Joint Planning Group

DRAFT 12 May, 1999

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Associated sections: [ Administration, Planning Staff ] [ Joint Operation Planning and Execution System Cell ] [ Joint Planning Group ] [ Plans Cell ] [ Policy Cell ] [ Strategy Cell ]

General

The Joint Planning Group is a temporary staff cell subordinate to the J5 that is established at the initial indicators of a contingency.  Its life span covers the period from first perception of a contingency and ends when the EAC has functioning J staffs capable of their traditional functions.  It is composed of core billet personnel and would deploy to the AOR ahead of the corps.  Other contingencies that may arise during a mission may initiate initiation of a JPG.  Criteria for this establishment would be a concurrent operation where the focus of the current and future operations staffs are best served remaining with the ongoing operations and the JPG would focus on the unplanned contingency.  This would also be a case where the JPG may form the neucleous of a new organization to conduct the contingency operations.  The final condition where a JPG may be established is to conduct the transition of the corps from one type of headquarters to another.  The intent is the same as before the JPG would be addressing a new set of conditions and missions leaving the existing J staff to focus on the current or ongoing operations.

Essentially the Joint Planning Group (JPG) is to enhance the Crisis Action Planning CAP process, it is recommended that the CEAC form a planning element. This element has been referred to by various commands as an operations planning group, operations planning team, crisis action team, or JPG. For simplicity, the term JPG will be used throughout this site when referring to this planning element. This is the term the joint community employs and we will follow suit for ease of communication

The decision on the organization and functions of the JPG should be determined by the CEAC at the onset of EAC organization. Furthermore, it must be made clear how the JPG and staff sections (especially the J-3 and J-5) will interact during planning and once operations commence. Suggested purposes for the JPG are to conduct CAP, be the focal point for OPORD development, perform future planning, and accomplish other tasks as directed. This organization and purpose would continue until the corps remainder deploys and the JPG evolves into separate current and future operations staffs.

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Manning

Composition of the JPG may vary depending on the planning activities being conducted. There are no "hard and fast" rules on how to determine the precise number of personnel required to staff the JPG. A task specific organization may work best. Representation to the JPG should be a long-term assignment to provide continuity of focus and consistency of procedure. These representatives should be authorized spokespersons for their sections, components, or organizations. The composition of the JPG is a carefully balanced consideration between group management and appropriate representation from the EAC staff and components. JPG membership will vary based on the tasks to be accomplished, time available to accomplish the tasks, and the experience level of the JPG members.   In the initial planning phase, the JPG is focused on mission analysis. This lends itself to a small group (10-12 personnel) of core planners, or the planning cell. 

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Organization

Often, representatives from the supported EAC command will augment the JPG. The heart of the JPG is the planning cell. This cell is a core of 10-12 personnel who are familiar with the CAP process and JOPES products. A small group of core planners is recommended, since large groups tend to become less focused and unmanageable. A focused effort is critical during the initial phases of CAP. These organizations typically include two separate groups: an operational planning team (OPT) to assist in joint planning, and a joint training team (JTT) to assist and act as a focal point for training the EAC staff. The JPG should be expanded for some planning functions. Typically these representatives will be called for when specific subject matter expertise and staff or component planning input is required. These members of the JPG should only be called for under specific circumstances. Many of these representatives are liaison officers (LNOs) and EAC staff action officers with specific duties and responsibilities to the CEAC. Additional cells may be formed in order to support the JPG effort. The information management cell manages the flow of information to and from the JPG. The deployment cell is organized to concurrently develop the TPFDL in JOPES. The cell is typically active only through the planning and deployment phases of an operation. A similar cell may be organized for Redeployment. A joint IO cell may be organized to integrate and synchronize IO activities. An orders cell may be incorporated to support the administrative effort of publishing CEAC orders (warning order, planning order, OPORD, commander’s estimate, and other related orders.)  

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Coordination Procedures

Once mission analysis has been completed, the entire JPG may be assembled to brief the results of the mission analysis and to disseminate the commander’s planning guidance. Appropriate representation from the JPG will then proceed to COA development and analysis. The JPG may be organized into COA teams that are responsible for developing, refining, and wargaming each COA. Once the EAC has completed initial planning and an OPORD or OPLAN has been published, the focus of the JPG turns to branch and sequel planning. (As the EAC structure becomes manned and staff sections and cells become functional current operations cell, future operations cell (J35) and J5 plans would assume more traditional execution and planning functions).

