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User’s Guidefor JOPES

1 May 1995

(Joint Operation Planning and Execution System)

To successfully fight and winwars, war planning must be our

central focus. We will develop thebest possible plans using the collec-tive wisdom available among all mili-tary planning staffs.

As forces are downsized, we must ef-ficiently plan to use the resources en-trusted us by the American people.While the new world security environ-ment evolves, diverse threats to ournational interests frequently requirelarge and complex operations. Thelarger and more complex the operation,the more it critically depends on a com-

prehensive planning system to ensure any measure of success.

Future plans must incorporate, to the maximum extent possible, the warfighting employ-ment principles outlined in joint doctrine; Joint Pubs 3-0 and 5-0 (Joint Operations andPlanning for Joint Operations, respectively). In addition, future plans must be prudentand relevant to current and projected threats. Plans must clearly explain how and whyforces are employed, in addition to what forces are to be deployed and when.

The products of our planning efforts must be able to stand up to the strongest scrutiny,including the ultimate test--execution.

I strongly recommend reading this guide--it encapsulates fundamental JOPES planningprinciples and procedures for both deliberate and crisis action planners.

JOHN M. SHALIKASHVILIChairman

of the Joint Chiefs of Staff

Table of Contents

EXECUTIVE SUMMARY ................................................. i

INTRODUCTION ............................................................. 1

JOPES PUBLICATIONS AND DOCUMENTS............ 5

THE JOPES PROCESS................................................... 6

Campaign Planning ........................................................................... 7

Deliberate Planning ........................................................................... 8

Crisis Action Planning ....................................................................... 9

Deliberate Plans .............................................................................. 10

JOPES ADP SUPPORT SYSTEM................................13

Time-Phased Force and Deployment Data ..................................... 14

The Global Command and Control System..................................... 18

CONCLUSION .................................................................20

GLOSSARY .................................................................GL-1

(INTENTIONALLY BLANK)

User's Guide forJOPES

i

EXECUTIVE SUMMARY

Joint warfare is essential to our Nation'scapability to fight and win. The natureof modern warfare demands we planand fight as a team. For joint forces towin in battle they must have a single,unified planning and execution frame-work capable of translating individualService terminology and operationalpolicies into a commonly understoodlanguage and standard operating pro-cedures.

The Joint Operation Planning and Ex-ecution System (JOPES) combines in-dividual Service terminology and op-erating procedures into one standardmultifaceted system. It provides stan-dardization to the joint planning systemused for the execution of complexmulti-Service exercises, campaigns andoperations. JOPES uses a set of com-mand and control techniques and pro-cesses, supported by a computerizedinformation system, to ensure the rightamount of timely support gets to thewarfighter to ensure a decisive victory.

This primer will explain what JOPESis — and what it is not. It is writtenfor commanders and war planners,new and novice users of JOPES, andthose who have only a peripheral rela-tionship with the system. If understoodand used properly, JOPES becomes acombat multiplier, increasing our effi-ciency in joint planning and execution.

JOPES is the Chairman of the JointChiefs of Staff’s (Chairman’s) jointplanning system. It covers the plan-ning spectrum from the National Com-mand Authorities (NCA) through theChairman, to the combatant com-manders (the CINCs) and the jointtask force commanders. JOPES gov-erns all aspects of conventional jointmilitary operations planning and execu-tion. It is the tool used by all echelonsof planners and operators to speak acommonly understood language.

JOPES furnishes joint commandersand war planners at all levels standard-ized policies, procedures, and formatsto produce and execute a variety ofrequired tasks to include:

ú planning — writing operation plans(OPLANs), operation plans in con-cept format (CONPLANs), func-tional plans, campaign plans, andoperation orders (OPORDs); and

ú execution and deployment(time-phased force and deploymentdata [TPFDD]) management —defining requirements for, and gain-ing visibility of, the movement offorces into the combatant com-manders' area of responsibility(AOR).

User's Guide forJOPES

ii

ú prioritize, replan, and track deploy-ment status during execution, and

ú refine deployment requirements andmonitor the deployment.

JOPES deliberate and crisis actionplanning is described in detail in JOPESVolumes I and II, and in the Chairmanof the Joint Chiefs of Staff Manual(CJCSM), TPFDD Development andDeployment Execution.

JOPES is, in the truest sense of theword, a System. It is not merely a com-puter! It is not a series of computersoftware programs! It is not just a stan-dardized set of policies, procedures, andformats for conducting planning andexecution! It is the sum of all theseparts! The goal of this primer is to pro-vide the reader a fundamental under-standing of this system and the inter-action of its parts.

JOPES is not simply a computer sys-tem. It does include automated dataprocessing (ADP) support for plannersand commanders by providing bothhardware (computers) and software(programs) to facilitate joint operationplanning and execution. JOPES ADPresides in the computer network of theWorld-Wide Military Command andControl System (WWMCCS), sched-uled to be replaced in September 1995by the Global Command and ControlSystem (GCCS). The JOPES softwareapplications support a variety of plan-ning and execution functions. Together,the computer hardware and softwaresystems assist the planners to:

ú develop detailed deployment re-quirements,

ú estimate logistics and transportationrequirements and assess operationplan transportation feasibility,

1

INTRODUCTION

JOPES is a combination of joint policies and proce-dures (guidance), and automated data processing(ADP) support used to plan and execute joint mili-tary operations. Although JOPES (and its relatedsystems) has been used for over 20 years to sup-port the development of operation plans and time-phased force and deployment data (TPFDD), thecurrent automated system was given its first realbaptism of fire in Operation Desert Shield to assistin managing a real world operational deployment.Since then, JOPES ADP has been used in virtuallyevery deployment. Even though its performance isfar from ideal, it has become an integral part of ourability to deploy forces.

This primer provides a general overview of JOPES.Its purpose is to correct the common misconcep-tion that JOPES is only an ADP system by explain-ing in clear and succinct terms what JOPES trulyis. This document is intended to be used as a com-panion piece to the User's Guide to Joint Opera-tion Planning, dated 11 September 1994. Thatdocument provides a more detailed overview of jointplanning principles.

JOPES is a combinationof joint policies and pro-cedures, supported byautomated data process-ing (ADP), designed toprovide joint command-ers and planners with acapability to plan andconduct joint militaryoperations.

In war, nothing is achieved except by calculation. Everythingthat is not soundly planned in its detail yields no result.

