AFDD Template Guide

20 September 2002

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LEGAL SUPPORT

Air Force Doctrine Document 2-4.5

15 May 2003
BY ORDER OF THE AIR FORCE DOCTRINE DOCUMENT 2-4.5

SECRETARY OF THE AIR FORCE 15 MAY 2003

OPR: HQ AFDC/DR (Maj Sherrina McQuain)

Certified by: AFDC/DR (Col Gary Cox)

Pages: 63

Distribution: F

Approved by: DAVID F. MacGHEE, JR., Major General, USAF 

Commander, Air Force Doctrine Center
i

FOREWORD

Today’s operations take place in an increasingly legalistic environment under close

scrutiny of the public and press. This environment mandates proactive attention to challenges 

and opportunities in every aspect of the legal fields of practice. Commanders have found that

judge advocates and paralegals offer far more than merely legal counsel. They combine their

knowledge of the law with operational expertise to enhance warfighting capabilities and assist

commanders and staffs during the decision making and planning processes. They have also

served as effective negotiators, spokespersons, writers, and liaisons to host-nation officials and

nongovernmental organizations and agencies.

History demonstrates that Air Force judge advocates and paralegals are essential members 

of the airman’s warfighting team. They provide legal support during all phases of Air Force

operations. In 1946, when General Carl “Tooey” Spaatz testified before Congress about the

creation of a separate Air Force, he carried a strongly supportive legal opinion signed by the Air

Judge Advocate. Judge advocates accompanied units of the newly formed United States Air

Force to Korea. Later, many judge advocates and paralegals served in Southeast Asia.

During Operation JUST CAUSE, judge advocates were for the first time at the very heart 

of theater-level combat planning and execution. Throughout Operations DESERT SHIELD and

DESERT STORM, a judge advocate was part of the now-famous “Black Hole” planning cell. 

Judge advocates and paralegals were assigned to other units throughout the theater. In 1991,

Lieutenant General Michael A. Nelson, Deputy Chief of Staff for Plans and Operations, and

Major General David C. Morehouse, The Judge Advocate General, jointly signed a letter stating, 

“We cannot afford to wait for war to bring judge advocates into the operations and planning

environment. We need to work together all the time so that we all understand how and why the 

Law of Armed Conflict (LOAC) must be an essential element of our mission.” Over the past

decade judge advocates and paralegals have been actively involved in a wide-range of

contingency operations and exercises to include Operations NORTHERN WATCH, 

SOUTHERN WATCH, ENDURING FREEDOM, NOBLE EAGLE (ONE), and IRAQI

FREEDOM (OIF).

This publication describes the role of legal support to Air Force operations in the 21st

Century. We must constantly debate and refine the lessons of history to ensure Air Force legal

support doctrine continues to serve tomorrow’s airmen.

DAVID F. MacGHEE, JR.

Major General, USAF

Commander, Air Force Doctrine Center

iii

TABLE OF CONTENTS

INTRODUCTION........................................................................................................................... v

FOUNDATIONAL DOCTRINE STATEMENTS ....................................................................... vii

CHAPTER ONE—The Nature of Legal Support........................................................................... 1

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

Principles of Legal Support ........................................................................................................ 2

Accuracy ................................................................................................................................. 2

Timeliness............................................................................................................................... 2

Moral Courage ........................................................................................................................ 2

Analogy................................................................................................................................... 3

Situational Awareness............................................................................................................. 3

Legal Support Competencies...................................................................................................... 3

Operational Readiness ............................................................................................................ 3

Legal Information Mastery...................................................................................................... 3

Authoritative Counsel ............................................................................................................. 3

Compelling Advocacy and Litigation ..................................................................................... 4

Fair Military Justice ................................................................................................................ 4

Robust Legal Programs........................................................................................................... 4

Organization of Air Force Legal Support ................................................................................... 4

Expeditionary Legal Support .................................................................................................. 5

Legal Support to Air and Space Expeditionary Task Forces.................................................. 5

Legal Support in Joint Operations .......................................................................................... 6

CHAPTER TWO— Legal Support for Air Force Operations........................................................ 7

Introduction................................................................................................................................. 7

Armed Conflict ........................................................................................................................... 7

Information Operations........................................................................................................... 8

Military Operations Other Than War.......................................................................................... 8

Operations Planning.................................................................................................................. 10

Deliberate Planning............................................................................................................... 10

Crisis Action Planning (CAP)............................................................................................... 11

Legal Support to Command Levels, Functions, and Activities ................................................ 13

Combat Support ........................................................................................................................ 14

Command-directed Investigations and Inquires During Operations......................................... 15

Maintenance of Good Order and Discipline ............................................................................. 16

Legal Support Reachback ......................................................................................................... 16

Legal Support Equipment ......................................................................................................... 18

CHAPTER THREE—Legal Support for Rules of Engagement (ROE)....................................... 21

Introduction............................................................................................................................... 21

ROEs Defined ........................................................................................................................... 21

Purposes of ROEs..................................................................................................................... 21

Principles of ROEs.................................................................................................................... 22

Characteristics of Effective ROEs............................................................................................ 23
iv

Role of Legal Support Staff...................................................................................................... 24

Developing ROEs ................................................................................................................. 24

Interpreting ROEs................................................................................................................. 25

Modifying ROEs................................................................................................................... 26

Implementing ROEs.............................................................................................................. 26

Rules for the Use of Force ........................................................................................................ 26

Commander's ROE Checklist ................................................................................................... 27

Primary ROE Considerations................................................................................................ 27

ROE Fundamentals............................................................................................................... 27

ROE Game Plan.................................................................................................................... 28

CHAPTER FOUR—Legal Support to the Air and Space Operations Center .............................. 31

Introduction............................................................................................................................... 31

Primary Functions and Capabilities.......................................................................................... 31

Organization of Legal Support.................................................................................................. 32

Legal Support to the Strategy Division................................................................................. 32

Legal Support to the Combat Plans Division........................................................................ 33

Legal Support to the Combat Operations Division............................................................... 35

Legal Support to the Air Mobility Division.......................................................................... 36

CHAPTER FIVE—Role of Legal Support in Operational Readiness.......................................... 37

Introduction............................................................................................................................... 37

Operational Readiness of Air Force Forces.............................................................................. 37

Readying the Force ............................................................................................................... 38

Preparing the Force ............................................................................................................... 39

Protecting the Force .............................................................................................................. 39

Positioning the Force ............................................................................................................ 40

Employing the Force............................................................................................................. 41

Sustaining the Force.............................................................................................................. 41

Recovering the Force ............................................................................................................ 42

Operational Readiness of the Legal Support Staff.................................................................... 42

Suggested Readings ...................................................................................................................... 45

Glossary ........................................................................................................................................ 47
v

INTRODUCTION

PURPOSE

This Air Force Doctrine Document (AFDD) establishes doctrinal guidance for legal

support to air and space forces at the operational level of conflict across the full range of military

operations.

APPLICATION

AFDD 2-4.5 applies to all active duty Air Force military and civilian legal support

personnel, including Air Force Reserve Command (AFRC), and Air National Guard (ANG) units 

and members. The doctrine in this document is authoritative but not directive. It provides

guidance to effectively utilize legal resources in support of air and space operations in peace and 

war. Commanders should consider both the circumstances of the particular mission along with

the contents of this doctrine document in their decision-making process.

SCOPE

The US Air Force provides air and space forces that are used across the full range of

military operations at the strategic, operational, and tactical levels and across the spectrum of

operations, from military operations other than war (MOOTW) to war. AFDD 2-4.5 discusses

the principles and means of Air Force legal support to air, space, and information operations that 

are essential to planning and executing missions assigned through the chain of command.

vii

FOUNDATIONAL DOCTRINE STATEMENTS

Foundational doctrine statements (FDS) are the basic principles and beliefs upon which

AFDDs are built. Other information in the AFDDs expands on or supports these statements.

μ The role of legal support is to analyze and evaluate circumstances, identify options, assess

risks, and then provide timely advice to commanders.

μ Commanders rely on legal support to provide a broad perspective based not only on the law,

but also on other relevant considerations, to aid in critical decision making.

μ Judge advocates determine the existing legal environment and the laws that govern combat

operations and seek to ensure all operations are consistent with the law and national policy. 

μ The role of the supported commander will dictate the issues the legal support staff will be

required to address—either operational, administrative, or both.

μ The legal support staff does not own or control the ROE process, but serves as the principal

advisor to the commander and the commander's staff.

μ The legal support staff should be involved early in the planning process to ensure effective

ROE are developed.

μ Judge advocates advise commanders on the rules for the use of force at times and in areas

where ROEs are not applicable.

μ The level of command will determine the scope of legal services required to support the

mission.

μ The primary function and responsibility of a judge advocate within the air and space

operations center (AOC) is to recommend legally acceptable courses of action to the

operational branch of the chain of command.

μ Air Force readiness demands that the legal support staff be organized, trained, and equipped

to support air and space operations at all levels and in varied environments.

1

CHAPTER ONE

THE NATURE OF LEGAL SUPPORT

INTRODUCTION

Air Force legal support is essential to successful air and space operations. In the Air 

Force, legal support consists of judge advocates, paralegals, and civilian employees who provide 

legal services to commanders on the legal aspects of military operations. Air Force legal

personnel support operations through legal activities at home station, at forward operating

locations, or through reachback. The legal support staff helps the commander accomplish the 

mission in a lawful manner. The legal support staff advises on issues as diverse as fiscal and

contract law, domestic matters, environmental law, and the lawful use of force under

international law during the full spectrum of combat operations. In its advisory capacity, the

legal support staff considers the full range of information pertinent to the operation and then

advises commanders on the best way to lawfully achieve their objectives. Finally, the Uniform

Code of Military Justice (UCMJ) provides a disciplinary tool for commanders to use wherever 

they are.

Commanders rely on legal support to advise them on the lawful options available to

accomplish the mission. Commanders seek legal advice and any additional information that will 

enhance their decision-making role. The role of legal support is to analyze and evaluate

circumstances, identify options, assess risks, and then provide timely advice to

commanders. Armed with this advice, commanders then make better-informed decisions and

take actions based on their knowledge, experience, and judgment.

Against this backdrop commanders may consider well-founded principles when making

operational decisions. For example, it is well established—in law and policy—that suffering in

war is to be limited by rules that protect the victims of war as much as possible. The ultimate

objective is to achieve “just war.” The doctrine of just war centers on two distinct schools of

thought that have developed over history--these regulate war.

μ Legal Basis for the Use of Force. This concept, known as jus ad bellum ("that which is right 

or just to engage in or resort to war"), addresses the international legal parameters of war

concerning when it is appropriate to go to war as a method of conflict resolution and to

engage in legitimate war. The core elements of the jus ad bellum consist of those principles

More than ever before, today’s warfighting teams require legal

professionals with a warrior spirit...they are with us today. That’s good,

because tomorrow’s vision will place even greater demands on all of us.

General Michael E. Ryan

Former Air Force Chief of Staff
2

that were originally recognized by medieval commentators on just war theory as being most

central to the doctrine of just war. In this respect, for the use of force to be just, there must be 

a just cause and a competent authority with the right intention to authorize the use of force.

μ Regulation of Hostilities. This concept, known as jus in bello ("that which is right or just

within war"), deals with what methods of warfare are permissible within the context of war 

that meet the criteria of the jus ad bellum. This aspect centers on the regulation of conduct

during war and on what methods are permissible, usually focusing on four aspects: military

necessity, discrimination between combatants and noncombatants, humanity, and the use of

force that is proportional to the desired result.

PRINCIPLES OF LEGAL SUPPORT

Legal support to air and space operations consists of a series of interlinked fields of

practice to provide the commander, staff, and airmen in general with the ability to focus on

mission accomplishment. The legal support staff relies on five bedrock principles of accuracy,

timeliness, moral courage, analogy, and situational awareness.

Accuracy

Commanders should have complete confidence in the accuracy of the legal analysis that

supports mission accomplishment. This confidence is born of an established record of accuracy, 

both in factual matters and in legal analysis. Legal advice to commanders and airmen should be 

accurate. The mark of any skilled attorney is to provide relevant and thoroughly researched legal 

advice to the client. For the legal support staff, the importance of accuracy is magnified both by

the pace of events and the lethal nature of military operations. 

Timeliness

The legal support staff is frequently expected to provide an opinion on the lawfulness of a 

proposed military action. This opinion should be provided in a timely manner that will permit 

the commander to consider it before making a decision.

Moral Courage

The legal support staff may be required to advocate a difficult or unpopular course of

action after a thorough analysis of alternatives. Commanders expect the legal support staff to

prepare and deliver the appropriate legal advice without hesitation.

