United States Army Special Operations Command

Capability Developments Integration Directorate

Handbook: Special Operations Joint Task Force

Version 1.0
27 September 2019

Approved for Public Release

Distribution Unlimited
Contents
Contents ........................................................................................................................................... i
Executive Summary ..................................................................................................................... iv
Section 1: Employment Guide for the Special Operations Joint Task Force in Large Scale
Combat Operations ....................................................................................................................... 5
Purpose........................................................................................................................................ 5
Context ........................................................................................................................................ 5
The SOJTF .................................................................................................................................. 5
The SOJTF in Large Scale Combat Operations .............................................................................. 7
Multi-Domain Operations ........................................................................................................... 7
In the Deep Fight ........................................................................................................................ 7
In the Close Fight ........................................................................................................................ 8
Consolidating Gains .................................................................................................................... 8
SOJTF Relationship to the Joint Functions .................................................................................... 9
Command and Control ................................................................................................................ 9
Intelligence .................................................................................................................................. 9
Fires........................................................................................................................................... 10
Movement and Maneuver ......................................................................................................... 10
Protection .................................................................................................................................. 10
Sustainment ............................................................................................................................... 11
Information ............................................................................................................................... 11
Other Considerations .................................................................................................................... 11
The SOF, Cyberspace, and Space Nexus .................................................................................. 11
Unity of Effort........................................................................................................................... 12
CF-SOF Operational Synergy ................................................................................................... 13
Experimentation ........................................................................................................................ 14
Conclusion of Section 1 ................................................................................................................ 14
Section 2: Special Operations Joint Task Force in Large Scale Combat Operations—
Mission Command Handbook ................................................................................................... 15
Why This Handbook? ............................................................................................................... 15
What is SOFs Value Proposition for LSCO? ............................................................................ 15
How Does SOF Help to Shape the Deep Fight? ........................................................................... 16
How Does the SOF, Cyber and Space Nexus Contribute to LSCO? ............................................ 16
What are Some Key SOF Limitations You Should Ensure the Conventional Force Commander
and Staff Understand? ................................................................................................................... 17

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What are Some Important Task Organization Considerations? .................................................... 17
Some Considerations and Benefits of Cross-functional Organization. .................................... 17
Setting a Battle Rhythm to Safeguard the Commander’s Most Precious Asset – Time! ......... 19
Remember to Include Interorganizational Partners and Allies. ................................................ 20
Always Maintain Operational Balance and Stance ................................................................... 22
How Do You Develop an Operational Framework?..................................................................... 22
Intelligence Preparation is Vital to Successful Operations ....................................................... 22
Event Templates (EVENTTEMP) are a Proven Means to Guide the Best Use of Collection
Assets ........................................................................................................................................ 24
Predictive Assessments are Difficult to Execute, but are Necessary ........................................ 25
Developing an Operational Approach Requires Understanding the OE and Input from
Assessments .............................................................................................................................. 26
Defining the Challenges is Key to Understanding the Operational Environment .................... 27
How do You Develop Shared Understanding? ............................................................................. 28
Recognize that Shared Understanding is a Vital Component of Mission Command ............... 28
Recognize the Relationship Between Information Sharing and Operational Success .............. 29
Always Consider Interorganizational Factors ........................................................................... 29
How do the Operations Process and Assessment Interact? .......................................................... 30
The Start Point is the Commander’s Visualization ................................................................... 30
The Operations Process Depends on a Number of Other Processes ......................................... 32
Planning Horizons Scope the Operational Approach ............................................................... 36
SOJTF Operations Take Place Throughout the Operational Area............................................ 36
Coordinating Deep Operations ................................................................................................. 38
How Does the Joint Effects Targeting Process Integrate With the Joint Planning Process? ........ 39
Targeting is an Extension of Planning ...................................................................................... 39
SOF Employs an Integrated and Joint Approach to Targeting ................................................. 42
Joint Force Air Component Commander (JFACC) Considerations and the Air Tasking Order
(ATO) Process Constrain SOJTF Operations ........................................................................... 42
The SOJTF Integrates Non-Lethal and Lethal Effects From the Start of Planning .................. 42
Non-Lethal and Lethal Effects Employ the Same Targeting Process ....................................... 43
Non-Lethal Targeting Requires Non-Lethal Assessment Metrics ............................................ 44
Lethal Assessment Metrics Have a Well Established Framework – Battle Damage Assessment
(BDA) ....................................................................................................................................... 44
Does the SOJTF Need an Information Warfare Task Force (IWTF)?.......................................... 45
The IWTF Addresses Challenges in the Information Environment ......................................... 45

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 The Key to IWTF Success is Integration at All Levels ............................................................ 46
The IWTF Develops Influence Plans ........................................................................................ 46
IWTF Operations Can Occur Throughout the Operational Area.............................................. 47
How Does the SOJTF Achieve CF-SOF Interdependence, Interoperability, and Integration (I3)?
....................................................................................................................................................... 48
Understand Their Different Perspectives .................................................................................. 48
Additional Considerations for SOF-CF Interoperability .......................................................... 48
Establish Authority – Who is in Charge? ................................................................................. 49
Consider Multinational Operations I3 ...................................................................................... 49
What is Necessary to Sustain SOF in LSCO? .............................................................................. 50
Integration between SOF, CF, and Other Sustainment Sources is Paramount ......................... 50
Consider the Following in the Planning Process ...................................................................... 51
Health Support Planning Considerations .................................................................................. 52
Coordination between Joint Health Services Sources (HSS) is Paramount ............................. 54
Acronym List ................................................................................................................................ 55

The USASOC Handbook: Special Operations Joint Task Force is approved for public release as
of 16 October 2019. It will be reviewed in the fourth quarter of every fiscal year to ensure the
content remains current and adaptive to emerging conditions in the operating environment.

iii
Executive Summary
Organization: The Handbook for employing the Special Operations Joint Task Force (SOJTF)
in Large Scale Combat Operations (LSCO) is organized into two sections.

Section 1: Employment Guide for the Special Operations Joint Task Force. The purpose of
this part of the handbook is to present the SOJTF as the special operations echelon most suitable
to converge cross-domain effects in support of a Joint Force Commander during preparation of the
operational environment during competition and in LSCO during conflict. This document is not
doctrinal but conceptual therefore, some of the capabilities envisioned by the authors may not be
available at present. However, most, if not all, of the capabilities required for LSCO are currently
under development and are expected to be operational by the year 2028. The Army and Joint
special operations communities are developing and testing the systems, structures, and skills that
will allow for converging multi-domain effects, taking full advantage of SOF’s unique abilities to
see, sense, and strike deep. The SOJTF will be the organization of choice to converge SOF,
Cyberspace, Space, Intelligence, and Fires to generate the effects that open windows of
opportunity for Joint Force maneuver.

Section 2: The SOJTF Mission Command Handbook. Section 2 addresses SOJTF operational
level mission command during LSCO. The primary purpose of this section is to describe the
processes and staff functions that support the SOJTF Commander’s decision cycle. The principal
users are SOJTF staff officers, non-commissioned officers, and civilian personnel who develop
SOJTF campaign plans, concepts of operation, and design operational level exercises and training
programs to prepare for and execute special operations in LSCO. Section 2 describes various
tactics, techniques, and procedures (TTP) to assist the SOJTF staff in shaping the deep fight for
the Joint Force through a combination of core SOF activities: Direct Action (DA), Special
Reconnaissance (SR), Countering Weapons of Mass Destruction (CWMD), Counterterrorism
(CT), Unconventional Warfare (UW), Foreign Internal Defense (FID), Security Force Assistance
(SFA), Hostage Rescue and Recovery (HRR), Counterinsurgency (COIN), Foreign Humanitarian
Assistance (FHA), Preparation of the Environment (PE), Military Information Support Operations
(MISO) and Civil Affairs Operations (CAO).

Way Ahead: The United States Army Special Operations Command (USASOC) will distribute
this document to the appropriate organizations for continued development through wargaming,
experimentation, and operational application. Lessons learned will be collected, analyzed, and
incorporated into subsequent versions of the handbook. USASOC expects to introduce this
handbook into the formal Army and Joint doctrinal development processes in coordination with
the United States Army John F. Kennedy Special Warfare Center and School.

Conclusion: This handbook consists of two parts for use by two distinct audiences. Section one,
the SOJTF Employment Guide is an “up and out” strategic communication for use by senior
leaders and staff members who will find it useful when incorporating a SOJTF into campaign plans
and contingency operations that involve large scale combat. Section two is a “down and in”
document aimed at SOJTF commanders and their staffs who can use the information as a checklist
for developing SOJTF plans and policies when supporting the Joint Force in large scale combat at
the operational level of war.

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Section 1: Employment Guide for the Special Operations Joint
Task Force in Large Scale Combat Operations
Purpose
This handbook describes how the Special Operations Joint Task Force (SOJTF) leverages the
combat power generated by SOF in large scale combat operations (LSCO). The primary users of
this section are joint force commanders and staff, the SOJTF commander and staff, senior service
and staff college students, major subordinate SOJTF units, and commanders at echelons above
brigade (EAB). Sister-service commanders and staffs will also find this handbook useful in
planning and conducting LSCO with SOF.

Context
The major national security documents1 posit a return to Great Power competition. The National
Security Strategy (NSS) notes that, “China and Russia want to shape a world antithetical to U.S.
values and interests.”2 The National Defense Strategy (NDS) observes that, “Inter-state strategic
competition, not terrorism, is now the primary concern in U.S. national security.”3 While special
operations forces (SOF) are optimized for operations in competition below armed conflict, the
possibility that the Joint Force will have to engage in LSCO indicates the need for conceptual and
doctrinal approaches that prepare SOF to contribute to success in that arena.

The NDS provides a Global Operating Model that has “four layers: contact, blunt, surge, and
homeland. These are, respectively, designed to help the U.S. compete more effectively below the
level of armed conflict; delay, degrade, or deny adversary aggression; surge war-winning forces
and manage conflict escalation; and defend the U.S. homeland.”4 Within the NDS model, forward
presence forces—including SOF—would operate in the contact layer during competition,
maintaining persistent presence even in denied areas. In the event of conflict, SOF from the contact
layer would provide a force that is “under the bubble” of enemy anti-access and area denial
systems. They would also form part of the blunt and surge layers.
While the Theater Special Operations Command (TSOC) oversees the activities of SOF assigned
and attached to the geographical combatant commander (GCC) for military engagement, security
cooperation, and deterrence operations, the SOJTF is the principal joint SOF organization tasked
to meet all special operations requirements in major operations, campaigns, and contingencies.5
The SOJTF
A SOJTF is a modular, tailorable, and scalable SOF organization that allows the United States
Special Operations Command (USSOCOM) to more efficiently provide integrated, fully capable,
and enabled joint SOF to GCCs and subordinate Joint Force Commanders (JFC). SOF capacity
may be especially challenged during major combat operations or other large scale campaigns.
When theater SOF requirements exceed the TSOC’s capacity, GCCs may request a SOJTF from
USSOCOM. In coordination with the GCC, theater component, and Joint Task Force (JTF)
commanders, the SOJTF commander is responsible for planning, integrating, and conducting
special operations in a designated operational area. When tasked, the SOJTF commander plans,
integrates, and conducts all military operations in the designated theater of operations. 6

A SOJTF is composed of four elements: the headquarters (HQ), SOF operational forces, SOF
support forces, and Service and Interagency provided capabilities. The HQ element provides the
5
command and control (C2) of all SOF in the SOJTF. It may augment existing capability, or provide
the full theater capability, as required. The second element consists of the SOF operational forces,
which may include air, ground, maritime, and special designated SOF capabilities. The third
element includes the SOF organic combat support and combat service support capabilities, which
may include aviation support, fires support, intelligence, logistics, and communications. Since
SOF are limited in size and capability, the fourth element is composed of Service and Interagency
provided capabilities.

Figure 1. The SOJTF Organizational Construct. Source: Joint Publication 3-05.

The SOJTF’s scalability also allows it to expand into a multi-national force (MNF) as required.
Depending on circumstances, the SOJTF may be directed to serve as the JTF, or a Joint Force
Special Operations Component Command (JFSOCC). The SOJTF provides a capability to C2
multiple joint special operations task forces (JSOTFs)7 and a joint special operations air component
(JSOAC)8 or a JTF consisting of both CF and SOF.9 JSOTFs and JSOACs are O-6 level HQs
whose staff is normally augmented by Service or Interagency personnel.

The SOJTF is an operational level headquarters—usually commanded by a two-star general or flag

rank officer—that functions as a maneuver element not simply as a supporting effort. During the
fight, the SOJTF creates operational level physical, virtual, and cognitive effects across all
domains in support of joint force priorities, lines of effort, and objectives. The SOJTF staff
continuously analyzes effects and provides feedback to the higher headquarters as well as to
subordinate elements to contribute to a shared understanding and how the SOJTF commander
intends to affect the operational environment. The interaction will enable the synchronization of
targeting, obtaining required authorities, risk acceptance, asset allocation, resource management,
and battlespace management.

Directed by the SOJTF, subordinate elements conduct Special Operations core activities,
including: DA, SR, CWMD, CT, UW, FID, SFA, HRR, COIN, FHA, PE, MISO and CAO.

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The SOJTF in Large Scale Combat Operations
Multi-Domain Operations
Each of the Services are developing concepts to address the expanding nature of the current and
future battlefield. This reflects a requirement to mass effects not only in the traditional domains of
land, sea, and air but also in space, cyberspace, the electromagnetic spectrum, and the information
environment. What the Services are coming to appreciate is that the Joint Force must apply
capabilities more comprehensively (earlier, in greater capacity, at lower echelons) and in new ways
(faster, with greater agility).10

The emphasis is on rapid operational tempo throughout all domains using a variety of actions to
generate confusion and chaos which disorients the enemy and allows the Joint Force to create, and
subsequently attack, weaknesses at all levels (tactical, operational, and strategic) while by-passing
strengths. These concepts presume that conflicts can be favorably resolved by applying multiple
methods—synchronized in time, space, and purpose—across multiple domains, in ways that
reinforce one another while shaping conditions for others to affect the physical, virtual, and
cognitive aspects of the enemy’s system at all levels.11

While multi-domain operations are conducted across the operational continuum—in both
competition and conflict—this handbook concentrates on SOF support to the JFC during major
operations or campaigns involving large scale combat. In LSCO, the Joint Force seeks to prevail
against the enemy as quickly as possible, conclude hostilities, and establish conditions favorable
to the U.S., its multinational partners, and the host nation (HN). For large scale efforts, SOF
conduct activities that support the JFC throughout the operation or campaign. Complex campaigns
may require SOF and CF to conduct simultaneous activities. For such campaigns, USSOCOM may
provide a SOJTF to C2 special operations.12

To be fully effective, the SOJTF must be integrated into operational and contingency plan
(OPLAN/CONPLAN) development so that the Joint Force can appropriately template SOF on the
battlefield and assign roles and missions based on capability and location.

In the Deep Fight

SOF provides the Joint Force with physical or virtual presence in areas normally denied to other
ground forces deep in enemy territory. The SOJTF’s subordinate organizations are designed to
perform deep operations. These operations can be executed unilaterally, with a partner force, or
through a resistance movement.

The SOJTF conducts deep operations whether the JTF is on the offense or defense. SOF deep
operations complicate the enemy's decision-making by degrading his combat power, disrupting
his ability to command, delaying the tempo of his operations, attriting forces, obstructing
reinforcement, destroying installations and supplies, and ultimately breaking down the enemy’s
cohesion and morale. Maneuver, precision targeting, and mission command supported by
intelligence combine to enhance SOF deep operations.

Deep operations in denied domains conducted by SOF, Cyberspace and Space elements are a vital
part of both joint operations and multi-domain operations. The SOJTF ensures that SOF,

7
Cyberspace and Space assets work in concert to see and strike deep in the physical, virtual, and
cognitive realms to create multiple ‘fronts’ that presents the enemy with compounding dilemmas
during LSCO.

Whether the Joint Force is on the offense or defense, SOF deep operations interdict enemy lines
of communication (LOC); disrupt counterattacks and the employment of follow-on forces; destroy
units and critical targets; and cut off routes of withdrawal. SOF reconnaissance provides
commanders with information and intelligence about enemy capabilities in depth. SOF disrupts
the enemy’s deep areas by conducting DA and sabotage against military capabilities and
infrastructure.

Illustrative examples of those capabilities include attacks upon integrated air defense systems,
logistics nodes, communications down-link sites, and unmanned aerial vehicle (UAV) launch and
recovery locations. SOF and their indigenous partners also target the enemy's infrastructure to
disrupt rear area operations. Infrastructure targets include bridges, dams, railroads, power
generation facilities, logistical storage sites and other operational or strategic targets. SOF achieves
multi-domain effects employing space, cyberspace, and electronic warfare capabilities in deep
areas.

