This is the First Edition of the Insights and Best Practices Focus Paper on Geographic Combatant

Commander (GCC) Command and Control Organizational Options, written by the Deployable
Training Division (DTD) of the Joint Staff J7 and published by the Joint Staff J7 Joint Training
Directorate. This paper will be further documented in a future J7 Joint Doctrine Note.
Scope:
1st, the paper focuses on C2 organizational options and considerations during transitions
responding to crises. However, the discussion has broader application to other transitions across
the range of military operations (e.g., from peace to war and war to peace).
2nd, observations and insights are primarily focused on GCC C2 options and considerations.
While some observations and discussion may apply to options and decision making for
Functional Combatant Commands (FCC), that is outside the scope of this paper.
3rd, the paper introduces global C2 implications e.g., cross-CCMD coordination.
Terminology and Acronyms: Numerous military acronyms and organizational names are used
freely in the paper. They are defined in the glossary, but not throughout the body of the paper to
increase readability based on the high experience and knowledge level of the intended audience.
Table of Contents
1.0 Executive Summary ..................................................................................................1
2.0 Doctrinal Principles and other Planning Considerations......................................4
3.0 Service and Functional Component Options..........................................................6
4.0 Subordinate Unified Command option (includes TSOCs)....................................8
5.0 Single Service Force and Specific Operational Forces Options ...........................9
6.0 JTF Option ................................................................................................................9
7.0 Phasing of Options ..................................................................................................11
8.0 Multinational and Interagency Considerations ...................................................11
9.0 Global C2 Implications ...........................................................................................12
10.0 Conclusion ...............................................................................................................13
GLOSSARY: Abbreviations and Acronyms ................................................................ GL
POC: Mr. Mike Findlay - 757.203.5939 - Email: [email protected]
Deployable Training Division, Deputy Director Joint Staff J7, Joint Training
116 Lake View Parkway
Suffolk, VA 23435-2697
Accessibility: This and other insight and best practice papers can be accessed through use of a
search engine on the open internet. Also available on the following websites:
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http://www.dtic.mil/doctrine/index.html
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https://intelshare.intelink.gov/sites/jcw/jt/default.aspx
Releasability: There are no releasability restrictions on this publication. Approved for public
release; distribution is unlimited.
Disclaimer: The views in this paper are those of the author and do not necessarily reflect the
official policy or position of the Joint Staff, the Department of Defense (DOD), or the United
States Government (USG).

PREFACE
The Joint Staff J7 supports the CJCS and the joint warfighter through joint force development to
advance the operational effectiveness of the current and future joint force. The Deployable
Training Division (DTD) gains insights on operational matters through regular contact and
dialogue with combatant and operational level commanders and staffs as they plan, prepare for,
and conduct operations and exercises. The DTD observes and compares staff processes among
the various joint force headquarters, drafts insights and best practices, refines them through
senior flag officer feedback, and then shares them with the joint lessons learned and joint
doctrine communities.
This paper addresses a key challenge faced by all of the Unified Combatant Commanders
(CCDRs), that of anticipating and determining optimal command and control (C2) constructs
that accomplish the mission while retaining agility and adaptability to respond to the
uncertainties and complexities that characterize the contemporary security environment.
This paper might prove to be particularly useful for Operational Planning Team members or
Operations Directors who, while time constrained under swiftly evolving or deteriorating
circumstances, are tasked by their CCDR to generate courses of action as requested by CJCS and
the Secretary of Defense. This paper addresses common C2 options and considerations which
are intended to assist combatant command planners in their formulation of suitable C2 constructs
that support and complement the broader whole of government approach in responding to the
crisis. The paper also introduces global C2 considerations that account for global-strategic
perspectives and implications that stem from operations that cross combatant command
geographical areas of responsibility.
Several active and retired senior flag officers, including General (Retired) Gary Luck, a Senior
Fellow at the National Defense University, provided invaluable insights and recommendations
during development of this paper. These senior flag officers continuing support helps keep our
observations and insights at the theater-strategic and operational levels, and ensures that these
"Insights and Best Practices" papers retain focus on the primacy of the commander, commander's
guidance, intent and decision-making.
This paper adds to the existing body of work that may be found on the sites noted on the inside
front cover. All of the papers are unclassified for broad accessibility. Several are crossreferenced in this paper and the J7 team encourages broad dissemination and reading.
Please pass on your comments to DTDs POC, Mr. Mike Findlay so that we can improve this
paper. We would like to capture your thoughts and potential non-materiel solutions as you think,
plan and work your way through the challenges. Phone: 757.203.5939. Email address:
[email protected].

