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VOLUME 3 COMMAND

CATALOG OF DOCTRINE TOPICS

CHAPTER ONE—Introduction to Command Relationship Models for

Operations Air Force Forces
Operations and War Transfer of Functional Forces to a
Cross-Domain Integration Geographic Command
Airpower as Maneuver in Warfare Integrating Regional and Functional
Air Force Forces
Parallel and Asymmetric Operations
Integrating the Air Reserve
The Range of Military Operations Components
Campaigns in Peacetime Homeland Organizational
CHAPTER TWO—Overview of Considerations
Operational Processes The Senior/Host Air Force
The Effects-Based Approach to Installation Commander
Operations (EBAO)
CHAPTER FOUR—The Air Force
Operational Design Component Within the Joint Force
Practical Design Considerations The Joint Force Air Component
Planning Commander
Executing Operations Air Force Component Presentation
Assessment Considerations
Joint Air Component Coordination
CHAPTER THREE—Commanding and
Element
Organizing Air Force Forces
The Commander, Air Force Forces Miscellaneous Joint Notes
Regional vs. Functional Organization Multi-Hatting Commanders/Span of
Command
The Air Expeditionary Task Force
AETF Organization
Command and Control Mechanisms
Distributed/Split Operations

LEGEND

 Green underlined text denotes a link to glossary terms (definitions

and acronyms).

 Blue underlined text denotes a link to another source document within

the doctrine database.

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 VOLUME 3 COMMAND

CHAPTER ONE: INTRODUCTION TO OPERATIONS

Last Updated: 22 Nov 2016

Purpose of this Product

This product is a synopsis of key points across the doctrine database. Its
purpose is to provide senior leaders with a quick review of key doctrinal points
across a wide range of material. It is not meant as a substitute for deeper
familiarization with the referenced material. Staff members supporting senior
leadership should be familiar with the greater context found in the referenced
sources.

(Note: The information in this section is condensed from material from Air Force
Doctrine (AFD) Annex 3-0, Operations and Planning. Refer to that document for more
detailed overall discussion and context. Other links may point to more specific
discussion or to other supplementary sources. Also, any bolded emphasis is in the
original text.)

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 VOLUME 3 COMMAND

OPERATIONS AND WAR

Last Updated: 22 Nov 2016

 Not all military operations involve war, but war underpins the existence of all military
Services, so doctrine should include an understanding of war and its consequences.

 The most fundamental and important purpose of military forces is their employment
as instruments of national power to deter or win wars.

 War is a violent struggle between rival parties to attain competing objectives—also

described as “socially sanctioned violence to achieve a political purpose” (Joint
Publication (JP) 1, Doctrine for the Armed Forces of the United States).

 War has been deeply-rooted in human experience since the earliest times.

 War remains an instrument of policy used by nation states, sub-national entities, or

supra-national groups to achieve disputed aims.

 For the complete discussion of this topic, click here.

Traditional and Irregular Warfare

 Typically, US military doctrine frames warfare as “traditional” or “irregular.”

 “Traditional warfare” is characterized as a violent struggle for domination

between nation-states or coalitions and alliances of nation-states (JP 1).

 Traditional warfare typically involves force-on-force military operations in which

adversaries employ a variety of conventional military capabilities against each
other in the air, land, maritime, space, and cyberspace domains.

 Objectives in traditional warfare may be to coerce key military or political decision

makers, defeat an adversary’s armed forces, destroy an adversary’s war-making
capacity, or seize or retain territory in order to force a change in an adversary’s
government or policies.

 “Irregular warfare” (IW) is a violent struggle among state and non-state actors for
legitimacy and influence over the relevant population(s). Irregular warfare favors
indirect and asymmetric approaches, though it may employ the full range of

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 military and other capacities, in order to erode an adversary's power, influence,
and will (JP 1).

 The focus of IW is not on large-scale combat or the destructive capability of an

adversary’s military forces. Typically, a less powerful adversary seeks to disrupt
or negate the military advantage of a more powerful foe, often an established
regime, through small engagements intended to demoralize the foe’s military, or
attacks on nonmilitary targets in order to influence or control a local populace.

 IW is not a lesser-included form of traditional warfare. IW encompasses a

variety of operations where the nature and characteristics are significantly different
from traditional war.

 IW consists of five principle activities or operations undertaken in sequence, in

parallel, or in blended form in coherent campaigns to address irregular threats:
counterterrorism, unconventional warfare, foreign internal defense,
counterinsurgency, and stability operations.

 Traditional warfare and irregular warfare are not mutually exclusive; both forms
of warfare may be present in a given conflict. Airmen should understand that the
character of war may often change in the course of a conflict. This is especially true
in irregular warfare where the conflict is often protracted and varies in intensity.

 Traditional warfare can rapidly evolve into an irregular war and vice versa, requiring
the military force to adapt from one form to the other.

 Military forces should be prepared to conduct operations across the range of

military operations (ROMO), but they are ultimately tested by their ability to
prevail in war.

 The advent of air forces revolutionized many aspects of armed conflict, but did
not fundamentally change the nature of war or the enduring insights guiding
strategy.

 The opening of space and cyberspace domains to military action has not
fundamentally changed these insights either, even though it increased complexity
of-and opportunities available through-military operations.

 For the complete discussion of this topic, click here.

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 VOLUME 3 COMMAND

CROSS-DOMAIN INTEGRATION
Last Updated: 22 Nov 2016

 Military operations take place in and through the air, land, maritime, space, and
cyberspace domains and the information environment.

 The information environment is comprised of the physical, informational, and

cognitive dimensions. Information operations primarily focuses on affecting the
cognitive dimension, where human decision making occurs, through the physical
and information dimensions.

 Control of one domain, particularly land, can secure success of a military operation,
but control of, or influence through more than one domain usually helps achieve
continuing advantage more effectively and efficiently.

 The Air Force exploits advantages in the air, space, and cyberspace domains
to achieve joint force commander (JFC) and national objectives in all domains
and the information environment.

 These functions can be conducted independently from land and maritime operations
or can complement, support, or be supported by, land and maritime operations.

 Air superiority is normally a desired state before all other combat operations.
Air superiority—and air supremacy, when required—helps provide both the
freedom to attack and freedom from attack, as well as enhancing freedom to
maneuver. Operating without air superiority or supremacy radically increases
risk to surface and air operations.

 Space superiority is important in maintaining unique advantages in precision

applications, global command and control (C2), situational awareness and
understanding, and operational reach.

 Cyberspace operations are also vital for maintaining advantages in all

domains.

 For the complete discussion of this topic, click here.

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 VOLUME 3 COMMAND

AIRPOWER AS MANEUVER IN WARFARE

Last Updated: 22 Nov 2016

 Airpower is the ability to project military power or influence through the

control and exploitation of air, space, and cyberspace to achieve strategic,
operational, or tactical objectives.

 Airpower exploits the third dimension of the operational environment; the

electromagnetic spectrum; and time to leverage speed, range, flexibility,
precision, tempo, and lethality to create effects from and within the air, space,
and cyberspace domains.

 Airpower leverages military, civil, and commercial capabilities, the industrial

infrastructure, and a doctrine of employment. Airpower is an indivisible, unitary
construct—one that unifies Airmen, rather than portraying them as a collection of
“tribes” broken into technological or organizational “stovepipes.”

 Due to speed, range, and its multidimensional perspective, airpower operates in

ways that are fundamentally different from other forms of military power; thus,
the various aspects of airpower are more akin to each other than to the other
forms of military power.

 Airpower is the product, not the sum, of air, space, and cyberspace
operations. Each depends on the others to such a degree that the loss of
freedom of action in one may mean loss of advantage in all other domains.

 Airpower has the ability to conduct operations and impose effects throughout an
entire theater and across the range of military operations (ROMO), unlike surface
forces that typically divide up the battlefield into individual operating areas.

 Airmen view operations, including the application of force, more from a functional
than a geographic perspective, and classify targets by generated effects rather than
physical location.

 The physical structure of ground maneuver forces consists of fronts, flanks, and
rears. While these concepts do not apply readily to airpower, it can be useful to
make an analogy in surface terms in order to convey the Air Force’s contribution
to joint warfare.

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  In such terms, airpower adds flanks in other dimensions that make the
vertical and virtual battle as important as the horizontal battle. The airspace
above the battlespace is like an additional flank in the third dimension, which can
be exploited to achieve a relative advantage.

 As with surface flanks, commanders should seek to gain positions of advantage

by turning an enemy’s vertical flank, and should no sooner expose their own
vertical flank(s).

 Through cross-domain effects (effects created in one or more domains through

operations in another), airpower can also create virtual “flanks” or “rears” in other
dimensions, such as time and cyberspace (or assist the joint force in doing so).

 Airpower can help ensure the success of friendly actions, disrupt adversary
strategies, and even paralyze adversary action by using time more effectively
than the adversary through disruption of his operational rhythm.

 When given the authority, Airmen can create positions of decisive advantage
(maneuver) through use of computer code and manipulation of electronic
infrastructure in cyberspace.

 The nature of airpower also makes it an effective instrument to achieve

information superiority, potentially undermining enemy will and decision-making
ability.

 By making effective use of the third dimension, the electromagnetic spectrum,

and time, airpower can seize the initiative, set the terms of battle, establish a
dominant tempo of operations, better anticipate the enemy through superior
observation, and take advantage of tactical, operational, and strategic
opportunities.

 Airpower can simultaneously strike directly at the adversary’s centers of

gravity, vital centers, critical vulnerabilities, and strategy. Airpower’s ability to
strike the enemy rapidly and unexpectedly across all of these critical points adds a
significant impact to an enemy’s will in addition to the physical blow. This capability
allows airpower to achieve effects well beyond the tactical effects of individual
actions, at a tempo that disrupts the adversary’s decision cycle.

 Both joint and Air Force doctrine recognize airpower as a form of maneuver. Rapid,
long-range, multidimensional maneuver and fires; kinetic and nonkinetic actions; and
lethal and nonlethal effects,1 are inherent in airpower, as is the ability to inflict both
physical and psychological dislocation on an adversary.

1
These categories include nuclear weapons, which use both kinetic and nonkinetic means to create lethal and
nonlethal effects.

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 In cases where airpower presents the joint force commander with the
preponderance of counter-surface effects, it may be appropriate for the joint
force air component commander (JFACC) to be the supported commander for
affecting enemy surface forces, with friendly surface force commanders acting in
a supporting role. This is often the case when the JFACC’s forces perform the
theater-wide air interdiction and strategic attack functions.

 For fundamental discussion of airpower, see Air Force Doctrine Volume 1.

 For more complete discussion of airpower as maneuver in warfare, click here.

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 VOLUME 3 COMMAND

PARALLEL AND ASYMMETRIC OPERATIONS

Last Updated: 22 Nov 2016

 Air Force capabilities are often employed to greatest effect in parallel, asymmetric
operations.

