JOINT OPERATIONAL ACCESS CONCEPT(JOAC)VERSION 1.0
17 January 2012

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THIS PAGE INTENTIONALLY LEFT BLANKFOREWORD
The Joint Operational Access Concept (JOAC) describes in broad terms
my vision for how joint forces will operate in response to emerging antiaccessand area-denial security challenges. Due to three major trends - the growth ofantiaccess and area-denial capabilities around the globe, the changing U.S .
overseas defense posture, and the emergence of space and cyberspace ascontested domains - future enemies, both states and nonstates, see theadoption of antiaccess/ area-denial strategies against the United States as afavorable course of action for them.
The JOAC describes how future joint forces will achieve operational
access in the face of such strategies. Its central thesis is Cross-Domain
Synergy-the complementary vice merely additive employment of capabilities indifferent domains such that each enhances the effectiveness and compensates
for the vulnerabilities of the others-to establish superiority in somecombination of domains that will provide the freedom of action required by the
mission. The JOAC envisions a greater degree of integration across domains
and at lower echelons than ever before. Embracing cross-domain synergy atincreasingly lower levels will be essential to generating the tempo that is often
critical to exploiting fleeting local opportunities for disrupting the enemy
system. The JOAC also envisions a greater degree and more flexible integrationof space and cyberspace operations into the traditional air-sea-Iand battlespacethan ever before.
Each Service has an important role in ensuring Joint Operational Access.
The JOAC was developed by representatives from each of the Services and the
Joint Staff in coordination with the combatant commands, multinational
partners, and other stakeholders. The JOAC development was supported by anexperimentation campaign including a multi-scenario wargame, multiple ·Service-sponsored events, and other concept development venues.
The strategic challenge is clear: the Joint Force must maintain thefreedom of action to accomplish any assigned mission. The Joint Operational
Access Concept is a critical first step in ensuring the joint force has therequisite capabilities to do so.

THIS PAGE INTENTIONALLY LEFT BLANKJOINT OPERATIONAL ACCESS CONCEPT (JOAC)EXECUTIVE SUMMARY
This paper proposes a concept for how joint forces will achieve operational
access in the face of armed opposition by a variety of potential enemies andunder a variety of conditions, as part of a broader national approach.
Operational access is the ability to project military force into an operational
area with sufficient freedom of action to accomplish the mission. Operational
access does not exist for its own sake, but rather serves our broader strategic
goals, whether to ensure access to commerce, demonstrate U.S. resolve bypositioning forces overseas to manage crisis and prevent war, or defeat an
enemy in war. Operational access is the joint force contribution to assured
access, the unhindered national use of the global commons and selectsovereign territory, waters, airspace and cyberspace.
Enduring requirement for force projection. As a global power with
global interests, the United States must maintain the credible capability to
project military force into any region of the world in support of those interests.
While the requirement for operational access applies to any mission, the mostdifficult access challenge—and therefore the subject of this concept—isoperational access contested by armed opposition.
Distinction between antiaccess and area-denial. As used in thispaper, antiaccess refers to those actions and capabilities, usually long-range,
designed to prevent an opposing force from entering an operational area. Areadenial refers to those actions and capabilities, usually of shorter range,
designed not to keep an opposing force out, but to limit its freedom of action
within the operational area.
Importance of preconditions. The challenge of operational access isdetermined largely by conditions existing prior to the onset of combat
operations. Consequently, success in combat often will depend on efforts toshape favorable access conditions in advance, which in turn requires acoordinated interagency approach. The joint force will attempt to shape theoperational area in advance of conflict through a variety of security andengagement activities (as described in the Capstone Concept for Joint
Operations), such as multinational exercises, access and support agreements,
establishment and improvement of overseas bases, prepositioning of supplies,
and forward deployment of forces.
Emerging trends. Three trends in the operating environment promise tocomplicate the challenge of opposed access for U.S. joint forces:i(1) The dramatic improvement and proliferation of weapons and othertechnologies capable of denying access to or freedom of action within
an operational area.
(2) The changing U.S. overseas defense posture.
(3) The emergence of space and cyberspace as increasingly importantand contested domains.
Enemy adoption of antiaccess/area-denial strategies. Events ofrecent decades have demonstrated the decisive results U.S. joint forces canachieve when allowed to flow combat power into an operational area
unimpeded. Yet, few if any enemies perceived that they possessed the ability todeny U.S. access by armed opposition, and U.S. operational access during that
period was essentially unopposed. The combination of the three major trends
described above has altered that calculus dramatically. Increasingly capable
future enemies will see the adoption of an antiaccess/area-denial strategy
against the United States as a favorable course of action for them. The ability
to ensure operational access in the future is being challenged—and may well be
the most difficult operational challenge U.S. forces will face over the coming
decades.
The Military Problem. The essential access challenge for future joint
forces is to be able to project military force into an operational area and sustain
it in the face of armed opposition by increasingly capable enemies when U.S.
overseas defense posture is changing and space and cyberspace are becoming
increasingly important and contested domains.
The Central Idea: Cross-domain synergy. To meet that challenge,
future joint forces will leverage cross-domain synergy—the complementary vicemerely additive employment of capabilities in different domains such that eachenhances the effectiveness and compensates for the vulnerabilities of theothers—to establish superiority in some combination of domains that will
provide the freedom of action required by the mission. The combination of
domain superiorities will vary with the situation, depending on the enemy’s
capabilities and the requirements of the mission. Superiority in any domain
may not be widespread or permanent; it more often will be local and temporary.
Attaining cross-domain synergy to overcome future access challenges will
require a greater degree of integration than ever before. Additionally thisintegration will have to occur at lower echelons, generating the tempo that isoften critical to exploiting fleeting local opportunities for disrupting the enemy
system, and will require the full inclusion of space and cyberspace operations
into the traditional air-land-sea battlespace.
Precepts. Several general principles amplify the central idea indescribing how future joint forces could achieve operational access in the faceof armed opposition.

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Conduct operations to gain access based on the requirements of thebroader mission, while also designing subsequent operations to lessen
access challenges.
Prepare the operational area in advance to facilitate access.
Consider a variety of basing options.
Seize the initiative by deploying and operating on multiple, independentlines of operations.
Exploit advantages in one or more domains to disrupt or destroy enemy
antiaccess/area-denial capabilities in others.
Disrupt enemy reconnaissance and surveillance efforts while protecting
friendly efforts.
Create pockets or corridors of local domain superiority to penetrate theenemy’s defenses and maintain them as required to accomplish themission.
Maneuver directly against key operational objectives from strategic
distance.
Attack enemy antiaccess/area-denial defenses in depth rather thanrolling back those defenses from the perimeter.
Maximize surprise through deception, stealth, and ambiguity tocomplicate enemy targeting.
Protect space and cyber assets while attacking the enemy’s cyber andspace capabilities.
Required capabilities. The concept identifies 30 operational capabilities
the future joint force will need to gain operational access in an opposed
environment. The implications of creating and maintaining these capabilities
in the necessary capacity are potentially profound.
Adoption of this concept will establish a common intellectual framework
for the challenge of opposed access, will inform subsequent joint and Service
concepts, and will result in doctrine, organization, training, materiel,leadership and education, personnel, and facilities (DOTMLPF) solutions.

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Table of Contents
EXECUTIVE SUMMARY............................................................................................. i
1.

Introduction .................................................................................................... 1

2.

Purpose .......................................................................................................... 2

3.

Scope .............................................................................................................. 3

4.

The Nature of Operational Access .................................................................... 45.

Operational Access in the Future Operating Environment ............................... 86.

The Military Problem: Opposed Operational Access in an Advanced
Antiaccess/Area-Denial Environment ............................................................ 14

7.

A Concept for Joint Operational Access ......................................................... 14

8.

Operational Access Precepts .......................................................................... 17

9.

Joint Operational Access and the Joint Functions ......................................... 27

10.

Capabilities Required by this Concept ........................................................... 33

11.

Risks of Adopting this Concept ...................................................................... 36

12.

Conclusion.................................................................................................... 38

ANNEX A

Glossary .............................................................................................. 40

ANNEX B

Assessment Plan .................................................................................. 46

ANNEX C

Bibliography ........................................................................................ 60

List of Figures
Figure 1. Antiaccess and area-denial capabilities as part of a layered, integrated
defense ......................................................................................................... 11
Figure 2. Cross-Domain Synergy ........................................................................... 15
Figure 3. JOAC Project Framework ........................................................................ 46
Figure 4. JOAC SOOPA Model ............................................................................... 47
Figure 5. JOAC Development Architecture ............................................................. 48iv

– This page intentionally left blank –1. Introduction
This paper proposes a concept for how joint forces will achieve operational
access in the face of armed opposition by a variety of potential enemies andunder a variety of conditions, as part of a broader national approach.1
Operational access is the ability to project
Operational access: The ability to
military force2 into an operational area withproject military force into an operationalsufficient freedom of action to accomplish thearea with sufficient freedom of action to
mission. As war is the extension of politics byaccomplish the mission.
other means, operational access does not exist
for its own sake, but rather serves our broader
Assured access: The unhindered
national use of the global commons andstrategic goals, whether to ensure strategic
select sovereign territory, waters,
access to commerce, demonstrate U.S. resolve
airspace and cyberspace, achieved byby positioning forces overseas to manage
projecting all the elements of national
crisis and prevent war, or defeat an enemy inpower.
war.3 Operational access is the joint force
contribution to assured access, theGlobal commons: Areas of air, sea,
unhindered national use of the global
space, and cyberspace that belong to no
one state.
commons and select sovereign territory,
waters, airspace and cyberspace. The global
commons, in turn, are areas of air, sea, space, and cyberspace that belong to
no one state.4 While operational access is achieved through the projection of
military force, assured access is achieved by projecting all the elements ofnational power.5

1 The use of operational in this context refers to military operations broadly and is not

restricted to the operational level of war. The 2011 National Military Strategy (NMS) describes
the national strategy for defeating hostile antiaccess/area-denial strategies. Chairman of the
Joint Chiefs of Staff, The National Military Strategy of the United States of America 2011;
Redefining America’s Military Leadership (Washington, DC: Department of Defense, 8Feb11), p.
8.
2 Force projection: ―The ability to project the military instrument of national power fromthe United States or another theater, in response to requirements for military operations.‖
DOD Dictionary of Military Terms, http://www.dtic.mil/doctrine/dod_dictionary/ [accessed
2Jun11].
3 On War Carl Von Clausewitz. http://www.clausewitz.com/readings/Principles/#Intro[accessed 22Apr11].
4 Barry R. Posen defined global commons as areas of air, sea, and space that ―belong to no
one state and that provide access to much of the globe.‖ ―Command of the Commons: The
Military Foundation of U.S. Hegemony,‖ International Security, Vol. 28, No. 1 (Summer 2003),
p. 8. The same description can apply to cyberspace, which provides access to much of the
globe’s information. Posen attributes the origin of the term to Alfred Thayer Mahan, who
described the sea as ―a wide common, over which men may pass in all directions.‖ The
Influence of Sea Power upon History: 1660-1783. (Boston: Little, Brown and Co., 1890), p. 25.
5 Power projection: ―The ability of a nation to apply all or some of its elements of national
power - political, economic, informational, or military - to rapidly and effectively deploy and1As a global power with global interests, the United States must maintainthe credible capability to project military force into any region of the world in
support of those interests. This includes the ability to project force both into
the global commons to ensure their use and into foreign territory as required.
Moreover, the credible ability to do so can serve as a reassurance to U.S.
partners and a powerful deterrent to those contemplating actions that threaten
U.S. interests. For decades, the American ability to project military force fromthe United States to an operational area has gone essentially unopposed.
During the Gulf War of 1990-1991, for example, Coalition forces flowed into theoperational area unhindered for six months in the build-up to Operation Desert
Storm. Coalition forces similarly deployed uncontested into Afghanistan in2001 for Operation Enduring Freedom and into Kuwait in 2003 for Operation
Iraqi Freedom.
This paper asserts that such unopposed operational access will be muchless likely in the future, as potential enemies, exploiting weapons and othersystems that are increasingly effective against an advancing enemy, will
resource and adopt antiaccess strategies against U.S. forces. It is thatemerging challenge—increasingly opposed operational access—that thisconcept addresses. That challenge may be one of the most difficult that joint
forces will face in the coming decades—and also one of the most critical, sincea military that cannot gain the operational access needed to bring force to bearloses utility as an instrument of national power.

2. Purpose
This concept describes how a future joint force will overcome opposed accesschallenges. Its purpose is to guide force development by:
Establishing a common intellectual framework for military professionals,
policymakers, and others interested in the challenge of opposed access.
Invigorating interest in and study of an operational challenge that ageneration of military leaders, focused on other missions, has not had toconsider in recent years.
Establishing a basis for subsequent joint and Service concepts anddoctrine.
Identifying the broad capabilities required to gain operational access inthe face of armed opposition.
Informing study, evaluation, wargaming, and experimentation that will
result in changes to doctrine, organization, training, materiel, leadershipsustain forces in and from multiple dispersed locations to respond to crises, to contribute todeterrence, and to enhance regional stability.‖ DOD Dictionary of Military Terms,
http://www.dtic.mil/doctrine/dod_dictionary/ [accessed 17Jan11].

2and education, personnel, and facilities (DOTMLPF).

3. Scope
This concept applies to combatant commands, joint task forces, andsubordinate commands. It addresses operational access within the context
established by the Capstone Concept for Joint Operations (CCJO)6, which
describes a future operating environment characterized by uncertainty,
complexity, and rapid change. As a solution to those conditions, the CCJO
proposes a process of operational adaptation involving the dynamic
combination of four broad categories of military activity: combat, security,
engagement, and relief and reconstruction. The concept proposed here exists
within the context of that adaptation process.
This is a warfighting concept. It addresses opposed access, thosesituations requiring the use of force to gain access against an enemy trying todeny that access through the use of force. While even benign missions such as
foreign humanitarian assistance can pose access challenges, this concept takes
the position that opposed access presents the most difficult access challenge
and that unopposed access constitutes a lesser included challenge. That said,
many of the noncombat aspects of this concept may apply to unopposed accesssituations, such as disaster relief in an inaccessible region. Moreover, thisconcept emphasizes warfare against highly capable enemies with advanced,
multidomain antiaccess/area-denial capabilities on the premise that this is thegreatest access challenge of all. Although not specifically addressed in thispaper, the effects of weapons of mass destruction remain a criticalconsideration.
This concept acknowledges that joint operations will occur in support ofa broader national strategy employing all the elements of national power.
Comprehensive national and multinational efforts are critical but beyond thescope of this paper, which limits itself to the actions of military forces.
Additionally, this concept applies to both unilateral joint operations andmultinational operations, the latter being the more likely context.7 The crossdomain synergy that is the central idea of this concept can be the product ofinternal joint interactions or integration with foreign military powers.
This concept addresses opposed access in conceptual terms; it does not
6 Department of Defense, Capstone Concept for Joint Operations, v3.0, 15Jan09.
7 Multinational operations:―A collective term to describe military actions conducted by forcesof two or more nations, usually undertaken within the structure of a coalition or alliance.‖
DOD Dictionary of Military Terms, http://www.dtic.mil/doctrine/dod_dictionary/ [accessed
26May11]. According to the NMS (p. 1): ―In some cases, the joint force will serve in an
enabling capacity to help other nations achieve security goals that advance common interests.‖3

provide tactics, techniques, or procedures for defeating specific antiaccess andarea-denial systems, although it is intended to inform subsequent efforts todevelop those methods. Nor does it establish specific programmatic
requirements, although it does identify the broad capabilities required to
implement the described approach fully.
This is an overarching concept, under which can nest other concepts
dealing with more specific aspects of antiaccess/area-denial challenges, suchas the Air-Sea Battle concept already under development, or concepts on entry
operations or littoral operations as possible examples. It is envisioned that
Air-Sea Battle
Recognizing that antiaccess/area-denial capabilities present a growing challenge to how joint forces
operate, the Secretary of Defense directed the Department of the Navy and the Department of the Air
Force to develop the Air-Sea Battle Concept. The intent of Air-Sea Battle is to improve integration of air,land, naval, space, and cyberspace forces to provide combatant commanders the capabilities needed todeter and, if necessary, defeat an adversary employing sophisticated antiaccess/area-denial capabilities.
It focuses on ensuring that joint forces will possess the ability to project force as required to preserve anddefend U.S. interests well into the future.
The Air-Sea Battle Concept is both an evolution of traditional U.S. power projection and a key
st
supporting component of U.S. national security strategy for the 21 Century. However, it is important tonote that Air-Sea Battle is a limited operational concept that focuses on the development of integrated
air and naval forces in the context of antiaccess/area-denial threats. The concept identifies the actions
needed to defeat those threats and the materiel and nonmateriel investments required to execute thoseactions.
There are three key components of Air-Sea Battle designed to enhance cooperation within the
Department of the Air Force and the Department of the Navy. The first component is an institutional
commitment to developing an enduring organizational model that ensures formal collaboration toaddress the antiaccess/area-denial challenge over time. The second component is conceptual alignment
to ensure that capabilities are integrated properly between Services. The final component is doctrinal,organizational, training, materiel, leadership and education, personnel, and facilities initiatives developed
jointly to ensure they are complementary where appropriate, redundant when mandated by capacity
requirements, fully interoperable, and fielded with integrated acquisition strategies that seek efficiencies
where they can be achieved.

such concepts would deal with their subject matter areas in greater specificity
while remaining compatible with this concept.