BRIAN D. BEAUDREAULT
Brigadier General, USMC
DDJ7, Joint Training, Joint Staff
i

1.0 EXECUTIVE SUMMARY. Senior leaders are faced with rapidly responding to regional
and transnational threats across a dynamic geo-political landscape where the problem and
mission partner interests, roles, and approaches are
likely to continually evolve. Within this backdrop and
under resource constrained conditions, commanders
and staffs must anticipate and determine optimal C2
constructs that will accomplish the mission while
remaining agile and adaptable to the near, mid and
longer-term transitions that will occur over the course
of the operation.
The adjacent figure depicts several CCMD-level C2 organizational options used by CCDRs to
conduct operations. While the paper focuses on GCC level C2 options, it also addresses how
these GCCs work closely with mission partners to address cross-CCMD challenges.
There are many examples in the use of these GCC-level C2 options over the past several years,
some of which are listed below. They demonstrate the critical importance of anticipation,
commander-level decisions on C2 arrangements and amount of delegated authority, subsequent
assessment, and adaptation when necessary. C2 is commanders business.
Organizing for the initial years in Afghanistan with SOCCENT, the various Special Operations
and Marine task forces, and use of the Air, Land, and Maritime Coalition Functional
Components, evolving to a Combined JTF, then ISAF, the Regional Commands and Combined
Forces Command-Afghanistan, later establishment of IJC and USFOR-A. This organizational
construct continues to evolve as the mission changes to Operation Resolute Support.
Starting in 2002, the employment of SOCPAC and a JSOTF in the Philippines.
Use of coalition functional component commands for the attack into Iraq in 2003, the decision
on establishing CJTF-7, and subsequent establishment of MNC-I and MNF-I, and later, USF-I.
Establishment of JTFs supporting relief efforts for the 2004 tsunami in the Pacific, earthquake
relief in Haiti in 2010, 2010 Pakistan flood relief, and enforcing the UNSCR in Libya in 2011.
USFJ (and JTF-519) supporting the 2011 tsunami and nuclear relief efforts in Japan.
Role of SOCEUR as the initial response in the 2006 Lebanon NEO and hand off to Sixth Fleet.
Role of the USNORTHCOM Army Service Component and JTFs for DSCA operations in
CONUS (e.g., Katrina and Sandy).
USCYBERCOM and JFCCs in USSTRATCOM.
Initial use of 3rd MEB, and subsequent role of III MEF as the core for JTF-505 in support of
USAID/OFDA assisting the Philippine government after Typhoon Haiyan in 2013.
Key points. Spend time up-front anticipating and determining optimal C2 accounting for the
near, mid and far term to remain agile and adaptable. Consider all C2 options and their
advantages and disadvantages; dont immediately default to one option. Anticipating C2 up-front
minimizes unnecessary subsequent organizational changes, changes that can disrupt burned-in
C2 arrangements. Adapting C2 with the least amount of change permits more corporate-level
focus on the enemy/problem/mission. Frequent or unneeded changes in C2 become distractions.
Related is the challenge of large HQs. Over-staffed HQs are often hobbled by their sheer size in
sharing understanding and purpose, lack a bias for action, have challenges in communications
and delegation of authority, and develop extensive and often convoluted staffing in an attempt to
ensure all are included in the staffing processes. Guard against this tendency; focus on output and
a bias for action, and leverage reach-back and others capabilities vice building large HQs.
1

Key challenges:
Understanding: As crises occur, GCCs are
faced with the challenges of understanding the
changing situation, informing and being
informed by the dynamic political and policy
decisions, providing a range of options to
national leadership (supporting what many
UnifiedActionStakeholders
refer to as best military advice and optionality),
and sharing with subordinates their understanding, visualization of the problem, and
operational approach (key aspects of design). Understanding the situation includes
understanding the many stakeholders, perspectives, roles, interests and interrelationships (See
both figures). Understanding has a temporal component; as a crisis lengthens and our
understanding of the problem/requirement increases there may be a corresponding change in
how we view feasible C2 options. This entails the artful nature of supporting a whole of
government approach, identification and arrangement of required forces in time, space, and
purpose, and determining how to direct
those forces.
Strategic direction and interaction:
Senior leaders continually reinforce the
reality and intensity of the strategic
demand signal from the NSC, DOD, and
JS in real world operations that can
consume a large part of the GCC staff's
available bandwidth. Recognize this in the development of C2 constructs, and empower
subordinate commands to conduct operational level mission assignments so the GCC and staff
can successfully inform and be informed by national leaderships pursuit and implementation
of viable options.
Determining C2: GCCs are challenged with anticipating and determining the optimal C2
structure that accomplishes a specific mission while retaining agility to execute other ongoing
and emergent AOR-wide missions. Simplicity and flexibility are important considerations.
While the GCCs attempt to broadly determine and develop the likely C2 structure in their
theater campaign and contingency planning forums, they must determine (or verify) the desired
option during crisis action planning and clearly define HQ roles, authorities, and
responsibilities. They also determine when and how much authority to delegate to subordinate
commanders, direct specific command relationships, assess risk, and prioritize efforts and
support across the AOR. They also make other key decisions beyond the scope of this paper as
part of design and planning including determining the operational approach, required forces
and operational areas, adapting their HQ organization and processes (e.g., battle rhythm), and
planning for assessment. [See Joint Insights and Mission Command paper]
Retaining a Theater-Strategic focus: A crisis tends to draw much of a GCCs attention in the
early stages away from its broader AOR responsibilities. The HQ and Components should be
able to accommodate this early focus on the crisis while remaining capable of continuing
AOR-wide mission sets. Any C2 organizational option must allow for this initial natural
tendency to focus on the crisis and support a relatively rapid return to steady-state AOR-wide
operations.
2