 Parallel operations are those that apply pressure at many points across an
enemy’s system in a short period of time to cause maximum shock and
dislocation effects across that system.

 Sequential, or serial, operations, in contrast, are those that apply pressure in

sequence, imposing one effect after another, usually over a significant period of
time.

 “Asymmetric,” in this context, refers to any capability that confers an advantage

for which the adversary cannot directly compensate.

 Asymmetric operations can confer disproportionate advantage on those

conducting them by using some capability the adversary cannot use, will not use,
or cannot effectively defend against.

 Asymmetric warfare pits friendly strengths against the adversary’s weaknesses

and maximizes our capabilities while minimizing those of the enemy to achieve
rapid, decisive effects.

 Experience has shown that parallel, asymmetric operations are more effective,
achieve results faster, and are less costly than symmetric or serial operations.

 Symmetric, force-on-force warfare is often required, such as the air-to-air combat

associated with achieving air superiority. At the beginning of a conflict, other
operations can sometimes be accomplished in parallel with counterair
operations.

 If the enemy strongly challenges air superiority, however, forces may be

constrained to conduct serial operations, in which all available assets should be
dedicated to winning air superiority before any other offensive operations are
conducted.

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 Airpower can provide simultaneous and rapid attack on key nodes and forces,
producing effects that can overwhelm the enemy’s capacity to adapt or
recover.

 The effects of parallel operations can be achieved quickly and may have decisive
impact, thereby maximizing the simultaneity, depth, timing, and tempo elements
of operational design.

 The shock and surprise of such attacks, coupled with the uncertainty of when or
where the next blow may fall, can decisively affect the enemy’s morale.

 Parallel operations should be conducted in conjunction with other elements of

a joint force to maximize synergy of effects against the adversary’s critical
vulnerabilities.

 For example, counterland operations, in conjunction with attack by surface

forces, can overwhelm an enemy’s reinforcement and resupply capacity or his
ability to command his forces, creating synergistic effects that have an adverse
impact throughout the enemy system.

 Cyberspace capabilities can contribute disproportionately to asymmetric force

strategy by disabling critical adversary systems, exploiting information, or
disrupting adversary decision-making processes.

 For more complete discussion of this topic, click here.

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 VOLUME 3 COMMAND

THE RANGE OF MILITARY OPERATIONS

Last Updated: 22 Nov 2016

 Military operations slide along an imprecise scale of violence and scale of military
involvement from engagement, security cooperation, and deterrence operations; to
smaller scale contingencies and crisis response operations; to theater-wide major
operations and campaigns (see following graphic, The Range of Military Operations
and Conflict Continuum).

 No two conflicts are alike; scope, duration, tempo, and political context vary widely.
Some conflicts may even change from one form to another, either escalating or de-
escalating; several may exist simultaneously.

 Some operations involve open combat between regular forces; in others, combat
may be tangential to the main effort. In some operations, the US military’s
contribution may not involve combat at all; simply providing an organizational
framework for an interagency force and key elements of infrastructure may be all
that’s required.

 The various discrete military tasks associated with the ROMO are not mutually
exclusive; depending on the scenario, there may be some overlap among the tasks.
They may also occur within the context of a larger major operation.

Engagement, Security Cooperation, and Deterrence Operations

 Engagement, security cooperation, and deterrence operations establish, shape,

maintain, and refine relations with other nations and domestic civil authorities. The
general objective is to protect US interests at home and abroad. Examples of such
operations include:

 Arms control operations.

 Counterdrug operations.

 Foreign humanitarian assistance.

 Military-to-military contacts.

 Recovery operations.

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  Unilateral and multilateral exercises.

 Note: These operations are normally planned and conducted through theater
campaign plans. See later discussion, “Campaigns in Peacetime.”

Contingencies and Crisis Response Operations

 Contingencies and crisis response operations may be single small-scale, limited-

duration operations or a significant part of a major operation of extended duration
involving combat. The general objectives are to protect US interests and prevent
surprise attack or further conflict. These operations may occur during periods of
slightly increased US military readiness, and the use or threat of force may be more
probable. Many of these operations involve a combination of military forces in close
cooperation with other organizations. Examples of such operations include:

 Combating terrorism.

 Some types of counterproliferation operations, in the event that arms control

operations are not successful.

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  Consequence management (especially of weapons of mass destruction [WMD]-
related events).

 Enforcement of sanctions and maritime intercept operations.

 Enforcing exclusion zones.

 Ensuring freedom of navigation and passage, in both maritime and aerial

operations, including protection of shipping and overflight.

 Ensuring freedom of action in air, space, and relevant portions of cyberspace.

 Noncombatant evacuation operations.

 Peacekeeping operations.

 Peace enforcement operations.

 Show of force operations.

 Strikes and raids.

 Support to counterinsurgency.

 Support to insurgency operations that support US and Allied security objectives.

Major Operations and Campaigns

 Major operations and campaigns are large-scale and include sustained combat
operations to achieve national objectives and/or protect national interests. Such
operations may place the United States in a wartime state.

 These operations are normally conducted against nation states that possesses
significant military capability with the will to employ that capability in opposition to or
in a manner threatening to US national security.

 Such operations typically involve a joint campaign comprised of multiple phases.

Operations DESERT STORM, ALLIED FORCE (OAF), ENDURING FREEDOM
(OEF), and IRAQI FREEDOM (OIF) are examples of such campaigns.

 The goal is to achieve national objectives and conclude hostilities on conditions

favorable to the United States and its multinational partners, generally as quickly,
with as few casualties as possible, and in a manner that conveys continuing
strategic advantage for the US and its partners.

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 Major operations may entail traditional war combined with irregular warfare (IW),
stability operations, and security cooperation (SC) activities, sometimes even within
the same operational area.

 Establishing conditions that convey continuing friendly advantage often requires

follow-on stability operations to restore security, provide services and humanitarian
relief, enable civil authority, and perform reconstruction.

 For the complete discussion of the ROMO, click here.

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 VOLUME 3 COMMAND

CAMPAIGNS IN PEACETIME
Last Updated: 22 Nov 2016

 Lessons from recent operations and changes in the global security environment
have highlighted the importance of strengthening alliances and partnerships through
consistent peacetime strategies.

 This has inspired a new perspective on the concept of a “campaign” within the DOD.
Although the definition has not changed, the term is increasingly used to refer to the
portion of the ROMO that is conducted on a steady-state basis in peacetime and/or
preceding a conflict.

 Campaigns referred to in this sense are designed to shape the theater and/or global
environment, deter aggression, build partner nations’ relationships and capabilities,
ensure friendly access, mitigate risk, prevent conflict, and, when it cannot be
prevented, shape how conflict evolves in ways favorable to friendly interests.

 For more complete discussion of this topic, click here.

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 VOLUME 3 COMMAND

CHAPTER TWO: OVERVIEW OF OPERATIONAL PROCESSES

Last Updated: 22 Nov 2016

(Note: The information in this section is condensed from material from Annex 3-0,
Operations and Planning. Refer to that document for more detailed overall discussion
and context. Other links may point to more specific discussion or to other
supplementary sources. Also, any bolded emphasis is in the original text.)

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 VOLUME 3 COMMAND

THE EFFECTS-BASED APPROACH TO OPERATIONS (EBAO)

Last Updated: 22 Nov 2016

 The effects-based approach to operations (EBAO) is defined as “an approach in

which operations are designed, planned, executed, and assessed in order to
influence or change system behavior to achieve desired outcomes.”

 EBAO is not a planning methodology; it is a way of thinking about operations that

provides guidance for design, planning, execution, and assessment as an integral
whole. More specifically, EBAO is an approach in which:

 Operations are driven by desired ends (objectives and end states), and should
be expressed in terms of desired effects, not defined by what available forces or
capabilities can do.

Principles of EBAO

 EBAO is comprehensive—it cuts across all domains and dimensions, disciplines,

levels, and instruments of national power. EBAO provides an overarching way of
thinking about action that encompasses operational design, planning, execution, and
assessment of operations involving all instruments of national power across the
range of military operations.

 EBAO integrates strategy—all design, planning, execution, and assessment

efforts—into a unitary whole.

 EBAO emphasizes that war is a uniquely human endeavor—a dynamic and

often unpredictable process involving the collision of interactively complex,
adaptive systems.

 EBAO emphasizes that warfare is non-linear and “interactively complex.”

 Causes and effects are usually hard to trace and harder to demonstrate, since
common “linear” rules often do not apply. Most cause-effect relationships
important to warfighters involve indirect and often intangible, unquantifiable
linkages normally discerned inductively (through real-world observation), not
deductively (by proving a theorized outcome through logic alone).

 EBAO should account for how all actors, especially the adversary, may
respond to planned actions.

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  Commanders and strategists should also consider that the beliefs, customs, and
habits of adversaries not trained in a Western worldview may not respond in
ways anticipated by Americans (mirror imaging), potentially creating
unanticipated and unfavorable higher-order effects.

 EBAO is about creating effects, not about platforms, weapons, or particular

methods.

 EBAO focuses on behavior, not just physical changes.

 EBAO emphasizes that there are alternatives; that the ultimate aim in war is not
just to overthrow the enemy’s military power, but to compel them to do one’s will.

 EBAO seeks to achieve objectives most effectively, then to the degree

possible, most efficiently.

 EBAO should consider all possible types of effects.

 Warfare has traditionally focused on direct effects and more immediate indirect
effects like attrition. An effects-based approach should consider the full array of
outcomes in order to give decision-makers a wider range of options and provide
a realistic estimation of unintended consequences.

 EBAO is not new.

 History’s great commanders approached warfare from an effects-based

perspective, though not so named, when they looked beyond mere destruction
of enemy forces to the more general problem of bending the enemy to their will.

For more complete discussion of EBAO, click here.

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 VOLUME 3 COMMAND

OPERATIONAL DESIGN
Last Updated: 22 Nov 2016

 Operational design (OD) is the first level of strategy implementation and rests upon
operational art, which is “the cognitive approach by comanders and staff–supported
by their skill, experience, creativity, and judgment–to develop strategies, campaigns,
and operations to organize and employ military forces by integrating ends, ways,
and means” (JP 3-0, Joint Operations). This is illustrated in the following figure,
Elements of Operational Design.

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Problem Framing
 Operational design begins with “problem framing”—establishing the context
of a situation within which the commander should act in order to realize the
operation’s aims, by examining the problem from many different perspectives.

 Problem framing entails determining the overall boundaries and aims of the
operation.

 Commanders and their staffs should be able to answer the kinds of disciplined
questions depicted in the following figure, Notional Problem Framing Questions,
which probe basic reasons and evidence for an emerging framework, “setting the
stage” for breaking the problem down into medium- and well-structured
components that planners can “solve.”

 As commanders and their staffs work through framing problems, they face several
tasks that help provide structure to their efforts and make it easier to break ill-
structured problems into smaller “chunks” of medium- to well-structured problems.
These tasks are depicted in the following figure, Problem Framing Tasks.