Belligerent armies are entitled to try to win their wars, but they are not

entitled to do anything that is or seems to them necessary to win.

Michael Walzer

Just and Unjust Wars – A Moral Argument with Historical Illustrations
3

Analogy

Air and space operations, and combat operations in particular, tend to present

commanders with unique and challenging decisions that do not fall squarely within existing law

or precedent. The legal support staff, by the nature of its professional art, is well equipped to

analyze the situation and recommend a course of action (analogous to a previous situation) that

best applies available law and guidance to novel situations.

Situational Awareness

The legal support staff will typically evaluate a pending issue not only in the legal

context, but also in the broader context of policy, politics, and other considerations because they

analyze information provided by all elements of the staff. Commanders rely on their legal

support to provide a broad perspective based not only on the law, but also on other

relevant considerations, to aid in critical decision making. 

LEGAL SUPPORT COMPETENCIES

The Air Force executes its primary mission of air and space power by mastering its

functional competencies—operational capabilities built upon the contributions of all Air Force 

disciplines. The following competencies are the basic areas of expertise that the legal support

staff brings to all operations. By mastering legal competencies, the legal support staff enhances

the effectiveness of air and space operations. Six legal support functional competencies are as

follows:

Operational Readiness

Operational readiness is the ability to provide the warfighter with the complete set of

legal capabilities at any place at any time. The legal support staff should maintain the

deployment skills necessary to survive and operate wherever the Air Force goes and the expertise 

to provide necessary legal support in varied environments ranging from fixed facilities to austere 

deployed locations.

Legal Information Mastery

Legal information mastery is the ability to obtain, analyze, and communicate legal

information rapidly. This realm is extensive, including educating and training, researching,

managing electronic and other documents, transmitting analyses and advice to decision makers,

and processing analytical data. The legal support staff analyzes information and its implications

perceptively, uses it creatively, and expresses it definitively.

Authoritative Counsel

Authoritative counsel is the ability to provide decision makers at all levels with the

information and analysis they need to best evaluate options, assess risks, and make informed

decisions within the bounds of international law and domestic law and policy. Advice and

recommendations that are timely, accurate, balanced, ethical, and realistic and that reflect the Air 

Force mission, doctrine, and culture help leaders to resolve complex issues properly. Decisions
4

based on authoritative counsel sustain the confidence of American and foreign citizens in the

integrity of the United States Air Force.

Compelling Advocacy and Litigation

Compelling advocacy and litigation are the abilities to advocate, negotiate, mediate, and

litigate in order to preserve command prerogatives so the Air Force can accomplish its mission. 

In an increasingly litigious world, legal challenges to global military activities continue to grow. 

The legal support staff employs, advocates, and negotiates alternative dispute resolutions and

litigation measures as aggressively as required to ensure that desired outcomes are attained

whenever possible.

Fair Military Justice

Operational success depends on the ability to field a disciplined force, which in turn is

dependent on a fair military justice process. The legal staff assists commanders in the

administration of military justice as they maintain the morale, good order, and discipline of their 

forces. The legal support staff ethically and expertly fulfills advisory, judicial, prosecutorial,

defense, appellate, and administrative roles in the military justice system. A military justice

system that is fair—in fact and perception—bolsters Air Force core values by properly

addressing allegations of misconduct, deterring others from wrongdoing, and maintaining the

trust of fellow airmen, host nations, and the American people.

Robust Legal Programs

Robust legal programs include the ability to provide valuable and responsive programs

such as legal and income tax assistance, defense services, preventive law, claims, and legal

training on a variety of subjects. On an individual level, these programs help airmen and their

families resolve legal problems so they can focus on their responsibilities and better prepare for

deployments. On a broader scale, these programs involve substantial Air Force resources and

influence anyone who is affected by Air Force activities.

ORGANIZATION OF AIR FORCE LEGAL SUPPORT 

To meet the needs of the Air Force, legal activities are organized to directly support

commanders and Air Force forces (AFFOR) throughout the administrative and operational

The High Contracting Parties at all times, and the parties to the conflict in time of

armed conflict, shall ensure that legal advisers are available, when necessary, to advise 

military commanders at the appropriate level on the application of the conventions and 

this protocol and on the appropriate instruction to be given to the armed forces on this 

subject.

Geneva Additional Protocol I, Article 82

Although the US is not a party to Protocol 1, the US considers many of the Protocol 1 provisions, 

including this one, to be either legally binding as customary international law or acceptable practice 

though not legally binding.
5

branches of the chain of command. Air Force legal activities are integrated within the

organizational structure at home station and forward-deployed Air Force forces. Legal activities 

are designed to provide legal services independently, while integrated within a larger military

capability, or as a supporting activity through reachback. Legal support functional managers

provide configured capabilities depending on the level and mission of the supported command or 

function (i.e., there are generalists and a variety of specialists in legal support competencies).

Expeditionary Legal Support

Legal activities are configured to provide expeditionary legal services at each level of the 

expeditionary organizational structure. The legal support staff provides legal services to support 

missions defined by the supported commander. These forces may deploy as part of an Air and

Space Expeditionary Task Force (AETF) commanded by the Commander, Air Force Forces

(COMAFFOR), in an air and space operations center (AOC), or in other expeditionary

organizations. Expeditionary legal support is organized to support forward-deployed Air Force

forces and the command and control structure used to direct air and space operations.

Legal Support to Air and Space Expeditionary Task Forces 

Legal services are configured to support two primary command levels: the COMAFFOR

and AETF units. The scope and duration of the operation, the size of the supported

population, and the requirements of the supported commander determine the amount and

configuration of legal support available for an AETF.

The legal support staff is organized to provide legal advice to the AETF commander

[COMAFFOR]. The staff judge advocate (SJA) to the COMAFFOR is the single point of

contact for the overall administration and management of expeditionary legal services provided

to the AETF. The SJA is a member of the COMAFFOR's personal staff and focuses on Service 

authority issues (e.g., discipline, sustainment) that affect the COMAFFOR’s ability to provide

mission-ready air and space capabilities to the joint force commander (JFC). The size of a

COMAFFOR’s legal support staff will consist of a roughly equal number of judge advocates and 

paralegals and will vary based on the scope of the operation and the number of subordinate Air

Force activities under the COMAFFOR. A COMAFFOR’s legal support staff is configured and

performs functions similar to a home station numbered air force (NAF) legal activity.

The COMAFFOR’s legal support staff is prepared to support a commander and staff in

multiple roles at forward operating locations and at the Air Force component rear. Legal support 

from the parent major command (MAJCOM) of the engaged NAF, or the NAF rear, may support 

operations as part of the Air Force component rear. The legal support staff is flexible and

supports the operational requirements of any home station or forward deployed organization —

independently or concurrently.

The legal support staff is organized to provide legal advice and assistance to Air Force

forces within the air and space expeditionary force (AEF) structure. The air and space

expeditionary force structure consists of forces deployed within an AETF as air expeditionary
6

wings (AEW), groups (AEG), or squadrons (AES). (See AFDD-2, Organization and

Employment of Aerospace Forces.) The legal support staff provides general legal services to

commanders and personnel assigned or attached to AEWs, AEGs, AESs. Subject to operational

requirements, the legal support staff at this level provides legal services that are similar to those

found at home station wing legal activities. The legal support staff coordinates Service authority

legal issues (e.g., discipline, force sustainment) through the administrative chain of command

beginning with the COMAFFOR’s legal support staff. If legal issues involving Reserve

component forces arise, the legal support staff should also coordinate these issues through the

appropriate Reserve component administrative chain of command. Similarly, operational legal

issues (e.g., LOAC violations, requests to modify rules of engagement) are coordinated and

reported through the operational chain of command beginning with the joint force air and space

component commander's (JFACC) legal support staff. Within an AETF, the majority of the legal 

support staff is located within the air and space expeditionary force structure (i.e., AEW or AEG) 

as members of the supported commander’s staff.

Legal Support in Joint Operations 

Air Force legal support may be integrated at various levels 

within joint organizations and may serve on joint legal support

staffs dedicated to support a JFC or JFACC, or the joint air and

space operations center (JAOC). The size, amount, and

configuration of legal support will vary with each operation but a

single legal activity may support multiple functions or

commanders designated to serve in various roles. In large

operations, a separate legal support staff may be dedicated to

independently support a JFC, JFACC, and the JAOC. By

contrast, in small operations a single joint legal support staff may

collectively support all the above functions. In all cases, open

communication and close coordination among all legal support

staff throughout the joint organization are essential to ensure

consistent legal advice is provided to commanders and their staffs.

Judge advocates advise senior 

commanders, in joint and 

combined environments, on 

the legal aspects of planning 
7

CHAPTER TWO

LEGAL SUPPORT FOR AIR FORCE OPERATIONS 

INTRODUCTION 

This chapter examines the contributions of legal support to Air Force operations and how 

the legal support staff is integrated into and supports operations across the spectrum of conflict. 

In addition, it highlights some of the legal issues that may arise during various operations and the 

capabilities legal support employs to mitigate their adverse effects. The legal support staff, as a

pivotal contributor to the success of air and space operations, should have access to the

information and processes used to direct, prepare, employ, sustain, and redeploy forces.

ARMED CONFLICT 

The legal support staff enhances operational effectiveness during periods of armed

conflict—whether or not war has been declared—and advises commanders on the application of

international law and domestic law and policy on military

operations. Judge advocates determine the existing legal

environment and the laws that govern combat operations 

and seek to ensure all operations are consistent with the

law and national policy. Legal advice is tailored to the

requirements of each mission and is crafted to support a

commander's course of action, if possible, or will provide

recommendations on lawful alternative courses of action. 

Judge advocates understand and advise commanders on the

limitations and exigencies imposed by international and

domestic law and national policy and how both the law and

policy affect operations at their level.

Air and space operations are not uniformly intense during all phases of armed conflict and 

thus require flexible legal support to ensure operations are conducted within the limits of the law 

and national policy governing each phase. Commanders should ensure the legal support staff is

actively involved during all phases of the operation addressing the full range of legal issues

associated with mobilization, deployment, offensive operations, defensive operations, and

postconflict actions. The nature and scope of legal support will evolve as the operation evolves

to adapt to the changing operational environment. The legal support staff remains vigilant to

anticipate, identify, and react to legal issues that may affect the operation or forces supporting the 

operation. They are familiar with international agreements that affect the US and allied or

coalition partners during armed conflict and identify the impact such obligations have on the

objectives of the overall mission. While legal issues will vary during combat operations, the

legal support staff will typically deal with many, if not all, of the following legal issues:

μ Application of international law during armed conflict, especially the Law of Armed Conflict 

and its impact on operations.

The legal support staff provides 

legal advice to lawfully engage 

targets during armed conflict.
8

μ Interpretations of the authority and the rules governing the use of force.

μ Impact of international agreements on the actions and planning of US and friendly forces

(e.g., overflight issues, beddown, host-nation support).

μ Status of US, multinational, and enemy forces during operations.

μ Fiscal authority to support operations, allies, coalition partners, and foreign nations.

μ Application of the UCMJ and other disciplinary options.

μ Impact of war and emergency legislation on air and space operations.

μ Law and policy governing the Reserve components.

μ Continuity of operations, command succession, and command relationships.

μ Laws and policy governing domestic use of force and homeland security.

Information Operations

The legal support staff advises a commander on the lawful means of conducting

information operations and helps the Air Force to achieve information superiority. They advise

during planning and execution of information operations to make certain legal issues and

constraints that govern such activities are taken into account. This is especially important while

courses of action are being developed and before they are executed. Early identification of legal 

issues will maximize planning efforts by developing lawful courses of action early in the

planning process. The legal support staff should have access (billets and clearances) to the

information, processes, and programs used within information operations.

MILITARY OPERATIONS OTHER THAN WAR 

Military operations other than war (MOOTW) are legally intensive operations that require 

legal support to address many complex issues. These operations encompass the use of military 

capabilities across the range of military operations short of war and focus on deterring war,

resolving conflict, promoting peace, and supporting civil authorities in response to domestic

crises. Air and space operations in MOOTW require early involvement of the legal support staff 

in order to help ensure the legality of the operation. These operations may include (but are not

limited) to the following: (See AFDD 2-3, Military Operations Other Than War; Joint Pub 3-07, 

Joint Doctrine for Military Operations Other Than War.)

μ Enforcement of sanctions.

μ Enforcement of exclusion zones.

μ Strikes and raids.
9

μ Combating terrorism.

μ Peace operations.

μ Domestic support operations.

μ Foreign humanitarian assistance.

μ Noncombatant evacuation operations.

μ Freedom of navigation operations.

μ Counterdrug operations.

μ Nation assistance.