Overarching insights:
C2: The adage Get your C2 right up-front remains valid. A key consideration in getting C2
right is ensuring flexibility and adaptability to capitalize on fleeting opportunities while
mitigating persistent challenges. Understand the continual evolving nature of:
The USG role relative to the international (and as appropriate - host nation) response.
The US military role (and GCC mission) relative to the USG whole of government approach.
The GCC role relative to other DOD organizations (e.g., other CCMDs and CSAs)
Ongoing and anticipated AOR-wide missions and resources, and then deciding on C2.
Mission: The mission drives C2 decisions. For example, in an FHA/FDR scenario the C2
structure may need to be flat, adaptive, and inclusive with nonmilitary partners.
Planning: Anticipate transitions and associated C2 constructs to retain agility and avoid
shooting behind the duck in the C2 construct. Consider all C2 options as part of COA
development, analysis, and recommendation. Ensure Operational Planning Teams (OPTs)
address this during both deliberate and crisis action planning. The C2 construct should also be
periodically reviewed during both execution and transition (branch and sequel) planning. Time
spent up-front anticipating the most appropriate C2 that clearly lays out the roles and
authorities of the various HQs will pay dividends during execution and transitions to
subsequent phases. Establishing clear command relationships at all levels help ensure
synergy and achieve unity of effort. Equally important is providing clear commanders intent,
identification of risks, priorities, scope of supporting efforts, and authority of supported
commanders to effectively inform and focus supporting commanders actions.
Global C2. Todays battle space is larger than any single AOR. Trans-regional challenges
routinely span regional boundaries. The traditionally solid black lines that define the AORs are
becoming much more dotted. Multiple CCMDs are engaged with multiple supported /
supporting activities underway at the same time throughout the world. Given the threats that
can appear through cyberspace and space, a conflict abroad could very well involve
NORTHCOM and STRATCOM (i.e., CYBERCOM) from the outset. Thus we find that
CCMDs are planning together and with the JS, CJCS and OSD ahead of time so that they can
better coherently work together during execution.
Interagency and Multinational implications: Weve seen the value of a whole-of-government(s)
approach in advancing national interests as the military works by, with, and through many
mission partners and stakeholders. DOD has a long history of working in support of a Lead
Federal Agency (LFA) or other government authority. However, the military-centric Title 10
operations during the past decade of war in Iraq and Afghanistan have had a profound impact
on many in the American military. These deeply instilled experiences notwithstanding, military
leaders largely recognize that over time, operating in support of a LFA or other government
authority is often the rule vice the exception.
Training and Exercise Implications: The above challenges and insights reinforce the need for
quality training and exercise programs that:
Support the Theater Campaign Plan (TCP).
Achieve the greatest operational and strategic risk reduction within budget.
Provide feedback on effectiveness of the applicable C2 option.
Increase readiness and capacity of the respective headquarters, both joint and service HQ, to
perform anticipated missions.
Stress cross-AOR C2 challenges in todays globally connected world.
3

2.0 DOCTRINAL PRINCIPLES AND OTHER PLANNING CONSIDERATIONS.

The examples noted in the executive summary highlight the need to have some form of a
construct of considerations to help anticipate C2 challenges, inform course of action
development, analysis, and decision regarding C2 options and degree of empowerment to the
respective HQs. GCCs and their staff note the need for this same type of construct to anticipate
and think through other transitions such as between phases, military HQs, with USG lead federal
agencies, and between US or international HQ and the host nation. Weve seen confusion in
roles and responsibilities of the various HQs when an anticipatory mindset focused on transitions
and C2 is absent. Commander involvement coupled with component input pays off.
Every GCC that we have the opportunity to visit shares the observation that determination of the
C2 construct is not a singular activity, but rather one of several key design and planning
decisions. These include (in our words): understanding the environment, framing the problem,
providing a range of options to national leadership, developing a strategy to support the plan of
action desired by the National Command Authority, determining an operational approach,
defining the mission, gaining the necessary forces, assessing the C4I implications, and then
determining the optimal C2 option through which to employ the forces. [See Design paper]
Joint Publication 1 addresses joint command and control principles
stating: Component and supporting commands organizations and
capabilities must be integrated into a joint organization that enables
effective and efficient joint C2. The C2 structure is centered on the
JFCs mission and CONOPS; available forces and capabilities; and
joint force staff composition, capabilities, location, and facilities. The
JFC should be guided in this effort by the following principles simplicity, span of control, unit integrity, and interoperability. These
C2 principles provide a rational set of guiding thoughts that many GCCs incorporate into their
planning.
Weve seen several considerations used by GCCs in combination with the noted C2 principles as
they determine a resilient C2 approach in response to a crisis. These are based on their
responsibility to provide national leadership a range of viable military options, their theaterstrategic role, and multiple mission requirements. Within the traditional COA validity screening
criteria (feasible, acceptable, suitable, and distinguishable), applicable C2 organizational option
considerations have proven to be effectiveness, simplicity, responsiveness, flexibility of the
option in terms of both theater-strategic and operational flexibility for potential branches and
sequels, unified action with mission partners, and the readiness, capacity, and capability of the
relevant HQs.
These considerations are not fully
independent and in some cases satisfying
one consideration may require a tradeoff
with another consideration. However, we
believe they collectively portray important
considerations that may be used to analyze
and decide on the most appropriate and
resilient organizational option.
Effectiveness: To what degree does the
option enable accomplishment of the
4