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 The following figure, Cognitive Map Operational Design1, depicts a summary
“cognitive map” of the alignment of operational design’s key elements. It depicts how
actions at the tactical level lead to effects, which can be usefully depicted using lines
of effort (LOEs).

1 Adapted from Jeffrey M. Reilly, Operational Design: Distilling Clarity for Decisive Action.

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  LOEs lay out critical desired effects, decisive points (DPs), and other events
along a timeline that relates these to centers of gravity, commander’s objectives,
and the operation’s end state in a manner that shows relationships between all
elements, but is easy to comprehend.

 For more complete discussion of this topic, click here.

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 VOLUME 3 COMMAND

PRACTICAL DESIGN CONSIDERATIONS

Last Updated: 22 Nov 2016

 Design can help formulate the commander’s initial statements of mission and intent,

 These feed course of action (COA) analysis and selection, which in turn, feeds
creation of detailed plans and assessment criteria.

 Plans are then executed through tasks at the tactical level.

 The results of task accomplishment are assessed and operations are adapted based
on that assessment, providing input to strategy revision.

 Design is thus cyclic and iterative, like many other aspects of strategy creation, such
as planning and assessment.

 Design, planning, execution, and assessment are closely interrelated, since planners
take the commander’s overarching design concept to create detailed COAs, plans,
and orders for operations. Both are products of operational art. They make it
possible to convert broad guidance from national leadership and senior commanders
and turn it into discrete tasks at the tactical level. The following figure illustrates
these relationships.

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 Design requires close interaction between an organization’s commander, staff, the
commanders and staffs of higher and lower echelons, as well as supporting
commanders and their staffs. Joint functional and Service components need to be
involved at various levels in the initial planning stages of joint strategy development.

 In some cases, however, the joint force air component commander (JFACC) and key
air operations center (AOC) planners may need to volunteer to be included early in
the JFC’s design process. In such cases, joint integration requires that a
sufficient number of trained Airmen be included on the joint force commander
(JFC) planning staff.

 The air component liaisons, if established, can help can help make the JFACC
aware of pending or ongoing design and planning efforts, but it is also the JFC’s
responsibility to actively seek airpower expertise.
 Each theater or joint task force (JTF) operation will likely be different, and prior
coordination is required on how overall joint strategy development may occur and
how airpower should be included in that effort. Theater-level design and planning
exercises are vital to ensure proper integration when operations commence.

 For more complete discussion of this section, click here.

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 VOLUME 3 COMMAND

PLANNING
Last Updated: 22 Nov 2016

 Joint operation planning is conducted at every echelon of command, during

peacetime as well as conflict, and across the range of military operations (ROMO).

 Plans are continuously reviewed and adapted to accommodate changes in strategic

guidance, resources, the actions of adversaries and other actors, and the
operational environment.

 Joint operation planning also identifies capabilities outside the DOD, and provides
the means of integrating military actions with those of other instruments of national
power and multinational partners in time, space, and purpose to create all effects
necessary to achieve objectives required to attain the end state.

The Relationship Between Operational Design and Planning

 In many respects, operational design constitutes the “front end” of planning, since
commanders should frame the problems he or she seeks to solve and determine its
scope and parameters.

 It logically forms the first steps of deliberate planning, crisis action planning, and
other operational planning. It makes sense to determine an operation’s overall end
state before detailed employment planning begins (or, for that matter, before many
aspects of deployment and force planning begin).

 In other respects, design and planning are complementary and even overlap:

 Design may begin before initiation of the joint operation planning process (JOPP)
or the joint operation planning process for air (JOPPA), but some portions of the
mission analysis stage of the JOPP and JOPPA may provide insights needed to
properly frame an operational problem.

 Design often begins with step 1 of the JOPP (“Initiation”), but certain formal
products of deliberate and crisis action planning (such as warning and planning
orders) may be issued after design efforts have begun, but before more detailed
planning has started.

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  Design may also continue after completion of initial JOPP and JOPPA planning.
There is no clear demarcation between when design ends and planning begins,
especially during the “first round” of design and planning.

 Strategists often also identify possible branches and sequels at various points
based on planning assumptions.

 Later, during plan execution and assessment, operational design may be conducted
in concert with planning to adapt to emerging situations or behaviors.

 In this part of the process, commanders and strategists determine whether to

implement pre-planned branches or sequels, or even initiate complete re-design
of an operation.

The Joint Operation Planning Process for Air

 The Air Force plans using the process known as the JOPPA.

 This is the process by which commanders of Air Force forces (COMAFFORs)

create the detailed plans they require to effectively employ airpower, including
the joint air operations plan (JAOP), operation orders (OPORDs), etc.

 The JOPPA produces the JAOP and, as part of an ongoing battle rhythm, the
guidance that helps create the air operations directive (AOD), which guides the
tasking cycle through its iterative execution.

 The JOPPA may also be used to produce required supporting plans and
concepts, such as a long-range phased air targeting scheme (PATS), an area air
defense plan (AADP), an airspace control plan (ACP), operation orders required
by the COMAFFOR‘s staff, and others. The JOPP and JOPPA each consist of
seven steps, as depicted in the following figure, Joint Operation Planning
Process.

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Initiation

 Planning begins when an appropriate authority recognizes potential need to employ

military capabilities in response to a potential or actual crisis and initiates strategy
creation and operational design.

 At the strategic level, the initiating authority is national leadership—the President,

Secretary of Defense (SecDef), and Chairman of the Joint Chiefs of Staff.

 Below the national strategic level, that authority is usually a joint force
commander (JFC) (combatant commander [CCDR] or joint task force [JTF]
commander).

 It is vital for Airmen to become involved in the planning process at the JFC-level
as soon as possible to understand the JFC’s design concept and ensure that the
capabilities of airpower are properly represented, integrated, and employed.

28
Mission Analysis

 The primary purpose of mission analysis is to understand the problem at hand, the
purpose of the operation, and to issue appropriate commander’s guidance to focus
the planning process.

 Mission analysis may already have been accomplished as part of operational

design, but there is significant value in conducting an “airminded” mission analysis in
dialog with the commander and air operations center (AOC) strategists, reviewing
the products or reiterating the process of framing the problem “the plan” is intended
to solve.

 The commander’s mission and intent statements should be created in this step of
the process if they have not already been created during earlier design effort.

 These statements should include the military end state (MES) and the portion of
it that the joint force air component commander (JFACC) is tasked to deliver.

 If the problem the plan is intended to solve is not adequately framed, then the
commander responsible for planning (e.g., the JFACC for the JOPPA) should “go
back up the chain of command”—even to the level of national leadership—and
request that it be further clarified.

COA Development

 A course of action (COA) consists of the following information: what type of action
should occur; why the action is required; who will take the action; and the expected
outcomes. A valid COA is one that is:

 Adequate—Can accomplish (or appropriately support) the JFC’s mission within

given commanders’ guidance.

 Feasible—Can accomplish the mission within the established time, space, and
resource limitations.

 Acceptable (Balanced)—Should balance cost and risk with the advantage

gained and maintained.

 Distinguishable—Should be sufficiently different from other COAs.

 Complete—Should incorporate objectives, effects, and tasks to be performed;

major forces required; concepts for deployment, employment, and sustainment;
time estimates for achieving objectives; mission success criteria; and end state. It
may also delineate appropriate trigger points for pre-planned branches and
sequels.

29
COA Analysis and Wargaming

 COA analysis should identify the advantages of each proposed friendly COA on its
own merits; COAs are not compared with each other in this step.

 Wargaming provides a means for the commander and staff to analyze COAs in light
of the adversary’s possible countermoves, improve their understanding of the
operational environment, and obtain insights that they may not have otherwise
gained.

COA Comparison

 COA comparison is a process where wargamed COAs are evaluated and compared
against a set of criteria established by the staff and commander.

 The commander and staff should develop and evaluate a set of important criteria or
governing factors against which to evaluate COAs. Risks to forces and risks to
mission should always be considered as evaluation criteria.

COA Approval

 The staff should determine the best COA to recommend to the commander.

 The recommendation should take the form of a commander’s estimate document

or briefing.

 Branches and sequels that the staff considers most likely or most dangerous may
be reviewed and approved as part of this process as well. The approved COA is
then developed into the appropriate plan or order.

Plan or Order Development

 Deliberate planning results in plan development (e.g., an operation plan [OPLAN],

contingency plan, or commander’s estimate); crisis action planning typically leads to
OPORD development; and the JOPPA yields a JAOP, often a long-range PATS, and
possibly other products.

 During plan or order development the commander and staff in collaboration with
subordinate and collaborating organizations, expand the approved COA into a
detailed plan. The detailed plan:

 States (or restates) the commander’s mission and intent.

 Describes the central approach the commander intends to take to accomplish the
mission.

30
  Provides for the application, integration, sequencing, and synchronization of
forces and capabilities in time, space, and purpose (including interagency,
multinational, and nongovernmental organizations).

 Describes when, where, and under what conditions any supported commander
intends to conduct or refuse combat, as required.

 Focuses on adversary and friendly COGs and their associated critical

vulnerabilities.

 Avoids discernable patterns and makes full use of ambiguity and deception.

 Provides for controlling the tempo of operations.

 Visualizes the campaign or operation in terms of the forces and functions

involved.

 Relates the assigned operational objectives, identified tactical objectives and

desired tactical effects to the JFC’s campaign plan and to other organizations’
schemes as necessary; this enables the subsequent development of detailed
tactical tasks and schemes of maneuver, and support requests to supporting
commanders.

 There are no separate joint or Air Force procedures for deliberate and crisis action
planning beyond some internal coordination and staffing procedures at the various
component headquarters.

 For complete discussion of the JOPPA, click here.

Service Component Planning

 The Service component commander develops Service aspects of the JFC’s course
of action (COA), determines force and resource requirements, and builds or
contributes to time-phased force and deployment data (TPFDD) documents to
implement the deployment and sustainment aspects of the COA.

 This effort should go hand-in-hand with employment concepts and COAs being
developed by the joint force air component commander (JFACC) portion of the
commander, Air Force forces (COMAFFOR)/JFACC’s staff.

 The Service component command staff also works within Service channels to
identify combat support forces, critical materiel, sustaining supplies, filler and
replacement personnel, and Reserve Component asset availability.

31
  Simultaneously and in coordination, the COMAFFOR’s staff, usually led by the
A3 (Director of Operations) or A5 (Director of Plans), should develop an Air Force
component supporting operation plan (OPLAN) or operation order (OPORD) to
capture that information pertinent to Air Force forces deploying to and employing
within the particular operational area.

 The Service component supporting OPLAN or OPORD should be comprehensive

enough to cover all combat support aspects of how the Air Force component should
be employed.

 The Service OPORD should include a basic plan plus appropriate annexes and
appendices. Ownership of the annexes and appendices is divided amongst the
Air Force forces (AFFOR) staff, and, once developed and approved, should be
made available to all Air Force units within the air expeditionary task force.

 For complete discussion of Service component planning, click here.