The SOJTF commander directs SOF to attack the enemy's systems across multiple domains: air,
land, sea, space, cyberspace, as well as the electromagnetic spectrum and the information
environment. The sequencing and synchronizing of special operations in the deep area depends on
the JTF's operational design. Special operations apply a broad range of capabilities sequentially,
simultaneously, or systemically to achieve layered effects and create multiple, compounding
dilemmas that disrupt the enemy's thinking and degrade his ability to act coherently.

In the Close Fight

SOJTF units support the Joint Force in the close fight. They conduct special operations that support
and reinforce joint force maneuver. The commander applies combat power, both organic to the
SOJTF and from indigenous forces, as necessary to support the JTF's main effort. The SOJTF
Commander focuses on converging physical, virtual, and cognitive effects in support of ground
maneuver during the close fight. Not all activities that are part of close operations necessarily take
place near or at the point of direct enemy contact. An example would be precision targeting
operations directed against enemy fires capabilities in the deep area.

Consolidating Gains
Commanders may establish a consolidation area, particularly in the offense as the friendly force
gains territory. As the main force advances and bypasses enemy forces, its lines of communication
become a critical vulnerability. Preserving those lines of communication directly affects the
momentum at the forward line, and it affects operational tempo. The SOJTF conducts operations
in support areas and in consolidation areas to assure freedom of maneuver and the continuity of
operations, especially sustainment.

The SOJTF enables the consolidation of gains in the main battle area immediately behind the
Forward Line of Troops (FLOT). Specially trained SOF elements help the JFC manage the civil
populace and rapidly restore civil governance. SOF mitigate the impact of the civilian populace

8
on the conduct of LSCO by influencing civilians to avoid areas where friendly fire or maneuver
are anticipated. SOF identify existing government infrastructure and resources to support the Joint
Force in addressing the needs of the local populace.

In support of partners managing refugees or Internally Displaced Persons (IDP), SOF participate
in screening activities, including the use of biometric screening, to cull enemy combatants or
agents attempting to smuggle themselves in the IDP flow. SOF identify and counter enemy efforts
to apply populace and resource control in contested areas.

SOJTF Relationship to the Joint Functions

Command and Control
USSOCOM will provide the core of deployable, Joint Task Force-capable, SOJTF headquarters
up to the two-star level in support of Joint and Army multi-domain operations. The SOJTF
provides C2 of U.S. SOF, CF, and partner nation (PN) forces. Once established, the SOJTF
supports the JFC in a tactical control (TACON) or support role and typically remains under the
operational control (OPCON) of the TSOC. When the JFC organizes forces into functional
commands, the SOJTF commander may be designated as the JFSOCC and perform functions
assigned by the JFC that are similar to those assigned to the other functional components.
During LSCO, planners should assume that that the C2 systems upon which the Joint Force relies
to ensure the execution of complex maneuvers will be denied or degraded by a peer enemy. The
SOJTF's mission command philosophy focuses on decisive results, achieved by subordinate
commanders exercising initiative at key times and places, rather than on rules, orders, and
processes transmitted by technical means. The SOJTF exercises C2 of its distributed subordinate
elements through mission-type orders that enable disciplined initiative within the commander’s
intent.
When the tools of information processing are available, the SOJTF commander and staff exercise
deliberate restraint to ensure that access to information and the ability to transmit orders does not
raise the level of decision-making from the point of action. SOJTF staff members also ensure that
their capacity to transmit information does not overwhelm the capacity of subordinate elements to
assimilate it. The SOJTF leverages the culture of SOF, which encourages the operator's inclination
to take the tactical initiative and provides the surest method of command and control.
Intelligence
The SOJTF is the primary echelon that converges and analyzes intelligence from strategic,
operational, and tactical level sources. SOJTF ISR collection plans emphasize the mixing and
cueing of assets in all domains to provide timely and accessible intelligence and targeting
information. The SOJTF disseminates intelligence products in collaboration with adjacent units
and higher echelons. It provides subordinate units with a synthesis of what the enemy appears to
be doing and feedback on how enemy forces are reacting to the effects that subordinate unit
operations generate.
The SOJTF intelligence staff creates a tailorable, sharable, multi-echelon, Joint and multi-national,
multi-domain Common Operating Picture (COP). All SOJTF elements require network access to
the multi-domain COP with sufficient bandwidth, processing power, data storage, and tools to
enable situational awareness and coordinate cross-domain fires. The COP provides visualization

9
of kinetic and non-kinetic effects in all domains to enable the operations process, provide
responsive targeting, and realize the fleeting windows of superiority required to converge lethal
and non-lethal cross-domain effects in support of Joint Force maneuver.

Fires
The SOJTF extends the JFC’s reach through unilateral and indigenous approaches; seeing, sensing,
stimulating, and striking targets in the deep fires area. The SOJTF converges SOF-unique
intelligence capabilities with precision lethal and non-lethal fires and from the air, land, sea, space,
and cyberspace domains as well as the electromagnetic spectrum and the information environment
to increase lethality, expand maneuver, enable joint force targeting, refine intelligence, and
conduct operations in the deep fires area. The SOJTF employs lethal and nonlethal cross-domain
fires to achieve physical, virtual, and cognitive effects. The SOJTF synchronizes the sensor-to-
shooter capabilities that identify and characterize physical and virtual targets to provide targeting
data and standardized interface protocols across delivery systems for long-range precision fires.
The SOJTF targeting methodology emphasizes precision over mass. It aggregates distributed
networks to deliver precision fires, support maneuver, and destroy, neutralize, or suppress critical
enemy warfighting capabilities. As technology advances, AI-enabled network systems, sensors,
and data assimilation improve SOJTF targeting, decision-making, deconfliction, and clearance of
fires.

Movement and Maneuver

The maneuver elements of a SOJTF include teams such as Special Forces Operational
Detachments, Civil Affairs Teams, and Psychological Operations Teams, as well as Rangers,
Special Operations Aviation, and specialized logistics elements. The objective of SOF maneuver
is to exploit enemy weakness or vulnerabilities in enemy dispositions. SOF may maneuver to gain
a position of physical, virtual, or cognitive advantage from which to strike the enemy, exploit the
effects of fires and cyber-electromagnetic activities (CEMA), and influence the enemy's thoughts
and actions.

Protection
SOJTF elements are masters in the use of low visibility or low probability of detection
communications and related TTPs. The lowest tactical echelons have integrated signals
intelligence (SIGINT) capabilities to recognize when their element is under threat of detection by
the enemy. Teams apply counter measures to reduce enemy detection.

The SOJTF applies complementary and reinforcing protection tasks and systems to preserve the
force in LSCO. It integrates with unified action partners and layers protection capabilities across
multiple domains to eliminate or mitigate the risk of threat effects. It employs primary and alternate
protection capabilities as a continuous activity.

The SOJTF and its subordinate elements use operations security (OPSEC), conduct activities to
support area security, employ air and missile defense including countering UAS, and are trained
and equipped to operate in chemical, biological, radiological, and nuclear (CBRN) environments.
The SOJTF uses multi-sensor capabilities from UAS, intelligence, surveillance, and
reconnaissance (ISR) systems and space based platforms to provide awareness and protection. The
SOJTF employs counter-improvised explosive devices (C-IED) and explosive ordnance disposal

10
(EOD) capabilities and expertise. The SOJTF maintains force health protection, conducts
survivability operations, electronic protection, defensive cyberspace operations, cyberspace
security and CEMA camouflage and electromagnetic signature shielding. The SOJTF employs
military deception (MILDEC) and uses information and cyber supported platforms to enable
protection and survivability.

Sustainment
The SOJTF conducts distributed operations with small operational and logistics footprints far from
major bases in LSCO. Because SOF are not structured with robust logistical capabilities, the
SOJTF relies on external support for sustained operations. Agile, integrated, and sustained
relationships, networks, architectures, and capabilities enable sustainment. The SOJTF integrates
cyberspace, artificial intelligence, and advanced analytical technologies to manage resources and
anticipate logistical requirements. The TSOCs ensure connectivity to the theater logistics
architecture and facilitate the implementation of non-standard logistical support for distributed
operations in denied areas.

The SOJTF employs unmanned ground, air, and water-borne delivery systems, leverages
indigenous procurement mechanisms, and utilizes additive manufacturing techniques—as they
become available—to meet sustainment demands at the point of need. The SOJTF accounts for
medical planning considerations, such as prolonged care and challenges of medical care in the
deep areas. The SOJTF provides point of injury care and forward resuscitation capability. The
SOJTF employs advanced trauma and resuscitation with prolonged patient care capabilities.
SOJTFs may be augmented by Role II medical teams and Damage Control Surgery capabilities.
The SOJTF may rely on CF assets for evacuation of casualties and treatment facilities.

Information
SOF conducts information operations (IO) to encourage popular support for FID programs. The
SOJTF supports the joint campaign by planning and conducting influence operations. SOF identify
influence opportunities to target enemy forces or populations and disseminate precisely tailored
messages unilaterally or through its partner networks. SOF conducts tactical deception and
identifies and assesses enemy information warfare efforts against the Joint Force.

The SOJTF may organize an Information Warfare Task Force (IWTF) to employ those units with
information related capabilities (IRC) as a subordinate task force. The IWTF provides a means of
massing virtual and cognitive effects and exploiting physical effects in competition and conflict.
The IWTF is a new concept, but it does not contravene joint doctrine.13 Rather, it applies IO
concepts to address the challenges outlined in the National-level strategic documents. Information
Operations (JP 3-13) addresses the formation and functions of an IO cell within a joint staff.14

Other Considerations
The SOF, Cyberspace, and Space Nexus
A nexus exists among SOF, Cyberspace and Space forces and assets. SOF recognizes an
immediate requirement for the nation to win in the cyberspace (virtual) and space (physical)
domains against peer and near peer competitors during both competition and conflict. As such, the
historically unassociated resource sets in SOF, Cyberspace, and Space forces, assets, and

11
operations must identify the point in time and space at which they converge, organize, and generate
effects against adversaries. This is the nexus.

The SOJTF synchronizes SOF activities with a wide variety of groups across all domains,
including commands with global reach such as Space, Cyber, Strategic, and Transportation
Commands. As part of the Global SOF Network, the SOJTF achieves specific effects in multiple
places, over time around the globe, creating compound dilemmas throughout the enemy's system.
The task of integrating Cyberspace and Space capabilities belongs to the Joint Force however, the
SOJTF could serve as the integrator and supported command in the competition space and in
denied areas during major combat operations. The Cyberspace and Space information
environments will become more congested and opaque, obscuring the Joint Force’s visualization
and understanding of the tactical environment. Forward positioned SOF units will have the best
situational awareness. They will be best postured to coordinate Cyberspace and Space ISR, and
process, exploit, and disseminate (PED) collected data, conduct targeting with high fidelity, and
initiate precision Cyberspace and Space fires. SOJTF integration of SOF, Cyberspace and Space
operations will enable the Joint Force to see deep and maximize targeting.

Unity of Effort
SOF-unique intelligence and targeting capabilities illuminate enemy high priority targets in the
joint integrated prioritized target list (JIPTL). Examples of priority targets include Theater Ballistic
Missiles (TBM), integrated air defense systems (IADS), the integrated fires complex (IFC), High
Value Individuals (HVI) and Weapons of Mass Destruction (WMD). SOF uses its capabilities and
those of indigenous partners to identify enemy formations, especially operational and strategic
reserves, equipment, and their locations or movements. Intelligence provided by SOF and its
indigenous partners enables the JFC to determine the enemy’s disposition and intent.

The SOJTF conducts future planning nested with that of its higher command. Futuristic
assessments provide options for the higher command, and seeks opportunities to maximize synergy
with other components and partners. Robust assessment feeds decisions at all planning and
execution horizons. The SOJTF aggressively seeks to understand the enemy’s aims and routinely
validates the templates it uses to depict and predict the enemy’s actions. The SOJTF maintains a
future-looking picture of the enemy over time and space to develop desired battlefield effects. The
SOJTF routinely cross-levels its view of the enemy with its subordinate elements’ views. The
shared macro-level COP provides the operational context for unified action.

The SOJTF sets conditions for its subordinate elements to conduct the tactical fight. It provides
resourcing, authorities, and permissions. It manages operational level transitions between phases
and adjusts to changes in the higher headquarters’ priorities. It also has routine near term focus
requirements. Staffs continuously monitor, report, and respond to Commander’s Critical
Information Requirements (CCIR). The SOJTF keeps ahead of critical resource paths, like the Air
Tasking Order (ATO), and makes decisions regarding high risk missions.
Under some conditions, the tempo of LSCO will compress some of the SOJTF’s planning
horizons. The dynamics of the rapidly changing environment and a lack of fidelity about the enemy
may compel the SOJTF to focus on near term event cycles. Some examples include battlefield
synchronization of SOF elements and capabilities against indications of the enemy’s intent,
emerging critical targets, or prioritization and allocation of resources including ISR.

12
The SOJTF internalizes the higher headquarters’ plan and masters the use of military terms and
symbols including unit icons and control measures to synchronize the battlespace. The JFC may
establish a joint special operations area (JSOA), which is an area of land, sea, and airspace assigned
to the SOJTF to conduct special operations activities. JSOAs normally help coordinate and
deconflict SOF and CF activities. The SOJTF commander may further assign subordinate
commanders specific areas or sectors within the JSOA for mission execution. The scope and
duration of the SOF mission, friendly and hostile situation, and politico-military considerations all
influence the number, composition, and sequencing of SOF deployed into a JSOA.15

CF-SOF Operational Synergy

SOF operates as an integral element of the Joint Force. The SOJTF combines people, processes,
and programs to integrate joint operations across all domains. The SOJTF maximizes the inherent
interoperability between SOF components and extend that interoperability to Service components
to support the Joint Force. This requires the development of SOF and conventional force concepts
and doctrine that provides relevant joint capabilities. The SOJTF communicates and collaborates
across interoperable systems and equipment. Service professional military education and training
programs enable personnel to gain and maintain an understanding of joint operations that prepares
them to act as enablers in a Joint Force headquarters.

The establishment of a SOJTF (as in Operation ENDURING FREEDOM) improves CF and SOF
integration and interdependence. The SOJTF acts as a single headquarters to plan and coordinate
all special operations in theater and also employs and sustains U.S. and multinational SOF. The
SOJTF increases synergies in intelligence, communications, and information sharing, improves
manpower efficiency, improves critical enablers to the force, and enhances coordination between
all special operations in theater.16

The SOJTF plans, coordinates, and executes CF fire support for SOF elements operating in the
deep maneuver and deep fires areas to support prosecution of the JFC’s targets and post attack
assessments, and to support SOF tactical actions. The SOJTF converges technical and traditional
precision fires and intelligence capabilities from space, terrestrial and cyberspace platforms during
LSCO in order to increase lethality and expand maneuver in the deep fires area.

SOF counters enemy networks. Using SOF-unique intelligence and targeting processes, the SOJTF
identifies, isolates, and physically, virtually, or cognitively engages enemy networks throughout
the area of operations. In rear areas, SOF may work with host-nation intelligence and security
agencies to detect and identify enemy SOF, stay-behind units, or other clandestine networks.

When SOJTF operational and campaign planners design operations, they arrange them in such a
manner and with such a tempo as to deny the enemy an opportunity to cope with emerging
developments. Repeated and unexpected combinations of activities expose the enemy's
vulnerabilities and weaknesses so that the Joint Force can exploit them. SOJTF planners describe
SOF capabilities and limitations using the language of tactics and advocate for necessary resources
that will synchronize combined arms effects.

13
Experimentation
As a joint warfighting headquarters, the SOJTF provides a platform for testing new SOF,
Cyberspace, and Space capabilities as well as concepts of employment. The SOJTF evaluates
emerging capabilities and pursues adaptive, leap forward solutions to counter adversary
capabilities and provides timely, innovative advantages to the joint force.

Conclusion of Section 1
The SOJTF provides joint SOF solutions and options to the Joint Force in LSCO. It is an
operational level headquarters that functions as a subordinate JTF or as a JFSOCC. SOJTF
elements operate in the deep fires areas beyond the range of conventional ground forces. It
synchronizes joint SOF operations to reduce enemy layered standoff and penetrate anti-access/area
denial (A2/AD) systems. The SOJTF integrates indigenous forces and partner SOF to generate
combat power in support of Joint Force objectives. The SOJTF achieves physical, virtual, and
cognitive objectives while conducting multi-domain operations in Large Scale Combat
Operations.

14
Section 2: Special Operations Joint Task Force in Large Scale
Combat Operations—Mission Command Handbook
Why This Handbook?
This handbook is the second of a two-section set that amplifies joint doctrine. If conflicts arise
between the contents of this handbook and the contents of a joint publication (JP), the JP will take
precedence. This section addresses Special Operations Joint Task Force (SOJTF) Mission
Command during Large Scale Combat Operations (LSCO). A SOJTF is an operational level
headquarters which executes special operations throughout the operational area. In LSCO, it may
operate as a Joint Force Special Operations Component Command (JFSOCC) under a Joint Task
Force (JTF) or it may be a JTF.