The Maxims of Napoleon

The Joint OperationPlanning and ExecutionSystem (JOPES) is theintegrated system usedto plan and execute jointmilitary operations.

2 User's Guide forJOPES

JointWarfightingOperations

Joint Operation Planning

O PO RD orCampaign Plan

campaign planning

The Joint Operation Planning and Execution System

JOPESADP

Support

JOPESPublications

& Documents

NCAPolicy

Decisions

DeliberatePlanning

OPLANOPLANOPLANOPLANOPLANOPLANOPLAN

CrisisAction

Planning

figure 1

JOPES provides a stan-dardized framework forjoint military planningand execution. Thescope of JOPES is farbroader than is gener-ally understood.

Figure 1 depicts the various parts of JOPES. JOPESis the principal system within the Department ofDefense (DOD) to translate NCA policy decisionsinto the joint combatant commander’s air, land andsea operations. It does this by precisely definingDOD war planning and execution policies, desig-nating specific procedures and formats, and pro-viding ADP support to convert NCA decisions intojoint operation plans. Joint operation plans are theblueprints for joint operations.

3

NCA

NSC CIA

STATE DEPT DOD

COMBAT SUPPORT AGENCIES

CJCS

SUPPORTED COMMAND

SERVICES SUBORDINATE COMMANDS

COMPONENT COMMANDS

SUBORDINATE UNIFIED COMMANDS

USTRANSCOM

SUPPORTING COMMANDS

JOPES

USA

USAF

USN

USMC

MTMC

AMC

MSC

LOGISTICS AGENCIES

FUNCTIONAL

JTF

SOF

NAVFOR

AFFOR

ARFOR

MARFOR

USCG

THE JOINT PLANNING ANDEXECUTION COMMUNITY (JPEC)

The Joint Planning and Execution Community (JPEC)

THE NATIONALSECURITY COUNCIL (NSC)

THE PRESIDENT AND SECDEF (NCA)

figure 2

The National CommandAuthorities (NCA) setnational policy and stra-tegic direction.

The players in the joint planning process, as illus-trated in figure 2, include the National CommandAuthorities (NCA) and the Joint Planning and Ex-ecution Community (JPEC).

The President and Secretary of Defense, as theNCA, sit atop the pyramid. They provide the ulti-mate decision on national policy and overall strate-gic direction of the U.S. Armed Forces. They aresupported by the executive departments and orga-nizations within the Office of the President, prima-rily the National Security Council (NSC).

The NSC is the principal forum to deliberate na-tional security policy issues. The NSC provides theframework to establish national security strategyand policy decisions for implementation by the Presi-dent in his role as commander-in-chief. The Presi-dent either issues orders directly to the military toimplement his national security strategy or he man-dates military action by using directives. These di-

The National SecurityCouncil (NSC) Systemsupports the NCA in theexecution of their policydecisions.


The Joint Planning andExecution Community(JPEC) plans and con-ducts joint operationplans.

publications and docu-ments,

JOPES is a system whichincludes:

an operation planningprocess, and

an ADP support system.

rectives can take the form of: the national securitystrategy document, national security directives,presidential directives, or executive orders.

As depicted in the lower portion of the pyramid,the JPEC consists of those headquarters, com-mands, and agencies involved in the training, prepa-ration, movement, reception, employment, support,and sustainment of military forces assigned to atheater of operations. The JPEC principals are theChairman and the Joint Staff, who publish the task-assigning documents, review the products, and ap-prove the final version of peacetime plans. Thesupported commands and their subordinates are re-sponsible for developing and executing operationplans and orders. The Services and their logisticsagencies play a key support role by organizing,equipping, training, and maintaining forces for thecombatant commands.

JOPES is a system which translates NCA deci-sions into combatant commander's joint opera-tions. It includes:

ú a set of publications and documents, whichguide the development of OPLANs andOPORDs

ú an operation planning process, which devel-ops deliberate plans (OPLANS) and operationorders (OPORD), and

ú an ADP support system, which provides thedata processing support required for the devel-opment of OPLANs and OPORDs.

5

JOPES PUBLICATIONS AND DOCUMENTS

JOPES publications establish the formats and guid-ance to govern warplan (OPLAN and OPORD)development by joint force commanders:

ú Joint Publication 5-03.1, Joint OperationPlanning and Execution System, Volume I,(Planning Policies and Procedures), dated 4August 1993, (to be staffed as CJCSM 3122.01);

ú Chairman of the Joint Chiefs of Staff Manual(CJCSM) 3122.03 draft, Joint OperationPlanning and Execution System, Volume II,(Planning Formats and Guidance), dated 13October 1994; and

ú TPFDD Development and Deployment Ex-ecution, dated 9 December 1994.

Volume I provides the guidance commanders andtheir staffs use to develop and execute joint opera-tions. It provides specific, detailed, and standard-ized procedures and guidance for:

ú conducting deliberate planning,

ú writing OPLANs, CONPLANs (with and with-out TPFDD), and functional plans,

ú conducting crisis action planning, and

ú writing OPORDs.

JOPES Volume I also provides specific formatsand checklists used for crisis response by command-ers and their staffs during crisis action planning.

There are three primaryJOPES publications:

JOPES Volume I,

JOPES Volume II, and

CJCSM 3122.02.

JOPES Volume I definesthe process for both de-liberate planning andcrisis action planning.


JOPES Volume II pro-vides the administrativeinstructions and formatsfor developing joint op-eration plans.

Volume II is a set of instructions (standardizedprocedures) used by commanders and their staffsto write OPLANs, CONPLANs, and functionalplans.

CJCSM 3122.02 provides guidance for the ex-ecution and management of real world deploy-ments.

figure 3

CONPLANw/o TPFDD

Joint Operation Planning

DeliberatePlanning

Crisis ActionPlanning

campaign planning

FunctionalPlan

OPORDOPLAN CampaignPlan

CONPLANw/TPFDD

Three planning catego-ries fall within the scopeof joint operation plan-ning:

• campaign planning,• deliberate planning,

and• crisis action plan-

ning.

THE JOPES PROCESS

CJCSM 3122.02 pro-vides policies and proce-dures for deployment ex-ecution.

Plans are developed under different processes de-pending on the focus of the specific plan (figure 3).They are campaign, deliberate, and crisis action plan-ning. These processes are interrelated; campaignplanning principles contribute to both deliberate andcrisis action planning.