4. The Nature of Operational Access
The requirement for operational access has existed since the first army crossed
the sea to fight in a foreign land. For the United States, separated as it is frommost of the world by two oceans, operational access has been an enduring4

requirement and a primary concern throughout its history.
Projecting U.S. military force invariably requires extensive use ofinternational waters, international airspace, nonsovereign cyberspace, space,
and the electromagnetic spectrum. U.S. access to and freedom of navigation
within these global commons are vital to its national interests, both because
the American way of life requires free access to the global marketplace and as ameans for projecting military force into hostile territory. Even where theultimate objective is the latter, operations in the global commons may be
critical if an enemy attempts to gain strategic depth by pushing armed
opposition out into international spaces. In fact, the contest over operational
access can dominate practically all other considerations in warfare, as it did
throughout the Pacific theater and in the battle for the North Atlantic during
the Second World War.
Gaining and maintaining operational access in the face of armed
opposition involves two tasks inseparable in practice. The first is the combat
task of overcoming the enemy’s antiaccess and area-denial capabilities throughthe application of combat power. The second is moving and supporting thenecessary combat power over the required distances, essentially a logisticaltask that can be a challenge in itself. Each depends on the other. Any concept
for opposed operational access must reconcile both.
As with practically all combat actions, time can be a critical factor inoperations to defeat opposed access. The temporal dimension can range frompolitical imperatives that could impose extremely short timelines, to operational
requirements to reinforce forward-deployed forces before they are destroyed, totactical requirements to locate and neutralize antiaccess and area-denial
weapons before they inflict unacceptable losses. Moreover, many enemies
attempting to deny access will seek to impose delays on an advancing force bytrading space for time and inflicting losses in the process.

5As used in this paper, antiaccess
Antiaccess: Those actions and capabilities,
refers to those actions and capabilities,
usually long-range, designed to prevent anusually long-range, designed to prevent
opposing force from entering an operationalan opposing force from entering an
area.
operational area.8 Antiaccess actions
Area-denial: Those actions and capabilities,
tend to target forces approaching by air
usually of shorter range, designed not to keep
and sea predominantly, but also canan opposing force out, but to limit its freedom
target the cyber, space, and other forcesof action within the operational area.
that support them. Area-denial refers to
those actions and capabilities, usually of
shorter range, designed not to keep an opposing force out, but to limit its
freedom of action within the operational area. Area-denial capabilities target
forces in all domains, including land forces. The distinction between
antiaccess and area-denial is relative rather than strict, and many capabilities
can be employed for both purposes. For example, the same submarine that
performs an area-denial mission in coastal waters can be an antiaccesscapability when employed on distant patrol.
Advancing across open ocean and through open airspace to overcome
prepared defenses is by nature a very challenging form of warfare, tending toimpose higher-than-normal losses on the attacker, and therefore requiring theresolve to absorb those losses. Any concept for defeating opposed accessshould acknowledge that reality.
Maintaining and expanding operational access may require entry of land
forces into hostile territory for a number of reasons.9 These may range fromlimited-objective attacks, such as raids toEstablishing operational access may requireeliminate land-based threats to friendly air
forcible entry, the projection of land forces
and naval forces, to seizing a lodgment for
onto hostile territory in the face of armeda sustained land campaign. Neither ofopposition. The subsequent land operations
may vary in scope and duration, from smallthese necessarily implies the deliberate
scale raids to sustained campaigns.
establishment of a static beachhead or
8 This is not to say that there are no friendly forces within the theater. Forward-deployed orother forces might already be present when conflict starts and can be critical in defeating
hostile antiaccess efforts to support the approach of follow-on forces. At the same time, thoseforward-deployed forces can be at considerable risk if not reinforced quickly enough, which
introduces a potentially critical time element. This situation might be a simple result of thetiming of the conflict, although it also might reflect a deliberate operational choice by theenemy to allow some U.S. forces into the operational area before ―closing the door‖ to follow-on
forces.
9For the purposes of this paper, forcible entry is defined as: ―The projection of land forces
onto hostile territory in the face of armed opposition. Cf. the doctrinal definition: Forcible
entry: ―Seizing and holding of a military lodgment in the face of armed opposition.‖ DOD
Dictionary of Military Terms, http://www.dtic.mil/doctrine/dod_dictionary/ [accessed
17Jan11]. The distinction is important because, depending on the mission, future land forces
might not seize and hold a lodgment, but might maneuver directly against the objective.

6

airhead in the traditional sense. While the access ultimately required in asituation may require forcible entry, forcible-entry operations themselves rely
on some level of pre-existing access in the other domains.
In some cases, the enemy also must project military force into theoperational area from a distant home base. In such cases, gaining friendly
operational access can involve interdicting the enemy’s force projection throughthe employment of one’s own antiaccess capabilities.
The challenge of operational access is determined largely by conditions
existing prior to the actual operation. These conditions can be influenced byboth friendly and hostile activities conducted prior to and during thedevelopment of a crisis. Geography, particularly distance, arguably determines
the access challenge more than any other factor, as military power historicallyhas tended to degrade over distance. Advances in airpower and long-range
weapons have mitigated the degrading effects of distance to some extent but
have not eliminated them, while cyber capabilities are unaffected by distance.
Those advancements apply not only to the attacker but also to the defender,
who can exploit those capabilities to engage the enemy at greater ranges.
Historically, a key way to mitigate the degrading effects of distance has
been to establish forward bases in the anticipated operational area, thereby
maintaining some of the capabilities of a home base at a distant location. The
more capability and capacity that a military can amass at the forward base, themore it can mitigate the effects of distance. Moreover, permanent or long-term
forward bases can assure partners and deter adversaries. The ability toestablish new expeditionary bases, or to improve those already in existence,
also can serve as deterrent options. Conversely, a forward base becomes aresource requiring protection and sustainment and can even become a politicalliability, often by causing friction with the host nation or within the region.
Some operations to gain access will occur in austere environments
lacking the advanced infrastructure typical of modern societies. In theantiaccess case in particular, even if the objective area is well-developed interms of infrastructure, the most desirable approaches may well be austere. In
the area-denial case, many conflicts will arise in failed or failing states where
infrastructure is lacking. In such cases an advancing force will have no option
other than to operate under austere conditions. At the same time, the ability tooperate effectively in such conditions can confer an advantage to an advancing
force because it increases operational flexibility by freeing the force from major
ports, airfields, and other infrastructure and thereby also complicates enemy
intelligence collection efforts.
Political conditions also can mitigate or amplify access challenges.
Foreign partners willing to provide military and political support (including
access to infrastructure, territorial waters, or airspace) can be critical. The

7

employment of forces in engagement activities often years prior to a crisis may
be critical to success by encouraging willing and capable partners. Conversely,an adversary who has successfully built a strong network of partnerships
throughout and en route to the region can make gaining operational accessextremely challenging.
The presence of forward-deployed or other in-range combat forces at the
beginning of a crisis can facilitate operational access—and sometimes evendeter acts of aggression in the first place. Naval forces, which can remain on
station in international waters almost indefinitely, are especially suited to such
missions, as could be special operations forces inserted clandestinely. Air andspace forces can exploit speed and global range to move quickly into position in
response to an emerging crisis. That said, forward-deployed forces, likeadvanced bases, can be vulnerable to attack, particularly given a lack ofadvanced warning.
The more a joint force commander can promote favorable accessconditions in advance, the more likely success will be. While suchpreparations can be invaluable and a priority for combatant commanders, it isimportant to keep in mind that numerous constraints—political, strategic,
resource, legal, and others—can severely limit the commander’s latitude.
Moreover, there are limits to what military engagement can achieve. Even longstanding allies may, for political reasons, deny access for a particular
operation. In the end, joint forces must be able to gain by force the operational
access needed to accomplish the mission regardless of the initial conditions.
While the United States must project and sustain military force at global
distances—and therefore must protect its lines of communications10 back tohome bases—most adversaries operating in their own region will not be soburdened. While U.S. joint forces almost always will need to transit
international waters and airspace, many adversaries will not, although they
may attack U.S. forces there. These requirements create potential
vulnerabilities for U.S. forces not shared by most adversaries.

5. Operational Access in the Future Operating Environment
While operational access itself is not new, some of the conditions under which
joint forces will operate to gain it in the future are. The Joint Operating

10 Line of communications:―A route, either land, water, and/or air, that connects anoperating military force with a base of operations and along which supplies and military forces
move. Also called LOC.‖ DOD Dictionary of Military Terms,
http://www.dtic.mil/doctrine/dod_dictionary/ [accessed 17Jan11].

8

Environment 201011 envisions a future characterized by complexity,
uncertainty, and rapid change, all of which will influence future joint
operational access. In addition, three particular trends in the operating
environment promise to complicate the challenge of opposed access for U.S.
joint forces: (1) the dramatic improvement and proliferation of weapons andother technologies capable of denying access to or freedom of action within an
operational area, (2) changing U.S. overseas defense posture, and (3) the
emergence of space and cyberspace as increasingly important and contested
domains. These trends were identified based on the sources listed in Annex C
and were supported by the assessment campaign described in Annex B.
The first trend is the dramatic improvement and proliferation of
weapons and other technologies capable of denying access to or freedomof action within an operational area, which come not only from advanced
technologies, but also from the innovative use of basic, even crude,
capabilities.12
Key antiaccess capabilities include:
A variety of surface-, air- and submarine-launched ballistic and cruise
missiles able to accurately attack forward bases and deploying U.S.
forces and their supporting logistics at ranges exceeding 1,000 nautical
miles.
Long-range reconnaissance and surveillance systems that provide
necessary targeting information, including satellites, aircraft, and landand ship-based radar.
Kinetic and nonkinetic antisatellite weapons that can disable spacesystems vital to U.S. force projection.
Submarine forces able to interdict U.S. and friendly sea lines ofcommunications in both sovereign and international waters between
U.S. bases and the theater of operations.
Cyber attack capabilities designed to disrupt U.S. command and control
systems and critical infrastructure, both civilian and military.
Terrorists willing to attack U.S. or partner bases and deploying forces,even at points of origin in the continental United States or other regions.
11 The Joint Operating Environment (JOE) forecasts emerging security challenges based on

current trends in the world. Joint Future Group (J59), U.S. Joint Forces Command (Suffolk,
VA, 18Feb10).
12 While these capabilities could be employed for various purposes, they will be referred toas ―antiaccess and area-denial capabilities‖ hereafter since that is the subject of this concept.

9Special operations forces capable of direct action and unconventional
warfare in the approaches to the operational area.
As a result of improvements in these antiaccess capabilities, deploying
forces will find themselves at risk at ever greater ranges. Deploying to thetheater while under attack is a challenge that U.S. joint forces have not had todeal with in recent decades. Personnel, supplies, and equipment located inrear areas once thought to be secure increasingly will be targeted.
Key area-denial capabilities include:
Air forces and air defense systems, both fixed and mobile, designed todeny local U.S. air superiority.
Shorter-range antiship missiles and submarines employing advanced
torpedoes to deny U.S. maritime superiority in the objective area.
Precision-guided rockets, artillery, missiles, and mortars (G-RAMM)
designed to attack surface targets, including landing forces, with muchgreater accuracy and lethality than their ―dumb‖ predecessors.
Chemical and biological weapons to deny the use of select areas.
Computer and electronic attack capabilities to degrade, neutralize, or
destroy U.S. command and control in the operational area.
Abundant land and naval mines capable of quickly closing straits, landpasses, long stretches of coastline, or airfields.
Armed and explosives-laden small boats and craft in cluttered andrestricted coastal waters and straits.
Land maneuver forces.
Special operations forces capable of direct action and unconventional
warfare in the objective area.
Unmanned systems, such as unmanned aircraft and unmanned
underwater vehicles, which could loiter to provide intelligence collection
or fires in the objective area.
The above capabilities, many once available only to powerful states, are
now increasingly available to weaker states and even non-state actors. Someenemies will possess limited numbers of only a few of these capabilities, butothers will deploy fully integrated and layered advanced antiaccess/area-denial
systems comprising air, naval, land, space, and cyber forces guided by a single
command and control system and employed in mutual support such that to10

defeat one capability an attacker must expose himself to others. See Figure 1.

Figure 1.
Antiaccess and area-denial capabilities as part of a layered, integrated defense

Some enemies with layered, multidomain antiaccess systems, and thegeographical depth within which to employ them, may actually attempt todefeat a U.S. advance before it reaches its objective area. Other enemies haveno chance of physically keeping the United States out of an operating area but
may instead attempt to inflict greater losses than U.S. resolve will tolerate.
The second trend affecting future operational access is the changing
U.S. overseas defense posture, which itself is the result of several related
factors. The first factor is markedly decreased support abroad for an extensive
network of U.S. military bases around the globe. In an increasingly globalized
world, there is much greater international competition for regional influence
and access. Immediately after the Cold War, states had few partnership
options other than the United States, but today numerous rising powers
provide alternatives. Whether due to coercive threats or inducements offeredby other powers, many states will be unwilling to offer the kind of long-termbasing rights the United States enjoyed during the Cold War. Gaining basing
rights for expeditionary operations is already a primary concern for U.S.
military planners and diplomats, and that challenge is likely to grow.
The second factor is projections of severely contracting resources. Even
were there an international appetite for it, the United States simply could notafford to establish garrisons around the globe in response to every plausible
threat, especially in an era of dynamic uncertainty in which threats could
emerge unpredictably.