mission with allocated forces, particularly in todays uncertain and changing environment with
the reality of limited resources?
Simplicity: This C2 principle is a very important consideration in todays complex and
uncertain environment. To what degree does the option facilitate ease in shared understanding
of the crisis environment, tasks, procedures, and relationships among mission partners? Theater
operations are inherently complex due to the many ongoing missions, limited force structure,
the reality of necessary reliance on access to others capabilities, the importance of providing
options to national leadership, and the challenges of transitions. Establishing new organizations
during a crisis or continually changing C2 can have unforeseen second and third order effects,
and blur accountability and responsibility at multiple levels. GCCs note the benefit of a simple
C2 construct coupled with clear support command relationships and theater-wide priorities.
Several note the value of contingency planning before a crisis, thinking through likely options
to ensure understanding of roles and responsibilities.
Responsiveness: To what degree is the option able to act within the mission time constraints?
This consideration tends to favor the use of standing organizations including the Service
component HQs, single-Service force or the TSOC options that reside in Theater and can
rapidly assume command and control of response forces.
Flexibility: To what degree does the option enhance strategic and operational flexibility? This
includes supporting national level optionality (providing a range of options), GCC theaterstrategic stance and flexibility to meet current and emergent AOR-wide challenges, and
operational-level flexibility for current and future operations (i.e., branch and sequels).
Unified Action: To what degree does the option support or leverage international, regional,
DOD, and interagency relationships, enablers, and efficiencies recognizing that this is how we
operate? While unity of command should always be a goal, achieving unity of effort is often
more realistic and amenable with likely mission partners. This consideration directly relates to
the below discussion on the capability of the designated HQ to work with mission partners.
Readiness and capacity of the designated HQ: To what degree does the option account for the
readiness and capacity of the designated HQ to conduct the mission? Readiness includes
organize, man, train, and equip requirements. Capacity is a function of experience, capability,
endurance of the HQ, span of control,
and understanding of supporting enablers
such as special operations or cyber
mission forces. These have implications
on the HQs ability to execute the
potential scope of the mission set.
Insights:
C2 is an important up-front decision
made by a GCC as part of setting conditions and retaining agility. Consider all feasible C2
options and include interagency, multinational, and DOD global C2 aspects.
C2 should be one of the key distinguishing components in the courses of action developed by
GCC planners. This applies to both deliberate and crisis action planning, and branch and sequel
planning during execution.
Anticipate C2 constructs and associated transitions to avoid shooting behind the duck. C2 is
commanders business. Consider assigning an individual the duty for anticipation in this
regard; some commanders consider this so important that they focus a flag officer on it.
5

3.0 SERVICE AND FUNCTIONAL COMPONENT OPTIONS.

CCMDs may conduct operations through
their Service component commanders,
and/or functional component commanders if
and when established.

Examples

Service Component: USMARFORPAC (2013)

Empowered as a supported commander for FHA
supporting Philippines after typhoon Haiyan.
Functional Component: USCENTCOM CFLCC (OIF
2003) A coalition functional component that supported the
attack north into Iraq. Was challenged with maintaining
Service component AOR-wide Title 10 responsibilities in
Afghanistan and elsewhere.
Theater JFACCs and USSTRATCOMs JFCCs (Global
Strike, Space, Integrated Missile Defense, and ISR).

Theater Service Components are permanent

organizations with responsibility for
Service-specific functions including
administration, personnel support, training,
logistics, and Service intelligence
operations. Conducting operations through
Service components has certain advantages, which include clear and simple command lines. This
arrangement is appropriate when stability, continuity, economy, ease of long-range planning, and
scope of operations dictate organizational integrity of Service components.
Not all GCCs have standing Functional Components. Joint doctrine notes that a CCDR can
establish functional component commands to conduct operations when forces from two or more
Services must operate in the same physical domain or accomplish a distinct aspect of the
assigned mission. These conditions apply when the scope of operations requires that the similar
capabilities and functions of forces from more than one Service be directed toward closely
related objectives and unity of command is a primary consideration. For example, functionally
oriented components are useful when the scope of operations is large and the CCDRs attention
must be divided between major operations or phases of operations that are functionally
dominated. An established GCC functional component commander will normally retain Service
Component Title 10 responsibilities. This can be a significant challenge if not planned for and
exercised.
Some GCCs are moving toward a
permanent functional componency C2
construct (see rationale in the text
box). This is a significant paradigm
shift away from an almost default
solution set of establishing a JTF HQ
to respond to crises.

A GCC Senior Leaders Perspective

Need to be able to command and control multiple
concurrent contingencies throughout the AOR in peace,
crisis, and war with a 20% reduction in GCC and
Component HQ strength, small number of available
mission ready JTF HQs, and limited force structure.
Need to be able to rapidly transition from peace to crisis
to war without reliance on moving bodies or relying on
individual augmentation or forming of HQ.
This drives a move away from discrete JTF HQ-centered
C2 solution sets toward a permanent Functional
Componency C2 construct to achieve a level of AORwide effectiveness supporting multiple concurrent tasks
in times driven by limited resources and necessary
efficiencies.

Key advantages of the functional

componency model are effectiveness,
simplicity, and responsiveness due to
their existing organizational structures,
developed AOR understanding and
relationships, and relationships with
the GCC, staff, and regional partners.
Additionally, they enable the GCC to retain a high degree of AOR-wide agility to rapidly shift
focus and supporting capabilities from one mission set to another.
The functional componency model leverages GCC-level strategic direction and overarching
priorities of effort coupled with a focus on creating synergy at echelon (e.g., at the operational
and tactical level) among the supported and supporting forces.
6

