Joint Publication 5-0 Joint Operation Planning 26 December 2006 his edition of Joint Publication 5-0, Joint Operation Planning, reflects the current doctrine for conducting joint, interagency, and multinational planning activities across the full range of military operations. This vital keystone publication forms the core of joint warfighting doctrine and establishes the framework for our forces' ability to fight as a joint team. As our Nation continues into the 21st century, the joint operation planning process and supporting capabilities will continue to evolve as our forces transform to meet emerging challenges. The engine for this change in the planning arena is the Adaptive Planning (AP) initiative. Adaptive planning is defined as "the joint capability to create and revise plans rapidly and systematically, as circumstances require." The Secretary of Defense signed the Adaptive Planning Roadmap on 13 December 2005, directing that as AP processes and capabilities mature, it will succeed the Department of Defense's current planning processes and capabilities. Since the Roadmap was published, the Contingency Planning Guidance, the Joint Strategic Capabilities Plan, the Joint Programming Guidance, and the Strategic Planning Guidance have all directed that AP processes and capabilities be used for the development of Top Priority contingency plans. This publication incorporates allAPinitiatives currently approved for implementation and complements the AP processes and procedures defined in the latest version of the Chairman of the Joint Chiefs of Staff Manual 3122.01A, Joint Operation Planning and Execution System (JOPES) Volume I. The next revision of both the JP 5-0 and the JOPES 3122 series (manuals, instructions and guide) will further incorporateAP principles and formally establish the adaptive planning and execution system for planning and executing joint operations. I encourage all leaders to understand the purpose and intent of the Adaptive Planning initiative, to study and understand the doctrinal concepts contained in this publication, and to teach these to your subordinates. Only then will we be able to fully exploit the remarkable military potential inherent in our joint teams. You should ensure the widest possible distribution of this keystone joint publication. I further request that you actively promote the use of all joint publications at every opportunity. T PETER PACE General, United States Marine Corps Chairman of the Joint Chiefs of Staff PREFACE
1. Scope Joint Publication 5-0 is keystone doctrine for joint operation planning throughout the range of military operations. 2. Purpose This publication has been prepared under the direction of the Chairman of the Joint Chiefs of Staff. It sets forth joint doctrine to govern the joint operation planning activities and performance of the Armed Forces of the United States in joint operations, and provides the joint doctrinal basis for US military coordination with other agencies and for US military involvement in multinational operations. It provides military guidance for the exercise of authority by combatant commanders and other joint force commanders (JFCs). It is not the intent of this publication to restrict the authority of the JFC from organizing the force and executing the mission in a manner the JFC deems most appropriate to ensure unity of effort in the accomplishment of the overall objective. 3. Application a. Joint doctrine established in this publication applies to the Joint Staff; to commanders of combatant commands, subunified commands, joint task forces, subordinate components of these commands, and combat support agencies; and to the Services. b. The guidance in this publication is authoritative; as such, this doctrine will be followed except when, in the judgment of the commander, exceptional circumstances dictate otherwise. If conflicts arise between the contents of this publication and the contents of Service publications, this publication will take precedence unless the Chairman of the Joint Chiefs of Staff, normally in coordination with the other members of the Joint Chiefs of Staff, has provided more current and specific guidance. Commanders of forces operating as part of a multinational (alliance or coalition) military command should follow multinational doctrine and procedures ratified by the United States. For doctrine and procedures not ratified by the United States, commanders should evaluate and follow the multinational command's doctrine and procedures, where applicable and consistent with US law, regulations, and doctrine. i Preface Intentionally Blank ii JP 5-0 SUMMARY OF CHANGES
REVISION OF JOINT PUBLICATION 5-0, DATED 13 APRIL 1995 (INCLUDES CONSOLIDATION OF JOINT PUBLICATION 5-00.1, "JOINT DOCTRINE FOR CAMPAIGN PLANNING," DATED 25 JANUARY 2002) · · Reduces discussion of senior leader planning responsibilities Conforms to revised Chairman of the Joint Chiefs of Staff Manual 3122.01A, Joint Operation Planning and Execution System (JOPES), by discussing "contingency" and "crisis action" planning, levels of planning detail, and other changes Incorporates the new construct of "strategic communication" Reduces discussion of the Joint Strategic Planning System and related national systems Incorporates the "joint operation planning process" (JOPP) to complement JOPES Incorporates discussion of the estimate process from Joint Publication (JP) 3-0, Joint Operations Discusses the use of "effects" as an element of operational design in joint operation planning Discusses the commander's and staff's roles in joint operation planning Expands the discussion of transportation and deployment planning Incorporates a detailed discussion of "assessment" Incorporates a discussion of developing a "systems perspective" of the operational environment Incorporates relevant information from JP 5-00.1, Joint Doctrine for Campaign Planning Expands the discussion of elements of operational design consistent with JP 3-0, Joint Operations Incorporates a hypothetical vignette to help explain the JOPP steps in Chapter III and elements of operational design in Chapter IV · · · · · · · · · · · · iii Summary of Changes Intentionally Blank iv JP 5-0 TABLE OF CONTENTS