Military operations other than war are generally politically sensitive operations with 

legal issues embedded throughout. For example, more restrictive rules of engagement and

fiscal restrictions may apply because of political limitations imposed to control activities during

the operation. MOOTW may not trigger traditional applications of international law—

especially the law of armed conflict—and may require the legal support staff to apply other 

sources of law to resolve a particular legal issue. The lack of traditional legal authority

covering MOOTW increases the complexity of the legal environment and may require the legal

support staff to apply law by analogy. During MOOTW, as time permits, the legal support staff 

uses reachback (via the operational chain of command) to assist in addressing complex legal

questions.

The legal support staff should be involved during all phases of MOOTW because of the

sensitive nature of these operations and their potential to rapidly change form. The goals of legal 

support in MOOTW are to ensure legal sufficiency of courses of action, advance the mission, and 

advise the commander on complex issues during the operation. The legal support staff advises

commanders if the nature or characterization of the operation changes. For example, rules of

engagement that were drafted for a peace operation may need to be revised if the mission changes 

to include combat. The legal support staff maintains situational awareness of changes in status of 

each operation to ensure legal advice and recommendations do not unnecessarily restrict or

improperly permit certain courses of action.

One of the Air Force judge advocate’s most important jobs is to provide

guidance on the role of [LOAC] in air operations. One strength of our

DESERT STORM air campaign was our adherence to the law: our [judge

advocate generals] JAGs defined the legal envelope and we stayed within it.... 

we cannot afford to wait for war to bring JAGs into the operations and

planning environment. Putting a JAG on your battle and planning staffs [is] a 

[way] to accomplish this... 

Joint Memorandum—11 December 1991

Deputy Chief of Staff for Plans and Operations

and the Air Force Judge Advocate General
10

OPERATIONS PLANNING 

The legal support staff participates in deliberate, crisis action, and joint air operations

planning to identify legal considerations and to recommend legally acceptable courses of action

to the commander. They are responsible for providing legal advice to decision makers on the 

myriad of laws, policies, treaties, and agreements that influence or impact air and space

operations. They translate national policy decisions into legally acceptable plans and orders that

support national security objectives.

Deliberate Planning

Commanders should seek legal advice during each phase of the deliberate planning

process to ensure legal considerations are addressed. The legal support staff has the following

responsibilities during the deliberate planning process:

μ Prepare appropriate appendices and legal annexes and ensure plans comply with relevant

multilateral and bilateral international agreements, Department of Defense (DOD) guidance,

governmental directives and policy, the law pertaining to the use of force, and domestic and

international law.

μ Review the entire plan with a particular focus on areas with legal significance (e.g., legal

authorities, targeting, fiscal considerations, host-nation support agreements, air navigation,

use of force, and status of forces).

μ Review relevant supporting plans to ensure appropriate appendices and legal annexes are

complete and provide the necessary guidance to perform their various functions.

μ Ensure the amount and type of legal support staff have been identified to deploy in support of 

combat or contingency operations, or to support air and space operations in-place.

The legal support staff should be thoroughly familiar with the deliberate plans they are

tasked to support, the unique legal issues for the supported area of operations, and the

capabilities of the employment locations they may be tasked to support. The mission of each

employment location will uniquely impact legal readiness. Therefore, mission success requires

advance planning by all legal support staffs.

The legal support staff should be familiar with the deliberate planning phases and be able 

to address the appropriate issues that may arise during each phase. Figure 2.1 outlines the role of 

legal support during the deliberate planning process.

Deliberate Planning

Combatant Commander Role of Legal Support

Phase I - Initiation

– Receive planning task from the Chairman, 

Joint Chiefs of Staff (CJCS).

– Contact counterparts and establish the basis 

for concurrent planning.
11

Deliberate Planning

– Make available major forces for planning. – Review previous plans.

– Research applicable laws, policies, treaties, 

and international agreements.

– Summarize relevant legal considerations 

(authorities, restraints, and constraints) and 

provide them to the planning team.

Phase II – Concept Development

– Deduce mission statement.

– Derive subordinate tasks.

– Develop combatant commander’s strategic 

concept.

The product: A concept of operations.

– Refine legal analyses.

– Review applicable laws, policies, treaties, and 

international agreements.

Phase III – Plan Development

– Select and time-phase forces.

– Compute support requirements. 

– Simulate and/or analyze strategic 

deployments.

– Identify and resolve shortfalls.

– Complete operation plan (OPLAN).

The product: A complete OPLAN.

– Incorporate legal considerations and 

instructions for developing rules of engagement in 

the combatant commander's planning guidance.

– Review the combatant commander's estimate 

for compliance with law and policy and make 

appropriate recommendations.

– Coordinate legal issues and support 

requirements with counterparts.

Phase IV – Plan Review

– CJCS reviews and approves 

OPLAN/operations plans in concept (CONPLAN).

– Revise plan in accordance with review 

comments.

The product: An approved OPLAN.

– Review plan for compliance with law and 

policy.

– Ensure plan complies with DOD directives, 

law, and policy.

Phase V – Supporting Plans

– Prepare supporting plans. – Review and advise on compliance with higher 

headquarters and DOD guidance.

Figure 2.1. Legal Support Role in Deliberate Planning

Crisis Action Planning (CAP) 

The responsibilities of the legal support staff during crisis action planning are similar to

those during deliberate planning, however, the time available for legal support planning is

compressed. The legal support staff should be familiar with the CAP process and be able to

address legal considerations in each phase of the process as outlined in figure 2.2.
12

Crisis Action Planning

Supported Combatant 

Commander

Supported Combatant 

Commander's Staff Judge 

Advocate

Air Force Component 

Staff Judge Advocate

Phase I – Situation Development

– Detect, report, and assess events 

that have potential national security 

implications to determine whether a 

military response may be required.

– Report actions being taken, 

forces available, expected time for 

earliest commitment of forces, and 

major constraints on the employment 

of forces.

– Contact counterparts and 

establish the basis for concurrent 

planning.

– Review planning documents.

– Research applicable laws, 

policies, treaties, and agreements.

– Summarize relevant legal 

considerations (authorities, 

restraints, and constraints) and 

provide them to the crisis action 

team, combatant commander, and 

counterparts.

– Contact counterparts and 

establish the basis for concurrent 

planning and command 

relationships.

– Review planning documents.

– Research applicable laws, 

policies, treaties, and agreements.

– Summarize relevant legal 

considerations (authorities, 

restraints, and constraints) and 

provide them to the crisis action 

team, combatant commander, and 

counterparts.

Phase II – Crisis Assessment

– Keep the DOD and CJCS 

informed of new developments.

– Refine legal analyses. – Assess legal implications of 

developments.

Phase III – Course of Action Development

Phase IV – Course of Action Selection

– Begin detailed execution 

planning upon receipt of planning or 

alert order.

– Advise decision maker on 

lawful options; participate in 

execution planning.

– Participate in execution 

planning upon receipt of planning or 

alert order.

– In coordination with subordinate 

and supporting commanders, 

develop and analyze courses of 

action (COA).

– Review and use applicable 

plans.

– Issue guidance to subordinate 

and supporting commanders for 

time-phased force and deployment 

data development.

– Submit the commander’s 

estimate to the President / the 

Secretary of Defense (SecDef) and 

CJCS.

– Incorporate legal considerations 

and instructions for developing rules 

of engagement in the combatant 

commander's planning guidance.

– Review the combatant 

commander's estimate for 

compliance with law and policy and 

make appropriate recommendations.

– Coordinate legal issues and 

support requirements with 

counterparts.

– Discuss rules of engagement 

needs with commander and 

counterparts.

– Coordinate legal issues and 

support requirements with 

counterparts.

– Encourage forces to prepare 

wills and powers of attorney and 

resolve legal matters prior to 

mobilization.

– Brief commanders and forces on 

legal environment.
13

Phase V – Execution Planning

– Combatant commander 

develops operation order (OPORD).

– Refine deployment plan.

– Force preparation.

– Distributes OPORD.

– Advise on legal issues arising 

during execution planning.

– Ensure compliance with law.

– Advise on legal issues arising 

during execution planning.

– Ensure compliance with law.

Phase VI – Execution

– Combatant commander executes 

OPORD.

– Begin redeployment planning.

– Advise on legal issues during 

execution.

– Advise on legal issues during 

execution phase.

Figure 2.2. Legal Support Role in Crisis Action Planning

LEGAL SUPPORT TO COMMAND LEVELS, FUNCTIONS, AND 

ACTIVITIES

The level of command will determine the scope of legal services required to support 

the mission. The legal support staff in the administrative chain of command reviews actions

and/or plans taken to prepare, deploy, employ, and redeploy Air Force capabilities in support of

military operations. For example, a legal support staff serving in a major command crisis action 

team may be tasked to advise a commander on the legal basis of the mission, the foreign criminal 

jurisdiction provisions for a location hosting US forces, or the number and type of legal support

capabilities that are required to support a forward operating location. At the wing level, the legal 

support staff may advise a supporting commander on the readiness of the force and legal issues

they may encounter during a deployment. The legal support staff in the operational chain of

command provides advice concerning the operational employment of air and space power. For

example, legal support personnel assigned to a JFC may review and advise on operational

matters such as LOAC violations or requests to modify the rules of engagement. The role of the 

supported commander will dictate the issues the legal support staff will be required to

address—either operational, administrative, or both.

Although the primary purpose of the legal support staff is to provide legal advice and

assistance to support the operation, a legal support staff may also be tasked to perform duties

outside the legal fields of practice. In addition to providing advice in the traditional legal

disciplines, the legal support staff may participate in such activities as:

μ Continuity of operations planning.

μ Operational employment of Air Force legal support.

μ Disaster or major accident response.

μ Issues arising from use of Reserve component forces.
14

μ Military support to civilian agencies.

μ Force protection.

COMBAT SUPPORT 

The legal support staff can prevent legal pitfalls arising out of logistics support activities

which may impact the readiness of the force or limit the future courses of action during

operations. During all phases of an operation, legal support is a key contributor in the logistics 

support process. The legal support staff provides legal advice to commanders, logistics support

personnel, contracting officers, civil engineers, comptrollers, and others. This legal support staff 

is essential during the establishment of a forward operating location and for support actions taken 

to acquire facilities and real property, set up locations, sustain operations, and transfer facilities

and real property back to the appropriate parties. For example, the legal support staff may assist 

during negotiations with the host nation for access rights and the status of forces or may

participate as members of a reception team to receive employing forces.

The legal support staff advises commanders, comptrollers, and contracting officers with

the goal of ensuring only authorized members obligate or bind the government and participate in 

the negotiation and procurement processes used to support the force. To preserve command

prerogatives and ensure the mission is accomplished within the bounds of the law, the legal

support staff makes sure deploying forces understand the legal constraints concerning negotiation 

and conclusion of international agreements and the process used for entering into contracts or

agreements with host-nation representatives or other indigenous personnel. Commanders should 

normally include the legal support staff on reception teams and advanced echelon teams to ensure 

goods and services are properly acquired. Commanders should also retain the legal support staff 

after redeployment to address legal concerns as the force leaves a forward operating location.

The legal support staff advises on logistics support activities at the operational and

tactical levels of war. At the operational level, the legal support staff advises on logistics support 

functions used to centrally procure materiel for the entire force (e.g., petroleum, large-scale 

service contracts). At the tactical level, the legal support staff assists in the procurement of

goods and services from the local economy (e.g., vehicles, water, lodging, fuel) to sustain the

force. The legal support staff also provides legal services to logistics reachback activities to

expedite procurement and transfer of required materiel to forward operating locations. The legal 

support staff participates in the logistics support process to help reduce the initial deployment

footprint and airlift requirements of the force. The SJA and the legal support staff advise

commanders and logistics support activities on numerous legal issues. The following are

examples: 

μ Acquisition and cross-servicing agreements.

μ Support agreements among US forces, the host nation, and other forces.

μ Contingency contracting actions.
15

μ Contracting authority and contract ratifications.

μ Fiscal authority, guidelines, and responsibilities for the use of funds.

μ Sale, disposal, and transfer of military property and services.

μ Negotiating, concluding, and reporting international agreements.

COMMAND-DIRECTED INVESTIGATIONS AND INQUIRIES DURING 

OPERATIONS

The legal support staff participates in command-directed investigations and inquires

during all phases of war or military operations other than war. The nature, lethality, and

complexity of air, space, and information operations have the potential to give rise to accidents or 

incidents that require a formal investigation or inquiry. Because accidents or incidents have the

potential to generate international and domestic interest from governments, the media, 

nongovernmental organizations, and the general public, commanders should involve the legal

support staff as soon as possible after an accident or incident occurs. 