7

Campaign Planning

Campaign planning allows CINCs to translate na-tional strategy and objectives into unified plans formilitary action by specifying how operations andlogistics will be used to achieve success within agiven space and time. It embodies the combatantcommander’s strategic vision of the related opera-tions necessary to attain theater strategic objec-tives.

If the scope of contemplated operations requires it,campaign planning begins with deliberate planning.It continues through crisis action planning, thus uni-fying both planning processes. The degree to whichthe deliberate plan may serve as the core for a cam-paign plan is dependent on the plan assumptions,commander's intent, and available resources. Cam-paign planning and its relation to joint operation plan-ning is discussed in detail in Joint Pub 5-0 Doctrinefor Planning Joint Operations, dated 15 August1994.

Campaign planning isthe responsibility of thecombatant commander.Though it is not a struc-tured formal processlike deliberate and cri-sis action planning, cam-paign planning prin-ciples apply to both.

Campaign planninghelps facilitate a transi-tion from deliberate tocrisis action planning.

War plans cover every aspect of a war, and weave them all into asingle operation that must have a single, ultimate objective in whichall particular aims are reconciled.

Clausewitz, On War


Deliberate Planning

The deliberate planning process develops joint op-eration plans for contingencies identified in jointstrategic planning documents. These planning docu-ments include the Secretary of Defense's annual"Contingency Planning Guidance" (CPG) (whichprovides written policy guidance for contingencyplanning) and the Chairman’s "Joint Strategic Ca-pabilities Plan" (JSCP) (which provides guidanceto the CINCs and Service Chiefs for accomplish-ing military tasks and missions based on currentmilitary capabilities). Deliberate planning is com-pleted in five phases based on JOPES guidance.

ú Phase I, initiation , specifies strategic objectivesand planning assumptions, specifies the type ofplan for each task, and apportions major com-bat and strategic forces to the CINCs for plan-ning. This information is provided to the CINCsin the JSCP.

ú In response to the JSCP assigned task, theCINCs, during Phase II, concept develop-ment, conduct mission analysis, identify friendlyand enemy centers of gravity, determine thecommander's overall intent for the operation anddevelop the staff estimates. The final result ofPhase II is a CINC's strategic concept, whichis submitted to the Chairman, as required, forreview and approval.

ú After the CINC's strategic concept is approved,Phase III, plan development, begins with fullplan development and documentation. This pro-cess produces force, support, and transporta-tion planning documents to support the CINC'sconcept of operations. This process will be dis-cussed in detail later in this primer, during dis-cussions on TPFDD development.

Deliberate planning in-volves a structured pro-cess using the JOPESfive-phased methodol-ogy:

i. Initiation,

iii. Plan development,

ii. Concept develop-ment,

9

iv. Plan review, and

v. Supporting plans de-velopment.

Crisis Action Planning(CAP) is conducted forthe actual commitmentof allocated forces,based on an existing situ-ation.

CAP follows a JOPESprescribed six-phaseddevelopment process:

i. Situation develop-ment,

ii. Crisis assessment,

ú In Phase IV, plan review, the plan is reviewedfor adequacy, feasibility, acceptability, and com-pliance with joint doctrine. Those plans requir-ing approval by the Chairman will be reviewedby the Joint Staff, Services, and combat supportagencies (CIO, DIA, DISA, DLA, DMA, andNSA).

ú During Phase V, supporting plans develop-ment, emphasis shifts to subordinate and sup-porting commanders as they complete their plansto augment the CINC's plan.

Crisis Action Planning (CAP)

Crisis action planning, like deliberate planning, in-volves a structured process following the guidanceestablished in JOPES publications. This planningprocess results in the time-sensitive developmentof campaign plans and operation orders (OPORDs)for execution.

ú Phase I, situation development, is initiated withthe perception or recognition of a crisis and re-sults in the development of the CINC's assess-ment.

ú Phase II, crisis assessment, is the NCA andChairman's evaluation of the CINC's assessmentand determination whether a crisis is imminent.

ú During Phase III, course of action develop-ment, the NCA or the CINC develops one ormore courses of action. The CINC submits thecommander's estimate and recommendation tothe Chairman.

iii. Course of action de-velopment,


ú In Phase IV, course of action selection, theNCA decides on a course of action.

ú In Phase V, execution planning, the CINCdevelops a campaign plan or OPORD, andTPFDD.

ú Phase VI, execution, is the NCA decision toexecute the campaign plan or OPORD.

OPORDs are prepared in prescribed JOPES for-mats during crisis action planning. They are in theform of a directive issued by a commander to sub-ordinate commanders to effect the coordinated ex-ecution of an operation.

Deliberate Plans

Based on the Chairman's JSCP planning require-ments, the CINCs prepare four types of deliberateplans; OPLANs, CONPLANs (with and withoutTPFDDs), and functional plans. These plans fa-cilitate the rapid transition to crisis response. Eachplan has different JOPES procedural and formatrequirements. However, all follow the basic for-mat of a five-paragraph order;

The crisis action plan-ning process results inthe time-sensitive devel-opment of joint operationplans (campaign plansand OPORDs) for ex-ecution.

iv. Course of action se-lection,

v. Execution planning,and

vi. Execution.

But in truth, the larger the command, the more time must go intoplanning; the longer it will take to move troops into position, toreconnoiter, to accumulate ammunition and other supplies, andto coordinate other participating elements on the ground and inthe air. To a conscientious commander, time is the most vitalfactor in his planning. By proper foresight and correct preliminaryaction, he knows he can conserve the most precious elementshe controls -- the lives of his men.

General Mathew B. Ridgway, The Korean War

Deliberate plans estab-lish a framework forrapid transition to crisisresponse. There are fourtypes of deliberate plans;OPLANs, CONPLANs,CONPLANs withTPFDDs, and func-tional plans.

11

1. Situation

2. Mission

3. Execution

4. Administration and logistics

5. Command and control

Operation Plan (OPLAN)

OPLANs are prepared when:

ú the contingency has a compelling national inter-est and is critical to national security,

ú the nature (large scale) of the contingency re-quires detailed prior planning for complex issues,

ú detailed planning contributes to deterrence,

ú detailed planning is required to support multina-tional planning, or

ú detailed planning is necessary to determine spe-cific force and sustainment requirements.

