JP_1_Chapter_5.pdf

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Joint Publication 1

Doctrine for the Armed Forces
of the United States

25 March 2013
Incorporating Change 1

12 July 2017

Joint Publication 1, Doctrine for the Armed Forces of the United States, is the
capstone publication for all joint doctrine, presenting fundamental principles and
overarching guidance for the employment of the Armed Forces of the United States. This
represents the evolution in our warfighting guidance and military theory that forms the core
of joint warfighting doctrine and establishes the framework for our forces’ ability to fight
as a joint team.

It is vital that we not only develop our military capabilities, but also strengthen the
capacity of other government departments and agencies. This publication ties joint
doctrine to the national security strategy and national military strategy and describes the
military’s role in the development of national policy and strategy. It thus provides the
linkage between joint doctrine and the contribution of other government departments and
agencies and multinational endeavors.

As we look globally at our posture and the associated strategic risk, it is imperative

that our doctrine also rapidly adjust to reflect our wartime footing. The guidance in this
publication will enable current and future leaders of the Armed Forces of the United States
to organize, train, and execute worldwide missions as our forces transform to meet
emerging challenges. The joint force must simultaneously think ahead at the strategic
level, stay current at the operational level, and be informed by tactical level developments.

I challenge all commanders to ensure the widest distribution of this capstone joint

publication and actively promote the use of all joint publications at every opportunity. I
further challenge you to study and understand the guidance contained in this publication
and teach these principles to your subordinates. Only then will we be able to fully exploit
the remarkable military potential inherent in our joint teams.

MARTIN E. DEMPSEY
General, U.S. Army

i

PREFACE

1. Scope

This publication is the capstone joint doctrine publication and provides doctrine for
unified action by the Armed Forces of the United States. It specifies the authorized
command relationships and authority that military commanders can use, provides guidance
for the exercise of that military authority, provides fundamental principles and guidance
for command and control, prescribes guidance for organizing and developing joint forces,
and describes policy for selected joint activities. It also provides the doctrinal basis for
interagency coordination and for US military involvement in multiagency and
multinational operations.

2. Purpose

a. The US Armed Forces fulfill unique and crucial roles, defending the US against all
adversaries while serving the Nation as a bulwark and the guarantor of its security and
independence. The US Armed Forces function within the American system of civil-
military relations and serve under the civilian control of the President, the Commander in
Chief. The US Armed Forces embody the highest values and standards of American
society and the profession of arms.

b. The nature of the challenges to the US and its interests demand that the Armed
Forces operate as a closely integrated joint team with interagency and multinational
partners across the range of military operations. Using a whole-of-government approach
is essential to advancing our interests to strengthen security relationships and capacity by,
with, and through military forces of partner nations, US and foreign government agencies,
state and local government agencies, and intergovernmental or nongovernmental
organizations. To succeed, we must refine and proportionally integrate the military with
all of the tools of American power and work with our partner nations to do the same. Our
military must maintain its conventional superiority while continuing to enhance its capacity
to defeat threats. As long as nuclear weapons exist, our nuclear deterrent capability must
also be maintained and modernized. When international forces are needed to respond to
threats and keep the peace, we will make every effort to ensure international partners are
ready, able, and willing. We will continue to build support in other countries and promote
global peace and stability through the United Nations and other regional organizations,
such as the North Atlantic Treaty Organization and the African Union.

c. Joint Operations. Effective integration of joint forces is intended to address
functional or geographic vulnerabilities. This does not mean that all forces will be equally
represented in each operation. Joint force commanders (JFCs) may choose the capabilities
they need from the forces at their disposal.