The legal support staff ensures each investigation or inquiry is conducted in accordance 

with applicable law, directives, and instructions. This legal support preserves information or

evidence gained during the process so it may be used during future judicial, nonjudicial, or

administrative actions. The legal support staff participates on investigation teams and uses

reachback to leverage the expertise and experience of legal specialties that specialize in a

particular discipline. The legal support staff may be required to participate or assist in Air Force, 

joint, or multinational investigations involving numerous issues, not limited to the following:

μ Violations of the Law of Armed Conflict.

μ Instances of fratricide (friendly fire).

μ Air and space accidents.

μ Boards of inquiry.

μ Military commissions.

μ Allegations of unlawful command influence.

μ International criminal tribunals.
16

MAINTENANCE OF GOOD ORDER AND DISCIPLINE

In any environment, the legal support staff advises commanders on options that are

available to enforce good order and discipline within the force. In some circumstances,

commanders may require judiciary services to investigate and adjudicate cases at forward

operating locations. The Air Force is served by an independent judiciary responsible for

prosecuting and defending Air Force members who have been charged with offenses punishable

under the UCMJ or when other circumstances require

judge advocates to represent the government’s or Air

Force member’s interests in judicial, nonjudicial, or

administrative proceedings. The legal support staff

assigned to the Air Force Judiciary should be prepared 

to provide expeditionary judiciary services wherever

the Air Force operates. The legal support staff in this

category consists of military judges, circuit trial and

defense counsel, area defense counsel, and court

reporters. Each unique capability within this category

independently offers a distinct legal skill set that is

designed to ensure justice is fair and impartial.

Military defense and judiciary services will be reasonably accessible to commanders and

airmen during military operations to ensure the fair and prompt administration of military justice. 

The servicing staff judge advocate for the AETF, AEW, or AEG will advise commanders on

military justice activities. Judge advocates assigned to forward operating locations may represent 

the government and prosecute offenders during court-martial proceedings conducted in the area

of operations. Depending on the size of the supported Air Force population, defense services 

may be provided at a forward operating location within the area of operations or accessed

through reachback to the trial judiciary circuit that has responsibility for the location or area of

operations. When necessary, a complete trial team may be assembled at a forward operating

location to conduct a court-martial (with legal research reachback if necessary).

LEGAL SUPPORT REACHBACK

Reachback provides the legal support staff the capability to access the legal resources 

necessary to support air and space operations. It enhances the ability of the legal staff to seek

assistance in recognizing pertinent legal issues, researching the law, and then providing accurate

and timely advice to commanders or legal assistance to Air Force members. The diverse nature

and complexity of each legal discipline only permits legal personnel to have a general knowledge 

Expeditionary judiciary services ensure the 

fair and prompt administration of justice 

wherever the Air Force operates.

Proximate and visible justice best serves the disciplinary interests of the

operational command.

 

Air Force Operations and the Law—A Guide for Air and Space Forces

HQ USAF/JAI Pub 
17

of each legal discipline. A robust reachback capability is essential to ensure experienced experts 

with appropriate resources properly research complex legal issues. In addition, a network of

legal services accessible through reachback is used to support the readiness of the force by

providing a channel in which to mitigate legal issues that may arise at the home station during an 

operation. Comprehensive legal services—enhanced through reachback—that are available at

forward operating locations and at the home station enable Air Force forces supporting and

conducting the operation to focus on the mission.

Responsive reachback reduces the need for a large number of forward deployed

legal personnel and quantities of equipment. Reachback allows the legal support staff to

obtain or coordinate support with legal activities that are not assigned to the AETF or physically

located within the area of operations. Reachback is used to minimize the initial deployment

footprint of the legal support staff and to obtain additional legal support and materiel to sustain a 

forward deployed legal capability. A supported/supporting relationship is established between

home station legal activities and those at forward operating locations to provide a structured

approach to obtain reachback services or resources. While reachback is designed to improve the 

efficiency and effectiveness of legal services, it is in no way intended to circumvent the chain of 

command. Unless specifically authorized, the legal support staff first seeks assistance to resolve 

complex legal issues from the servicing legal activity at the next higher level within the chain of 

command. The success of reachback in support of the legal support staff requires efficient and

reliable communications and an effective logistics pipeline between supporting legal activities

and forward operating locations. For the legal support staff, reachback is categorized in three

primary capabilities: legal specialists, legal information services, and the legal assistance

network.

Legal Specialists

Legal professionals who specialize in a particular area of the law significantly enhance 

military operations by providing detailed and focused legal advice and analysis to resolve

complex questions. The diversity and complexity of the air and space operational legal

environment span all fields of practice and make it impracticable for one forward-deployed legal 

activity to address—in detail—all of the issues that may arise during an operation. Accordingly, 

reachback to a network of legal specialists has been established throughout the Air Force to

enhance the ability of a forward deployed legal support staff to obtain specialized legal advice. 

For example, during Operation RESTORE HOPE, the forward-deployed legal support staff

consulted with legal specialists in rear areas to address a legal question about the transfer of Air

Force supplies to a coalition partner in the absence of an international agreement. In this case,

the legal support staff used reachback capabilities to respond to the task force commander’s

needs. Access to legal specialists from forward operating locations exploits and maximizes the

contribution of all legal support to the mission.

Legal Information Services

Legal information services accessible through reachback are a legal support force

multiplier. The dynamic nature of the law and the significant number and sources of legal
18

information require access to robust legal information services. Legal information services have 

been organized to provide immediate access to the legal information necessary to deliver timely

and accurate legal advice to commanders and assistance to Air Force forces. The legal support

staff requires remote access to up-to-date legal information through reachback and the means to

renew deployable collections of legal information. At forward operating locations, the legal

support staff uses multiple forms of communication to access legal information services. For

example, they may access legal research services through the internet or obtain classified

international agreements over a secure network. The Air Force legal services agency provides 

legal information reachback services for the legal support staff.

Legal Assistance Network

The legal support staff utilizes a legal assistance network through reachback to

support Air Force forces. Legal activities Air Force-wide provide legal assistance in

jurisdictions throughout the world. The legal support staff applies this knowledge to assist

clients at forward operating locations who may require legal assistance that involves the law of a 

particular state or nation. In the Air Force, the legal assistance program is centrally managed by

the Air Force Legal Services Agency. It provides for the administration and policy governing

legal assistance for all Air Force legal activities. At home station, Air Force legal activities are

organized to support the operational readiness of Air Force members through programs designed 

to deliver mission-related legal assistance.

LEGAL SUPPORT EQUIPMENT

Legal support equipment enhances the ability of the legal support staff to provide legal

services in an expeditionary environment. This support consists of prepackaged deployable

resources specifically designed for the legal mission and other organic resources assembled by

the legal support staff. It also consists of equipment—information systems and supplies—that 

are provided by external sources and used by the legal support staff during an operation. For

example, the legal support staff assigned to an AOC will use information systems connected to

the command and control (C2) infrastructure to provide legal support to the units/cells. While

this type of equipment is neither maintained nor deployed by the legal support staff, the ability to 

access the C2 infrastructure and to use information systems to provide legal services establishes a 

legal support equipment requirement.

Legal support equipment requirements are determined by comparing the existing

capabilities of the forward operating location to the mission requirements. The mission of the

legal support staff determines the legal support equipment requirements necessary to support an

operation and illuminates requirements that exceed organic capability. Legal support equipment, 

whether or not it is managed, configured, or employed by the legal support staff, directly affects 

the ability of the legal support staff to identify, research, and render an accurate legal opinion or

recommend a lawful course of action. Legal support equipment is configured to support a

particular mission. Equipment requirements that exceed the capabilities of prepackaged legal

support resources (e.g., classified systems) are referred to the supported commander’s staff for

action. To bolster the capability of the legal support staff, legal support equipment should be
19

configured to arrive concurrently with or at the earliest possible opportunity after deploying the

legal support staff.

Legal support equipment requires comprehensive reachback capacity to sustain its

capability. Legal support equipment is deployed with a smaller footprint by employing compact, 

multiuse equipment with increased dependability and survivability. The legal support staff will

usually deploy with a limited amount of organic legal support equipment and will use reachback

to rear areas, home station activities, or other available sources for long-term sustainment. Upon 

deployment, judge advocates and paralegals establish, through the administrative chain of

command, a means to replenish legal support equipment and resources consumed during the

operation. Legal equipment support and sustainment requirements will vary based on the

location, duration, and legal support requirements of a particular operation. Legal support

equipment allows access to legal information services and other reachback capabilities that are

necessary to provide up-to-date, accurate, and timely legal services.

21

CHAPTER THREE

LEGAL SUPPORT FOR RULES OF ENGAGEMENT (ROE)

INTRODUCTION

This chapter discusses the doctrinal principles of ROEs, their importance to air and space 

operations, and the involvement of commanders, operators, and legal support staffs in the ROE

process.

ROEs DEFINED 

ROEs are directives issued by competent military authority to delineate the circumstances 

and limitations under which air, ground, and naval forces will initiate and/or continue combat

engagement with other forces encountered. (Joint Pub 1-02, DOD Dictionary of Military and

Associated Terms) ROEs are rules that govern the use of force to reflect the will of the

civilian and military leadership. ROEs constrain the actions of air, space, and information

forces to ensure their actions are consistent with domestic and international law, national policy, 

and objectives. Although ROEs are not law, they are authoritative guidance issued at the

appropriate level of command to control the use of force. ROEs are based upon domestic and

international law, history, strategy, political concerns, and a vast wealth of operational wisdom,

experience, and knowledge provided by military commanders and operators.

PURPOSES OF ROEs

One of the primary purposes of ROEs is to ensure that any use of force is consistent with 

national security and policy objectives. Used primarily to regulate the use of force, ROEs either

allow or limit the ability and means to employ force. ROEs serve political, military, and legal

purposes and define the parameters within which air and space forces must operate in the

accomplishment of assigned missions. They ensure national policy and objectives are reflected

in the actions of air and space forces and set forth constraints on a commander's actions so they

are consistent with domestic and international law and national policy. ROEs help ensure the

appropriate military capability is applied prudently and often reflect collateral limitations that

restrict the use of force far beyond what is required by the Law of Armed Conflict (LOAC). 

History has demonstrated that, to be most effective, ROEs should represent a confluence of 

ROE is the Commander's business. I was in the [combined force air and space 

operations center] CAOC during DESERT FOX. Who do you think was

standing right behind me? It was my JAG. Note I said he was behind me, not 

to my left or my right.

General Hal M. Hornburg 

Former Commander, US Central Command Air Forces
22

legal considerations, national policy objectives, and operational concerns. When the actions 

of military personnel and units are framed by the disciplined application of force through

effective ROEs, commanders can make sound judgments and select the best possible course of

action to accomplish the mission.

ROEs ensure that air and space forces comply with the law of armed conflict. 

Although not law, ROEs derive much of their influence from the law. US military forces adhere 

to the LOAC and embrace the principles set forth therein, including the principles of military

necessity, humanity, proportionality, and discrimination. ROEs are an important mechanism to

assist commanders in fulfilling their obligations under the LOAC and are often used to reinforce 

certain principles of the LOAC. Of course, as discussed more fully below, were an enemy to

misuse a protected place such as a church, mosque, or ancient historical site, the ROEs may

modify use of force in self-defense or mission accomplishment.

PRINCIPLES OF ROEs 

μ Absent specific operational necessity, ROEs must never impede the inherent right of

self-defense of US forces. ROEs for US forces must never limit a commander's inherent

authority and obligation to use all necessary means available to take action in self-defense of 

the commander's unit and other US forces in the vicinity. The right and obligation of selfdefense should be specified in every set of ROEs and should never be compromised. For

example, anticipatory self-defense serves as a foundational element in the Chairman of the

Joint Chiefs of Staff (CJCS) standing rules of engagement (SROE), as embodied in the

concept of hostile intent. This concept makes it clear that US forces do not have to be the

subject of a hostile act before responding in self-defense.

μ Air Force forces must follow applicable ROEs during all air, space, and information

operations. To do otherwise might compromise US political and military objectives and the

mission. Commanders at every echelon are responsible for establishing or requesting ROEs

for mission accomplishment that comply with ROEs of senior commanders and the SROEs.

μ ROEs should represent the proper balance between US interests and military objectives. 

Commanders should impose restrictions on the use of force when justified to accomplish the 

mission. Restricting the use of force should be designed to further mission accomplishment

and conduct operations in accordance with the commander’s intent and mission planning

guidance. A proper balance is essential to ensure air and space forces appropriately respond

to the actions of enemy forces, as political and diplomatic reasons may exist for controlling 

the use of force. Commanders should have the latitude and flexibility necessary to employ

force to best meet military objectives within a broad array of permissible boundaries.

