Updated November 16, 2020

Joint All-Domain Command and Control (JADC2)
What Is JADC2?
Joint All-Domain Command and Control (JADC2) is theDepartment of Defense’s (DOD’s) concept to connect
sensors from all of the military services—Air Force, Army,Marine Corps, Navy, and Space Force—into a single
network. Traditionally, each of the military services
developed its own tactical network that was incompatible
with those of other services (i.e., Army networks wereunable to interface with Navy or Air Force networks). DOD
officials have argued that future conflicts may requiredecisions to be made within hours, minutes, or potentiallyseconds compared with the current multiday process toanalyze the operating environment and issue commands.
They have also stated that the Department’s existingcommand and control architecture is insufficient to meet thedemands of the National Defense Strategy (NDS). Congress
may be interested in the concept because it is being used todevelop many high-profile procurement programs for all of
the military services.
DOD uses ride-sharing service Uber as an analogy todescribe its desired end state for JADC2. Uber combines
two different apps—one for riders and a second for drivers.
Using the respective users’ position, the Uber algorithm
determines the optimal match based on distance, travel
time, and passengers (among other variables). The
application then seamlessly provides directions for thedriver to follow, delivering the passenger to theirdestination. Uber relies on cellular and Wi-Fi networks totransmit data to match riders and provide driving
instructions.

sensors, processing the data using artificial intelligencealgorithms to identify targets, then recommending theoptimal weapon—both kinetic and nonkinetic (e.g., cyberor electronic weapons)—to engage the target.
Some analysts take a more skeptical approach to JADC2.
They raise questions about its technical maturity andaffordability, and whether it is even possible to field anetwork that can securely and reliably connect sensors toshooters and support command and control in a lethal,electronic warfare-rich environment. Analysts also ask who
would have decisionmaking authority across domains,given that, traditionally, command authorities are delegatedin each domain rather than from an overall campaign
perspective. Some also question how much a human will beneeded for JADC2 to make decisions in real time, andwhether it is appropriate to reduce the amount of human
involvement in military-related decisions.

Why Change Current C2 Structures?
The future operating environment articulated by the NDS,
the NDS Commission, and other sources describes how
potential adversaries have developed sophisticated antiaccess/area denial (A2/AD) capabilities (see Figure 2).
These capabilities include electronic warfare, cyberweapons, long-range missiles, and advanced air defenses.
U.S. competitors have pursued A2/AD capabilities as ameans of countering traditional U.S. military advantages—
such as the ability to project power—and improving theirability to win quick, decisive engagements.
Figure 2. A2/AD Environment

Figure 1. Visualization of JADC2 Vision

Source: https://www.monch.com/mpg/news/ew-c4i-channel/7334saic-and-usaf-partner-for-jadc2.html.

JADC2 envisions providing a cloud-like environment for
the Joint force to share intelligence, surveillance, andreconnaissance data, transmitting across many
communications networks, to enable faster decisionmaking(see Figure 1). JADC2 intends to enable commanders tomake better decisions by collecting data from numerous

Source: https://www.japcc.org/electronic-warfare-the-forgottendiscipline/.

Senior DOD leaders have stated that access to information
will be critical in the future operating environment. In
addition, these leaders have stated that to challenge
potential peer adversaries, a multidomain approach ishttps://crsreports.congress.gov

Joint All-Domain Command and Control (JADC2)

required (where U.S. forces would use ground, air, naval,
space, and cyber forces to challenge an adversary’s
targeting calculus). The Joint All-Domain Operations
concept, thus, provides commanders access to information
to allow for simultaneous and sequential operations using
surprise and the rapid and continuous integration ofcapabilities across all domains—to try to gain physical andpsychological advantages and influence and control over
the operational environment.
DOD argues that current C2 programs, like the Air andSpace Operation Centers, E-8C Joint Surveillance andTarget Attack Radar System, and E-3 Airborne Warningand Control System are not optimized for the speed,complexity, and lethality of future conflict; that thedecades-old platforms cannot adequately leverage newtechnology; and that the supporting structures to enable
future C2 either do not exist or require maturation. Air
Force officials have argued that a JADC2 architecture
would enable commanders to (1) rapidly understand thebattlespace, (2) direct forces faster than the enemy, and (3)deliver synchronized combat effects across all domains.