An OPLAN includes a full description of the con-cept of operations using all documentation appli-cable to a JOPES structured plan. It identifies thespecific forces, functional support, and resourcesnecessary to implement the plan and provides clo-sure estimates for their movement into the theater.OPLANs can be quickly converted to OPORDs.

ú may include as many as 20 JOPES prescribedannexes with associated appendices and

ú always include time-phased force and deploy-ment data (TPFDD). (TPFDDs are discussedin more detail later in this primer.)

An OPLAN is a completeand detailed joint opera-tion plan.

OPLANs include:

• detailed annexes withassociated appendi-ces and

• Time-Phased Forceand DeploymentData.


Because of the detailed nature of an OPLAN,JOPES guidance requires a thorough presenta-tion of the commander’s operational concept.JOPES requires all annexes and appendices to con-tain detailed information on the CINC’s conceptof operations, combat support, and combat ser-vice support activities.

Operation Plan in Concept Format(CONPLAN)

A CONPLAN requires considerable expansionor alteration to convert into an OPLAN, campaignplan, or OPORD. In a CONPLAN, all the ele-ments of the basic OPLAN are included in sum-mary form except mission, situation, assumptions,and concept of operations. These elements arefully developed. The full complement of annexesand appendices are not required in a CONPLAN.CONPLANs contain a summary of logistics re-quirements and major constraints regarding forces,movement, or logistic support that significantlyaffect implementation of the plan.

A CONPLAN (without a TPFDD) is normallyrequired when:

ú the contingency has a less compelling interestbut is important to national security;

ú binational alliance or treaty arrangement re-quires contingency planning by the signatorycountries;

ú the contingency is smaller in scale, requires lessdetailed planning, and can be handled in thenear term with more general capabilities-basedconcepts; or

ú no specific threat has been identified.

A CONPLAN is a jointoperation plan in an ab-breviated, "concept" for-mat. There are twotypes of CONPLANs:

A CONPLAN without aTPFDD and

13

A CONPLAN with TPFDD is a CONPLAN thatrequires more detailed planning for the phaseddeployment of forces. Like an OPLAN, it is pre-pared when the contingency has a compelling na-tional interest and is critical to national security—however, it is not as likely to occur in the near term.The larger scale of the possible contingency re-quires more detailed planning than would normallybe conducted for a CONPLAN. Preparing aCONPLAN with TPFDD follows the same JOPESprocedures as developing an OPLAN.

Functional Plans

Functional plans may also be developed by com-batant commanders to address “functional peace-time operations” such as disaster relief, humanitar-ian assistance, or peace operations. They may bedeveloped in response to JSCP tasks, as a CINCinitiative, or as tasked by a Service or defenseagency acting as an executive agent for the Secre-tary of Defense (for example, military support tocivil authorities).

Functional plans are structured as CONPLANs(without a TPFDD), following published JOPES for-mats. Annexes and appendices are developed asrequired.

A CONPLAN with aTPFDD.

Functional plans are de-veloped for specific mili-tary operations in a per-missive or non-hostileenvironment (for ex-ample, intratheater lo-gistics, communications,and continuity of opera-tions).

In crisis action planning, JOPES ADP support isused to refine existing TPFDDs or develop newones. At execution, JOPES ADP manages the de-ployment of forces and their equipment into the Areaof Operations.

Except for TPFDD de-velopment, JOPES de-liberate and crisis actionplanning is essentially amanual process.

JOPES ADP SUPPORT SYSTEM


The World-Wide Military Command and ControlSystem (WWMCCS) family of computers providesthe hardware supporting JOPES. It is an aging sys-tem, currently scheduled to be replaced by the Glo-bal Command and Control System (GCCS) in Sep-tember 1995.

The JOPES ADP software is made up of hundredsof individual computer programs. The current soft-ware is designed to support deployment planning.While this is crucial to deliberate planning, it cannot adequately support deployment/redeploymentduring mobilization, employment, and sustainment.

Time-Phased Force and Deployment Data(TPFDD)

A TPFDD is a computer database used to identifytypes of forces and actual units required to supportan OPLAN or OPORD. In addition, TPFDDs con-tain estimates of logistics support and designateports for loading (embarkation) and unloading (de-barkation). Finally, the TPFDD, based on plannerinput, establishes the sequence for moving theforces and their support (time phasing) into the Areaof Operations. The time-phased forces, and theirassociated cargo and passenger movement require-ments, are used as the basis for actual transporta-tion scheduling. JOPES ADP depends on Serviceplanning systems for these force and support re-quirements. The JOPES data base is distributedworldwide and provides a single information sourcefor movement status.

JOPES ADP is the larg-est of several softwareprograms operating onthe WWMCCS inter-computer network(WIN), a secure, world-wide system of comput-ers.

JOPES ADP helps plan-ners build and maintainTPFDDs.

15

JOPES [ADP] was the single tool which enabled this commandto oversee and coordinate the movement in record time ofover 400,000 personnel and six million tons of cargo.

General H. Norman Schwarzkopf, CINCCENT

We could not have conducted this enormous deploymentwithout JOPES [ADP].

General H.T. Johnson, CINCTRANS

JOPES ADP helps planners build the force list duringforce planning. Force planning begins when thecombatant commander identifies the major appor-tioned forces needed to support his concept of op-erations, and continues with the identification ofcombat support and combat service support forcerequirements. Initially, for gross planning estimates,notional (generic) units may be designated. As theprocess continues, however, actual units must beidentified.

TPFDD development then shifts to support plan-ning. Various software programs use the force listto estimate time-phased lift requirements for sup-plies, equipment, and replacement personnel neededto sustain the forces specified during force plan-ning. The quantities are determined using planningmodels to derive gross quantities (weight and vol-ume). Unique computer programs provide supportfor specialized planning models such as civil engi-neering and medical support.

Developing a TPFDDinvolves four main pro-cesses:

Force planning,

Support planning,


TransportPlanning

ForcePlanning

SupportPlanning

JOPES ADP

fail

fail

pass

pass

feasibilitytest ?

feasibilitytest ?

feasibilitytest ?

pass

fail

The Current TPFDD Development Process

figure 4

During transportation planning, all of the forcesare time-phased into the Area of Operations.JOPES software compares apportioned transpor-tation assets to the forces to be moved, factors intheir sustainment requirements and time-phasing,and determines if the planned forces can be movedto the Area of Operations to meet the CINC'sneeds. The product of this process is a capabili-ties- based, transportation-feasible database con-taining all the forces, materiel, and personnel neededto execute the CINC’s concept of operations. Thistransportation-feasible database is the TPFDD.