μ ROEs should not be too specific or restrictive. ROEs should restrict the use of force to

prevent overreaction or unnecessary escalation of the conflict, but should be permissive

enough to ensure air and space forces do not under react to a particular situation. For

example, ROEs that are written too broadly may result in an unintentional escalation of

conflict or the possibility of fratricide. By contrast, ROEs that are too narrow may

unnecessarily restrict the effects of air, space, or information operations.
23

μ ROEs should be current and responsive to change. ROEs should be constantly reviewed to

ensure they keep pace with changing mission requirements. ROEs should account for

changes in political or military objectives, the commander’s intent, and the threat to US

forces. For example, ROEs that govern information operations should be responsive to

changes in the mission, environment, technology, and the evolving threat. Commanders

should establish or request changes to the ROEs to ensure the use of force is consistent with

mission accomplishment and the commander’s intent.

μ ROEs should enhance operational effectiveness and efficiency. ROEs should permit an

effective operational scheme of control for the COMAFFOR, JFACC, or combined force air

and space component commander (CFACC) who is responsible for conducting air and space 

operations. ROEs should not be specific directions for how a commander is to employ forces 

or assets, as no set rules—no matter how lengthy or detailed—can address every possible

scenario that air and space forces may face while conducting operations. ROEs should

permit flexibility and enable the commander to maximize the contributions of air and space

power across the spectrum of conflict.

μ ROEs should permit the timely and appropriate use of force by Air Force forces. ROEs

should ensure force is applied in a well-disciplined manner, but should not delay the prompt

execution of time-sensitive operations or attacks on targets of opportunity. Commanders

should seek clarification or guidance through the operational chain of command or submit a

request to modify the ROEs if the ROEs are not clear or could jeopardize the prompt

engagement of time-sensitive targets.

CHARACTERISTICS OF EFFECTIVE ROEs 

Effective ROEs allow commanders to apply the principles of war and the fundamentals of 

air and space power to support national security objectives. To maximize the operational

effectiveness of air and space power, ROEs should:

μ Be simple, clear, brief, and seamless and should avoid excessively qualified language.

μ Make it transparent and obvious to commanders and Air Force forces why a rule is necessary

to accomplish the mission.

μ Be tailored to the audience and easy to understand, remember, and apply.

μ Not contain strategy or doctrine, or simply restate the LOAC.

μ Be constantly reviewed for revision, modification, or amplification.

μ Be properly communicated and briefed to all airmen on a continual basis by an array of

commanders, warfighters, and judge advocates.
24

ROLE OF LEGAL SUPPORT STAFF

Legal support is essential to the development, interpretation, modification, and proper

implementation of the ROEs. The legal support staff should be trained, operationally oriented,

and readily accessible to assist commanders and operators with ROE issues.

The legal support staff does not own or control the ROE process, but serves as the

principal advisor to the commander and the commander's staff. The legal support staff has an

affirmative duty to provide legal advice to commanders and their staffs that is consistent with the 

law and the governing ROEs at all times. Ordinarily, judge advocates provide legal advice to

commanders who will select the most appropriate course of action to accomplish the mission. 

For example, during joint operations, a judge advocate will offer legal advice during ROE

development, but the operators (planning and executing in the operational chain of command)

have the responsibility to formulate and submit ROEs for approval to the COMAFFOR or

JFACC and in turn present proposed changes to the JFC. 

Developing ROEs

The legal support staff provides advice during all levels of operations planning to support 

and sustain ROE development. Judge advocates advise commanders and their staffs throughout

all phases of the joint operations planning process to help ensure ROEs are legally acceptable,

operationally feasible, and properly balanced against applicable law, national policy, and the

commander's intent and guidance. The legal support staff is an important member of the AOC

ROE cell and supports ROE processes throughout each phase of the operation. (See chapter four, 

Legal Support to Air and Space Operations Centers.) 

The legal support staff should be involved early in the planning process to ensure

effective ROEs are developed. Early involvement of the legal support staff in the operations

planning process will ensure legal issues are identified and legally acceptable courses of action

and supporting ROEs are developed consistent with the commander’s intent. A thorough

understanding of operational issues aids judge advocates in preparing advice that will allow

commanders to achieve their objectives within the limits of the law and national policy. For

example, to properly advise an operational commander, a judge advocate must be fully cognizant 

of the commander’s “No Strike” and “Restricted” target lists. Involved and engaged judge

advocates maximize planning efforts and help ensure proper ROEs are developed to

support mission accomplishment.

The staff judge advocate (SJA) assumes the role of principal assistant to the J-3 

[Operations] or J-5 [Plans] in developing and integrating ROE into operational

planning.

CJCSI 3121.01A, Standing Rules of Engagement for US Forces, Enclosure L
25

The legal support staff interprets ROEs to support the execution of time-sensitive 

operations. The legal support staff should understand the intent of the President, the Secretary of 

Defense, the combatant commander, and subordinate commanders when preparing advice on

ROEs. ROEs should be developed to support the mission requirements of an operation and

should be crafted to minimize delays in the execution of time-sensitive operations. For example, 

during all phases of an operation, from planning to execution, the legal support staff tailors legal 

advice to support the targeting cycle. Judge advocates will work in concert with commanders

and their staffs to develop ROEs that allow air and space forces to effectively attack timesensitive military objectives.

ROE development and mission planning are collaborative processes and require

significant staff integration. ROE development is best achieved when legal support and

operators collaborate to develop ROEs and/or request supplemental measures to fully implement 

the commander’s intent. Judge advocates advise operations and planning staffs on the legality of 

proposed ROEs and, when necessary, recommend actions that should be taken to ensure

compliance with the law and policy. 

Interpreting ROEs

An Air Force judge advocate's ROE role is that of an advisor, not a decision maker. A

judge advocate’s duty, first and foremost, is to properly advise commanders on the law and the

commander's responsibilities with respect to the law. In this advisory capacity, judge advocates

focus on interpreting the ROEs, the LOAC, and other guidance to develop legal

recommendations that will advance the commander’s objectives. Thus, judge advocates should

be thoroughly familiar with international and domestic law, national policy, operations orders,

and other sources of information to effectively interpret the intent and meaning of the ROEs. 

After considering legal advice, commanders will ultimately exercise their discretion, wisdom,

and decision-making authority to select the best course of action that will comply with the law

and further mission accomplishment.

The legal support staff interprets ROEs issued from multiple sources. Each operation will 

have a unique set of ROEs to support the needs of a particular mission. For US forces, ROEs are 

generally established by combatant commanders and higher authority and incorporate political,

military, and legal concerns. For all US operations, the CJCS SROEs are normally the starting

point for ROEs unless rules have been previously established in deliberate plans or through

agreements with other nations. Drafting ROEs to support multinational forces under the

operational control of a US or a foreign commander requires detailed coordination and thorough 

understanding of the laws, policies, and political objectives of each contributing nation. The

legal support staff develops comparative law studies that identify the legal requirements of each

nation to ensure multinational ROEs will not conflict with the obligations of each contributing

nation. The analytical and advocacy skills of a judge advocate assist the commander in

interpreting the legal requirements and obligations of other nations and the ROEs that have been 

issued from multiple sources.
26

Modifying ROEs 

The legal support staff assists commanders in modifying or requesting changes to the

ROEs. With few exceptions, ROEs are fundamentally permissive in nature and allow

commanders to modify or request changes to the ROEs to support mission accomplishment. At

various levels in the operational chain of command, ROE supplemental measures may be

approved to allow or limit the use of force for mission accomplishment. The legal support staff

assists commanders in determining the appropriate ROEs and recommends changes when

necessary. Commanders should seek clarification or modification to the ROEs through the

operational chain of command when warranted. Modification or clarification may be warranted 

when the ROEs are inadequate, faulty, create the risk of fratricide, or hinder a commander's

ability to carry out the mission.

Implementing ROEs 

Air Force commanders expect judge advocates to be knowledgeable of and to fully

advise Air Force forces on ROEs. Judge advocates are available to advise commanders and Air 

Force forces on the ROEs. The legal support staff at every stage of an operation maintains

situational awareness of the current ROEs and is vigilant to recommend changes to the

commander. The legal support staff helps draft, interpret, and request ROEs or supplemental

rules and instructions when necessary. 

The legal support staff assists commanders in fulfilling their obligations to implement

and disseminate ROEs. Implementing and disseminating ROEs are ongoing responsibilities that 

involve commanders, operators, and judge advocates. The legal support staff assists

commanders and their staffs to help maintain positive control over the ROEs and to help ensure 

each level of command receives the current version of the ROEs. In addition, the legal support

staff works in concert with commanders and their staffs to train air and space forces on the ROEs 

and to standardize and interpret their intent and meaning. Judge advocates are available to

provide tailored ROE training to various audiences, from aircrews to security forces. For

example, judge advocates, with the assistance of the operators, may provide training on the

ROEs, status of personnel, mission and forces, the Code of Conduct for US Forces, and other

constraints imposed by the mission or the law.

RULES FOR THE USE OF FORCE 

Judge advocates advise commanders on the rules for the use of force at times and in 

areas where ROEs are not applicable. Since the CJCS SROEs only apply to all military

operations outside the territorial jurisdiction of the US, judge advocates advise commanders on

the rules for the use of force when the SROEs do not apply. To support home station operations 

within the territorial jurisdiction of the US, judge advocates advise commanders on issues

relating to force protection and the use of force on military installations. In addition, some

military operations within the US do not require the use of force. For example, the use of force

during a humanitarian relief mission is generally not required; these operations, by their nature,

are assistance missions. However, US forces always retain the right of self-defense.
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COMMANDER'S ROE CHECKLIST 

Primary ROE Considerations

What do the ROEs tell me?

μ When can US forces and others be defended?

μ What can be attacked?

μ How can it be attacked?

μ Where can it be attacked?

μ When can it be attacked?

μ Whose permission is needed to attack?

What purpose do the ROEs serve?

μ Provide guidance on the use of force—political, military, and legal.

μ Control the transition from peace to war (or vice versa).

μ Provide a mechanism to facilitate planning.

μ Prevent fratricide, civilian casualties, national/coalition political damage, or mission failure.

Have ROEs been agreed upon for multinational operations?

μ By military commanders?

μ By policy makers?

μ Do the ROEs of the multinational force permit the same degree of individual self-defense and 

unit self-defense as the US SROEs?

ROE Fundamentals

Mission Planning

μ ROEs are not a substitute for guidance, intent, and judgment or planning.

μ ROE development is a collaborative process involving commanders, operators, judge

advocates, and others.

μ ROE development is an integral part of operations planning including branch/sequel plans.

μ ROE development begins with mission analysis.
28

μ ROE instructions are set out in the commander’s initial planning guidance.

μ ROE development is tied to COA development.

μ COA analysis includes ROE refinement.

Advisories

μ US ROEs are fundamentally permissive.

μ Brief current ROEs at every combined/joint task force (C/JTF) update.

μ Monitor ROE training and interpretation.

μ Do not substitute ROEs for planning.

μ Use serial ROE messages and not appendices.

μ Do not just ask for ROEs—justify ROEs.

μ Resolve ROE disputes before the fight.

μ Understand that ROEs during MOOTW are normally more restrictive than in war.

ROE Game Plan

Establish a close working relationship with your judge advocate.

μ Early judge advocate involvement in each of the AOC divisions helps satisfy the legal review 

obligations under the LOAC and avoids potential last-minute problems with air tasking order 

(ATO) approval and mission execution.

μ Judge advocates can identify and diffuse potential showstoppers with host nations and

overflight early in the planning process.

μ Judge advocates can assist operators in getting clear, concise ROEs and special instructions

crafted and approved.

Establish an ROE cell to enhance mission planning and execution. A critical function is

judge advocate involvement at inception to maximize planning efforts and to yield lawful ROEs.

μ Formulate ROE requests based on JFC objectives, guidance, and intent.

μ Ensure adequate dissemination of:

- CJCS SROEs.

- Any theater-specific ROEs.
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- Mission-specific ROEs (often termed "serial ROEs").

- Applicable multinational or coalition ROEs.

μ Determine if ROE amendments/supplements are needed.

μ Institute scenario-based ROE training (JAs can coordinate efforts).

Determine the effect of the ROEs. ROEs and international law, to include LOAC, often impact 

targeting decisions; factor these restraints into planning/targeting process early on.

Establish combat identification procedures that are consistent with the ROEs.

μ Allow units and individuals to conduct actions appropriate for self-defense.

μ Adjust ROEs to fit warfighter needs.