11The third factor is force protection. In an age of increased terrorism,
increasingly affordable precision weapons, and heightened sensitivity toperceived impositions on national sovereignty, U.S. garrisons on foreign soil
become both causes of friction and inviting targets. American sensitivity tocasualties, especially to a garrison force outside a war zone, only exacerbates
the problem.
The third trend is the emergence of space and cyberspace asincreasingly important and contested domains with critical importance forthe projection of military force. Arguably, this emergence is the most importantand fundamental change in the opposed access challenge over the past several
decades.
Space and cyberspace are increasingly important both for supporting
operations in the other domains and as operational domains in their own rights
when directed. In a support role, space systems provide satellite
communications, missile warning, intelligence collection, satellite
reconnaissance advanced warning, and position, navigation and timing, among
other support. Cyberspace, meanwhile, provides the information infrastructure
upon which the command and control of practically all military operations
rests. This is especially true for U.S. forces projecting military force globally,
but it is increasingly true for practically all modern militaries, especially sincecapabilities can be purchased commercially and relatively cheaply. In fact,
U.S. space and cyberspace capabilities depend significantly on commercial
systems and adversaries in some cases will purchase space capabilities on thesame platforms used by U.S. joint forces.
Because of that increased importance, many future enemies will seek tocontest space control and cyberspace superiority as means to denying
operational access to U.S. joint forces. In fact, space and cyberspace will bepriority domains for many future adversaries, both state and nonstate, because
U.S. forces critically depend on them, because the capabilities are readily
available and relatively affordable, and because the effects of operations can bedifficult to trace and even perceive.
Moreover, because the critical support provided by space and cyberspace
generally must be in place in advance and because many operations in thosedomains, especially offensive operations, require significant lead time, spaceand cyberspace operations likely will commence well in advance of otheroperations. In fact, even in the absence of open conflict, operations to gain andmaintain cyberspace superiority and space control will be continuous
requirements.
U.S. military operations conducted in the past several decades havedemonstrated the decisive results U.S. joint forces are capable of when allowed
to flow combat power into an operational area unimpeded. Yet, few if any

12enemies perceived that they possessed the ability to deny U.S. access by armed
opposition, and U.S. operational access during that period was essentiallyunopposed. The combination of the three major trends described above—thegrowth of antiaccess and area-denial capabilities around the globe, thechanging U.S. overseas defense posture, and the emergence of space andcyberspace as contested domains—has altered
Future enemies, both states and nonthat calculus dramatically. Future enemies,
state actors, will see the adoption ofboth states and nonstates, will see thean antiaccess/area-denial strategy
adoption of an antiaccess/area-denial strategy
against the United States as aagainst the United States as a favorable course
favorable course of action for them.
of action for them. Those able to field layered
and fully integrated antiaccess/area-denial defenses in multiple domains may
attempt to deny U.S. operational access altogether, while others with lessrobust and comprehensive capabilities may simply attempt to inflict greater
losses than they perceive the United States will tolerate politically.
Any example of such a strategy likely will exhibit some common criticalelements, to include:
Long-term shaping operations prior to conflict, including information
operations, designed to increase influence and build up antiaccess/areadenial capabilities in a region and to encourage regional actors to deny
the United States the political conditions that facilitate access.
Imposing a steeper cost than the United States is willing to bear—either
through a catastrophic attack or an attrition-based defeat mechanism
designed to create substantial casualties.
Creating as much strategic and operational depth as possible within
which to inflict casualties, even interdicting deploying U.S. forces bysabotage at their points of origin or ports of embarkation.
Attacking U.S. forward bases, whether by missiles, special operations
units, or irregular forces—to include the use of weapons of mass
destruction.
Attacking U.S. command and control and communications, especiallylong-range capabilities, to include space and cyber capabilities.
Attacking U.S. distribution operations at either fixed points or vulnerable
choke points in the lines of communications or through cyber attacks
that disrupt logistics command and control.
Employing antiaccess and area-denial capabilities in combination tocontest local air and maritime superiority and land freedom of maneuver.

13

Beyond those common elements, any example of an antiaccess strategy
will conform itself uniquely to the capabilities of the enemy and othersituational factors.

6. The Military Problem: Opposed Operational Access in an Advanced
Antiaccess/Area-Denial Environment
The essential problem for future joint forces is to be able to project militaryforce into an operational area and sustain it in the face of armed opposition
when three trends apply:
Antiaccess and area-denial weapons and technologies are dramatically
improving and proliferating.
U.S. overseas defense posture is changing.
Space and cyberspace are becoming increasingly important andcontested domains.
Meeting that challenge increasingly will require defeating integrated
antiaccess/area-denial systems of growing lethality and sophistication.

7. A Concept for Joint Operational AccessTo meet the challenge described above,
Future joint forces will leverage cross-domain
future joint forces will leverage crosssynergy to establish superiority in somedomain synergy—the complementary vice
combination of domains that will provide themerely additive employment of
freedom of action required by the mission.
capabilities in different domains suchthat each enhances the effectiveness and compensates for the vulnerabilities ofthe others—to establish superiority in some combination of domains that will
provide the freedom of action required by the mission. See Figure 2.

14

Figure 2.
Cross-Domain Synergy

Superiority here refers to that degree of dominance of one force over another ina domain that permits the conduct of operations by the former at a given timeand place without prohibitive interference by the latter.13 The combination of
domain superiorities will vary with the situation, depending on the enemy’s
capabilities and the requirements of the mission. Determining thatcombination in any situation is a function of operational design. Superiority inany domain may not be widespread or permanent; it more often will be local
13Adapted from doctrinal definitions of air superiority and maritime superiority.

Airsuperiority: ―That degree of dominance in the air battle of one force over another that permits
the conduct of operations by the former and its related land, sea, and air forces at a given timeand place without prohibitive interference by the opposing force.‖ Maritime superiority:―That degree of dominance of one force over another that permits the conduct of maritime
operations by the former and its related land, sea, and air forces at a given time and place
without prohibitive interference by the opposing force.‖ Cyberspace superiority: ―The degreeof dominance in cyberspace by one force that permits the secure, reliable conduct of operations
by that force, and its related land, sea and space forces at a given time and sphere ofoperations without prohibitive interference by an adversary.‖
Note that superiority applies to a ―given time and place‖ and need not be permanent or
widespread throughout a domain. Superiority is distinct from supremacy, which is that degreeof superiority in a domain wherein the opposing force is incapable of effective interference. See
air supremacy: ―That degree of air superiority wherein the opposing force is incapable ofeffective interference.‖ And maritime supremacy: “That degree of maritime superiority
wherein the opposing force is incapable of effective interference.‖ All definitions taken fromDOD Dictionary of Military Terms, http://www.dtic.mil/doctrine/dod_dictionary/ [accessed
18Nov10], except cyberspace superiority, taken from ―Joint Terminology for Cyberspace
Operations,‖ VCJCS memo for the Service chiefs, combatant commanders and directors of
Joint Staff directorates, undated, p. 8.

15and temporary.
This concept envisions a greater degree of integration of actions andcapabilities across domains and at lower
This concept envisions a greater degree of
echelons than ever before. Embracing
integration of actions and capabilities across
cross-domain synergy at increasingly lower
domains and at lower echelons than everlevels will be essential to generating thebefore, to include the full and flexible
tempo that is often critical to exploiting
integration of space and cyberspace
operations into the traditional air-sea-land
fleeting local opportunities for disrupting
battlespace.
the enemy system. This concept also
envisions the fuller and more flexible
integration of space and cyberspace operations into the traditional air-sea-landbattlespace than ever before.
Cross-domain synergy creates and exploits asymmetrical advantages
inherent in a joint force—airpower to defeat antiship weapons, naval power toneutralize air defenses, ground forces to neutralize land-based threats to air
and naval forces, cyber operations to defeat space systems, and so on(although by no means does this suggest that a joint force should forgo
symmetrical advantages). Nowhere is that more critical than in defeating a
multidomain antiaccess/area-denial strategy. The relationships between
operations in the various domains, and the specific asymmetries to be
exploited, will vary with the situation.
This synergy applies not only to joint forces deploying to the operational
area—that is, attacking the enemy antiaccess system from the outside in—but
also to forward-deployed forces already in the operational area attacking theenemy system from the inside out. The latter can be critical in neutralizing key
enemy capabilities to support the approach of the former. Reachback
capabilities able to contribute from distant stations without deploying to theoperational area, such as space and cyber forces, will support both. Moreover,this synergy can result not only from integration within the joint force, but also
from integration with foreign military partners contributing various capabilities
and capacities to the multinational effort. Joint forces must also be able tointegrate with those partners.
The CCJO introduced the idea of joint synergy, the combination ofService capabilities such that each enhances the effectiveness andcompensates for the vulnerabilities of the
Joint synergy has been a strength of U.S. joint
others. Joint synergy is the expansion offorces for decades. Whereas joint synergy
the idea of combined arms to multiple
focuses on the integration of Service
Services. Joint synergy has been acapabilities, cross-domain synergy requires
strength of U.S. joint forces for decades.
the integration across domains without
Whereas joint synergy focuses on the
regard for which Service provides the action
or capability.
integration of Service capabilities, crossdomain synergy requires the integration

16

across domains without regard for which Service provides the action orcapability. The concept thus envisions a seamless application of combat power
between domains, with greater integration at dramatically lower echelons thanjoint forces currently achieve.
The level at which capabilities are integrated to achieve cross-domainsynergy will range from the component (for example, airborne or amphibious
forces securing forward air bases to extend the range of air power) to the lowlevel tactical (individual aerial, naval, space, cyber, and land-based capabilities
cooperating in an attack against a single antiaccess system).
The concept applies to practically any opposed access situation, but its
specific application will vary widely depending on the domains in which theenemy operates, the number and type of the enemy’s antiaccess and areadenial capabilities, and the level and manner of the integration of thosecapabilities.

8. Operational Access Precepts
The central idea, cross-domain synergy, describes in the broadest terms how
the joint force will gain
Operational Access Precepts
operational access in the faceof armed opposition. The
Conduct operations to gain access based on the requirementsof the broader mission, while also designing subsequent
following general principles,
operations to lessen access challenges.
when applied to each situation
Preparethe operational area in advance to facilitate access.
through planning andConsidera variety of basing options.
execution, amplify that basic
Seize the initiative by deploying and operating on multiple,
concept with an additional
independent lines of operations.
level of description. They are
Exploit advantages in one or more domains to disrupt enemy
not a checklist but rather aantiaccess/area-denial capabilities in others.
guide to judgment based on an
Disrupt enemy reconnaissance and surveillance efforts while
protecting friendly efforts.
understanding of the uniqueCreate pockets or corridors of local domain superiority tofactors of any situation. These
penetrate the enemy’s defenses and maintain them as
precepts flow from therequired to accomplish the mission.
conditions and challenges
Maneuver directly against key operational objectives fromdescribed earlier. Coupledstrategic distance.
with the central idea of crossAttack enemy antiaccess/area-denial defenses in depth
domain synergy, they provide arather than rolling back those defenses from the perimeter.
description of how joint forces
Maximize surprise through deception, stealth, and ambiguity
to complicate enemy targeting.
will operate to gain access inProtect space and cyber assets while attacking the enemy’s
the face of armed opposition.
space and cyber capabilities.

17

Conduct operations to gain access based on the requirements of thebroader mission, while also designing subsequent operations to lessen
access challenges. Since operational access does not exist for its own sake,joint forces should conduct access operations in accordance with the broader
objectives and ideally in conjunction with the other elements of national power.
Importantly, a joint force commander should avoid over-committing forces or
projecting combat power deeper into hostile territory than is required by theobjective. This is especially true of major land forces, which can be difficult towithdraw once committed.
At the same time, because of the mounting lethality of emerging
antiaccess and area-denial weapons, commanders should design campaigns
that do not require attacking into the teeth of an enemy’s antiaccess/areadenial defenses where possible. Moreover, due to this lethality, commanders
and political leaders should consider the potentially rapid escalatory effect theemployment of such weapons in the early stages of a situation could have.
Finally, to the extent that other elements of national power can achieve thenational objectives, they are preferable to military forces employed in combat
because of the risks of the latter in the emerging environment.
Prepare the operational area in advance to facilitate access. As
mentioned, the challenge presented by opposed access will be determinedlargely by conditions created prior to combat. Much of that shaping is anational or even multinational effort, and joint forces will find themselves
operating in support of other agencies and departments, in particular the U.S.
State Department. Preparing the operational area will be a continuous priority
effort for combatant commanders, commencing well in advance of combat andcontinuing after combat begins, and combatant commanders will have tocoordinate with other agencies and departments in that effort.
This precept comprises a wide range of actions designed to strengthen
regional partnerships and partners, which include not only foreign militaries
but also other agencies and nongovernmental organizations. These actions
include engagement activities such as bilateral and multinational exercises toimprove multinational operations; key leader engagements; missions to train,
advise and equip foreign forces to improve their national ability to contribute toregional access; negotiations to secure basing and transit rights and toestablish command relationships, roles and responsibilities, and support
agreements; freedom-of-navigation exercises with regional partners; the use of
grants and contracts to improve relationships with and strengthen host-nationand other regional partners; and planning conferences to develop multinational
plans. Additionally, this effort can include military information support
operations and other information activities designed to foster support for U.S.
efforts in a region. This effort also can include establishing, improving, andhardening forward and intermediate bases critical to the projection of militaryforce into the region as well as prepositioning supplies and equipment. Finally,18

this effort can include the forward deployment of forces, whether conducting
security activities on a routine basis or deploying for combat in response to adeveloping crisis. These steps can all signal U.S. commitment to a region.
The effort to shape advantageous access conditions is part of a larger,
long-term effort to improve security cooperation in a region and will benefit
from that broader effort. Actions to secure access will be included within eachtheater and appropriate country security cooperation plan. Even seemingly
unrelated missions such as humanitarian assistance can contribute indirectly
to securing access by engendering goodwill in the region. That said,commanders must anticipate that agreements made during routine security
cooperation may not endure during actual crisis or conflict, and therefore theyshould develop options based on varying degrees of pre-existing access.
Another critical and continuous effort to improve access conditions inadvance will be on-going intelligence, surveillance, and reconnaissanceactivities to improve situational awareness, both overall and in the various
domains, and to uncover adversary antiaccess/area-denial capabilities, plans,
and preparations in the region. Operations in space, cyberspace, and acrossthe electromagnetic spectrum likewise will be continuous to ensure that
support to navigation, command and control, targeting, sustainment, andintelligence are in place when needed. Moreover, computer network
operations, both offensive and defensive, likely will commence long before
lethal combat begins and even before combat forces begin to deploy.
Consider a variety of basing options. As mentioned, the use of
forward bases is a primary means for mitigating the effect of distance on force
projection. Forward bases, including mobile seabases, constitute critical―access infrastructure‖ which supports the deployment of forces and supplies.
The greater the capabilities and capacity that can be established at or flowed
through the base, the greater the force that ultimately can be projected.
Future enemies consequently can increasingly be expected to attack thosebases as part of an antiaccess/area-denial strategy in an attempt to restore thepenalty of distance. They will employ a variety of means ranging from missiles
to terror attack—any of which might employ weapons of mass destruction.
Therefore, while undeniably valuable in the context of opposed access, forward
bases are maintained at potentially considerable risk.
Since this concept calls for some elements of a joint force to maneuveragainst key operational objectives directly from ports of embarkation, relianceon forward bases will decrease while also increasing employment options. The
greater the proportion of such elements in the joint force, the less an enemy
attack on any bases will endanger the mission. This capability is especiallyvaluable in initial assault forces.
Not all forces will be able to deploy directly into combat, however, and19

sustained operations eventually will require robust bases in the operational
area. Several options exist for resolving this dilemma. The practical solution
in any given situation likely will consist of a combination of them. The first
option is to protect and harden permanent bases so they can withstand attack
and retain their functionality. The loss of a forward base could becatastrophic, and since abandoning a base generally is not politically viable,
forward bases must be protected. A second option is to disaggregate large
bases into a greater number of smaller bases, decreasing vulnerability throughredundancy and complicating the enemy’s targeting efforts. This option,
however, tends to increase the logistical burden and protection requirements.
A third option, in conjunction with disaggregation, is to employ austere
temporary bases as opposed to sophisticated permanent bases. The ability tooperate effectively from such locations can confer a significant advantage to a
joint force. Especially for small or specialized forces, this can include the useof remote or even abandoned bases, airfields, ports, or other military or civilian
facilities. Such locations present a less lucrative and less obvious target for theenemy, improving survivability and complicating the enemy’s targeting.
Moreover, the ability to dismantle and relocate facilities also can improvesecurity and operational flexibility. The disadvantage of such locations is thatthey tend to lack the capabilities and capacity of permanent installations. The
greater the proportion of the force able to operate from austere forward
locations, the less will be the threat posed by enemy attack against permanent
forward bases—and the greater will be the operational choices. A fourth option
is the use of seabasing,14 which reduces sovereignty issues that often can
preclude the establishment of forward bases. The inherent mobility of
seabasing can complicate the enemy’s defensive preparations by making theobjective remain ambiguous through holding a large coastal area at risk. It canenhance security by complicating the enemy’s detection and targeting.
Seabasing options may be limited by capacity. One other option is toemphasize capabilities with minimal dependence on forward bases, such asamphibious, long-range strike, cyber, electronic, or space capabilities, either inprimary or supporting roles.
Seize the initiative by deploying and operating on multiple,
independent lines of operations. Seizing and maintaining the initiative iscritical to any combat operation. One key advantage of U.S. joint forces overmost potential enemies is their ability to manage complex operations.
Operating on multiple lines in multiple domains simultaneously can help joint
forces to seize that initiative by overloading an enemy’s ability to cope.
Moreover, it increases friendly employment options while forcing the enemy to
14 Seabasing:―The deployment, assembly, command, projection, reconstitution, and reemployment of joint power from the sea without reliance on land bases within the operational
area.‖ Dictionary of Military Terms, http://www.dtic.mil/doctrine/dod_dictionary/ [accessed
17Jan11].