The process of developing the TPFDD with thecurrent JOPES ADP software is sequential (fig-ure 4). This figure depicts the development of a

Transportation plan-ning, and

Deployment/Redeploy-ment Execution.

17

TPFDD based on three of the main processes; forceplanning, support planning, and transportation plan-ning. Each process must be completed before pro-ceeding to the next one. For example, force plan-ning must be completed before support planningbegins, and support planning must be finished be-fore starting transportation planning. Also, it maybe necessary to drop back to revisit previous steps,or in the worst case start over. Each step is theresponsibility of one or more separate agencies orcommands located around the world. This complexoperation was acceptable for a multi-year deploy-ment-based deliberate planning cycle. Today, how-ever, emphasis has shifted to an execution-basedcrisis action planning procedure. A crisis action plan-ning cycle and deployment/redeployment execu-tion require immediate data access, and a responsetime measured in hours, not days.

At execution, the TPFDD developed during delib-erate planning (or a new one developed during cri-sis action planning) is refined and movement re-quirements are validated. This validated TPFDDbecomes the basis for actual transportation sched-uling for force deployment, and subsequent rede-ployment. Supply and replacement personnel esti-mates developed during planning are used as asource for establishing transportation channels forsustainment movement. In short, the JOPES database is a single source for force deployment move-ment requirements and status.

JOPES ADP support for execution evolved from adeliberate planning tool not originally designed tosupport movement. However, without JOPES ADPsupport, as limited as it is, execution of any sizabledeployment would be virtually unmanageable. Newtools are being developed to correct deficiencies.When fully implemented, the Global Command and

The TPFDD becomesthe basis for actual trans-portation scheduling forforce deployment and re-deployment.

JOPES ADP support atexecution is currentlyonly marginally effec-tive.


Control System (GCCS) will provide needed mod-ernization of JOPES ADP hardware. However,software redesign and procedural changes are re-quired to effectively support execution. It shouldbe noted that user discipline (rigorous adherenceto JOPES procedures) at all levels will always bevital for JOPES to provide visibility of actual move-ment of units and sustainment during execution.

The Global Command and Control System

GCCS is the embodiment of the Command, Con-trol, Communications, Computers and Intelligence(C4I) for the Warrior concept. C4I for the War-rior, through GCCS, will provide the necessary in-formation for warfighters to fight and win on thebattlefield today and in the future.

The first operational version of GCCS is scheduledto come on line in September 1995. JOPES ADPis just one of many C2 systems that will migrate toGCCS. Initially, GCCS will provide the same plan-ning and execution capability as the JOPES ADPcurrently residing on WWMCCS. Future modifi-cations, however, will modernize JOPES ADP andcombine its capabilities with other C2 systems toform a more powerful, integrated tool for warplan-ning. Upgrades to JOPES capabilities will providethe warfighter the tools to support execution as wellas planning.

Along with many other capabilities, GCCS will in-tegrate:

ú Deliberate and Crisis Action Planningú Force Deployment and Employmentú Fire Supportú Air Operations and Planningú Intelligence

When fully imple-mented, the Global Com-mand and Control Sys-tem will provide neededmodernization of JOPESADP hardware.

GCCS will provide thecombatant commandera complete picture of thebattlefield and the abil-ity to order, respond, andcoordinate C2 informa-tion.

19

JOPES Distributed systems andprocesses integrated through GCCS

GCCSCommonOperating

Environment

TransportPlanning

SupportPlanning

ForcePlanning

TPFDD

Deployment/Redeployment

Execution

figure 5

ú Force Status (SORTS)

GCCS is designed to allow planning and executioncapabilities to expand as additional user require-ments are identified. GCCS is essentially a com-mon operating environment within which new ap-plications will operate. As new systems are devel-oped, they will be designed to easily “plug” into theGCCS environment (see figure 5).

When fully operational, GCCS state-of-the-art hard-ware and software should greatly enhance currentjoint operation planning and execution capabilitiesand facilitate future modifications.

GCCS will meet currentneeds as well as evolv-ing joint operation plan-ning and execution re-quirements.


CONCLUSION

Joint operation planning and execution is conductedwithin the chain of command that runs from theNCA to the combatant commander, and throughjoint task force commanders, down to the opera-tional forces. Planning and execution includes thepreparation of joint operation plans (OPLANs,CONPLANs, functional plans, OPORDs, and cam-paign plans). JOPES supports the development ofthese plans and orders by providing policies, pro-cedures, formats, and ADP support for their con-struction. Joint doctrine and operation planning prin-ciples within JOPES guide the commander’s de-velopment of warfighting and employment aspectsof his plan.

The goal of this primer is to provide the reader afundamental understanding of JOPES, particularlyplanning and execution processes and the types ofplans developed under JOPES. JOPES proceduresand formats capture the interrelationships of delib-erate and crisis action planning, and provide andguide the joint planning and execution process.

Joint doctrine and opera-tion planning principleswithin JOPES guide thecommander’s develop-ment of joint operationplans and employmentaspects of those plans.

JOPES procedures andformats capture the in-terrelationships of delib-erate and crisis actionplanning, and guide thejoint planning and ex-ecution process

REMEMBER

JOPES is, in the truest sense of the word, a system. It is not merely a com-puter! It is not a series of computer software programs! It is not just a stan-dardized set of policies, procedures, and formats for conducting planning andexecution! JOPES is the sum of all these parts!