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CHAPTER FOUR

LEGAL SUPPORT TO THE AIR AND SPACE OPERATIONS CENTER

INTRODUCTION 

Within a joint or coalition operation in which Air Force forces are present, a

COMAFFOR will be designated to command those Air Force forces, using the appropriate

degree of control (e.g., operational control [OPCON] or tactical control [TACON]). If the JFC

elects to establish a JFACC to better command the overall air and space effort, the JFACC

should be the component commander providing the preponderance of air assets and the capability 

to plan, task, and control joint air operations. In most operations, because the Air Force provides 

the preponderance of forces (and most importantly, with the AOC, the ability to command the 

forces) the COMAFFOR is normally dual-hatted as the JFACC. (See AFDD 2, Organization 

and Employment of Aerospace Forces.) Within a multinational operation, the air component

commander is typically known as the combined force air and space component commander 

(CFACC). For the remainder of this discussion, this doctrine document will use the term

"COMAFFOR" when referring to the air component commander.

Similarly, this document will use AOC to describe the Air Force command node and

JAOC when specifically discussing the joint node. An AOC represents the single focal point for

centralized planning, direction, control, and coordination of air and space operations for an

AETF. (See AFDD 2, Organization and Employment of Aerospace Forces.) The legal support 

staff provides legal services to assist the commander and AOC in assessing, planning, and

executing air and space operations.

PRIMARY FUNCTIONS AND CAPABILITIES 

The legal support staff contributes expertise to the AOC in areas of domestic, foreign, and 

international law that directly affect the conduct of air and space operations. To meet this

challenge the legal support staff acquires the knowledge, experience, access, and training needed 

to function within a joint and/or multinational environment. The training needed to prepare the

legal support staff may include obtaining knowledge about the law governing navigation on the

sea, through the air, or in space; the rules governing the use of force; the application of the

LOAC; the targeting process; the law of neutrality; and joint operations planning.

The primary function and responsibility of a judge advocate within the AOC is to

recommend legally acceptable courses of action to the operational branch of the chain of

command. Judge advocates serve in an advisory capacity and are assisted by paralegals to

provide legal services throughout the AOC. To render timely and accurate legal advice during

the planning and execution of air and space operations, the legal support staff requires access to

the same information that is available to commanders and their staffs. The legal support staff

assigned to support AOC divisions and specialty teams requires access to weapons systems and

munitions data, C2 information systems, targeting information, and other information and
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processes used to plan, coordinate, and execute air and space operations. The legal support staff 

that is fully engaged and integrated within the AOC is best able to provide accurate and timely 

legal advice. Accordingly, the COMAFFOR and the AOC staff should fully utilize the legal

support staff while air and space operations are being planned and before they are executed. In

addition, the legal support staff should be able to review the effects of air and space operations to 

ensure the operations were conducted within limits of the law. Early and timely identification of 

legal issues allows commanders to make decisions on alternative courses of action prior to or

during execution.

ORGANIZATION OF LEGAL SUPPORT 

The legal support staff is integrated into the various divisions and cells within the AOC. 

The organization within an AOC is subject to considerable variation, and its size and internal

structure will vary to support the requirements of the operation. Legal support to an AOC is

categorized as a specialty team designed to assist the AOC director and all AOC core teams to

include the Strategy Division, Combat Plans Division, Combat Operations Division, and the Air

Mobility Division. (See AFDD 2, Organization and Employment of Aerospace Forces and

AFDD 2-8, Command and Control for Joint Operations.) In addition, legal support is provided

to support special functions within a core team such as targeting and rules of engagement cells. 

As a specialty team, the legal support staff is not directly assigned or dedicated to support a

particular division, but is available to support the demands of the entire organization.

The COMAFFOR should ensure the Air Force legal support staff is adequately

represented as part of the joint legal support staff and is available in sufficient number to support 

the requirements of the AOC. The nature and scope of the air campaign, the operations tempo

within the AOC, and the requirements of the supported commander determine the amount and

configuration of Air Force legal support provided to the AOC. For example, in smaller

operations, a single legal activity may support both the COMAFFOR and the AOC. 

Legal support in an AOC is provided by judge advocates and paralegals with training and 

security clearances commensurate with their duties. Paralegals assist judge advocates in

identifying legal issues and supporting functions and processes within an AOC, but only a judge 

advocate may provide legal advice or render a legal opinion. While the internal organization 

of the AOC will vary, the legal support staff provides services to enhance the mission of the

AOC, and judge advocates will provide advice to lawfully achieve mission objectives.

Legal Support to the Strategy Division 

The legal support staff assists the Strategy Division within an AOC by evaluating legal

issues raised by the operational environment and the objectives of the supported commander. 

Within the Strategy Division, the legal support staff concentrates on long-range planning to

support the development, refinement, dissemination, and assessment of the COMAFFOR's plans 

and operations (in support of JFC strategy) and the air and space operations plan (AOP). When

supporting the Strategy Division, the legal support staff focuses on long-range planning and
33

execution rather than on the details of day-to-day operations. The legal support staff provides 

tailored legal services to support the planning requirements of the Strategy Division.

As the AOP is developed and objectives are identified, the legal support staff reviews

mission objectives found in the strategy and identifies legal constraints that may restrict or

prevent certain courses of action. (See figure 4.1.) Judge advocates balance the intent of the

commander with the limitations and constraints found in law, policy, or other guidance and

advise the commander on the lawfulness of each course of action. The primary role of the

judge advocate is to ensure the proposed strategy, including branches and sequels, is

consistent with the law, policy, and orders from superior headquarters and commanders

that govern the operation and to address any legal constraints that may affect joint or

coalition forces.

Legal Support to the Combat Plans Division

The legal support staff assists the Combat Plans Division in developing legally acceptable 

plans and orders that support the AOP and the guidance issued by the JFC and the COMAFFOR. 

Within the Combat Plans Division, judge advocates facilitate the conversion of the strategic

guidance refined by the Strategy Division into plans and orders that direct the execution of air,

space, and information operations.

The legal support staff participates in a recurring planning process to assist commanders

in identifying, prioritizing, and selecting specific tasks to be accomplished and targets to be

engaged with available resources. In this capacity, judge advocates advise the guidance,

apportionment, and targeting team, master air attack plan (MAAP) team and the air tasking order 

and airspace control order (ATO/ACO) team. The legal support staff participates in target list

development, production of the MAAP, drafting special instructions (SPINS), and publishing of

the ACO and the final ATO. (See figure 4.1.)

The legal support staff reviews targets, tactics, and weapons used in or in support of air,

space, and information operations. Judge advocates review all proposed targets and weapons to

ensure air and space operations comply with international and domestic law and national policy. 

The legal support staff focuses on ensuring targets are engaged, tactics are used, and weapons are 

employed consistent with the LOAC and the ROEs. For example, a judge advocate may serve on 

a joint targeting coordination board or advise a commander on the requirements to protect

cultural property and to minimize collateral damage during an air strike. Although the ultimate

decision whether to strike a target rests with the commander, judge advocates perform a legal

review on proposed targets to identify any legal considerations.
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Air Tasking Order Phases

Phase 1 - JFC/Component Coordination

– The JFC consults with component commanders 

to assess the results of the warfighting effort 

and to discuss the strategic direction and future 

operations plans.

– Component commanders may make 

recommendations, describe support 

requirements, and state their ability to support 

other components.

– The JFC’s planning guidance and objectives 

will identify targeting priorities, the joint target 

list and joint integrated prioritized target list 

planning guidance, procedures, appropriate 

maneuver and movement control, joint fire 

support coordinating procedures, and ROEs. 

This guidance also includes an air 

apportionment decision.

Role of the Legal Support Staff

– The JFC and COMAFFOR legal support 

staffs evaluate all the information going to 

the JFC and COMAFFOR to assess a wide 

variety of potential legal issues or report on 

the resolution of legal matters already 

being addressed.

– The legal support staff reviews proposals 

going to the JFC and COMAFFOR to 

ensure compliance with the LOAC, 

international, host nation and domestic law, 

ROEs, and other orders and guidance from 

superior commanders.

Phase 2: Target Development

– The JFC’s objectives stated during Phase 1 are 

used to focus target development. All potential 

targets are processed through the AOC Combat 

Plans Division.

Role of the Legal Support Staff

– The legal support staff ensures targeting 

complies with higher headquarters 

guidance, ROEs, and the LOAC.

– The AOC legal support team develops 

processes to ensure all proposed targets are 

reviewed regardless of when they are 

proposed.

Phase 3: Weaponeering/Allocation

– During this phase, targeting personnel quantify 

the expected results of lethal and nonlethal 

weapons employed against prioritized targets. 

The final prioritized targets are then included in 

the master air attack plan, the foundation for the 

joint air tasking order.

Role of the Legal Support Staff

– The review of the target contains an 

analysis of whether the effect of the attack 

may result in disproportionate collateral 

damage or other violations of international 

law.

– The legal support staff ensures the master 

air attack plan complies with higher 

headquarters guidance, ROEs, and the 

LOAC.

Phase 4: ATO Development

– After the MAAP is approved by the 

COMAFFOR/JFACC, detailed preparations 

continue by the Combat Plans Division on joint 

air tasking orders and the special instructions 

that accompany each air tasking order.

Role of the Legal Support Staff

– The legal support staff ensures the air 

tasking order reflects the correct ROEs 

before it is released.

Phase 5: Force Execution

– The COMAFFOR/JFACC directs the execution 

and/or deconflicts all capabilities and forces 

made available for a given joint air tasking 

Role of the Legal Support Staff

– The legal support staff advises the Combat 

Operations Division during combat 

missions, search and rescue missions, and 
35

Air Tasking Order Phases

order.

– The AOC/JAOC should be responsive to 

required changes during the execution of the air 

tasking order. In-flight reports and initial battle 

damage assessments may cause a redirecting of 

joint air capabilities/forces before launch or a 

redirection once airborne.

– The COMAFFOR/JFACC will normally be 

responsible for retargeting missions and 

responding to moving targets or changing 

priorities.

other operations likely to raise legal issues.

– They ensure “re-roled” missions and 

attacks on time-sensitive targets are 

reviewed for compliance with the LOAC. 

They also offer advice on other legal issues 

arising during operations. 

– The legal issues may include allegations of 

violations of the LOAC by coalition or 

enemy forces. All personnel are required 

to report these allegations to appropriate 

superior officers. The legal support staff 

advises and assists in the investigation and 

provides continuing legal support to the 

command investigating the allegation.

Figure 4.1. Role of Legal Support in ATO Development

Legal Support to the Combat Operations Division 

The legal support staff assists the Combat Operations Division in monitoring and

executing current air, space, and information operations. Within the Combat Operations

Division, the legal support staff concentrates on evaluating the legality of air and space

employment options designed to support the overall COMAFFOR objectives. Accordingly,

judge advocates provide legal advice to support combat search and rescue (CSAR) operations

and attacks on time-sensitive targets. For example, when attacking time-sensitive targets, a judge 

advocate considers factors including the sufficiency and accuracy of target data, the requirements 

of the LOAC, compliance with the ROEs, and safeguards against fratricide. (See figure 4.1.) 

Commanders should fully integrate the legal support staff into combat operations 

processes to ensure orders do not unnecessarily restrict lawful actions or inadvertently

permit unlawful activities.

The legal support staff maintains situational awareness to identify legal issues resulting

from the execution of planned or time-sensitive operations. Judge advocates continuously

monitor and evaluate tactics, technology, capabilities, or other conditions to identify legal issues

that may impact an operation. They recommend that commanders modify or forward a request to 

modify the ROEs when conditions or circumstances warrant changes to those rules. They and

their legal staff advise on the changing nature of operations during execution with the goal of

ensuring the legal integrity of military operations. The legal support staff that is properly

integrated within the Combat Operations Division is in the best position to understand and

identify legal issues that may impact an operation and is available to provide immediate legal

advice on targets of opportunity and other time-sensitive operational requirements. 

For example, where time-sensitive targets are involved, judge advocates should provide

commanders with advice on the full range of options. Because of the urgent nature of timesensitive targets, judge advocates provide critical legal advice immediately. Moreover, the legal

support staff should be forward thinking, anticipating potential legal issues for targets identified
36

as time-sensitive. Commanders may seek legal advice if conditions change during air operations 

and request a legal opinion from the supporting judge advocate. The legal support staff quickly

and accurately assesses targets and forms sound legal opinions based on national and other

policy, the ROEs, and the LOAC to support the commander’s objectives.

The legal support staff evaluates the effects of air, space, and information operations. 

After execution, the legal support staff reviews battle damage assessment (BDA) information and 

reports for potential LOAC violations or instances of fratricide. When directed by the supported 

commander, the legal support staff should promptly initiate or assist in investigations of potential 

LOAC violations or instances of fratricide. Commanders should immediately involve the

legal support staff as soon as a potential LOAC violation or instance of fratricide has

occurred, has been reported, or is suspected. The legal support staff reports LOAC violations 

and instances of fratricide through the operational chain of command and takes actions to

preserve evidence and information to support future investigations or inquiries. (See figure 4.1.)

