JO-502 - Introduction to Joint Doctrine and Joint Planning

LESSON OBJECTIVES:

502.1 Comprehend current joint doctrine [I.2(a)]. (PPT slides)

• Military doctrine provides the fundamental principles that guide the employment of forces
• Joint doctrine establishes guidelines on how to best employ military power to achieve strategic ends
• Joint doctrine represents authoritative guidance for the joint employment of the Armed Forces

502.11 Describe the roles and limitations of current joint doctrine. (PPT slides and JP 1)

ROLES:

• Authoritative fundamental principles that guide the employment of forces (JP-1)
• Central beliefs for waging war in order to achieve victory . . . building material for strategy
• Provides military organization with common philosophy, common language, common purpose and unity of effort
• Every action that contributes to unity of purpose . . . it is what warriors believe in and act on
• Provides the basis for harmonious actions and mutual understanding

LIMITATIONS:

• Doctrine is neither policy nor strategy (Exception is JP 0-2, UNAAF)
• Doctrine cannot replace clear thinking nor alter a commander's obligation to determine the proper course of action
  

502.12 Explain the significance of the UJTL and the JMETL to the current joint doctrine. (CJCSM 3500.03)

UJTL: Universal Joint Task List -- (The common language) The Chairman of the Joint Chiefs of Staff developed and approved the UJTL as the basis from which the joint force commanders establish their JMETLs. The UJTL (CJCSM 3500.04) provides a structured listing of tasks that describe the functional capabilities that joint force commanders may require to execute their assigned missions. The tasks contained in the UJTL are organized by the levels of war (strategic, operational, and tactical). The UJTL is often used as a tool outside the JTS. (see Figure IV-4). For instance it provides the common language to express potential requirements and issues for consideration in several other areas to include: the Acquisition/Modernization System, the Joint Readiness System, Capability Assessments, Joint Professional Military Education (JPME), a common cross reference guide for joint, interoperability, and Service component training, and a linkage of all these areas to joint doctrine. An important fact about the UJTL is that it's the central core of task listings and links many areas to joint doctrine.

JMETL: Joint Mission Essential Task List -- JMETL links Joint Training Tasks to National Military Strategy. Each combatant commander derives specific missions to answer planning tasks assigned in the JSCP, and is also assigned specific missions by the NCA directives and treaty obligations. The Joint Training Policy (CJCSI 3500.01) directs commanders to document their joint training requirements through the development of their respective JMETL with associated conditions and standards. The JMETL is that subset of joint tasks that each combatant commander determines essential to accomplishing the command's missions. An essential task is defined as one where the mission has a high probability of failure if it is not accomplished successfully. A JMET with its associated condition(s) and standard(s) defines a joint mission capability requirement. Defense agencies reporting to the Chairman of the Joint Chiefs of Staff and the Service component commanders also develop mission essential task lists (METL)--Agency METLs (AMETLs) and Service component METLs, respectively. Just as JMETL tasks are used to derive training objectives for the combatant commands in the planning phase of the JTS, the AMETLs and Service component METLs are used to derive training objectives for their organizations.

502.2 Comprehend the factors influencing joint doctrine [I.2(b)]. (PPT slides)

Legislative and Regulatory Requirements Impacting Joint Doctrine

DOD Reorganization Act (Sep 1986)

• CJCS responsible for developing joint doctrine
  

JCS Pub 2 (Dec 1986)

• Doctrine coordinated w/Services, Unified and Specified Commands, and joint staff
• All joint doctrine approved by CJCS
• Joint doctrine and JTTPs published as distinct family of JCS Pubs
• Each Service will ensure doctrine and procedures are consistent with joint doctrine

DOD Directive 5100.1 (Apr 1987)

• CJCS tasked to develop doctrine for all aspects of joint employment of the armed forces
• CJCS tasked to promulgate JCS Pubs to provide military guidancefor joint activities of the armed forces
  

502.21 Describe the factors affecting the process for developing joint doctrine. (PPT slides)

Development Process:

1. Project Proposal
   • Submitted by Services, CINCs or Joint Staff to fill extant operational void
   • J-7 validates requirements with Services and CINCs
   • J-7 initiates Program directive 1
     
2. Program Directive
   • J-7 formally staffs with Services and CINCs
   • Includes scope of project, references, milestones, and who will develop drafts
   • J-7 releases Program Directive to Lead Agent. Lead agent can be Service, CINC, or Joint Staff directorate
     
3. Two Drafts
   • Lead agent selects Primary Review Authority (PRA) to develop the Pub.
   • PRA develops two draft pubs
   • PRA staffs each draft with CINCs, Services, and Joint Staff
     
4. CJCS Approval
   • Lead agent forwards proposed pub to Joint Staff
   • Joint Staff takes responsibility for pub, makes required changes and prepares pub for coordination with Services and CINCs
   • Joint Staff conducts formal staffing for approval as a Joint Pub
     
5. Assessments/Revisions
   • CINCs receive the pub and begin to assess it during use
   • 18-24 months following publication, the Director J-7, will solicit a written report from the combatant commands and Services on the Pub and need for urgent changes or revisions
   • No later than 5 years after development each pub is revised
     

502.3 Comprehend the relationship between service doctrine and joint doctrine [I.2(d)]. Section changed to match toolbook.