Priorities of effort. GCC sharing of understanding, intent, risk, and priorities of effort across
AOR-wide mission sets can assist the components to best internally prioritize and allocate their
unique capabilities in support of the GCCs intent. Key here is the recognition that a
subordinates priorities of effort may not be identical to the GCCs. For example, a SOF
component may better focus on certain tasks based on its capabilities while the maritime
component may differently prioritize and allocate its forces against other, more maritimerelevant GCC priorities. We have seen a best practice of horizontal collaboration among
components to best develop individual component prioritization of effort and force allocation to
meet each others requirements rather than waiting for detailed direction and/or approval from
the GCC. This internal self-regulation (as one GCC termed it) retains a bias for action and
harmony among components to operate at the speed of the problem.
Ensuring synergy at lower echelons is the other
key requirement within the functional model
(see figure). Absent attachment of forces and
delegation of OPCON or TACON (such as with
a JTF) some may argue that the functional
component construct doesnt allow for synergy
of tactical level actions. However many believe
it can achieve this level of synergy given:
GCC assurance / direction to ensure that the
various supported commanders (and their
subordinates) can count on assured access to allocated supporting capabilities.
Delineation of subordinate operational and tactical level supported commanders by the
respective Theater-level functional component commander.
Likewise delineation of operational and tactical supporting commanders to interact with their
counterpart at the operational and tactical level in a direct support like relationship.
Increased awareness by operational and tactical HQ on potential joint capabilities that could be
envisioned to be working together at those levels. (part of driving jointness deeper).
Horizontal integration at all levels (requires liaison at echelon).
Insights:
Consider the Service or Functional Componency C2 options (in conjunction with traditional
supported/ing command relationships with other components) due to their potential for
effectiveness, simplicity and responsiveness, especially in todays environment of limited
resources and necessary efficiencies.
Provide clear GCC-level intent and priorities of effort to empower decentralized action. One
GCC uses the concept of a Supported Commander Action Message (SCAM) that outlines
specific responsibilities and deliverables for the supporting players based on the GCCs
strategic direction. Components are empowered to make operational decisions.
Service Component HQs may face capacity challenges to perform functional component AORwide operational C2 roles while concurrently fulfilling their Title 10 responsibilities. Mitigate
by steady-state focus on HQ organization, planning and preparation, and training and exercises.
Leverage subordinate/supporting units capabilities and expertise vice adding elements to ones
own staff to keep HQs lean and unconvoluted.
Assess and mitigate risk of focusing a Service or Functional Component for C2 of one specific
mission based on its potential to disrupt other Service-specific and operational responsibilities.
7

4.0 SUBORDINATE UNIFIED COMMAND OPTION.

A subordinate unified command (also called
Examples
subunified command) provides an established joint Geographic subunified command: USFJ performing
organization subordinate to the GCC by which to
its political-military role supporting the 2011 tsunami
and nuclear relief efforts in Japan. USFJ had built long
employ forces. GCCs may establish subunified
term trust and relationships with government of Japan.
commands to conduct operations on a continuing

Functional
subunified command: The employment of
basis when authorized by SecDef through the
SOCPAC and a JSOTF in the Philippines in 2002.
CJCS. A subunified command may be established
SOF well-established relationships with the GCC,
on a geographical area (e.g., United States Forces
country team, and the HN partners enabled rapid and
effective response.
Korea USFK and United States Forces Japan USFJ) or a functional basis (e.g., the Theater
Special Operations Commands (TSOCs) and USCYBERCOM). Commanders of subunified
commands exercise OPCON of assigned commands and forces and normally over attached
forces within the assigned joint operations area or functional area. [See Joint Publication 3-0]
Established subunified commands provide effective options for exercise of C2. They have
established roles, relationships, and understand their respective basis of establishment (e.g.,
ROK, Japan, special operations, and cyberspace using the examples above). They are relatively
permanent organizations. However their C2 capability may be limited to their defined mission
set (Example USFJ may not be structured nor manned to C2 full spectrum operations)
We have not observed subunified commands established in response to crisis (recalling the
earlier description established to conduct operations on a continuing basis). However, while
not officially designated, many observe that USF-I and USFOR-A was / is very similar to a
subunified command. That said, even both of these took years to mature. Both were established
to conduct operations on a relatively continuing basis for a geographic area. In both cases the
GCC had to clearly delineate their authorities, particularly regarding Service-specific matters.
Case in point, delineating Service Component Title 10 responsibilities relative to a USFOR-A
like entity in Afghanistan remains a continuing area of potential confusion.
A TSOC is a functional Subunified Command. It is a proven organizational option through
which a GCC can employ forces. The TSOC is the primary theater SOF organization capable of
conducting broad continuous full spectrum special operations. It is the primary mechanism
through which a GCC exercises C2 over SOF. SOF are rapidly deployable, have operational
reach, and do not constitute irreversible policy commitments. They often have presence
throughout the AOR, have well-established relationships with the GCC, US military and
interagency mission partners, and the various regional military forces in the AOR. Additionally,
recent initiatives are further increasing the capacity of the TSOC to field subordinate, trained and
ready special operations functionally oriented JTFs that may be well suited to address likely
crises. However, the TSOC has relatively limited capacity to direct large scale conventional
operations. (For more information, see USSOCOMs publicized Global SOF network strategy)
Insights:
Subunified commands exemplify considerations of simplicity and responsiveness to conduct
operations within their assigned (relatively permanent) mission sets.
Consider the significant challenges in establishing a subunified command to respond to a crisis.
Recognize and leverage the proven capability of the TSOC as a viable C2 option.

5.0 SINGLE SERVICE FORCE AND SPECIFIC OPERATIONAL FORCES OPTIONS.

Many small to medium crises can be resolved
Examples
through direct employment of a single-Service

Single-Service
Force:
3rd MEB (2013) supporting
force HQ (or specific operational force)
USAID/OFDA in assisting the Government of the
directly subordinate (normally in an OPCON
Philippines after Typhoon Haiyan. Was subordinate
command relationship) to the GCC.
to III MEF and USMARFORPAC. Later transitioned
to JTF 505 with III MEF as the core.