PAGE EXECUTIVE SUMMARY ................................................................................................ ix CHAPTER I JOINT STRATEGIC PLANNING SECTION A. JOINT STRATEGIC PLANNING ­ TYPES AND SCOPE ........................ · Introduction ............................................................................................................... · Joint Strategic Planning.............................................................................................. · Security Cooperation Planning ................................................................................... · Force Planning........................................................................................................... · Joint Operation Planning ............................................................................................ · The Scope of Joint Operation Planning ..................................................................... I-1 I-1 I-1 I-3 I-4 I-4 I-5 SECTION B. ORGANIZATION AND RESPONSIBILITIES.......................................... I-6 · General ...................................................................................................................... I-6 · Joint Planning and Execution Community .................................................................. I-7 · Chairman of the Joint Chiefs of Staff ......................................................................... I-8 · Combatant Commanders ............................................................................................ I-9 · Subordinate Joint Forces .......................................................................................... I-10 · Combat Support Agencies ........................................................................................ I-10 SECTION C. JOINT OPERATION PLANNING ........................................................... · General .................................................................................................................... · Joint Operation Planning and Execution System Overview....................................... · Global Planning ....................................................................................................... · Types of Joint Operation Plans and Orders ................................................................... · Availability of Forces for Joint Operations .................................................................... CHAPTER II STRATEGIC DIRECTION · · General .................................................................................................................... II-1 Strategic Communication ......................................................................................... II-2 II-3 II-3 II-3 II-4 II-4 I-11 I-11 I-12 I-22 I-23 I-26 SECTION A. NATIONAL-LEVEL SYSTEMS ............................................................. · Introduction ............................................................................................................. · National Security Council System ............................................................................ · Planning, Programming, Budgeting, and Execution Process ..................................... · Joint Strategic Planning System ............................................................................... v Table of Contents SECTION B. INTERAGENCY, INTERGOVERNMENTAL ORGANIZATION, AND NONGOVERNMENTAL ORGANIZATION CONSIDERATIONS ............................. II-6 · General .................................................................................................................... II-6 · Interagency Planning and Coordination .................................................................... II-6 SECTION C. MULTINATIONAL CONSIDERATIONS ............................................... II-9 · General .................................................................................................................... II-9 · Multinational Operations ......................................................................................... II-9 · Multinational Planning and Coordination ................................................................ II-10 · Review of Multinational Plans ................................................................................ II-11 CHAPTER III THE JOINT OPERATION PLANNING PROCESS SECTION A. INTRODUCTION .................................................................................. · General ................................................................................................................... · The Commander's Role in Joint Operation Planning ............................................... · The Staff's Role in Joint Operation Planning ........................................................... III-1 III-1 III-3 III-3 SECTION B. THE RELATIONSHIP OF STRATEGIC GUIDANCE, TERMINATION, END STATE, OBJECTIVES, EFFECTS, AND THE SYSTEMS PERSPECTIVE OF THE OPERATIONAL ENVIRONMENT .................................................................... III-5 · General ................................................................................................................... III-5 · National and Multinational Strategic Guidance ....................................................... III-5 · Termination of Military Operations and the Military End State ................................ III-7 · Military Objectives ............................................................................................... III-11 · Effects .................................................................................................................. III-12 · Joint Intelligence Preparation of the Operational Environment .............................. III-16 SECTION C. THE JOINT OPERATION PLANNING PROCESS STEPS .................. · The Joint Operation Planning Process ................................................................... · Planning Initiation ................................................................................................ · Mission Analysis .................................................................................................. · Course of Action Development ............................................................................. · Course of Action Analysis and Wargaming............................................................ · Course of Action Comparison .................................................................................. · Course of Action Approval ...................................................................................... · Concept of Operations Development ........................................................................ · Plan or Order Development ..................................................................................... III-19 III-19 III-19 III-20 III-28 III-30 III-32 III-34 III-34 III-41 SECTION D. THE ESTIMATE PROCESS ................................................................. III-51 · The Estimate ......................................................................................................... III-51 vi JP 5-0 Table of Contents SECTION E. PLANNING AND ASSESSMENT DURING EXECUTION .................... III-55 · Execution ............................................................................................................... III-55 · Assessment ............................................................................................................ III-57 CHAPTER IV OPERATIONAL ART AND DESIGN SECTION A. INTRODUCTION .................................................................................. · Operational Art ....................................................................................................... · Operational Design ................................................................................................. · The Campaign ........................................................................................................ IV-1 IV-1 IV-2 IV-2 SECTION B. OPERATIONAL DESIGN ...................................................................... IV-4 · Strategic Guidance .................................................................................................. IV-4 · Operational Design Elements .................................................................................. IV-4 · Phasing .................................................................................................................. IV-32 APPENDIX A B C D E Flexible Deterrent Options ................................................................................. A-1 Sample Estimate Format..................................................................................... B-1 Joint Operation Plan Format ............................................................................... C-1 References ......................................................................................................... D-1 Administrative Instructions ................................................................................. E-1 GLOSSARY Part I Abbreviations and Acronyms .................................................................... GL-1 Part II Terms and Definitions ............................................................................... GL-4 FIGURE I-1 I-2 I-3 I-4 II-1 III-1 III-2 III-3 III-4 III-5 III-6 III-7 III-8 Joint Strategic Planning ................................................................................ I-2 The Joint Planning and Execution Community .............................................. I-7 Joint Operation Planning Activities, Functions, and Products....................... I-14 Joint Operation Planning Products .............................................................. I-24 National Strategic Direction ........................................................................ II-5 Effects and Command Echelons ............................................................... III-13 The Interconnected Operational Environment .......................................... III-17 The Joint Operation Planning Process ...................................................... III-20 Mission Analysis Key Steps ..................................................................... III-21 Mission Analysis ..................................................................................... III-23 Course of Action Characteristics .............................................................. III-28 Course of Action Development ................................................................ III-29 Course of Action Analysis and Wargaming .............................................. III-30 vii Table of Contents III-9 III-10 III-11 III-12 III-13 III-14 III-15 III-16 III-17 IV-1 IV-2 IV-3 IV-4 IV-5 IV-6 IV-7 IV-8 IV-9 A-1 A-2 A-3 A-4 Sample Wargaming Steps ........................................................................... III-32 Course of Action Comparison ..................................................................... III-33 Course of Action Approval ......................................................................... III-35 Plan DevelopmentActivities ........................................................................ III-42 Plan Review Criteria .................................................................................. III-50 Commander's Estimate .............................................................................. III-52 Functional Staff Estimates ........................................................................... III-53 Planning During Execution ........................................................................... III-58 Assessment Levels and Measures ............................................................... III-60 Elements of Operational Design ..................................................................... IV-5 Characteristics of Centers of Gravity .............................................................. IV-9 Identifying Centers of Gravity ....................................................................... IV-11 Analyzing Critical Factors ........................................................................... IV-13 Direct Versus Indirect Approach .................................................................. IV-18 Sample Physical Line of Operations ............................................................. IV-20 Sample Logical Lines of Operations ............................................................. IV-22 Notional Operation Plan Phases .................................................................. IV-34 Phasing Model .......................................................................................... IV-36 Examples of Requested Diplomatic Flexible Deterrent Options .......................... A-2 Examples of Requested Informational Flexible Deterrent Options ....................... A-3 Examples of Requested Military Flexible Deterrent Options .............................. A-4 Examples of Requested Economic Flexible Deterrent Options ........................... A-5 viii JP 5-0 EXECUTIVE SUMMARY
