User’s Guide

for JOPES

1 May 1995

(Joint Operation Planning and Execution System)
To successfully fight and win

wars, war planning must be our

central focus. We will develop the

best possible plans using the collective wisdom available among all military planning staffs.

As forces are downsized, we must efficiently plan to use the resources entrusted us by the American people.

While the new world security environment evolves, diverse threats to our

national interests frequently require

large and complex operations. The

larger and more complex the operation,

the more it critically depends on a comprehensive planning system to ensure any measure of success.

Future plans must incorporate, to the maximum extent possible, the warfighting employment principles outlined in joint doctrine; Joint Pubs 3-0 and 5-0 (Joint Operations and

Planning for Joint Operations, respectively). In addition, future plans must be prudent

and relevant to current and projected threats. Plans must clearly explain how and why

forces are employed, in addition to what forces are to be deployed and when.

The products of our planning efforts must be able to stand up to the strongest scrutiny,

including the ultimate test--execution.

I strongly recommend reading this guide--it encapsulates fundamental JOPES planning

principles and procedures for both deliberate and crisis action planners.

JOHN M. SHALIKASHVILI

Chairman

of the Joint Chiefs of Staff
Table of Contents

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

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

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

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

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

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

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

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

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

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

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

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

GLOSSARY .................................................................GL-1
(INTENTIONALLY BLANK)
User's Guide for

JOPES i

EXECUTIVE SUMMARY

Joint warfare is essential to our Nation's

capability to fight and win. The nature

of modern warfare demands we plan

and fight as a team. For joint forces to

win in battle they must have a single,

unified planning and execution framework capable of translating individual

Service terminology and operational

policies into a commonly understood

language and standard operating procedures.

The Joint Operation Planning and Execution System (JOPES) combines individual Service terminology and operating procedures into one standard

multifaceted system. It provides standardization to the joint planning system

used for the execution of complex

multi-Service exercises, campaigns and

operations. JOPES uses a set of command and control techniques and processes, supported by a computerized

information system, to ensure the right

amount of timely support gets to the

warfighter to ensure a decisive victory.

This primer will explain what JOPES

is — and what it is not. It is written

for commanders and war planners,

new and novice users of JOPES, and

those who have only a peripheral relationship with the system. If understood

and used properly, JOPES becomes a

combat multiplier, increasing our efficiency in joint planning and execution.

JOPES is the Chairman of the Joint

Chiefs of Staff’s (Chairman’s) joint

planning system. It covers the planning spectrum from the National Command Authorities (NCA) through the

Chairman, to the combatant commanders (the CINCs) and the joint

task force commanders. JOPES governs all aspects of conventional joint

military operations planning and execution. It is the tool used by all echelons

of planners and operators to speak a

commonly understood language.

JOPES furnishes joint commanders

and war planners at all levels standardized policies, procedures, and formats

to produce and execute a variety of

required tasks to include:

ú planning — writing operation plans

(OPLANs), operation plans in concept format (CONPLANs), functional plans, campaign plans, and

operation orders (OPORDs); and

ú execution and deployment

(time-phased force and deployment

data [TPFDD]) management —

defining requirements for, and gaining visibility of, the movement of

forces into the combatant commanders' area of responsibility

(AOR).
User's Guide for

JOPES

ii

ú prioritize, replan, and track deployment status during execution, and

ú refine deployment requirements and

monitor the deployment.

JOPES deliberate and crisis action

planning is described in detail in JOPES

Volumes I and II, and in the Chairman

of the Joint Chiefs of Staff Manual

(CJCSM), TPFDD Development and

Deployment Execution.

JOPES is, in the truest sense of the

word, a System. It is not merely a computer! It is not a series of computer

software programs! It is not just a standardized set of policies, procedures, and

formats for conducting planning and

execution! It is the sum of all these

parts! The goal of this primer is to provide the reader a fundamental understanding of this system and the interaction of its parts.

JOPES is not simply a computer system. It does include automated data

processing (ADP) support for planners

and commanders by providing both

hardware (computers) and software

(programs) to facilitate joint operation

planning and execution. JOPES ADP

resides in the computer network of the

World-Wide Military Command and

Control System (WWMCCS), scheduled to be replaced in September 1995

by the Global Command and Control

System (GCCS). The JOPES software

applications support a variety of planning and execution functions. Together,

the computer hardware and software

systems assist the planners to:

ú develop detailed deployment requirements,

ú estimate logistics and transportation

requirements and assess operation

plan transportation feasibility,
1

INTRODUCTION

JOPES is a combination of joint policies and procedures (guidance), and automated data processing

(ADP) support used to plan and execute joint military operations. Although JOPES (and its related

systems) has been used for over 20 years to support the development of operation plans and timephased force and deployment data (TPFDD), the

current automated system was given its first real

baptism of fire in Operation Desert Shield to assist

in managing a real world operational deployment.

Since then, JOPES ADP has been used in virtually

every deployment. Even though its performance is

far from ideal, it has become an integral part of our

ability to deploy forces.

This primer provides a general overview of JOPES.

Its purpose is to correct the common misconception that JOPES is only an ADP system by explaining in clear and succinct terms what JOPES truly

is. This document is intended to be used as a companion piece to the User's Guide to Joint Operation Planning, dated 11 September 1994. That

document provides a more detailed overview of joint

planning principles.

JOPES is a combination

of joint policies and procedures, supported by

automated data processing (ADP), designed to

provide joint commanders and planners with a

capability to plan and

conduct joint military

operations.

In war, nothing is achieved except by calculation. Everything

that is not soundly planned in its detail yields no result.

The Maxims of Napoleon

The Joint Operation

Planning and Execution

System (JOPES) is the

integrated system used

to plan and execute joint

military operations.
2 User's Guide for

JOPES

Joint

Warfighting

Operations

Joint Operation Planning

O PO RD or

Campaign Plan

campaign planning

The Joint Operation Planning and Execution System

JOPES

ADP

Support

JOPES

Publications

& Documents

NCA

Policy

Decisions

Deliberate

Planning

OPLAN OPLAN OPLAN OPLAN OPLAN OPLAN

Crisis

Action

Planning

figure 1

JOPES provides a standardized framework for

joint military planning

and execution. The

scope of JOPES is far

broader than is generally understood.

