FEASIBILITY

ANALYSIS

STEP 7 - TPFDD REFINEMEN T

STEP 8 - DOCUMENTATION

NOTE: ABOVE STEPS ARE NOT NECESSARILY

SEQUENTIAL AND MAY OCCURSIMULTANEOUSLY

OPLAN

CONCEPTOF

OPERATIONS

OPLAN

PLAN

REVIEW

PHASE

CONCEPTDEVELO

PMENTPHASE

Figure-C-4. Plan Developm en t Pha se

(2) Pu blish ing a TPFDD Letter of In st ru ction (LOI). At th e begin n ing of

th e Plan Developmen t Phas e the su pported comma n der pu blish es a TPFDD

LOI. Th e pu rpos e of th e LOI is to tailor th e sta n da rd TPFDD LOI an d th e CINC

Su pp lem ent al LOI to provide sp ecific guida n ce to the CINCs com pon en t

comm an ders an d su ppor t ing comm an ds a nd agencies on h ow to develop the

TPFDD. Th e LOI sh ou ld be coordina ted with affected organ izat ion s (e.g.,

USTRANSCOM, DLA) prior to pu blication to en su re th at th e plan n ing gu idan ce

is cu rrent. As a m inimu m, th e LOI sh ould address t he followin g: th e forma t

for force requirem ent n u m ber (FRN) cons tru ction , u n it line n u m ber (ULN)

designa tors for forces a nd th eir a ccomp an ying su pplies, cargo increm ent

nu mb er (CIN), a nd person nel in crement nu m ber (PIN) design ators for n on-u nit

related resu pply and person nel replacem ents ; ma terial feasibility estimator

(MFE) to be u sed to calculate non -un it related resu pply an d pers onn el

replacements; force module assignment; priority of air and sea movement for

m ajor u n its ; app ortion m en t of airlift a n d s ealift cap ab ility between Service

comp onent s a nd resu pply; stan dar d earl iest arr ival date-latest a rrival date

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(EAD-LAD) wind ows; sp ecific gu idan ce for t h e plan n ing fa ctors file; res u pp ly

record aggregation guidance; retrograde, chemical and nuclear TPFDD

guidan ce; at tr it ion p lan n in g factors; sta nd ard ports of emba rka tion (POEs) an d

ports of deba rka tion (PODs) for forces a n d cha n n els of resu pp ly; CINCs

Required Delivery Date (CRD); an d k ey plan n in g tim e lin es or m ileston es a n d

TPFDD points of conta ct for the su pp orted a n d su pport ing CINCs sta ffs. Th eLOI sh ould con tain th e su pported comm an der 's clas sification gu idan ce and

OPSEC plann in g gu idan ce. Enclosu re H to CJ CSM 3122 .02B sh ould be u sed CH-1

as a standard for the TPFDD LOI.

(3) Force Modu les. Force m odu les are a plan n ing an d execution tool

th at provides a m ean s of logically grou ping records, wh ich facilitates plan n in g,

an alysis , and m onitoring. Force modu les ma y includ e both forces an d

su sta in men t. Following are two comm only-us ed force modu le types:

(a) OPLAN-Depen den t Force Modu le. OPLAN-Depen den t Force

Modu les a re force m odu les m odified or developed b y su pport ed CINC or s ervice

comp onent s to resp ond t o a sp ecific plan ning tas k, su ch a s flexible deterrent

option s or OPLAN Force Modu le Packa ges (FMPs).

(b) Force Tra ckin g-Force Modu le. Th is force m odu le is OPLAN-

dependent an d does not conta in s u s ta inmen t data . Force Tracking Force

Modu les, as a m inimu m, will consist of ma jor Service comb at u nits a n d a re

requ ired for all OPLANs. See su bp ar agra ph 7c(4)(b)7 below for sp ecific

guidance.

(4) Step 1-Force Plan n ing. Force plan n in g is th e first step in the Plan

Developm en t Pha se (see Figur e C-4). It is th e produ ct of m iss ion a n alysis an d

in telligence as sess m ent with its foun dat ion in t he su pported comm an der 's

con cept of operations . Force plan n ing is ba sed on CJ CS an d Service gu idan ce

an d doctrine. Force plan n in g con sists of force requirement s determ in ation,

force list development and refinement in light of fo