Legal Support to the Air Mobility Division 

Within the Air Mobility Division, the legal support staff advises on actions taken to plan, 

coordinate, task, and execute air mobility operations. For example, judge advocates may advise

the air mobility control team (AMCT) on command relationships during mission execution. 

Within an AOC, air mobility operations may give rise to challenging legal issues that involve

command relationships, interpretations of international agreements, and overflight or landing

rights. If time permits, the legal support staff may use reachback to address complex legal issues 

involving air mobility operations to enable the optimal use and flexibility of global air mobility

assets.
37

CHAPTER FIVE

ROLE OF LEGAL SUPPORT IN OPERATIONAL READINESS 

INTRODUCTION

Operational readiness is a mindset and an evaluation of a status attributed to the

actions taken to prepare, sustain, and reconstitute military capabilities before, during, and

after a military operation. The legal support staff contributes to the operational readiness of

Air Force forces through robust and tailored legal services aimed at maximizing the readiness of 

Air Force forces in the legal environment in which they will operate. This chapter explores legal 

support contributions to the combat support process and discusses the means by which the legal

support staff achieves and maintains operational readiness.

OPERATIONAL READINESS OF AIR FORCE FORCES 

The legal support staff is integrated within each

phase of the combat support process and provides legal

services to maximize readiness. Legal services are

provided at each level of command and are configured to

directly or indirectly support the operational readiness of

Air Force members and its activities. The contributions of

the legal support staff to operational readiness extend from

the legal readiness of individual airmen to the legal issues

encountered at the strategic level. Commanders should

fully integrate legal support within the combat support

process to allow the legal support staff to prevent or

identify and then mitigate the adverse effects of legal

issues. Legal support within the combat support process

occurs at home station and at forward operating locations and utilizes each category of

expeditionary legal support and the full spectrum of legal services that are available at home

station. (See figure 5.1.) Operational readiness is enhanced through legal services that are

accessible during all phases of the combat support process from deployment preparation to force 

recovery. (See AFDD 2-4, Combat Support.)

Operational readiness is at the heart of everything we do for the Air Force; it is not

limited to deployments. ...it reflects the ability to provide the complete set of legal

capabilities at any place, at any time.

 Major General William A. Moorman

 Former Air Force Judge Advocate General

The legal staff provides legal assistance 

to deploying members to maximize the 

readiness of the force.
38

Figure 5.1. Combat Support Process

Readying the Force 

The legal support staff provides legal services to assist commanders in creating an

organized, trained, equipped, and disciplined force ready to operate in peace and war. At each

level, the legal support staff strengthens Air Force primary functions by supporting actions taken 

to prepare Air Force forces for deployment or in-place operations. Commanders should utilize 

available legal services well prior to a known deployment or before the start of operations

as legal support may later be limited and directed to support other operational

requirements. For example, the legal support staff advises commanders on a wide range of

legal issues pertaining to fiscal law, conscientious objector issues, disciplinary matters, personnel 

law, contract law, training on rules of engagement, and other legal matters. In addition,

commanders should encourage their airmen to take advantage of predeployment legal services

offered throughout the Air Force to maximize the readiness of their units. While not an

exhaustive list, the legal support staff may take any or all of the following actions to ready the

force:

μ Advise commanders of forces preparing for deployment.

μ Develop and implement robust preventive law programs.

μ Participate in the logistics support process to obtain, preposition, or transfer resources to

sustain operations.

μ Provide training and mission-related legal assistance on the legal issues influencing readiness 

(e.g., estate planning, LOAC, ROEs).

μ Prepare legal support capabilities for deployment.
39

Preparing the Force 

The legal support staff prepares the force by enhancing the operational environment with 

legal services tailored to support base planning and assessment tasks. Preparing the force

requires servicing legal activities to identify, assess, and analyze information or conditions that

may impose legal constraints on the operational environment. In this phase, the legal support

staff participates in planning and assessment activities to understand and document legal issues

that may impede operations. In addition, the legal support staff determines the legal capabilities 

required to support operations and adjusts legal services to support the current environment. 

Following are examples of the actions the legal support staff may take to prepare the force:

μ Identify and resolve legal issues within the operational environment (e.g., host-nation 

support, use of force, environmental constraints).

μ Remove, document, or resolve legal impediments encountered during base support planning

activities.

μ Determine legal reachback capabilities and requirements available to support forward

deployed forces and those required to sustain operations.

μ Identify legal support requirements and capabilities needed to support operations (e.g., legal

services, equipment, facilities).

Protecting the Force 

The legal support staff participates in force protection activities to provide a secure

operational environment for Air Force forces. Protecting Air Force personnel and resources

generates a host of legal issues that range from the fiscal authority to obtain resources and

provide training to the inherent right of self-defense. Commanders should involve the legal

support staff in the processes and activities used to plan and execute force protection

activities. When integrated to support force protection capabilities, judge advocates are best able 

to provide commanders with legal advice that is carefully crafted to meet the needs of the

operational environment. While not an exhaustive list, the legal support staff may take any or all 

of the following actions to protect the force:

μ Ensure commanders and operators understand their rights and obligations regarding the use

of force inside and outside of the US (e.g., rules for the use of force, CJCS SROEs).

μ Ensure operations and activities comply with international law and domestic law and policy

(e.g., LOAC, ROEs, Posse Comitatus Act, domestic support, search authority, use of nonlethal weapons).

μ Assist in developing and interpreting ROEs and the rules for governing the use of force (e.g., 

requests for supplemental ROEs measures, use of force training).
40

μ Participate in force protection planning activities and development of force protection plans

(e.g., force protection cells, assessment teams).

μ Evaluate host-nation support agreements and cooperation arrangements.

μ Review procurement actions for compliance with fiscal law (e.g., training, security measures, 

procurement of weapons).

μ Review the status of detained or captured personnel or seized property.

Positioning the Force 

The legal support staff enhances the Air Force’s ability to deploy, receive, and bed down

forces. In every operations area, ranging from main operating bases to austere bare bases, the

legal support staff facilitates the transition of a deploying force into a mission capable force. In

this phase, the legal support staff provides legal services to create a legal environment that

enables forces to begin operations without delay. Commanders should ensure legal support is 

available in advance of and during initial deployment, reception, and beddown of forces to 

ensure legal issues do not impact future operations or activities. For example, the legal

support staff may take any or all of the following actions to position the force to:

μ Deploy as part of advance and reception teams or operational cadre to receive and bed down

deploying forces.

μ Participate in negotiations for host-nation support and the status of US forces in a host nation 

(e.g., foreign criminal jurisdiction, landing fees, use of facilities, claims provisions, taxes).

μ Develop comparative law studies of the operational environment (e.g., civil and criminal

procedures, summary of unique host-nation laws, rights of US personnel apprehended by

host-nation authorities).

μ Support logistics processes to obtain goods and services from the local economy (e.g.,

contingency contracting actions, environmental law and land use issues).

μ Assist commanders and their staff in developing local policies and procedures to protect the

force and maintain discipline (e.g., US Central Command General Order Number 1, force

protection plan).

μ Educate deploying forces on legal issues and policies that apply to the location and operations 

conducted from the location (e.g., host-nation law, ROEs, claims provisions).

μ Liaison with applicable US agencies and nongovernmental organizations within the host

nation.
41

Employing the Force 

The legal support staff enhances the ability of employing Air Force forces to conduct and 

support air and space operations. In this phase, the legal support staff establishes and tailors

legal services to sustain air and space operations. As Air Force forces begin to support mission

objectives, legal services expand to focus on support for ongoing operations while continuing to 

receive and assist deploying combat and combat support forces. Commanders should work

closely with the legal support staff to understand the legal constraints of the operational

environment and how legal issues may shape operations or activities. Following are some

examples of actions the legal support staff may take to employ the force:

μ Refine the legal support requirements for the location and establish reachback connectivity.

μ Accomplish mission training for the supported population (e.g., ROEs, LOAC, US Central

Command General Order Number 1).

μ Support actions to generate operational elements of the force (e.g., logistics support,

operations planning, target reviews).

μ Develop and organize legal services to support continuing operations (e.g., legal assistance,

claims services, military justice support, legal support to C2).

Sustaining the Force 

The legal support staff enhances the ability of Air Force forces to sustain air and space

operations. During this phase, legal support personnel provide legal services to support

operations, sustain logistics, maintain discipline, and satisfy the legal needs of commanders and

airmen. While not an exhaustive list, the legal support staff may take any or all of the following 

actions to sustain the force:

μ Provide full-spectrum legal services to Air Force forces at forward operating locations (e.g.,

courts-martial, legal assistance, claims, C2 support).

μ Employ legal reachback capabilities to enhance legal services (e.g., connectivity to legal

information services, liaison with legal specialists).

μ Refine legal support requirements and adjust legal services to meet mission requirements

(e.g., ROE changes, tax program, upgraded equipment).

μ Provide continuous support for the logistics processes (e.g., military construction, long-term 

service contracts, new contracts).

μ Support C2 activities and ongoing operations (e.g., ROE training, target reviews, ATO

generation).
42

The legal support staff resolves legal issues that arise 

during redeployment to protect US interests after 

forces depart a forward operating location.

Recovering the Force 

The legal support staff plays an integral role in recovering the force by providing legal

services designed to reintegrate Air Force capabilities at the home station or at another deployed

location. Recovering the force completes the combat support cycle and allows the forces to

reconstitute their capabilities and prepare for future deployments. This phase generates

significant legal issues that range from application of host-nation environmental laws at a

forward operating area used by US forces to legal assistance provided to an Air Reserve

Component (ARC) member under the Soldiers and Sailors Civil Relief Act (SSCRA) and the

Uniformed Services Employment and Re-employment Rights Act (USERRA). Commanders 

should ensure the legal support staff is available to support recovering forces at home

station or at a new deployment location, to address legal issues generated by the departure 

of US forces. Below are examples of actions the legal support staff may take to recover the

force:

μ Address legal issues concerning real property, materials, and real estate that are returned to

the owner or host nation (e.g., environmental impact, value of improvements to facilities).

μ Provide mission-related personal legal services to recovering Air Force forces.

μ Ensure defense goods and services are sold, 

transferred, disposed of, or returned in

accordance with law and policy (e.g.,

fitness equipment, temporary facilities, tent

platforms, supplies).

μ Adjudicate and settle claims for and against

US forces (e.g., personal injury, property 

damage).

μ Provide legal support to forces remaining

behind to support recovery operations (e.g.,

legal assistance, contracting support,

logistics).

OPERATIONAL READINESS OF THE LEGAL SUPPORT STAFF 

Operational readiness is a legal support competency, which defines legal support staff

ability to provide the warfighter a complete set of legal capabilities at any time, at any place. Air 

Force readiness demands that the legal support staff be organized, trained, and equipped to

support air and space operations at all levels and in varied environments. The legal support staff 

focuses attention internally to prepare and equip legal professionals to support mission

requirements. The legal support staff achieves readiness by preparing highly trained airmen who 

possess the legal skills necessary to support air and space operations. 
43

Legal support activities evaluate and report the ability of the legal support staff to support 

mission requirements through joint and Air Force reporting systems using objective readiness

criteria. Through a systematic internal evaluation of the readiness of deployable and in-place 

legal capabilities, the legal support staff is able to measure its ability to support the mission and

contributes to the readiness of the total force. Commanders should evaluate the readiness of

legal activities to support the operational requirements of both in-place and expeditionary

missions. The legal support staff receives the training and resources necessary to achieve

readiness from many sources. Although not an exhaustive list, the legal support staff may

participate in any or all of the following activities to prepare to support operations:

μ Continuing legal education through civilian, joint, and multinational sources.

μ Professional military education through Air Force, joint, and multinational sources.

μ Military engagement activities with domestic and foreign agencies and activities.

μ Comparative law studies and interactions with host-nation legal representatives.

μ Joint and multinational exercises and training.

μ Involvement in operations planning with access to the information and processes used to

direct, control, and sustain air and space operations.

μ Evaluation of application of legal principles to new missions, weapons systems, and tactics.

45

SUGGESTED READINGS

Air Force Publications (accessible at https://www.doctrine.af.mil)

Air Force Doctrine Document 1, Air Force Basic Doctrine.

Air Force Doctrine Document 2, Organization and Employment of Aerospace Forces.

Air Force Doctrine Document 2-1, Air Warfare.

Air Force Doctrine Document 2-2, Space Operations.

Air Force Doctrine Document 2-3, Military Operations Other Than War.

Air Force Doctrine Document 2-4, Combat Support.

Air Force Doctrine Document 2-5, Information Operations.

Air Force Doctrine Document 2-6, Air Mobility.