502.31 Describe the relationship between service doctrine and joint doctrine. (PPT slides)

• Joint doctrine provides Unity of Command and Unity of effort
• Service doctrine must be consistent with Joint doctrine
• Services MUST follow Joint doctrine for Joint activities

The above summary is spelled out with lawyer-like language in the preface (provided below) to any Joint Publication:

"The guidance in this publication [any Joint 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 for the activities of joint forces 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 multi-national 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."

FYI: Joint and Multinational Doctrinal Relationships:

Multinational doctrine provides (surprise, surprise) Unity of Command and Unity of Effort. Ratified multinational doctrine must be followed by US forces that are placed in a multinational command.

Refer to this diagram to see how the various parts of the JSPS interrelate

502.4 Comprehend the relationship between national objectives and means availability within the framework provided by the joint planning processes [I.4(a)].

502.41 Explain the role of the NSC System and National Security Strategy in the joint planning process. (JP 5-0, Sec II)

Four interrelated defense planning systems (NSC System, Planning Programming and Budgeting System (PPBS), Joint Strategic Planning System (JSPS), and JOPES) directly impact the joint planning process.

NSC System: Principal forum for deliberation of national security policy issues requiring Presidential decision. Provides the framework for establishing national strategy and policy objectives. NSC prepares national security guidance that, with Presidential approval, implements national security policy. These policy decisions provide the basis for military planning and programming. The CJCS discharges a substantial part of his statutory responsibilities as the principal military adviser to the President and Secretary of Defense through the institutional channels of the NSC.

502.42 Describe the major JSPS products. (JP5-0, Sec II) (Both SOBs combined into one answer)

502.43 Explain the role of the National Military Strategy in the joint planning process. (JP 5-0, Sec II) Note: These SOBs are favorite testing areas during AU's warplanning course (CWPC)

Four Products of the JSPS

1. National Military Strategy (NMS)
2. Joint Planning Document (JPD)
3. Joint Strategic Capabilities Plan (JSCP)
4. Chairman's Program Assessment (CPA)
   

• National Military Strategy (NMS): Provides the advice of the CJCS to the President, the NSC, and the Secretary of Defense on the recommended NMS and fiscally constrained force structure required to attain national security objectives. Assists the SecDef in preparation of the Defense Planning Guidance and to guide the development of the JSCP.
• Joint Planning Document (JPD): supports the NMS by providing concise programming priorities, requirements, or advice to the SECDEF for consideration during preparation of the DPG.
• Joint Strategic Capabilities Plan (JSCP): provides guidance to the combatant commanders and Chiefs of the Services to accomplish tasks and missions based on current military capabilities. It Apportions resources to combatant commanders, based on military capabilities resulting from completed program and budget actions. Provides a coherent framework for capabilities-based military advice provided to the NCA.
• Chairman's Program Assessment (CPA): The CPA assists the CJCS in fulfilling his responsibility to provide advice to the SecDef on how well the POMs conform to established priorities. The CPA summarizes the views of the Chairman on the balance and capabilities of the POM force and the support levels required to maintain US national security objectives.
  

502.44 Summarize how the joint assessment tools serve the community as they link national objectives to means availability.

• Joint Military Net Assessment (JMNA): Fulfills SecDef's statutory duty to submit to Congress an annual comprehensive net assessment of the defense capabilities and programs of the Armed Forces of the United States and its allies compared with those of potential adversaries.

• Logistics Sustainability Analysis (LSA): Porvides a broad assessment of key logistic capabilities by identifying logistic support shortfalls, assessing the risks, and providing a baseline for the Joint Monthly Readiness Review (JMRR) process. The LSA assesses the combined support capabilities represented by the four pillars of logistics: material, logistic support forces, infrastructure, and lift.

• Defense Planning Guidance (DPG): Furnishes the SecDef's programming and fiscal guidance to the Military Departments ofr developmentof department POMs for the defense planning period. The DPG is a major link between the JSPS and the PPBS.

