DTIC ADA480137: Campaign Planning/Operational Art, Primer AY 07: Joint Advanced Warfighting School (JAWS) Joint Operation Planning Process

3.6 MB·English

by  Defense Technical Information Center

CAMPAIGN PLANNING /
OPERATIONAL ART
Primer AY 07

JOINT ADVANCED
WARFIGHTING SCHOOL
(JAWS)

JOINT OPERATION
PLANNING PROCESS

NATIONAL DEFENSE UNIVERSITY
JOINT FORCES STAFF COLLEGE
7800 HAMPTON BOULEVARD • NORFOLK, VIRGINIA 23511-1702

January 2007
Report Documentation Page Form Approved
OMB No. 0704-0188
Public reporting burden for the collection of information is estimated to average 1 hour per response, including the time for reviewing instructions, searching existing data sources, gathering and
maintaining the data needed, and completing and reviewing the collection of information. Send comments regarding this burden estimate or any other aspect of this collection of information,
including suggestions for reducing this burden, to Washington Headquarters Services, Directorate for Information Operations and Reports, 1215 Jefferson Davis Highway, Suite 1204, Arlington
VA 22202-4302. Respondents should be aware that notwithstanding any other provision of law, no person shall be subject to a penalty for failing to comply with a collection of information if it

does not display a currently valid OMB control number.
1. REPORT DATE 3. DATES COVERED
JAN 2007 2. REPORT TYPE 00-00-2007 to 00-00-2007
4. TITLE AND SUBTITLE 5a. CONTRACT NUMBER
Joint Operation Planning Process
5b. GRANT NUMBER
5c. PROGRAM ELEMENT NUMBER
6. AUTHOR(S) 5d. PROJECT NUMBER
5e. TASK NUMBER
5f. WORK UNIT NUMBER
7. PERFORMING ORGANIZATION NAME(S) AND ADDRESS(ES) 8. PERFORMING ORGANIZATION
National Defense University,Joint Forces Staff College,7800 Hampton REPORT NUMBER
Blvd,Norfolk,VA,23511-1702
9. SPONSORING/MONITORING AGENCY NAME(S) AND ADDRESS(ES) 10. SPONSOR/MONITOR’S ACRONYM(S)
11. SPONSOR/MONITOR’S REPORT
NUMBER(S)
12. DISTRIBUTION/AVAILABILITY STATEMENT
Approved for public release; distribution unlimited
13. SUPPLEMENTARY NOTES
14. ABSTRACT

15. SUBJECT TERMS
16. SECURITY CLASSIFICATION OF: 17. LIMITATION OF 18. NUMBER 19a. NAME OF
ABSTRACT OF PAGES RESPONSIBLE PERSON
a. REPORT b. ABSTRACT c. THIS PAGE Same as 215
unclassified unclassified unclassified Report (SAR)
Standard Form 298 (Rev. 8-98)
Prescribed by ANSI Std Z39-18
This page intentionally left blank

ii
CAMPAIGN PLANNING / OPERATIONAL ART
Primer AY 07

JOINT OPERATION PLANNING PROCESS

TABLE OF CONTENTS

TABLE OF CONTENTS iii

PLANNING TORNADO vi

INTRODUCTION 1

CHAPTER I – Structure of Joint Military Planning 5
• Strategic Direction 5
• Strategic Communication 7

CHAPTER II – Joint Strategic Planning 9
• Security Cooperation 10
• Force Planning 11
• Joint Operation Planning 11
• Operational Phasing Model 13
• Organization and Responsibility 17

CHAPTER III – Contingency Planning 21
• Levels of Planning Detail 22
• Contingency Plan Management 22

CHAPTER IV – Crisis Action Planning 25
• Relationship to Contingency Planning 25

CHAPTER V – JOPP Planning and Functions 31
• Planning Functions 31

CHAPTER VI – Joint Operation Planning Process 33

CHAPTER VII – Strategic Guidance/Strategic Direction — Function I 37

CHAPTER VIII – Planning Initiation 39
Step 1 – Planning Initiation 39

CHAPTER IX – Mission Analysis 41
iii
Step 2 – Mission Analysis 41
• Joint Intelligence Preparation of the Operational Environment (JIPOE) 43
• Staff Planners Role in JIPOE 44
• Step 1 – Defining the Operational Environment 46
• Step 2 – Describe the Effects of the Operational Environment 47
• Step 3 – Evaluate the Adversary 57
• Step 4 – Determine Adversary Courses of Action (COAs) 60