COMMANDER'S OVERVIEW · · · · · · · Describes the Nature of Joint Strategic Planning Discusses Strategic Communication Describes the Joint Operation Planning and Execution System Describes the Joint Operation Planning Process (JOPP) Describes Operational Art, Operational Design, the Design Elements, and the Relationship to JOPP Incorporates "Effects" in JOPP and in the Assessment Process Provides a Sample Joint Operation Plan Format Joint Strategic Planning Planning for the employment of military forces is an inherent responsibility of command. Military planning is performed at every echelon of command and across the range of military operations. Joint planning integrates military actions with those of other instruments of national power and our multinational partners in time, space, and purpose to achieve a specified end state. The military's contribution to national strategic planning consists of joint strategic planning with its three subsets: security cooperation planning, joint operation planning, and force planning. Joint Operation Planning Joint operation planning is the overarching process that guides joint force commanders (JFCs) in developing plans for the employment of military power within the context of national strategic objectives and national military strategy to shape events, meet contingencies, and Joint operation planning includes all activities that must be accomplished to plan for an anticipated operation -- the mobilization, deployment, employment, and sustainment of forces. Planners recommend and commanders define criteria for the termination of joint operations and link these criteria to the transition to stabilization and achievement of the end state. Planning also addresses redeployment and demobilization of forces. Joint operation planning is an inherent command responsibility established by law and directive. This fundamental responsibility extends from the President and Secretary of Defense (SecDef), with the advice of the Chairman of the Joint Chiefs of Staff (CJCS), to the combatant commanders (CCDRs) and their ix Executive Summary respond to unforeseen crises. subordinate joint force commanders (JFCs). The CJCS transmits the orders of the President and the SecDef to the CCDRs and oversees the combatant commands' planning activities. The Joint Chiefs of Staff (JCS) function in the planning process as advisers to the President, National Security Council, and SecDef. Although not a standing or regularly meeting entity, the Joint Planning and Execution Community (JPEC) consists of the CJCS and other members of the JCS, the Joint Staff, the Services and their major commands, the combatant commands and their subordinate commands, and the combat support agencies. The headquarters, commands, and agencies involved in joint operation planning or committed to conduct military operations are collectively termed the Joint Planning and Execution Community. Planning for joint operations is continuous across the full range of military operations using two closely related, integrated, collaborative, and adaptive processes -- the Joint Operation Planning and Execution System (JOPES) and the joint operation planning process (JOPP). The Joint Operation Planning and Execution System (JOPES) and the Joint Operation Planning Process (JOPP) share the same basic approach and problem-solving elements, such as mission analysis and course of action development. The combination of JOPES and JOPP promotes coherent planning across all levels of war and command echelons, whether the requirement is for a limited, single-phase operation such as noncombatant evacuation or for a multiphase campaign involving high-intensity combat operations. JOPES formally integrates the planning activities of the entire JPEC during the initial planning and plan refinement that occurs both in peacetime and when faced with an imminent crisis. While JOPES activities span many organizational levels, the focus is on the interaction which ultimately helps the President and SecDef decide when, where, and how to commit US military capabilities in response to a foreseen contingency or an unforeseen crisis. JOPP is a less formal but proven analytical process, which provides a methodical approach to planning at any organizational level and at any point before and during joint operations. The focus of JOPP is on the interaction between an organization's commander, staff, the commanders and staffs of the next higher and lower commands, and supporting commanders and their staffs to develop a joint operation plan (OPLAN) or operation order (OPORD) for a specific mission. x JP 5-0 Executive Summary Joint Operation Planning and Execution System JOPES consists of a multivolume set of Chairman of the Joint Chiefs of Staff unclassified and classified manuals. JOPES Volume I provides the foundation for joint operation planning. JOPES is used in the development and implementation of OPLANs and OPORDs prepared in response to requirements from the President, the SecDef, or the CJCS. It specifies policies, procedures, and reporting structures -- supported by modern communications and computer systems -- for planning the mobilization, deployment, employment, sustainment, redeployment, and demobilization of joint forces. It also contains sample formats for key documents such as the CJCS warning order, commander's estimate, and OPORD. JOPES Volume I provides for orderly and coordinated problem solving and decisionmaking in two related but distinct categories -- contingency planning and crisis action planning (CAP). These categories differ primarily in level of uncertainty, available planning time, and products. A contingency is an anticipated situation that likely would involve military forces in response to natural and man-made disasters, terrorists, subversives, military operations by foreign powers, or other situations as directed by the President or SecDef. The JPEC uses contingency planning to develop plans for a broad range of