20

defend multiple avenues of approach, especially if the joint force is notdependent on major infrastructure nodes but has the ability to operate
effectively in austere environments. Operating on multiple lines also improvesa joint force’s ability to exploit unforeseen opportunities and to overcome
setbacks. Finally, the dispersal of joint forces also will mitigate the risk posedby enemy weapons of mass destruction.
Correspondingly, this concept envisions that future joint forces willorganize tactically into tailored joint formations able to deploy, operate, andsurvive autonomously. For land forces especially, this suggests smaller units
and platforms that are rapidly deployable yet lethal. This concept sees
deployment and combat as a single evolution of parallel actions rather than as
distinct and sequential phases. Each formation will operate in multiple
domains as required. While maneuvering independently, they will maintain theability to concentrate smoothly into larger formations as necessary. While they
will be self-contained with respect to the envisioned mission, the joint force will
be able to support them quickly with external capabilities as needed—principally additional air, space, electronic, and cyberspace capabilities, which
can best mitigate the latency imposed by distance.
Such distributed operations will place a burden on both command andcontrol and sustainment, as Section 9 will discuss.
Exploit advantages in one or more domains to disrupt enemy
antiaccess/area-denial capabilities in others. Joint forces will attempt toidentify and exploit any domain mismatches, seeking to apply relative strength
against weakness both within and between those domains in which joint forces
enjoy advantages. Gaining superiority in any given domain is not merely amatter of operations in that domain. One of the great asymmetrical advantagesof joint forces over most potential enemies is their potential to bring combat
power to bear across domains, often in complementary and reinforcing
combinations that prevent the enemy from countering effectively. Operating
initially in unopposed or lightly opposed domains as described above, joint
forces will apply combat power to gain superiority in other contested domains
in pursuit of the combination that will provide the overall freedom of action
necessary to accomplish the mission.
The decision on which domains to operate in initially will depend on the
mission and the enemy’s capabilities and vulnerabilities in the various
domains; there is no universal sequence. That said, joint force projection
almost always will include the early conduct of information operations andoperations in space and cyberspace, since freedom of action in those latterdomains is increasingly important to all joint operations. Moreover, those
operations rarely require the additional risks incurred in deploying forces to theoperational area. In fact, information, space, and cyberspace operations
generally should commence well before the need for combat, as part of efforts21

to shape the operational area.
Low-signature forces in all domains are especially key for early
penetration of an enemy’s antiaccess/area-denial defenses before they havebeen degraded. Where geography supports it, the undersea environment is apotentially valuable place to project military force with limited exposure toenemy fires. Undersea forces tend to operate in a dispersed manner and have
only limited vulnerability to forces operating in other domains. Undersea
warfare is especially valuable in gaining maritime superiority, although
undersea forces also could bring naval power to bear against other domains
through the use of land-attack missiles or electronic attack. The air is anotherdomain generally suitable for the early focus of effort, again because air forces
tend not to operate in massed formations that make them vulnerable tocatastrophic loss and because they tend to be broadly effective in bringing
power to bear rapidly against other domains. Finally, special operations forces
are valuable for locating, targeting, and destroying key enemy capabilities, aswell as for cultivating indigenous resistance elements that can help disrupt theantiaccess/area-denial strategy. Like space and cyberspace forces, special
operations forces likely will be in position, often operating in denied territory, inadvance of the commitment of major forces to set the conditions for theemployment of those forces. Operations to maintain or gain access in themaritime commons can build on these low signature operations, avoid highdensity threat antiaccess weapons, and maneuver to achieve surprise andrapid operations.
In contrast, large land forces generally will be the last to penetrate within
range of an enemy’s antiaccess and area-denial weapons because of thepotential for catastrophic loss. That is not irrevocably true however. Land
forces, for example, could be used to seize advanced bases on the outskirts ofan enemy’s defenses from which to project air and naval power into the heart ofthose defenses. Moreover, small land or surface naval forces, to include special
operations forces, could infiltrate an enemy’s antiaccess defenses undetected.
The sequence of expansion into additional domains will depend on avariety of factors. Access to space, cyberspace, and the electromagnetic
spectrum generally will not rely on superiority in other domains as aprecondition. In contrast, access to the land domain and, to a lesser extent,
the surface maritime domain (at least within range of an enemy’s antiaccesscapabilities) very often will. In almost all cases, air is an important domain inwhich to expand because airpower generally can be brought to bear
responsively to most other domains and air superiority often is a precondition
to gaining access to the land and sea within a contested operational area.
Disrupt enemy reconnaissance and surveillance efforts while
protecting friendly efforts. The reconnaissance/counterreconnaissance fightis a critical multidomain contest in any combat operation to gain operational
22

access, as each combatant attempts to gain better situational awareness thanthe other. The joint force likely will start at an intelligence disadvantage as it
moves into an enemy’s home areas, a situation likely to be exacerbated as theenemy disposes antiaccess and area-denial capabilities from concealed
positions, often hidden in complex environments. The disadvantage can be
mitigated to some degree through intelligence provided by forward-deployed
forces. The joint force will require a major intelligence, reconnaissance, andsurveillance effort applied aggressively, to include fighting for information, toovercome those disadvantages. Conversely, it will need to degrade the enemy’ssituational awareness through a combination of attacking his reconnaissanceand surveillance operations and confounding his collection efforts throughdeception and concealment.
Create pockets or corridors of local domain superiority topenetrate the enemy’s defenses and maintain them as required toaccomplish the mission. It is not necessary to achieve domain superiority
permanently in a given domain throughout the operational area to accomplish
the mission. Although joint forces in recent decades usually enjoyed suchsuperiority—or even supremacy—future joint forces often may not. A joint
force commander who waits for that condition will likely surrender the initiativeand miss opportunities. Rather, by using the asymmetrical advantages andcross-domain synergy described above, future joint forces will open limited
pockets or corridors of superiority in the necessary domains and maintainthem long enough to accomplish required tasks.
This concept envisions the joint force managing the fluid opening andclosing of access corridors over time and space as needed. It is not enoughmerely to open one of these corridors in the enemy antiaccess/area-denial
defenses; the joint force must maintain it as well, although it may not benecessary to maintain it for the entire duration of a mission as long as it can be
re-opened as needed. It is important, however, that forces that havepenetrated into the depth of the enemy defenses not be left in an
unsupportable position.
Maneuver directly against key operational objectives from strategic
distance.15 Some elements of the joint force will operate directly against key
objectives from points of origin or other points outside the theater without theneed for forward staging.16 Not being tied to fixed forward bases will increase
15 Headquarters, Department of the Army, FM 3-0, Operations (Washington, DC, 27Feb08),

paragraphs. 8-2 through 8-4. Strategic distance refers to action originating from outside anoperational area, often from home station.
16 Staging: ―Assembling, holding, and organizing arriving personnel, equipment, andsustaining materiel in preparation for onward movement. The organizing and preparation formovement of personnel, equipment, and materiel at designated areas to incrementally build
forces capable of meeting the operational commander's requirements.‖ See also origin:23

operational flexibility while complicating enemy defensive preparations. The
greater the proportion of such elements in the joint force, the less will be theoverall burden on such bases and the less vulnerable the joint force will be to a
successful attack against those bases. Moreover, avoiding intermediate staging
en route can increase tempo by eliminating operational pauses. This is
another capability that is especially valuable in initial assault forces.
Not all elements of the force will be able to operate this way, however.
Where forward basing is an operational necessity, the joint force may berequired to seize and operate temporary or permanent forward operating
locations or operate from a seabase. Seizing such bases may be a mission best
suited to elements able to maneuver as described above.
Attack enemy antiaccess/area-denial defenses in depth rather thanrolling back those defenses from the perimeter. This concept envisions
that joint forces will attempt to penetrate into the depth of an enemy’s
antiaccess/area-denial defenses. To do this, they will exploit and expand any
domain advantages and maximize cross-domain synergy as described above.
Additionally, they naturally will take advantage of any identified gaps in theenemy defenses. The penetration is designed to disrupt the integrity of theenemy defensive system, the preferred defeat mechanism, by striking at critical
hostile elements, such as logistics and command and control nodes, long-range
firing units, and strategic and operational reserves.17
The historical alternative to this approach is to attack the perimeter of theenemy’s defenses, pushing back those defenses while advancing. Such an
approach operates primarily by attrition and does not threaten the integrity ofthe enemy’s defensive system, but rather merely compresses those defenses as
they fall back. This may actually play into the enemy’s antiaccess/area-denial
strategy, which likely will attempt to use space and time to inflict cumulatively
unacceptable casualties on an advancing joint force.
While striking enemy antiaccess/area-denial capabilities in depth, a joint
force should also attempt to neutralize the enemy’s ability to do the same to it,
attacking those capabilities the enemy could employ to attack U.S. commandand control, sustainment, and lines of communication.

―Beginning point of a deployment where unit or non-unit-related cargo or personnel arelocated.‖ Dictionary of Military Terms, http://www.dtic.mil/doctrine/dod_dictionary/[accessed 20Apr11].
17 That said, the potentially escalatory effects of strikes into an adversary’s homeland must
be carefully weighed against U.S. political objectives and acceptable risk. Such escalation isparticularly likely when the conflict is distant from the US homeland, and there has been nocorresponding attack on US territory. In these cases, the probability and risk of reprisal
attacks against the continental United States must be considered.

24

Maximize surprise through deception, stealth, and ambiguity tocomplicate enemy targeting. Surprising the enemy is always a virtue in war.
Given the vulnerability of deploying joint forces to increasingly lethal antiaccessand area-denial weapons, surprise arguably is even more valuable—indeed,possibly even essential—in the context of future opposed access, and futurecommanders should spare no effort to achieve it by any available means. Thatsaid, while the desire to surprise may be as great as ever, the ability to surpriserests ultimately on the enemy’s susceptibility to being surprised. This will be
problematic in a future operating environment increasingly characterized bypervasive sensors and information transparency. This paper therefore carefully
distinguishes among three basic ways to achieve surprise: deception, stealth,and ambiguity.18
For the purposes of this paper, deception19 means convincing an enemy
that the joint force will adopt one course of action while adopting another.
Successful deception therefore depends less on one’s own efforts than on theenemy’s inclination to accept misleading evidence. In other words, successful
deception tends to be less about creating false expectations than about
understanding and exploiting enemy expectations that already exist. Skillful
deception therefore will always be an art form that depends on the existence ofan alternative course of action that appears likely to the enemy. Successful
deception will be difficult in the future opposed access environment, althoughwhen achieved deception tends to have the greatest effect among the threemethods of surprise. In the context of future opposed access, forms ofdeception that could prove especially useful include electromagnetic
deception20 and cyber deception, which could provide intentionally erroneous
information on the location and activities of deploying joint forces to enemy
intelligence networks.
Stealth means denying the enemy information about friendly capabilities,
intentions, or dispositions. (Stealth in this context should not be confusedwith ―stealth‖ technology, which is only one means of achieving stealth.) The
18See Marine Corps Doctrinal Publication (MCDP) 1, Warfighting (Washington: HQMC,
1997), pp. 43-44.
19Deception: ―Those measures designed to mislead the enemy by manipulation, distortion,or falsification of evidence to induce the enemy to react in a manner prejudicial to the enemy's
interests.‖ See also military deception—―Actions executed to deliberately mislead adversary
military decision makers as to friendly military capabilities, intentions, and operations, thereby
causing the adversary to take specific actions (or inactions) that will contribute to theaccomplishment of the friendly mission.‖ Dictionary of Military Terms,
http://www.dtic.mil/doctrine/dod_dictionary/ [accessed 3Dec10].
20Electromagnetic deception: ―The deliberate radiation, re-radiation, alteration,
suppression, absorption, denial, enhancement, or reflection of electromagnetic energy in amanner intended to convey misleading information to an enemy or to enemy electromagneticdependent weapons, thereby degrading or neutralizing the enemy's combat capability.‖
Dictionary of Military Terms, http://www.dtic.mil/doctrine/dod_dictionary/ [accessed 3Dec10].

25

enemy is not deceived as to friendly plans, but is ignorant of them. Again,
achieving stealth in a transparent operating environment characterized bypervasive sensors and information networks will be extremely challenging,although U.S. forces should continue to pursue technologies and other meansthat offer potential opportunities to restore stealth to the battlespace.
The third basic method for achieving surprise is through ambiguity.
Joint forces achieve ambiguity by operating in a way that supports multiple
courses of action and therefore forces the enemy to prepare for all of them. In
a future opposed access environment characterized by informationtransparency—indeed often by information overload—ambiguity may be thesingle method of surprise offering the best potential for success. This concept
supports ambiguity in two important ways. First, the idea of operating on
multiple, self-contained lines of operations provides multiple options for a joint
force and compels an enemy to defend on multiple axes. Second, since relianceon fixed forward bases tends to commit a force to certain lines of operation, theidea of maneuvering against key objectives directly from ports of embarkation
without reliance on such bases similarly enables a joint force to appear
ambiguous as to its ultimate objectives.
While conceptually distinct, these three methods can tend to blur inpractice. And while depending entirely on either deception or stealth for future
surprise could prove risky, this concept envisions that some artful combinationof the three could be an essential element of future joint operations to gain
access in the face of armed opposition.
Protect friendly space and cyber assets while attacking theenemy’s space and cyber capabilities. Space and cyberspace are now
essential to all joint force projection, both for the support they provide tooperations in the other domains and as operational domains in their own rightwhen directed. The former provides critical position, navigation, and timing,command and control, missile warning, weather, and intelligence collection.
The latter supports an increasing proportion of joint command and control andlogistics functions. For just this reason, most enemies adopting anantiaccess/area-denial strategy will attack joint space and cyberspace
operations in an attempt to disrupt force projection efforts. In fact, many
enemies may try to disrupt U.S. use of space and cyberspace commercial aswell as governmental well before the onset of lethal combat. The same can besaid about the electromagnetic spectrum generally, which is especially criticalin the context of force projection given the distances involved—although that ishardly a new phenomenon.
For this reason, efforts to gain and maintain adequate space andcyberspace superiority, as well as ensure use of the electromagnetic spectrum,
will be a continuous part of preparing the operational area for access. Bothcounterspace and countercyberspace operations are appealing to many26

potential enemies because attacks can be comparatively inexpensive and often
are difficult to attribute. For these reasons, a joint force conducting force
projection must protect its access to space and cyberspace capabilities. That is
not to say that losses will not occur. As in any other domain, losses areinevitable, and joint forces projecting military force must be prepared tooperate effectively despite such losses.
Similarly, many potential enemies increasingly rely on space and cybercapabilities, both of which are relatively affordable when purchasedcommercially. In the context of antiaccess and area-denial, both can be criticalto an enemy’s targeting capability and therefore an important part of anantiaccess/area-denial strategy. Degrading an enemy’s cyber and spacecapabilities therefore can be a critical part of gaining and maintaining
operational access. Developing good cyberspace and space situationalawareness21 will be critical to both protecting friendly and degrading enemy
capabilities.
Specific critical tasks include, but are not limited to, protecting friendly
satellite communications and ensuring friendly position, navigation, and timing
support while denying the enemy the same.
Gaining space and cyberspace superiority when and where needed is notnecessarily a symmetrical effort—that is, cyberspace operations to gain
cyberspace superiority and space operations to gain space superiority—butoften can be achieved more effectively, like superiority in the other domains,through the cross-domain application of combat power.