Figure 1 depicts the various parts of JOPES. JOPES

is the principal system within the Department of

Defense (DOD) to translate NCA policy decisions

into the joint combatant commander’s air, land and

sea operations. It does this by precisely defining

DOD war planning and execution policies, designating specific procedures and formats, and providing ADP support to convert NCA decisions into

joint operation plans. Joint operation plans are the

blueprints for joint operations.
3

NCA

NSC CIA

STATE DEPT DOD

COMBAT SUPPORT AGENCIES

CJCS

SUPPORTED

 COMMAND SERVICES SUBORDINATE COMMANDS

 COMPONENT COMMANDS

SUBORDINATE

 UNIFIED

 COMMANDS

USTRANSCOM

SUPPORTING

 COMMANDS

JOPES

U

S

A

U

S

A

F

U

S

N

U

S

M

C

M

T

M

C

A

M

C

M

S

C

LOGISTICS AGENCIES

F

U

N

C

T

I

O

N

A

L

J

T

F

S

O

F

N

A

V

F

O

R

A

F

F

O

R

A

R

F

O

R

M

A

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F

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S

C

G

THE JOINT PLANNING AND

EXECUTION COMMUNITY (JPEC)

The Joint Planning and Execution Community (JPEC)

THE NATIONAL

SECURITY COUNCIL (NSC)

THE PRESIDENT AND SECDEF (NCA)

figure 2

The National Command

Authorities (NCA) set

national policy and strategic direction.

The players in the joint planning process, as illustrated in figure 2, include the National Command

Authorities (NCA) and the Joint Planning and Execution Community (JPEC).

The President and Secretary of Defense, as the

NCA, sit atop the pyramid. They provide the ultimate decision on national policy and overall strategic direction of the U.S. Armed Forces. They are

supported by the executive departments and organizations within the Office of the President, primarily the National Security Council (NSC).

The NSC is the principal forum to deliberate national security policy issues. The NSC provides the

framework to establish national security strategy

and policy decisions for implementation by the President in his role as commander-in-chief. The President either issues orders directly to the military to

implement his national security strategy or he mandates military action by using directives. These diThe National Security

Council (NSC) System

supports the NCA in the

execution of their policy

decisions.
4 User's Guide for

JOPES

The Joint Planning and

Execution Community

(JPEC) plans and conducts joint operation

plans.

publications and documents,

JOPES is a system which

includes:

an operation planning

process, and

an ADP support system.

rectives can take the form of: the national security

strategy document, national security directives,

presidential directives, or executive orders.

As depicted in the lower portion of the pyramid,

the JPEC consists of those headquarters, commands, and agencies involved in the training, preparation, movement, reception, employment, support,

and sustainment of military forces assigned to a

theater of operations. The JPEC principals are the

Chairman and the Joint Staff, who publish the taskassigning documents, review the products, and approve the final version of peacetime plans. The

supported commands and their subordinates are responsible for developing and executing operation

plans and orders. The Services and their logistics

agencies play a key support role by organizing,

equipping, training, and maintaining forces for the

combatant commands.

JOPES is a system which translates NCA decisions into combatant commander's joint operations. It includes:

ú a set of publications and documents, which

guide the development of OPLANs and

OPORDs

ú an operation planning process, which develops deliberate plans (OPLANS) and operation

orders (OPORD), and

ú an ADP support system, which provides the

data processing support required for the development of OPLANs and OPORDs.
5

JOPES PUBLICATIONS AND DOCUMENTS

JOPES publications establish the formats and guidance to govern warplan (OPLAN and OPORD)

development by joint force commanders:

ú Joint Publication 5-03.1, Joint Operation

Planning and Execution System, Volume I,

(Planning Policies and Procedures), dated 4

August 1993, (to be staffed as CJCSM 3122.01);

ú Chairman of the Joint Chiefs of Staff Manual

(CJCSM) 3122.03 draft, Joint Operation

Planning and Execution System, Volume II,

(Planning Formats and Guidance), dated 13

October 1994; and

ú TPFDD Development and Deployment Execution, dated 9 December 1994.

Volume I provides the guidance commanders and

their staffs use to develop and execute joint operations. It provides specific, detailed, and standardized procedures and guidance for:

ú conducting deliberate planning,

ú writing OPLANs, CONPLANs (with and without TPFDD), and functional plans,

ú conducting crisis action planning, and

ú writing OPORDs.

JOPES Volume I also provides specific formats

and checklists used for crisis response by commanders and their staffs during crisis action planning.

There are three primary

JOPES publications:

JOPES Volume I,

JOPES Volume II, and

CJCSM 3122.02.

JOPES Volume I defines

the process for both deliberate planning and

crisis action planning.
6 User's Guide for

JOPES

JOPES Volume II provides the administrative

instructions and formats

for developing joint operation plans.

Volume II is a set of instructions (standardized

procedures) used by commanders and their staffs

to write OPLANs, CONPLANs, and functional

plans.

CJCSM 3122.02 provides guidance for the execution and management of real world deployments.

figure 3

CONPLAN

w/o TPFDD

Joint Operation Planning

Deliberate

Planning

Crisis Action

Planning

campaign planning

Functional

Plan

OPLAN Campaign OPORD

Plan

CONPLAN

w/TPFDD

Three planning categories fall within the scope

of joint operation planning:

• campaign planning,

• deliberate planning,

and

• crisis action planning.

THE JOPES PROCESS

CJCSM 3122.02 provides policies and procedures for deployment execution.

Plans are developed under different processes depending on the focus of the specific plan (figure 3).