Normally, the head of the JPG is an officer in the grade of 0-6. For the JPG to be effective, this officer must be experienced in joint planning and operations.The head of the JPG must ensure that this group is organized from the start with a clear, concise agenda. The dynamics of CAP requires that a daily schedule be developed for the JPG that supports the tasks at hand and the CEAC’s requirements. Timelines and milestones need to be firmly established to ensure "time spent" equates to "quality output." In establishing these timelines and milestones, consideration must be given not only to the time required for the EAC to accomplish its planning, but also the time required by the EAC components to plan and produce the necessary products required by the CEAC. Some commands use the "1/3-2/3 rule" as a guide for establishing planning timelines — 1/3 of the time available would be provided to the EAC for planning and 2/3s of the available time would be provided to the EAC components for planning. This rule, if used, only should be looked at as a starting point. It also is important to consider that at times, the location of components may be in different time zones from the CEAC, which may hamper significantly the timely and effective initial EAC planning.   The CEAC must determine, based on such factors as mission execution time, direction from the supported EAC commander, and staff experience, when the components are brought "on board" for planning and the necessary time required for both the EAC and components to do their planning. In some situations, it may be best for the EAC to take the first 2-3 days for its planning and gradually phase in the components for planning. The JPG may be doing much of the planning but it is the responsibility of the CEAC to establish the planning timeline for the overall effort to include that of the components.It may be necessary to conduct some training during the initial standup of the JPG. All representatives may not be "up-to-speed" with the complexities of joint planning. The head of the JPG should determine these training requirements through an evaluation process. Another important function for the head of the JPG is to develop a system to ensure that representatives understand their role in this group and to provide a forum for these individuals to voice their concerns, issues, and ability to support a particular COA. Included in this system must be the capability for proper EAC staff coordination and how the EAC will communicate with the supported EAC command and other agencies. Below are a number of sample questions that should be of concern to the head of the JPG. (Establishing the policy for internal and external coordination is not the responsibility of the JPG, but how this policy is established will impact on the functioning of the JPG.)

• Has the EAC established an internal system to coordinate the release of message traffic and the distribution of messages?
• Who can coordinate with higher authority?
• What method will be used to communicate with higher authority?
• Has the EAC established an internal system to monitor what action has been taken on pending issues?

The DCEAC and the chief of staff should be involved in the JPG, providing guidance and insight into the CEAC’s critical concerns. These individuals should not allow the JPG to get "bogged down" with trivia or headed off on a tangent that does not support the CEAC’s guidance. Effectiveness of the JPG will be measured, in part, by the support provided to it by the principal EAC staff officers (J-1 through J-6). At times, the principal staff officers should be the representatives to the JPG. Early designation of a EAC will facilitate the forming of the JPG and the commencement of the planning process. It may be possible to form a JPG without the EAC being fully organized and staffed. The immediate concern of the JPG is to commence the CAP process. Detailed mission analysis is critical during this process. The JPG prepares initial correspondence (e.g., letters of instruction, warning orders, alert orders, planning orders) for distribution to the EAC components or others based on guidance from the CEAC. Formats for various type orders are in Joint Pub 5-03.1 (to be converted to CJCSM 3122.01), "Joint Operation Planning and Execution System Vol I: (Planning Policies and Procedures)." It also is important for the CEAC to provide to EAC components and others only what is needed when preparing messages, orders, or other directives. There is no requirement to duplicate the complete contents of orders from higher authority unless required for emphasis. Much of these contents can be referenced by the EAC in its orders as long as the referenced material is readily available to all that need it — higher authority orders may be retransmitted by the EAC to the commands that require them. As the JPG works through the CAP process towards development of an OPORD, it is important that the head of the JPG devise a system which analyzes COAs. There has to be a synchronization process to ensure that "all parts" of the EAC will work in unison from planning through operations. The head of the JPG normally arranges for briefings to appropriate individuals (e.g., CEAC, supported EAC commander, and others as required) as JPG milestones are reached. The development of the EAC OPORD can be a long and tedious process. JPG can be the focal point for OPORD development. EAC’s OPORD normally will be based on the EAC’s establishing authority’s (supported EAC commander’s) OPORD. The JPG must ensure that staff sections and individuals responsible for developing various sections of the OPORD are aware of their responsibilities.  Upon completion of the OPORD and/or OPLAN and based on CEAC guidance, the JPG focus turns to execution phase planning. Typically, this involves branch and sequel planning.  Other functions the JPG may perform are the planning for termination and the planning for transition of the EAC to another military force, UN, regional organization, or civilian organization. Again, the JPG Chief must be cognizant of the other responsibilities of JPG representatives. A balance between effective staff and/or component coordination and overloading LNOs with meetings must be maintained. The value of an organization such as a JPG only can be measured by the coordination, cooperation, and communication among the staff sections. Without these factors,quality products will be difficult to produce. To reiterate a key point, the establishment, functions, and interaction (with the EAC staff) of the JPG must be clearly articulated by the CEAC to prevent misunderstandings and "intramural disputes."