GL-1

GLOSSARY

PART I—ABBREVIATIONS AND ACRONYMS

ADP automated data processing

C2 command and control

CAP crisis action planning

CINC commander of a combatant command; commander in chief

CJCSM Chairman of the Joint Chiefs of Staff Manual

CONPLAN operation plan in concept format

CPG Contingency Planning Guidance

DPG Defense Planning Guidance

DOD Department of Defense

GCCS Global Command and Control System

JOPES Joint Operation Planning and Execution System

JPEC Joint Planning and Execution Community

JSCP Joint Strategic Capabilities Plan

JSPS Joint Strategic Planning System

NCA National Command Authorities

NSC National Security Council

OPLAN operation plan

OPORD operation order

TPFDD time-phased force and deployment data

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

WWMCCS Worldwide Military Command and Control System

GL-2

campaign. A series of related militaryoperations aimed at accomplishing astrategic or operational objectivewithin a given time and space. (JointPub 1-02)

campaign planning. The processwhereby combatant commanders andsubordinate joint force commanderstranslate national or theater strategyinto operational concepts through thedevelopment of campaign plans.Campaign planning may begin dur-ing deliberate planning when the ac-tual threat, national guidance, andavailable resources become evident,but is normally not completed untilafter the National Command Authori-ties select the course of action dur-ing crisis action planning. Campaignplanning is conducted when contem-plated military operations exceed thescope of a single major joint opera-tion. (Joint Pub 1-02)

campaign plan. A plan for a series ofrelated military operations aimed ataccomplishing a strategic or opera-tional objective within a given timeand space. (Joint Pub 1-02)

CINC’s strategic concept. Finaldocument produced in Step 5 of theconcept development phase of thedeliberate planning process. TheCINC’s strategic concept is used asthe vehicle to distribute the CINC’sdecision and planning guidance foraccomplishing Joint Strategic Capa-

PART II—TERMS AND DEFINITIONS

acceptability. Operation plan reviewcriterion. The determination whetherthe contemplated course of actionis worth the cost in manpower, ma-terial, and time involved; is consis-tent with the law of war; and mili-tarily and politically supportable.(Joint Pub 1-02)

adequacy. Operation plan review cri-terion. The determination whetherthe scope and concept of a plannedoperation are sufficient to accom-plish the task assigned. (Pub 1-02)

alliance. An alliance is the result offormal agreements (i.e., treaties) be-tween two or more nations for broad,long-term objectives which furtherthe common interests of the mem-bers. (Joint Pub 1-02)

allocation. In a general sense, distri-bution of limited resources amongcompeting requirements for employ-ment. Specific allocations (e.g., airsorties, nuclear weapons, forces, andtransportation) are described as al-location of air sorties, nuclear weap-ons, etc. (Joint Pub 1-02)

apportionment. In the general sense,distribution for planning of limitedresources among competing require-ments. Specific apportionments (e.g.,air sorties and forces for planning)are described as apportionment of airsorties and forces for planning etc.(Joint Pub 1-02)

GL-3

bilities Plan or other Chairman of theJoint Chiefs of Staff (CJCS) takings.CJCS approval of the strategic con-cept becomes the basis of the planfor development into an operationplan or operation plan in concept for-mat. Formerly called “the conceptof operations. “ Also called CSC.(Joint Pub 1-02)

combatant command. A unified orspecified command with a broad con-tinuing mission under a single com-mander established and so designatedby the President, through the Secre-tary of Defense and with the adviceand assistance of the Chairman of theJoint Chiefs of Staff. Combatantcommands typically have geographicor functional responsibilities. (JointPub 1-02)

combatant commander. A com-mander in chief of one of the unifiedor specified combatant commands es-tablished by the President. (Joint Pub1-02)

concept of operations. A verbal orgraphic statement, in broad outline,of a commander’s assumptions orintent in regard to an operation orseries of operations. The concept ofoperations frequently is embodied incampaign plans and operation plans;in the latter case, particularly whenthe plans cover a series of connectedoperations to be carried out simulta-neously or in succession. The con-cept is designed to give an overallpicture of the operation. It is included

primarily for additional clarity ofpurpose. Also called commander’sconcept. (Joint Pub 1-02)

contingency. An emergency involv-ing military forces caused by natu-ral disasters, terrorists, subversives,or by required military operations.Due to the uncertainty of the situa-tion, contingencies require plans,rapid response, and special proce-dures to ensure the safety and readi-ness of personnel, installations, andequipment. (Joint Pub 1-02)

contingency planning. The develop-ment of plans for potential crisis in-volving military requirements thatcan reasonably be expected in anarea of responsibility. Contingencyplanning for joint operations is co-ordinated at the national level tosupport Secretary of Defense Con-tingency Planning Guidance (CPG),strategic requirements in the Na-tional Military Strategy, and emerg-ing crises. Contingency planningcan occur anywhere within therange of military operations andmay be performed deliberately orunder crisis action conditions. Con-tingency planning for joint opera-tions is coordinated at the nationallevel by assigning planning tasksand relationships among the com-batant commanders and apportion-ing or allocating them the forces andresources available to accomplishthose tasks. Commanders through-out the unified chain of commandmay task their staffs and subordi-

GL-4

base will be contingent on the timeavailable for course of action devel-opment. When approved, the courseof action becomes the basis for thedevelopment of an operation plan oroperation order. Also called COA.(Joint Pub 1-02)

course of action development. Thephase of the Joint Operation Plan-ning and Execution System withinthe crisis action planning process thatprovides for the development of mili-tary responses and includes, withinthe limits of the time allowed: es-tablishing force and sustainment re-quirements with actual units; evalu-ating force, logistic, and transporta-tion feasibility; identifying and re-solving resource shortfalls; recom-mending resource allocations; andproducing a course of action via acommander’s estimate that containsa concept of operations, employmentconcept, risk assessments, prioritizedcourses of action, and supportingdata bases. (Joint Pub 1-02)

crisis. An incident or situation involv-ing a threat to the United States, itsterritories, citizens, military forces,possessions, or vital interests that de-velops rapidly and creates a condi-tion of such diplomatic, economic,political, or military importance thatcommitment of US military forcesand resources is contemplated toachieve national objectives. (JointPub 1-02)

nate commands with additional con-tingency planning tasks beyondthose specified at the national level to pro-vide broader contingency coverage.(Joint Pub 1-02)

Contingency Planning Guidance. Aplanning document that fulfills thestatutory duty of the Secretary ofDefense to furnish annually, to theChairman of the Joint Chiefs of Staff,written policy guidance for contin-gency planning. The Secretary fur-nishes this guidance with the ap-proval of the President after coordi-nation with the Chairman of the JointChiefs of Staff. The CPG focuses theguidance given in the National Mili-tary Strategy and Defense PlanningGuidance, and has direct impact onthe JSCP.. Also called CPG. (AFSCPub 1)

course of action. 1. A plan that wouldaccomplish, or is related to, the ac-complishment of a mission. 2. Thescheme adopted to accomplish a taskor mission. It is a product of the JointOperation Planning and ExecutionSystem concept development phase.The supported commander will in-clude a recommended course of ac-tion in the commander’s estimate.The recommended course of actionwill include the concept of opera-tions, evaluation of supportability es-timates of supporting organizations,and an integrated time-phased database of combat, combat support, andcombat service support forces andsustainment. Refinement of this data