They are campaign, deliberate, and crisis action planning. These processes are interrelated; campaign

planning principles contribute to both deliberate and

crisis action planning.
7

Campaign Planning

Campaign planning allows CINCs to translate national strategy and objectives into unified plans for

military action by specifying how operations and

logistics will be used to achieve success within a

given space and time. It embodies the combatant

commander’s strategic vision of the related operations necessary to attain theater strategic objectives.

If the scope of contemplated operations requires it,

campaign planning begins with deliberate planning.

It continues through crisis action planning, thus unifying both planning processes. The degree to which

the deliberate plan may serve as the core for a campaign plan is dependent on the plan assumptions,

commander's intent, and available resources. Campaign planning and its relation to joint operation planning is discussed in detail in Joint Pub 5-0 Doctrine

for Planning Joint Operations, dated 15 August

1994.

Campaign planning is

the responsibility of the

combatant commander.

Though it is not a structured formal process

like deliberate and crisis action planning, campaign planning principles apply to both.

Campaign planning

helps facilitate a transition from deliberate to

crisis action planning.

War plans cover every aspect of a war, and weave them all into a

single operation that must have a single, ultimate objective in which

all particular aims are reconciled.

Clausewitz, On War
8 User's Guide for

JOPES

Deliberate Planning

The deliberate planning process develops joint operation plans for contingencies identified in joint

strategic planning documents. These planning documents include the Secretary of Defense's annual

"Contingency Planning Guidance" (CPG) (which

provides written policy guidance for contingency

planning) and the Chairman’s "Joint Strategic Capabilities Plan" (JSCP) (which provides guidance

to the CINCs and Service Chiefs for accomplishing military tasks and missions based on current

military capabilities). Deliberate planning is completed in five phases based on JOPES guidance.

ú Phase I, initiation, specifies strategic objectives

and planning assumptions, specifies the type of

plan for each task, and apportions major combat and strategic forces to the CINCs for planning. This information is provided to the CINCs

in the JSCP.

ú In response to the JSCP assigned task, the

CINCs, during Phase II, concept development, conduct mission analysis, identify friendly

and enemy centers of gravity, determine the

commander's overall intent for the operation and

develop the staff estimates. The final result of

Phase II is a CINC's strategic concept, which

is submitted to the Chairman, as required, for

review and approval.

ú After the CINC's strategic concept is approved,

Phase III, plan development, begins with full

plan development and documentation. This process produces force, support, and transportation planning documents to support the CINC's

concept of operations. This process will be discussed in detail later in this primer, during discussions on TPFDD development.

Deliberate planning involves a structured process using the JOPES

five-phased methodology:

i. Initiation,

iii. Plan development,

ii. Concept development,
9

iv. Plan review, and

v. Supporting plans development.

Crisis Action Planning

(CAP) is conducted for

the actual commitment

of allocated forces,

based on an existing situation.

CAP follows a JOPES

prescribed six-phased

development process:

i. Situation development,

ii. Crisis assessment,

ú In Phase IV, plan review, the plan is reviewed

for adequacy, feasibility, acceptability, and compliance with joint doctrine. Those plans requiring approval by the Chairman will be reviewed

by the Joint Staff, Services, and combat support

agencies (CIO, DIA, DISA, DLA, DMA, and

NSA).

ú During Phase V, supporting plans development, emphasis shifts to subordinate and supporting commanders as they complete their plans

to augment the CINC's plan.

Crisis Action Planning (CAP)

Crisis action planning, like deliberate planning, involves a structured process following the guidance

established in JOPES publications. This planning

process results in the time-sensitive development

of campaign plans and operation orders (OPORDs)

for execution.

ú Phase I, situation development, is initiated with

the perception or recognition of a crisis and results in the development of the CINC's assessment.

ú Phase II, crisis assessment, is the NCA and

Chairman's evaluation of the CINC's assessment

and determination whether a crisis is imminent.

ú During Phase III, course of action development, the NCA or the CINC develops one or

more courses of action. The CINC submits the

commander's estimate and recommendation to

the Chairman.

iii. Course of action development,
10 User's Guide for

JOPES

ú In Phase IV, course of action selection, the

NCA decides on a course of action.

ú In Phase V, execution planning, the CINC

develops a campaign plan or OPORD, and

TPFDD.

ú Phase VI, execution, is the NCA decision to

execute the campaign plan or OPORD.

OPORDs are prepared in prescribed JOPES formats during crisis action planning. They are in the

form of a directive issued by a commander to subordinate commanders to effect the coordinated execution of an operation.

Deliberate Plans

Based on the Chairman's JSCP planning requirements, the CINCs prepare four types of deliberate

plans; OPLANs, CONPLANs (with and without

TPFDDs), and functional plans. These plans facilitate the rapid transition to crisis response. Each

plan has different JOPES procedural and format

requirements. However, all follow the basic format of a five-paragraph order;

The crisis action planning process results in

the time-sensitive development of joint operation

plans (campaign plans

and OPORDs) for execution.

iv. Course of action selection,

v. Execution planning,

and

vi. Execution.

But in truth, the larger the command, the more time must go into

planning; the longer it will take to move troops into position, to

reconnoiter, to accumulate ammunition and other supplies, and

to coordinate other participating elements on the ground and in

the air. To a conscientious commander, time is the most vital

factor in his planning. By proper foresight and correct preliminary

action, he knows he can conserve the most precious elements

he controls -- the lives of his men.

General Mathew B. Ridgway, The Korean War

Deliberate plans establish a framework for

rapid transition to crisis

response. There are four

types of deliberate plans;

OPLANs, CONPLANs,

CONPLANs with

TPFDDs, and functional plans.
11

1. Situation

2. Mission

3. Execution

4. Administration and logistics

5. Command and control

Operation Plan (OPLAN)

OPLANs are prepared when:

ú the contingency has a compelling national interest and is critical to national security,

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

ú detailed planning contributes to deterrence,

ú detailed planning is required to support multinational planning, or

ú detailed planning is necessary to determine specific force and sustainment requirements.