contingencies based on tasks identified in the Contingency Planning Guidance (CPG), Joint Strategic Capabilities Plan (JSCP), or other planning directive. Contingency planning begins when a planning requirement is identified in the CPG, JSCP, or a planning order, and continues until the requirement no longer exists. The JSCP links the Joint Strategic Planning System to joint operation planning, identifies broad scenarios for plan development, specifies the type of joint OPLAN required, and provides additional planning guidance as necessary. A CCDR may also initiate contingency planning by preparing plans not specifically assigned but considered necessary to discharge command responsibilities. Within the context of JOPES, a crisis is an incident or situation involving threat to the United States, its territories, citizens, military forces, possessions, or vital interests. It typically develops rapidly and creates a condition of such diplomatic, economic, or military importance that the President or SecDef considers a commitment of US military forces and resources to achieve national objectives. It may occur with little or no warning. It is fast-breaking and requires accelerated decisionmaking. Sometimes a single crisis may spawn another crisis elsewhere. JOPES provides additional crisis action procedures for the time-sensitive development of OPORDs for the likely use of military forces in response to a crisis. While contingency planning normally is Contingency planning is planning that occurs in non-crisis situations. Contingency planning facilitates the transition to crisis action planning. xi Executive Summary conducted in anticipation of future events, CAP is based on circumstances that exist at the time planning occurs. Strategic Communication Strategic communication (SC) is a natural extension of strategic direction, and supports the President's strategic guidance, the SecDef's National Defense Strategy, and the CJCS's National Military Strategy. SC planning and execution focus capabilities that apply information as an instrument of national power to create, strengthen, or preserve an information environment favorable to US national interests. SC planning establishes unity of US themes and messages, emphasizes success, accurately confirms or refutes external reporting on US operations, and reinforces the legitimacy of US goals. This is an interagency effort, which provides an opportunity to advance US regional and global partnerships. Coordination, approval, and implementation of a SC strategy and specific information objectives, audiences, themes, and actions will be developed and synchronized with other US agencies and approved by the SecDef. Joint operation planning must include appropriate SC components and ensure collaboration with the Department of State's diplomatic missions. CCDRs consider SC during peacetime security cooperation planning, and incorporate themes, messages, and other relevant factors in their security cooperation plans (SCPs). During contingency planning and CAP, CCDRs review SC guidance during mission analysis, and their staffs address SC issues, as appropriate, in their staff estimates. CCDRs can brief the SecDef on their SC planning during SCP, contingency planning, and CAP in-progress reviews. Strategic communication is the focused United States government processes and efforts to understand and engage key audiences to create, strengthen, or preserve conditions favorable to advance national interests and objectives through the use of coordinated information, themes, plans, programs, and actions synchronized with other instruments of national power. Interagency Planning and Coordination Integrating the interagency community effectively can be vital to successful military operations, especially during theater shaping and during the stability and enable civil authority phases of an operation when JFCs may also operate in support of other United States Government agencies. JFCs and their staffs must consider how the capabilities of the agencies or other nongovernmental organizations can be leveraged to assist in accomplishing military missions and the broader national strategic objectives. JFCs should coordinate directly with interagency representatives within their operational areas during planning to ensure appropriate agreements exist that support their plans (such as working with US embassies to secure overflight rights with other nations). JP 5-0 JFC's should coordinate and integrate their operations with other agencies early in the planning process. xii Executive Summary While supported CCDR's are the focal points for interagency coordination in support of operations in their areas of responsibility, interagency coordination with supporting commanders is just as important. At the operational level, subordinate commanders should consider and integrate interagency capabilities into their estimates, plans, and operations. Multinational Planning and Coordination Joint forces should be prepared for combat and noncombat operations with forces from other nations within the framework of an alliance or coalition under US or another nation's leadership. Planning for multinational operations is accomplished in multinational and national channels. Multinational force commanders develop multinational strategies and plans in multinational channels. JFCs perform supporting joint operation planning for multinational operations in US national channels. Coordination of these separate planning channels occurs at the national level by established multinational bodies or coalition member nations and at the theater-strategic and operational levels by JFCs, who are responsible within both channels for operation planning matters. US doctrine and procedures for joint operation planning also are conceptually applicable to multinational problems. The fundamental issues are much the same for both situations. Multinational operations is a collective term to describe military actions conducted by forces of two or more nations. The Joint Operation Planning Process JOPP is an orderly, analytical planning process, which consists of a set of logical steps to analyze a mission, develop, analyze, and compare alternative courses of action (COAs), select the best COA, and produce a plan or order. Operational design is the use of various design elements