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Operational Tasks

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Tactical Tasks

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Crisis Action Planning CAP

CAP involves a structured process and provides for the transition from planning of military operations to their execution. This planning is accomplished within a framework of six phases which allows for flexibility and time-sensitive decisions. These phases may be omitted or compressed in the interest of time criticality.

Phase I — SITUATION DEVELOPMENT

Potential problem detected, reported, and assessed. Focus of CAP is on the EAC commander in whose area the event occurs. EAC commander prepares an assessment of the event and submits it to the CINC  and subsequently the Chairman of the Joint Chiefs of Staff (CJCS). Course of action (COA) also may be submitted depending on the time sensitivity of the situation. If established, the Echelon Above Corps Headquarters (EAC) would monitor the situation and make preparatory plans to commence CAP. This may involve more interaction depending on the supported commander’s guidance.

Phase II — CRISIS ASSESSMENT

NCA, CJCS, and other members of the Joint Chiefs of Staff (JCS) analyze the situation to determine whether a military option should be prepared. NCA makes a decision concerning progressing to the next phase, remaining in current phase, or returning to the pre-crisis situation. Specific guidance on COA development may be provided by the NCA. The supported commander would continue to monitor situation and conduct planning as required, including providing necessary information to the EAC. The EAC, if established, would continue to monitor the situation and review any existing documentation (plans and area studies) pertaining to the area in question. The EAC may conduct informal discussions with potential components and retransmit message traffic or other pertinent information.

Phase III — COURSE OF ACTION DEVELOPMENT

Implements NCA decision or CJCS planning directive to develop military options. The Chairman of the Joint Chiefs of Staff probably would transmit a warning order to the supported commander to commence preparation of COAs. Other type directives could be issued by the Chairman depending on the time sensitivity of the situation. The directive establishes command relationships, identifies the mission, and provides any planning constraints. In addition, this directive will either identify forces and strategic mobility resources and establish tentative timing for execution, or request the supported commander to develop these factors. In the event the NCA directs development of a specific COA, the directive will describe the COA and request the supported commander’s assessment. Upon receipt of the CJCS directive (warning order), the supported commander develops and analyzes COAs. Based on the CJCS directive, the supported commander would transmit a directive, perhaps a warning order, to the EAC and other commands as appropriate to provide necessary guidance and information. Force requirements established and timed-phased force and deployment data (TPFDD) development commences for each COA (time permitting). The United States Transportation Command (USTRANSCOM) reviews the proposed COAs and prepares deployment estimates. When possible, USTRANSCOM or its representative should participate in the development of COAs. Services monitor development of COAs and begin planning for support forces, sustainment, and mobilization. If not previously established, the EAC would be established and commence the CAP process. Guidance from the supported commander should prescribe the extent of the EAC involvement in CAP (e.g., EAC components have been identified and activated for planning, mission analysis, COA development, and TPFDD development). The commander, Echelon Above Corps Headquarters (CEAC) prepares and issues a directive to EAC components concerning current situation. This directive may be in the form of a warning order. It does not have to reiterate (unless directed) the complete contents of the directives from higher authority or include every section of a warning order, but should provide to the EAC components what is needed. The CEAC should be evaluating requirements (forces and equipment) for the EAC and discussing these issues with the supported commander. The supported commander analyzes the COAs and submits recommendations to the NCA and the Chairman of the Joint Chiefs of Staff as the supported commander’s estimate. The COA development phase of CAP ends with the submission of the supported commander’s estimate.

Phase IV — COURSE OF ACTION SELECTION

Selection of a COA by the NCA and initiation of execution planning. The Chairman of the Joint Chiefs of Staff and the other members of the JCS review and evaluate the COAs and prepare recommendations and advice for consideration by the NCA.  Upon receipt of the NCA decision, the Chairman of the Joint Chiefs of Staff issues an alert order. This order is approved by the Secretary of Defense and issued to the supported commander and other members of the Joint Planning and Execution Community to announce the COA selected by the NCA and to initiate execution planning.  A CJCS alert order provides sufficient detail to allow the supported EAC commander to conduct detailed planning required to deploy forces. Additionally, this order contains direction to amplify or change earlier guidance provided in the CJCS warning order. A CJCS planning order (vice alert order) may be issued to initiate execution planning prior to selection of a COA by the NCA. The planning order normally is not used to direct the deployment of forces or to increase force readiness. If force deployment is directed, the planning order will require the approval of the Secretary of Defense. The supported commander issues a directive (e.g., alert or planning order) to the CEAC to commence detailed execution planning. Additional information would be provided, as appropriate. The CEAC commences more detailed execution planning. Determination of EAC force requirements continues as well as overall EAC organization. The CEAC issues a directive (e.g., alert or planning order) to the EAC components to commence execution planning. As previously stated, the CEAC does not need to repeat all that is stated in the directives from higher authority; again, provide what is needed to the EAC components. It also would be prudent for the CEAC to retransmit appropriate directives from higher authority to the EAC components.