An OPLAN includes a full description of the concept of operations using all documentation applicable to a JOPES structured plan. It identifies the

specific forces, functional support, and resources

necessary to implement the plan and provides closure estimates for their movement into the theater.

OPLANs can be quickly converted to OPORDs.

ú may include as many as 20 JOPES prescribed

annexes with associated appendices and

ú always include time-phased force and deployment data (TPFDD). (TPFDDs are discussed

in more detail later in this primer.)

An OPLAN is a complete

and detailed joint operation plan.

OPLANs include:

• detailed annexes with

associated appendices and

• Time-Phased Force

and Deployment

Data.
12 User's Guide for

JOPES

Because of the detailed nature of an OPLAN,

JOPES guidance requires a thorough presentation of the commander’s operational concept.

JOPES requires all annexes and appendices to contain detailed information on the CINC’s concept

of operations, combat support, and combat service support activities.

Operation Plan in Concept Format

(CONPLAN)

A CONPLAN requires considerable expansion

or alteration to convert into an OPLAN, campaign

plan, or OPORD. In a CONPLAN, all the elements of the basic OPLAN are included in summary form except mission, situation, assumptions,

and concept of operations. These elements are

fully developed. The full complement of annexes

and appendices are not required in a CONPLAN.

CONPLANs contain a summary of logistics requirements and major constraints regarding forces,

movement, or logistic support that significantly

affect implementation of the plan.

A CONPLAN (without a TPFDD) is normally

required when:

ú the contingency has a less compelling interest

but is important to national security;

ú binational alliance or treaty arrangement requires contingency planning by the signatory

countries;

ú the contingency is smaller in scale, requires less

detailed planning, and can be handled in the

near term with more general capabilities-based

concepts; or

ú no specific threat has been identified.

A CONPLAN is a joint

operation plan in an abbreviated, "concept" format. There are two

types of CONPLANs:

A CONPLAN without a

TPFDD and
13

A CONPLAN with TPFDD is a CONPLAN that

requires more detailed planning for the phased

deployment of forces. Like an OPLAN, it is prepared when the contingency has a compelling national interest and is critical to national security—

however, it is not as likely to occur in the near term.

The larger scale of the possible contingency requires more detailed planning than would normally

be conducted for a CONPLAN. Preparing a

CONPLAN with TPFDD follows the same JOPES

procedures as developing an OPLAN.

Functional Plans

Functional plans may also be developed by combatant commanders to address “functional peacetime operations” such as disaster relief, humanitarian assistance, or peace operations. They may be

developed in response to JSCP tasks, as a CINC

initiative, or as tasked by a Service or defense

agency acting as an executive agent for the Secretary of Defense (for example, military support to

civil authorities).

Functional plans are structured as CONPLANs

(without a TPFDD), following published JOPES formats. Annexes and appendices are developed as

required.

A CONPLAN with a

TPFDD.

Functional plans are developed for specific military operations in a permissive or non-hostile

environment (for example, intratheater logistics, communications,

and continuity of operations).

In crisis action planning, JOPES ADP support is

used to refine existing TPFDDs or develop new

ones. At execution, JOPES ADP manages the deployment of forces and their equipment into the Area

of Operations.

Except for TPFDD development, JOPES deliberate and crisis action

planning is essentially a

manual process.

JOPES ADP SUPPORT SYSTEM
14 User's Guide for

JOPES

The World-Wide Military Command and Control

System (WWMCCS) family of computers provides

the hardware supporting JOPES. It is an aging system, currently scheduled to be replaced by the Global Command and Control System (GCCS) in September 1995.

The JOPES ADP software is made up of hundreds

of individual computer programs. The current software is designed to support deployment planning.

While this is crucial to deliberate planning, it can

not adequately support deployment/redeployment

during mobilization, employment, and sustainment.

Time-Phased Force and Deployment Data

(TPFDD)

A TPFDD is a computer database used to identify

types of forces and actual units required to support

an OPLAN or OPORD. In addition, TPFDDs contain estimates of logistics support and designate

ports for loading (embarkation) and unloading (debarkation). Finally, the TPFDD, based on planner

input, establishes the sequence for moving the

forces and their support (time phasing) into the Area

of Operations. The time-phased forces, and their

associated cargo and passenger movement requirements, are used as the basis for actual transportation scheduling. JOPES ADP depends on Service

planning systems for these force and support requirements. The JOPES data base is distributed

worldwide and provides a single information source

for movement status.

JOPES ADP is the largest of several software

programs operating on

the WWMCCS intercomputer network

(WIN), a secure, worldwide system of computers.

JOPES ADP helps planners build and maintain

TPFDDs.
15

JOPES [ADP] was the single tool which enabled this command

to oversee and coordinate the movement in record time of

over 400,000 personnel and six million tons of cargo.

General H. Norman Schwarzkopf, CINCCENT

We could not have conducted this enormous deployment

without JOPES [ADP].

General H.T. Johnson, CINCTRANS

JOPES ADP helps planners build the force list during

force planning. Force planning begins when the

combatant commander identifies the major apportioned forces needed to support his concept of operations, and continues with the identification of

combat support and combat service support force

requirements. Initially, for gross planning estimates,

notional (generic) units may be designated. As the

process continues, however, actual units must be

identified.

TPFDD development then shifts to support planning. Various software programs use the force list

to estimate time-phased lift requirements for supplies, equipment, and replacement personnel needed

to sustain the forces specified during force planning. The quantities are determined using planning

models to derive gross quantities (weight and volume). Unique computer programs provide support

for specialized planning models such as civil engineering and medical support.

Developing a TPFDD

involves four main processes:

Force planning,

Support planning,
16 User's Guide for

JOPES

Transport

Planning

Force

Planning

Support

Planning

JOPES ADP

fail

fail

pass

pass

feasibility

test ?

feasibility

test ?

feasibility

test ?

pass

fail

The Current TPFDD Development Process

figure 4

During transportation planning, all of the forces

are time-phased into the Area of Operations.