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 VOLUME 3 COMMAND

EXECUTING OPERATIONS
Last Updated: 22 Nov 2016

 Execution of operations is an integral part of the overarching effects-based approach

construct. Many Air Force operations are executed by means of a tasking cycle. The
cycle is used with some modifications for tasking operations in the air, space, and
cyberspace and is the heart of the Air Force battle rhythm.

 Once execution begins, the commander continues to guide and influence operations
through the air operations directive (AOD) (and, in some cases, equivalent space
and cyberspace operations directives).

The Tasking Cycle

 Many Air Force operations are executed by means of a tasking cycle. The tasking
cycle creates a daily articulation of the overall airpower strategy and planning efforts.
The tasking cycle is the means Airmen use to accomplish deliberate and dynamic
targeting, among other requirements. For further details on the targeting process,
see Annex 3-60, Targeting, and Joint Publication 3-60, Joint Targeting.

 The tasking cycle develops the products needed to build and execute an air tasking
order (ATO) and related products, and accomplish assessment.

 Although it is presented below as six separate, sequential stages, in reality the

tasking process is bi-directional, iterative, multidimensional, and sometimes
executed in parallel. It is built on a foundation based on thorough joint intelligence
preparation of the operational environment (JIPOE). The cycle typically consists of
the following stages performed at various levels of command (illustrated in the
following figure, Typical Tasking Cycle):

33
 The cycle is built around finite time periods that are required to plan, integrate and
coordinate, prepare for, conduct, and assess operations in air, space, and
cyberspace.

 These time periods may vary from theater to theater and much targeting effort may
not be bound specifically to the cycle’s timeframe, but the tasking cycle and its
constituent processes drive the air operations center’s (AOC’s) battle rhythm and
thus help determine deadlines and milestones for related processes, including
targeting.

 Some assets may not operate within the tasking cycle. These include:

 Most space assets, which are tasked via the space tasking order, although some
theater-specific space operations will probably be included in the daily ATO for
the sake of situational awareness/understanding, integration, and
synchronization.

 Special operations most often operate within the dynamic targeting process.

34
  Many IO, cyberspace, and intertheater air mobility assets commonly operate
within a different cycle

 In large operations, the existence of differing planning cycles among components

can lead to increased complexity in the process.

 Most component planning cycles are approximately 72-96 hours. However, the
requirement within the air tasking cycle to manage as many as five separate
ATOs drives the requirement for discipline to manage defined inputs and outputs
during particular slices of time. Also, dynamic targeting and collection take place
within a much more time-constrained framework.

 Some long-range combat assets based outside the area of responsibility, but
operating within the joint operations area, may be airborne on a tasked mission
before the ATO that covers their weapons’ times over target is published. These
assets require the most current draft ATO information and all updates that affect
their missions.

 Other missions that are not under the COMAFFOR’s control may be included in
the ATO to provide visibility and assist coordination and deconfliction.

 The tasking cycle supports every part of the JOPP and JOPPA, as well as the joint
targeting cycle, and is interwoven throughout these other processes up to and
including execution planning and force execution.

 For the complete discussion of the tasking cycle, click here.

35
 VOLUME 3 COMMAND

ASSESSMENT
Last Updated: 22 Nov 2016

 Assessment is “a continuous process that measures the overall effectiveness

of employing joint force capabilities during military operations.” It is also the
“determination of the progress toward accomplishing a task, creating an
effect, or achieving an objective.”

 The purpose of assessment is to support the commander’s decision-making process

by providing insight into the effectiveness of the strategy and accompanying plans.

 Many types of assessment exist, and may be used in support of operations, but
assessment in this document refers to activities that support the commander’s
decision-making process.

 In an effects-based approach, assessment should provide the commander with the

answers to these basic questions:

 Are we doing things right?

 Are we doing the right things?

 Are we measuring the right things?

 For a more complete overview of assessment, click here.

Levels of Assessment

 Assessors perform many types of assessment across the strategic, operational, and
tactical levels to inform a wide array of decisions. The following figure, Common
Levels and Types of Assessment, displays some common types of assessment and,
broadly, the levels where each would most likely be applied (the depiction is not all-
inclusive).

36
  The figure also shows the level of commander who commonly directs a given
type of assessment (e.g., the joint force commander [JFC] and joint force air
component commander [JFACC]).

 At all levels – but especially at the operational level -- the JFACC and staff
should observe how the JFC takes information “on board” and craft assessment
products that convey the Airman’s perspective without seeming “air-centric” or
presenting a biased view.

 Tactical assessment (TA) is generally performed at the unit or joint force

component level and typically measures physical, empirical achievement of direct
effects.

 TA is an umbrella term covering battle damage assessment (BDA), munitions

effectiveness assessment, and recommendations for re-attack (and often
referred to in joint doctrine as “combat assessment” [CA]).1 These forms of
assessment focus on offensive and kinetic actions.

 TA should also be accomplished following tactical employment of nonkinetic

actions and non-offensive capabilities.

1 The Air Force has chosen “TA” over “CA” because it is more broadly applicable and descriptively accurate: Not all
operations (and hence not all assessments at the tactical level) involve combat. The name should apply to tactical -
level evaluation across the ROMO. The terms, however, are functiona lly equivalent for most purposes.

37
 Operational Assessment. Assessment at the operational level of war begins to
evaluate complex indirect effects, track progress toward operational and strategic
objectives, and make recommendations for strategy adjustments and future action
extending beyond tactical re-attack.

 Assessment at this level often entails evaluation of course of action (COA)

success, assessment of the progress of overall strategy, and joint force
vulnerability assessment.

 Some measures can be expressed empirically (with quantitative measures);

others, like psychological effects, may have to be expressed in qualitative and
subjective terms.

 Strategic assessment addresses issues at the joint force (“theater strategic,” as in

bringing a particular conflict to a favorable conclusion) and national levels (enduring
security concerns and interests).

 The time frames considered by the various assessment types may vary widely, from
rather short intervals at the tactical level to longer time horizons at the strategic level,
even reaching well beyond the end of an operation, as lessons learned are
determined and absorbed. The relationship among the various assessment types is
not linear, with outputs from one type often feeding multiple other types and levels.

 For the complete discussion of levels of assessment, click here.

Assessing Strategy

 The purpose of assessing strategy is to give commanders dependable insights into

whether their strategy is effective and to measure progress toward the end state(s)
that the commander is tasked to deliver. This type of assessment can be conducted
for any commander from the tactical through the strategic level and should address
the four main components of a strategy:

 Ends—The commander’s end state and the objectives required to obtain it.
These are generally derived from the commander’s intent statement.

 Ways—The tasks or actions undertaken to help achieve the effects that achieve
the ends, as generated during the detailed planning process.

 Means—The resources put toward accomplishing the ways. The doctrine,

organization, training, materiel, leadership and education, personnel, and
facilities (DOTMLPF) construct is often a useful source for examining and
developing the means.

 Risk—The cost and amount of uncertainty and vulnerability the commander is

willing to accept in executing the strategy.

38
 Assessment considers all these components, with the goal of developing insights
into whether a strategy is working and what areas may need to be re-evaluated if
that strategy is not working. The following figure, Assessment Flow, depicts this
strategy-centric approach to assessment.

 For the complete discussion of strategy assessment, click here.

Assessment Criteria

 Criteria define the attributes and thresholds for judging progress toward the end
state and accomplishment of required tasks. Development of assessment criteria
is the critical component of the assessment process and should be
accomplished before specific measures or data requirements are defined.
Developing measures without a clear understanding of how those measures fit into a
judgment of the effectiveness of the overall strategy often leads to laborious data
collection and analysis processes that provide little to no value to the decision-
makers.

 Criteria help focus data collection by ensuring that assessment measures relate
clearly to the elements of the strategy being assessed. Criteria should be developed
for the ends, ways, and means at each level of assessment. Well-written criteria
should adhere to some basic attributes:

39
  Relevant to the effect or action being assessed. The criteria should relate
directly to the commander’s end state, tasks, and success thresholds as outlined
in the strategy.

 Mutually exclusive across the assessment categories (e.g., good, marginal,

poor) for a given effect or action assessed. This ensures that only one category
is appropriate for a given outcome.

 Collectively exhaustive across the range of outcomes for a given effect or

action. This helps ensure that most, if not all, potential outcomes are covered by
the criteria.

 Well-defined. Specific and relevant definitions should be developed for any

confusing or ill-defined terms used in the criteria. Planners should attempt to
objectively define success thresholds and the boundaries between assessment
categories whenever possible (e.g., what are the criteria for transition between
the ‘good’ and ‘marginal’ categories?). Nonetheless, judgment is always
necessary when assessing the overall strategy.

 For the complete discussion of assessment criteria, click here.

Assessment Measures

 Assessment measures are simply the data elements that, via the criteria, provide
insight into the effectiveness of the commander’s strategy. Assessment measures
are commonly divided into two types:

 Measure of performance (MOP)—A criterion used to assess friendly actions

that are tied to measuring task accomplishment.

 Measure of effectiveness (MOE)—A criterion used to assess changes in

system behavior, capability, or operational environment that is tied to measuring
the attainment of an end state, achievement of an objective, or creation of an
effect.

 MOPs address the ways and means that are employed during execution to help
achieve desired effects; they indicate progress toward accomplishing planned tasks
or actions. MOEs assess progress toward creating desired effects and thus
achieving the objectives and end state (simply put, MOPs help tell us if we are doing
things right; MOEs help tell us if we are doing the right things.

 The distinction between MOEs and MOPs can depend on their context within the
commander’s strategy. The exact same measure can be an MOP for one
commander and an MOE for another, lower echelon commander. The following
figure, Assessment Measures – An Example, illustrates a practical example of this
delineation.

40
 Developing good measures is an art, though there are some general guidelines that
can aid in developing high-quality measures:

 Measures should be relevant and necessary. Measures should relate to the

effect or task they are intended to describe and should feed directly into the
already-established criteria. Collection of irrelevant measures that do not shed
light on the effectiveness of the commander’s strategy is a misuse of valuable
time and resources. Focusing primarily on collecting the data necessary to apply
to the developed criteria should help avoid the creation of superfluous measures.

 Measures should represent a scale, not a goal or objective. Metrics

developers may be tempted to write a goal or criterion as a measure. Instead, the
goal should be included in the criteria in accordance with the commander’s risk
tolerance and thresholds. Operators and planners should establish these goals
(objectives) in coordination with the assessors.

 The data satisfying a measure should be observable, or at least inferable.

The measurements can be quantitative (numerical) or qualitative (non-
numerical). In general, the more objectively measurable the better. However,
commanders and planners should avoid “the numbers trap:” blindly using
rates, numbers, and other quantitative metrics, especially in assessing
effects, since their seemingly “empirical” and quantified elements may be

41
 based on wholly subjective assumptions and the number may be
meaningless—thus they may often lack direct linkages to the objectives or ends
outlined in the strategy, while sometimes also imparting an illusion of “scientific
validity” merely because they are quantified.