GL-5

crisis action planning. 1. The JointOperation Planning and ExecutionSystem process involving the time-sensitive development of joint opera-tion plans and orders in response toan imminent crisis. Crisis actionplanning follows prescribed crisisaction procedures to formulate andimplement an effective responsewithin the timeframe permitted by thecrisis. 2. The time-sensitive planningfor the deployment, employment, andsustainment of assigned and allo-cated forces and resources that oc-curs in response to a situation thatmay result in actual military opera-tions. Crisis action planners basetheir plan on the circumstances thatexist at the time planning occurs.Also called CAP. (Joint Pub 1-02)

deliberate planning. 1. The Joint Op-eration Planning and Execution Sys-tem process involving the develop-ment of joint operation plans for con-tingencies identified in joint strate-gic planning documents. Conductedprincipally in peacetime, deliberateplanning is accomplished in pre-scribed cycles that complement otherDepartment of Defense planningcycles in accordance with the for-mally established joint strategic plan-ning system. 2. A planning processfor the deployment and employmentof apportioned forces and resourcesthat occurs in response to a hypo-thetical situation. Deliberate plannersrely heavily on assumptions regard-

ing the circumstances that will existwhen the plan is executed. (Joint Pub1-02)

deployment planning. Operationalplanning directed toward the move-ment of forces and sustainment re-sources from their original locationsto a specific operational area for con-ducting the joint operations contem-plated in a given plan. Encompassesall activities from origin or home sta-tion through destination, specificallyincluding intra-continental UnitedStates, intertheater, and intratheatermovement legs, staging areas, andholding areas. (Joint Pub 1-02)

employment. The strategic, opera-tional, or tactical use of forces. (JointPub 1-02)

employment planning. Planning thatprescribes how to apply force/forcesto attain specified military objectives.Employment planning concepts aredeveloped by combatant command-ers through their component com-manders. (Joint Pub 1-02)

execution planning. The phase of theJoint Operation Planning and Execu-tion System crisis action planningprocess that provides for the trans-lation of an approved course of ac-tion into an executable plan of ac-tion through the preparation of acomplete operation plan or operationorder. Execution planning is detailedplanning for the commitment ofspecified forces and resources. Dur-ing crisis action planning, an ap-

GL-6

proved operation plan or other Na-tional Command Authorities-ap-proved course of action is adjusted,refined, and translated into an opera-tion order. Execution planning canproceed on the basis of prior delib-erate planning, or it can take placein the absence of prior planning.(Joint Pub 1-02)

feasibility. Operation plan review cri-terion. The determination of whetherthe assigned tasks could be accom-plished by using available resources.(Joint Pub 1-02)

functional plans. Plans involving theconduct of military operations in apeacetime or permissive environmentdeveloped by combatant command-ers to address requirements such asdisaster relief, nation assistance, lo-gistics, communications, surveil-lance, protection of US citizens,nuclear weapon recovery and evacu-ation, and continuity of operations,or similar discrete tasks. They maybe developed in response to the re-quirements of the Joint StrategicCapabilities Plan, at the initiative ofthe CINC, or as tasked by the sup-ported combatant commander, JointStaff, Service, or Defense agency.Chairman of the Joint Chiefs of Staffreview of CINC-initiated plans is notnormally required. (Joint Pub 1-02)

interoperability . 1. The ability of sys-tems, units or forces to provide ser-vice to and accept services from othersystems, units, or forces and to use

the services so exchanged to enablethem to operate effectively together.2. The condition achieved amongcommunications-electronics systemsor items of communications- elec-tronics equipment when informationor services can be exchanged directlyand satisfactorily between them and/or their users. The degree ofinteroperability should be definedwhen referring to specific cases.(Joint Pub 1-02)

joint force commander. A generalterm applied to a combatant com-mander, subunified commander, orjoint task force commander autho-rized to exercise combatant command(command authority) or operationalcontrol over a joint force. Also calledJFC. (This term and its definition areprovided for information and are pro-posed for inclusion in the next edi-tion of Joint Pub 1-02 by Joint Pub0-2.)

joint operation. A general term to de-scribe military actions conducted byjoint forces, or by Service forces inrelationships (e. g. support, coordi-nating authority), which, of them-selves, do not create joint forces.(This term and its definition are pro-vided for information and are pro-posed for inclusion in the next edi-tion of Joint Pub 1-02 by Joint Pub0-2.)

joint operation planning. Planning forcontingencies which can reasonablybe anticipated in an area of responsi-

GL-7

bility or joint operations area of thecommand. Planning activities exclu-sively associated with the prepara-tion of operation plans, operationplans in concept format, campaignplans, and operation orders (otherthan the single integrated operationplan) for the conduct of military op-erations by the combatant command-ers in response to requirements es-tablished by the Chairman of theJoint Chiefs of Staff. Contingencyplanning for joint operations is co-ordinated at the national level to sup-port Secretary of Defense Contin-gency Planning Guidance (CPG),strategic requirements in the NationalMilitary Strategy, and emerging cri-ses. As such, joint operations plan-ning includes mobilization planning,deployment planning, employmentplanning, sustainment planning, andredeployment planning procedures.Joint operations planning is per-formed in accordance with formallyestablished planning and executionprocedures. (Joint Pub 1-02)

joint operational planning process. Acoordinated Joint Staff procedureused by a commander to determinethe best method of accomplishing as-signed tasks and to direct the actionnecessary to accomplish the mission.(Joint Pub 1-02)

Joint Operation Planning and Execu-tion System. A continuously evolv-ing system that is being developedthrough the integration and enhance-ment of earlier planning and execu-

tion systems: Joint Operation Plan-ning System and Joint DeploymentSystem. It provides the foundationfor conventional command and con-trol by national- and theater-levelcommanders and their staffs. It is de-signed to satisfy their informationneeds in the conduct of joint plan-ning and operations. Joint OperationPlanning and Execution System(JOPES) includes joint operationplanning policies, procedures, andreporting structures supported bycommunications and automated dataprocessing systems. JOPES is usedto monitor, plan, and execute mobi-lization, deployment, employment,and sustainment activities associatedwith joint operations. Also calledJOPES. (Joint Pub 1-02)