Preface

ii JP 1

3. Application

a. This publication is written to assist members of the Armed Forces of the United
States, including the National Guard, to operate successfully together. The joint team is
composed of the members of each Service, Department of Defense agencies, as well as
associated civilians supporting governmental and private sector workforces. The guidance
in this publication is broad, authoritative, and serves as a foundation for the development
of more specific joint guidance. This doctrine will be followed except when, in the
judgment of the commander, exceptional circumstances dictate otherwise.

b. To ensure the Armed Forces achieve their fullest potential, all US military leaders
shall incorporate the doctrine and philosophy of this publication into their efforts to develop
leaders and train forces for joint and multinational operations. JFCs shall incorporate the
guidelines and philosophies of this doctrine as fundamental precepts while conducting
interagency coordination.

c. The Services and United States Special Operations Command (in areas unique to
special operations) have specific responsibilities under Title 10, United States Code (USC),
to organize, train, equip, prepare, and maintain their forces. The National Guard has
similar, specific responsibilities under Title 32, USC, and includes domestic operations.
These forces are employed under JFCs. Service equipment, systems, and manpower skills
form the very core of US military capability. Joint warfare relies upon effective
coordination of Service capabilities and expertise. When integrated into joint operations
with partner military Services and other defense, logistical, and intelligence agencies, they
become capable of unified action. Successful joint operations merge capabilities and skill
sets of assigned Service components. Interoperability and effective integration of service
capabilities enhance joint operations to accomplish US Government objective(s), building
on US traditions of conducting joint operations that began with the Revolutionary War.

d. The growing threats to US and allied interests throughout the world demand US
forces be proficient across the range of military operations. The fundamental principles
that guide operations are recorded in joint doctrine. Joint operations are conducted
routinely and efficiently in the current operational environment. To maintain and enhance
this efficiency, joint leaders must diligently study, apply, teach, and ultimately provide
insights to improve joint doctrine.

iii

SUMMARY OF CHANGES
REVISION OF JOINT PUBLICATION 1, DATED 02 MAY 2007,

CHANGE 1, DATED 20 MARCH 2009

• Adds a theory section to the introductory chapter.

• Adds a joint force development chapter, including a section on joint concepts and
assessment.

• Establishes a taxonomy relating to war, warfare, campaign, and operation.

• Establishes a taxonomy relating to policy, strategy, doctrine, and concepts.

• Establishes and defines “global synchronizer.”

• Clarifies the role of the Department of Defense relative to information operations
to improve efficiency in planning and execution of military operations.

• Expands the role of commander’s communication synchronization and
information operations.

• Adds information on Global Force Management Implementation Guidance
resulting from the closure of Joint Forces Command.

• Introduces “total force fitness” as a value of joint service.

• Reduces redundancies and improves continuity between Joint Publication (JP) 1,
Doctrine for the Armed Forces of the United States, and JP 3-0, Joint Operations.

• Reduces redundancies and improves continuity between JP 1, Doctrine for the
Armed Forces of the United States, and JP 5-0, Joint Operation Planning.

• Establishes information as the seventh joint function. (Change 1)

Summary of Changes

iv JP 1

Intentionally Blank

v

TABLE OF CONTENTS

EXECUTIVE SUMMARY ………………………………………………………………………………….. ix

CHAPTER I
THEORY AND FOUNDATIONS

Section A. Theory ………………………………………………………………………………………………. I-1
 Fundamentals ……………………………………………………………………………………………….. I-1
 War ……………………………………………………………………………………………………………… I-2
 Warfare ……………………………………………………………………………………………………….. I-4
 Forms of Warfare ………………………………………………………………………………………….. I-5
 Levels of Warfare …………………………………………………………………………………………. I-7
 Campaigns and Operations …………………………………………………………………………….. I-9
 Task, Function, and Mission …………………………………………………………………………… I-9

Section B. Foundations ……………………………………………………………………………………… I-10
 Strategic Security Environment and National Security Challenges ……………………. I-10
 Instruments of National Power and the Range of Military Operations ……………….. I-12
 Joint Operations ………………………………………………………………………………………….. I-16
 Joint Functions ……………………………………………………………………………………………. I-17
 Joint Operation Planning………………………………………………………………………………. I-19
 of War ………………………………………………………………………………………………… I-21