The GCC commander may choose to exercise

Specific operational force: TF Dagger (2001). A
command authority directly through the
JSOTF deployed at the onset of OEF in Afghanistan.
commander(s) of a single-Service force (e.g.,
Subordinate to SOCCENT but reporting directly to
USCENTCOM. Supported by Theater JFACC.
task force, task group, or MAGTF) or a specific
operational force (e.g., SOF for a special
operations core operation), who, because of the mission assigned and the urgency of the
situation, must remain immediately responsive to the CCDR. (Although joint doctrine notes that
the commander will normally assign missions requiring a single-Service force to a Service
component commander, the GCC may opt in this option to directly command and control these
force due to the urgency of the situation.)
We have observed merit in both of these options. Both are normally designated as a Supported
Command and therefore can leverage the capabilities of the broader set of mission partners
without the need to be designated a joint headquarters with its associated forming challenges.
Supporting Commanders can mitigate potential lack of joint expertise in the designated Service
or operational force HQ by deploying liaison elements to assist the Service or SOF HQ to better
understand and access their respective capabilities. The GCC HQ may likely augment the HQ
with subject matter expertise and capabilities (e.g., planners, public affairs, logistics,
communications, and intelligence) to enhance its capabilities.
Insights:
Both options exemplify the principle of simplicity and responsiveness.
Key limitations of these options are the additional burdening the GCC HQ for C2, limits to the
mission scope, and HQ expertise in leveraging capabilities of the full array of mission partners.
Augment the HQ with subject matter expertise and liaison elements to enhance capabilities.
Balance benefit of exercising command authority directly through these types of HQs with the
associated burden and limiting of flexibility for the GCC HQ.
Think through the degree of authority and control that the GCC will retain over a specific crisis
response versus how much to delegate to these subordinate HQ.
Service-specific Title 10 functions remain Theater Service Component responsibilities.
Examples
6.0 JTF OPTION.

JTF-South
in
Operation
JUST
CAUSE (Panama 1989) Core of
A major benefit of the JTF option is its
JTF
HQ
was
XVIII
Airborne
Corps
operating directly under
likely single mission focus and ability to
USSOUTHCOM. Success of mission was facilitated by carefully
direct close integration of mission forces
defined objectives, meticulous planning, and focused training.
in the objective area. A JTF is often
CJTF-HOA (2002-present) critical power projection platform and
delegated significant authority to
works with partner nations, coalition forces, and interagency /
intergovernmental organizations to achieve a unified effort.
execute the mission, often within a
Subordinate to USAFRICOM.
dynamic and challenging political
USEUCOM preparation of several certified JTFs in 2005-2007 to
environment. The JTF commander is
provide multiple options for crisis response.
normally designated as the supported
commander. The JTF option provides the GCC freedom to maintain an AOR-wide focus through

deliberate delegation of authority to the JTF commander coupled with emphasis on sharing a
common understanding of the situation and intent.
A JTF (and often a combined / multinational CJTF) may be established on a geographical area or
functional basis. The mission assigned to a JTF requires execution of responsibilities involving a
joint force on a significant scale and close integration of effort. When the Armed Forces and the
National Guard are employed simultaneously in support of civil authorities in the United States,
a dual-status commander is the usual and customary command and control arrangement
When direct participation by departments other than DOD is significant, the establishing
authority may designate the JTF as a joint interagency task force (JIATF). This might typically
occur when the other interagency partners have primacy and legal authority and the joint
interagency task force provides supporting capabilities, such as for disaster relief and
humanitarian assistance. This designation does not infer any form of DOD authority over those
other departments but rather emphasizes the military role as part of a whole of government
approach. Some long standing JIATFs such as JIATF-South have MOAs or other documents
agreed upon by the relevant agencies that define the roles, responsibilities, and relationships of
their members. These types of JIATFs normally take years to develop, and have clearly defined
authorities and interagency staffing.
There are several sourcing options for a JTF HQ. Normally, a GCC Service Component, its
subordinate HQ (e.g., Army corps, numbered air force, numbered fleet and Marine expeditionary
force and its MEB), or a TSOC or subordinate SOF HQ with the requisite C2 capability can form
the core of a JTF HQ. CCDRs are responsible for verifying the readiness of designated HQs to
establish, organize, and operate as a JTF-capable HQ.
Many commands opt to stand up a JTF from either in-theater forces or from CONUS in response
to a crisis. JTF HQ may have significant forming challenges, especially in a no-notice crisis
response scenario. Newly forming JTF HQ may not have the same degree of AOR understanding
and developed relationships as the Theater Service and Functional Component Commands
(especially if they are sourced from out of theater). Some may be further challenged with
understanding the dynamic strategic environment addressed earlier as they form, plan, and
conduct operations. They may also have manning, equipping, and training challenges that could
delay their forming and C2 capability. Additionally, they will have the concurrent challenges of
receiving and commanding attached subordinate forces, and understanding and leveraging
supporting force capabilities.
Insights:
Consider use of the JTF / CJTF option due to its single mission focus and resultant close
integration / C2 of forces.
Balance the benefits of the JTF option against potential challenges in 1st, forming (i.e., time to
form, receive personnel, and achieve operational capacity) and 2nd, GCC agility (i.e., ability to
rapidly shift focus and forces to other emergent challenges in the AOR.
Mitigate forming challenges through preparation across the man, train, and equip spectrum.
Leverage functional and regional subject matter expertise augmentation e.g., JECC and GCC
personnel (USPACOM has stood up a Deployable JTF HQ Augmentation Cell (DJTFAC) of
GCC HQ-sourced battle rostered personnel). Tailor mission-focused exercise programs. (This
insight applies across all options)