JOPES software compares apportioned transportation assets to the forces to be moved, factors in

their sustainment requirements and time-phasing,

and determines if the planned forces can be moved

to the Area of Operations to meet the CINC's

needs. The product of this process is a capabilities- based, transportation-feasible database containing all the forces, materiel, and personnel needed

to execute the CINC’s concept of operations. This

transportation-feasible database is the TPFDD.

The process of developing the TPFDD with the

current JOPES ADP software is sequential (figure 4). This figure depicts the development of a

Transportation planning, and

Deployment/Redeployment Execution.
17

TPFDD based on three of the main processes; force

planning, support planning, and transportation planning. Each process must be completed before proceeding to the next one. For example, force planning must be completed before support planning

begins, and support planning must be finished before starting transportation planning. Also, it may

be necessary to drop back to revisit previous steps,

or in the worst case start over. Each step is the

responsibility of one or more separate agencies or

commands located around the world. This complex

operation was acceptable for a multi-year deployment-based deliberate planning cycle. Today, however, emphasis has shifted to an execution-based

crisis action planning procedure. A crisis action planning cycle and deployment/redeployment execution require immediate data access, and a response

time measured in hours, not days.

At execution, the TPFDD developed during deliberate planning (or a new one developed during crisis action planning) is refined and movement requirements are validated. This validated TPFDD

becomes the basis for actual transportation scheduling for force deployment, and subsequent redeployment. Supply and replacement personnel estimates developed during planning are used as a

source for establishing transportation channels for

sustainment movement. In short, the JOPES data

base is a single source for force deployment movement requirements and status.

JOPES ADP support for execution evolved from a

deliberate planning tool not originally designed to

support movement. However, without JOPES ADP

support, as limited as it is, execution of any sizable

deployment would be virtually unmanageable. New

tools are being developed to correct deficiencies.

When fully implemented, the Global Command and

The TPFDD becomes

the basis for actual transportation scheduling for

force deployment and redeployment.

JOPES ADP support at

execution is currently

only marginally effective.
18 User's Guide for

JOPES

Control System (GCCS) will provide needed modernization of JOPES ADP hardware. However,

software redesign and procedural changes are required to effectively support execution. It should

be noted that user discipline (rigorous adherence

to JOPES procedures) at all levels will always be

vital for JOPES to provide visibility of actual movement of units and sustainment during execution.

The Global Command and Control System

GCCS is the embodiment of the Command, Control, Communications, Computers and Intelligence

(C4I) for the Warrior concept. C4I for the Warrior, through GCCS, will provide the necessary information for warfighters to fight and win on the

battlefield today and in the future.

The first operational version of GCCS is scheduled

to come on line in September 1995. JOPES ADP

is just one of many C2 systems that will migrate to

GCCS. Initially, GCCS will provide the same planning and execution capability as the JOPES ADP

currently residing on WWMCCS. Future modifications, however, will modernize JOPES ADP and

combine its capabilities with other C2 systems to

form a more powerful, integrated tool for warplanning. Upgrades to JOPES capabilities will provide

the warfighter the tools to support execution as well

as planning.

 Along with many other capabilities, GCCS will integrate:

ú Deliberate and Crisis Action Planning

ú Force Deployment and Employment

ú Fire Support

ú Air Operations and Planning

ú Intelligence

When fully implemented, the Global Command and Control System will provide needed

modernization of JOPES

ADP hardware.

GCCS will provide the

combatant commander

a complete picture of the

battlefield and the ability to order, respond, and

coordinate C2 information.
19

JOPES Distributed systems and

processes integrated through GCCS

GCCS

Common

Operating

Environment

Transport

Planning

Support

Planning

Force

Planning

TPFDD

Deployment/

Redeployment

Execution

figure 5

ú Force Status (SORTS)

GCCS is designed to allow planning and execution

capabilities to expand as additional user requirements are identified. GCCS is essentially a common operating environment within which new applications will operate. As new systems are developed, they will be designed to easily “plug” into the

GCCS environment (see figure 5).

When fully operational, GCCS state-of-the-art hardware and software should greatly enhance current

joint operation planning and execution capabilities

and facilitate future modifications.

GCCS will meet current

needs as well as evolving joint operation planning and execution requirements.
20 User's Guide for

JOPES

CONCLUSION

Joint operation planning and execution is conducted

within the chain of command that runs from the

NCA to the combatant commander, and through

joint task force commanders, down to the operational forces. Planning and execution includes the

preparation of joint operation plans (OPLANs,

CONPLANs, functional plans, OPORDs, and campaign plans). JOPES supports the development of

these plans and orders by providing policies, procedures, formats, and ADP support for their construction. Joint doctrine and operation planning principles within JOPES guide the commander’s development of warfighting and employment aspects

of his plan.

The goal of this primer is to provide the reader a

fundamental understanding of JOPES, particularly

planning and execution processes and the types of

plans developed under JOPES. JOPES procedures

and formats capture the interrelationships of deliberate and crisis action planning, and provide and

guide the joint planning and execution process.

Joint doctrine and operation planning principles

within JOPES guide the

commander’s development of joint operation

plans and employment

aspects of those plans.

JOPES procedures and

formats capture the interrelationships of deliberate and crisis action

planning, and guide the

joint planning and execution process

REMEMBER

JOPES is, in the truest sense of the word, a system. It is not merely a computer! It is not a series of computer software programs! It is not just a standardized set of policies, procedures, and formats for conducting planning and

execution! JOPES is the sum of all these parts!
GL-1

GLOSSARY

PART I—ABBREVIATIONS AND ACRONYMS

ADP automated data processing

C2 command and control

CAP crisis action planning

CINC commander of a combatant command; commander in chief

CJCSM Chairman of the Joint Chiefs of Staff Manual

CONPLAN operation plan in concept format

CPG Contingency Planning Guidance

DPG Defense Planning Guidance

DOD Department of Defense

GCCS Global Command and Control System

JOPES Joint Operation Planning and Execution System

JPEC Joint Planning and Execution Community

JSCP Joint Strategic Capabilities Plan

JSPS Joint Strategic Planning System

NCA National Command Authorities

NSC National Security Council

OPLAN operation plan

OPORD operation order

TPFDD time-phased force and deployment data

WIN Worldwide Military Command and Control System (WWMCCS)

Intercomputer Network

WWMCCS Worldwide Military Command and Control System
GL-2

campaign. A series of related military

operations aimed at accomplishing a

strategic or operational objective

within a given time and space. (Joint

Pub 1-02)

campaign planning. The process

whereby combatant commanders and

subordinate joint force commanders

translate national or theater strategy

into operational concepts through the

development of campaign plans.