CHAPTER II
DOCTRINE GOVERNING UNIFIED DIRECTION OF ARMED FORCES

 National Strategic Direction …………………………………………………………………………..II-1
 Strategic Guidance and Responsibilities …………………………………………………………..II-3
 Unified Action ……………………………………………………………………………………………..II-8
 Roles and Functions …………………………………………………………………………………….. II-9
 Chain of Command ……………………………………………………………………………………….II-9
 Unified Command Plan ………………………………………………………………………………..II-11
 Combatant Commands …………………………………………………………………………………II-11
 Military Departments, Services, Forces, Combat Support Agencies, and

National Guard Bureau ………………………………………………………………………………..II-11
 Relationship Among Combatant Commanders,

Military Department Secretaries, Service Chiefs, and Forces ……………………………II-13
 Interagency Coordination ……………………………………………………………………………..II-13
 Multinational Operations ……………………………………………………………………………..II-21

CHAPTER III
FUNCTIONS OF THE DEPARTMENT OF DEFENSE AND ITS MAJOR
COMPONENTS

Section A. Department of Defense …………………………………………………………………….. III-1
 General ……………………………………………………………………………………………………… III-1

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vi JP 1

 Organizations in the Department of Defense ………………………………………………….. III-1
 Functions of the Department of Defense ……………………………………………………….. III-1
 Functions and Responsibilities Within the Department of Defense …………………… III-2
 Executive Agents ……………………………………………………………………………………….. III-2

Section B. Joint Chiefs of Staff ………………………………………………………………………….. III-3
 Composition and Functions …………………………………………………………………………. III-3
 Chairman of the Joint Chiefs of Staff ……………………………………………………………. III-4
 Vice Chairman of the Joint Chiefs of Staff …………………………………………………….. III-5
 Joint Staff ………………………………………………………………………………………………….. III-6

Section C. Military Departments and Services …………………………………………………….. III-6
 Common Functions of the Services and the

United States Special Operations Command ………………………………………………….. III-6

Section D. Combatant Commanders …………………………………………………………………… III-7
 General ……………………………………………………………………………………………………… III-7
 Geographic Combatant Command Responsibilities ………………………………………… III-8
 Functional Combatant Command Responsibilities ………………………………………….. III-9
 Statutory Command Authority ……………………………………………………………………. III-11
 Authority Over Subordinate Commanders …………………………………………………… III-11
 Department of Defense Agencies ……………………………………………………………….. III-12

CHAPTER IV
JOINT COMMAND ORGANIZATIONS

Section A. Establishing Unified and Subordinate Joint Commands ………………………… IV-1
 General ……………………………………………………………………………………………………… IV-1
 Unified Combatant Command ……………………………………………………………………… IV-5
 Specified Combatant Command …………………………………………………………………… IV-9
 Subordinate Unified Command ………………………………………………………………….. IV-10
 Joint Task Force ……………………………………………………………………………………….. IV-10

Section B. Commander, Staff, and Components of a Joint Force …………………………. IV-12
 Commander Responsibilities ……………………………………………………………………… IV-12
 Staff of a Joint Force …………………………………………………………………………………. IV-13
 Service Component Commands ………………………………………………………………….. IV-15
 Functional Component Commands ……………………………………………………………… IV-17

Section C. Discipline ……………………………………………………………………………………… IV-18
 Responsibility ………………………………………………………………………………………….. IV-18
 Uniform Code of Military Justice ……………………………………………………………….. IV-19
 Rules and Regulations……………………………………………………………………………….. IV-19
 Jurisdiction ………………………………………………………………………………………………. IV-19
 Trial and Punishment ………………………………………………………………………………… IV-20

Section D. Personnel Service Support and Administration ………………………………….. IV-21
 Morale, Welfare, and Recreation ………………………………………………………………… IV-21