• Contingency Planning Guidance (CPG): Fulfills the SecDef's statutory duty to provide annually to the CJCS written policy guidance for joint operations planning. The CPG is the primary source document for the JSCP.
  

502.5 Comprehend the effect of time, coordination, policy changes, and political development on the planning process [I.4(b)].

Section changed to match toolbook.

502.51 Summarize the effect of time, coordination, policy changes, and political development on the various joint assessment tools. Didn't find this verbatim in the reading, it's my analysis of the readings plus some "real world" input (i.e. caveat emptor)

Each of the assessment tools is a convoluted process in and of itself that's designed to assess and redirect a separate convoluted process. None of these processes occur overnight. One year to 18 months is probably the average process time. There are political as well as military inputs to all these processes. Mid stream policy shifts can cause any of these processes to regress or start over. Bottom line: The system can get out of synch and you'll have (for example) items in the PPBS cycle that are no longer support by the NEW NMS. Obviously there are other examples.

502.52 Describe the phases of the PPBS and the linkages between each phase.

Note: This is a favorite testing area for AU in their warplanning course (CWPC)

Planning, Programming, and Budgeting System's ultimate objective is the acquisition and allocation of resources to meet the warfighting needs of the combatant commanders.

• Planning: Articulates the national policy, military strategy, and the force requirements to support the national defense. CJCS uses the JSPS to develop national military objectives, strategy, recommended forces, options, assessments, and evaluation of risk. President considers these inputs and makes his strategy and option decisions which are incorporated into the Defense Planning Guidance (DPG). The DPG is the link between the planning and programming phases.
  
• Programming: Focuses on the development of POMs and the integration of those POMs into a coherent defense program to support the warfighting combatant commander's requirements. Each combatant commander (except USSOCOM) provide their requirements to the Services through their Service components and identify their highest priority needs by means of the Integrated Priority List. The CJCS assesses the overall balance of the POM force in his CPA. The Defense Planning Resources Board (DPRB) resolves all conflicts and the DPRB results are released in the SecDef''s Program Decision Memorandum (PDM). The PDM is the link between programming and budgeting.
  
• Budgeting: After receiving the PDMs, budget estimates are prepared by each of the military departments. The defense budget is reviewed by the OSD, and the office of Management and Budget to ensure it's consistent with fiscal guidance. Changes to the budget are documented in Program Budget Decisions (PBDs). During this final phases of the PPBS the CJCS, Service Chiefs, and combatant commanders assess the impact of PBDs on warfighting capabilities. Their concerns are presented to the SecDef. Final changes are incorporated to establish the DOD portion of the President's budget which is submitted to Congress for funding. When approved into law the services, defense agencies, and USSOCOM execute the budget to procure forces and capabilities.
  

502.6 Comprehend how defense planning systems affect joint operational planning [I.4(c)].

Due to the inter-relationship of all these processes it's sometimes difficult to find a clean cut answer to the following SOBs. With that in mind, here goes . . .

General Comment: Keep in mind that the JSPS is a flexible and interactive system intended to provide supporting military advice to the DOD PPBS and strategic guidance for use in JOPES. The JSPS provides the means for the CJCS, and combatant commanders, to review the national security environments and national security objectives of the US.

SOBs: The JSPS diagram is very useful for this area:

502.61 Explain how JOPES affect the JSPS.

The outcome of the deliberate planning side of the JOPES process is an OPlan. The OPlan is based on inputs from the JSCP (a JSPS product) and then the OPlan is analyzed for adequacy and capability in the Chairman's Program Assessment (another JSPS product). The results of the CPS are (eventually) incorporated into the Chairman's guidance which affects the National Military Strategy (another JSPS product) and the NMS is rolled into the JSCP which begins the OPlan cycle again. Like I said all these processes form a circle by design so that lessons learned are included in the next cycle (at least in theory)

502.62 Explain how the Acquisitions System affects the JSPS. (Next two will be answered together)

502.63 Explain how the PPBS affects the JSPS.

PPBS is Planning, Programming and Budgeting System

Planning phase (as discussed before) develops the Defense Planning Guidance. The DPG (JP5-0, Fig II-3) is one of the cornerstones of the JSCP (JSPS product).

Programming phase (as discussed before) begins with the DPG and focuses on the development of Program Objective Memorandum (POM) to support warfighter requirements. The Chairman's Program Assessment (CPA, a JSPS product) assesses the adequacy and balance of this POM force

Budgeting phase eventually puts MONEY in the hands of the services to procure forces and capabilities. Remember the JSCP and the JOPES process is CAPABILITIES based. Therefore, if a capability is missing the budgeting process (this is the simple version) obtains the money to go and ACQUIRE this capability which can then be included in future JSPS/JOPES cycles.

