1. Course of Action Development
Deployable Joint Task Force Augmentation Cell (DJTFAC)
Multinational Planning Augmentation Team (MPAT)
Course of Action Development
Major Paul Zavislak
1. The purpose of this module is to discuss techniques and procedures for developing courses of action, or COAs. A course of action is a broad statement of possible ways, or specific operations, and means, or specific forces, by which the multinational task force might achieve the operational end state of the assigned mission.
2. We will cover where course of action development falls in the crisis action planning and commander’s estimate processes and some key planning concepts to keep in when developing COAs.
3. The majority of this module will cover the 8 task steps to developing valid, operational-level COAs.
4. Shown here are some key U.S. military references
5. This module
discusses course of action development based on U.S. military doctrine and techniques.

2. Purpose
Discuss techniques and procedures for developing courses of action
Operational level
Course of Action (COA) must be valid

3. References
Chairman, Joint Chiefs of Staff Manual , CTF Headquarters Master Training Guide, 15 April 1997
Joint Pub 5-0, Doctrine for Planning Joint Operations, 13 April 1995
JP , Joint Task Force Planning Guidance and Procedures, 13 January 1999
CJCSM , Joint Operation Planning and Execution System, Volume I, (Planning Policies and Procedures), 14 July 2000, Chg 1 25 May 2001

4. Crisis Action Planning Process
Situation
Development II
Crisis
Assessment
III
Course of
Action
Development IV
Course of
Action
Selection V
Execution
Planning
OPORD
&
Deployment
Data Base VI
Execution
And/or
Warning
Order
Planning
Order
Alert
Order
Execute
Order I
Mission Analysis II
Course of Action
Development
III
Analysis of Opposing
Courses of Action IV
Comparison of Own
Courses of Action
1. The course of action development phase of crisis action planning implements a National Command Authorities decision to develop military options in response to a crisis and will usually begin upon receipt of a Commander in Chief’s, or cinc’s warning order. In our present scenario, General Headquarters, Armed Forces of the Philippines, has issued a warning order. This warning order will establish command relationships and identify the mission and any planning constraints the multinational force staff must consider.
 2. Receipt of the warning order initiates the commander’s estimate process, and mission analysis is the first step and perhaps the most important aspect of the commander’s estimate process. In essence, from mission analysis, we know where the CTF is going. COA development is all about how we get there.
3. There are several key planning concepts that will enhance the suitability of COAs the staff develops: the course of action must accomplish the mission and comply with higher headquarters intent and guidance; it must also comply with the CTF commander’s guidance.
4. Course of action development focuses on exploiting the enemies’ centers of gravity and defending our own centers of gravity. 
5. In our present scenario example, there is no “enemy”, rather the threat is environmental; for example, the effects of the volcano and super-typhoons-that is, threats to health and safety of the population in the affected areas.
6. Thus our focus in our scenario should be on our own center of gravity: our coalition of multinational forces, and those non-governmental organizations assisting in the disaster response and recovery efforts.
7. Phasing the operation makes the course of action more understandable and easier to analyze later in the commander’s estimate process. Phasing that is common to each course of action will also help- in other words, all courses of action should have the same types of phases, covering the life cycle of the CTF at a minimum; that is, deployment, lodgment/buildup, decisive action, follow through or transition, and redeployment. V
Commander’s
Decision
Commander’s Estimate Process

5. Course of Action Development
The COA is a broad statement of one way to accomplish a mission.
WHO - will accomplish essential tasks
WHAT - is the type of mission to be conducted
WHEN - the operation must begin or must be completed
WHERE - the combined operation will be executed
WHY - or the purpose of the operation
HOW - or the method of conducting the
operation using major available
resources
Develop
Initial COAs
Initial Test
for Validity
Determine
C2 Means
COA Statement
& Sketch
1. What will the courses of action contain?
2. Do not confuse courses of action with the mission statement that was developed during mission analysis. Whereas the mission statement only identifies the five “Ws”-who-what-when-where-and why, the COAs provide the “how”
3. The end product of our course of action development process is a set of COAs, approved by the multinational force commander and available for further analysis and comparison by the staff.
4. COAs do not need to be overly detailed, but should be developed in enough detail to allow for analysis, or wargaming and comparison.
5. Each of the task steps in course of action development are shown in
the lower-left portion of the screen. We will cover these steps in detail.
Brief COAs
to CCTF
CCTF Approves
COAs
Task Steps
Staff
estimates
Vertical & Horizontal planning