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vii

 Awards and Decorations ……………………………………………………………………………. IV-21
 Efficiency, Fitness, and Performance Reports ………………………………………………. IV-21
 Total Force Fitness ……………………………………………………………………………………. IV-21
 Personnel Accountability …………………………………………………………………………… IV-22
 Religious Affairs ………………………………………………………………………………………. IV-22
 Information Management …………………………………………………………………………… IV-23

CHAPTER V
JOINT COMMAND AND CONTROL

Section A. Command Relationships ……………………………………………………………………. V-1
 General Principles ……………………………………………………………………………………….. V-1
 Combatant Command (Command Authority) …………………………………………………. V-2
 Operational Control …………………………………………………………………………………….. V-6
 Tactical Control ………………………………………………………………………………………….. V-7
 Support ………………………………………………………………………………………………………. V-8
 Support Relationships Between Combatant Commanders ………………………………… V-9
 Support Relationships Between Component Commanders ……………………………… V-10
 Command Relationships and Assignment and Transfer of Forces ……………………. V-11
 Other Authorities ………………………………………………………………………………………. V-12
 Command of National Guard and Reserve Forces …………………………………………. V-13

Section B. Command and Control of Joint Forces ………………………………………………. V-14
 Background ………………………………………………………………………………………………. V-14
 Command and Control Fundamentals ………………………………………………………….. V-14
 Organization for Joint Command and Control……………………………………………….. V-18
 Joint Command and Staff Process ……………………………………………………………….. V-19
 Command and Control Support …………………………………………………………………… V-20
 National Military Command System ……………………………………………………………. V-20
 Nuclear Command and Control System ……………………………………………………….. V-20
 Defense Continuity Program……………………………………………………………………….. V-21

CHAPTER VI
JOINT FORCE DEVELOPMENT

Section A. Fundamentals of Joint Force Development …………………………………………. VI-1
 Principles…………………………………………………………………………………………………… VI-1
 Authorities…………………………………………………………………………………………………. VI-1

Section B. Joint Force Development Process ………………………………………………………. VI-2
 Joint Force Development …………………………………………………………………………….. VI-2
 Joint Doctrine …………………………………………………………………………………………….. VI-3
 Joint Education…………………………………………………………………………………………… VI-4
 Joint Training …………………………………………………………………………………………….. VI-6
 Lessons Learned …………………………………………………………………………………………. VI-8
 Joint Concepts and Assessment ……………………………………………………………………. VI-9

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viii JP 1

APPENDIX

A Establishing Directive (Support Relationship) Considerations …………………… A-1
B The Profession of Arms ………………………………………………………………………….B-1
C References ……………………………………………………………………………………………C-1
D Administrative Instructions …………………………………………………………………… D-1

GLOSSARY

Part I Abbreviations and Acronyms ………………………………………………………… GL-1
Part II Terms and Definitions ………………………………………………………………….. GL-5

FIGURE

I-1 Principles of War …………………………………………………………………………….. I-3
I-2 Levels of Warfare ……………………………………………………………………………. I-7
I-3 Range of Military Operations ………………………………………………………….. I-14
II-1 Strategy, Planning, and Resourcing Process ……………………………………….II-5
II-2 Unified Action ………………………………………………………………………………..II-8
II-3 Chain of Command ……………………………………………………………………….II-10
II-4 Notional Joint Interagency Coordination Group Structure ………………….II-19
II-5 Notional Composition of a Civil-Military Operations Center ……………..II-20
II-6 Notional Multinational Command Structure ……………………………………..II-24
III-1 Command Functions of a Combatant Commander ………………………….. III-11
IV-1 Possible Components in a Joint Force ……………………………………………… IV-3
IV-2 Unified Combatant Command Organizational Options ……………………… IV-6
IV-3 Specified Combatant Command Organizational Options …………………… IV-9
IV-4 Subordinate Unified Command Organizational Options ………………….. IV-10
IV-5 Joint Task Force Organizational Options ……………………………………….. IV-11
V-1 Command Relationships Synopsis …………………………………………………… V-2
V-2 Categories of Support …………………………………………………………………… V-10
V-3 Transfer of Forces and Command Relationships Overview ………………. V-11
VI-1 Joint Force Development Life Cycle ………………………………………………. VI-2