This handbook uses the joint definition of mission command,17 “The conduct of military operations
through decentralized execution based upon mission-type orders. (JP 3-31)18” This handbook also
employs observations, trends, and best practices gathered from War Fighting Exercises (WFX) as
well as historical vignettes for illustrative purposes. They are meant to spark thought, not to act as
rigid guidelines. However, the axiom that “You will do in war what you did during training”
applies.

The 2017 National Security Strategy (NSS), the 2018 National Defense Strategy (NDS), and the
2018 National Military Strategy (NMS) all recognize the re-emergence of Great Power
competition and the resulting potential for large scale conflict. While there is a universal
recognition that the U.S. must not lose the ability to prosecute Irregular Warfare, the Joint Force
(JF) must develop the ability to fight and win during conflict through LSCO. The past twenty years
have seen a distinct erosion of the Joint Force’s ability to conduct LSCO.

What is SOFs Value Proposition for LSCO?

In LSCO, the unique value of SOF comes from their ability to shape the deep fight through a
combination of their core activities. As illustrated in the historical vignette below, SOF employed
their abilities to conduct UW and employ the Iraqi Peshmerga to tie down eleven enemy divisions.

Historical Vignette
Task Force Viking, otherwise known as Combined Joint Special Operations Task Force-North (CJSOTF-N),
dramatically advanced the success of Operation Iraqi Freedom (OIF) by employing UW forces against a
conventional enemy comprised of one armor, two mechanized, and eight infantry divisions. By doing so, they
disrupted the enemy and reduced his ability to reinforce southern Iraq. Having defeated the enemy to its front,
CJSOTF-N then switched its focus from offensive combat to establishing stability throughout the region.

The SOJTF demonstrates the value of special operations in LSCO to the Joint Task Force (JTF)
commander and staff. This begins with imparting an understanding of special operations core
activities. These are: Direct Action (DA), Special Reconnaissance (SR), Countering Weapons of
Mass Destruction (CWMD), Counterterrorism (CT), Unconventional Warfare (UW), Foreign
Internal Defense (FID), Security Force Assistance (SFA), Hostage Rescue and Recovery (HRR),
Counterinsurgency (COIN), Foreign Humanitarian Assistance (FHA), Preparation of the
Environment (PE), Military Information Support Operations (MISO) and Civil Affairs Operations
(CAO). All of these core activities contribute to LSCO.19

15
How Does SOF Help to Shape the Deep Fight?
SOF provides the only ground maneuver forces in the deep areas. 20 The following table provides
an outline of how SOF enables the Joint Force Commander (JFC) and subordinate commanders
to:
Capability Unit/Activity
See deep with both U.S. and indigenous capabilities  Special Forces Operational Detachment Alpha
employing: (ODAs)/Civil Affairs (CA)/Psychological
Operations (PSYOP)
 Indigenous forces
 Rangers
 Marine Corps Special Operations Command
(MARSOC)
 SEAL Platoons

Provide terminal guidance to joint fires in the deep  ODAs

areas employing:  Rangers
 MARSOC
 SEAL Platoons

Employ indigenous assets in order to:  Conduct raids and ambushes.

 Assist in cyber and information operations by
providing a physical point of presence.
 Conduct sabotage and subversion.

Seize or protect Critical Targets / Assets / Individuals  Rangers

with:  ODAs
 Indigenous forces
 MARSOC
 SEAL Platoons

Consolidate gains rapidly within newly won ground by  PSYOP

employing:  Civil Affairs
 Indigenous forces
Table 1. SOF contributions to the deep fight, arrayed by capability and corresponding unit.

How Does the SOF, Cyber and Space Nexus Contribute to LSCO?
To meet the challenging requirements in the LSCO deep fight, the SOJTF may be tasked to support
global and theater targeting. This will include integrating cyberspace and space assets to
successfully affect the deep battlespace through Intelligence, Surveillance, and Reconnaissance
(ISR), precision strike, Sensitive Activities (SA),21 and PE.22 Recognizing the combat multiplier
effects the nexus has the potential to generate, SOF’s traditional roles will expand to include both
supporting and supported relationships with these other capabilities.

However, in a contested multi-domain environment, deep reconnaissance may still rely on “boots
on the ground” strategic reconnaissance teams. This will require capabilities to safely and securely
transmit and retransmit field reporting. Additionally, the SOJTF will need to be able to compete
in the information space – to leverage technology and existing means to project the friendly force
narrative while countering, blocking, and obfuscating the adversary’s.

16
SOF provides the Joint Force with both a physical or virtual presence in areas normally denied to
joint units. SOF organizations are organized, trained, and equipped to perform deep operations.
They can execute these operations unilaterally, with a partner force, or through a resistance
movement.23 By beginning their efforts to develop indigenous networks during competition and
continuing throughout conflict, SOF enables the future Joint Force to set the theater and seize or
regain the initiative. It empowers partners to counter aggression below the threshold of open armed
conflict and creates dilemmas for our adversaries.

What are Some Key SOF Limitations You Should Ensure the
Conventional Force Commander and Staff Understand?
It is vital for the SOJTF Commander, staff, and Liaison Officers (LNOs) to educate and explain
SOF limitations to those they support. These limitations derive from unit organization, training,
and equipment.

Key SOF Limitations

 SOF units operating in denied areas forward of the Corps area of influence may not be able to maintain
constant communications with higher headquarters.
 SOF units have limited mobility, especially when they are tethered to indigenous or partner forces.
 Improper employment of SOF runs the risk of rapidly depleting the SOF capacity. Due to the length of time
required to recruit, train, and educate SOF operators, SOF cannot be quickly reconstituted or rapidly
expanded.
 SOF should not be used to execute missions which can be executed by CF.
 Special operations missions require non-SOF support. SOF is not structured with robust logistic and
sustainment capabilities. Therefore, SOF must rely on external support for sustained operations. Limited
SOF logistical capacity requires support from CF structures, supplemented by host nation (HN), partner, or
contracted support.

What are Some Important Task Organization Considerations?

The SOJTFs scalability also allows it to expand into a Multi-National Special Operations Force
(MNF) as required.24 Additionally, as explained in JP 3-33 (Joint Task Force HQs) other enablers
may be required and are available to the SOJTF Commander.
The SOJTF Commander will face five concurrent challenges in task organization:25
 Planning to accomplish the mission.
 Forming the HQ.
 Understanding, leveraging or supporting other joint, coalition, and interagency goals,
authorities, and activities.
 Organizing, receiving, and commanding assigned or attached joint forces.
 Deploying the force and HQ.
Some Considerations and Benefits of Cross-functional Organization.
The typical J-Code organization of the SOJTF staff provides groupings of subject matter experts
in necessary areas. Shared understanding improves staff integration through the use of cross-
functional working groups (WGs), operational planning teams (OPTs), and cross-staff
organizations. Cross-functional coordination is typically accomplished through the commander’s
battle rhythm. Cross-functional organizations are essential in avoiding stove piping within the J-

17
Codes which most often occurs due to the sheer volume of staff actions during operations. While
their membership is drawn from across the staff, their oversight will fall under a primary or
functional staff directorate.

The chief benefit of cross-functional organizations is that they allow the staff to concentrate
their expertise to solve a problem. The habitual use of horizontal cross-functional organizations
is a powerful means to achieve staff integration. Figure 2 below illustrates the types of cross-
functional organizations which the SOJTF could consider during task organization.26

Figure 2. Cross-functional organizations foster staff integration by breaking down stovepipes.

The SOJTF establishes operational planning teams (OPT) to solve a single problem related to a
specific task or requirement on a single event horizon. In most cases, OPTs are not enduring and
will dissolve upon completion of the assigned task. OPT membership is typically determined by
the staff officer responsible for the event horizon in which the OPT is working; e.g., the J5 for
future plans, J35 for future operations, and J33 for current operations.27

Establishment of a SOJTF can change the C2 construct, affect how the Joint Force Commander
(JFC) exercises command and control, and impact how the components operate. This change in
C2 is significant, and if not understood can cause confusion and lack of synergy across the area of
responsibility (AOR). Simplicity and unity of command, or at a minimum unity of effort, are
essential for success.28

During LSCO the SOJTF may support a JTF, combatant command (CCMD), or an established
theater headquarters. Some insights into providing that support include:

 Anticipate some form of supporting command relationship with the JTF.

 Dispatch quality liaison teams to the JTF HQ to assist the HQ in understanding force
capabilities, other ongoing AOR activities, employment considerations, risks, and
challenges.29

18
  Plan to operate as a coalition joint HQ together with U.S. Government (USG) Interagency
partners.
 Take the time to develop trust based relationships with mission partners and stakeholders.
 Gain understanding of joint, coalition, and interagency perspectives, goals, authorities, and
capabilities to increase synergy and effectiveness of the broader team effort.
 Spend time understanding the political and policy aspects of the mission, and the
Combatant Commander’s (CCDR) mission, intent, end state, and processes to better define
the SOJTF role and mission.
 Maintain a bias for action by developing a lean HQ organization, requesting necessary staff
expertise, leveraging an effective liaison network, and developing efficient staff processes.
 Understand the range of joint enablers.
 Develop and gain approval of manning, training, and equipping plans.
SOF operations combine features of both top down and bottom up approaches. This is because the
SOF units operating forward of the Corps boundary are in periodic contact with the SOJTF to
enhance their security and survivability. They require the latitude afforded by mission type orders
to achieve the effects desired by the SOJTF Commander. Units within the Corps area of operations
are another matter. The SOJTF can task them more frequently. Mission type orders should be the
rule, not the exception.

Setting a Battle Rhythm to Safeguard the Commander’s Most Precious Asset –

Time!
The battle rhythm process provides the management structure for the SOJTF’s most important
internal resource, the time of the commander and staff personnel, and integrates commander
decision making with mission partners. It must serve the commander’s needs and leadership style.
However, it must also nest with that of higher headquarters (HHQ).

The battle rhythm must not only support decisions across the three event horizons, but also account
for the battle rhythms of higher and adjacent mission partners, all while enabling timely direction
and guidance to subordinate units. Effective and efficient HQs are marked by their logical
arrangement of Operational Planning Teams (OPT) and other cross-functional organizations
which support each other and commander decision-making.

The battle rhythm must be flexible, adaptable, and able to handle dynamic changes in mission
requirements and HHQ demands. At the same time, it should have a structure and foundation for
staff and unit level interaction, planning, and prioritization. With all the complexities and demands
on staffs, the commander’s guidance is necessary regardless of mission, size, or scope.30

Building the battle rhythm consists of two logical steps. The first starts with a logical arrangement
of cross-functional teams around the commander’s decision requirements with decision venues as
culminating events. One means is to employ a critical path methodology to map inputs to and
outputs from the cross-functional organizations to focus this effort. The critical paths are
Operations (current and future), Plans, and Man-Train-Equip (or HQ Support). The second step
lays out these events on a calendar or time schedule.

19
When creating a battle rhythm, maintaining sufficient unscheduled time or “white space” is
crucial. Unless the SOJTF staff makes a conscious effort to preserve sufficient time for the
commander and staff to think and work, the battle rhythm can become overwhelming and
counterproductive. The battle rhythm must be governed by a disciplined approach. To develop the
battle rhythm and enforce discipline, the SOJTF Commander must appoint either the Chief of Staff
(COS) or another senior staff member with full authority over the battle rhythm.31

Another important element of battle rhythm management for the SOJTF is maintaining an
awareness of critical staff positions that are in high demand for working groups and OPTs. High
Demand/Low Density (HD/LD) subject matter experts (SMEs) (e.g., Foreign Policy Advisor
[POLAD] and staff judge advocate) are important members of cross-functional organizations and
may not be able to support multiple events at the same time. It is important to identify manpower
limitations of these key SMEs and ensure they are utilized effectively.

One means to impose discipline on the

number of events on the battle rhythm
is ensuring each battle rhythm event
has a “charter” or what many call a
“Seven Minute Drill”.32 The
intellectual rigor and discipline
required to create a charter makes it a
valuable tool in both describing and
vetting battle rhythm events. The COS
typically approves the charter. It helps
to ensure that every event on the battle
rhythm has a necessary purpose as
well as defined inputs and outputs.
Any proposed battle rhythm event that
has no output and only provides
generic situational awareness, or an Figure 3. The Seven Minute Drill is a means to inject both logical
thought and discipline into the SOJTF battle rhythm.
information brief outside the decision-
making process does not belong on the
battle rhythm.33

Remember to Include Interorganizational Partners and Allies.

During LSCO the SOJTF must consider interorganizational partners and allied during task
organization. The following list provides a sample of some initial questions for functional staff
consideration:34

 Planning: Are your partners included in planning? Are you included in theirs? Are they
assisting in design (understanding the operating environment and problem)?
 Assessment: How are you including your partners’ perspectives?
 Operations: Are your operations synchronized with your partners? Is your battle rhythm in
synch with the supported agency’s battle rhythm?
 Fires: How are you integrating your nonlethal fires?
 Communication Strategy: Are all partners presenting a unified message?

20
  Legal: Does everyone understand their proper authorities?
 Intel: Is information from all mission partners included in the Joint Intelligence Preparation
of the Operational Environment (JIPOE)?
A key requirement for interorganizational coordination within the SOJTF is to establish the initial
staff linkages to external partners. As part of the initial mission analysis, the SOJTF Commander
and staff conducts an evaluation to determine those stakeholders who may influence or affect the
mission. These relationships can become quite complex based upon the level of command group
and staff interaction with partners. This complexity underscores the need for Terms of Reference
(TOR) within the command to delineate roles and responsibilities for engagement and
coordination. Listed below are questions to consider when determining whether to establish a
separate internal coordinating entity within the SOJTF command structure:

 What is the current requirement for interorganizational cooperation?

 Who are we currently coordinating with?
 Are there other organizations we should be coordinating with?
 Is the current coordination sufficient?
 How is it affecting the mission?
 What would be the benefits of improved coordination?
 Are the current coordination processes for Phase 0 operations sufficient and effective when
transitioning and operating in subsequent Phases?
 Are the coordination processes for supporting another organization effective?
 Are the coordination processes when the JFC is the supported command effective?
 Is the solution a new organizational entity or process, or just a refinement of current staff
processes?
Some Joint level insights and best practices which apply to LSCO include but are not limited to:35

 Develop Terms of Reference to define roles and responsibilities across directorates.

 Develop and maintain a close relationship with the POLAD (if assigned) to ensure that
Department of State (DOS) perspectives and diplomatic considerations are represented in
key Battle Rhythm events.
 Ensure external perspectives are included in appropriate staff processes (e.g., OPTs,
assessments, daily Commander Briefs, the Operations Center).
 Develop and maintain relationships with the higher HQ to leverage their interagency
contacts, relationships, and capabilities that can inform your command’s operations.
 Understand your subordinates’ capabilities to coordinate with relevant partners. Some
subordinates may be better able and equipped to directly coordinate with relevant partners,
while others may require your support.
 Develop and maintain relationships with pertinent private or commercial entities that may
impact your mission.
 Send quality liaison personnel to the better help them to understand supporting force
capabilities and challenges.
 Leverage liaison teams to stay informed of interorganizational and interagency
requirements.

21
Always Maintain Operational Balance and Stance
The SOJTF must always maintain what former Secretary of Defense James N. Mattis described as
a ‘boxer’s stance’. This means the SOJTF Commander and his staff must be alert and ready to
respond to events. Besides situational awareness, the other key component of the stance is balance.
That means not committing to any course of action before the time is right. A proper stance aids
speed of decision as well.

One way for the SOJTF to maintain its stance is by adopting an approach common to Army staffs.
A good example would be when a fires brigade is attached to an organization, that unit commander
becomes the fires support coordination officer (FSCOORD) for the gaining unit. This sort of
modularity could easily be adopted by the SOJTF. An example might be where the commander of
an OPCON Civil Affairs brigade becomes the SOJTF J9.

Additionally, SOJTFs cannot afford to neglect the proper use of LNOs. This is particularly true in
an environment where communications between headquarters may become difficult. It is in that
analog space where an LNO is essential.

Appendix A of Joint Publication 3-05, Special Operations provides a guide to organizational considerations for the
Joint Special Operations Task Force. The appendix can serve as a guide for higher or lower echelons as well.

How Do You Develop an Operational Framework?

