As with other joint commands, U.S. Cyber Command operates and is structured according to joint DOD doctrine and guidance. DOD’s Joint Publication 1 states that a subunified command, such as U.S. Cyber Command, has functions and responsibilities similar to those of the commanders of unified commands, and exercises operational control of assigned commands and forces and, normally, over attached forces within the assigned joint operations area or functional area. Within this command structure, subunified commands are responsible for operational planning for their missions. Guidance for developing such plans is provided by DOD’s joint operation planning process. This process establishes objectives, assesses threats, identifies capabilities needed to achieve the objectives in a given environment, and ensures that capabilities (and the military forces needed to deliver those capabilities) are allocated to achieve mission success. Joint operation planning and execution procedures also include assessing and monitoring the readiness of those units providing the capabilities for the missions they are assigned. Overall, the purpose of joint operation planning is to reduce the risks inherent in military operations. The commanders of military service components of subunified commands also have responsibilities that derive from their roles in fulfilling the services’ support function, such as the development of program and budget requests, and the provision of supporting plans and data on service forces to the subunified command. Additionally, they are responsible for maintaining internal administration and discipline and communications with both their subunified commander and their service chief. In June 2009, the Secretary of Defense issued a memorandum directing the creation of U.S. Cyber Command as a subunified command to U.S. Strategic Command, and requiring the military departments to identify and provide appropriate component support to U.S. Cyber Command, and to have this support in place and functioning prior to the new subunified command’s reaching full operating capability. The memo required U.S. Cyber Command to focus on integration of cyberspace operations and possess the technical capability to address the risk of cyber threats and vulnerabilities and secure freedom of action in cyberspace. The memo further called for U.S. Cyber Command to “synchroniz warfighting effects across the global security environment,” as well as support civil authorities and international partners. The Director of the National Security Agency was also subsequently designated to hold the position of Commander of U.S. Cyber Command. Following its authorization in June 2009, U.S. Cyber Command reached its initial operating capability on May 21, 2010, and was declared to be at full operating capability on October 31, 2010. U.S. Cyber Command is organized with various joint staff directorates corresponding to the major functions of command, such as personnel, intelligence, operations, logistics, plans, and communications systems. It is supported by the Defense Information Systems Agency which, among other things, is responsible for designing, provisioning, operating, and maintaining certain DOD classified and unclassified networks. Additionally, U.S. Cyber Command receives infrastructure, security, information assurance, and various other forms of support from the National Security Agency. See figure 1 for a diagram of U.S. Cyber Command’s organizational structure. This new command has identified three lines of operation: DOD Global Information Grid operations, defensive cyberspace operations, and offensive cyberspace operations. DOD Global Information Grid operations consists of network operations to preserve availability, integrity, authentication, confidentiality, and non-repudiation of information on DOD networks, a mission that the services have been conducting since the 1990s. Defensive cyberspace operations builds upon the concept of computer network defense, while adding an operational aspect for U.S. Cyber Command, referred to as Dynamic Network Defense Operations. Offensive cyberspace operations is a newly defined line of operation for U.S. Cyber Command which is focused on taking actions and achieving outcomes in cyberspace to meet national or DOD objectives. As directed by the Secretary of Defense in June 2009, each of the military departments provides service components for cyberspace operations to U.S. Cyber Command: Army Cyber Command; Fleet Cyber Command; Marine Forces Cyber Command; and Air Force Cyber Command. Three of the four service components—Army, Navy, and Air Force—all declared full operational capability in October 2010. However, officials with Marine Forces Cyber Command have stated that while they are currently capable of conducting missions, they are still in the process of establishing the command and will not reach full operational capability until the latter half of 2013. Officials and documentation from the Army, Navy, Marine Corps, and Air Force showed us that they have all retained administrative control over their cyber service components. The Secretary of Defense assigned combatant command authority over the cyber service components to U.S. Strategic Command, which then delegated operational control over the cyber service component commands to U.S. Cyber Command. The military services developed their service component commands in response to direction from the Secretary of