502.64 Explain how the joint assessment tools affect joint operational planning.

Their intent is to provide objective capabilities-based assessment of the differing aspects of operational planning. They identify shortfalls, limiting factors, or changing strategic issues that may be included in the JSCP, PPBS, etc. as required. The cleanest connection is with the Contingency Planning Guidance. The CPG is the source document for the JSCP. The JSCP is the starting point for all joint operational planning. The JSCP is capabilities based and apportions resources to combatant commanders.

502.65 Explain how the PPBS affects operational planning.

Reread how PPBS affects the JSPS SOB above. Additionally, the PPBS is critical to obtaining new capabilities or being able to sustain existing capabilities. It does no good to have a plan that requires 40 fighter wing equivalents if the Budget only has 20 fighter wing equivalents. This is also why the planning process cannot take into account FUTURE PPBS actions. (Have I mentioned that it's capabilities based??)

502.66 Explain how the Joint Strategy Review affects operational planning.

The JSR is the central PROCESS of the JSPS. THE JSR IS NOT A PRODUCT OF THE JSPS. The JSR continually assesses the strategic environment for issues and factors that affect the National Military Strategy in either the near term or the long term. Therefore, the JSR affects the NMS which affects the Joint Planning Document, the JSCP, and subsequently joint operational planning.

502.67 Explain how the Chairman's guidance affects operational planning.

Uh . . . let's see . . . the Chairman GUIDES the JSPS which drives every aspect of joint operational planning and any support required for those plans. Chairman's guidance is TOP DOWN and is driven by the continually ongoing Joint Strategy Review.

502.68 Explain how the NMS affects operational planning.

The NMS is advice from the CJCS and combatant commanders to the President, NSC, and SecDef. Designed to assist with preparation of DPG and JSCP. Refer to the JSPS diagram for the ripple effect of the NMS.

502.69 Explain how the Joint Planning Document affects operational planning.

The JPD (in support of the NMS, [see above]) provides concise programming priorities, requirements, or advice to SecDef for preparation of the DPG.

502.610 Explain how the JSCP affects operational planning.

Slam dunk, guranteed test question. JSCP provides the strategic direction required to coordinate the planning efforts of the combatant commanders . THE JSCP IS THE LINK BETWEEN JSPS (STRATEGIC PLANNING) AND JOINT OPERATIONAL PLANNING ACCOMPLISHED THROUGH JOPES. The JSCP performs the following:

1. Assigns planning tasks to combatant commanders
2. Apportions major combat forces and resources
3. Issues planning guidance to integrate the joint operation planning activities within a coherent, focused framework.
   

502.611 Explain how the Chairman's program assessment affects operational planning.

The POM identifies priorities and presents a balance of forces. The CPS analyzes the balance of that POM force structure and determines if it can meet the national objectives. Referring again to the JSPS diagram you can see that the JSCP initiates the OPlan development cycle. At the end of the OPlan cycle is the Plans Review phase performed by the Chairman based upon the criteria of adequacy, feasibility, acceptability, and compliance with joint doctrine. This is all rolled into the CPA.

COURSE OBJECTIVES:

Comprehend the concepts and processes involved in developing joint doctrine, creating joint command relationships, and assessing joint readiness.

Comprehend the concepts and processes involved in planning and training for participation in joint activities and the processes used by combatant commanders to assess joint readiness.

Comprehend how campaign concepts are used at the operational level of warfare.

READINGS:

1. Joint Pub 1, Joint Warfare of the Armed Forces of the United States, 10 Jan 1995.
2. Joint Pub 3-0, Doctrine for Joint Operations, 1 Feb 95.
3. Joint Pub 5-0, Doctrine for Planning Joint Operations, 13 Apr 95.
4. Joint Doctrine Capstone and Keystone Primer, 25 May 95.
5. Chairman Joint Chiefs of Staff Manual 3500.03, 1 June 96.
   

READING RATIONALE: Changes: Reading rationales tailored to match lesson.

Joint Pub 1, Joint Warfare of the Armed Forces of the United States, outlines and introduces the basic principles of joint doctrine. Study the introduction and chapter I.

Joint Pub 3-0, Doctrine for Joint Operations, is the keystone publication for Joint Operations doctrine and describes the principles needed to understand how the US operates in a joint environment. Study the introduction and chapter III.

Joint Pub 5-0, Doctrine for Planning Joint Operations, sets forth fundamental principles and doctrine that guide planning by the Armed Forces of the US in joint or multinational operations. Study chapter II.