9. Joint Operational Access and the Joint Functions
This concept has implications for the performance of the various joint
functions.22 Attaining cross-domain synergy will require effective application of
the joint functions across the five domains and often will require integration
with interagency and foreign partners.

21 Space situational awareness:―The requisite current and predictive knowledge of thespace environment and the operational environment upon which space operations depend—
including physical, virtual, and human domains—as well as all factors, activities, and events offriendly and adversary space forces across the spectrum of conflict.‖ Dictionary of Military
Terms, http://www.dtic.mil/doctrine/dod_dictionary/ [accessed 24Jan11].
22 Joint functions:―Related capabilities and activities grouped together to help joint force
commanders synchronize, integrate, and direct joint operations. Functions that are common
to joint operations at all levels of war fall into six basic groups - command and control,
intelligence, fires, movement and maneuver, protection, and sustainment.‖ DOD Dictionary of
Military Terms, http://www.dtic.mil/doctrine/dod_dictionary/ [accessed 18Nov10].

27

Command and control. This concept will put a heavy burden oncommand and control. The command and control system23 must support
forces operating at global distances, deploying and maneuvering independently
on multiples lines of operations from multiple points of origin, andconcentrating fluidly as required. It must support an operating tempo theenemy cannot match and facilitate integration across multiple domains
simultaneously and at lower echelons. The synergy that is central to thisconcept will require a high degree of integration and synchronization inplanning and execution across domains, not only at the component level, but
at lower echelons as well. The joint command and control system will have toinclude techniques, procedures, and technologies that enable commanders tointegrate operations across domains in innovative ways.
To support high-tempo distributed operations and to cope with adegraded command and control environment, this concept envisions
decentralized command and control to the extent possible in both planning andexecution. Such mission command24 enables subordinate commanders to act
independently in consonance with the higher commander’s intent and effectthe necessary cross-domain integration laterally at the required echelon. While
distributed-collaboration technologies can facilitate this effort, commanders
also must be prepared to operate effectively in a degraded environment. The
ability to do so has implications for doctrine, training, and education.
The adversary will deliberately attempt to degrade friendly use of theelectromagnetic spectrum, to include disruption of space and cyber systems.
Due to heavy joint reliance on advanced communications systems, such an
attack will be a central element of any enemy antiaccess/area-denial strategy,requiring a higher degree of protection for friendly command and control
systems.
Especially with respect to incorporating space and cyberspace operations
in a joint access campaign, new and adaptable relationships and authorities
may be required to better integrate the capabilities of geographic andfunctional combatant commands with overlapping responsibilities. Moreover,combat operations may commence immediately upon deployment and may
23 Command and control system:―The facilities, equipment, communications,procedures, and personnel essential to a commander for planning, directing, and controlling
operations of assigned and attached forces pursuant to the missions assigned.‖ DOD
Dictionary of Military Terms, http://www.dtic.mil/doctrine/dod_dictionary/ [accessed
14Jan11].
24 Mission command: ―The conduct of military operations through decentralized execution
based upon mission-type orders.‖ See also mission-type order: ―1. An order issued to a lower
unit that includes the accomplishment of the total mission assigned to the higher
headquarters. 2. An order to a unit to perform a mission without specifying how it is to beaccomplished.‖ DOD Dictionary of Military Terms,
http://www.dtic.mil/doctrine/dod_dictionary/ [accessed 9Jun11].

28

span multiple areas of responsibility en route to the operational area, creating
the need for a single campaign across traditional boundaries and requiring a
re-examination of command relationships and methods and timing forestablishing a joint task force.
Intelligence. Given the increased lethality, precision, and accuracy ofantiaccess and area-denial systems, the joint force requires the ability tocollect, fuse, and share accurate, timely, and detailed intelligence across all
domains. Furthermore, this intelligence collection, fusion, and sharing may
include interagency and multinational partners. All of this will require a
reexamination of the current classification, access, and data sharing protocol
restrictions.
Intelligence remains a critical contest in an access/antiaccess battle witheach combatant trying to gain necessary intelligence while denying the other.
The joint force must be prepared to fight for information rather than expecting
uncontested collection and may begin operations at a disadvantage.
Characterizing an adversary is a continuous activity, commencing years before
hostilities begin and continuing during and after those hostilities. This has
implications for steady state sizing, systemic capacity, and analytic
technologies of intelligence forces. Specifically, the reconnaissance andsurveillance contest is critical to access operations.
This concept’s preference for disruption over attrition will require
intelligence not only about the location of enemy elements, but also about how
those elements work together as a coherent system, including their potential
for cross-domain cooperation.
Fires. Defeating opposed access will require lethal and nonlethal fires
applied flexibly and responsively between domains. The emphasis on crossdomain synergy that is central to this concept applies first and foremost to
fires. Although current capabilities provide some measure of flexibility andresponsiveness, this concept envisions a qualitative improvement in these
attributes. Achieving this objective increases the need to adopt flexible
procedures for requesting, approving, and coordinating fire support among theServices and, possibly, among combatant commands.25 Target acquisition
must be rapid and accurate, and procedures must be developed to minimize
the latency or delay between identification and engagement of potentially
fleeting critical targets.
Gaining operational access against armed opposition will remain a
25 While tactical or operational control of some counterspace and countercyber ―fires‖ may

be delegated to the joint force commander engaged in an operational access mission, some ofthese fires may be employed by a supporting commander (e.g., Commander, U.S. Strategic
Command).

29

classic fire-and-maneuver problem, albeit often on a large scale. Joint forcesmust be able to concentrate or distribute fires quickly as the situation requires
based on the needs of maneuvering forces. This concept envisions that any
element maneuvering independently will have responsive access to thenecessary joint fires, regardless of echelon or Service. Such access will dependon the ability to ensure the necessary communications in a potentiallydegraded information environment.
Although reliance on precision-guided munitions to attack selected
targets will increase, the inventory of such munitions will remain finite, andjoint forces attacking a prepared antiaccess/area-denial defense often will lackthe precise targeting information required to justify their expenditure.
Moreover, joint forces will continue to require accurate area fires to neutralize,
suppress, and obscure targets to protect friendly forces and facilitate
maneuver. While the Joint Combat Concept (JCC) emphasizes the need fordiscrimination, commanders at every echelon will need to reconcile that
requirement with the significant threat posed by a capable antiaccess/areadenial system.
This concept envisions that lethal and nonlethal fires in all five domains
will be managed within the same targeting and fire support coordination
systems. While that is true today for traditional nonlethal fires such as
electronic jamming, it may not be true for certain cyber and space capabilities,
which today are controlled by supporting functional combatant commands.
This concept envisions that control of such capabilities in the future will
devolve to lower echelons to make the fires more responsive to the needs ofoperational commanders. The precise level to which that control canappropriately devolve remains to be determined.
Movement and maneuver. This concept envisions the fluid, adaptive
maneuver of joint force elements as they advance on the objective area, operate
within it, and conduct retrograde operations in an antiaccess/area-denial
environment.
Self-contained joint elements, supported by joint fires, will moveindependently on multiple lines of operations from multiple ports ofembarkation, rerouting as necessary en route, concentrating quickly against
key objectives, and dispersing again as the situation requires. These maneuver
elements will make maximum use of deception, stealth, and ambiguity to mask
their movements and reach their operating areas without unacceptable risk orlosses. Air and naval forces will maneuver in simultaneous andcomplementary movements as they advance. Where geography allows, land
forces likewise will maneuver against intermediate land objectives to facilitate
the continued advance of those naval and air forces before maneuvering
against objectives in the objective area through forcible entry if the mission
requires.
30

Some portion of the joint force will be able to maneuver directly against
key objectives from ports of embarkation, without reliance on fixedintermediate or forward bases, identifying and changing those objectives enroute. This will put a premium on en route communications for command andcontrol.
Space and cyber forces will ―maneuver‖ as necessary to conduct andsupport operations in advance, and will maintain or improve their positions as
the situation develops. Joint forces likewise will ―maneuver‖ in cyberspace bypenetrating hostile digital networks.
Protection. Protecting the joint force will be critical to ultimate successsince most enemy antiaccess/area-denial strategies will operate on theprinciple of attrition. Protection against antiaccess and area-denial capabilities
will pose different challenges. While all protection schemes will involve a
combination of active and passive measures to defeat enemy attack, protecting
against antiaccess weapons will place a greater emphasis on minimizing theexposure of the force during its advance toward the objective area, when many
elements of the force are most vulnerable. A joint force will lessen its exposure
by a combination of dispersion, multiple lines of operations, speed of
movement, agile maneuver that reroutes around threats, deception, masking orother concealment techniques, and disruption of enemy intelligence collection
through counterreconnaissance, countersurveillance, and other methods.
Once arrived in the objective area, joint force elements can no longer use sometechniques to avoid detection and will therefore rely on active and passive
defensive measures to defeat actual enemy attack.
Protecting joint force command and control will demand special
emphasis because this is a critical function against which many enemies willconcentrate their targeting. To protect command and control systems, the joint
force must develop systems, technologies, and warfighting techniques toensure continued freedom of action and access to space, cyberspace, and theelectromagnetic spectrum when and where needed.
Protecting logistics will include protecting logistical bases, distribution
activities, and logistics networks and associated data. Several options exist forbase protection. These include hardening of bases to withstand attack,
distributing the functions of a base into smaller, more numerous andtemporary installations to mitigate the effects of an attack, and employing
mobile seabasing where possible. Any operational solution likely will include
some combination of these options.
Of growing concern to future joint forces will be missile defense anddefense against sabotage—the former because of the increasing availability ofand dramatic improvements in missiles and the latter because many enemies
will see it as an inexpensive capability with the potential for disproportionately31

large results. In both cases, defense against the capability tends to be much
more costly than the capability itself.
Sustainment. Because of the logistically intensive nature of force
projection, effective sustainment will be critical to future joint force success—and therefore a likely target for enemy attack. Joint forces will require newsustainment concepts that account for adversary capabilities. These
innovations may require new platform designs, more robust information
networks, and the ability to more rapidly reach distributed combat forces
operating in contested areas.
The distributed nature of operations described in this concept will
especially strain the distribution system and its command and control.
Commanders will require a robust and flexible system that allows them quickly
to move, support, and sustain forces that may be in multiple locations withmultiple objectives. In support of those units that maneuver directly against
operational objectives from strategic distance, this concept envisions a merging
of the intertheater and intratheater segments of the global distribution pipeline.
Logistics commanders will require full visibility of all requirements, resources,
and capabilities throughout the full length of that pipeline to effect the level ofcoordination required to support the operations described.
This concept envisions a sustainment system comprising a combinationof basing options, the prepositioning of equipment and supplies, and a flexible,
protected distribution process. Establishing such a system will be a key part ofpreparing the operational area for access. This concept envisions nobreakthrough advancement that will dramatically change the sustainment
challenge. Rather, it envisions incremental efficiencies in three areas. First,
decrease the logistical appetite of joint forces in all classes of supply, but
especially in fossil fuels. Second, improve supply chain management by
increasing visibility of both expenditure rates and available inventory levels.
Improvements in these areas will support command decision-making (thatsaid, warfare is an especially wasteful and unpredictable activity, and the joint
force cannot expect and should not attempt to manage the distribution systemwith anything approaching the efficiency of the business world). Third,
improve the capabilities and capacities of U.S. military airlift and sealift. This
may include developing lift assets that would not be perceived as catastrophic
losses if destroyed and those that provide options for maneuvering within anarea-denial environment. Innovative solutions such as lighter-than-air craft
may ease the lift challenge.
In some situations, it may be preferable for joint forces to sustain
themselves via seabases, which increases employment options by decreasing
reliance on airfields and other ashore sustainment infrastructure. Large-scale
distribution from a seabase will require new capabilities and capacities. Shipto-ship and ship-to-shore connectors will be required for the configuration and32

distribution of a broad variety of sustainment packages, under challenging sea
states and in support of continuous sustainment demands.
Given limitations in organic logistical resources, operations to gain
operational access may have to rely on the contracted use of commercial
service providers. Joint forces will require the expeditionary ability to accesssuch support, from identifying support requirements and potential providers toletting contracts and managing the associated contractor personnel.
Additionally, commanders must be able to direct contractors, who currently
require direction from government contracting officers, furnish support forcontractors in their operational areas, and manage risks associated with
contractor nonperformance. Moreover, inadvertently awarding contracts tolocal entities with ties to the enemy is a real concern that requires close
attention to contractor vetting. In the event of significant attacks on staging
bases, logistics facilities and other locations with significant contracted
capabilities, retention and protection of civilian contactors may become acritical challenge.
To meet the challenges of opposed access, the survivability of the joint
sustainment system will be critical. For land-based logistics especially, thechallenge will be to ensure the survivability of the infrastructure. As noted
above, this concept envisions enhanced joint force protection capabilities
through some combination of hardening, dispersal, redundancy, and mobilityof the infrastructure and the logistics network. This concept further envisions
that a greater portion of joint combat power will likely be dedicated toprotecting distribution activities—although this will occur at the expense offorces available to attack the enemy’s antiaccess/area-denial defenses and atsome point such a shift can imperil the overall mission.

10.

Capabilities Required by this Concept

The following capabilities have emerged as essential to the implementation ofthis concept. They derive logically from the concept itself or fromaccompanying experimentation. This list is neither all-encompassing nor
prioritized. It is designed merely to provide a baseline for follow-on concept
development, analysis, and experimentation. Although grouped by joint
function for ease of understanding, many of these capabilities apply acrossmultiple joint functions. (While information and engagement are not joint
functions, they have been added as categories because several of thecapabilities fall within those groupings.) Furthermore, many of thesecapabilities have implications for DOTMLPF as well as for integration withinteragency and foreign partners.