Developing an operational framework involves intelligence preparation, defining the fight, and
developing an operational approach:

 Intelligence preparation employs both Joint Intelligence Preparation of the Operating

Environment (JIPOE) and Intelligence Preparation of the Battlefield (IPB) to provide input
to an operational approach as well as defining the fight.
 Defining the fight answers the question, “How does SOF define the multi-domain fight
across echelons, and in coordination with joint conventional components?” Defining the
fight is intelligence dependent.
 Developing an operational approach depends upon intelligence. It relies upon a defined
fight. It employs operational design, the Joint Planning Process (JPP), and the SOF
Planning Process to determine SOF’s Role and provide feedback to the JPP and operational
design process.
Intelligence Preparation is Vital to Successful Operations
For the SOJTF, intelligence preparation requires the use of both JIPOE and IPB. JIPOE “is the
continuous process through which the J-2 manages the analysis and development of products that
help the commander and staff understand the complex and interconnected” operating environment
(OE) “the composite of the conditions, circumstances, and influences that affect the employment
of capabilities that bear on the decisions of the commander.”36 IPB is “The analytical
methodologies employed by the Services or joint force component commands to reduce
uncertainties concerning the enemy, environment, time, and terrain.”37

22
JIPOE develops a strategic and operational framework employed by commanders and their staffs
to foster understanding. IPB benefits from the JIPOE framework as it seeks to reduce uncertainty
within the battlespace. Both are necessary
for the SOJTF in LSCO.

When we look at the individual steps of

JIPOE and the IPB processes in Figure 4,
we see that they are essentially identical.
However, the overall focus of each process
is different. IPB is a more detailed process
that uses micro-analytical techniques to
focus on detailing specific threat courses of
action (COA) and developing priority
intelligence requirements (PIR) from those
COAs that drive CDRs decisions.
Figure 4. JIPOE, IPB, or Both?
JIPOE, on the other hand, takes a more
macro-analytic approach to develop a holistic view of the enemy. The primary objective of JIPOE
is to identify critical threat vulnerabilities through a center of gravity analysis. JIPOE still develops
threat COAs and PIRs that drive CDR decisions, however there is more focus on threat
vulnerabilities rather than detailed COAs.

JIPOE and IPB products generally differ in

terms of their relative purpose, focus, and
level of detail. The JIPOE process emphasizes
a holistic approach by analyzing from a
systems and geospatial perspective while
taking into account the force-specific IPB
perspectives of the component commands,
multinational partners, or other organizations.
JIPOE and IPB analyses support each other
while avoiding a duplication of analytic
effort. JP 2-01.3 suggests that JIPOE is the
province of the combatant command, and
each component command uses IPB at their
level to feed JIPOE. Figure 5. The Relationship Between JIPOE and IPB

23
Figure 6 graphically depicts one of the most
crucial aspects of the intelligence apparatus.
The bottom line is that the joint operating
environment is highly complex. As a result
the J2 rarely has the full range of expertise to
truly develop a holistic approach to
intelligence preparation of the OE.

A full staff integration into the JIPOE process

not only creates a better intelligence picture of
the OE, but also serves as the starting point for
crucial inter-staff relationships between the J2
and other staff elements. When done properly,
staff integration into JIPOE sets the Figure 6. Developing a holistic approach to JIPOE requires
foundation upon which the staff understands participation by the entire SOJTF staff.
the intelligence picture and continues to feed
the J2 with information and expertise from their
relative perspectives.

Event Templates (EVENTTEMP) are a

Proven Means to Guide the Best Use of
Collection Assets
These factors cause the commander to consider,
“How can the J2 plan, collect, analyze, and
disseminate timely, relevant, and focused
intelligence?” The EVENTTEMP is the most
effective way. It acts as a checklist of critical
information about the enemy. It is a tool that
enables the J2 to plan, collect, analyze, and
disseminate timely, relevant and focused
intelligence. Figure 7. Meeting the J2 Challenge with EVENTTEMPs

24
The importance of the EVENTTEMP for collection planning cannot be overstated. They are
critical in determining where and what to look for. A properly constructed EVENTTEMP guides
the best use of collection assets. The EVENTTEMP is a model against which threat activity can
be recorded and compared. It represents a sequential projection of events that relate to space and
time on the battlefield and indicates the enemy‘s ability to adopt a particular course of action.
The EVENTTEMP is a guide for collection as well as reconnaissance and surveillance planning.
It suggest answers to the questions where to
look, when to look, and what to look for. It
identifies Named Areas of Interest (NAI),
which are points or areas where enemy activity
or lack of activity confirms or denies enemy
COAs. It is critical that NAI be placed far
enough out that decisions can be made in time
for units to react to specific intelligence
collection at the NAI. It drives intelligence
collection. Without a well prepared Event
Template, collection becomes less focused and
more resource intensive.

While EVENTTEMPs require a lot of work,

Figure 8. The SOF Intelligence Process puts together JIPOE to
they are worth it. They facilitate all other J2 inform multiple Lines of Effort, develops EVENTTEMPs to guide
processes- providing input to the Decision IPB and informs the commander's decisions
Support Matrix (DSM) and to the targeting
process. EVENTTEMPs should be used in all working groups. It can be done on PowerPoint, an
overlay, or as an event matrix. The key is to do it!

Predictive Assessments are Difficult to Execute, but are Necessary

Making predictive assessments that span from tactical actions to strategic intent across multiple
lines of operation that crosscut the tactical, operational, and strategic problem sets across a vast
and highly complex battlespace becomes difficult. One approach to tackling this complexity might
be to first apply the macro approach, or JIPOE, to establish the enemy’s vulnerabilities through a
center of gravity (COG) analysis.

Once the J2 has established these vulnerabilities, they can further refine enemy courses of action
(ECOAs) within each vulnerability by applying the micro approach, or IPB. This creates multiple
ECOAs that we must deal with, but consolidating them into one EVENTTEMP for each
vulnerability will reduce the complexity of the entire problem set into manageable smaller problem
sets.

Each EVENTTEMP contains COAs, NAIs, temporal analysis, and PIRs that assist the decision
making process. This allows the SOJTF staff to make predictive assessments within each problem
set. Remember, the SOJTF staff can still make overarching predictive assessments by feeding these
smaller problem sets back into their JIPOE and COG analysis to determine broader enemy
assessments.

25
Developing an Operational Approach Requires Understanding the OE and Input
from Assessments
An operational approach is a “broad
description of the mission, operational
concepts, tasks, and actions required to
accomplish the mission.”38 Developing an
operational approach is the next step in
planning after understanding the OE. As
noted in Figure 9, activities conducted during
execution are key to an effective operational
approach.

The shared understanding generated as the

result of synchronization of the daily battle
rhythm, staff processes, and staff battle drills
provides context for assessments that Figure 9. Relationship of Planning and Execution Activities
influence the development of the operational during LSCO
approach. Assessments conducted during
execution as well as by the IPB process also influence the operational approach, as well as defining
the fight.

Joint Publication 5-0, Joint Planning describes how SOF should develop an operational
approach.39 This handbook supplements that information. It does not replace it.
From a SOF perspective in LSCO, we must
consider not only SOF Lines of Effort
(LOEs), but the CF Lines of Operation
(LOOs). After all, SOF LOEs are supporting
efforts to CF prosecution of LSCO. To ensure
the synchronization of CF LOOs and
supporting SOF LOEs, the SOJTF
commander and staff must start the process in
the planning phase.

It is vital that the SOJTF integrate effects on

the enemy in time and space. The key to
synchronized execution is interoperability.
SOF LNOs who understand SOF capabilities, Figure 10. An integrated operational approach ensures SOF
capacities, and the SOJTF commander’s effects support the Joint Force Commander's objectives.
intent will serve as an invaluable means of
bridging the challenges of coordinating capability delivery, managing risks, and exploiting
opportunities while retaining functional independence. This assures that SOF effects support the
JFC’s objectives.

26
Defining the Challenges is Key to Understanding the Operational Environment
Figure 11 visually depicts how we define the
fight, or more accurately the mission command Define the Challenges
challenges. In this particular instance, the figure
depicts the most difficult of scenarios –
operating as part of a combined force. Each
command echelon varies in its operational
reach, its tempo, planning horizons, and effects
it can deliver. Each echelon has its own ongoing
mission command challenges. As an
operational level headquarters, the SOJTF
manages five simultaneous mission command
challenges continuously. It is important to
recognize that they are interdependent and
overlap to some degree. Figure 11. Defining the mission command challenges takes place
at multiple echelons in an interdependent set of dynamic
The five principal mission command challenges processes.
are:
 Operational design, applying combat power.
 Staff processes.
 Subordinate units, orders and updates.
 Adjacent units, effects and processes.
 Indigenous and partners.
One implicit aspect not displayed in the graphic is the level of available resources. In theory, higher
echelons have more resources available. This would allow them to task organize these resources
to subordinate echelons to increase their responsiveness to a problem set. Also not depicted above
are the control and coordination measures imposed by the Joint Force.

JFCs establish various control and coordination measures including maneuver control, airspace
coordination, and fire support coordination measures to facilitate effective joint operations. These
measures include boundaries, phase lines, objectives, coordinating altitudes to deconflict air
operations, air defense areas, operational areas, submarine operating patrol areas, no-fire areas,
and others as required.

Boundaries are necessary control measures but can be potential seams not only in understanding
the adversary and local population, but also in coherently working with our partners: the host
nation, local governments, and other agencies. The SOJTF staff must advocate for SOF-friendly
boundaries supported by their analysis of social, physical, and enemy aspects together with
political and other agency boundaries to minimize these seams.

While operational level headquarters such as a JTF or Theater Army may ‘own’ battlespace, the
SOJTF operates across their AORs and even that of a CCMD. The SOJTF supports these players
(e.g., for targeting, intelligence) even though they may not ‘own’ them. Likewise, the SOJTF needs
the support of battlespace owners (e.g., for a quick reaction force [QRF], intelligence, sustainment,
casualty evacuation [CASEVAC]) to accomplish their tasks.40

27
How do You Develop Shared Understanding?
Recognize that Shared Understanding is a Vital Component of Mission Command
Shared understanding is vital to the efficient and effective functioning of the SOJTF staff. As a
key component of mission command, it is essential to the successful conduct of operations.
Developing and maintaining shared understanding requires leadership and the ability to influence
and inspire others. The commander plays a key part by providing vision, guidance, and direction.
Subordinate commanders and staffs need more than information to make decisions that implement
the SOJTF Commander’s intent. They require the knowledge and shared understanding that over
time will develop into wisdom. Without shared understanding, mission command and mission
type orders are not possible.

Joint Publication, 3-0, Joint Operations from which Figure 12 is taken describes how to build
shared understanding.41 Based upon that knowledge, the SOJTF staff can ask several questions to
better define their shared knowledge needs. Amidst all of the distractions of the daily battle rhythm
the following questions must be answered:

 What products must you have to do your

job?
 What products to you need to fight from?
 What products do you use to execute your
plan?
 What is our process to create products and
update them with the proper frequency –
daily, every 12 hours, hourly?
 What is our process to refine those
products?
 Have we organized our Targeting Working
Group (TWG) properly to create products?
 Have we organized our TWG so that we are
in synch with our mission command Figure 12. Commanders and staff require information,
challenges at echelon? knowledge, and shared understanding to produce the
 What do our PIR drive? (e.g., decision wisdom essential to sound decision making.
points).
 We will undoubtedly get bogged down in the targeting cycle, but to what other cycle(s)
must we allot equal emphasis?
There are four key questions which, when answered can help to overcome the organizational and
process challenges to building shared understanding.42

 With whom should we coordinate?

 How are we coordinating with them?
 How is this information getting into our staff processes?
 How are we supporting our partners?

28
Recognize the Relationship Between Information Sharing and Operational Success
Shared understanding between the SOJTF and the JTF is also vital to operational success. The best
rule is to build relationships as early as possible and reinforce them with constant communication.
Understanding the other person’s perspective is key. Mission type orders are vital to conveying
the commander’s intent without unduly encumbering the actions of the staff and of subordinate
commanders.

Shared information is the catalyst for shared understanding. The Information Management (IM)
process facilitates the commander’s decision making by improving the speed and accuracy of
information flow, as well as supporting execution through reliable communications. IM, combined
with knowledge sharing initiatives, contributes to creating conditions for shared understanding
through the proper management of personnel, equipment and facilities, and procedures. Some
examples of the types of information that should be shared between the SOJTF and the JTF include
but are not limited to:

 Combat assessments.
 Situation reports.
 Intelligence summaries and products.
 Tracking intelligence from site exploitation for future targeting using all available assets.
 Post-operation intelligence tracking, collection systems, and battle drills for immediate
input to the targeting cycle.
 Operational summaries and products.
 Target lists. These must be continuously updated and disseminated.
 Follow-on actions and future operations between CF and SOF. LNOs must closely monitor
the future operations section. This allows the LNO to immediately identify any branches or
sequels to the executed operations orders (OPORD) or concepts of operations (CONOP).
 After action review products to extract observations, insights and lessons learned. 43
Always Consider Interorganizational Factors
Shared understanding must extend beyond commanders and subordinates to interorganizational
cooperation.44 The commander’s decision cycle must include the incorporation of mission
partners’ viewpoints. This will facilitate an appreciation of different perspectives, development of
potential solutions, and achievement of unity of effort.45

Some key challenges to shared understanding in LSCO when seen in an interorganizational context
include, but are not limited to:

 Developing trust, relationships, and unity of effort across a diverse group of organizations
with differing cultures, policies, priorities, authorities, capabilities, and procedures.
 Limited presence of engaged USG agency partners at the theater and operational level.
 Information sharing with mission partners.
 Lack of HQs organization and processes that promote coordination and collaboration with
partners.
 Interorganizational cooperation is essential to achieving unified action.
Some insights from Joint Lessons Learned which can apply to LSCO include:46

29
  Develop HQ structures, processes, and procedures to facilitate inclusion and unity of effort.
 A comprehensive approach expands a military-centric perspective to a whole of
government approach that is integrated with external partners and stakeholders.
 Commander’s guidance and intent must evolve to adapt to changing conditions.
 Focus collective efforts on common goals to gain unity of effort.
 Strong personal relationships and defined roles, responsibilities, coordination mechanisms,
and processes with interorganizational mission partners will promote unity of effort, and
overcome organizational and cultural differences.
 Developing a shared understanding of the operational environment requires early
interaction with mission partners in supporting a comprehensive approach.
 Understand mission partners’ perspectives, goals, authorities, capabilities, capacities, and
limitations.
 Extend the mission command principle of inclusion to mission partners. Build personal
relationships and trust with mission partners through transparency, appropriate information
sharing, and access to capabilities.
 Include mission partners in design, planning, execution, and assessment. External
stakeholders have unique perspectives and expertise that build a broader assessment and
understanding of the operational environment.
Interagency coordination, as a subset of interorganizational cooperation, is defined as coordinating
across U.S. federal government agencies.47 The interagency process continues to be the most
efficient and effective means for the U.S. Government to leverage resources for securing
America’s interests abroad. While DOD is in the lead within an area of conflict, other government
agencies will most likely be in the lead in areas outside the conflict area. Since the SOJTF is an
operational level headquarters, it will likely control activities outside the immediate area of conflict
as well.

Some insights on building shared understanding from joint operations through interagency
coordination include:48

 Develop and nurture relationships with interagency partners. Be inclusive.

 Understand the interagency process for both domestic and foreign operations.
 Leverage the POLAD as an advisor; they are not liaison officers from DOS.
 Leverage key interagency coordination groups to achieve unity of effort.
 Understand the key interagency partners in cyberspace operations. Leverage their expertise
and capabilities for cyberspace situational awareness, timely threat identification, global
and regional analysis and assessment, the development of tailored threat responses, or the
execution of branch plans that account for stakeholder equities.

How do the Operations Process and Assessment Interact?

The Start Point is the Commander’s Visualization
How does the SOJTF Commander visualize his mission and the employment of SOF forces? There
are a number of means to do so but first the commander must have:

 Developed an understanding of the operational environment.

30
  Settled on an operational approach.
 Defined the fight.
At that point, the commander and staff should have developed PIRs, friendly force information
requirements (FFIRs), and a DSM. A PIR is an intelligence requirement that the commander and
staff need to understand the threat and other aspects of the operational environment (JP 2-01). An
FFIR is information the commander and staff need to understand the status of friendly force and
supporting capabilities (JP 3-0). PIRs will drive decision points while FFIRs support decision
points. The DSM provides a convenient visualization tool to integrate both.