in the conception and construction of the framework that underpins a joint OPLAN and its subsequent execution. The JFC and staff use operational design elements throughout JOPP. Commanders direct throughout planning. This direction takes the form of interaction with the staff, guidance on the development of products, and decisions at key points in the process, such as approval Joint operation planning blends two complementary processes. The first is the joint operation planning process; the second process is operational design. xiii Executive Summary The commander is the focal point of decisionmaking and execution during military operations. of a COA. In CAP, this interaction typically is continuous as the JOPP steps are compressed and blend together. Commanders ensure that subordinate commands have sufficient time to plan, particularly in a CAP situation. They do so by issuing warning orders at the earliest opportunity and by collaborating with other commanders, agency leaders, and multinational partners as appropriate to ensure a clear understanding of the commander's mission, intent, guidance, and priorities. Commanders resolve command-level issues that are beyond the staff's authority. The staff's effort during planning focuses on developing effective plans and orders and helping the commander make related decisions. The staff does this by integrating situationspecific information with sound doctrine and technical competence. The staff's planning activities initially focus on mission analysis, which develops information to help the commander, staff, and subordinate commanders understand the situation and mission. During COA development and comparison, the staff provides recommendations to support the commander's selection of a COA. Once the commander approves a COA, the staff coordinates all necessary details and prepares the plan or order. JOPP applies to both supported and supporting JFCs and to joint force component commands when the components participate in joint planning. This process is designed to facilitate interaction between the commander, staff, and subordinate headquarters throughout planning. JOPP helps commanders and their staffs organize their planning activities, share a common understanding of the mission and commander's intent, and develop effective plans and orders. This planning process applies to contingency planning and CAP within the context of the responsibilities specified by the Chairman of the Joint Chiefs of Staff Manual 3122 series (JOPES). JOPP also is used by joint organizations that have no specific JOPES responsibilities. Furthermore, JOPP supports planning throughout the course of an operation after the CJCS, at the direction of the President or SecDef, issues the execute order. In common application, JOPP proceeds according to planning milestones and other requirements established by the commanders at various levels. JOPP begins with planning initiation, and moves through mission analysis, COA development, COA analysis and wargaming, COA comparison, COA approval, and plan or order development. The role of the staff is to support the commander in achieving situational understanding, making decisions, disseminating directives, and following directives through execution. JOPP underpins planning at all levels and for missions across the full range of military operations. JOPP consists of a set of seven steps. xiv JP 5-0 Executive Summary Joint Intelligence Preparation of the Operational Environment The operational environment encompasses the air, land, sea, space, and associated adversary, friendly, and neutral systems (political, military, economic, social, informational, infrastructure, legal, and others), which are relevant to a specific joint operation. Understanding this environment has always included a perspective broader than just the adversary's military forces and other combat capabilities within the traditional battlespace. However, current and future strategic and operational requirements and types of operations can benefit by a more comprehensive view of all systems in this environment relevant to the mission and operation at hand. A systems understanding of the operational environment considers more than just an adversary's military capabilities, order of battle, and tactics. Instead, it strives to provide a perspective of interrelated systems that comprise the operational environment, relevant to a specific joint operation. Among other benefits, this perspective helps intelligence analysts identify potential sources from which to gain indications and warning. It also helps analysts with center of gravity analysis and planners with operational design by identifying nodes in each system, the links (relationships) between the nodes, critical factors, and potential decisive points. This allows commanders and staffs to consider a broader set of options to focus limited resources, create desired effects, and achieve objectives. The operational environment is the composite of the conditions, circumstances, and influences that affect the employment of capabilities and bear on the decisions of the commander. A system is a functionally related group of elements forming a complex whole. Using Effects in Planning and Assessment The use of effects during planning is reflected in the steps of JOPP. The CCDR plans joint operations based on analysis of national strategic objectives and development of theater strategic objectives supported by measurable strategic and operational desired effects and assessment indicators. At the operational level, a subordinate JFC develops supporting plans, which can include objectives supported by measurable operational-level effects and assessment indicators. Joint operation planning uses measurable desired effects to relate higher-level objectives and effects to component missions and tasks. Like end state and objective, joint doctrine includes effects as an element of operational design. An effect is a physical and/or behavioral state of a system that results from an action, a set of actions, or another effect. xv Executive Summary Commanders continuously assess the operational environment and the progress of operations, and compare them to their initial vision and intent. The assessment process begins during mission analysis when the commander and staff consider what