Campaign planning may begin during deliberate planning when the actual threat, national guidance, and

available resources become evident,

but is normally not completed until

after the National Command Authorities select the course of action during crisis action planning. Campaign

planning is conducted when contemplated military operations exceed the

scope of a single major joint operation. (Joint Pub 1-02)

campaign plan. A plan for a series of

related military operations aimed at

accomplishing a strategic or operational objective within a given time

and space. (Joint Pub 1-02)

CINC’s strategic concept. Final

document produced in Step 5 of the

concept development phase of the

deliberate planning process. The

CINC’s strategic concept is used as

the vehicle to distribute the CINC’s

decision and planning guidance for

accomplishing Joint Strategic CapaPART II—TERMS AND DEFINITIONS

acceptability. Operation plan review

criterion. The determination whether

the contemplated course of action

is worth the cost in manpower, material, and time involved; is consistent with the law of war; and militarily and politically supportable.

(Joint Pub 1-02)

adequacy. Operation plan review criterion. The determination whether

the scope and concept of a planned

operation are sufficient to accomplish the task assigned. (Pub 1-02)

alliance. An alliance is the result of

formal agreements (i.e., treaties) between two or more nations for broad,

long-term objectives which further

the common interests of the members. (Joint Pub 1-02)

allocation. In a general sense, distribution of limited resources among

competing requirements for employment. Specific allocations (e.g., air

sorties, nuclear weapons, forces, and

transportation) are described as allocation of air sorties, nuclear weapons, etc. (Joint Pub 1-02)

apportionment. In the general sense,

distribution for planning of limited

resources among competing requirements. Specific apportionments (e.g.,

air sorties and forces for planning)

are described as apportionment of air

sorties and forces for planning etc.

(Joint Pub 1-02)
GL-3

bilities Plan or other Chairman of the

Joint Chiefs of Staff (CJCS) takings.

CJCS approval of the strategic concept becomes the basis of the plan

for development into an operation

plan or operation plan in concept format. Formerly called “the concept

of operations. “ Also called CSC.

(Joint Pub 1-02)

combatant command. A unified or

specified command with a broad continuing mission under a single commander established and so designated

by the President, through the Secretary of Defense and with the advice

and assistance of the Chairman of the

Joint Chiefs of Staff. Combatant

commands typically have geographic

or functional responsibilities. (Joint

Pub 1-02)

combatant commander. A commander in chief of one of the unified

or specified combatant commands established by the President. (Joint Pub

1-02)

concept of operations. A verbal or

graphic statement, in broad outline,

of a commander’s assumptions or

intent in regard to an operation or

series of operations. The concept of

operations frequently is embodied in

campaign plans and operation plans;

in the latter case, particularly when

the plans cover a series of connected

operations to be carried out simultaneously or in succession. The concept is designed to give an overall

picture of the operation. It is included

primarily for additional clarity of

purpose. Also called commander’s

concept. (Joint Pub 1-02)

contingency. An emergency involving military forces caused by natural disasters, terrorists, subversives,

or by required military operations.

Due to the uncertainty of the situation, contingencies require plans,

rapid response, and special procedures to ensure the safety and readiness of personnel, installations, and

equipment. (Joint Pub 1-02)

contingency planning. The development of plans for potential crisis involving military requirements that

can reasonably be expected in an

area of responsibility. Contingency

planning for joint operations is coordinated at the national level to

support Secretary of Defense Contingency Planning Guidance (CPG),

strategic requirements in the National Military Strategy, and emerging crises. Contingency planning

can occur anywhere within the

range of military operations and

may be performed deliberately or

under crisis action conditions. Contingency planning for joint operations is coordinated at the national

level by assigning planning tasks

and relationships among the combatant commanders and apportioning or allocating them the forces and

resources available to accomplish

those tasks. Commanders throughout the unified chain of command

may task their staffs and subordi-
GL-4

base will be contingent on the time

available for course of action development. When approved, the course

of action becomes the basis for the

development of an operation plan or

operation order. Also called COA.

(Joint Pub 1-02)

course of action development. The

phase of the Joint Operation Planning and Execution System within

the crisis action planning process that

provides for the development of military responses and includes, within

the limits of the time allowed: establishing force and sustainment requirements with actual units; evaluating force, logistic, and transportation feasibility; identifying and resolving resource shortfalls; recommending resource allocations; and

producing a course of action via a

commander’s estimate that contains

a concept of operations, employment

concept, risk assessments, prioritized

courses of action, and supporting

data bases. (Joint Pub 1-02)

crisis. An incident or situation involving a threat to the United States, its

territories, citizens, military forces,

possessions, or vital interests that develops rapidly and creates a condition of such diplomatic, economic,

political, or military importance that

commitment of US military forces

and resources is contemplated to

achieve national objectives. (Joint

Pub 1-02)

nate commands with additional contingency planning tasks beyond

those specified at the national level to provide broader contingency coverage.

(Joint Pub 1-02)

Contingency Planning Guidance. A

planning document that fulfills the

statutory duty of the Secretary of

Defense to furnish annually, to the

Chairman of the Joint Chiefs of Staff,

written policy guidance for contingency planning. The Secretary furnishes this guidance with the approval of the President after coordination with the Chairman of the Joint

Chiefs of Staff. The CPG focuses the

guidance given in the National Military Strategy and Defense Planning

Guidance, and has direct impact on

the JSCP.. Also called CPG. (AFSC

Pub 1)

course of action. 1. A plan that would

accomplish, or is related to, the accomplishment of a mission. 2. The

scheme adopted to accomplish a task

or mission. It is a product of the Joint

Operation Planning and Execution

System concept development phase.