 For the complete discussion on assessment measures, click here.

42
 VOLUME 3 COMMAND

CHAPTER THREE: COMMANDING AND ORGANIZING AIR FORCE

FORCES
Last Updated: 22 Nov 2016

(Note: The information in this section is condensed from material from Annex 3-30,
Command and Control. Refer to that document for more detailed overall discussion and
context. Other links may point to more specific discussion or to other supplementary
sources. Also, any bolded emphasis is in the original text.)

 Organization is critically important to effective and efficient operations. Service and

joint force organization and command relationships—literally, who owns what, and
who can do what with whom, and when—easily create the most friction within any
operation.

 Organization and preferred command arrangements are designed to address unity

of command, a key principle of war. Clear lines of authority, with clearly identified
commanders at appropriate echelons exercising appropriate control, are essential to
achieving unity of effort, reducing confusion, and maintaining priorities.

 The key to successful employment of Air Force forces as part of a joint force effort is
providing a single Air Force commander with the responsibility and authority to
properly organize, train, equip and employ Air Force forces to accomplish assigned
functions and tasks.

 The title of this commander is Commander, Air Force Forces (COMAFFOR).

 Operationally, the COMAFFOR should be prepared to employ Air Force forces

as directed by the joint force commander (JFC), and if directed be prepared to
employ joint air forces as the joint force air component commander (JFACC). In
either event, the COMAFFOR should also ensure that Air Force forces are
prepared to execute the missions assigned by the JFC.

 The requirements and responsibilities of the COMAFFOR and JFACC are

inextricably linked; both are critical to operational success.

 For the complete discussion on command authorities, see Annex 3-30, Appendix A.

43
 VOLUME 3 COMMAND

THE COMMANDER, AIR FORCE FORCES

Last Updated: 22 Nov 2016

 The title of Commander, Air Force Forces (COMAFFOR) is reserved exclusively to

the single Air Force commander of an Air Force Service component command
assigned or attached to a joint force commander (JFC) at the unified combatant
command, subordinate unified command (subunified command), or joint task force
(JTF) level.

 If Air Force forces are attached to a JFC, they should be presented as an air
expeditionary task force (AETF).

 The AETF becomes the Air Force Service component to the JTF and the AETF
commander is the COMAFFOR to the JTF commander. Thus, depending on the
scenario, the position of COMAFFOR may exist simultaneously at different levels
within a given theater as long as each COMAFFOR is separately assigned or
attached to and under the operational control of a different JFC.

 The COMAFFOR provides unity of command. To a JFC, a COMAFFOR provides

a single face for all Air Force issues. Within the Air Force Service component, the
COMAFFOR is the single commander who conveys commander’s intent and is
responsible for operating and supporting all Air Force forces assigned or
attached to that joint force.

 The COMAFFOR commands forces through two separate branches of the chain
of command: the operational branch and the administrative branch.

 The COMAFFOR should normally be designated at a command level above the

operating forces and should not be dual-hatted as commander of one of the
subordinate operating units. This allows the COMAFFOR to focus at the operational
level of war, while subordinate commanders lead their units at the tactical level of
war.

Operational Responsibilities of the COMAFFOR

 When Air Force forces are assigned or attached to a JFC, the JFC normally receives
operational control (OPCON) of these forces. This authority is best exercised
through subordinate JFCs and Service component commanders and thus is
normally delegated accordingly.

44
 If not delegated OPCON, or if the stated command authorities are not clear, the
COMAFFOR should request delegation of OPCON.

 When the COMAFFOR is delegated OPCON of the Air Force component forces, and
no joint force air component commander (JFACC) has been designated, the
COMAFFOR has the following operational and tactical responsibilities: (Note: if a
JFACC is designated, many of these responsibilities belong to that functional
component commander. Refer to Joint Publication 3-30, Command and Control for
Joint Air Operations, for more complete discussion of the JFACC’s role and the
planning processes that support joint air component employment.)

 Make recommendations to the JFC on proper employment of forces in the Air

Force component.

 Accomplish assigned tasks for operational missions.

 Develop and recommend courses of action (COAs) to the JFC.

 Develop a strategy and operation plan that states how the COMAFFOR plans to
exploit Air Force capabilities to support the JFC’s objectives.

 Develop a joint air operations plan (JAOP) and air opearations directive to
support the JFC’s objectives.

 Establish (or implement, when passed down by the JFC) theater rules of
engagement (ROEs) for all assigned and attached forces. For those Service or
functional components that operate organic air assets, it should be clearly
defined when the air component ROEs also apply to their operations (this would
normally be recommended).

 Make air apportionment recommendations to the JFC.

 Plan, coordinate, allocate, and task Service forces and joint forces made
available.

 Normally serve as the supported commander for counterair operations, strategic

attack, the JFC’s overall air interdiction effort, most space control operations,
theater airborne reconnaissance and surveillance, and other operations as
directed by the JFC. As the supported commander, the COMAFFOR has the
authority to designate the target priority, effects, and timing of these operations
and attack targets within the entire joint operations area (JOA).

 Normally serve as the supported commander for the following operations as

directed by the JFC. As the supported commander, the COMAFFOR has the
authority to designate the target priority, effects, and timing of these operations
and attack targets across the entire joint operations area (JOA) in accordance

45
 with JFC guidance, to include coordinated targets within land and maritime areas
of operations (AOs).

o Strategic Attack.

o Counterair (to include integrated air and missile defense).

o Counterland.

o Countersea.

o Space control.

o Air mobility.

o Information Operations.

o Theater airborne intelligence, surveillance, and reconnaissance (ISR).

 Normally serve as supporting commander, as directed by the JFC, for operations

such as close air support (CAS), air interdiction within other components’ AOs,
and maritime support.

 If so designated, act as airspace control authority (ACA), area air defense

commander (AADC), and space coordinating authority (SCA), and electronic
warfare control authority, and develop plans and products associated with these
responsibilities.

 Coordinate personnel recovery operations, including combat search and rescue

(CSAR).

 Direct intratheater air mobility operations and coordinate them with intertheater
air mobility operations.

 Coordinate support for special operations requirements with the joint force
special operations component commander or the joint special operations task
force commander.

 Perform assessments of air component operations at the operational

(component) and tactical levels.

 Conduct joint training, including the training, as directed, of components of other

Services in joint operations for which the COMAFFOR has or may be assigned
primary responsibility, or for which the Air Force component’s facilities and
capabilities are suitable.

46
Administrative Responsibilities of the COMAFFOR

 Commanders of Air Force components have responsibilities and authorities that

derive from their roles in fulfilling the Service’s administrative control (ADCON)
function.

 Within the administrative branch, the COMAFFOR has complete ADCON of all
assigned Air Force component forces and specified ADCON of all attached Air
Force component forces.

 The specified responsibilities listed below apply to all attached forces, regardless
of major command or Air Force component (regular, Guard, or Reserve).

 The COMAFFOR also has some ADCON responsibilities for Air Force elements
and personnel assigned to other joint force components (such as liaisons).

 As the Service component commander to a JFC, the COMAFFOR has the following
responsibilities:

 Organize, train, and sustain assigned and attached Air Force forces for
combatant commander (CCDR)-assigned missions.

o Prescribe the chain of command within the Air Force Service component.

o Maintain reachback between the Air Force component and other supporting
Air Force elements. Delineate responsibilities between forward and rear
elements.

o Provide training in Service-unique doctrine, tactical methods, and techniques.

o Provide for logistics and mission support functions normal to the command.

 Inform the JFC (and the CCDR, if affected) of planning for changes in logistics
support that would significantly affect operational capability or sustainability
sufficiently early in the planning process for the JFC to evaluate the proposals
prior to final decision or implementation.

 Provide lateral liaisons with Army, Navy, Marines, special operations forces, and
coalition partners.

 Maintain internal administration and discipline, including application of the

Uniform Code of Military Justice (UCMJ).

 Establish force protection and other local defense requirements.

47
  Provide Service intelligence matters and oversight of intelligence activities to
ensure compliance with laws, executive orders, policies, and directives.

 At the CCDR level, the Air Force Service component commander also has the
following additional responsibilities:

 Develop program and budget requests that comply with CCDR guidance on war-
fighting requirements and priorities.

 Inform the CCDR (and any intermediate JFCs) of program and budget decisions
that may affect joint operation planning.

 Support the CCDR’s theater campaign plans through development of appropriate

supporting Service plans.

o Develop steady-state strategy to support the CCDR’s strategy.

o Contribute to the development of CCDR steady-state campaign plans and

security cooperation country plans.

o Develop campaign support plans in support of CCDR campaign plans.

 For more complete discussion of the COMAFFOR, see Annex 3-30, Command and
Control.

48
 VOLUME 3 COMMAND

REGIONAL versus FUNCTIONAL ORGANIZATION

Last Updated: 22 Nov 2016

 It is important to understand that airpower is flexible in organization and

presentation. Because it encompasses a wide range of capabilities and operating
environments, it defies a single, general model for organization, planning, and
employment.

 Some assets and capabilities provide relatively localized effects and generally
are more easily deployable, and thus may organize and operate within a regional
model.

 Other assets and capabilities transcend geographic areas of responsibility

simultaneously, and thus have global responsibilities. Such forces may be better
organized and controlled through a functional model.

 However, at the focus of operations within any region, it is possible to place

the collective capabilities of airpower in the hands of a single Airman through
skillful arrangement of command relationships, focused expeditionary
organization, reachback, and forward deployment of specialized talent.

 There will usually be tension between regionally-organized forces and

functionally-organized forces. The former seek effectiveness at the point of
their operation, while the latter seek effectiveness and efficiency across
several regions. At critical times, the requirement for effectiveness may trump
efficiency, and additional functional forces may be transferred to the regional
command and organized accordingly (see related discussion on transferring
forces and the complete discussion on “Transfer of Functional Forces to a
Geographic Command”, Annex 3-30, Command and Control). These situations
require careful and continuing dialogue between competing senior commanders and
their common superior commander.

Regional Organization and Control

 All military missions are ultimately under the authority of a joint force
commander (JFC) at the appropriate level. If the entire theater is engaged, the
combatant commander (CCDR) may be the JFC. If the situation is less than
theater-wide, the CCDR may establish a subordinate joint task force (JTF)
commanded by a subordinate JFC. In either case, the CCDR should first look to
assigned, in-theater forces. If augmentation is required, the JFC should request

49
 additional forces through the Secretary of Defense (SecDef). Upon SecDef approval,
additional forces transfer into the theater and are attached to the gaining CCDR. The
degree of control gained over those forces (i.e., operational control [OPCON] or
tactical control [TACON]) should be specified in the deployment orders. The gaining
CCDR then normally delegates OPCON of these forces downward to the JTF
commander who should, in turn, delegate OPCON to the Service component
commanders within the gaining JTF. All Air Force forces should be organized and
presented as an air expeditionary task force (AETF).