to measure and how to measure it to determine progress toward accomplishing a task, creating an effect, or achieving an objective. Commanders adjust operations based on their assessment to ensure objectives are met and the military end state is achieved. The assessment process is continuous and directly tied to the commander's decisions throughout planning, preparation, and execution of operations. Staffs help the commander by monitoring the numerous aspects that can influence the outcome of operations and provide the commander timely information needed for decisions. Assessment occurs at all levels and across the entire range of military operations. Assessment at the operational and strategic levels typically is broader than at the tactical level (e.g., combat assessment) and uses measures of effectiveness (MOEs) that support strategic and operational mission accomplishment. Strategic- and operational-level assessment efforts concentrate on broader tasks, effects, objectives, and progress toward the end state. Continuous assessment helps the JFC and joint force component commanders determine if the joint force is "doing the right things" to achieve objectives, not just "doing things right." The JFC also can use MOEs to determine progress toward success in those operations for which tactical-level combat assessment ways, means, and measures do not apply. Tactical-level assessment typically uses measures of performance to evaluate task accomplishment. Operational Art and Design Operational art integrates ends, ways, and means across the levels of war. It is the thought process commanders use to visualize how best to efficiently and effectively employ military capabilities to accomplish their mission. Operational art also promotes unified action by helping JFCs and staffs understand how to facilitate integration of other agencies and multinational partners toward achieving the national strategic end state. In applying operational art, the JFC draws on judgment, perception, experience, education, intelligence, boldness, and character to visualize the conditions necessary for success before committing forces. Operational art requires broad vision, the ability to anticipate, and the skill to plan, prepare, execute, and xvi JP 5-0 Assessment is a process that measures progress of the joint force toward mission accomplishment. Executive Summary assess. The JFC uses operational art to consider not only the employment of military forces, but also their sustainment and the arrangement of their efforts in time, space, and purpose. While operational art is the manifestation of informed vision and creativity, operational design is the practical extension of the creative process. Together they synthesize the intuition and creativity of the commander with the analytical and logical process of design. The key to operational design essentially involves (1) understanding the strategic guidance (determining the end state and objectives); (2) identifying the adversary's principal strengths and weaknesses, and; (3) developing an operational concept that will achieve strategic and operational objectives. Operational design is intrinsic to JOPP. JOPP provides a logical set of planning steps through which the commander and staff interact, and operational design supports JOPP by providing a number of design elements to help the commander and staff visualize and shape the operation to accomplish the mission. These elements of operational design comprise a tool that is particularly helpful during COA determination. Resulting design alternatives provide the basis for selecting a COA and developing the detailed concept of operations. Planning During Execution As the operation progresses, planning generally occurs in three distinct but overlapping timeframes: future plans, future operations, and current operations. The joint force plans directorate (J-5) focuses on future plans. The timeframe of focus for this effort varies according to the level of command, type of operation, JFC's desires, and other factors. Typically the emphasis of the future plans effort is on planning the next phase of operations or sequels to the current operation. In a campaign, this could be planning the next major operation (the next phase of the campaign). Planning also occurs for branches to current operations (future operations planning). The timeframe of focus for future operations planning varies according to the factors listed for future plans, but the period typically is more near-term than the future plans timeframe. Future planning could occur in the J-5 or joint planning group, while future operations planning could occur in the operations directorate (J-3) or joint operations center. xvii Operational art is the application of creative imagination by commanders and staffs -- supported by their skill, knowledge, and experience -- to design strategies, campaigns, and major operations and organize and employ military forces. Operational design is the conception and construction of the framework that underpins a joint operation plan and its subsequent execution. Planning continues during execution. Executive Summary Finally, current operations planning addresses the immediate or very near-term planning issues associated with ongoing operations. This occurs in the joint operations center or J-3. CONCLUSION This publication is the keystone document of the joint planning series. It provides fundamental principles and doctrine that guide the Armed Forces of the United States in the planning of joint operations across the range of military operations. xviii JP 5-0 CHAPTER I
JOINT STRATEGIC PLANNING
"To a conscientious commander, time is the most vital factor in his planning. By proper foresight and correct preliminary action, he knows he can conserve the most precious elements he controls, the lives of his men. So he thinks ahead as far as he can. He keeps his tactical plan simple. He tries to eliminate as many variable factors as he is able. He has a firsthand look at as much of the ground as circumstances render accessible to him. He checks each task in the plan with the man to whom he intends to assign it. Then -- having secured in almost every instance his subordinates' wholehearted acceptance of the contemplated mission and agreement on its feasibility -- only then does he issue an order."