Joint Planning And ExecutionCommunity. Those headquarters,commands, and agencies involved inthe training, preparation, movement,reception, employment, support, andsustainment of military forces as-signed or committed to a theater ofoperations or objective area. It usu-ally consists of the Joint Staff, Ser-vices, Service major commands (in-cluding the Service wholesale logis-tics commands), unified commands(and their certain Service componentcommands), subunified commands,transportation component com-mands, joint task forces (as appli-cable), Defense Logistics Agency,and other Defense agencies (e.g., De-

GL-8

a. selective mobilization. Expan-sion of the active Armed Forces re-sulting from action by Congress and/or the President to mobilize Reservecomponent units, individual ready re-servists, and the resources needed fortheir support to meet the require-ments of a domestic emergency thatis not the result of an enemy attack.

b. partial mobilization . Expansionof the active Armed Forces result-ing from action by Congress (up tofull mobilization) or by the President(not more than 1,000,000) to mobi-lize Ready Reserve component units,individual reservists, and the re-sources needed for their support tomeet the requirements of a war orother national emergency involvingan external threat to the national se-curity.

c. full mobilization . Expansion ofthe active Armed Forces resultingfrom action by Congress and thePresident to mobilize all Reservecomponent units in the existing ap-proved force structure, all individualreservists, retired military personnel,and the resources needed for theirsupport to meet the requirements ofa war or other national emergencyinvolving an external threat to the na-tional security.

d. total mobilization. Expansion ofthe active Armed Forces resultingfrom action by Congress and thePresident to organize and/or gener-ate additional units or personnel, be-

fense Intelligence Agency) as maybe appropriate to a given scenario.Also called JPEC. (Joint Pub 1-02)

Joint Strategic Capabilities Plan. Aplanning document that containsguidance to the CINCs and ServiceChiefs for accomplishing militarytasks and missions based on currentmilitary capabilities. These assign-ments take into account the capabili-ties of available forces, intelligenceinformation, and guidance issued bythe Secretary of Defense. The JSCPdirects the development of contin-gency plans to support national se-curity objectives by assigning plan-ning tasks and apportioning majorcombat forces and strategic lift ca-pability to the combatant command-ers. As a capabilities planning docu-ment, it represents the last phase ofresource management. Also calledJSCP. (AFSC Pub 1)

mobilization. 1. The act of assemblingand organizing national resources tosupport national objectives in timeof war or other emergencies. 2. Theprocess by which the Armed Forcesor part of them are brought to a stateof readiness for war or other nationalemergency. This includes activatingall or part of the Reserve componentsas well as assembling and organiz-ing personnel, supplies, and materiel.Mobilization of the Armed Forces in-cludes but is not limited to the fol-lowing categories:

GL-9

yond the existing force structure, andthe resources needed for their sup-port, to meet the total requirementsof a war or other national emergencyinvolving an external threat to the na-tional security. (Joint Pub 1-02)

multinational . Between two or moreforces or agencies of two or more na-tions or coalition partners. (Joint Pub1-02)

National Command Authorities. ThePresident and the Secretary of De-fense or their duly deputized alter-nates or successors. Also calledNCA. (Joint Pub 1-02)

operation. A military action or the car-rying out of a strategic, tactical, ser-vice, training, or administrative mili-tary mission; the process of carryingon combat, including movement,supply, attack, defense, and maneu-vers needed to gain the objectives ofany battle or campaign. (Joint Pub1-02)

operation order. A directive issued bya commander to subordinate com-manders for the purpose of effectingthe coordinated execution of an op-eration. Also called OPORD. (JointPub 1-02)

operation plan. Any plan, except forthe Single Integrated Operation Plan,for the conduct of military opera-tions. Plans are prepared by com-batant commanders in response to re-quirements established by the Chair-man of the Joint Chiefs of Staff andby commanders of subordinate com-

mands in response to requirementstasked by the establishing unifiedcommander. Operation plans areprepared in either a complete format(OPLAN) or as a concept plan(CONPLAN). The CONPLAN canbe published with or without timephased force deployment data(TPFDD) file.

a. OPLAN . An operation plan forthe conduct of joint operations thatcan be used as a basis for develop-ment of an operation order(OPORD). An OPLAN identifies theforces and supplies required to ex-ecute the CINC’s Strategic Conceptand a movement schedule of theseresources to the theater of operations.The forces and supplies are identi-fied in TPFDD files. OPLANs willinclude all phases of the tasked op-eration. The plan is prepared withthe appropriate annexes, appendixes,and TPFDD files as described in theJoint Operation Planning and Execu-tion System manuals containingplanning policies, procedures, andformats. Also called OPLAN.

b. CONPLAN . An operation planin an abbreviated format that wouldrequire considerable expansion or al-teration to convert it into an OPLANor OPORD. A CONPLAN containsthe CINC’s strategic concept andthose annexes and appendixesdeemed necessary by the combatant

GL-10

tion of an operation plan; it containstime-phased force data, non-unit-re-lated cargo and personnel data, andmovement data for the operationplan, including:

a. In-place units.

b. Units to be deployed to supportthe operation plan with a priority in-dicating the desired sequence fortheir arrival at the port of debarka-tion.

c. Routing of forces to be deployed.

d. Movement data associated withdeploying forces.

e. Estimates of non-unit-relatedcargo and personnel movements tobe conducted concurrently with thedeployment of forces.

f. Estimate of transportation re-quirements that must be fulfilled bycommon-user lift resources, as wellas those requirements that can befulfilled by assigned or attachedtransportation resources. Also calledTPFDD. (Joint Pub 1-02)

commander to complete planning.Generally, detailed support require-ments are not calculated and TPFDDfiles are not prepared. Also calledCONPLAN.

c. CONPLAN With TPFDD . ACONPLAN with TPFDD is the sameas a CONPLAN except that it re-quires more detailed planning forphased deployment of forces. (JointPub 1-02)

supporting plan. An operation planprepared by a supporting commanderor a subordinate commander to sat-isfy the requests or requirements ofthe supported commander’s plan.(Joint Pub 1-02)

sustainment. The provision of person-nel, logistic, and other support re-quired to maintain and prolong op-erations or combat until successfulaccomplishment or revision of themission or of the national objective.(Joint Pub 1-02)

time-phased force and deploymentdata. The Joint Operation Planningand Execution System data base por-