Defense’s June 2009 memo, but DOD had already recognized the importance of the cyberspace domain. For example, beginning in late 2007, the Air Force attempted to develop its own service-specific cyber command, though the Air Force later gave the cyberspace operations mission to Air Force Space Command and Air Force Cyber Command. Also, in November 2008, the Secretary of Defense directed the military services to leverage the Navy’s existing computer network operations training facilities in order to fulfill the anticipated need for more cyberspace operators. Figure 2 presents a timeline of milestones related to the establishment of U.S. Cyber Command and other cyberspace operations–related events. As DOD’s role in the emerging domain of cyberspace has evolved, so have the various key terms and definitions related to cyberspace operations. As we previously reported, DOD needs more comprehensive doctrine and common definitions for cyberspace operations, and we recommended that DOD revise its existing body of joint doctrine to include complete and up- to-date cyberspace-related definitions while it is deciding whether to add a dedicated joint doctrine for cyberspace operations. As of February 2011, DOD has defined numerous key cyber-related terms (see table 1 for a list of some of those definitions), however, other and newer terms—such as DOD Global Information Grid operations, defensive cyberspace operations, and offensive cyberspace operations discussed above—have not yet been added to DOD’s joint dictionary. DOD and U.S. Cyber Command have made progress in identifying the roles and responsibilities of the various organizations that support DOD cyberspace operations. Our analysis showed that U.S. Cyber Command’s Concept of Operations generally meets joint guidance, but a greater level of detail is needed with regard to the categories of personnel—military, government civilian, or civilian contractor—that may conduct cyberspace operations in order for the military services to organize, train, and equip operations forces. Title 10 of the U.S. Code and DOD directives and guidance implementing this authority identify overall roles and responsibilities for the military services and combatant commands. These documents delineate the functions of the military services, including organizing, training, equipping, and providing cyberspace forces, as well as meeting the operational requirements of the combatant commands. They also delineate the functions of a combatant command, including giving authoritative direction to subordinate commands and forces necessary to carry out missions assigned to the command, organizing and employing forces to carry out missions assigned to the command, and assigning command functions to subordinate commanders. These documents also define the relationships between combatant commanders, including “supporting” and “supported” relationships, and the authority for a combatant commander to establish and delegate certain responsibilities to a subunified commander. Additionally, the 2008 Unified Command Plan assigns to U.S. Strategic Command the responsibility for synchronizing the planning of cyberspace operations. This responsibility was delegated to U.S. Cyber Command upon its establishment by the Secretary of Defense in June 2009. U.S. Cyber Command has developed a Concept of Operations. The document, signed by the Commander of U.S. Cyber Command in September 2010 and released in November 2010, lays out broad roles and responsibilities for cyberspace operations and our evaluation showed that it generally meets joint guidance. Joint guidance calls for a concept of operations to include, among other things, the following actions: state the commander’s intent; describe the central approach the joint force commander intends to take to accomplish the mission; provide for the application, synchronization, and integration of forces and capabilities in time, space, and purpose; focus on friendly and adversary Centers of Gravity, and their associated critical vulnerabilities; and relate the joint force’s objectives and desired effects to those of the next higher command and other organizations as necessary. The Concept of Operations states in its commander’s intent section that the Commander of U.S. Cyber Command’s top priorities include the following: improving the security and defense of U.S. military networks, maturing U.S. Cyber Command, working with the services to build the cyber force, and collaborating with partners. Additionally, the Concept of Operations states that U.S. Cyber Command will exercise control of assigned and attached forces to operate and defend DOD networks as well as conduct offensive cyberspace operations, as directed. It further states that the services retain primary responsibility to man, train, and equip for mission readiness, administration, and management of those forces under the command and control of U.S. Cyber Command. The Concept of Operations directs the service components assigned to U.S. Cyber Command to develop capabilities in support of operational requirements from U.S. Cyber Command, and also to provide shared situational awareness of their portions of DOD networks. Further, the Concept of Operations identifies and delegates areas of authority and responsibility throughout the U.S. Cyber Command organizational structure. Accompanying annexes are expected to provide greater detail about the command’s plans to conduct cyberspace operations.