10

7.0 PHASING OF OPTIONS.

Examples
Sometimes, despite best efforts at problem framing, Initial use of a JSOTF in Afghanistan in 2001
supported largely by the Theater JFACC,
design, and understanding the problem, the best C2
transitioning to a CJTF, and later to ISAF.
option may not be immediately obvious and/or may
Initial use in 2003 of CENTCOM functional
not be immediately feasible for a variety of factors.
components in Iraq followed by stand-up of
Thus we frequently see a phasing of options. GCCs
CJTF-7 and later MNC-I and MNF-I.
often opt to use an existing HQ to direct initial
operations as a "first responder" combined with potential alert and stand-up of a follow-on HQ
(e.g., JTF, component HQ, or GCC Forward HQ) in the event that the required scope of response
grows over time. This is a typical scenario for no-warning, natural or man-made disaster.
Phasing allows the follow-on HQ time to form while leveraging initial HQs immediate response
capabilities, understanding of the AOR, and developed relationships.
The stand-up and preparation of the follow-on HQ can also be deliberately shaped by feedback
from the ongoing operation and continuing GCC design and planning results. This phased
approach to options allows the initial crisis response HQ to focus on near term actions while the
follow-on HQ focuses on sequel / next phase requirements and planning.
Insights:
Consider when initial speed of response is important and you expect a long duration mission.
Delineate planning focus of the different HQs. Anticipate and plan for transition.
Consider tasking initially selected HQs to provide key personnel augmentation to subsequent
HQs. This could include deployment of a GCC Forward HQ where necessary.
8.0 MULTINATIONAL and INTERAGENCY CONSIDERATIONS. (See also section 9)
Any organizational option must readily plug into the broader interagency and multinational
approach. As noted in PDD-1, the National Security Council (NSC) is the principal means for
coordinating executive departments and agencies in the development and implementation of
national security policy. In many cases a Lead Federal Agency may be designated (e.g., DOS,
USAID/OFDA, DHS/FEMA, DOJ/FBI); in other cases the POTUS may opt to retain
coordination responsibilities at the National Security Staff and National Security Council level
due to the complexity or dynamic nature of the situation.
The GCC is responsible for setting the conditions for success by their component and
subordinate commands in gaining unity of effort at the operational level. This includes
leveraging the GCCs established networks and relationships on behalf of their components and
subordinates. GCCs ensure there is vertical synchronization of interorganizational coordination
between the GCC and their component and subordinates, as well as horizontal synchronization
among the components and subordinates. This may warrant increased attention.
The designated operational-level commander is responsible for necessary coordination and
cooperation with the relevant interagency and multinational mission partners. This requires
expertise and building of relationships, coupled with developed procedures to ensure inclusion in
each of the partners operational level decision making.
Insights:
Understand CCMD, JS and OSD respective roles and interests for NSS/NSC interaction.
Be prepared to take initiative to gain unity of effort at theater strategic and operational levels.
Clarify necessary authorities and responsibilities for coordination with mission partners.
Ensure respective HQs have the authority, expertise, capability, and capacity to interact at the
appropriate levels with DOD, interagency and multinational partners.
11

9.0 GLOBAL C2 IMPLICATIONS.

Examples
The Unified Command Plan regional focus on
SOCOM, STRATCOM, and TRANSCOM daily
interaction with the GCCs.
GCCs and their geographic AORs has worked well

PACOM, NORTHCOM, and STRATCOM

for decades. However, todays world is much more
coordination supporting homeland defense.
globally connected with transnational, global
EUCOM, AFRICOM, and CENTCOM daily
threats. We see increasingly routine cross-CCMD
interaction working AOR seams, C2, and force
coordination and dotted vs solid AOR boundaries
allocation actions.
that enable timely action and synchronization.
SOUTHCOM, NORTHCOM, and interagency
close coordination.
The UCP, doctrine, and current practice recognize
this global aspect. CCMDs are in a continual state of being both supported and supporting. Each
of the GCCs is normally the supported commander in their respective AOR with others
designated as supporting commanders. Additionally, FCCs may be designated as both supported
and supporting commanders for various mission sets. The above construct is complex due to its
many supported and supporting commanders across time, space, and purpose but works,
primarily due to the recognition by all of the inherent global complexities and resultant continual
dialogue and coordination between CCMDs, the JS, CJCS, and OSD.
Global Synchronizer. A global synchronizer is the CCDR responsible
Planning: The global synchronizer
for the alignment of specified planning and related activities of other
concept (see definition in text box) is
CCMDs, Services, DOD agencies and activities, and as directed,
being used to align planning of others in appropriate USG departments and agencies ... Aligns and harmonizes
plans and recommend sequencing of actions to achieve the strategic
order to get at some of the global C2
end states and objectives of a Global Campaign Plan.
JP 1
challenges. The directed global
synchronizer aligns and harmonizes plans and recommends sequencing of actions to achieve the
strategic end states and objectives of a global requirement. These global synchronizers (such as
SOCOM and STRATCOM, or as directed a GCC) are oriented on aligning planning activities
with the recognition that the SecDef supported by the CJCS will likely synchronize execution.
This concept, coupled with OSD and JS initiatives aligning and nesting related CONPLANs and
OPLANs in more inclusive review processes, helps instill CCMD-wide awareness of global
implications relative to individual CCMD plans.
Execution: The SecDef, CJCS, JS, and the CCMDs are continually working through global and
cross-AOR / cross-CCMD challenges every day. The personal linkages between the CCMDs, the
JS J-Dirs, the CJCS, and the SecDef are strong. However there is a potential need for more
refined JS processes to help discern global implications of a problem set, anticipate cross-CCMD
challenges, and integrate CCMD efforts in support of senior leader dialogue and national level
The Joint Staff supports the JCS and constitutes
decision making.
the immediate SecDef military staff.
JP 1
Insights:
Globally integrated operations demand shared understanding of the global context of the
problem among OSD, CJCS, JS, Combatant Commands and mission partners, and clear
understanding of global priorities to inform planning, resource allocation, and execution.
Retain and leverage current GCC and FCC planning and execution responsibilities. Emphasize
importance of cross-CCMD coordination to operate at the speed of the problem.
Refine JS roles and functions, and rehearse staff processes to support CJCS and SecDef
dialogue, risk assessment, development of global options, prioritization, and other nearinstantaneous decision requirements in rapidly evolving global scenarios. Consider use of the
proven construct for planning horizons (current ops, future ops, and future plans) to enable
development of global options during rapidly evolving global crises - should include branches
and sequels from a global perspective.
12