Some insights for the commander on operational design and assessment from joint operations
include:49

 Operational design helps the JFC and staff understand the environment, frame the problem,
develop an operational approach to accomplish the mission, and inform targeting efforts.
 Gain the support of the broader Intelligence Community and coalition partners in JIPOE.
 COG analysis and target system analysis in order to understand the adversary, identify
 COGs, critical capabilities, requirements, and vulnerabilities.
 Prioritize target systems analysis and target development efforts.
 Inform and be informed by the broader U.S., interorganizational, and partner nation
approaches to enrich targeting and achieve desired outcomes.
 Be prepared to spend time gaining authorities and permissions for information related
capabilities (IRC).
 Emphasize integration of kinetic and non-kinetic fires to achieve desired effects.
 Spend time thinking through how the full range of non-kinetic fires can be employed more
proactively to shape the environment as opposed to reactive responses to events (e.g.,
consequence management).
 Provide top-down guidance to focus and empower the targeting enterprise. Guidance
includes: framing of the problem, visualization of the adversary’s COGs and
vulnerabilities, intent for fires as part of the operational approach, and scope of desired
lethal and nonlethal effects on associated target systems and objectives. A target’s
importance derives from its potential contribution to achieving a commander’s objective
or supporting task.
 Empower and support the enterprise and subordinates in performing bottom-up target
development and fires synchronization to gain speed, agility, and increased precision.

31
The Operations Process Depends on a Number of Other Processes
There are many staff processes, working
groups, etc., that the SOJTF will conduct
during execution, but the operations process,
the intelligence process, and the joint
targeting cycle will likely dominate the
SOJTF staff’s time and battle rhythm. These
cycles are absolutely interdependent. In
theory, the operations cycle should drive the
intelligence cycle, while both feed the joint
targeting cycle. While the rigor of the
targeting cycle tends to draw attention and
effort, it is a means to an end state. It is
important to remember that supporting the
commander’s decision points is just as critical Figure 13. There are three main cycles that dominate the battle
as generating kinetic and non-kinetic effects. rhythm during an operation - operations, intelligence, and joint
Above all, our intelligence process must feed targeting.
both processes efficiently.

The Joint Targeting cycle noted in Figure 13 consists of six phases:

Phase 1—Commander’s Objectives, Targeting Guidance, and Intent. The JFC develops and issues
targeting guidance. This guidance includes targeting priorities, time-sensitive targets (TSTs)
criteria and procedures, component critical targets, target acquisition and identification criteria,
authorized actions against targets, and any delegated responsibilities for target validation and joint
integrated prioritized target list (JIPTL) approval.

Phase 2—Target Development and Prioritization. Target development is the systematic

examination of potential target systems and their components, individual targets, and even
elements of targets to determine the necessary type and duration of the action that must be exerted
on each target to create an effect that is consistent with the commander’s specific objectives.

Phase 3—Capabilities Analysis. This phase of the joint targeting cycle involves evaluating all
available capabilities against targets’ critical elements to determine the appropriate options
available to the component commander for target engagement and developing the best possible
solution.

Phase 4—Commander’s Decision and Force Assignment. The force assignment process at the
component level integrates previous phases of joint targeting and fuses capabilities analysis with
available forces, sensors, and weapons systems.

Phase 5—Mission Planning and Force Execution. Upon receipt of component tasking orders,
detailed unit-level planning must be performed for the execution of operations. The joint targeting
process supports this planning by providing component planners with direct access to detailed
information on the targets, supported by the nominating component’s analytical reasoning that
linked the target with the desired effect (phase 2).

32
Phase 6—Combat Assessment. The combat assessment phase is a continuous process that assesses
the effectiveness of the activities that occurred during the first five phases of the joint targeting
cycle.50

Since LSCO as described by this handbook is executed primarily on land by land forces, a short
discussion of the Army’s decide, detect, deliver, and assess (D3A) targeting methodology is
helpful. “Targeting provides an effective method for matching the friendly force capabilities
against enemy targets. An essential part of targeting is the identification of potential fratricide
situations and the necessary coordination measures to positively manage and control the attack of
targets. Its functions complement the planning, preparing, executing, and assessing stages of the
operations process.”51 The following paragraphs provide a brief description of the D3A process.

Decide: Decide is the first function in targeting and occurs during the planning portion of the
operation process. The “decide” function continues throughout the operation. The staff develops
“decide” information to address:

 What targets should be acquired and engaged?

 When and where are the targets likely to be found?
 How do the rules of engagement impact target selections?
 How long will the target remain once acquired?
 Who or what can locate and track the targets?
 What accuracy of target location will be required to engage the target?
 What are the priorities for reconnaissance, surveillance, target acquisition, sensor
allocation, and employment?
 What intelligence requirements are essential to the targeting effort and how and by when
must the information be collected, processed, and disseminated?
 When, where, how, and in what priority should the targets be engaged?
 What are the measures of performance (MOP) and measures of effectiveness (MOE) that
determine whether the target has been successfully engaged and whether the Commander’s
desired effects have been generated by doing so?
 Who or what can engage high priority targets (HPT) for delivery to generate desired effects
based on the Commander’s end state and objectives?
 What or who will obtain information for determining the success or failure of each
engagement?
 Who must receive and process that information, how rapidly, and in what format?
 Who has the decision making authority to determine success or failure, and how rapidly
must the decision be made and disseminated?
 What actions will be required if an engagement is unsuccessful, and who has the authority
to direct those actions?
Detect: Detect is the second function in targeting and occurs primarily during the prepare portion
of the operations process. A key resource for fires planning and targeting is the intelligence
generated through reconnaissance and surveillance activities to answer the targeting information
requirements. Requirements for target detection and action are expressed as PIR and information
requirements. Their priority depends on the importance of the target to the friendly course of action
and tracking requirements. PIR and information requirements that support detection of HPTs are

33
incorporated into the overall unit information collection plan. NAIs and Target Areas of Interest
(TAIs) are focal points particularly for this effort and are integrated into the information collection
plan. The detect function continues during the execution of the OPORD. Target acquisition assets
gather information and report their findings back to their controlling headquarters, which in turn
pass pertinent information to the tasking agency.

The target priorities developed in the decide function are used to expedite the processing of targets.
Situations arise where the attack, upon location and identification, of a target is either impossible
(for example out of range) or undesirable (outside of but moving toward an advantageous location
for the attack). Critical targets that the Joint Force cannot, or chooses not to, attack in accordance
with the attack guidance must be tracked to ensure they are not lost.

Tracking suspected targets enables the execution of the attack guidance based on target selection
standards. Tracking suspected targets also keeps them in view while they are validated. Planners
and executers must keep in mind that assets used for target tracking may be unavailable for target
acquisition. As targets are developed, appropriate weapon systems are tasked in accordance with
the attack guidance and location requirements of the system.

Deliver: Deliver is the third function in targeting and occurs primarily during the execution stage
of the operations process. The purpose is to engage HPTs to achieve the desired effects. The
selection of a weapon system or a combination of weapons systems leads to a technical solution
for the selected weapon.52

Assess: Assess is the fourth function of targeting and occurs throughout the operations process.
The Commander and staff assess the results of mission execution. Joint Publication 5-0, Joint
Planning states that, “Assessment is a continuous process that measures the overall effectiveness
of employing joint force capabilities during military operations. Theater-strategic and operational-
level assessments provide a methodology for joint commands and Services to adjust planning and
execution to be effective, match the dynamic operational environment, and better identify their
risks and opportunities.”53

The following are key considerations in assessment:

 Assess the results of mission execution:
o If assessment reveals that the commander’s guidance has not been met, reattack
recommendations should be nominated until the targeting objectives are achieved.
o This feedback may result in changes to original decisions made during the target
selection. These changes may influence the continued execution of the plan.
 Continuous assessment: The assessment process is continuous and directly tied to the
commander’s decisions throughout planning, preparation, and execution of operations.
o Staffs help the commander by monitoring the numerous aspects that can influence the
outcome of operations and provide the commander timely information needed for
decisions.
o Planning for the assessment process helps staffs by identifying key aspects of the
operation that the commander is interested in closely monitoring and where the
commander wants to make decisions.

34
 o Assessments require an asset(s) to be tasked with associated information collection
requirements that provide observable indicators.
 Assess at all levels: Assessment occurs at all levels and across the spectrum of conflict.
o Even in operations that do not include combat, assessment of progress is just as
important and can be more complex than traditional combat assessment.
o As a rule, the level at which a specific operation, task, or action is directed should be
the level at which such activity is assessed.
The validity and usefulness of
assessments rests upon the development
of observable or collectable MOE and
MOP. A MOE is “An indicator used to
measure a current system state, with
change indicated by comparing multiple
observations over time.”54 A MOP is, “An
indicator used to measure a friendly
action that is tied to measuring task
accomplishment.”55 These can serve as
indicators to identify risks and
opportunities.

MOE answer the question are we doing Figure 14. Assessments provide efficient feedback in the form of
MOEs and MOPs that identify both risks and opportunities across
the right things? They assess changes in multiple planning horizons.
behavior, capability, or the operational
environment. They are tied to the attainment of an end state, achievement of objectives, or creation
of effects. MOP answer the question are we doing things right? These measure task performance
or accomplishment. It is quantitative but can be applied using qualitative attributes.

Some questions which may assist in developing MOE and MOP for SOF mission sets are:

 J5, what kinds of outputs do you need from the assessments process to continue with planning? Within what
timeframe would those assessments be more valuable to you?
 J35, what outputs of the assessments process might you need to further develop the plan from the J5 into
fragmentary orders (FRAGO)? Within what timeframe would those assessments be most valuable to you?
 Fires, what assessments do you need in support of your targeting cycle? Within what timeframe would those
assessments be most valuable to you?

As noted in the operational framework section, making predictive assessments that span from
tactical actions to strategic intent across multiple lines of operation which span the tactical,
operational, and strategic problem sets across a vast and highly complex battlespace is difficult.
However, dividing the larger problems into smaller interrelated problem sets will allow the SOJTF
staff a better capability to make predictive assessments. Many of these problem sets which can be
reduced to EVENTTEMPS could conceivably be analyzed and processed using artificial
intelligence (AI). As the Services explore the use of AI to aid decision making, the SOJTF
commander and staff must follow suit.

35
Planning Horizons Scope the Operational Approach
How SOF units organize planning across horizons during LSCO may or may not be the same as
conventional formations. The SOJTF commander and staff must understand both CF and SOF
planning horizons and define these horizons for the SOJTF. This will help to organize the staff to
feed assessments back into staff process at the right juncture.
Taken from left to right are long range, mid-
range, and short range planning. Depending on
the nature of the operation, the span of these
time horizons may shift (Figure 15). During
LSCO, current operations normally looks out a
maximum of 120 hours and is the province of
the J33. Future operations are handled by the
J35 and may extend out to several weeks,
depending on the operation. The J5 is
responsible for long range planning. There is
an art to managing the transition between the
time horizons. It requires that the staff remain
Figure 15. Planning horizons are flexible and depend upon the
alert to changes in the operating environment situation.
and the operational tempo.

Some useful questions to define planning horizons are:

 Is this something that impacts the plan 5 days from now?
 Or the FRAGO for tomorrow?
 Or for the targeting mission tonight?
 Or all of the above?
Central to managing the hand-offs between planning horizons during LSCO is the assessment
process. This makes it of primary importance that the SOJTF staff establish who specifically will
be in charge of the assessments process. Regardless of who is placed in charge, they must have
relatively unfettered access to the operational and intelligence data from across the SOJTF staff.

SOJTF Operations Take Place Throughout the Operational Area

The following paragraphs use operations within a Corps area as an example. However, their
principles could easily apply to a Theater or Field Army. The point is that a SOJTF is an
operational level headquarters which executes special operations throughout the operational area.
Some of the graphics are taken from recent Warfighter Exercises and are meant as illustrative
examples. They provide food for thought, not a prescriptive solution.

During Phases 0 – III SOF Operations can take place in the Corps area of operations. However,
the SOJTF also has C2 of forces beyond the Corps forward boundary that operate in the Corps
commander’s areas of influence and interest. The groundwork for Phase III operations was laid

36
down during Phases 0 – II, where SOF
shaped the environment. Figure 16 notes
some of those shaping operations. It also
shows some of the trends observed during
Warfighter Exercises which would affect
LSCO, as well as a number of points the
commander should take into account during
planning and execution.

It is important to note that the SOJTF will

most likely exercise C2 of forces well
outside the Corps fight during Phase III.
Therefore, it is important that the SOJTF
avoid becoming viewed by the Corps Figure 16. The SOJTF exercises C2 of SOF operating within the
commander and staff as just another Corps area as well as in areas well outside its areas of
Division-level headquarters. The SOJTF is operations, influence, or interest.
an operational level component command
which supports the Corps fight but is not subsumed by it. This will require that the SOJTF
commander, staff, and LNOs avoid overcommitting SOF to any LOE.
A particularly thorny problem confronting
the SOJTF commander and staff when
working with the Land Component
Commander of the Joint Force is that the
Army cut all long range reconnaissance and
surveillance unit (LRSU) force structure
during a period of declining resources. This
leaves a deficit in organizations designed
for human based ground ISR at the strategic
and operational levels. The unspoken
solution is to employ CF infantry squads or
SOF to fill the gap. While Special
Reconnaissance (SR) is a core activity, SR
is not the same as a LRSU operation.
Figure 17. Both CF and SOF have roles to play in consolidating
gains. The SOJTF can be the catalyst for gaining the support of
Consolidation of gains is also important to the indigenous population.
the Corps Commander. All elements of the
Joint Force will require time to reconstitute, retrain, and re-equip. Joint Force elements with IRC
will be particularly critical in reestablishing a contact layer congruent with U.S. interests. The
SOJTF has the means to coordinate SOF and CF Civil Affairs (CA) and PSYOP units to assist in
gaining the support of the indigenous population. This will involve integrated messaging from the
strategic to the tactical level as well as integrating Interagency and Host Nation (HN) relief and
assistance efforts. SOF units such as Special Forces (SF), CA, and PSYOP and CF units such as
the Security Force Assistance Brigades (SFAB) will play a vital role in setting the conditions for
a return to competition because of their ability to work with indigenous populations, allies, and
partners.

37
Appendices A and B of Joint Publication 3-05, Special Operations provide a guide to organizational considerations
for the Joint Special Operations Task Force. The appendix can also serve as a guide for higher or lower echelons as
well. Additionally, JP 3-33, Joint Task Force Headquarters contains chapters that focus on each of the J-Staff
directorates and special staff, as well as useful checklists.

Coordinating Deep Operations

Recent wargaming experience has indicated the efficacy of establishing a Deep Operations Cell
within the SOJTF HQ.56 Specifically, the DOC seeks to improve the SOJTF’s ability to converge,
organize, and synchronize cross-domain effects in pursuit of physical, virtual, and cognitive
objectives.

Convergence. To plan, direct, monitor, and assess physical and information power capabilities and
operations in the DOC, the SOJTF brings together SOF subject matter experts (SME) as well as
selected J-Code and unit representatives. For the informational aspect of operations, the DOC
incorporates assigned PSYOP and CA forces as well as planners representing Cyberspace,
MILDEC, Public Affairs (PA), Fires, OPSEC, Space and Intelligence. The DOC also incorporates
SOF physical maneuver (ARSOF, NAVSOF, MARSOC, AFSOC operators) and select
interagency partners to blend physical power capabilities into the total scheme of operations.

Organization. The DOC contains planners and analysts that represent the entire SOF capability
portfolio to include information and physical power capabilities and forces. The DOC organizes
these planners into OPTs for each subordinate unit to conduct information planning. Each OPT
consists of information, SOF maneuver, intelligence, fires, and interagency representatives. They
provide multi-functional IO input into subordinate force plans. This input incorporates cognitive,
virtual, and physical objectives into each of their respective forces’ operations.

Synchronization. The DOC synchronizes information and physical effects into SOJTF operations
through integrated planning, targeting, and assessments:

 Integrated Deliberate and Dynamic Planning. This process employs the converged SMEs
to ensure that physical and information plans and operations are mutually supporting, and
that each plan contains cognitive, virtual, and physical objectives.
 Targeting. The DOC supports SOJTF and subordinate operations and intelligence
functions by developing targeting plans for physical targets and networks, cognitive
mapping and population sentiment analysis, virtual infrastructure mapping, cyber nodal
targeting, as well as conducting relative combat power analysis for friendly and adversary
information and physical power capabilities.
 Assessments. The DOC develops and executes comprehensive assessment plans that gauge
the effectiveness of all operations. This entails measuring the success of each operation
based on its accomplishment of pre-determined physical, virtual, and cognitive measures
of effectiveness or measures of performance. The DOC also manages an overarching
assessment plan that determines SOJTF success in achieving directed operational
objectives based on the successes and contributions of all subordinate forces across all
domains.
Potential Deep Operations Cell Tasks:

38
  Support an integrated campaign design that optimizes information and physical power.
 Develop an information narrative that nests within higher level objectives.
 Incorporate the information narrative in all operations by assigning cognitive objectives to
each plan and operation.
 Tailor operational plans to leverage integrated CF and SOF capabilities for deep operations.
 Conduct cognitive, virtual, and physical network mapping and analysis.
 Develop cognitive, virtual, and physical objectives for all SOJTF plans and operations.
 Integrate dynamic and deliberate cognitive, virtual, and physical targeting.
 Conduct comprehensive effects assessments for cognitive, virtual, and physical objectives
for all operations.
 Develop integrated plans to consolidate gains.