CHAPTER X – Mission Analysis Key-Steps 63
• Key-Step – 1: Determine Own Specified, Implied, and Essential Tasks 63
• Key-Step – 2: Analysis of Higher CDR’s Mission and Intent 63
• Key-Step – 3: Determine Known Facts Current Status or Conditions
(and Assumptions) 64
• Key-Step – 4: Determine operational limitations: Constraints/Restraints 64
• Key-Step – 5: Determine own military endstates, objectives and initial
effects. 65
• Military End State 66
• Conflict Termination 66
• Objectives 68
• Effects 68
• Key-Step – 6: Determine Own and Enemy’s Center(s) of Gravity (COG) and
Critical Factors 70
• Critical Factors 72
• Decisive Points 73
• Key-Step – 7: Conduct Initial Force Structure Analysis
(Apportioned Forces) 74
• Availability of Forces for Joint Operations 74
• Key-Step – 8: Conduct Initial Risk Assessment 74
• Key-Step – 9: Determine CDR’s Critical Information Requirements (CCIR) 78
• Key-Step – 10: Develop Mission Statement 80
• Key-Step – 11: Develop Mission Analysis Brief 80
• Key-Step – 12: Prepare Initial Staff Estimates 81
• Key-Step – 13: Publish Initial CDR’s Planning Guidance and Intent 82
• MOP, MOE 84

CHAPTER XI – Concept Development — Function II 87

CHAPTER XII – Stability Planning and Considerations 89

CHAPTER XIII – COA Development 101
Step 3 – Course of Action (COA) Development 101
iv
• Political Considerations 105
• Flexible Deterrent Options (FDO’s) 106
• Lines of Operation (LOO’s) 109
• Tentative Courses of Action 111
• Planning Directive/Staff Estimates 119

CHAPTER XIV – COA Analysis and Wargaming 121
Step 4 – COA Analysis and Wargaming 121
• COA Analysis 121
• Wargaming 122
• Synchronization Matrix 126
• Branches and Sequels 131

CHAPTER XV – COA Comparison 133
Step 5 – COA Comparison 133
• Governing Factors 133

CHAPTER XVI – COA Approval 139
Step 6 – COA Approval 139
• Commanders Estimate 139

CHAPTER XVII – Plan Development – Function III 145
Step 7 – Plan or Order Development 145
• Plan or Order Development 145
• Supporting Plan Development 149

CHAPTER XVIII – Plan Assessment – Function IV 159
• Planning and Assessment during Execution 159
• Assessment Process and Measures 163

SUMMARY 169

APPENDIX A: Time Lines and Dates 171
APPENDIX B: References 173
APPENDIX C: Commander's Estimate 175
APPENDIX D: Glossary, Acronyms, and Abbreviations 183
APPENDIX E: Operational Plan Annexes 203
APPENDIX F: Command Relationships 205
APPENDIX G: Chain of Command 207
APPENDIX H: Change Recommendation Sheet 209

v
PLANNING TORNADO

”To a conscientious commander, time is the most vital factor in his planning. By proper
foresight and correct preliminary action, he knows he can conserve the most precious
elements he controls, the lives of his men. So he thinks ahead as far as he can. He
keeps his tactical plan simple. He tries to eliminate as many variable factors as he is
able. He has a firsthand look at as much of the ground as circumstances render
accessible to him. He checks each task in the plan with the man to whom he intends to
assign it. Then — having secured in almost every instance his subordinates’
wholehearted acceptance of the contemplated mission and agreement on its feasibility
— only then does he issue an order.”

General Mathew B. Ridgway
The Korean War, 1967
vi
INTRODUCTION

“Plans are useless, but planning is everything”
-General Dwight D. Eisenhower

This document is published to assist Joint Advanced Warfighting School (JAWS)
students at the Joint Forces Staff College (JFSC) during their Operational Art and
Campaigning instruction. It is intended to supplement, not replace, Joint Doctrine
publications. This primer contains information from several source documents and
should not be used solely to quote Joint Doctrine or DOD policy, nor does it relieve the
student from reading and understanding Joint Doctrine as published.

The Joint Operation Planning and Execution System (JOPES) and the Joint Operation
Planning Process (JOPP) share the same basic approach and problem-solving elements,
such as mission analysis and course-of-action development. The combination of JOPES
and JOPP promotes coherent planning across all levels of war and command echelons,
whether the requirement is for a limited, single-phase operation such as noncombatant
evacuation or for a multi-phase campaign involving high intensity combat operations.
JOPES formally integrates the planning activities of the entire JPEC during the initial
planning and plan refinement that occurs both in peacetime and when faced with an
imminent crisis. While JOPES activities span many organizational levels, the focus is on
the interaction which ultimately helps the President and SecDef decide when, where,
and how to commit US military capabilities in response to a foreseen contingency or
an unforeseen crisis. JOPP is a less formal but proven analytical process, which
provides a methodical approach to planning at any organizational level and at any point
before and during joint operations. The focus of JOPP is on the interaction between
an organization’s commander, staff, the commanders and staffs of the next higher
and lower commands, and supporting commanders and their staffs to develop a
joint operation plan (OPLAN) or operation order (OPORD) for a specific mission.