DOD Lines of Effort
DOD. DOD is leading a Joint Cross-Functional Team toexplore JADC2 as the concept evolves. The team includes
representatives from the offices of the DOD Chief
Information Officer (CIO), the Under Secretary of Defense
for Research and Engineering, and the Under Secretary ofDefense for Acquisition and Sustainment. The DOD CIO
has stated it plans to use 5G technologies to enable JADC2.
Joint Staff. The Joint Staff is leading efforts to move
JADC2 from a concept to policies, doctrine, andrequirements, and has designated the Air Force as theexecutive agent for JADC2 technology development.
According to press reports, JADC2 is a component of theupcoming released Joint Warfighting Concept
Air Force. To implement JADC2, the Air Force isdeveloping the Advanced Battle Management System(ABMS). ABMS is a network intended to provide data topass information across all domains. Air Force leadersstated that ABMS has been used to help facilitate DOD
support during the COVID-19 pandemic. Throughout
FY2020, the Air Force has held at least three ABMS
demonstrations, connecting Army and Navy systems.
Army. The Army’s modernization strategy identified
network modernization to enable multidomain operations.
Army Futures Command is the service representative
developing the JADC2 concept. As part of an exercise
called Project Convergence, it has conducted a series ofexperiments demonstrating the service’s ability to provide
access to joint and coalition networks. The Army tested
several concepts transmitting targeting information using
nontraditional methods in September 2020 in Project
Convergence’s first demonstration.
Navy. On October 1, 2020, the Navy announced it would
start Project Overmatch, which it plans to integrate into theoverall JADC2 concept. The Navy states that Project
Overmatch is intended to develop a new fleet architectureusing artificial intelligence and manned/unmanned teaming
to enable Distributed Maritime Operations. The Navy has
stated one of its primary focus to support the JADC2 effort

is to remove proprietary network standards, thus enabling
interoperability with the other services. According to recent
press coverage, the Navy has focused on its own networks
but plans to integrate with the Army and Air Force.
JADC2 Experimentation
DOD has held at least two major JADC2 exercises. The
first, held in Florida in December 2019, focused on asimulated cruise missile threat. The exercise represented thefirst demonstration of ABMS. Air Force and Navy aircraft(including F-22 and F-35 fighter jets), a Navy destroyer, anArmy Sentinel radar system, a mobile artillery system, plus
commercial space and ground sensors demonstrated being
able to collect, analyze, and share data in real-time toprovide a fuller picture of the operating environment.
DOD performed a second test of JADC2 in July 2020.
During this test, Air Force aircraft connected with naval
vessels positioned in the Black Sea, along with special
operations forces and eight other NATO nations, in asimulated environment to counter a potential Russian threat.

JADC2 FY2021Request andAuthorization Funding Levels

The Administration’s FY2021 budget request combined theMultidomain Command and Control and the ABMS into asingle program. DOD requested $302.3 million for ABMS
in FY2021. The Senate (S. 4049) would authorize $302.3
million for the program. The House (H.R. 6395) would
reduce the requested amount to $216.3 million (an $85million decrease) due to unjustified growth. The House
Appropriations Subcommittee on Defense (H.R. 7617)
recommended reducing the ABMS program by $50 million;
the Senate Appropriations Subcommittee on Defense
recommended reducing ABMS by $93 million.

Potential Questions for Congress What is the relative priority for JADC2 compared withother major DOD programs?

 Have all of the military services embraced the JADC2
concept, or is there some resistance within DOD?
 What personnel, equipment, facilities, and training
resources would be required to achieve JADC2?

 What is the estimated cost for force-wide
implementation and lifecycle upkeep of JADC2? When
could the network become operational?

 What role would AI have in JADC2 development?
 How much human-in-the-loop is necessary if sensors arelinked to shooters in real-time?

CRS Products
CRS Report R46564, Overview of Department of Defense Use of
the Electromagnetic Spectrum, by John R. Hoehn, Jill C.
Gallagher, and Kelley M. Sayler
CRS In Focus IF11654, The Army’s Project Convergence, byAndrew Feickert

This report was originally written by Nishawn S. Smagh
during his military fellowship with CRS.
John R. Hoehn, Analyst in Military Capabilities andPrograms

https://crsreports.congress.gov

Joint All-Domain Command and Control (JADC2)
IF11493

Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff tocongressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of theUnited States Government, are not subject to copyright protection in the United States. Any CRS Report may bereproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.

https://crsreports.congress.gov | IF11493 · VERSION 10 · UPDATED