Joint Doctrine Capstone and Keystone Primer, provides a nice summary of the Capstone and Keystone publications. Study the chapter on the "Joint Doctrine Story."

Chairman Joint Chiefs of Staff Manual 3500.03, is the joint training manual for our armed forces. Study chapter IV on developing the joint mission essential task list.

LESSON OUTLINE:

Thesis: The Goldwater-Nichols Act of 1986 was the catalyst for change and improvement in the joint doctrine and policy arena. With the commitment of General Shalikashvili "...we must give joint doctrine the attention it deserves and we must get it right," and hard work by the joint staff and military services, joint warfighters in 1995 have more readable and consistent joint doctrine and policy than they have ever had before. Now our challenge is to understand it, apply it and continue to make improvements where needed. This lesson provides the students with an overview of the current joint doctrine hierarchy and development process, and introduces them to specific doctrine, principles and policy governing the unified direction of forces.

Main Point I: Current joint doctrine and the joint doctrine publications hierarchy

a. Roles and limitations of current joint doctrine
b. Understanding current joint publications

Main Point II: Factors influencing joint doctrine

a. Players and process for developing joint doctrine
b. Changes to the joint policy development process

Main Point III: The relationship between service doctrine and joint doctrine

a. Authority of joint doctrine versus service doctrine
b. The relationship of service to joint doctrine in multinational/interagency ops
c. The relationship of service to joint doctrine when preparing plans for joint activities and performance

Main Point IV: National level planning systems tie national objectives to means

a. The National Security Council System and National Security Strategy
b. The National Military Strategy
c. The other national joint planning systems (PPBS and Acquisition)
d. JSPS products: National Military Strategy, Joint Planning Document, Joint Strategic Capabilities Plan, Chairman's Program Assessment

Main Point V: The effect of time, coordination, policy changes, and political development on the planning process

a. How time affects the joint strategic planning process
b. How the JSPS is coordinated
c. How policy changes affect the JSPS
d. How political development affects the JSPS

Main Point VI: The interrelationships of JSPS to the other defense planning systems

a. NSC
b. JOPES
c. PPBS (Joint Pub 5-0, pp II-5)

Main Point VII: Explain how the JSPS affects operational planning

a. Creates the Joint Strategy Review
b. Creates the Chairman's Guidance
c. Creates the NMS
d. Creates the Joint Planning Document
e. Creates the JSCP
f. Creates the Chairman's Program Assessment

Main Point VIII: The joint assessment process

a. The strategic environment, budget, law, emerging military technologies, requirements and acquisition leading to creation of the joint assessment process
b. JROC/JWCA: the players, CinCs' roles, JWCA cycle, and what the JROC decides
c. Other assessment tools: Chairman's Program Assessment, Chairman's Program Recommendation, Joint Military Net Assessment, EJROC, FRAC, SROC, and JMRR

Main Point IX: PPBS Overview

a. The players, the databases, program changes (PCRs) and security PPBS and the Defense Planning Guidance (DPG)

b. Planning: National level guidance, Defense Planning Guidance, JSPS
c. Programming: POM, Chairman's Program Assessment, Program review issues Budgeting: Budget Estimate Submission, Budget Review, Summary and President's Budget
d. The big picture: a continuous process, sequence of events, and cycle overlap

Main Point X: Describe the UJTL and its structure

a. The need for universal training Tasks, universal tasks, and joint universal tasks (a list of joint capabilities and competencies)
b. National, strategic, operational, and tactical levels of war (using the UJTL as a framework, commanders train and employ forces at the operational level of war)

Main Point XI: Describe how the JMETL is derived and how CinCs employ the

a. UJTL and JMETL to establish capabilities required to execute an assigned mission
b. Missions consist of tasks
c. Mission tasks become essential tasks for commanders (the JMETL)
d. Training is conducted based on the JMETL
e. JMETL is used as an assessment tool

Main Point XII: Use the UJTL/JMETL as a framework for joint and multinational activities at the operational level of war

a. Joint operation planning, the UJTL, and a joint force commander's JMETL
b. An evolving process
c. Current doctrine and the UJTL/JMETL

LESSON INTEGRATION AND RATIONALE:

This lesson combines and explains the tools used to coordinate and assess Joint Operational Planning and Execution through current doctrine. The student will gain an understanding of the Joint Strategic Planning System (JSPS), the Joint Requirements Oversight Council (JROC), the Joint Warfighting Capabilities Assessment (JWCA), and the Planning, Programming, and Budgeting System (PPBS). Further, this lesson will include the significance of the Universal Joint Task List (UJTL) and the Joint Mission Essential Task List (JMETL).

LESSON OPR: Joint Operations and Campaign Studies Department