Air Force Doctrine Document 2-7, Special Operations.

Air Force Doctrine Document 2-8, Command and Control.

Joint Publications

Joint Publication 0-2, United Action Armed Forces (UNAAF).

Joint Publication 1-04, Joint Tactics, Techniques, and Procedures for Legal Support to Military 

Operations. (Draft)

Joint Publication 3-07, Joint Doctrine for Military Operations Other Than War.

Joint Publication 3-13, Joint Doctrine for Information Operations.

Joint Publication 3-56.1, Command and Control for Joint Air Operations.

Joint Publication 3-57, Joint Doctrine for Civil-Military Operations.

Joint Publication 3-60, Joint Doctrine for Targeting.

Other Publications

Department of the Air Force. Air Force Operations and the Law—A Guide for Air and Space 

Forces (HQ USAF/JAI Publication) 2002.

Dunlap, Charles J. Jr., Col, USAF, The Revolution in Military Legal Affairs: Air Force Legal 

Professionals in 21st Century Conflicts, 51 A.F.L. REV. 293 (2001).

Gent, Terrie M., Lt Col, USAF, "The Role of Judge Advocates in a Joint Air Operations Center," 

Air Power Journal Vol. XIII, No. 1 (Spring 1999): 40-55.

Price, Richard, Col, USAF, "Command Authorities of the COMAFFOR/JFACC," The JAG 

Warrior, Vol III, Issue 1 (Spring 2000).
46

Wehrle, Joseph H., Lt Gen, USAF, "Deployed Legal Teams—A JTF Commander’s Perspective," 

The JAG Warrior, Vol IV, Issue 1 (Autumn 2001).

Zinni, Anthony C., Lt Gen, USMC, The SJA in Future Operations, (Marine Corps Gazette) 1996.
47

GLOSSARY

Abbreviations and Acronyms

ACO airspace control order

AEF air and space expeditionary force

AEG air expeditionary group

AES air expeditionary squadron

AETF Air and Space Expeditionary Task Force

AEW air expeditionary wing

AFDD Air Force Doctrine Document

AFFOR Air Force forces

AFRC Air Force Reserve Command

AMCT air mobility control team

ANG Air National Guard

AOC air operations center (JP 1-02); air and space operations 

center {USAF}

AOP air operations plan (JP 1-02); air and space operations plan 

{USAF}

AOR area of responsibility

ARC Air Reserve Component

ATO air tasking order

BDA battle damage assessment

C2 command and control

C/JTF combined/joint task force

CAOC combined force air operations center (JP 1-02); combined

force air and space operations center {USAF}

CAP crisis action planning

CFACC combined force air component commander (JP 1-02); 

combined force air and space component commander

{USAF}

CJCS Chairman, Joint Chiefs of Staff

COA course of action

COMAFFOR Commander, Air Force Forces

CONPLAN operations plan in concept format

CSAR combat search and rescue

DOD Department of Defense

FDS foundational doctrine statements

JAG judge advocate general
48

JAOC joint air operations center (JP 1-02);

joint air and space operations center {USAF}

JFACC joint force air component commander (JP 1-02); joint force 

air and space component commander {USAF}

JFC joint force commander

LOAC law of armed conflict

MAAP master air attack plan

MAJCOM major command

MOOTW military operations other than war

NAF numbered air force

NORAD North American Aerospace Defense Command

OIF Operation IRAQI FREEDOM

ONE Operation NOBLE EAGLE

OPCON operational control

OPLAN operation plan

OPORD operation order

ROE rules of engagement

SecDef Secretary of Defense

SJA staff judge advocate

SPINS special instructions

SROE standing rules of engagement

SSCRA Soldiers and Sailors Civil Relief Act

TACON tactical control

UCMJ Uniform Code of Military Justice

USERRA Uniformed Services Employment and Re-employment 

Rights Act
49

Definitions

air expeditionary force. Deployed US Air Force wings, groups, and

squadrons committed to a joint operation. Also called AEF. See also air

and space expeditionary task force. (JP 1-02) [air and space

expeditionary force. An organizational structure composed of force

packages of capabilities that provide warfighting commanders with rapid

and responsive air and space power. These force packages are tailored to 

meet specific needs across the spectrum of response options and will

deploy within an Air and Space Expeditionary Task Force as air

expeditionary wings (AEWs), groups (AEGs), or squadrons (AESs). See

also air and space expeditionary task force. Also called AEF. (AFDD 2)] 

{Italicized words in brackets apply only to the Air Force and are offered

for clarity.}

air and space expeditionary task force. A deployed numbered air force

(NAF) or command echelon immediately subordinate to a NAF provided

as the US Air Force component command committed to a joint operation.

Also called AETF. See also air expeditionary wing. (JP 1–02)

air expeditionary wing. A wing or wing slice placed under the

administrative control of an air and space expeditionary task force or air

and space task force by Department of the Air Force orders for a joint

operation. Also called AEW. (JP 1–02)

air operations center. The principal air operations installation from

which aircraft and air warning functions of combat air operations are

directed, controlled, and executed. It is the senior agency of the Air Force 

Component Commander from which command and control of air

operations are coordinated with other components and Services. Also

called AOC. (JP 1–02) [air and space operations center. Operational 

campaign planning and execution is conducted through the air and space

operations center (AOC). The air and space component commander uses

the AOC, which the Air Force considers a weapon system, to command

and control the integrated air and space effort to meet JFC objectives.

Also called AOC. (AFDD 1-2)] {Italicized words in brackets apply only to 

the Air Force and are offered for clarity.}

air tasking order. A method used to task and disseminate to components, 

subordinate units, and command and control agencies projected sorties,

capabilities and/or forces to targets and specific missions. Normally

provides specific instructions to include call signs, targets, controlling 

agencies, etc., as well as general instructions. Also called ATO. (JP 1–02)
50

beddown. A location at which a deploying unit operates during a

contingency. It is usually, but not always, in the area of responsibility

(AOR). (AFDD 2-4)

command and control. The exercise of authority and direction by a

properly designated commander over assigned and attached forces in the

accomplishment of the mission. Command and control functions are

performed through an arrangement of personnel, equipment,

communications, facilities, and procedures employed by a commander in

planning, directing, coordinating, and controlling forces and operations in

the accomplishment of the mission. Also called C2. (JP 1–02)

deployment. The relocation of forces and material to desired operational

areas. Deployment encompasses all activities from origin or home station

through destination, specifically including intra-continental US,

intertheater, and intratheater movement legs, staging, and holding areas.

(JP 1–02) [Act of preparing, staging, and moving equipment and

personnel from their home station to their deployed site, usually in an

AOR, to support an operation.] {Italicized words in brackets apply only to 

the Air Force and are offered for clarity.}

home station. The permanent location [CONUS or overseas installations] 

of active duty units and Reserve Component units (e.g., location of armory

or reserve center). (JP 1–02) {Italicized words in brackets apply only to the 

Air Force and are offered for clarity.}

information-in-warfare. IIW is a set of air and space information

operations functions that provides commanders battlespace situational

awareness across the spectrum of conflict and range of air and space

operations. IIW functions involve the Air Force’s extensive capabilities to 

provide awareness throughout the range of military operations based on

integrated intelligence, surveillance, and reconnaissance (ISR) assets; its

information collection/dissemination activities; and its global navigation

and positioning, weather, and communications capabilities. Also called

IIW. (AFDD 2-5)

information operations. Actions taken to affect adversary information

and information systems while defending one’s own information and

information systems. Also called IO. (JP 1-02) The Air Force believes

that in practice a more useful working definition is: [Those actions taken

to gain, exploit, defend, or attack information and information systems

and include both information-in-warfare and information warfare.]

{Italicized definition in brackets applies only to the Air Force and is

offered for clarity.}
51

information warfare. Information operations conducted during time of

crises or conflict to achieve or promote specific objectives over a specific

adversary or adversaries. Also called IW. (JP 1–02) [Information 

operations conducted to defend one’s own information and information

systems, or to attack and affect an adversary’s information and

information systems.] (AFDD 2-5) {Italicized words in brackets apply only 

to the Air Force and are offered for clarity.}

joint air operations. Air operations performed with air capabilities/forces 

made available by components in support of the joint force commander’s

operation or campaign objectives, or in support of other components of the 

joint force. (JP 1–02).

joint air operations center. A jointly staffed facility established for

planning, directing, and executing joint air operations in support of the

joint force commander’s operation or campaign objectives. Also called

JAOC. See also joint air operations. (JP 1–02). [joint air and space

operations center. Joint operational campaign planning and execution is

conducted through the joint air and space operations center (JAOC). The

joint air and space component commander (JFACC) uses the JAOC to

command and control the integrated air and space effort to meet JFC

objectives.] (AFDD 1-2) {Italicized words in brackets apply only to the

Air Force and are offered for clarity.}

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. See also joint force

commander. (JP 1–02)

joint force air component commander. The commander within a

unified command, subordinate unified command, or joint task force

responsible to the establishing commander for making recommendations

on the proper employment of assigned, attached, and/or made available for 

tasking air forces; planning and coordinating air operations; or

accomplishing such operational missions as may be assigned. The joint

force air component commander is given the authority necessary to

accomplish missions and tasks assigned by the establishing commander. 

Also called JFACC. See also joint force commander. (JP 1-02) [joint 

air and space component commander. The JFACC uses the joint air

and space operations center to command and control the integrated air

and space effort to meet joint force commander’s objectives. The Air

Force position is that air power and space power together create effects

that cannot be achieved through air or space power alone.] (AFDD 1-2)

{Italicized words in brackets apply only to the Air Force and are offered

for clarity.}
52

joint force commander. A general term applied to a combatant 

commander, subunified commander, or joint task force commander

authorized to exercise combatant command (command authority) or

operational control over a joint force. Also called JFC. See also joint 

force. (JP 1–02)

joint task force. A joint force that is constituted and so designated by the 

Secretary of Defense, a combatant commander, a subunified commander,

or an existing joint task force commander. Also called JTF. (JP 1–02)

law of armed conflict. See law of war. (JP 1–02)

law of war. That part of international law that regulates the conduct of

armed hostilities. Also called the law of armed conflict. See also rules 

of engagement. (JP 1–02)

logistics. The science of planning and carrying out the movement and

maintenance of forces. In its most comprehensive sense, those aspects of

military operations that deal with: a. design and development, acquisition,

storage, movement, distribution, maintenance, evacuation, and disposition

of materiel; b. movement, evacuation, and hospitalization of personnel; c.

acquisition or construction, maintenance, operation, and disposition of

facilities; and d. acquisition or furnishing of services. (JP 1–02)

military operations other than war. Operations that encompass the use

of military capabilities across the range of military operations short of war. 

These military actions can be applied to complement any combination of

the other instruments of national power and occur before, during, and after 

war. Also called MOOTW. (JP 1-02) [An umbrella term encompassing a 

variety of military operations conducted by the Department of Defense

that normally complement the other instruments of national power. These 

military operations are as diverse as providing support and assistance

(when consistent with US law) in a nonthreatening environment, and

conducting combat not associated with war.] (AFDD 2-3) {Italicized 

words in brackets apply only to the Air Force and are offered for clarity.}

operational readiness. The capability of a unit/formation, ship, weapon

system, or equipment to perform the missions or functions for which it is

organized or designed. May be used in a general sense or to express a level 

or degree of readiness. Also called OR. See also combat readiness. 

(JP 1-02)
53

reachback. The process of obtaining products, services, and applications, 

or forces, equipment, or materiel from Air Force organizations that are not 

forward deployed. (AFDD 2-8)

rules of engagement. Directives issued by competent military authority

that delineate the circumstances and limitations under which the US forces 

will initiate and/or continue combat engagement with other forces

encountered. Also called ROE. (JP 1–02)

standing rules of engagement. Fundamental policies and procedures

governing actions to be taken by US force commanders during attacks

against the US and all military operations, contingencies, or prolonged

conflicts outside the territorial jurisdiction of the US. They provide

implementation guidance on the inherent right and obligation of selfdefense and the application of force for mission accomplishment. Also

called SROE. (CJCSI 3121.01A)

strategy. The art and science of developing and employing instruments of 

national power in a synchronized and integrated fashion to achieve theater, 

national, and/or multinational objectives. (JP 1–02)

sustainment. The provision of personnel, logistic, and other support

required to maintain and prolong operations or combat until successful

accomplishment or revision of the mission or of the national objective. (JP 

1–02)

tactics. 1. The employment of units in combat. 2. The ordered

arrangement and maneuver of units in relation to each other and/or to the

enemy in order to use their full potentialities. (JP 1–02)

war. Open and often prolonged conflict between nations (or organized

groups within nations) to achieve national objectives. (AFDD 1)