 Within a joint force, the JFC may organize forces in a mix of Service and
functional components. All joint forces contain Service components, because
administrative and logistics support are provided through Service components.
Therefore, every joint force containing assigned or attached Air Force
forces will have an Air Force Service component in the form of an AETF
with a designated commander, Air Force forces (COMAFFOR).

 The JFC may also establish functional component commands when forces from
two or more military Services operate in the same dimension or domain or there
is a need to accomplish a distinct aspect of the assigned mission. Functional
component commanders, such as the joint force air component commander
(JFACC), are established at the discretion of the JFC.

 If functional component commands are established, the Service component

commander with the preponderance of forces to be tasked, and with the requisite
ability to provide command and control, will normally be designated as that
functional component commander. Functional component commanders normally
exercise TACON of forces made available for tasking. Through the Air Force
component, the Air Force provides a COMAFFOR who is trained, equipped, and
prepared to also be the JFACC if so designated by the JFC to whom he/she is
assigned or attached.

Functional Organization and Control

 Not all Air Force forces employed in an operation may be attached forward to a
geographic CCDR. Several aspects of airpower are capable of serving more than one
geographic CCDR at a time. Such forces are organized under functional CCDRs to
facilitate cross-area of operations (AOR) optimization of those functional forces.

 When such forces are deployed in a geographic CCDR’s AOR, they may remain
under the OPCON of their respective functional CCDR and operate in support of
the geographic CCDR. Within a theater, this support relationship is facilitated
through specially designated representatives attached to regional AETFs.

 In some circumstances, after coordination with the owning commander and upon
SecDef approval, control of such functional forces may be transferred to a
geographic commander and attached with specification of OPCON or TACON.

50
 For more complete discussion of regional and functional organization, see
Annex 3-30.

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 VOLUME 3 COMMAND

THE AIR EXPEDITIONARY TASK FORCE

Last Updated: 22 Nov 2016

 The air expeditionary task force (AETF) is the organizational structure for Air Force
forces in response to operational tasking (i.e., established for a temporary period of
time to perform a specified mission). It provides a task-organized, integrated
package with the appropriate balance of force, sustainment, control, and force
protection.

 AETFs may be established as an Air Force Service component to a joint task force
(JTF), or as a subordinate task force within a larger Air Force Service component to
address specific internal tasks. If an AETF is formed as the former, the AETF
commander is also a commander, Air Force forces (COMAFFOR). Otherwise, the
AETF commander is not a COMAFFOR, but reports to a COMAFFOR.

 A single commander presents a single Air Force face to the joint force commander
(JFC) and results in clear lines of authority both ways.

 Internal to the task force, there is only one person clearly in charge; for a JFC,
there is only one person to deal with on matters regarding Air Force issues.

 The AETF commander is the senior Air Force warfighter and exercises the
appropriate degree of control over the forces assigned, attached, or in support of
the AETF.

 Within the joint force, these degrees of control are formally expressed as
operational control (OPCON), tactical control (TACON), or support. Within
Service lines, the AETF commander exercises administrative control (ADCON).

 Appropriate Command and Control Mechanisms. If acting as a COMAFFOR, the

AETF commander exercises command in both the operational and administrative
branches of the chain of command through an air operations center (AOC), an Air
Force forces (AFFOR) staff (sometimes colloquially called an “A-staff”), and
appropriate subordinate C2 elements. The AOC and the AFFOR staff are discussed
in more detail in Annex 3-30, Command and Control.

 Tailored and Fully Supported Forces. The AETF should be tailored to the mission;
this includes not only forces, but also the ability to command and control those
forces for the missions assigned.

52
 In summary, the AETF is an expeditionary force established for a temporary period
of time to perform a specified mission. The AETF provides a tailored package of air,
space, and cyberspace capabilities in a structure that preserves Air Force unity of
command. An AETF can be tailored in size and composition as appropriate for the
mission.

 For more complete overview of the AETF, See Annex 3-30.

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 VOLUME 3 COMMAND

AETF ORGANIZATION
Last Updated: 22 Nov 2016

 The basic building block of an air expeditionary task force (AETF) is the squadron;
however, a squadron normally does not have sufficient resources to operate
independently. Thus, the smallest AETF is normally an air expeditionary group
(AEG); larger AETFs may be composed of several expeditionary wings.

 Within an AETF, the AETF commander organizes forces as necessary into wings,
groups, squadrons, flights, detachments, or elements to provide reasonable internal
spans of control, command elements at appropriate levels, and to retain unit identity.

 For more complete discussion of internal AETF organization and designation of

expeditionary and provisional units, see Annex 3-30, Command and Control.

 Expeditionary Elements below Squadron Level. The Air Force may deploy
elements below the squadron level for specific, limited functions. These include
individuals and specialty teams such as explosive ordnance disposal (EOD) teams,
military working dog teams, security forces, liaison teams, etc. They may deploy as
part of an AETF or independently of other Air Force units, in remote locations, and
may operate directly with other Services.

 NOTE: Recent experience has revealed that tracking small, remotely located Air
Force elements, especially in the distributed environment encountered in irregular
warfare, has posed challenges for the Air Force component headquarters.

 These challenges may range from lack of administrative support to improper

employment of small units and individual Airmen in tasks for which they have not
been trained.

 The AFFOR staff should take special efforts to maintain effective oversight of
such elements in order to fulfill proper ADCON oversight.

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 VOLUME 3 COMMAND

COMMAND AND CONTROL MECHANISMS

Last Updated: 22 Nov 2016

 The commander, Air Force forces (COMAFFOR) requires command and control
(C2) assets to assist in exercising operational control (OPCON), tactical control
(TACON), and administrative control (ADCON). The COMAFFOR normally uses
some form of an air operations center (AOC) to exercise control of operations and a
Service component staff, commonly called the AFFOR staff, to exercise support
operations and administrative control.

 The core capabilities of the AOC and AFFOR staff are well established, but they
should be tailored in size and function according to the operation.

 Not all operations require a “full-up” AOC with over 1,000 people or a large
AFFOR staff. Smaller operations, such as some humanitarian operations, can in
fact make do with a small control center that does little more than scheduling and
reporting.

 Not all elements of the operations center or AFFOR staff need be forward; some
may operate “over the horizon,” using reachback to reduce the forward footprint.
The goal is to maximize reachback and minimize forward presence as much as
possible.

 Air Operations Center. In general terms, an AOC is the Air Force component
commander’s C2 center that provides the capability to plan, direct, and assess the
activities of assigned and attached forces.

 AOCs do not work in isolation; they require appropriate connectivity to operations

centers of higher headquarters (e.g., to the joint force headquarters for the
operational branch, and to senior Air Force headquarters for the administrative
branch), to lateral headquarters (e.g., other joint force components), to
subordinate assigned and attached Air Force units, and to other functional and
geographic AOCs as necessary. The overall C2 structure should make maximum
use of reachback.

 An AOC, along with subordinate C2 elements, should be tailored in size and

capability to the mission. An AOC should generally be capable of the following
basic tasks:

o Develop the component strategy and requisite planning products.

55
 o Task, execute, and assess day-to-day component operations.

o Plan and execute intelligence, surveillance, and reconnaissance (ISR) tasks

appropriate to assigned missions.

o Conduct operational-level assessment.

 For an AOC baseline description, see Annex 3-30, appendix B.

 AFFOR Staff. The AFFOR staff is the mechanism through which the COMAFFOR
exercises Service responsibilities and is also responsible for the long-range planning
and theater engagement operations that fall outside the AOC’s current operational
focus.

 An AFFOR staff should be ready to fill one or more roles: that of a theater-wide
Air Force Service component, an Air Force warfighting component within a JTF,
or the core or “plug” within a JTF headquarters.

 The COMAFFOR should avoid dual- or triple-hatting the AFFOR staff to the
maximum extent possible. Dual- or triple-hatting may have detrimental
consequences as the staff struggles to focus at the right level of war at the right
time. Manning and distribution of workload may limit the staff’s ability to cover all
involved duties simultaneously and augmentation may be necessary.

 The AFFOR staff’s function is to support and assist the COMAFFOR in preparing
the Air Force component to carry out the functions and tasks assigned by the
joint force commander (JFC).

 See baseline AFFOR staff description in Annex 3-30, appendix C.

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 VOLUME 3 COMMAND

REACHBACK/DISTRIBUTED/SPLIT OPERATIONS
Last Updated: 22 Nov 2016

 Reachback is defined as “the process of obtaining products, services, and

applications, or forces, or equipment, or material from organizations that are not
forward deployed.” Reachback may be provided from a supporting/supported
relationship or by Service retained forces. This relationship gives the commander,
Air Force forces (COMAFFOR) the support necessary to conduct operations while
maintaining a smaller deployed footprint.

 Distributed operations are defined as operations when independent or

interdependent forces, some of which may be outside the joint operations area,
participate in the operational planning and/or operational decision-making process to
accomplish missions and objectives for commanders. While Service-retained forces
may provide reachback, forces conducting distributed operations should be assigned
or attached to a combatant command.

 Split operations is a type of distributed operation conducted by a single command

and control (C2) entity separated between two or more geographic locations. A
single commander must have oversight of all aspects of a split C2 operation.

 Note: The decision to establish distributed or split operations invokes several

tradeoffs. For more detail see Annex 3-30, Command and Control.

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 VOLUME 3 COMMAND

COMMAND RELATIONSHIP MODELS FOR AIR FORCE FORCES

Last Updated: 22 Nov 2016

 When employing military forces, a combatant commander (CCDR) first turns to

those forces already assigned. Assigned forces are delineated in the Secretary of
Defense’s (SecDef’s) “Forces for Unified Commands” memorandum, and the CCDR
exercises combatant command (command authority) (COCOM) over them.

 Additional forces beyond those assigned to the CCDR may be attached by SecDef
action. Under current policies, attached forces may be provided through one of two
specific Global Force Management allocation supporting processes: rotational force
allocation in support of CCDR annual force needs, and emergent force allocation in
support of CCDR emerging or crisis-based requests for capabilities and forces. The
deployment order should clearly delineate the degree of command authority to be
exercised by the gaining commander. Forces temporarily transferred via SecDef
action are normally attached with specification of operational control (OPCON) to the
gaining CCDR.

 The DEPORD is the primary instrument for transferring forces and establishing
supported and supporting relationships between CCDRs. Forces may also be
transferred by an execute order which executes an approved operation plan.

 For Air Force forces, there are four general models for command relationships.
Considerations for these relationships should include the ability of gaining
commands to receive the forces and to command and control them appropriately;
the characteristics and support requirements of the forces involved, and the
operating locations of the forces.

 In-Theater Forces deployed and executing operations within the theater to which
they are attached. (Model 1)

 Out-Of-Theater Forces executing missions inside the theater of operations but

based outside the theater (i.e., across areas of responsibility [AOR]). (Model 2)

 Functional forces with global missions. (Model 3)

 Transient forces. (Model 4)

 For more detail on command relationship models, see discussion in Annex 3-30,
Command and Control.