10.0 CONCLUSION.
Summary: C2 is clearly an important up-front
focus area of GCCs as part of setting conditions for
operations. We continually see the importance of
critical analysis and decisions on C2 organizational
options and subsequent assessment to ensure
effectiveness. The C2 organizational options
introduced in joint doctrine and discussed here
should be one of the primary distinguishing components of the courses of action developed by
GCC planners for decision.
The considerations introduced in this paper are intended to assist a GCC staff in their
development of the many different C2 organizational options through which a GCC can employ
forces as they support broader USG and DOD efforts. These are not the only considerations, but
may assist in arriving at the option that best enables mission success.
Insights:
C2 is an important up-front decision made
by a GCC as part of setting conditions for
operations. Ensure flexibility and
adaptability to capitalize on fleeting
opportunities and mitigate challenges.
Consider all feasible C2 options early in a
crisis as part of COA development,
analysis, and recommendation.
Anticipate transitions and associated C2
constructs to avoid shooting behind the
duck in development of C2.
Continue to refine processes to integrate CCMD efforts in support of senior leader dialogue
and national level decision making on global / cross-CCMD problem sets.
Training and Exercise Implications: A quality training and exercise program will provide
quality feedback on GCC OPLANs and CONPLANs, and can help increase both readiness and
capacity of the relevant joint and service HQs for the C2 options noted in this paper. Exercise
objectives should directly support both Theater Campaign Plan requirements and specific unit
readiness requirements.
Considerations:
Analyze costs/benefits to derive a recommended exercise program that achieves the greatest
operational and strategic risk reduction within budget.
Ensure J2, J3, J5, and J7 work together to jointly craft exercises that directly correlate to TCP
and readiness requirements. Directly link exercise and training objectives to real world
readiness, both of US forces and regional partners (e.g., the building partner capacity aspect).
Use exercises to assess / validate planned C2 organizational options and identify potential
required transitions to other C2 constructs. Consider global aspects in exercise constructs.
Use exercises to increase readiness and assess capacity of the selected operational
headquarters, both joint and service HQ, to execute the mission.
Leverage senior leader seminars and tabletop exercises to enrich understanding and identify
challenges for subsequent analysis in exercises and incorporation into plan revisions.
13

GLOSSARY
Abbreviations and Acronyms
AOR Area of Responsibility
C2 Command and Control
CCMD Combatant Command
COA Course of Action
CONOPS Concept of Operations
CONPLAN Concept of Operation Plan
CSA Combat Support Activity
DHS Department of Homeland Security
DJTFAC Deployable JTF Augmentation Cell
DOJ Department of Justice
DOS Department of State
DSCA Defense Support of Civil Authority
FBI Federal Bureau of Investigation
FCC Functional Combatant Commander
FDR Foreign Disaster Relief
FHA Foreign Humanitarian Assistance
FEMA Federal Emergency Management
Agency
GCC Geographic Combatant Commander
HQ Headquarters
IA Interagency
IJC International Security Assistance Force
Joint Command
ISAF International Security Assistance Force
J-Dir Joint Staff Directorate
JFACC Joint Force Air Component
Commander
JFCC Joint Functional Component Command
JLLIS Joint Lessons Learned Information
System
JS Joint Staff
JSOTF Joint Special Operations Task Force
JTF Joint Task Force
LFA Lead Federal Agency
MAGTF Marine Air Ground Task Force
MARFORPAC Marine Corps Forces Pacific

MEB Marine Expeditionary Brigade

MEF Marine Expeditionary Force
MN Multinational
MNC-I Multinational Corps Iraq
MNF-I Multinational Force Iraq
NSC National Security Council
NSS National Security Staff
OFDA Office of Foreign Disaster Assistance
OPCON Operational Control
OPLAN Operations Plan
OPT Operational Planning Team
OSD Office of the Secretary of Defense
ROK Republic of Korea
SO Special Operations
SOCCENT Special Operations Command
Central
SOCPAC Special Operations Command
Pacific
SOF Special Operations Forces
SOJTF Special Operations JTF
TCP Theater Campaign Plan
TSOC Theater Special Operations Command
UCP Unified Command Plan
UNSCR United Nations Security Council
Resolution(s)
USAID United States Agency for
International Development
USCYBERCOM United States Cyber
Command
USF-I United States Forces Iraq
USFJ United States Forces Japan
USFK United States Forces Korea
USFOR-A United States Forces Afghanistan
USSTRATCOM United States Strategic
Command

GL