6. Prepare for COA Development
Plan to plan
One big group?
Several groups?
Simultaneous or sequential
development?
Brainstorm
Be bold in concept
Be general by component
Be open to new ideas
Be unconstrained
COA Development—Things to Avoid
The intended COA
The clone of the Intended COA
The throw away
Nested COAs
 1. Before discussing the steps of COA development, let’s briefly discuss some of the ways to approach this task.
 2. Planning to plan seems basic, but someone needs to take the lead and decide how the initial courses of action will be developed. Will there be one big group developing COAs, or several small groups, or will one person come up with several strawman COAs? There are advantages and disadvantages to each method.
3. Simultaneous development involves separate groups each developing different COAs at the same time. This method has the advantage of potentially saving time. The disadvantages are that the synergy of the joint planning group, or CPG, as a group is disrupted; it is manpower intensive, requiring component and directorate representation in each group. Sequential development is when the CPG-one large planning group-develops each course of action in sequence. The advantages of this method are that it is less manpower intensive and all planners have the same fundamental understanding of each COA. The major disadvantage is that time constraints may force inadequate treatment of each COA, or that only the first COA may be developed in greater detail than other COAs.
4. Brainstorm your ideas. That is, have an open discussion and explore all possible options. This is the time to be bold and unconstrained. For example, it is not U.S. Army procedure to deploy its helicopters from a U.S. naval aircraft carrier, but it has been done, and might be a viable option to consider in future humanitarian assistance operations, depending on the forces available and the situation.
 5.There are traps, or pitfalls, in course of action development that we must avoid.
 6. In many organizations, the planning process follow one of the paths indicated in the starburst graphic. For example, a higher level planner decides what the course of action will be before the staff conducts an analysis.  7. Or the CPG develops a second course of action that looks like the intended, desired course of action, but lacks enough difference to provide the commander a true choice to make between the two COA.
8. A throwaway COA is one developed to ensure the staff has more than one COA to present to the commander, but one that is so far from the commander’s intent that it stands no chance of selection.
 9. Lastly, similar to the clone of the intended COA, nested COAs do not really give the commander meaningful options because they are basically the same, but with graduated, added aspects.
 10. This is wrong. If we fall into one of these pitfalls, we have subverted or undermined the decision making process. The staff should present real, meaningful choices to the commander for his consideration and decision.
 11. Three courses of action is a rule of thumb, or typical, but is not the maximum number of courses of action to consider. We could develop more. Time available for COA development, as well as the complexity of the situation, may determine how many COAs can be adequately developed. 
The commander may make the decision before all the facts
are gathered and analysis is complete

7. Develop Initial COAs Course of Action Development
Review mission analysis / CTF commander planning guidance
Develop plans to integrate the multinational environment
Focus on centers of gravity
Identify sequencing and phasing for each COA
Identify main and supporting efforts
Identify component level missions/tasks
Develop information operations support items
Initial Test
for Validity
Determine
C2 Means
COA Statement
& Sketch
Brief COAs
to CCTF
1. The first step in course of action development is to develop initial courses of action. This slide shows some of the important considerations when developing initial COAs:
2. Review information contained in the mission analysis, and the CTF commander’s guidance.
3. Develop plans that integrate and synchronize multinational forces.
4. Focus on friendly and threat centers of gravity.
5. Identify sequencing and phasing of the operation for each course of action.
6. Identify main and supporting efforts, by phase, the purpose of these efforts, and key supporting and supported relationships within the phases.
7. Identify the component level mission and tasks that will accomplish the main and supporting efforts
8. Finally, develop information operations campaign. This includes support from public affairs, psychological operations, and civil affairs.
CCTF Approves
COAs
Staff
estimates
Vertical & horizontal planning
Course of Action Development

8. Test COA Validity

9. Test COA Validity Course of Action Development Is the COA suitable?
Initial COAs
Is the COA suitable?
Is the COA feasible?
Is the COA acceptable?
Is the COA complete?
Are the COAs distinguishable?
Initial Test
for Validity
Determine
C2 Means
COA Statement
& Sketch
Brief COAs
to CCTF
CCTF Approves
COAs
Staff
estimates
Vertical & horizontal planning
Course of Action Development