33

Command and Control
JOA-001. The ability to maintain reliable connectivity andinteroperability among major warfighting headquarters andsupported/supporting forces while en route.
JOA-002. The ability to perform effective command and control in adegraded and/or austere communications environment.
JOA-003. The ability to create sharable, user-defined operating picturesfrom a common database to provide situational awareness(including friendly, enemy and neutral situations) across thedomains.
JOA-004. The ability to integrate cross-domain operations, to include atlower echelons, with the full integration of space andcyberspace operations.
JOA-005. The ability to employ mission command to enable subordinate
commanders to act independently in consonance with thehigher commander's intent and effect the necessary crossdomain integration laterally at the required echelon.
Intelligence
JOA-006. The ability of operational forces to detect and respond tohostile computer network attack in an opposed accesssituation.
JOA-007. The ability to conduct timely and accurate cross-domain allsource intelligence fusion in an opposed access situation.
JOA-008. The ability to develop all categories of intelligence in any
necessary domain in the context of opposed access.
Fires
JOA-009. The ability to locate, target, and suppress or neutralize hostile
antiaccess and area-denial capabilities in complex terrain with
the necessary range, precision, responsiveness and reversible
and permanent effects while limiting collateral damage.
JOA-010. The ability to leverage cross-domain cueing to detect andengage in-depth to delay, disrupt or destroy enemy systems.
JOA-011. The ability to conduct electronic attack and computer network
attack against hostile antiaccess/area-denial capabilities.
JOA-012. The ability to interdict enemy forces and materiel deploying toan operational area.
Movement and Maneuver
JOA-013. The ability to conduct and support operational maneuver overstrategic distances along multiple axes of advance by air andsea.
34

JOA-014. The ability to ―maneuver‖ in cyberspace to gain entry into
hostile digital networks.
JOA-015. The ability to conduct en route command and control, mission
planning and rehearsal, and assembly of deploying forces, toinclude linking up of personnel and prepositioned equipment.
JOA-016. The ability to conduct forcible entry operations, from raids andother limited-objective operations to the initiation of sustained
land operations.
JOA-017. The ability to mask the approach of joint maneuver elements
to enable those forces to penetrate sophisticated antiaccesssystems and close within striking range with acceptable risk.
Protection
JOA-018. The ability to defeat enemy targeting systems, including theirprecision firing capabilities.
JOA-019. The ability to provide expeditionary missile defense to counterthe increased precision, lethality, and range of enemy
antiaccess/area-denial systems.
JOA-020. The ability to protect and, if necessary, reconstitute bases andother infrastructure required to project military force, toinclude points of origin, ports of embarkation anddebarkation, and intermediate staging bases.
JOA-021. The ability to protect forces and supplies deploying by sea andair.
JOA-022. The ability to protect friendly space forces while disrupting
enemy space operations.
JOA-023. The ability to conduct cyber defense in the context of opposed
access.
Sustainment
JOA-024. The ability to deploy, employ, and sustain forces via a global
network of fixed and mobile bases to include seabasing.
JOA-025. The ability to quickly and flexibly establish nonstandard
support mechanisms, such as the use of commercial providers
and facilities.
JOA-026. The ability to plan, manage, and integrate contractor support
in the context of operations to gain operational access in theface of armed resistance.

35

Information
JOA-027. The ability to inform and influence selected audiences tofacilitate operational access before, during, and after
hostilities.
Engagement
JOA-028. The ability to develop relationships and partnership goals andto share capabilities and capacities to ensure access andadvance long-term regional stability.
JOA-029. The ability to secure basing, navigation, and overflight rights
and support agreements from regional partners.
JOA-030. The ability to provide training, supplies, equipment, and otherassistance to regional partners to improve their accesscapabilities.

11.

Risks of Adopting this Concept

Adopting this approach for gaining and maintaining operational access in theface of armed resistance is not without risks.
The most serious of these is that joint forces fail to achieve thesynergy that is essential to this concept. This concept rests on the premiseof cross-domain synergy, but merely combining Service capabilities acrossdomains does not ensure synergy. To mitigate this risk, commanders should
be aware of that reality and consciously take steps to create the conditions
under which synergy can emerge. That said, commanders should keep in mind
that achieving synergy by itself does not guarantee victory.
Likewise, joint forces may not be able to achieve the necessary
coordination required to apply combat power effectively across domains,
again negating the concept’s central premise. The cross-domain
application of combat power relies on the ability to coordinate between thosedomains, which may be difficult in a degraded command and control
environment. The mitigation to this risk is to maintain the ability to fall backon intradomain and Service-specific capabilities.
Similarly, the concept’s emphasis on cross-domain combat power
could be misread by resource allocators to suggest significantly lessneed for organic self-sufficiency. Such an outcome would be dangerous if
degraded command and control prevents cross-domain integrations, leaving
elements to their organic capabilities. Mitigating this risk requires maintaining
a sensible balance between organic capabilities and those accessible only
through external support, together with robust and redundant means for36requesting and coordinating that support.
The concept’s conditional preference for disruption could leadcommanders and staffs to waste valuable time and energy in search ofprecise disruption mechanisms even when the nature of the enemy or theconditions of warfare preclude such a diagnosis. This risk, inherited fromthe JCC, misinterprets the concept, which acknowledges the peril of relying
solely on disruption and instead affirms the need for whatever attrition may berequired to defeat an enemy’s antiaccess/area-denial defense. Commanders
must balance these mechanisms based on a sound understanding of thesituation.
The concept’s call for integrating simultaneous actions acrossmultiple domains on multiple lines of operations could lead to joint
operations of debilitating complexity. The friction of military conflict urges
simplicity and punishes unnecessary complexity, but operations to overcome
opposed access are complex by nature. Commanders must be alert to thistension and must continuously strive for the proper balance.
The concept’s reliance on deep, precise strikes to neutralize enemy
antiaccess and area-denial weapons before they can inflict significant
losses may be unrealistic in the time frame of the concept. Locating,targeting and defeating such systems effectively from a distance remains a very
difficult challenge, from the perspectives of both target intelligence andweaponeering. If such hostile systems cannot be neutralized, the successful
execution of the concept could be at risk.
The concept could be logistically unsupportable. The concept’s callfor multiple operationally self-contained formations operating independently
imposes a logistical burden, but the concept offers no direct remedies otherthan improved efficiency. To mitigate this risk, commanders must remainaware of the logistical burden imposed by the concept of operations and must
be prepared to adjust the concept accordingly. Likewise, force developers mustseek to reduce logistical demand throughout the force.
The concept could be economically unsupportable in an era of
constrained Defense budgets. In its fullest form, this is a resource-intensive
concept. The emphasis on cross-domain synergy implies a degree of joint
interdependence at relatively low echelons that will demand a robust commandand control system and a major investment in frequent and realistic training
for those forces. The emphasis on distributed, independent lines of operations
will tend to demand greater numbers of smaller, but still capable, platforms,
while also increasing lift and sustainment requirements. The very nature of
opposed access argues for additional organizational strength to account forhigher casualty levels than joint forces have suffered in decades.

37Current national policy may not support operational requirements.
This concept advocates attacking the full depth of an enemy’s antiaccess/areadenial defenses rather than merely their perimeter. At times, that will require
strikes deep into the sovereign territory of other nations. Policy guidance may
restrict such strikes, especially if an enemy emplaces antiaccess/area-denial
systems in populated areas or possesses nuclear weapons and escalation is a
strategic concern. Moreover, this concept calls for early preparatory actions inthe space and cyberspace domains. Under current policy, authorization forsuch actions might not be forthcoming, especially in pre-crisis stages. In any
case, the mitigation is to work with policy makers to ensure that operational
requirements are clearly understood and accounted for.
Gaining and maintaining operational access in the face of armed
resistance is inherently fraught with risk. This is the nature of any
opposed access mission and not a risk specific to this concept in particular,
but it is worth stating nonetheless. The future antiaccess/area-denial
environment will demand accepting higher levels of calculated risk. Calculated
risk is not reckless; prudent consideration and actions to protect the force arean enduring requirement. When national interests are not at stake, risk
calculation rightly favors the expenditure of time and resources to minimize
casualties. Ultimately though, war is a dangerous enterprise and a force
conditioned to avoid risk develops habits that may leave it disadvantaged
against an opportunistic, willful, and risk-accepting adversary. Therefore, thejoint force must continuously evaluate risk while simultaneously recognizing
and exploiting or creating opportunities inside the adversary’s decision cycle.
It is just this opportunistic advantage, gained through cross-domain synergythat is proposed for mitigating the risk in the antiaccess/area-denial
environment.

12.

Conclusion

Joint forces must be able to project military force into any operational area in
the face of armed opposition in support of national interests. This is not a newchallenge, but it is one that U.S. joint forces have not been called upon to facein recent decades. That condition likely is changing, and the ability toovercome opposed access may prove to be of critical importance in coming
years. While the nature of force projection has not changed, three emerging
trends will impact its future conduct: dramatic improvement and proliferationof antiaccess/area-denial capabilities, changing U.S. overseas defense posture,and the emergence of space and cyberspace as increasingly important andcontested domains.
To meet this challenge, future joint forces will leverage cross-domainsynergy—the complementary vice merely additive employment of capabilities indifferent domains such that each enhances the effectiveness and compensates
38

for the vulnerabilities of the others—to establish superiority in somecombination of domains that will provide the freedom of action required by the
mission. The central idea describes in the broadest terms how the joint force
will gain operational access in the face of armed opposition. The supporting
precepts amplify that basic concept with an additional level of description.
Operationalizing this concept will result in implications across the joint
functions and will require the development and implementation of essential
capabilities. The capability and capacity implications of this approach arepotentially profound.

39

ANNEX A

GLOSSARY

Unless otherwise stated, all definitions are from ―DOD Dictionary of Military
Terms,‖ http://www.dtic.mil/doctrine/dod_dictionary/.
airborne. In relation to personnel, troops especially trained to effect, following
transport by air, an assault debarkation, either by parachuting or touchdown.
air superiority. That degree of dominance in the air battle of one force overanother that permits the conduct of operations by the former and its related
land, sea, and air forces at a given time and place without prohibitive
interference by the opposing force.
air supremacy. That degree of air superiority wherein the opposing force isincapable of effective interference.
amphibious force. An amphibious task force and a landing force together withother forces that are trained, organized, and equipped for amphibious
operations. Also called AF.
antiaccess. Those capabilities, usually long-range, designed to prevent anadvancing enemy from entering an operational area. [JOAC]
area-denial. Those capabilities, usually of shorter range, designed not to keep
the enemy out but to limit his freedom of action within the operational area.
[JOAC]
assured access. The unhindered national use of the global commons andselect sovereign territory, waters, airspace and cyberspace, achieved byprojecting all the elements of national power. [JOAC]
combat. A category of military activity that aims to defeat an armed enemy
through the application of force. [CCJO]
combined arms. More than one tactical branch, arm or specialty of a single
Service employed together in operations. [Adapted from AR 310-25, Dictionaryof U.S. Army Terms]
command and control. The exercise of authority and direction by a properly
designated commander over assigned and attached forces in theaccomplishment of the mission.
cross-domain synergy. The complementary vice merely additive employmentof capabilities in different domains such that each enhances the effectivenessand compensates for the vulnerabilities of the others. [JOAC]

40

cyber defense. The integrated application of DoD or U.S. Government
cyberspace capabilities and processes to synchronize in real-time the ability todetect, analyze and mitigate threats and vulnerabilities, and outmaneuver
adversaries, in order to defend designated networks, protect critical missions,and enable U.S. freedom of action. Cyber defense includes:
Proactive NetOps: (e.g., configuration control, information assurance (IA)measures, physical security and secure architecture design, intrusion
detection, firewalls, signature updates, encryption of data at rest);
Defensive Counter Cyber (DCC): Includes: military deception via
honeypots and other operations; and redirection, deactivation, or removal
of malware engaged in a hostile act/imminent hostile act;
Defensive Countermeasures.
[From ―Joint Terminology for Cyberspace Operations,‖ VCJCS memo for theService chiefs, combatant commanders and directors of Joint Staff directorates,
undated.]cyberspace. 1. A global domain within the information environment consistingof the interdependent network of information technology infrastructures,
including the Internet, telecommunications networks, computer systems, andembedded processors and controllers. [JP 1-02] 2. Domain characterized by
the use of electronics and the electromagnetic spectrum to store, modify, andexchange data via networked systems and associated physical infrastructures.
[From ―Joint Terminology for Cyberspace Operations,‖ VCJCS memo for theService chiefs, combatant commanders and directors of Joint Staff directorates,
undated.]cyberspace operations. The employment of cyber capabilities where theprimary purpose is to achieve objectives in or through cyberspace. Such
operations include computer network operations and activities to operate anddefend the Global Information Grid. [From ―Joint Terminology for Cyberspace
Operations,‖ VCJCS memo for the Service chiefs, combatant commanders anddirectors of Joint Staff directorates, undated.]cyberspace superiority. The degree of dominance in cyberspace by one force
that permits the secure, reliable conduct of operations by that force, and its
related land, air, sea and space forces at a given time and sphere of operations
without prohibitive interference by an adversary. [From ―Joint Terminology for
Cyberspace Operations,‖ VCJCS memo for the Service chiefs, combatantcommanders and directors of Joint Staff directorates, undated.]
deception. Those measures designed to mislead the enemy by manipulation,
distortion, or falsification of evidence to induce the enemy to react in a manner
prejudicial to the enemy's interests. See also military deception—Actions
executed to deliberately mislead adversary military decision makers as to41

friendly military capabilities, intentions, and operations, thereby causing theadversary to take specific actions (or inactions) that will contribute to theaccomplishment of the friendly mission.
domain superiority. That degree of dominance of one force over another in adomain that permits the conduct of operations by the former at a given timeand place without prohibitive interference by the latter. [JOAC]
electromagnetic deception. The deliberate radiation, re-radiation, alteration,
suppression, absorption, denial, enhancement, or reflection of electromagnetic
energy in a manner intended to convey misleading information to an enemy or
to enemy electromagnetic-dependent weapons, thereby degrading or
neutralizing the enemy's combat capability.
electromagnetic spectrum. The range of frequencies of electromagnetic
radiation from zero to infinity. It is divided into 26 alphabetically designatedbands.
electronic attack. Division of electronic warfare involving the use ofelectromagnetic energy, directed energy, or antiradiation weapons to attack
personnel, facilities, or equipment with the intent of degrading, neutralizing, or
destroying enemy combat capability and is considered a form of fires.
engagement. A category of military activity that seeks to improve thecapabilities of or cooperation with allied and other partners. [CCJO]
fires. The use of weapon systems to create a specific lethal or nonlethal effecton a target.
force projection. The ability to project the military instrument of national
power from the United States or another theater, in response to requirements
for military operations.
forcible entry. Seizing and holding of a military lodgment in the face of armed
opposition. (JP 3-18)
forcible entry (JOAC working definition). Projection of land forces onto
hostile territory in the face of armed opposition.
freedom of navigation operations. Operations conducted to demonstrate
U.S. or international rights to navigate air or sea routes.
global commons. Areas of air, sea, space and cyberspace that belong to no
one state. Access to the global commons is vital to U.S. national interests,
both as an end in itself and as a means to projecting military force into hostile
territory.

42

information environment. The aggregate of individuals, organizations, andsystems that collect, process, disseminate, or act on information.
information operations. The integrated employment, during military
operations, of information-related capabilities in concert with other lines ofoperation to influence, disrupt, corrupt, or usurp the decision-making ofadversaries and potential adversaries while protecting our own.
intelligence. The product resulting from the collection, processing,integration, evaluation, analysis, and interpretation of available information
concerning foreign nations, hostile or potentially hostile forces or elements, orareas of actual or potential operations.
joint force. A general term applied to a force composed of significant
elements, assigned or attached, of two or more Military Departments operating
under a single joint force commander.
joint functions. Related capabilities and activities grouped together to help
joint force commanders synchronize, integrate, and direct joint operations.
Functions that are common to joint operations at all levels of war fall into six
basic groups—command and control, intelligence, fires, movement andmaneuver, protection, and sustainment.
joint synergy. The combination of Service capabilities such that eachenhances the effectiveness and compensates for the vulnerabilities of theothers. [CCJO v3.0]
joint task force (JTF). A joint force that is constituted and so designated by
the Secretary of Defense, a combatant commander, a sub-unified commander,or an existing joint task force commander.
landing force. A Marine Corps or Army task organization formed to conductamphibious operations. The landing force, together with the amphibious task
force and other forces, constitute the amphibious force. Also called LF.
line of communications. A route, either land, water, and/or air, thatconnects an operating military force with a base of operations and along which
supplies and military forces move.
maritime superiority. That degree of dominance of one force over anotherthat permits the conduct of maritime operations by the former and its related
land, sea, and air forces at a given time and place without prohibitive
interference by the opposing force.
maritime supremacy. That degree of maritime superiority wherein the
opposing force is incapable of effective interference.