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 VOLUME 3 COMMAND

TRANSFER OF FUNCTIONAL FORCES TO A GEOGRAPHIC

COMMAND
Last Updated: 22 Nov 2016

 In some situations, a geographic commander may request additional functional

forces beyond those apportioned or allocated during deliberate or crisis action
planning. The decision to transfer functional forces, with specification of operational
control (OPCON), to a geographic combatant commander (CCDR) should be
balanced against competing needs across multiple areas of responsibility (AORs).

 In some cases, the requirement for OPCON over specific forces to accomplish the
geographic CCDR’s missions may be of higher priority than the competing
worldwide mission requirements of the functional CCDR. Therefore, after
coordination with the owning functional commander and upon SecDef approval,
functional forces may be transferred to the geographic command and organized
accordingly. The decision to attach additional functional forces has two parts. First,
the decision should consider whether:

 The geographic CCDR will use the forces at or near 100 percent of their
capability with little or no residual capability for other global missions.

 The forces will be used regularly and frequently over a period of time, not just for
a single mission employment.

 The geographic commander has the ability to effectively command and control
the forces.

 If the answer to all three questions above is “yes,” then the functional forces
should be attached to the geographic combatant command. If any of the above
questions are answered “no,” then the functional forces should remain under
the OPCON of the functional CCDR’s commander, Air Force forces
(COMAFFOR) and be tasked in support.

 If the decision is to attach forces, the second question is whether the forces should
be attached with specification of either OPCON or tactical control (TACON).

 Specification of OPCON: OPCON is the more complete—and preferred—

choice of control. OPCON “normally provides full authority to organize
commands and forces and to employ those forces as the commander in
operational control considers necessary to accomplish assigned missions; it does

59
 not include authoritative direction for logistics or matters of administration,
discipline, internal organization, or unit training.” (Joint Publication 1, Doctrine for
the Armed Forces of the United States).

 Specification of TACON: TACON is the more limited choice of control. It is

defined as “the authority over forces that is limited to the detailed direction and
control of movements or maneuvers within the operational area necessary to
accomplish missions or tasks assigned.” Joint Publication 1, Doctrine for the
Armed Forces of the United States, states “when transfer of forces to a joint force
will be temporary, the forces will be attached to the gaining commands and JFCs,
normally through the Service component commander, will exercise OPCON over
the attached forces.” Thus, transfer and attachment with specification of TACON
is not the expected norm. While it is possible for the SecDef to attach forces
across combatant command lines with the specification of TACON in lieu of
OPCON, such action will deviate from joint doctrine established in JP 1 and
would result in a more confused chain of command with OPCON and TACON
split between two different CCDRs.

 Regional COMAFFORs have inherent responsibilities for such issues as local force
protection, lodging, and dining.

 Thus, if a regional COMAFFOR holds OPCON of forces outside the AOR, he or

she is not responsible for such issues—that is the responsibility of the
COMAFFOR in the region in which they are bedded down.

 In a parallel fashion, if such out-of-region forces divert into bases in his/her

region (for example, for emergencies), that COMAFFOR is now responsible for
basic support and protection.

 For more complete discussion on transferring functional forces, see Annex 3-30,
Command and Control.

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 VOLUME 3 COMMAND

INTEGRATING REGIONAL AND FUNCTIONAL AIR FORCE FORCES

Last Updated: 22 Nov 2016

 Airpower is usually presented through a mix of regional and functional models, with
the latter usually supporting the former.

 Functional forces usually maintain a separate organization from the supported

regional organization, and are integrated in the theater through specially trained
liaisons attached to the regional commander, Air Force forces (COMAFFOR).

 The most likely functional capabilities to be provided in such a supporting

relationship are air mobility operations, space operations, special operations,
cyberspace operations, and nuclear operations.

 Integrating Air Mobility Operations. Because air mobility forces serve several
regions concurrently, their employment should be balanced between regional and
intertheater requirements and priorities.

 The air mobility systems performing intratheater and intertheater missions within
a given region should operate in close coordination to provide responsive and
integrated aerial movement to the supported combatant commander (CCDR).

 Carefully constructed command relationships can allow an interlocking

arrangement to manage intratheater and intertheater air mobility operations.

 The Director of Air Mobility Forces (DIRMOBFOR). Within an Air Force

component, the DIRMOBFOR is the COMAFFOR’s designated coordinating
authority for air mobility operations. For more discussion of the DIRMOBFOR,
see Annex 3-17, Air Mobility Operations.

 Integrating Space Operations. Space presents another form of military operations

that, much like air mobility, usually are best presented functionally to a regional
commander through a supporting relationship if they are not attached.

 Space command and control brings another level of complexity because many
space assets that support military interests come from a variety of organizations,
some outside of the Department of Defense (DOD). For more detail see Annex 3-
14, Space Operations.

61
  Space Coordinating Authority (SCA). Within a regional operation, the joint
force commander (JFC) should designate SCA to facilitate unity of effort with
DOD-wide space operations and non-DOD space capabilities. For more on SCA
including space capabilities and responsibilities see related discussion in Annex
3-14.

 The Director of Space Forces (DIRSPACEFOR) serves as the senior space

advisor to the COMAFFOR. The DIRSPACEFOR, an Air Force space officer,
coordinates, integrates, and staffs activities to tailor space support to the
COMAFFOR. In addition, when the COMAFFOR is delegated SCA, the
DIRSPACEFOR works the day-to-day SCA activities on behalf of the
COMAFFOR. If the COMAFFOR is neither delegated SCA nor designated as the
JFACC, the COMAFFOR should establish a space liaison to the JFACC. For
more on DIRSPACEFOR roles and responsibilities see related discussion in
Annex 3-14.

 Integrating Special Operations. Commander, US Special Operations Command

(USSOCOM) exercises combatant command (command authority) (COCOM) of
worldwide special operations forces, while the geographic CCDR exercises OPCON
of assigned/attached Air Force special operations forces (AFSOF) through the
commander of the theater special operations command.

 For conventional missions, the COMAFFOR may receive OPCON or tactical

control of Air Force special operations forces (AFSOF) assets when directed by
the JFC. However, in most cases, AFSOF will only normally be in a direct
support relationship with conventional assets.

 When SOF operate in concert with “conventional” JTFs, they normally take the
form of a separate joint special operations task force (JSOTF) within the JTF,
commanded by a joint force special operations component commander
(JFSOCC). For more on special operations forces capabilities and roles see
Annex 3-05, Special Operations.

 The Special Operations Liaison Element (SOLE). The SOLE is a liaison team
that represents the JFSOCC to the COMAFFOR. The SOLE synchronizes all
SOF air and surface operations with joint air operations via the air tasking
process. Additionally, the SOLE deconflicts SOF operations with other
component liaisons in the AOC. .

 Integrating Cyberspace Operations. Global cyberspace capabilities may be

presented to a regional commander through a supporting relationship, to supplement
regional cyberspace capabilities. US Cyber Command, as a subordinate unified
command under USSTRATCOM, is the focal point for providing cyberspace
capabilities to other combatant commanders. To support regional operations,
USCYBERCOM may also provide cyberspace expertise to regional staffs if

62
necessary. For details on cyberspace operations see Annex 3-12, Cyberspace
Operations.

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 VOLUME 3 COMMAND

INTEGRATING THE AIR RESERVE COMPONENTS

Last Updated: 22 Nov 2016

 The Air Force, under the Total Force construct, has a substantial part of its forces in
the Air Reserve Components (ARC), which consists of the Air Force Reserve (AFR)
and the Air National Guard (ANG).

 The ARC provides a strategic reserve and a surge capacity for the Air Force; in
some instances, the ARC has unique capabilities not resident within the regular
component.

 The SecDef may make these forces available during the planning process. While
they may seamlessly operate alongside the regular Air Force, they are subject to
different levels of activation and different degrees of operational control and
administrative control. Also, differences in tour length availability pose continuity
challenges for a commander, Air Force forces (COMAFFOR), and planners should
carefully consider such issues for any category of activation (whether by
volunteerism or mobilization).

 See Annex 3-30, Appendix E, The Air Reserve Components, for more discussion on
ARC organization and accessing ARC forces.

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 VOLUME 3 COMMAND

HOMELAND ORGANIZATIONAL CONSIDERATIONS

Last Updated: 22 Nov 2016

 Military operations inside the United States and its Territories fall into two mission
areas: homeland defense, for which DOD serves as the lead federal agency and
military forces are used to conduct military operations in defense of the homeland;
and civil support for which DOD serves in a supporting role to other agencies at the
federal, state, tribal, and local levels.

 For most homeland scenarios, Air Force forces should be presented as an air
expeditionary task force (AETF) under the operational control of a commander, Air
Force forces (COMAFFOR), just as in any other theater. Air National Guard forces,
whether federalized and operating in Title 10 status or remaining under state control
in Title 32 or state active duty status, should still be organized and presented within
an AETF or equivalent structure.

 State and federal military forces may adopt a parallel or dual status command
structure. A parallel command structure exists when state and federal authorities
have separate chains of command, and retain control of their deployed forces.

 Federal statute now provides the capability for a dual status command structure,
in which a designated commander subordinate to a combatant commander may
unify and streamline the command structure by simultaneously serving in Federal
and State duty statuses while performing the separate and distinct duties of
those statuses over forces in Title 32 as well as forces in Title 10. The command
authority for forces in Title 32 attached to the CCDR is exercised by a dual-status
commander pursuant to a CAA. Additionally, the statute requires both
presidential authorization and a governor‘s consent to invest a commander with
dual status.

 For more detailed discussion, see Annex 3-27, Homeland Operations.

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 VOLUME 3 COMMAND

THE SENIOR/HOST AIR FORCE INSTALLATION COMMANDER

Last Updated: 22 Nov 2016

 Recent operations, notably Operations ENDURING FREEDOM and IRAQI

FREEDOM, highlighted the nuances in on-base command arrangements and
support requirements that result from mixed forces deploying forward, often to bare
bases.

 An installation commander, regardless of Service, always exercises some authority

over and responsibility for forces on his/her base for protection of assigned forces
and assets, lodging, dining, and administrative reporting, regardless of the command
relations of those forces. These are inherent in his/her responsibilities as an
installation commander.

 The senior Air Force commander on any base where Air Force forces are present
has responsibilities for care and provisioning of the Air Force forces on that
installation, regardless of organization.

 For more detailed discussion, see Annex 3-30, The Senior / Host Air Force
Installation Commander; refer to AFI 38-101, Air Force Organization, for more
specific policy guidance.

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 VOLUME 3 COMMAND

CHAPTER FOUR: THE AIR FORCE COMPONENT WITHIN THE JOINT

FORCE
Last Updated: 22 Nov 2016

 When a crisis requires a military response, the geographic combatant commander

(CCDR) will usually form a tailored joint task force (JTF). If Air Force forces are
attached to the JTF, they stand up as an air expeditionary task force (AETF) within
the JTF. The AETF commander, as the commander, Air Force forces (COMAFFOR),
provides the single Air Force face to the JTF commander.