General Mathew B. Ridgway The Korean War, 1967 SECTION A. JOINT STRATEGIC PLANNING -- TYPES AND SCOPE 1. Introduction Planning for the employment of military forces is an inherent responsibility of command. It is performed at every echelon of command and across the range of military operations. Joint planning integrates military actions with those of other instruments of national power and our multinational partners in time, space, and purpose to achieve a specified end state. The military's contribution to national strategic planning consists of joint strategic planning with its three subsets: security cooperation planning, joint operation planning, and force planning. This publication discusses each type, but focuses predominantly on joint operation planning. 2. Joint Strategic Planning a. Joint strategic planning provides strategic guidance and direction to the Armed Forces of the United States for security cooperation planning, joint operation planning, and force planning (see Figure I-1). Joint strategic planning occurs primarily at the national- and theater-strategic levels to help the President, Secretary of Defense (SecDef), and other members of the National Security Council formulate political-military assessments, define political and military objectives and end states, develop strategic concepts and options, and allocate resources. At the nationalstrategic level, the Chairman of the Joint Chiefs of Staff (CJCS), in consultation with other members of the Joint Chiefs of Staff (JCS), performs joint strategic planning to: (1) Advise and assist the President and SecDef regarding the strategic direction of the Armed Forces of the United States and the preparation of policy guidance. (2) Advise the SecDef on program recommendations and budget proposals to conform to priorities established in strategic plans. (3) Transmit the strategic guidance and direction of the President and SecDef to the combatant commands, military Services, and combat support agencies. I-1 Chapter I JOINT STRATEGIC PLANNING
JOINT STRATEGIC PLANNING SECURITY COOPERATION PLANNING JOINT OPERATION PLANNING FORCE PLANNING CONTINGENCY PLANNING CRISIS ACTION PLANNING Figure I-1. Joint Strategic Planning b. The Joint Strategic Planning System (JSPS) is the primary means by which the CJCS performs joint strategic planning. The products of the JSPS, such as the National Military Strategy (NMS) and the Joint Strategic Capabilities Plan (JSCP) provide the strategic guidance and direction for joint strategic planning by the combatant commander (CCDR) and for the other categories of military planning. c. CCDRs prepare strategic estimates, strategies, and plans to accomplish their assigned missions based on strategic guidance and direction from the President, SecDef, and CJCS. CCDRs develop and modify strategic estimates continuously. They develop strategies that translate national direction and multinational guidance into concepts to meet strategic objectives. Strategic plans provide authoritative direction; assign missions, tasks, forces, and resources; designate assumptions and objectives; establish operational limitations (constraints and restraints), including rules on the use of force and rules of engagement (ROE); and define policies and concepts to be integrated into subordinate or supporting plans. d. Geographic CCDRs (GCCs) focus joint strategic planning on their specific areas of responsibility (AORs) as defined in the Unified Command Plan (UCP). Functional CCDRs (FCCs) generally accomplish joint strategic planning with a global focus. Strategic planning for possible execution of multiple operations across AOR boundaries requires prioritization of effort by the SecDef or President and coordination with all affected CCDRs. The SecDef may task the CJCS or an FCC to conduct such planning and assign command relationships as appropriate. I-2 JP 5-0 Joint Strategic Planning Chapter II, "Strategic Direction," and Chairman of the Joint Chiefs of Staff Instruction (CJCSI) 3100.01A, Joint Strategic Planning System, provide information on the JSPS. 3. Security Cooperation Planning a. Security cooperation is the means by which Department of Defense (DOD) encourages and enables countries and organizations to work with us to achieve strategic objectives. Security cooperation consists of a focused program of bilateral and multilateral defense activities conducted with foreign countries to serve mutual security interests and build defense partnerships. Securit