43

mission command. The conduct of military operations through decentralized
execution based upon mission-type orders.
mission-type order. 1. An order issued to a lower unit that includes theaccomplishment of the total mission assigned to the higher headquarters. 2.
An order to a unit to perform a mission without specifying how it is to beaccomplished.
movement and maneuver. This joint function encompasses disposing joint
forces to conduct campaigns, major operations, and other contingencies by
securing positional advantages before combat operations commence and by
exploiting tactical success to achieve operational and strategic objectives. Thisfunction includes moving or deploying forces into an operational area andconducting maneuver to operational depths for offensive and defensive
purposes. It also includes assuring the mobility of friendly forces.
objective area. A defined geographical area within which is located an
objective to be captured or reached by the military forces. This area is definedby competent authority for purposes of command and control.
operational access. The ability to project military force into an operational
area with sufficient freedom of action to accomplish the mission.
operational area. An overarching term encompassing more descriptive terms
for geographic areas in which military operations are conducted. Operational
areas include, but are not limited to, such descriptors as area of responsibility,
theater of war, theater of operations, joint operations area, amphibious
objective area, joint special operations area, and area of operations.
port of embarkation. The geographic point in a routing scheme from whichcargo or personnel depart. This may be a seaport or aerial port from which
personnel and equipment flow to a port of debarkation; for unit and non-unit
requirements, it may or may not coincide with the origin.
power projection. The ability of a nation to apply all or some of its elements ofnational power - political, economic, informational, or military - to rapidly andeffectively deploy and sustain forces in and from multiple dispersed locations to
respond to crises, to contribute to deterrence, and to enhance regional stability.
protection. The preservation of the effectiveness and survivability of missionrelated military and nonmilitary personnel, equipment, facilities, information,and infrastructure deployed or located within or outside the boundaries of agiven operational area.
reachback. The process of obtaining products, services, and applications, orforces, or equipment, or materiel from organizations that are not forward
deployed.
44relief and reconstruction. A category of military activity that seeks to restore
essential civil services in the wake of combat, a breakdown of civil order, or anatural disaster. [CCJO]
seabasing. The deployment, assembly, command, projection, reconstitution,and re-employment of joint power from the sea without reliance on land bases
within the operational area.
security. A category of military activity that seeks to protect and control civil
populations, territory and resources, whether friendly, hostile or neutral.
[CCJO]
space. A medium like the land, sea, and air within which military activities
shall be conducted to achieve U.S. national security objectives.
space situational awareness. The requisite current and predictive knowledgeof the space environment and the operational environment upon which space
operations depend - including physical, virtual, and human domains - as well
as all factors, activities, and events of friendly and adversary space forces
across the spectrum of conflict.
staging. Assembling, holding, and organizing arriving personnel, equipment,
and sustaining materiel in preparation for onward movement. The organizing
and preparation for movement of personnel, equipment, and materiel at
designated areas to incrementally build forces capable of meeting theoperational commander's requirements.
strategic distance. A descriptor for action originating outside the operationalarea, often from home station. [JOAC]
sustainment. The provision of logistics and personnel services required tomaintain and prolong operations until successful mission accomplishment.
unmanned aircraft. An aircraft or balloon that does not carry a humanoperator and is capable of flight under remote control or autonomous
programming. [Note: Includes remotely piloted aircraft, remotely piloted
vehicles, unmanned aerial vehicles and unmanned aircraft systems.]
weapons of mass destruction. Chemical, biological, radiological, or nuclear
weapons capable of a high order of destruction or causing mass casualties andexclude the means of transporting or propelling the weapon where such means
is a separable and divisible part from the weapon. Also called WMD.

45

ANNEX B

ASSESSMENT PLAN

The development of the JOAC followed a comprehensive Concept Development
Plan that employed an innovative approach and coordinated campaign toconcept development and assessment. The JOAC campaign consisted of four
integrated lines of effort: concept development; analysis; experimentation; andengagement/transition. This annex provides a summary of the assessment
activity used to develop the JOAC. It concludes with a recommended way
ahead that identifies key aspects requiring further assessment that are suitablefor inclusion into the annual joint experimentation work plan.
B.1 Concept Development Framework
Figure 3 depicts the JOAC campaign framework with concept development,
experimentation, and engagement and transition lines of effort across the
project timeline with the analysis line of effort interwoven throughout the
project. This framework enabled complete integration of all lines of effort insupport of the development of the JOAC.

Figure 3. JOAC Project Framework
Based on an approved warfighter challenge and guided by CJCSI 3010, theJOAC Project Team adapted the Statement of the Military Problem, Outcomes,
46

Objectives, Products, and Activities (SOOPA) model shown in Figure 4, which
was updated as understanding of the JOA problem and solution improved.

S

O

O

P

A

The essential problem for future joint forces is to be able to project
military force into an operational area and sustain it in the face of armed
opposition in light of the following three trends:
Future enemies are acquiring dramatically improved antiaccessStatement ofand area-denial capabilities.
U.S. overseas defense posture is declining, increasing thethe Militaryrequirement for force projection from the U.S. Homeland.
ProblemSpace and cyberspace are becoming increasingly important andcontested domains.
Meeting that challenge increasingly will require defeating integrated
antiaccess/area-denial systems of growing lethality and sophistication.
1) Concept that describes how a future Joint Force Commander (JFC)
will fight for freedom of action within the global commons and selectsovereign territory across the range of expeditionary operations in an
Outcomes
opposed access environment.
2) Required joint force capabilities identified / transitioned to theappropriate capability development sponsors.
1) Establish a common intellectual framework for military
professionals, policymakers, and others interested in the challenge of
opposed access.
2) Invigorate interest in, and the study of, an operational challenge thata generation of military leaders, focused on other missions, has not
had to consider in recent years.
Objectives3) Establish a basis for subsequent joint and Service concepts anddoctrine.
4) Identify the broad capabilities required to gain operational access inthe face of armed opposition.
5) Inform study, evaluation, wargaming, and experimentation that will
result in changes to DOTMLPF.
Signed JOAC that serves as the Chairman’s vision for the joint force’s ability to
Products
gain and maintain operational access across all domains.
Complete all Chairman of the Joint Chiefs of Staff Manual (CJCSM) 3010
Concept Development activities as required, including but not limited to:1) Initial Stakeholder Conference2) Writing Workshops
3) Writing activities of outlines, drafts, and final products
4) Planning Conferences
5) Capabilities Limited Objective Experiment
Activities
6) Leveraging other combatant command and Service events
7) Red Team Review and Red Team Comments Resolution
8) Joint Staff Action Process (JSAP) Staffing9) In-progress reviews (IPR) to Operational Deputies (OPSDEPS)
10) Joint Chiefs of Staff (JCS) Tank Presentation
11) Transition ―Off Ramps‖

Figure 4. JOAC SOOPA Model
This SOOPA model resulted in an initial draft of the JOAC that included an
identification of the scope and purpose of the concept as well as an overview of
the threat environment.

47

Figure 5 provides an overview of the concept development architecture for the
JOAC project. Highlights of this architecture include a breakout of each line ofeffort and the interrelationships between key supporting activities. Thisapproach recognizes Joint Experimentation as an integral part of the full cycleof concept development, assessment, and transition. Joint Experimentation
design experts and analysts were included from the outset in the concept
development process.

Concept Writing Activities
Roundtable Discussions
SOOPA
DARPA
SeminarWargame

JOAC
Initial Draft

CrossDomain
Synergy

Central Idea
& Elements

GlobalCommons

Space

Cyber

Stakeholders
ConferenceJOAC
version 0.5

Literature
Review

JOAC
version 0.23

JOAC
version 0.28

Coordination

JOAC
version 0.3

JOAC
revisions

Experimentation Venues
Initial JOAC
capabilties

JOAC Activity
Model

JOAC Mission
Capabilities
Library

Identified &prioritizedcapabilities

JOA planningconsiderations

JFEWE

Transition
JOAC
version 1.0

EW 11
LOE

Supportdata

Reassessedcapabilities

RevisedJOAC Activity
Model

DOTMLPF
implications

Engagement

Briefings showing
analytic & valid
underpinning to JOAC

JS/J-7
Doctrine
Training
Leadership
JS/J-8Organization(J-1 & J-5 support)
Materiel (FCBs)
J-1
Personnel
J-4
Facilities

Figure 5. JOAC Development Architecture

Summaries of the major JOAC development activities by line of effort follow inthe sections below.
B.2 Concept Development Line of Effort
The JOAC Core Writing Team (CWT) consisted of subject matter experts (SME)from each of the four Services, JS J7, a space SME from OSD AT&L, and a48

USJFCOM concept development team. Each of the combatant commands also
had the opportunity to assign a SME to the CWT. Throughout the development
process, the CWT participated in an extensive literature review, a series of SME
round table discussions, and the CJCSI 3010 defined concept development
process. The CWT also participated in and leveraged findings from theexperimentation and analytic support efforts. The following subsections
summarize these activities.
B.2.1 Literature Summary and Data Review
Development of the JOAC began with an extensive literature summary and data
review to identify leading thought among academics and military leaders on theissues surrounding opposed operational access and the potential solutions tocombating these issues. The summary of the literature and data reviews
provided a front-end analysis of JOA and a comprehensive body of knowledge
that provides support to the concepts found in the JOAC. The review also
examined past, ongoing, and future concept development activities that could
contribute to the JOA Concept project.
The review contains a summary of key facts, assumptions, implications,conditions, and issues related to JOA. The activity centers on identification ofideas that supported the CWT’s development of each section of the paper. The
review enabled development of an initial list of tasks and capabilities related to
JOA that were vetted and refined through experimentation. Key findings fromthe literature survey, as found in its executive summary, are excerpted as
quotes below.
Strategic guidance and doctrine support the development of a concept for
JOA. The National Security Strategy (NSS) concludes the nation must
prepare for ―…increasingly sophisticated adversaries, [and] deterring anddefeating aggression in anti-access environments.‖ Additionally, theQuadrennial Defense Review (QDR) acknowledges a challenging
operational landscape that includes:• Increasingly multidimensional conflicts (―hybrid‖ threats)• Threats to the global commons and expansion into space andcyberspace• Growing anti-access (A2) / area denial (AD) capabilities, including
ballistic missile threats
While the challenges inherent in access are not new, the Joint Forcerequires a concept for JOA now because of significant changes in theoperational environment. Emergent concerns include:• Weak and failing states, rising nations, and non-state actors• Proliferation of technology and weapons of mass destruction (WMD)
combined with the effects of globalization, which will bring thehomeland into reach – U.S. bases are not immune

49

•
•
•
•
•

More widely available longer-range, more precise weapons
Protection of ―homeland‖ will include elements of space andcyberspace
Hybrid challenges and tactics
Air and sea dominance are not assured
U.S. dependence on space and cyberspace

The development of longer range intelligence, surveillance, andreconnaissance (ISR) capabilities by potential anti-access opponent[s]suggests that the assumed near-immunity of U.S. forces in the post-Cold
War era is eroding and maritime vulnerability is returning to the lateSoviet period.
The open nature of the World Wide Web and the diffusion of related
technical knowledge throughout the world have created an environment
with major threats to the freedom of cyberspace. Threats to cyberspacesubsequently increase vulnerabilities for militaries that rely on
cyberspace technologies. Space has become the primary location for
global and regional reconnaissance assets used for nuclear weapons
monitoring, intelligence gathering, and support of combat operations on
the earth's surface. A logical opening operation to any anti-accesscampaign is to neutralize U.S. space assets.
Understanding the strategic and operational implications of the A2/AD
challenge requires an examination of the following aspects of the futureenvironment:• Rising regional powers adapting strategies and capabilities to deny US
access and freedom of action as a strategy.
• Increasingly capable future enemies will see the adoption of anantiaccess/area-denial strategy against the United States as a viablecourse of action.
• The ability to ensure operational access in the future is being
challenged—and may well be the most difficult operational challenge
U.S. forces will face over the coming decades.
While the need for access is not new, changes in the strategic andoperational environment, proliferation of technology, emergence of nonstate actors with state-like power, and widening abilities to disrupt the
space and cyber domains dramatically alter the military equation.
Challenges exist in all five domains (air, cyber, land, sea, and space).
Hence, solutions mandate development of cross-domain capabilities.
These capabilities do not reside in a single Service, and therefore, requirea joint concept to effectively gain and maintain JOA.
The JOAC Literature Summary and Data Review is available at the link below:(https://us.jfcom.mil/sites/J9/CG/OA/Shared%20Documents/Forms/AllItem

50

s.aspx?RootFolder=%2fsites%2fJ9%2fCG%2fOA%2fShared%20Documents%2fJ
OAC%20Deliverables%2f3%2e3%20Summary%20of%20Literature%5fData%20
Review&FolderCTID=&View=%7bFC439951%2d2D0F%2d4237%2dAFD8%2d16
097158B7DF%7d).
B.2.2 Seminar Wargames and Round Table Discussions
Beginning in July 2010, using the literature survey as the starting point, theCWT participated in a series of seminar wargames and held a series of roundtable discussions with groups of Highly Qualified Experts (HQE) to elicit
perspectives on access challenges. The approach targeted events to inform the
purpose and scope of the concept, understanding the nature of the challenge
and evolving threat, identifying the statement of the military problem, andexploring solutions to that problem. Additionally, the CWT met on a regularbasis throughout this process to refine the paper. The CWT developed key
terms and working definitions to support the concept. Events that supported
them included:
Joint Operational Environment Seminar Wargame on Challenges to the
Global Commons
National Defense University SME panel discussion on the emerging
Antiaccess/Area-denial Threat
Round table discussion on the statement of the military problem
Access Challenges to Space round table discussion
Access Challenges in the Cyberspace Domain round table discussion
Domain Synergy round table discussion
Defense Advanced Research Projects Agency (DARPA)/Center for
Strategic and Budgetary Assessments (CSBA) Seminar Wargame on
A2/AD and Guided Rockets, Artillery, Missiles, and Mortars (G-RAMM)
Executive summaries and results of these events can be found at:https://us.jfcom.mil/sites/J9/CG/OA/Shared%20Documents/Forms/AllItem
s.aspx.
Key to success was the CWT’s ability to participate in and leverage otherrelated Service experimentation efforts including the U.S. Army’s Joint Forcible
Entry Warfighter Experiment (JFEWE) and the USMC Expeditionary Warrior
2011 (EW 11) to both validate and further enrich the JOAC development
process. The effects that these activities had on the progression of thought in
the development of the JOAC are discussed within the Experimentation Line ofEffort.
B.2.3 Review Activities
Additionally, the JOAC paper has been thoroughly reviewed by subject matter
experts both within and outside the Department of Defense.