 Other Services may also provide forces, and normally stand up as separate Army,
Navy, and Marine forces, each with their respective commander (Commander, Army
forces [COMARFOR]; Commander, Navy forces [COMNAVFOR]; and Commander,
Marine Corps forces [COMMARFOR]).

 The designation of joint force air, land, maritime and special operations component
commanders (JFACC, joint force land component commander [JFLCC], joint force
maritime component commander [JFMCC], and joint force special operations
component commander [JFSOCC] respectively) is at the discretion of the joint force
commander (JFC).

 The JFC normally assigns broad missions to the component commanders; with each
mission comes a specification of supported commander for that mission. As an
example, the JFC may designate the COMAFFOR as the supported commander for
strategic attack, air interdiction, and theater airborne intelligence, surveillance, and
reconnaissance (among other missions).

 The COMAFFOR should establish a close working relationship with the JFC to
ensure the best representation of airpower’s potential.

 The commander responsible for a mission should be given the requisite authority to
carry out that mission.

 For more on Joint Force Organizational Basics see Annex 3-30, Air Component
Relationships within a Joint Force.

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 VOLUME 3 COMMAND

THE JOINT FORCE AIR COMPONENT COMMANDER

Last Updated: 22 Nov 2016

 Historically, when Air Force forces have been attached to a joint task force (JTF), the
commander, Air Force forces (COMAFFOR) is normally designated as the joint force
air component commander (JFACC), not merely due to preponderance of forces but
also due to the ability to command and control airpower through an air operations
center (AOC), which forms the core of the JFACC’s JAOC.

 This is why the COMAFFOR trains to act as the JFACC.

 It is rare that sizeable Air Force forces have been present in a JTF, and the
COMAFFOR has not been the JFACC.

 If aviation assets from more than one Service are present within a joint force, the
joint force commander (JFC) normally designates a JFACC to exploit the full
capabilities of joint operations.

 The JFACC should be the Service component commander with the

preponderance of forces to be tasked and the ability to plan, task, and control
joint air operations (Joint Publication P 3-30, Command and Control for Joint Air
Operations).

 If working with allies in a coalition or alliance operation, the JFACC may be

designated as the combined force air component commander (CFACC).

 Because of the wide scope of joint air operations, the JFACC typically maintains a
similar theaterwide or joint operations area (JOA)-wide perspective as the JFC. The
JFACC:

 As with any component commander, should not also be dual-hatted as the JFC
as the scope of command is usually too broad for any one commander and staff.

 Functional component commanders normally exercise tactical control

(TACON) of forces made available to them by the JFC. Thus, a COMAFFOR
normally exercises operational control (OPCON) of assigned and attached Air Force
forces and, acting as a JFACC, normally exercises TACON of forces made available
for tasking (i.e., those forces not retained for their own Service’s organic operations).

68
JFACC Responsibilities

 The JFACC should be prepared to assume the following responsibilities, as

assigned by the JFC:

 Organize a JFACC staff manned with personnel from each component to reflect
the composition of capabilities and forces controlled by the JFACC.

 Develop a joint air operations plan (JAOP) to best support the JFC’s concept of
operations or operation plan.

 Recommend air apportionment priorities to the JFC that should be devoted to the
various air operations for a given period of time.

 Allocate and task the joint air capabilities and forces made available by the
Service components based on the JFC’s air apportionment decision.

 Provide JFACC guidance in the air operations directive (AOD).

 Provide oversight and guidance during execution of joint air operations.

 Assess the results of joint air operations.

 Perform the duties of the airspace control authority (ACA).

 Perform the duties of the area air defense commander (AADC).

 Perform the duties of the space coordinating authority (SCA).

 Perform the duties of the personnel recovery (PR) coordinator.

 In concert with the above responsibilities, perform tasks within various mission
areas to include, but not limited to:

o Counterair, to include integrated air and missile defense.

o Strategic attack.

o Counterland.

o Countersea.

o Air mobility.

o Information operations.

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 o Personnel recovery operations, including combat search and rescue, for
assigned and attached forces.

 Serve as the supported commander for counterair operations, strategic attack,

the JFC’s overall air interdiction effort, personnel recovery, and theater airborne
intelligence, surveillance, and reconnaissance (ISR) (among other missions).

 Refer to Joint Publication 3-30, Command and Control for Joint Air Operations, for
more complete discussion of the JFACC’s role and the planning processes that
support joint air component employment.

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AIR FORCE COMPONENT PRESENTATION CONSIDERATIONS

Last Updated: 22 Nov 2016

 There are many possible options for presenting forces in support of a joint force
commander (JFC). To provide an initial baseline for organizational decisions, there
are three general models for presenting an Air Force component in support of a JFC.

 Theater-level component. This model establishes an Air Force component at

the combatant commander (CCDR) level, attached with specification of
operational control (OPCON) and commanded by a theater commander, Air
Force forces (COMAFFOR) who may also be designated as a joint force air
component commander (JFACC).

 Sub-theater-level component. This model establishes an Air Force component

at the subordinate unified command or joint task force (JTF) level, attached with
specification of OPCON, with a COMAFFOR (prepared to act as a JFACC) at a
level below the CCDR. This component may be in the form of an air
expeditionary task force (AETF).

 Sub-theater-level AETF in support of a JTF. This model establishes a

dedicated Air Force force, in the form of an AETF, in direct support of a
subordinate JTF, with OPCON retained by the theater COMAFFOR.

 The placement of an Air Force component within the CCDR’s command structure,
as well as the formal command relationships necessary to enable it to interface with
other joint forces, requires careful deliberation based on the situation and
capabilities available. At times, Air Force forces and capabilities may be best
positioned at the theater (i.e., CCDR) level and at other times at the JTF level.

 The CCDR decides whether effective accomplishment of the operational mission at

the JTF level outweigh competing missions at the CCDR’s AOR level and can best
be accomplished by attaching Air Force forces with specification of OPCON to a JTF
commander. Deliberations should examine the interplay of priority, tempo, intensity,
duration, and scope of operations.

 For the complete discussion of this topic, click here.

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JOINT AIR COMPONENT COORDINATION ELEMENT

Last Updated: 22 Nov 2016

 The commander, Air Force forces (COMAFFOR), when acting as the joint force air
component commander may establish one or more joint air component coordination
elements (JACCEs) with other component commanders’ headquarters to better
integrate the air component’s operations with their operations, and with the
supported joint task force (JTF) headquarters (if the theater COMAFFOR is
designated in support to a JTF) to better integrate air component operations within
the overall joint force.

 The JACCE facilitates integration by exchanging current intelligence, operational

data, and support requirements, and by coordinating the integration of COMAFFOR
requirements for airspace coordinating measures, fire support coordinating
measures, close air support, air mobility, and space requirements. As such, the
JACCE is a liaison element, not a command and control (C2) node; thus, the JACCE
normally has no authority to direct or employ forces. The JACCE should not replace,
replicate, or circumvent normal request mechanisms already in place in the
component/JTF staffs, nor supplant normal planning performed by the air operations
center and AFFOR staff.

 Normally, the JACCE should:

 Ensure the COMAFFOR is aware of each commander’s priorities and plans.

 Ensure the COMAFFOR staff coordinates within their surface component/JTF

headquarters counterparts to work issues.

 Ensure appropriate commanders are aware of the COMAFFOR’s capabilities and

limitations (constraints, restraints, and restrictions).

 Ensure appropriate commanders are aware of the COMAFFOR’s plan to support

the surface commander’s scheme of maneuver and JFC’s intent and objectives.

 Facilitate COMAFFOR staff processes with the surface/JTF commanders.

Provide oversight of other COMAFFOR liaisons to component/JTF headquarters
staffs, if directed.

 Ensure information flows properly between the AOC, sister components, and the
JFC.

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 For the more complete discussion in Annex 3-30 (Command and Control) of this
topic, click here.

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MISCELLANEOUS JOINT NOTES

Last Updated: 22 Nov 2016

 Joint staff composition. The composition of a truly joint staff should reflect the
composition of the subordinate joint forces to ensure that those responsible for
employing joint forces have a thorough knowledge of the capabilities and limitations
of assigned or attached forces. The presence of liaisons on a single-Service staff
does not transform that Service staff into a joint staff.

 The same general guidelines for joint staffs apply to coalition operations.

 Relationship between Commanders and Staffs. “Commanders command,

staffs support.” Within a joint force, only those with the title of “commander”—i.e.,
the joint force commander (JFC), the Service component commanders, and the
functional component commanders—may exercise any degree of operational control
over forces. Only commanders have the legal and moral authority to place
personnel in harm’s way. Under no circumstance should staff agencies,
including those of the JFC’s staff, attempt to command forces. Staff agencies
should neither attempt to nor be permitted to directly command or control elements
of the subordinate forces. While this guidance is aimed at joint staffs, it also applies
to Service staffs.

 JFACC staff. When the commander, Air Force forces (COMAFFOR) is designated
the joint force air component commander (JFACC), he/she may need to establish a
small joint or combined staff to deal with joint issues beyond the purview of the
AFFOR staff.

 Augmentation within each AOC directorate from relevant Service components

and coalition partners ensures adequate joint representation on the staff.

 At the discretion of the COMAFFOR, officers from other Services and coalition
partners may fill key deputy and principal staff positions.

 For very large and complex operations-as might be encountered with large
coalition operations-a COMAFFOR dual-hatted as a JFACC may delegate some
aspects of COMAFFOR functions to a subordinate deputy COMAFFOR.

 For expanded discussion of this topic, click here.

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MULTI-HATTING COMMANDERS/SPAN OF COMMAND

Last Updated: 22 Nov 2016

 Caution should be applied when multi-hatting commanders. Too many “hats” may
distract a commander from focusing on the right level of war at the right time, or may
simply overwhelm the commander with detail. Of equal importance is the fact that a
commander’s staff can usually operate effectively only at one level of war at a time.
If a commander wears several hats, it is preferable that the associated
responsibilities lie at the same level of war.

 While it is normally inappropriate for either a Service or a functional component

commander to also serve as the joint force commander (JFC), it is entirely
appropriate for a joint force air component commander (JFACC) to also serve as
the airspace control authority, area air defense commander, and space
coordinating authority, since all four functions lie at the operational level and all
four functions are supported through the same command node (the JAOC). To
alleviate the overload, a multi-hatted commander may delegate some functions
(but not the ultimate responsibility) to appropriate deputies.

 More challenging are those instances when a commander’s hats vertically span
several levels of war, as in the case when the JFC (normally acting at the
theater-strategic level) is also acting as a functional component commander
(operational level), and also as the commander of one of the operating (tactical)
units. In such cases, the commander may be inadvertently drawn to the tactical
level of detail at the expense of the operational-level fight.

AT THE HEART OF WARFARE LIES DOCTRINE…

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