10. Test COA Validity SUITABLE FEASIBLE ACCEPTABLE Will the COA:
Accomplish Msn?
Meet Cmdr’s Intent?
Accomplish all essential tasks?
Meet conditions of desired endstate?
Consider COG on both sides?
Do we have the required resources to accomplish the mission and will they be available in the operations area in time?
Forces / Capability
Strategic Lift / Transportation
Sustainment / Resupply
Support facilities
1. Is the course of action suitable: This is the first check on the course of action: that is, if executed as designed, will we accomplish our mission and does it meet MNF commander’s intent? Does it accomplish all of the essential tasks? Does the course of action allow the multinational task force to meet the conditions for the desired end state? For example, in a force-on-force military operation, destroying dams or power plants might be the most expedient means of destroying certain enemy capabilities, but if the desired end state is a functioning infrastructure, there might be another way to achieve the immediate military objective while minimizing collateral damage? For a HA/DR CTF deploying a robust medical capability, with all the required logistic and force protection assets, may appear to be the best solution to solve immediate medical requirements, but this course of action might only be possible at the expense of other needed services, and maybe the host nation’s real needs are not provision of medical care, but just delivery and resupply of medicines and medical supplies. Does the COA take into consideration the threat and friendly centers of gravity?
2. Next, is the course of action feasible: Do we have the forces necessary to accomplish the task and can we get the forces there in time?  The course of action is feasible if it can be carried out with the forces, support and technology available, within the constraints of the physical environment, and against the expected threat. The determination of feasibility also implies an initial analysis of transportation requirements prior to this step of course of action development. This test for feasibility occurs again during course of action analysis phase; however, it may be possible at this early stage to determine whether or not a particular course of action is feasible, and either eliminated from further analysis or proposed to the commander.
3. Is the course of action acceptable: Does it take into account the limitations placed on the multinational force in the warning order? Does it reflect political realities? Are the risks associated with the course of action minimized to and acceptable degree?   Like the test for feasibility, we will examine issues of acceptabiloity during course of action analysis. Note that there is no reason to continue to develop a course of action if the risks or potential loses are unacceptable to the multinational task commander or higher authority, unless they can be mitigated through modification of the COA.
ACCEPTABLE
Even though the action will accomplish the mission and we have the necessary resources, is it worth cost in terms of possible losses (ie. Risk). Besides just military losses, the CCTF must consider:
Loss in Position Legal / Ethical
Loss in Time
Political Acceptability

11. Test COA Validity Are the COAs significantly different DISTINGUISHABLE
From CCTF perspective?
From the perspective of HHQ?
From the perspective of the coalition NCA?
ie. main effort, scheme of employment, task org,reserve use
DISTINGUISHABLE
Are the COAs technically complete? Will the COAs:
WHO will execute it?
WHAT type of action is contemplated?
WHEN will it begin?
WHERE will it take place?
HOW will it be accomplished?
WHY key actions are required?
JP , IX-44
COMPLETE
1. Is the course of action complete:
2. You should conduct an overall preliminary check for completeness.
3. Ensure that the course of action incorporates all tasks to be accomplished, the forces required and their employment concept, the logistics concept, execution time line, use of reserves, and achievement of the end state.
4. Are the different courses of action distinguishable from one another:
5. Variety in courses of action is necessary. If our COAs are alike, the multinational force commander, the higher headquarters, and the national command authorities will have no real decision to make.
7. What makes one course of action different from another? Here are some key points of differentiation. Focus or direction of the main effort. Scheme of employment.    Primary mechanism for mission accomplishment. Task organization. Use of reserves, determine its own reserve requirements?
 8. Variety may also come from an incremental application of CTF capabilities over time.

12. Determine Command & Control Means
Develop
Initial COAs
Initial Test
for Validity
Determine command relationships
Operational Control (OPCON)
Tactical Control (TACON)
Support (general, direct, close)
Organizational options
Service components
Functional components
Subordinate CTF or TF
Determine control measures
Determine
C2 Means
COA Statement
& Sketch
Brief COAs
to CCTF
CCTF Approves
COAs
Staff
estimates
Vertical & horizontal planning
Course of Action Development

13. CTF Organizational Structure Examples
CCTF
NATIONAL C2 STRUCTURE
“X” FORCES
“Y” FORCES
COALITION – AD HOC
COMBINED – ALLIANCE, TREATY
OR OTHER FORMAL
AGREEMENT
CCTF
FUNCTIONAL C2 STRUCTURE
CNAVFOR
CARFOR
CAFFOR
CMARFOR
CSOTF
CPOTF
Historically, national component structure has been used in coalition operations, and functional component structure in allied operations

14. Example: Command & Control Structure
CCTF
HQ STAFF*
PUERTO PRINCESA/CEBU
VISCOM
SOUTHCOM
NDCC
WESCOM
CTG A
CEBU
CTG B
CAGAYAN DE ORO
CFACC
CLARK/CEBU
CFMCC
USS ESSEX/CEBU
AFP
USA/USMC
UK/NZ/CAN/AUS
ROK
CSOTF/POTF
AFP FI
MAL
SING TH BD
MADAGASCAR
CPOTF/CSOTF
KC-135
C-17/C-141/C-5
K/C-130
ESSEX ARG/MEU
ROKN TF
AUS LSH
UK FF
RPN TF 80
MALAYSIAN LST
We might also consider subordinate task forces, as in this example, if the area of operation is extensive and there are separate and distinct operations to be conducted in widely separated areas. These subordinate task forces in turn can be organized along a national or functional components basis. Due to the nature of the catastrophe facing a Coalition Task Force, and its large area of operation, this organization structure is a very viable option.
COORD
SUPPORTING
*INCLUDES BOARDS, BUREAUS, CELLS:
HA/DR COORD BOARD, ATO CHAIR, MTO (MARITIME), INFO OPS, ENGR COORD BOARD, MED SPT COORD BOARD
LOG SPT COORD BOARD, CIB