51

The Joint Staff J7 sponsored a Red Team Review consisting of both
retired flag and general officers and senior civilians to review JOAC v0.3.
Over a period of three weeks from 25 Feb to 18 Mar 11, the Red Team
analyzed the draft concept, challenging its ideas and assertions to
identify defeat mechanisms within it and inform the JOAC v0.5
The Joint Staff J7 conducted an initial coordination review of JOAC v0.5
via the Joint Staff Action Process (JSAP). Those comments were
adjudicated by the CWT to inform JOAC v0.7
The Joint Staff J7 conducted a final coordination review of JOAC v0.7.
Those comments were adjudicated by the CWT to inform JOAC v0.9
B.3 Experimentation Line of Effort
The JOAC campaign framework included a line of experimentation used tosupport the development of the JOAC. These activities included: the JOAC
Capabilities Limited Objective Experiment (LOE); the United States Marine
Corps, Title 10 experiment, EW 11; and the United States Army, JFEWE.
Details about these events, the JOAC Project experimentation approach, andfindings and insights from these events can be found in the JOAC Capabilities
Limited Objective Experiment (LOE) Final Report, the JOAC Capabilities Limited
Objective Experiment (LOE) Final Report Supplement III – EW 11, and the JOAC
Capabilities Limited Objective Experiment (LOE) Final Report Supplement IV JFEWE, respectively. The JOAC Team leveraged two additional events, theUnited States Air Force Global Mobility Wargame, and the United States Navy
Global 11. While these activities provided valuable insight into JOAC
development and validation, the level of JOAC involvement did not warrant
formal supplements to the JOAC LOE Final Report. The following subsections
summarize the events and the key findings for the JOAC Project.
B.3.1 Global Mobility Wargame: 7-11 Jun 10
The JOAC Project leveraged the USAF Global Mobility Wargame to shape theteam’s nascent understanding of the antiaccess/area-denial challenge. The
purpose of the Global Mobility Wargame was to address air mobility andlogistics issues in preparation for Unified Endeavor 2010, the Air Force’s
biennial Title 10 wargame.
Participation in the Global Mobility Wargame enabled the JOAC Project Teamto better understand the following four key issues:
The advantages and disadvantages of future precision delivery systems in
geographically challenging environments
The manner by which joint future theater lift might be employed inconcert with the rest of the Mobility Air Forces
The manner by which antiaccess/area-denial challenges impact the52

Pacific en route strategy
The manner by which the Seabasing Joint Integrating Concept impacts
the USAF contribution to theater distribution and sustainment
These findings helped shape the team’s initial thoughts pertaining to theoperational access challenge and assisted in the development of ideas
pertaining to force projection in an antiaccess/area-denial environment.
B.3.2 Limited Objective Experiment: 5-10 Dec 10
The JOAC LOE examined the future challenges the joint force may face gaining
operational access while overcoming future A2/AD capabilities in the face ofarmed opposition by a variety of potential enemies and under a variety ofconditions. To enable a sufficient depth of conversation, the JOAC LOE was aclassified event, using approved Defense Planning Scenarios (DPS) and MultiService Force Deployment (MSFD)-based vignettes to ensure a broad spectrumof enemy challenges and capabilities was captured. Three operational vignettes(near-peer, regional hegemony, hybrid high / low insurgency) were developedand examined spanning a wide range of military operations representing three
distinct portions of the future environment.
The objectives for the JOAC LOE were as follows:
Provide a prioritized list of operational capability requirements needed to
conduct JOA across a broad threat spectrum
Provide insights to the JOAC
Provide a structure to better understand the JOA challengeThis was accomplished by studying the activities required to conduct JOA.
These activities were represented through a JOAC Activity Model (AM) as the
backbone of the analytic framework that describes the high level operational
activities necessary for JOA. Each of these activities was directly related to
doctrinal or Department of Defense (DOD) definitions as well as Universal Joint
Task List (UJTL) tasks and Joint Capability Areas (JCA) as applicable. ThisJOAC AM provided the functional context for the JOAC LOE assessment.
The JOAC LOE was conducted in a single plenary group over the course of six
days in a facilitator-led discussion aimed to explore key elements of interest for
identifying and then prioritizing the operational capabilities required for JOA.
Participants included members of the community of interest, SMEs in the three
MSFD threats, and members of the writing team. The facilitator used guiding
questions to get at data of interest through the operational context provided by
the vignettes. Participants were able to document any additional thoughts or
discussion using threaded discussion in FacilitatePro®, a collaborative tool that53

allows participants to contribute to conversations as they occur.
JOAC v0.23 was the current version of the JOAC at the time of the event. The
results of the experiment were related to this version of the paper. LOE results
led to the development of the JOAC precepts, underscored many capabilities
already found in JOAC v0.23, and highlighted additional capabilities required.
The JOAC LOE provided valuable insights needed for the future joint force tooperate against an adversary posing an A2/AD strategy circa 2028. Thirty-six
initial capability requirements resulted from the LOE. Significant findings that
impacted the revision of JOAC included:
The importance of ISR requirements as a means to understanding
intentions through precursor surveillance reinforced the need identified
in the JOAC to apply information in a precise and effective manner tolocate and understand enemy A2/AD capabilities. These ISR capabilities
apply to both collection and analysis
Identification of engagement activities necessary to prepare theoperational area for facilitating access. This need for engagement affects
other capability areas such as requirements in logistics to build amultitude of dispersed bases and enhancing survivability of prepositioned materiel
The importance of a more adaptable and mobile force, which is reflectedin the LOE logistics requirements, calling for smaller, autonomous
entities that have the ability to move over long ranges with reduced
sustainment requirements
The protection of space and cyber assets and the ability to attack theenemy’s space and cyber capabilities. This requirement led to a
recommended organizational improvement of a cyber cell within the
Joint Task Force (JTF) Headquarters
The need for cross-domain synergy, the ability to create advantage in one
domain (or more) that provides opportunity or advantage in anotherdomain, is emphasized by the JOAC as an important requirement for
operating in the future environment in order to fragment an adversary’s
A2/AD capabilities
Emphasized the need for camouflage, concealment, and deception (CCD),
calling for training pertinent to CCD as well as the ability to counter orconceal information
Identification of the need for better understanding of multi-combatantcommand leadership structure, cross-domain synchronization andawareness
B.3.3 Expeditionary Warrior 2011 (EW 11): 31 Jan - 4 Feb 11
The JOAC Project leveraged the USMC EW 11, an important component of the
USMC Title 10 wargaming program, to vet the ideas contained in the JOAC
v0.28 with the community of interest. The purpose of EW 11 was to explore
54the USMC’s role in a JOA environment and further develop the Enhanced
Marine Air-Ground Task Force (MAGTF) Operations (EMO) concept at theoperational and tactical levels in an unclassified seminar-style wargame. The
event was co-sponsored by Headquarters USMC, Marine Corps Combat
Development Command (MCCDC) G3/5 and the Marine Corps Warfighting
Laboratory (MCWL). Representatives from the Services, combatant commands,
foreign military officers, and NATO Allied Command Transformation (NATO
ACT) participated in the wargame.
EW 11 discussions provided a means to determine credibility of theoverarching concept of domain synergy, the underlying precepts, and identified
capabilities embedded within the JOAC v0.28. Facilitated discussions during
EW 11 explicitly addressed the utility of the JOAC in addressing the JOA
problem. The JOAC Project Team supported the execution of EW 11 by
supplying facilitators, analysts, and rapporteurs to two of the JOAC cells: the
JTF and Combined JTF (CJTF). EW 11 JOAC results supported thedevelopment of JOAC v0.3 and JOAC v0.5. Detailed information on EW 11 andthe EW 11 Final Report may be obtained by contacting Maj Michael Tirone,
Wargaming Division, MCWL, (703) 784-6882, michael.tirone@usmc.mil.
While the EW 11 results indirectly reinforced, and in some cases indicated,areas for refinement in the capabilities required for JOA, the identification ofareas requiring expansion, clarification, or inclusion within the JOAC was theprimary outcome from the wargame. Significant findings that impacted therevision of JOAC included:
The need to create stronger linkages to other current concepts
The need to add capabilities that enable integration of our multinational partners
The need to better articulate the emerging importance of space andcyberspace
B.3.4 Joint Forcible Entry Warfighter Experiment (JFEWE): 19-21 Jan
11, 7-17 Mar 11
The JOAC Project leveraged the USA JFEWE 2011 by sending analysts andobservers to the JFEWE experiment to identify and record insights to support
the development of the JOAC. The primary focus for the JOAC Project Teamwas on the JFEWE Shaping Seminar (SS), hosted by the Mission Command
Battle Lab (MCBL) at Ft. Leavenworth, KS, 19-21 Jan 11, given its focus on
operational access at the planning level. The focus at the tactical level of the
JFEWE Simulation Exercise (SIMEX), hosted by the Maneuver Battle Lab (MBL)at Fort Benning, GA, 7-17 Mar 11, was less conducive to the identification of
JOA capability requirements at the operational level. The overall approach for
JFEWE SS was designed to view Joint Operational Access (JOA) capabilities
through the lens of Joint Publication 3-18, Joint Forcible Entry Operations.

55

JFEWE SIMEX was designed to address the operational access issues of asignificant tactical force. JFEWE SIMEX was primarily concerned with area
denial issues as defined by the JOAC. The JFEWE SS supported the JFEWE
SIMEX and provided limited support to JOAC development.
The design of the JFEWE SS and its primary nature as a JFEWE SIMEX
planning effort did not allow direct data collection by the JOAC team. However,the JOAC Project Team indirectly collected data on a revised JOA question set
developed following the JOAC LOE. This JFEWE SS data was derived from theevent discussions and comments made by the participants in FacilitatePro®.
Although open discussion was greatly limited, survey responses collectedduring the event provided some evidence that reinforced JOA capabilities
identified in the JOAC LOE. Similarly, the design and focus of the JFEWE
SIMEX limited JOAC insights. However, the survey responses for this event
also reinforced JOA capabilities identified during the JOAC LOE. Detailed
information on the JFEWE may be obtained by contacting the following pointsof contact:
JFEWE SS: Mr. Duane Riddle, duane.riddle@us.army.mil
JFEWE SIMEX: Mr. Bob Kruger, bob.kruger@us.army.mil
JFEWE: Mr. Jason Rakocy, jason.rakocy@us.army.mil
JFEWE significant findings that impacted the revision of JOAC included:
The requirement to operate in a degraded C2 environment andreconstitute supporting space assets once lost
The requirement to overcome the A2/AD environment and strategy
posed by adversaries’ closed communities and propensity to operate
within and among civilian populations. To do so, the joint force requires
the capabilities of: strong HUMINT; trust building activities as part ofsetting conditions and establishing forward presence; and teams trained
to operate within and among the populations of interest
The requirement for cross-domain synergy and synchronization acrossthe five domains (air, maritime, land, space, and cyberspace)
The ability to operate in austere and degraded environments
The criticality of time and space when trying to synchronize the physicaldomains with operations in the space and cyberspace domains
Many capabilities identified during the JOAC LOE were underscored byboth the JFEWE SS and the JFEWE SIMEX

B.3.5 Global 11 Wargame: 15-22 Jul 11
The JOAC Project leveraged the USN Global 11 Wargame to serve as anothervalidation event, to support revision of the JOAC v0.7, and to inform follow-on
56conceptual work and transition efforts. The purpose of the Global 11 Wargame
was to investigate the USN’s ability to exercise sea control as necessary tosupport joint ground combat operations via seabasing.
During Global 11, the JOAC Team found that although the term ―cross-domainsynergy‖ (the central idea of the JOAC) was not a term of art for the players, as
planning began it became readily apparent that synchronization of domain
capabilities would be required to set conditions to successfully execute the
Joint Task Force mission. Additionally, the participants employed many tenetsof the JOAC precepts during the design, planning, and execution of thewargame.
By the event’s conclusion, it appeared that all participants clearly understoodthe difficulties associated with the future antiaccess/area-denial fight.
Discussions during the planning and out brief indicated that the JOAC
problem statement, central idea, precepts, and required capabilities arecorrect.
Participation in the event’s follow-on DOTMLPF workshop facilitated an
implications crosswalk between the wargame’s results and the JOAC, resulting
in a refinement of the concept’s identified capabilities.
B.4 Synthesis Activities
The JOAC Project Team compared the results from the experimentation efforts
to the material resident in JOAC v0.3 to provide an analytic assessment ofcontent that the writing team should address in its v0.5 revision. This analysis
identified where and how findings from the experimentation efforts wereaddressed and identified any potential inconsistencies and deficiencies incoverage. It included an Analysis Crosswalk between the experimentation
analysis products and JOAC v0.3 and an evaluation of the expression of thecapabilities within JOAC v0.3 in terms of resolution (i.e., operational level) andfidelity (i.e., specificity of the expressed capability). The Analysis Crosswalk
also contains a combined summary of implications from both of these analyses.
The writing team used this holistic evaluation as part of their revisionassessments.
The analysis included an assessment of the manner in which the findings and
JOA capabilities identified during the JOAC LOE are captured within the JOAC
v0.3. The analysis also assessed the changes to JOAC v0.3 resulting from theEW11 and JFEWE experimental findings. The assumptions used to evaluate
whether the JOAC v0.3 capabilities were at the operational level andappropriate for a concept formed criteria and constraints for JOAC v0.5. These
criteria and constraints are given below:
Criterion 1:

The capabilities identified in the JOAC v0.3 need to be at theoperational level57

Criterion 2:

The capabilities identified in the JOAC v0.3 need to be solution
agnostic
Criterion 3: The capabilities identified in the JOAC v0.3 need to be identifiable
as potentially having a solution within the purview of a specific
FCB (Battlespace Awareness, Logistics, Force Application,
Protection, Building Partnerships, Command and Control, NetCentric Operations)
Criterion 4: The capabilities identified in the JOAC v0.3 need to address thosecapabilities required to enable cross-domain synergy
Criterion 5: The capabilities identified in the JOAC v0.3 need to address thosecapabilities required to meet antiaccess challenges
Criterion 6: The capabilities identified in the JOAC v0.3 need to address thosecapabilities required to meet area-denial challenges
Constraint 1: Capabilities must all satisfy criteria one, two, and three as well as
at least one of criteria four, five, or six
Constraint 2: Discussion within the body of the JOAC needs to clearly lead thereader to the conclusion that the list of capabilities is required tomeet the A2/AD challenge and support the overarching conceptof cross-domain synergy. That is, the discussion must support
the list of required capabilities
Detailed findings and recommendations from this analysis can be found in the
Analysis Crosswalk at:https://us.jfcom.mil/sites/J9/CG/OA/Shared%20Documents/Forms/AllItem
s.aspx?RootFolder=%2fsites%2fJ9%2fCG%2fOA%2fShared%20Documents%2fJ
OAC%20Deliverables%2f3%2e17%20Concept%20Draft%20v0%2e5&FolderCTI
D=0x0120009776195D76ADCB4BB0479D46A3CD069E&View=%7bFC439951%2d2D0F%2d4237%2dAFD8%2d16097158B7DF%7d.
B.5 Way Ahead
The JOAC conceptual and experimental work used in the development of the
JOAC underscores the importance of overcoming A2/AD challenges across thejoint force. Further highlighting the need to continue this work is the fact thatthe nature of the access problem will likely change and evolve over time, as will
the geopolitical environment. Solutions to the access problem lie within thepurview of Service capabilities, but must be continually informed by the joint
community. Considering the size and scope of the issue, the JOAC cannot
solve every A2/AD challenge, nor does it provide a detailed capabilities list thatwill immediately result in DOTMLPF solutions. The JOAC should serve as the
Joint Force conceptual foundation for addressing the A2/AD challenge. The
path to generating solutions starts with a more in-depth examination of theunderlying conceptual implications of the JOAC to include:58

Integration and development of supporting concepts to operationalize the
JOAC. These supporting concepts will provide a greater degree of fidelity
to key portions of the JOAC
Follow-on analysis, identification and transitioning of the DOTMLPF
implications of adopting the JOAC
Further investigation at the joint and Service level of the required
capabilities identified in the JOAC
The Department of Defense should leverage the Joint Capability Integration
Development System as a pathway for this follow-on work to proceed.

59

ANNEX C

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