How Does the Joint Effects Targeting Process Integrate With the Joint
Planning Process?
Targeting is an Extension of Planning
Targeting is an extension of the joint planning process. It integrates and synchronizes joint fires in
both the future and the current operations time horizon. Joint fires accomplish more than physical
destruction; kinetic and non-kinetic fires also influence behavior and actions, as discussed in
greater detail below. In short, they generate effects desired by the JFC to accomplish the Joint
Force’s goals.

There are a number of challenges to consider in the joint effects targeting process. They include
but are not limited to:57

 Understanding the adversary to identify COGs, vulnerabilities, and capabilities.

 Gaining commander visualization of desired effects upfront to drive targeting.
 Viewing targets as entities and objects with the objectives of influencing behavior or
actions and physical destruction.
 Gaining authorities and permissions for non-kinetic actions (in addition to kinetic fires).
 Applying all capabilities across all domains. A single domain focus or sole reliance on
kinetic fires does not bring together the full range of options to place the adversary at a
disadvantage and can increase risk, escalate the conflict, and accelerate expenditure of
critical resources.
 Codifying responsibilities for each step of the joint targeting cycle within a construct of
top-down guidance and bottom-up refinement.
Planning has a conceptual component and a detailed component (ATP 5-0.1). The Army Design
Methodology (ADM) is the conceptual planning element that develops the mission statement,
commander’s intent, and broad objectives with an approach for achieving them. The operational
approach begins with LOO for offensive and defensive operations, or LOE for employment during
Unified Land Operations (ULO). The environmental frame identifies the current state conditions
of the operational environment and desired future state conditions. Problem framing recognizes
distinguishable obstacles inhibiting progress towards the desired end state. The operational

39
approach defines broad actions through a logical progression of interconnected objectives towards
resolving the problem frame. The Military Decision Making Process (MDMP) addresses the
detailed planning component.

Detailed planning develops the specificity related to execution based on the operational approach
established in the conceptual planning component. Detailed planning synchronizes tasks and
develops the execution matrix for operations. Fire support planning is a shared collaboration
between the Targeting Officer (TO) in G5 Plans and the Lethal Effects Cell. The daily FRAGO is
published through G3 Chief of Operations (CHOPS) for subordinate units such as the Combined
Joint Special Operations Task Forces (CJSOTF) to execute.

Some insights from the joint community applicable to the effects targeting process include: 58

 Engage the broader intelligence community to understand the environment and adversary.
 Emphasize JIPOE, COG analysis, target systems analysis, and collection management
activities to inform target development, execution, and assessment.
 Nest joint targeting as part of a diplomatic, informational, military, economic, financial,
intelligence, and law enforcement (DIMEFIL) approach.
 Provide visualization of desired effects informed by design and planning to guide targeting
efforts.
 Gain authorities and permissions for IRC to broaden options.
 Use the joint targeting cycle to gain alignment and synergy across the targeting enterprise.
 Apply mission command to targeting. Emphasize top-down guidance and bottom-up
development.
 Focus top-down guidance on command objectives, priorities, requirements, and target
systems that support the operational approach and plan.
 Gain the benefits of bottom-up target development and fires synchronization to increase
speed, agility, and precision of fires.
 Access capabilities of all fires regardless of ownership to achieve effects.
 Use lethal and nonlethal terms to describe desired effects. Use kinetic and non-kinetic
terms to characterize joint fires to improve integration.
 Codify roles and responsibilities internal and external to the HQ, and tailor HQ structure
and processes to leverage capacity and increase effectiveness.
Deliberate Targeting is the component that bridges the gap between conceptual and detailed
planning (see Figure 18 and 19). The purpose of targeting is to both integrate and synchronize
capabilities and effects from conceptual plans to detailed plans during MDMP, and prior to COA
development to enable task synchronization. In addition, targeting is achieved once the
application of effects against problem sets (targets) is successfully “harmonized” in time and
space. This occurs during COA development and is coordinated across each of the staff agencies.
The ends, ways, and means are the elements of operational art that are visualized and described
during conceptual planning.

40
 Figure 18. Bridging the gap between conceptual and detailed planning using a conventional force
targeting cycle example.
Targeting guidance can be interpreted from the desired end state. Targeting construes lethal and
nonlethal effects from the sequencing of objectives, as determined during ADM. Targeting ensures
the appropriate internal and external capabilities are identified during conceptual planning, and
that these capabilities are the appropriate methods towards achievement of desired effects. Target
System Analysis (TSA), which will be discussed later in this document, occurs during conceptual
planning. TSA identifies the target system’s critical element or COG that is required both for
desired effects and for actionable targeting.

Figure 19. Conceptual, functional, and detailed planning synchronize effects to target enemy
assets in the most efficient and effective manner.

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SOF Employs an Integrated and Joint Approach to Targeting
An integrated and joint approach gets after what SOF brings to the joint targeting process. SOF
employs the find, fix, finish, exploit, analyze, and disseminate (F3EAD) process to support both
the joint deliberate and dynamic targeting processes. The SOJTF uses this process to engage
selected targets or activities to support the JFCs objectives.
F3EAD incorporates the same fundamentals of the joint
targeting cycle and facilitates synchronizing maneuvers,
intelligence, and fire support.59 The JTF executes dynamic
targeting with steps of find, fix, track, target, engage, and
combat assessment (F2T2EA) (see Figure 20). 60 Both processes
can apply to all targets whether developed during deliberate or
dynamic targeting. Targets of opportunity have been the
traditional focus of dynamic targeting because decisions on
whether and how to engage must be made quickly. The SOJTF
may accomplish the steps of dynamic targeting iteratively and
in parallel. The find, fix, track, and assess steps tend to be ISR
intensive, while the target and engage steps are typically labor,
force, and decision making intensive.61 Figure 20. The dynamic targeting cycle provides
a means for the JFC to address targets of
opportunity (JP 3-60)
Joint Force Air Component Commander (JFACC)
Considerations and the Air Tasking Order (ATO) Process Constrain SOJTF
Operations
In the target rich environment of LSCO, the ATO process imposes disciplined use of a finite
asset. However, that means that most sorties flown will
have been planned four days prior, as illustrated in Figure
21. This constrains SOF’s agility, dependent as they are on
air sorties for infiltration, exfiltration, fire support, and
sustainment.

The JFACC employs a combination of deliberate and

dynamic targeting to support Joint Force operations. The
JFACC integrates targeting into the ongoing battle rhythm
using the six-part joint air tasking cycle. The parts include:
determining objectives, effects and guidance; target
development; weaponeering and allocation; ATO
production and dissemination; execution planning and
force execution; and assessment. Of the six parts, the least
flexible is ATO production and dissemination. The ATO Figure 21. ATO Generation is the critical path in
determines how many sorties will be flown, by what the joint air tasking cycle.
aircraft, and for what purpose.

The SOJTF Integrates Non-Lethal and Lethal Effects From the Start of Planning
Always consider non-lethal effects from the beginning of the targeting process, rather than trying
to tack them on at the end. SOF planning will synchronize both lethal and non-lethal effects in the
physical, virtual, and cognitive realms. Planning and conducting highly sensitive and frequently
extended duration missions, SOF will operate forward of conventional and coalition force partners,

42
often in areas where local adversaries may significantly reduce U.S. technological advantages.
This will include a full suite of land, water, and aerial robotic and autonomous systems (RAS)
capable of generating the desired effects. The table below lists a sample of SOF effects that can
support the JTF.

Example SOF effects that support the JTF

Physical (Employment of Forces) • Destroy critical components of anti-access area denial systems
• Sabotage of critical infrastructure in deep areas
• Illuminate HPTL and networks with SOF / Indigenous Intel
Capabilities
• Defeat / degrade / disrupt enemy networks and SOF
• Enhanced / layered population resource control

Virtual (Employment of Electrons) • Inject malicious code into enemy networks in deep areas
• Virtual mapping of networks using unilateral or indigenous cyberspace
capabilities
• Extract targeting data from enemy networks / Internet of Things (IoT)
in deep areas

Cognitive (Employment of Ideas) • Attacking the enemy’s narrative

• Influence enemy decision making
• Reduce support for the enemy among key populations
• Reduce enemy will to fight
• Enhance layered populace and resources control and consolidation of
gains through civil affairs operations
• Increase support for friendly operations and objectives
Table 2. SOF synchronizes effects in the physical, virtual, and cognitive realms across domains to achieve the JFC’s intent.

Non-Lethal and Lethal Effects Employ the Same Targeting Process

LOO and LOE are identified within a SOJTF’s Area of Operations (AO) which focuses the
priorities of the non-lethal efforts. The targeting process remains the same and concurrent for
both lethal and non-lethal effects. This enables the targeting team to integrate a broader scope of
capabilities to include CAO, MISO, and Cyberspace operations. Non-lethal effects co-opt, inform,
organize, and influence the enemy and the population to set conditions for current and future
operations.

Time is a vital consideration in planning, sequencing, and integrating physical, virtual, and
cognitive actions throughout the operational area. Planning must consider that physical, virtual,
and cognitive effects occur on different time scales. Physical effects have the advantage of being
both familiar and observable. Virtual effects can be either measurable or observable but their time
scale is outside that of normal human experience. Cognitive effects are the most difficult to assess,
as they occur within the human mind. An analogy for sequencing physical, virtual, and cognitive
actions for maximum effect is the fires concept of Time-on-Target (TOT) first developed by the
U.S. Army in World War II, where fires from physically dispersed fires assets were massed with
devastating effect.

Physical effects have time horizons that range from seconds to hours, with the exception of directed
energy weapons, but it’s their convergence with the virtual to achieve both physical and cognitive
effects that makes the temporal aspects of physical activities and operations a more critical

43
consideration.62 While the NDS envisions the contact layer as a competitive space, it does not rule
out kinetic engagements. Virtual effects occur at or near the speed of light.63 This could make a
difference when operating at machine speed across continental distances.

Cognitive effects are the most difficult to place within a time horizon, as they occur within the
human mind, and are often achieved by virtue of a combination of physical and virtual actions by
the U.S. or our partners. However, a good rule of thumb for traditional influence operations (e.g.,
radio, leaflet) is that it will take more time – on the order of months or years – to change deeply
held beliefs or to build trust. However, technologies such as enhanced reality, social media, and
smart devices have given us direct access to individuals and populations from the sanctuary of
the Continental United States (CONUS). These technologies provide great potential to both
increase SOF’s abilities for standoff into deep fires areas, and enhance the speed of desired
cognitive change.

Non-Lethal Targeting Requires Non-Lethal Assessment Metrics

Non-lethal effects do not directly seek the physical destruction of the intended target but still seek
to degrade, disrupt, delay, or influence the performance or function of an enemy. Therefore, the
SOJTF can gauge non-lethal effects metrics by means of the intelligence analysis process. The
sources of such intelligence may include social media, prisoner interrogation, or assessments from
friendly forces in contact. Some non-lethal assessment metrics could include:

 Data from social media that the targeted population no longer supports or is beginning to
doubt the enemy’s narrative.
 Increased cooperation of key populations in a manner that favor friendly objectives.
 Increase in enemy combatant surrender rates.
 Increased compliance by the population with population resource control measures.
 Increased support for friendly operations and objectives in the local and international
media.
 Decreased cyber electromagnetic activity (CEMA) directed against friendly forces.
Target System Assessment: This is a broad assessment of the overall impact and effectiveness
against an entire target system capability, e.g., enemy air defense capability or indirect fire
capability of a regimental sized enemy unit. A target system assessment may also look at
subdivisions of the system compared to the commander’s stated operational objectives. COG and
nodal analysis of insurgent networks or criminal organizations are one example of this type of
assessment.

Lethal Assessment Metrics Have a Well Established Framework – Battle Damage

Assessment (BDA)
BDA are the primary type of assessments used to measure effectiveness against enemy forces.
These assessments work effectively against targets categorized as systems, units, networks, or
formations. They also are effective for infrastructure targets that serve a function. The three metrics
for assessing battle damage on enemy forces are:

44
  Physical Damage Assessment: This assessment estimates the quantitative extent of
physical damage through munitions blast, fragmentation, and fire damage effects to a
target. This can be based on observed or interpreted damage.
 Functional Damage Assessment: This assessment estimates the effect of attack(s) on the
target to perform its intended mission compared to the operational objective established
against the target. This assessment is inferred based on all-source intelligence and includes
an estimate of the time needed to replace the target function. A functional damage
assessment is a temporary assessment used for specific missions. The following
descriptions are suited for describing assessments made on enemy systems, units, or
formations:
o Catastrophic Kill (K-Kill): Described as damage that is non-repairable or beyond
economic feasibility to repair.
o Firepower Kill (F-Kill): Damage or effects that render the target immediately incapable
of firing its primary armament and duration is indeterminate.
o Functional Kill: Damage that produces loss of a facility or any key component or
combination of components in a target that prevents it from performing its designated
function or functions.
o Incapacitation Kill: Damage sufficient to prevent personnel from providing the critical
functions required by their assigned job before a given time has elapsed.
o Mission Kill (MSN Kill): Measures the degree of target damage that prevents the target
from completing its designated mission, however not to the extent of a K-Kill.
o Mobility Kill (M-Kill): Damage sufficient to render a vehicle or ship incapable of
executing controlled movement and damage is not repairable by the crew on the
battlefield.
o Passenger / Personnel Kill (P-Kill): Damage sufficient to cause the incapacitation of
the transported personnel aboard a combat vehicle, crew members excluded.
o Structural Kill: Occurs when sufficient structural damage, more than 50% of useable
floor space, has been inflicted to a building or hardened structure to make it unusable.

Does the SOJTF Need an Information Warfare Task Force (IWTF)?

The IWTF Addresses Challenges in the Information Environment
The Information Warfare Task Force (IWTF) is a concept under development. It does not conflict
with the joint doctrinal concept of Information Operations (IO). Rather, it couches IO in
warfighting language as a means to address the challenges outlined in the national security
documents. It also fills a gap not addressed by joint doctrine. Joint Publication 3-13, Information
Operations (JP 3-13) addresses the formation and functions of an IO cell within a joint staff.
However, the IWTF envisions the employment of units with IRC as a Task Force under a
headquarters to support the SOJTF.

IO are “The integrated employment, during military operations, of information-related capabilities

in concert with other lines of operation to influence, disrupt, corrupt, or usurp the decision-making
of adversaries and potential adversaries while protecting our own.”64 IO is a non-lethal Fires
capability and, like traditional fires, supports maneuver operations. Maneuver seeks to gain a
position of advantage over an adversary through movement, tactics, and physical offensive and
defensive operations. Traditional and IO fires support that effort by delivering precision and mass

45
effects against targets. Like traditional Fires, IO should be integrated at the beginning stages of
planning through execution, exploitation, and assessment. IO are most effective when planned,
rehearsed, employed, and assessed by phase and at echelon.

The purpose of U.S. Military Information Warfare (IW) is to evoke a behavior required to
achieve U.S. objectives. In many situations, the establishment of an IWTF could support the
SOJTF Commander, and subsequently, the JFC, by synchronizing effects of disparate capabilities
(e.g., PSYOP, military deception (MILDEC), operations security (OPSEC), CA, Space Support,
Special Technical Operations (STO), and Social Media Operations) to achieve operational and
strategic objectives. If the SOJTF forms an IWTF, the IWTF Commander would relate to the
SOJTF Commander and staff in the same way as a fires brigade commander who becomes the
FSCOORD for a CF commander and staff.

When the goal is to influence, information – even information coated in emotion – may not be
enough. Leveraging emergent technologies to converge information, indicators, and experience
in concert with operations, commanders will be able to maintain freedom of action through their
influence upon relevant audiences. This will enable them to achieve a cognitive window of
advantage by influencing friendly and neutral populations to enable U.S. and partner operations
while influencing enemy formations and populations to reduce their will to fight or increase their
ability to cooperate.

The Key to IWTF Success is Integration at All Levels

The IWTF can integrate staff members and liaisons from each of the IRCs (e.g., computer network
attack, computer network defense, MISO, and public affairs) early in the JPP and MDMP as well
as throughout the F3EAD process. The IWTF staff can assist the SOJTF staff with incorporating
information effects in the commander’s intent and the scheme of maneuver. The IWTF would
facilitate target development, JIPOE or IPB, and additional facets of military planning that require
extended timelines for integration, deployment, and execution of information-related tasks. The
IWTF could facilitate IO integration at the operational level in LSCO. As the SOJTF is an
operational level organization, its IO practitioners conduct several common activities in order to
fuse information power with physical power in planning and executing these operations. These
fusion activities are convergence, organization, and synchronization.