15. Prepare COA Statement, Sketch, & Task Organization
Develop
Initial COAs
Initial Test
for Validity
COA statement answers WHO, WHAT, WHERE, WHEN, WHY, HOW
Develop COA sketch (by phase)
Task organize the force
Initial organization
One level down
Determine
C2 Means
COA Statement
& Sketch
Brief COAs
to CCTF
CCTF Approves
COAs
Staff
estimates
Vertical & horizontal planning
Course of Action Development

16. Phase 3: Conduct HA/DR Operations
CTF HQ: Provide C2; NGO / PVO / IO coordination; transition planning; information ops; relocate to forward location
CTG A: conduct HA/DR ops ISO VISCOM; conduct info ops; coordinate with NGO / PVO / IO; prepare for redeployment
CTG B: conduct HA/DR ops ISO SOUTHCOM; conduct info ops; coordinate with NGO / PVO / IO; prepare for redeployment
CFACC: Support HA/DR ops
CFMCC: Support HA/DR ops; redeploy HQ as required
CTG A
CTG B
This phase starts with lodgment of forces and ends when transition criteria are met; the main effort is CTG A.

17. Brief Courses of Action
Develop
Initial COAs
Initial Test
for Validity
Determine
C2 Means
COA Statement
& Sketch
Brief Courses of Action
to Commander of Coalition / Combined Task Force (CCTF)
* initial COA brief
Brief COAs
to CCTF
CCTF Approves
COAs
Staff
estimates
Vertical & horizontal planning
Course of Action Development

18. CCTF Consideration of the COAs
Develop
Initial COAs
Review and approve COAs for further analysis
Direct revisions to COAs, combinations of COAs, or development of additional COAs
Initial Test
for Validity
Determine
C2 Means
COA Statement
& Sketch
Brief COAs
to CCTF
CCTF Approves
COAs
Staff
estimates
Commander’s Guidance Vital During This Step!
Vertical & horizontal planning
Course of Action Development

19. Conduct Initial Staff Estimates
Develop
Initial COAs
Initial Test
for Validity
Each staff addresses each COA from its own perspective
Staff prepares for COA analysis, COA comparison, and COA recommendation and selection
Determine
C2 Means
COA Statement
& Sketch
Brief COAs
to CCTF
CCTF Approves
COAs
Staff
estimates
Vertical & horizontal planning
Course of Action Development

20. Continue Concurrent Planning
Communicate and Coordinate!
Develop
Initial COAs
Discuss planning status with counterparts, higher and lower
Coordinate planning with staff counterparts from other functional areas
Permits adjustments in planning
Initial Test
for Validity
Determine
C2 Means
COA Statement
& Sketch
Brief COAs
to CCTF
CCTF Approves
COAs
Staff
estimates
Vertical & horizontal planning
Course of Action Development

21. Course of Action Development
The COA is a broad statement of one way to accomplish a mission.
WHO - will accomplish essential tasks
WHAT - is the type of mission to be conducted
WHEN - the operation must begin or must be completed
WHERE - the combined operation will be executed
WHY - or the purpose of the operation
HOW - or the method of conducting the
operation using major available
resources
Develop
Initial COAs
Initial Test
for Validity
Determine
C2 Means
COA Statement
& Sketch
1. What will the courses of action contain?
2. Do not confuse courses of action with the mission statement that was developed during mission analysis. Whereas the mission statement only identifies the five “Ws”-who-what-when-where-and why, the COAs provide the “how”
3. The end product of our course of action development process is a set of COAs, approved by the multinational force commander and available for further analysis and comparison by the staff.
4. COAs do not need to be overly detailed, but should be developed in enough detail to allow for analysis, or wargaming and comparison.
5. Each of the task steps in course of action development are shown in
the lower-left portion of the screen. We will cover these steps in detail.
Brief COAs
to CCTF
CCTF Approves
COAs
Task Steps
Staff
estimates
Vertical & Horizontal planning

22. Questions? Course of Action Development
Deployable Joint Task Force Augmentation Cell (DJTFAC)
Multinational Planning Augmentation Team (MPAT)
Course of Action Development
Questions?
The next step in the course of action development process is to brief the courses of actions to the multinational force commander. This is a preliminary check on the work that the staff has done up to now. It also gives the commander the opportunity to provide further planning guidance and ensure that the staff remains focused on his intent and the desired end state.