The supported commander will include a recommended course of action in the commander’s estimate.

The recommended course of action

will include the concept of operations, evaluation of supportability estimates of supporting organizations,

and an integrated time-phased data

base of combat, combat support, and

combat service support forces and

sustainment. Refinement of this data
GL-5

crisis action planning. 1. The Joint

Operation Planning and Execution

System process involving the timesensitive development of joint operation plans and orders in response to

an imminent crisis. Crisis action

planning follows prescribed crisis

action procedures to formulate and

implement an effective response

within the timeframe permitted by the

crisis. 2. The time-sensitive planning

for the deployment, employment, and

sustainment of assigned and allocated forces and resources that occurs in response to a situation that

may result in actual military operations. Crisis action planners base

their plan on the circumstances that

exist at the time planning occurs.

Also called CAP. (Joint Pub 1-02)

deliberate planning. 1. The Joint Operation Planning and Execution System process involving the development of joint operation plans for contingencies identified in joint strategic planning documents. Conducted

principally in peacetime, deliberate

planning is accomplished in prescribed cycles that complement other

Department of Defense planning

cycles in accordance with the formally established joint strategic planning system. 2. A planning process

for the deployment and employment

of apportioned forces and resources

that occurs in response to a hypothetical situation. Deliberate planners

rely heavily on assumptions regarding the circumstances that will exist

when the plan is executed. (Joint Pub

1-02)

deployment planning. Operational

planning directed toward the movement of forces and sustainment resources from their original locations

to a specific operational area for conducting the joint operations contemplated in a given plan. Encompasses

all activities from origin or home station through destination, specifically

including intra-continental United

States, intertheater, and intratheater

movement legs, staging areas, and

holding areas. (Joint Pub 1-02)

employment. The strategic, operational, or tactical use of forces. (Joint

Pub 1-02)

employment planning. Planning that

prescribes how to apply force/forces

to attain specified military objectives.

Employment planning concepts are

developed by combatant commanders through their component commanders. (Joint Pub 1-02)

execution planning. The phase of the

Joint Operation Planning and Execution System crisis action planning

process that provides for the translation of an approved course of action into an executable plan of action through the preparation of a

complete operation plan or operation

order. Execution planning is detailed

planning for the commitment of

specified forces and resources. During crisis action planning, an ap-
GL-6

proved operation plan or other National Command Authorities-approved course of action is adjusted,

refined, and translated into an operation order. Execution planning can

proceed on the basis of prior deliberate planning, or it can take place

in the absence of prior planning.

(Joint Pub 1-02)

feasibility. Operation plan review criterion. The determination of whether

the assigned tasks could be accomplished by using available resources.

(Joint Pub 1-02)

functional plans. Plans involving the

conduct of military operations in a

peacetime or permissive environment

developed by combatant commanders to address requirements such as

disaster relief, nation assistance, logistics, communications, surveillance, protection of US citizens,

nuclear weapon recovery and evacuation, and continuity of operations,

or similar discrete tasks. They may

be developed in response to the requirements of the Joint Strategic

Capabilities Plan, at the initiative of

the CINC, or as tasked by the supported combatant commander, Joint

Staff, Service, or Defense agency.

Chairman of the Joint Chiefs of Staff

review of CINC-initiated plans is not

normally required. (Joint Pub 1-02)

interoperability. 1. The ability of systems, units or forces to provide service to and accept services from other

systems, units, or forces and to use

the services so exchanged to enable

them to operate effectively together.

2. The condition achieved among

communications-electronics systems

or items of communications- electronics equipment when information

or services can be exchanged directly

and satisfactorily between them and/

or their users. The degree of

interoperability should be defined

when referring to specific cases.

(Joint Pub 1-02)

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. (This term and its definition are

provided for information and are proposed for inclusion in the next edition of Joint Pub 1-02 by Joint Pub

0-2.)

joint operation. A general term to describe military actions conducted by

joint forces, or by Service forces in

relationships (e. g. support, coordinating authority), which, of themselves, do not create joint forces.

(This term and its definition are provided for information and are proposed for inclusion in the next edition of Joint Pub 1-02 by Joint Pub

0-2.)

joint operation planning. Planning for

contingencies which can reasonably

be anticipated in an area of responsi-
GL-7

bility or joint operations area of the

command. Planning activities exclusively associated with the preparation of operation plans, operation

plans in concept format, campaign

plans, and operation orders (other

than the single integrated operation

plan) for the conduct of military operations by the combatant commanders in response to requirements established by the Chairman of the

Joint Chiefs of Staff. Contingency

planning for joint operations is coordinated at the national level to support Secretary of Defense Contingency Planning Guidance (CPG),

strategic requirements in the National

Military Strategy, and emerging crises. As such, joint operations planning includes mobilization planning,

deployment planning, employment

planning, sustainment planning, and

redeployment planning procedures.

Joint operations planning is performed in accordance with formally

established planning and execution

procedures. (Joint Pub 1-02)

joint operational planning process. A

coordinated Joint Staff procedure

used by a commander to determine

the best method of accomplishing assigned tasks and to direct the action

necessary to accomplish the mission.