The IWTF Develops Influence Plans

The IWTF develops a threat based influence plan as outlined in DODD O3607.02, Military
Information Support Operations (MISO). All influence campaign plans must be approved by the
Under Secretary of Defense for Policy to ensure they incorporate both U.S. political objectives as
well as the authorities to employ MISO to support those objectives. This military influence
campaign is nested with and supports the U.S. National campaigns designed to promote American
values while exposing enemy propaganda and disinformation. A common mistake made in
planning is placing the bulk of the effort on developing the message or narrative instead of first
determining the desired behavior.

In the close maneuver and support areas the IWTF operates along four broad lines of effort:

46
  Establish and defend the Joint Force’s legitimacy to conduct operations. The audience for
the legitimacy line of effort are the international public opinion and civilian audiences
within the contested area.
 Prevent the use of WMD. The IWTF conducts this task by rebroadcasting and amplifying
national level cognitive objectives of holding the national leadership and units employing
WMD accountable in the international community as well as a credible threat of
exponential retaliation.
 Convey inevitability of the enemy’s defeat. The purpose of this line of effort is to attack
the enemy’s will to resist the Joint Force’s effort. The audiences for this LOE are the
enemy’s political and military leadership, rank and file service members, and hostile
civilian populace.
 Control of the civil populace. Information warfare reduces a civil populace’s interference
with friendly military operations. The IWTF can also use IW to move a civil populace in a
manner to hinder enemy movement. Lastly, information warfare can be used with a local
populace to report enemy SOF, by-passed units, and other critical information. With the
increased emphasis on dense urban areas, controlling and influencing the civil populace
will gain in importance.
IWTF Operations Can Occur Throughout the Operational Area
In the areas beyond the forward line of troops (FLOT), information warfare should be employed
to attack political, social, economic, and informational systems the enemy relies upon. The enemy
fears the use of information to foster political and social dissent similar to “color revolutions” an
“Arab Spring”65 in their strategic support area. This use of information warfare serves as a deterrent
in the competition phase and denies the enemy sanctuary during conflict. Information warfare is
also used to degrade the enemy Integrated Air Defense Systems (IADS) and Integrated Fires
Complex (IFC) in denied areas. Information warfare degrades enemy IADS and IFC in the
information environment by locating, deceiving, and targeting them.

The locating portion of the IW task is twofold. First, using technology to aggregate data points that
range from smart phone data, social media posts, smart applications (apps), and other devices the
Joint Force is able to develop targetable information against high value anti-access systems.
Secondly, the information environment with its social media and smart apps provide the Joint
Force the mechanism for people in denied areas to report the location of high value anti-access
systems. Information warfare specialists are fully capable of producing this behavior in desired
audiences. This behavior is demonstrated by “Pokémon go”, and “TripAdvisor” phenomena.

Information warfare uses scatterable multispectral reprogrammable “media” to deceive enemy

IADS and IFC. The scatterable media possess the ability to broadcast false signals to enemy
systems as well as prevent enemy systems from sharing information. The targeting task is designed
specifically to attack the will of the operator. This task includes inducing doubt regarding
equipment and leadership performance in the operator’s mind, highlighting long term health risks
from operating specific equipment, and informing operators of losses suffered amongst other
similar systems. Desert Storm demonstrated this capability with great effect.

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How Does the SOJTF Achieve CF-SOF Interdependence,
Interoperability, and Integration (I3)?
Understand Their Different Perspectives
Crucial to I3 is an understanding that CF and SOF are structured, trained, maintained, and
employed differently to deliver separate capabilities. This means that CF and SOF perceive the
battlefield differently. These perceptions are filtered through mental models that can provide
stability but also serve to block ideas which do not fit preconceived or deeply held beliefs. Because
of their training and operational experience in dealing with foreign cultures, SOF should have an
advantage in overcoming the friction and obstacles created by deeply ingrained mental models.
CF-SOF I3 are part of a triad that when synchronized enables
SOF to achieve the JFC’s desired end states. All three elements
of the I3 triad develop concurrently. To foster interdependence, Interdependence
the SOJTF Commander and staff must diligently inject
themselves into CF MDMP and the JPP as early as possible.
This will involve every means of coordination and
communication from video teleconferences to face-to-face- Integration Interoperability

coordination to the early employment of LNOs.

It is important to understand the differences between

interdependence, interoperability and integration. Figure 22. The CF-SOF I3 triad allows
Interdependence links the capabilities, authorities, and actions of the SOJTF to integrate SOF unique
military forces and other government partner’s to produce the effects.
maximum operational effect. Interoperability is the ability to act
together coherently, effectively, and efficiently to achieve tactical, operational, and strategic
objectives.66 Integration arranges military forces and their actions in time and space to bring the
maximum force to bear against an adversary.

In the long run, interdependence requires interoperability of both digital systems and mission
command processes. The SOJTF commander and staff must be know how to employ CF C2
systems while still retaining the ability to use SOF-specific systems. Integration allows the SOJTF
to integrate effects that are SOF-unique into other joint component command target sets, thereby
achieving the JFC’s desired end states. The required degree of integration varies over time and
circumstance, but is shaped by a thorough consideration of both the capabilities and the
limitations of the Joint Force.

Additional Considerations for SOF-CF Interoperability

Within the joint community, the Joint Air Tasking Cycle results in an ATO which provides for
integrated, efficient use of air assets. Just as the IWTF does not run counter to joint doctrine, the
development of a Joint IW Tasking Cycle which produces an information warfare task order
(IWTO) for IRCs does not, either. An IWTO could provide commanders and their staffs with a
means to efficiently conduct IW. It would also provide a conceptual framework well understood
by the joint community.

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An additional means to optimize joint operations would be to create a special operations tasking
cycle and a special operations task order (SOTO). This would help the joint force components
plan, sequence, and integrate special operations. Much like the ATO does for air assets, this would
rationalize SOF resource allocation and deconflict employment of SOF. It may help the
conventional components realize that they don’t need to “own” a SOF slice; they can “rent” it just
as SOF requests air, maritime, cyberspace, and space assets.

Establish Authority – Who is in Charge?

“Establishing authority is paramount in integrating CF and SOF. The establishing authority for
the support command relationship is the JFC. The establishing authority defines the support
command relationship among the subordinates in terms of who is supported and who is supporting,
the degree of authority, and overall priorities, especially where there are limited resources
supporting numerous operations.”67 The establishing authority adjudicates between subordinate
organizations which are unable to come to agreement.

The SOJTF will most often be the supporting commander. Therefore, the SOJTF Commander and
staff must internalize the supported commander’s intent. This deep understanding will provide a
framework for the SOJTF to employ forces and assess risk. The SOJTF Commander and staff
will need to educate and inform their CF counterparts on the capabilities and limitations of the
SOJTF. SOF LNOs are critical to this process particularly during LSCO where the pace of
operations will often be at machine speed and communications will be degraded.

The SOJTF Commander and staff should impress on their CF counterparts that SOF are most
effective when special operations are fully integrated into the overall plan. They must ensure
integration at every step of the planning process. SOF can operate unilaterally, independently as
part of the overall plan, or in support of a conventional commander. The SOJTF provides a robust
C2 structure to integrate and coordinate the SOF effort. It also provides a C2 structure responsive
to the needs of the operational units and provides the most flexibility and agility in conducting
special operations.

Consider Multinational Operations I3

Another aspect of I3 during LSCO is the need to operate with allied and partner forces. This holds
true for SOF as well as CF. During multinational operations, U.S. forces establish liaison early
with forces of each nation to:68

 Foster better understanding of caveats, capabilities, and limitations.

 Facilitate the ability to integrate and synchronize operations.
 Assist in sharing information.
 Developing trust and an increased level of teamwork.
Interoperability within a coalition construct (allies and partners) has two main elements. The first
is a human dimension based on trust, transparency, and inclusion. The second is technical.
Coalition operations stand or fall based on the human dimension. The SOJTF cannot allow
technical limitations of information sharing networks, tools, and databases to fracture their
operations within the coalition. Language differences can pose formidable challenges. However,
that is precisely where the SOJTF has an advantage and can add value to CF operations.

49
In a multi-national environment, it is important to select words carefully, avoid acronyms, and
confirm understanding early rather than risk confusion later. Ensure information-exchange
technical platforms are in place, necessary disclosure and information sharing training is
accomplished, and establish a strong “write for release” policy to enable collaboration both within
and external to the HQ.

Some insights and best practices applicable to the SOJTF from joint lessons learned include:69

 Understand the speed at which your partners can plan and operate.
 Personal relationships and building mutual trust are often more important than formal
command relationships.
 Include and empower coalition partners by not over-classifying information and effectively
sharing with them. Include Foreign Disclosure Officers.
 Political considerations, directed authorities, and national caveats will heavily influence
the coalition command structure and operations. Understand the domestic politics of
participating nations to gain awareness of factors influencing national objectives,
capabilities, and limitations.
 Leverage relationships to overcome potential technical interoperability challenges.

What is Necessary to Sustain SOF in LSCO?

Integration between SOF, CF, and Other Sustainment Sources is Paramount
LSCO typically involve the deployment, sustainment, and retrograde of large combat forces.
During LSCO, the SOF sustainment team, consisting of the Theater Special Operations Command
(TSOC) J4, 528th Sustainment Brigade (Special Operations) (Airborne), Service and Component
sustainment organizations, and the SOJTF J4 must ensure integration with the CF sustainment
infrastructure as early as possible in the planning process. The SOF sustainment team must ensure
that sustainment activities are uninterrupted throughout the entire operation including the return to
competition.

Joint Publication 3-05, Special Operations sums up the SOF sustainment requirements as, “Most
special operations missions require CF logistics support. SOF are not structured with robust
sustainment capabilities, therefore, SOF must frequently rely on external support for sustained
operations. Limited SOF logistic capacity frequently requires support from CF supplemented by
host-nation support (HNS) and/or operational contract support.”70

When considering task organization, Joint Publication 3-05 further observes that “The routine
sustainment of forces is monitored by the J-4 who is responsible for recommending logistic
priorities to the CDRJSOTF, monitoring Service support to SOF, arranging inter-Service support
agreements when advantageous and coordinating special operations peculiar logistic support with
the United States Special Operations Command (USSOCOM).”71

The SOF sustainment team should be knowledgeable about every sustainment resource, standard
and non-standard within the AO. The SOF sustainment team must also understand the sustainment
requirements of SOF forces operating in friendly, contested, and denied areas. Within the limits

50
imposed by communications and the ATO cycle, the SOF sustainment team must plan and execute
both push and pull sustainment packages for both SOF and their indigenous partners.

Consider the Following in the Planning Process

The following is a list of some SOJTF J4 sustainment planning considerations:72

 How will the terrain, weather, and enemy activities impact logistics support?
 Does the planned support complement the tactical plan? Is it adequate and feasible?
 What is the best time-phasing for introduction of logistics elements to support the combat
forces?
 Where do the SOJTF and their subordinate units fit in the theater of operations’ sustainment
structure?
 What are the sustainment liaison requirements?
 Who will provide supply, maintenance, transportation, and field service support? Which
logistics elements will provide that support?
 What are the basing requirements? SOF missions may necessitate living outside traditional
basing footprints.
 What are the requirements for, and types of, contracted support that may support the
operation? What is the supporting contracting organization?
 What are the security requirements for movement and resupply of forces, assets, and
classes of supply?
 What are the funding responsibilities? Who is paying for what?
 What commercial logistics resources are available (e.g., civilian transport or freight
carriers)?
 What are the inter- and intra-theater lift requirements for both administrative and tactical
movements (e.g., ground, air, and maritime)?
 What are the redeployment requirements?
 What are the transshipment and storage constraints under certain arms control treaties and
agreements, to which either the U.S. or HN may be party? These may prohibit moving and
storing certain weapons systems or classes of munitions on or over HN territory and in
territorial waters.
 What are the SOF-unique requirements for procurement and maintenance of nonstandard
vehicles?
 What HN support is available? What are the subsequent risks to relying on that support?
 What special operations-peculiar equipment, materials, supplies, and services does the
operation require?
 What is the procurement process for special operations-peculiar equipment, materials,
supplies, and services?
The SOF sustainment team must articulate the SOJTF’s sustainment needs to the JTF and the
Services. This process must begin early in planning and continue throughout the operation. In order
to obtain the best sustainment support possible, the SOJTF J4 should:

 Provide specific response time requirements by class of supply and location, if necessary.
 Identify requirements as global, regional, local, or a combination.

51
  Identify the support duration requirement.
 Provide any prepositioning requirements.
The SOJTF J4 and LNOs should ensure that all sustainment organizations understand that SOF
has unique requirements and capabilities. Some of these are:

 Specially designated Army Special Forces Operational Detachment Alpha (SFODA),

MARSOC, and SEAL operators function as the unit logisticians and supply officers. They
can serve as field ordering officers (FOO) or paying agents, and maintain the unit’s
property books.
 SOF elements can conduct some level of sustainment through procurement from
indigenous sources. This capability, based on local availability, may require arrangements
for tracking and reissue of funds, accountability for acquired property, contract
management, and protocols for final distribution of property.
 Some special operations are classified and involve using sensitive equipment, or common
equipment employed for sensitive purposes. This property is tracked outside standard
supply channels and cannot be recorded on routinely used property books without
compromising those operations. Accountability, disposition, and resupply of this material
needs to be coordinated through the TSOC operational control element.
 Some SOF core activities, such as UW, have unique logistical considerations.
Since parent Services are responsible for the logistic support of their SOF units, the J4 must be
conversant in the nuances of each supply system. USSOCOM component commands are
normally capable of supporting deployed SOF elements for an initial period of 15 days. By the end
of that period, the SOJTF J4 must have arranged for what will most likely be a combination of
Service, joint in-theater support, non-standard, and special operations peculiar support.

Health Support Planning Considerations

Joint Publication 4-02, Joint Health Services states that “Due to the necessity to perform lifesaving
interventions for personnel suffering combat trauma within minutes of wounding or injury,
medical resources must be arrayed in close proximity to the forces supported. This array also
permits the medical assets to rapidly clear the Joint Operating Area (JOA) of casualties and
enhances the JFC’s ability to quickly take advantage of opportunities that present themselves
during the battle.”

It further notes that the SOJTF “surgeon staff must be included in the planning process for combat
operations. To ensure effective and efficient health support within the OE, medical support plans
must adhere to the supported joint functions. Noncontiguous operations units must understand the
various support relationships described in the OPORD to ensure a seamless continuum of health
support is established and can be maintained.”73

Considerations for medical planning efforts to support LSCO include:

Threat. The threat is a composite of ongoing or potential adversary actions; occupational,

environmental, geographical, and meteorological conditions; endemic diseases that can reduce the
effectiveness of the joint force through wounds, injuries, illness, and psychological stressors; and
the employment of weapons of mass destruction.

52
Medical Intelligence. Medical intelligence is produced by the National Center for Medical
Intelligence and consists of the collection, evaluation, and analysis of information concerning the
health threats and medical capabilities of foreign countries and non-state actors that have
immediate or potential impact on policies, plans, or operations. That category of intelligence
resulting from collection, evaluation, analysis, and interpretation of foreign medical, bio-scientific,
and environmental information that is of interest to strategic planning and to military medical
planning and operations for the conservation of the fighting strength of friendly forces and the
formation of assessments of foreign medical capabilities in both military and civilian sectors.

Patient Movement (PM). Timely PM is the result of collaborative lift-bed planning and involves
selection of patients for movement based on medical condition, location of available beds, route
planning, selection of movement platforms, and movement control. The SOJTF Surgeon must
work with the JTF Surgeon and GCC Surgeon to ensure inter-theater and intra-theater medical
evacuation. SOF does not have medical evacuation (MEDEVAC) assets. All SOF aircraft have the
alternate mission of casualty evacuation (CASEVAC), which usually takes place on exfiltration.

Patient Movement Items (PMI). PMIs are specific medical equipment and durable supplies that
must be available to support patient movement (PM). The purpose of the PMI system is to support
PM through pre-positioning, exchanging, and recycling of PMIs so medical treatment facility
capability is not degraded.

Clinical Capabilities and Medical Logistics (MEDLOG) Support. Specific clinical capabilities,
location, MEDLOG supportability, and bed requirements must be considered when planning
health support and must be detailed in the respective OPLAN. Resupply of whole blood must also
be planned for by the SOJTF, JTF, and GCC surgeons. The Army is the executive agent for blood
on the battlefield.

Preventive Medicine (PVNTMED) and Health Surveillance. The deployment health

surveillance program is initiated and the means to counter the health threats in the OA are identified
to the greatest extent possible, before the forces arrive. Specific PVNTMED procedures are
generally the responsibility of the component commands. The Joint Force Surgeon (JFS) advises
the combatant commander on specific PVNTMED procedures to be implemented, typically
accomplished through the component commands.

Prevention of Stress Casualties. A coordinated program must be planned for the prevention,
treatment, and return to duty of combat stress reaction casualties.