The JAWS Primer presents the JOPP as described by Joint Doctrine in its logical flow
and will enable planners to sequentially follow the process. Its focus is on the concepts
of operational planning and key Joint Doctrine with the main references being Joint Pubs
3-0, 5-0 and the Joint Operation Planning and Execution System (JOPES) Volume I. JP
3-0 is now signed (17 Sept 2006) but 5-0 remains in the signature draft form (23 Oct
2006) as of this printing. The JAWS Primer concentrates its efforts on how Combatant
Commanders (CCDR) and their staffs work through the JOPP. A joint force commander
(JFC) subordinate to the CCDR may be assigned by the CCDR as required; you will see
these references throughout this document.

There are two related but distinct categories of Joint Operation Planning; Contingency
Planning and Crisis Action Planning (CAP). Contingency Planning’s focus is on
hypothetical situations in the future, while CAP deals with actual or near term emerging
events that may involve the use of military force. These two categories differ in their
respective products and may differ in the time available to plan. The Contingency
1
Planning process is highly structured to support iterative, concurrent, and parallel
planning throughout the planning community to produce thorough and fully coordinated
contingency plans when time permits. However, the process is shortened in CAP, as
necessary, to support the dynamic requirements of time sensitive/constrained events.
During actual military operations, the process adapts to accommodate greater
decentralization of joint operation planning activities. Contingency Planning and CAP
share common planning activities (processes, collaborative tools, data bases and info
grid) and are interrelated.

Through campaign plans CCDR’s define objectives, describe concepts of operations,
communicate intent to subordinates, sequence operations, organize forces, establish
command relationships, assign tasks, and synchronize air, land, sea and space operations
and their sustainment. In addition, by means of a campaign plan, CCDR’s give the
President, Secretary of Defense (SECDEF), and the Chairman of the Joint Chiefs of Staff
(CJCS) information needed for inter-theater coordination at the national level.

These campaign plans are the operational extension of a CCDR theater strategy and
vision of the sequence of operations needed to attain the strategic or operational
objectives assigned by higher authority, within a given time and space.

To succeed in creating an effective campaign plan, the operational commander must
consider and apply a myriad of considerations in its development; these considerations,
functions and steps are discussed within this document. Used but not discussed in detail
here are many components of Operational Design. Operational design is a process for
developing the intellectual framework that will underpin campaign or operation plans and
their subsequent execution. JP 3-0 goes into great detail on Operational Art and Design.
Campaign planning takes a comprehensive view of the CCDR’s theater and defines the
framework in which an operation plan (OPLAN) fits. Campaign planning offers purpose
and a common objective to a series of OPLANs. Existing OPLANs, operation plans in
concept format (CONPLANs), or functional plans (FUNCPLANs) may also provide the
basis for development of campaign plans. Through theater and subordinate campaign
plans, strategic and operational planners synchronize national and theater ends, ways, and
means to attain national strategic, supporting theater strategic, and operational level
objectives.

Preparation of campaign plans involves more than just the CCDR’s staff. Campaign
planning is accomplished in coordination with; higher military headquarters; subordinate
component headquarters; military allies or coalition partners; other government agencies;
and international organizations. This list of decision-makers and their staff’s is known as
the Joint Planning and Execution Community (JPEC). The JPEC consists of the
Chairman, the Joint Chiefs of Staff, the Joint Staff, the Services and their major
commands, the combatant commands and their component commands, Sub-unified
commands and subordinate components, joint task forces and the combat support
agencies.

Campaigns are not isolated from other government efforts to achieve national strategic
objectives. Military power is used in conjunction with other instruments of national
2
power — diplomatic, economic, and informational (DIME) — to achieve strategic
objectives. Depending on the nature of the operation, a military campaign may be the
main effort, or it may be used to support diplomatic or economic efforts. A campaign
must be coordinated with nonmilitary efforts to ensure that all actions work in harmony
to achieve the ends of policy. A complete understanding of the strategic and operational
objectives is essential for campaign planning.

You will also find that this document includes the necessary processes and procedures to
implement the Adaptive Planning (AP) process. The Secretary of Defense signed the AP
Roadmap on 13 December 2005 directing that as AP matures it will succeed the
Department’s current planning and execution system. AP is defined as “the Joint
capability to create and revise plans rapidly and systematically, as circumstances require.
AP occurs in a networked, collaborative environment, requires regular involvement of
senior DOD leaders, and results in plans containing a range of viable options. At full
maturity, AP will form the backbone of a future Joint adaptive planning and execution
system, supporting the development and execution of plans. AP will preserve the best
characteristics of present day contingency and crisis planning with a common process.
Both the Contingency Planning Guidance and the Joint Strategic Capabilities Plan direct
the use of AP processes and prototype tools for the development of top priority
contingency plans during the current planning cycle. Further, the Secretary of Defense
has directed that contingency plans undergo a six month cyclic review process as an
interim step towards the maintenance of “living plans.” (JOPES Vol. I, 29 Sep 2006)

JAWS JOPP will be reviewed continually and updated annually. POC for comment is
Col Mike Santacroce/USMC JAWS faculty at [email protected], 757-443-6307.
3