ix

EXECUTIVE SUMMARY
COMMANDER’S OVERVIEW

• Discusses the Theory and Foundations of Joint Doctrine

• Characterizes Doctrine Governing Unified Direction of Armed Forces

• Outlines the Functions of the Department of Defense and Its Major Components

• Details Doctrine for Joint Commands

• Describes the Fundamental Principles for Joint Command and Control

• Addresses Joint Force Development

Theory and Foundations

This publication provides
overarching guidance and
fundamental principles for the
employment of the Armed
Forces of the United States.

Joint Publication 1 is the capstone publication of the US
joint doctrine hierarchy. It is a bridge between policy
and doctrine and describes the authorized command
relationships and authority that military commanders
can use and other operational matters derived from Title
10, United States Code (USC). The purpose of joint
doctrine is to enhance the operational effectiveness of
joint forces by providing fundamental principles that
guide the employment of US military forces toward a
common objective.

Jointness of the Joint Force Jointness implies cross-Service combination wherein
the capability of the joint force is understood to be
synergistic, with the sum greater than its parts (the
capability of individual components). The joint force is
a values based organization. The character,
professionalism, and values of our military leaders have
proven to be vital for operational success.  

War is socially sanctioned
violence to achieve a political
purpose.

War can result from the failure of states to resolve their
disputes by diplomatic means. War historically involves
nine principles, collectively and classically known as the
principles of war (objective, offensive, mass, economy
of force, maneuver, unity of command, security,
surprise, and simplicity).

Warfare is the mechanism,
method, or modality of armed

Warfare continues to change and be transformed by
society, diplomacy, politics, and technology. The US

Executive Summary

x JP 1

conflict against an enemy.
It is “the how” of waging war.

military recognizes two basic forms of warfare—
traditional and irregular. The forms of warfare are
applied not in terms of an “either/or” choice, but in
various combinations to suit a combatant’s strategy and
capabilities.

The US military recognizes
two basic forms of warfare—
traditional and irregular.

A useful dichotomy for thinking about warfare is the
distinction between traditional and irregular warfare
(IW). Traditional warfare is characterized as a violent
struggle for domination between nation-states or
coalitions and alliances of nation-states. With the
increasingly rare case of formally declared war,
traditional warfare typically involves force-on-force
military operations in which adversaries employ a
variety of conventional forces and special operations
forces (SOF) against each other in all physical domains
as well as the information environment (which includes
cyberspace). IW is characterized as a violent struggle
among state and non-state actors for legitimacy and
influence over the relevant population(s). In IW, a less
powerful adversary seeks to disrupt or negate the
military capabilities and advantages of a more powerful
military force, which usually serves that nation’s
established government.

Levels of Warfare While the various forms and methods of warfare are
ultimately expressed in concrete military action, the
three levels of warfare—strategic, operational, and
tactical—link tactical actions to achievement of national
objectives. There are no finite limits or boundaries
between these levels, but they help commanders design
and synchronize operations, allocate resources, and
assign tasks to the appropriate command.

Campaigns and Operations An operation is a sequence of tactical actions with a
common purpose or unifying theme. An operation may
entail the process of carrying on combat, including
movement, supply, attack, defense, and maneuvers
needed to achieve the objective of any battle or
campaign. A campaign is a series of related major
operations aimed at achieving strategic and operational
objectives within a given time and space.

Task, Function, and Mission A task is a clearly defined action or activity assigned to
an individual or organization. It is a specific assignment
that must be done as it is imposed by an appropriate
authority. A function is the broad, general, and

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xi

enduring role for which an organization is …