(Joint Pub 1-02)

Joint Operation Planning and Execution System. A continuously evolving system that is being developed

through the integration and enhancement of earlier planning and execution systems: Joint Operation Planning System and Joint Deployment

System. It provides the foundation

for conventional command and control by national- and theater-level

commanders and their staffs. It is designed to satisfy their information

needs in the conduct of joint planning and operations. Joint Operation

Planning and Execution System

(JOPES) includes joint operation

planning policies, procedures, and

reporting structures supported by

communications and automated data

processing systems. JOPES is used

to monitor, plan, and execute mobilization, deployment, employment,

and sustainment activities associated

with joint operations. Also called

JOPES. (Joint Pub 1-02)

Joint Planning And Execution

Community. Those headquarters,

commands, and agencies involved in

the training, preparation, movement,

reception, employment, support, and

sustainment of military forces assigned or committed to a theater of

operations or objective area. It usually consists of the Joint Staff, Services, Service major commands (including the Service wholesale logistics commands), unified commands

(and their certain Service component

commands), subunified commands,

transportation component commands, joint task forces (as applicable), Defense Logistics Agency,

and other Defense agencies (e.g., De-
GL-8

a. selective mobilization. Expansion of the active Armed Forces resulting from action by Congress and/

or the President to mobilize Reserve

component units, individual ready reservists, and the resources needed for

their support to meet the requirements of a domestic emergency that

is not the result of an enemy attack.

b. partial mobilization. Expansion

of the active Armed Forces resulting from action by Congress (up to

full mobilization) or by the President

(not more than 1,000,000) to mobilize Ready Reserve component units,

individual reservists, and the resources needed for their support to

meet the requirements of a war or

other national emergency involving

an external threat to the national security.

c. full mobilization. Expansion of

the active Armed Forces resulting

from action by Congress and the

President to mobilize all Reserve

component units in the existing approved force structure, all individual

reservists, retired military personnel,

and the resources needed for their

support to meet the requirements of

a war or other national emergency

involving an external threat to the national security.

d. total mobilization. Expansion of

the active Armed Forces resulting

from action by Congress and the

President to organize and/or generate additional units or personnel, befense Intelligence Agency) as may

be appropriate to a given scenario.

Also called JPEC. (Joint Pub 1-02)

Joint Strategic Capabilities Plan. A

planning document that contains

guidance to the CINCs and Service

Chiefs for accomplishing military

tasks and missions based on current

military capabilities. These assignments take into account the capabilities of available forces, intelligence

information, and guidance issued by

the Secretary of Defense. The JSCP

directs the development of contingency plans to support national security objectives by assigning planning tasks and apportioning major

combat forces and strategic lift capability to the combatant commanders. As a capabilities planning document, it represents the last phase of

resource management. Also called

JSCP. (AFSC Pub 1)

mobilization. 1. The act of assembling

and organizing national resources to

support national objectives in time

of war or other emergencies. 2. The

process by which the Armed Forces

or part of them are brought to a state

of readiness for war or other national

emergency. This includes activating

all or part of the Reserve components

as well as assembling and organizing personnel, supplies, and materiel.

Mobilization of the Armed Forces includes but is not limited to the following categories:
GL-9

yond the existing force structure, and

the resources needed for their support, to meet the total requirements

of a war or other national emergency

involving an external threat to the national security. (Joint Pub 1-02)

multinational. Between two or more

forces or agencies of two or more nations or coalition partners. (Joint Pub

1-02)

National Command Authorities. The

President and the Secretary of Defense or their duly deputized alternates or successors. Also called

NCA. (Joint Pub 1-02)

operation. A military action or the carrying out of a strategic, tactical, service, training, or administrative military mission; the process of carrying

on combat, including movement,

supply, attack, defense, and maneuvers needed to gain the objectives of

any battle or campaign. (Joint Pub

1-02)

operation order. A directive issued by

a commander to subordinate commanders for the purpose of effecting

the coordinated execution of an operation. Also called OPORD. (Joint

Pub 1-02)

operation plan. Any plan, except for

the Single Integrated Operation Plan,

for the conduct of military operations. Plans are prepared by combatant commanders in response to requirements established by the Chairman of the Joint Chiefs of Staff and

by commanders of subordinate commands in response to requirements

tasked by the establishing unified

commander. Operation plans are

prepared in either a complete format

(OPLAN) or as a concept plan

(CONPLAN). The CONPLAN can

be published with or without time

phased force deployment data

(TPFDD) file.

a. OPLAN. An operation plan for

the conduct of joint operations that

can be used as a basis for development of an operation order

(OPORD). An OPLAN identifies the

forces and supplies required to execute the CINC’s Strategic Concept

and a movement schedule of these

resources to the theater of operations.

The forces and supplies are identified in TPFDD files. OPLANs will

include all phases of the tasked operation. The plan is prepared with

the appropriate annexes, appendixes,

and TPFDD files as described in the

Joint Operation Planning and Execution System manuals containing

planning policies, procedures, and

formats. Also called OPLAN.

b. CONPLAN. An operation plan

in an abbreviated format that would

require considerable expansion or alteration to convert it into an OPLAN

or OPORD. A CONPLAN contains

the CINC’s strategic concept and

those annexes and appendixes

deemed necessary by the combatant
GL-10

tion of an operation plan; it contains

time-phased force data, non-unit-related cargo and personnel data, and

movement data for the operation

plan, including:

a. In-place units.

b. Units to be deployed to support

the operation plan with a priority indicating the desired sequence for

their arrival at the port of debarkation.

c. Routing of forces to be deployed.

d. Movement data associated with

deploying forces.

e. Estimates of non-unit-related

cargo and personnel movements to

be conducted concurrently with the

deployment of forces.

f. Estimate of transportation requirements that must be fulfilled by

common-user lift resources, as well

as those requirements that can be

fulfilled by assigned or attached

transportation resources. Also called

TPFDD. (Joint Pub 1-02)

commander to complete planning.

Generally, detailed support requirements are not calculated and TPFDD

files are not prepared. Also called

CONPLAN.

c. CONPLAN With TPFDD. A

CONPLAN with TPFDD is the same

as a CONPLAN except that it requires more detailed planning for

phased deployment of forces. (Joint

Pub 1-02)

supporting plan. An operation plan

prepared by a supporting commander

or a subordinate commander to satisfy the requests or requirements of

the supported commander’s plan.

(Joint Pub 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.

(Joint Pub 1-02)

time-phased force and deployment

data. The Joint Operation Planning

and Execution System data base por-