Phase V — EXECUTION PLANNING

Execution planning commences when the alert or planning order is issued. The NCA-approved COA is transformed into an operation order (OPORD) by the supported commander. Actual forces, sustainment, and strategic mobility resources are identified and the concept of  perations is described in OPORD format. The CEAC develops an OPORD based on the supported commander’s OPORD Joint Operation Planning and Execution System (JOPES) procedures are used to develop the OPORD and TPFDD. The CEAC develops unsourced force requirements, enters them into the appropriate TPFDD, and validates the requirements to the supported EAC commander. As directed by the supported EAC commander, supporting commanders, component commanders, and providing organizations source the force requirements and validate the sourcing and accurate cargo and personnel detail to the supported EAC commander. The CEAC monitors the sourcing process and validates to the supported EAC commander that the sourced requirements satisfy EAC operational needs. EAC components must be familiar with TPFDD preparation. Provision should be made for CEAC input to the Global Command and Control System and the JOPES data base. The supported EAC commander validates the TPFDD to the Commander in Chief, United States Transportation Command (USCINCTRANS) — all changes to the validated TPFDD by the CEAC and/or sourcing commanders and organizations must be coordinated through the supported EAC commander, who revalidates the TPFDD prior to any action by USCINCTRANS.  USTRANSCOM develops transportation schedules. The CEAC issues OPORD to EAC components. Execution planning phase ends with the NCA decision to implement the OPORD.

Phase VI — EXECUTION

Execution phase commences when the NCA determines to execute a military option in response to the crisis. When authorized by the Secretary of Defense, the CJCS issues an execute order. This order is issued to the supported commander and directs the deployment and employment of forces, defines the timing for the initiation of operations, and conveys guidance not provided in earlier orders and directives. The supported commander issues an execute order to the CEAC that directs the execution of the EAC OPORD. The CEAC issues an execute order to the EAC components and other commands as necessary. As with other directives, the CEAC should provide in the execute order only that information required by the EAC components. Retransmission of higher authority directives to the EAC components would be appropriate. This phase continues until the crisis is terminated or the mission is terminated and force redeployment has been completed.  CJCSM 3122.01, "Joint Operation Planning and Execution System Vol I: (Planning Policies and Procedures)," CJCSM 3122.04, "Joint Operation Planning and Execution System Vol II: (Planning and Execution Formats and Guidance) (Secret Supplement)," and Joint Pub 1-03, "Joint Reporting Structure (JRS) General Instructions," (to be converted to CJCSM 3150.01) provide sample formats for various directives, OPLANs, OPORDs, CONPLANs, functional plans, and operational reporting formats.  

During CAP, the CEAC would be involved with many other functions. One of the most important CEAC functions is to provide planning guidance (this should include the friendly centers of gravity) to the EAC staff to allow it to develop staff estimates, properly analyze each COA, and create the concept of operations. This statement should focus subordinate commanders on the purpose of the operation and describe how it relates to future operations. The CEAC’s order should contain the intent statement of the next senior commander in the chain of command.  The intent is the initial impetus for the entire planning process. It may include the CEAC’s assessment of the enemy commander’s intent. The CEAC’s intent also may contain an assessment of where and how much risk is acceptable during the operation. The commander’s intent is refined as the situation evolves.

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Critical Publications

A sample OPORD is provided in Joint Pub 5-03.1 (to be converted to CJCSM 3122.01), "Joint Operation Planning and Execution System Vol I: (Planning Policies and Procedures)." As previously stated, information in the supported OPORD need not be repeated (that can be referenced) in the supporting OPORD unless directed. If there is a requirement for annexes and appendices to support the CEAC OPORD, formats in CJCSM 3122.03, "Joint Operation Planning and Execution System Vol II: (Planning Formats and Guidance)", and CJCSM 3122.04, "Joint Operation Planning and Execution System Vol II: (Planning and Execution Formats and Guidance) (Secret Supplement)" should be used.

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