Mass Casualty Situations. The SOJTF Surgeon must work closely with the JFS to ensure the
communications, transportation, triage and emergency management, PM, and MEDLOG
management aspects of the mass casualty plan are thoroughly rehearsed.

Prolonged Field Care. SOF medical personnel must be prepared to provide prolonged field care
in instances where casualties cannot be evacuated expeditiously. The tyranny of distance in
undeveloped theaters requires units to hold casualties who need surgery or advanced treatment

53
until evacuation assets are arranged. This requires expeditious resupply coordination of Class VIII,
whole blood, and blood products.

SOF Surgical Teams. In the absence of Role 3 facilities, SOF and Service Forward Surgical
Teams may be in the evacuation chain for casualties. These teams provide damage control
resuscitation and damage control surgery. They increase the chance of casualty survival until a
Role 3 facility is reached. These teams are very light and require expeditious resupply of critical
Class VIII, whole blood, and blood products. The SOJTF, JTF, and GCC surgeons must keep them
resupplied before their stocks are depleted.

Role 3 Hospitalization and Definitive Surgery. The SOJTF Surgeon must work with the JTF
and GCC surgeons to ensure that a Role 3 medical facility is in the evacuation chain for the
movement of casualties requiring definitive surgery.

Coordination between Joint Health Services Sources (HSS) is Paramount

The TSOC Commander coordinates conventional health service packages to augment the SOF
organic medical capability using the organic surgeon section. This is critical as SOF has no organic
Role 2 or Role 3 medical capabilities. Role 3 capability provides definitive surgery. Role 3 support
is doctrinally provided by GCC service capabilities.

SOF HSS includes limited quantities of medical, critical care management, casualty evacuation,
patient holding, and primary care capabilities. The special operations advanced tactical practitioner
is a highly trained special operations medic who delivers a selected level of medical care normally
reserved for health care providers.

Organization of the health support system is determined by the joint force’s mission, the threat,
intelligence, anticipated number of patients, duration of the operation, the theater PM policy,
available lift, MEDLOG capabilities, and hospitalization requirement.

54
Acronym List
A2/AD – Anti-Access/Area Denial
ADM – Army Design Methodology
AI – Artificial Intelligence
ATO – Air Tasking Order
C2 – Command and Control
CA – Civil Affairs
CAO – Civil Affairs Operations
CASEVAC – Casualty Evacuation
CBRN – Chemical, Biological, Radiological, and Nuclear
CCDR – Combatant Commander
CCIR – Commander’s Critical Information Requirement
CEMA – Cyber-Electromagnetic Activities
CHOPS – Chief of Operations
C-IED – Counter-improvised explosive devices
COA – Course of Action
COG – Center of Gravity
COIN – Counter Insurgency
COP – Common Operating Picture
COS – Chief of Staff
CT – Counterterrorism
CWMD – Countering Weapons of Mass Destruction
D3A – Decide, Detect, Deliver, and Assess
DA – Direct Action
DIMEFIL – Diplomatic, Informational, Military, Economic, Financial, Intelligence, and Law
Enforcement
DSM – Decision Support Matrix
EAB – Echelons Above Brigade
ECOA – Enemy Course of Action
EOD – Explosive Ordinance Disposal
EVENTTEMP – Event Template
F2T2EA – Find, Fix, Track, Target, Engage, and Combat Assessment
F3EAD – Find, Fix, Finish, Exploit, Assess, and Disseminate
FHA – Foreign Humanitarian Assistance
FID – Foreign Internal Defense
FLOT – Forward Line of Troops
FOO – Field Ordering Officer
FSCOORD – Fire Support Coordination Officer
GCC – Geographic Combatant Command
HD/LD – High Demand/Low Density
HHQ – Higher Headquarters
HN – Host Nation
HRR – Hostage Rescue and Recovery
HSS – Health Services Sources
HVI – High Value Individuals
I3 – Interdependence, Interoperability, and Integration

55
IADS – Integrated Air Defense Systems
IDP – Internally Displaced Person
IFC – Integrated Fires Complex
IO – Information Operations
IPB – Intelligence Preparation of the Battlefield
IRC – Information Related Capabilities
ISR – Intelligence, Surveillance, and Reconnaissance
IWTF – Information Warfare Task Force
IWTO – Information Warfare Tasking Order
JFC – Joint Force Commander
JFS – Joint Force Surgeon
JFSOCC – Joint Force Special Operations Component Command
JIPOE – Joint Intelligence Preparation of the Operational Area
JIPTL – Joint Integrated Priority Target List
JPP – Joint Planning Process
JSOA – Joint Special Operations Area
JSOAC – Joint Special Operations Air Component
JSOTF – Joint Special Operations Task Force
JTF – Joint Task Force
LNO – Liaison Officer
LOC – Lines of Communication
LOE – Line of Effort
LOO – Line of Operation
LRSU – Long-range Reconnaissance and Surveillance Unit
LSCO – Large Scale Combat Operations
MARSOC – Marine Special Operations Command
MDMP – Military Decision Making Process
MEDEVAC – Medical Evacuation
MEDLOG – Medical Logistics
MILDEC – Military Deception
MISO – Military Information Support Operations
MNF – Multi-national force
NAI – Named Area of Interest
NDS – National Defense Strategy
NMS – National Military Strategy
NSS – National Security Strategy
OE – Operating Environment
OPCON – Operational Control
OPSEC – Operations Security
OPT – Operational Planning Team
PE – Preparation of the Environment
PED – Process, Exploit, and Disseminate
PIR – Priority Intelligence Requirement
PM – Patient Movement
PMI – Patient Movement Items
PN – Partner Nation

56
POLAD – Political Advisor
PVNTMED – Preventive Medicine
SF – Special Forces
SFA – Security Force Assistance
SFODA – Special Forces Operational Detachment Alpha
SIGINT – Signals Intelligence
SME – Subject Matter Expert
SOF – Special Operations Forces
SOJTF – Special Operations Joint Task Force
SOTO – Special Operations Tasking Order
SR – Special Reconnaissance
TACON – Tactical Control
TAI – Target Area of Interest
TBM – Theater Ballistic Missile
TO – Targeting Officer
TOR – Terms of Reference
TOT – Time on Target
TSOC – Theater Special Operations Command
UAV – Unmanned Aerial Vehicle
ULO – Unified Land Operations
USSOCOM – United States Special Operations Command
UW – Unconventional Warfare
WFX – War Fighting Exercise
WMD – Weapons of Mass Destruction

57
End Notes
1
The National Security Strategy 2017, the National Defense Strategy 2018, and the National Military
Strategy 2018.
2
The White House, National Security Strategy of the United States of America, Washington, DC: The White House,
December 2017, 25.
3
Department of Defense, Summary of the 2018 National Defense Strategy of The United States of America:
Sharpening the American Military’s Competitive Edge, Washington, DC: Department of Defense, 2018, 1.
4
NDS, 7.
5
Department of Defense, Joint Publication 3-05, Special Operations. Washington, DC. The Joint Staff J7. 16 July
2014. III-4.
6
Department of Defense, Joint Publication 3-05, Special Operations. Washington, DC. The Joint Staff J7. 16 July
2014. III-4.
7
Joint special operations task force. A joint task force composed of special operations units from more than one
Service, formed to carry out a specific special operation or prosecute special operations in support of a theater
campaign or other operations. Also called JSOTF. (JP 1-02. SOURCE: JP 3-05)
8
Joint special operations air component commander. The commander within a joint force special operations
command responsible for planning and executing joint special operations air activities. Also called JSOACC. (JP 1-
02. SOURCE: JP 3-05)
9
Ibid. III-4.
10
United States Army Training and Doctrine Command Pamphlet 525-3-1, The U.S. Army in Multi-Domain
Operations 2028. 6 December 2018.ix.
11
Osinga, Frans P.B., Science, Strategy, and War: The Strategic Theory of John Boyd, New York, NY: Routledge,
1977. 41.
12
Ibid. I-9
13
A draft Training Circular on the Combined Special Operations Joint Task Force (CSOJTF) based upon experience
from Warfighter Exercises and other Lessons Learned is exploring the concept of the IWTF.
14
The Joint Staff, Joint Publication 3-13, Information Operations, Washington, DC: Joint Staff J-7, 27 November
2012, Incorporating Change 1, 20 November 2014, II-4 through II-13.
15
Source JP 3-05. III-11.
16
Department of Defense, Joint Publication 3-05, Special Operations. Washington, DC. The Joint Staff J7. 16 July
2014. III-17.
17
ADP 6-0, Mission Command defines it as, “A philosophy of command and control that empowers subordinate
decision making and decentralized execution appropriate to the situation.”
18
Department of Defense, Dictionary of Military and Associated Terms. Washington, DC. Department of Defense.
January 2019. 155.
19
Department of Defense. Joint Publication 3-05, Special Operations. Washington, DC. The Joint Staff, J7. 16 July
2014. I-7. x.
20
United States Army Training and Doctrine Command Pamphlet 525-3-1, The U.S. Army in Multi-Domain
Operations 2028. 6 December 2018.
21
Sensitive Activities (SA). Operations, actions, activities, or programs that, if compromised, could have enduring
adverse effects on U.S. foreign policy, DoD activities, or military operations, or cause significant embarrassment to
the U.S., its allies, or the DoD. These are generally handled through special access, compartmented, or other
sensitive control mechanisms. (DoDD 5143.01, October 24, 2014)
22
Operational preparation of the environment. The conduct of activities in likely or potential areas of operations to
prepare and shape the operational environment. Also called OPE. (JP 3-05)
23
Resistance movement. An organized effort by some portion of the civil population of a country to resist the
legally established government or an occupying power and to disrupt civil order and stability. (JP 3-05)
24
Ibid. I-7. III-4.
25
Department of Defense. Insights and Best Practices Focus Paper: Forming a JTF HQ. Deployable Training
Division, Joint Staff J7. September 2015. 3.
26
Department of Defense. Joint Publication 3-33, Joint Task Force Headquarters. Washington, DC. The Joint Staff,
J7. 31 January 2018. I-7. II-18.
27
Department of Defense. Insights and Best Practices Focus Paper: Joint Headquarters Organization, Staff
Integration, and Battle Rhythm. Second Edition. Deployable Training Division, Joint Staff J7. July 2013. 5.

58
28
Department of Defense. Insights and Best Practices Focus Paper: Forming a JTF HQ. Deployable Training
Division, Joint Staff J7. September 2015. 1.
29
For example, SOJTF-A sent Special Operations Force Liaison Elements (SOFLEs) to each Train, Advise and
Assist Command (TAAC) and all other commands that supported US Forces – Afghanistan (USFOR-A).
30
Department of Defense. Insights and Best Practices Focus Paper: Joint Headquarters Organization, Staff
Integration, and Battle Rhythm. Second Edition. Deployable Training Division, Joint Staff J7. July 2013. 9.
31
Ibid. 9, 10.
32
Joint Publication 3-33 contains another example of Seven Minute Drill. The key is to cover pertinent information
quickly to conserve the commander’s time. See: Department of Defense. Joint Publication 3-33, Joint Task Force
Headquarters. Washington, DC. The Joint Staff, J7. 31 January 2018. I-7. IV-20.
33
Ibid. 12.
34
Department of Defense. Insights and Best Practices Focus Paper: Interorganizational Cooperation. Fifth Edition.
Deployable Training Division, Joint Staff J7. April 2018. 11.
35
Ibid. 12.
36
Department of Defense. Joint Publication 2-0, Joint Intelligence. Washington, DC. The Joint Staff, J7. 22 October
2013. x.
37
Department of Defense, Dictionary of Military and Associated Terms. Washington, DC. Department of Defense.
January 2019. 117.
38
Ibid. 174.
39
Department of Defense. Joint Publication 5-0, Joint Planning. Washington, DC. The Joint Staff, J7. 16 June 2017.
40
Department of Defense. Insights and Best Practices Focus Paper: JTF C2 and Organization. Deployable Training
Division, Joint Staff J7. April 2017. 9.
41
Department of Defense. Joint Publication 3-0, Joint Operations. Washington, DC. The Joint Staff, J7. 17 January
2017. III – 14, 15.
42
Department of Defense. Insights and Best Practices Focus Paper: Interorganizational Cooperation. Fifth Edition.
Deployable Training Division, Joint Staff J7. April 2018. 6.
43
Department of Defense. Joint Publication 3-33, Joint Task Force Headquarters. Washington, DC. The Joint Staff,
J7. 31 January 2018. I-7. IV-15.
44
See Chapter XIII, Department of Defense. Joint Publication 3-33, Joint Task Force Headquarters. Washington,
DC. The Joint Staff, J7. 31 January 2018 for a discussion of the CMO Directorate/Interagency Operations
Directorate and additional considerations.
45
Department of Defense. Insights and Best Practices Focus Paper: Interorganizational Cooperation. Fifth Edition.
Deployable Training Division, Joint Staff J7. April 2018. 1.
46
Ibid. 1, 4.
47
See Annex J to Appendix A (Checklist for JTF J9), Department of Defense. Joint Publication 3-33, Joint Task
Force Headquarters. Washington, DC. The Joint Staff, J7. 31 January 2018.
48
Department of Defense. Insights and Best Practices Focus Paper: Interorganizational Cooperation. Fifth Edition.
Deployable Training Division, Joint Staff J7. April 2018. 8.
49
Department of Defense. Insights and Best Practices Focus Paper: Synchronization of Joint Fires. Fourth Edition.
Deployable Training Division, Joint Staff J7. July 2018, 2.
50
Department of Defense. Joint Publication 3-60, Joint Targeting. Washington, DC. The Joint Staff, J7. 28
September 2018, x, xi.
51
Headquarters, Department of the Army. Army Doctrinal Publication (ADP) 3-09, Fires. Washington, DC.
Department of the Army. 31 August 2012. 5.
52
Headquarters, Department of the Army. Army Doctrinal Reference Publication (ADRP) 3-09, Fires. Washington,
DC. Department of the Army. 31 August 2012.
53
Department of Defense. Joint Publication 5-0, Joint Planning. Washington, DC. The Joint Staff, J7. 16 June 2017.
xii.
54
Department of Defense, Dictionary of Military and Associated Terms. Washington, DC. Department of Defense.
January 2019. 140.
55
Ibid. 140.
56
During Warfighter Exercise 19-4, the 1st Special Forces Command (Airborne) acted as a SOJTF and formed a
Deep Operations Cell which facilitated SOF targeting and maneuver in the deep fires area.
57
Department of Defense. Insights and Best Practices Focus Paper: Synchronization of Joint Fires. Fourth Edition.
Deployable Training Division, Joint Staff J7. July 2018. 1.
58
Ibid. 1.
59
59
Department of Defense. Joint Publication 3-60, Joint Targeting. Washington, DC. The Joint Staff, J7. 28
September 2018. II-31.
60
Ibid. II-23.
61
Ibid. II-23.
62
Virtual Reality (VR) and Mixed Reality (MR) can be effective tools to bring this about. They represent a quantum
leap in the capability to influence others.
63
Light slows down when it travels through a medium other than the vacuum of space. For example, it travels as
slowly as ½ c in fiber optic cable.
64
Department of Defense, Dictionary of Military and Associated Terms. Washington, DC. Department of Defense.
January 2019. 112.
65
“The Arab Spring was a series of anti-government protests, uprisings, and armed rebellions that spread across
North Africa and the Middle East in the early 2010s. It began in response to oppressive regimes and a low standard
of living, starting with protests in Tunisia. In the news, social media has been heralded as the driving force behind
the swift spread of revolution throughout the world, as new protests appear in response to success stories shared
from those taking place in other countries. In many countries, the governments have also recognized the importance
of social media for organizing and have shut down certain sites or blocked Internet service entirely, especially in the
times preceding a major rally. Governments have also scrutinized or suppressed discussion in those forums through
accusing content creators of unrelated crimes or shutting down communication on specific sites or groups, such as
through Facebook.” https://en.wikipedia.org/wiki/Arab_Spring Accessed 9 September 2019.
66
Department of Defense, Dictionary of Military and Associated Terms. Washington, DC. Department of Defense.
January 2019. 119.
67
Ibid. 5.
68
Department of Defense. Insights and Best Practices Focus Paper: Interorganizational Cooperation. Fifth Edition.
Deployable Training Division, Joint Staff J7. April 2018. 9.
69
Ibid. 10.
70
Department of Defense. Joint Publication 3-05, Special Operations. Washington, DC. The Joint Staff, J7. 16 July
2014. I-7.
71
Ibid. A-17.
72
See also, Joint Publication 3-33, Joint Task Force Headquarters, Chapter VIII, and Annex F to Appendix A
(Checklist for JTF J4) for additional information
73
Department of Defense. Joint Publication 4-02, Joint Health Services. Washington, DC. The Joint Staff, J7. 11
December 2017. V-1.

60