1. Commander’s Intent & Guidance
Multinational Planning Augmentation Team
Commander’s Intent & Guidance
Purpose
To understand Commander’s
Intent & Guidance and their importance in crisis action planning
1. This module will cover the role of the commander in the crisis action planning process.
2. The listed references are the primary U.S. joint doctrinal source for this topic. Another excellent source of information is military history. Studying the leaders and campaigns of the past offers tremendous insight into this subject.
References
US Joint Publication 3-0, Doctrine For Joint Operations
US JP 5-0, Doctrine For Planning Joint Operations
US JP , JTF Planning Guidance and Procedures

2. Commander’s Intent
The commander’s intent describes the desired end state. It is a concise expression of the purpose of the operation, not a summary of the concept of operations.
1.First, we will cover intent.
2.This quote from Joint Publication 3-0 defines the commander’s intent.
3.The commander’s intent describes the desired end state. It is a concise expression of the purpose of the operation, not a summary of the concept of operations.
4. A commander should use his intent to clearly articulate and convey the purpose of the multinational force’s activities, the desired results, and how planned actions will work to achieve that end.
5. Intent is critical to subordinate commanders in understanding the mission, and in execution. Intent is also important to the staff because it serves as the initial impetus for the entire planning process.
6. The commander’s intent is used to link the various levels of command and encourage initiative. Commanders & planners should understand the intent of the commander two levels up. For example, battalion cmdrs and staffs should understand the intent of the division commander.
7. It is the commander’s intent that takes precedence during the execution of an operation. It enables subordinates to pursue an operation in the absence of further orders in the event of unexpected circumstances. Subordinate commanders must understand the purpose of the operation well enough to act decisively, with initiative, and consistent with higher commander’s intent. 4 3 3

3. Commander’s Intent Commander’s Intent
Commander’s Vision
Assess theater or area of operations
Visualize path from current to future state
Commander’s Intent
Purpose
Unifying Focus
Force as a whole
Identify end state
1.The commander’s intent is perhaps the most important aspect of planning. In contrast to the standardized composition of other parts of an operations order, such as the mission statement and concept of operations, the commander has wide latitude in expressing his intent.
2.The intent begins with the commander’s vision of the operation, his assessment of the area of operations and his visualization of the path from current to future state.
3.Intent provides a purpose and a unifying focus. Intent addresses the employment of the force as a whole and identifies an end state.
4.From this intent, we as a staff will be able to develop courses of action and ultimately a concept of operations. Subordinate commanders will be able to focus their operations based on this intent.
5.It is important that intent be the commander’s product, not the staff’s. U.S. Army General Fred Franks, of Dessert Storm fame, stated it well:
“A commander’s ‘intent’ is quite simply his vision of how he sees the operation working out. It is his concise expression of the means, of the end, of the main effort, and of the risks he is prepared to take. Because of its importance in putting the commander’s personal stamp on the operation, commanders usually write the intent themselves.”
Concept of Operations 4 4

4. When is the Intent Published?
JTF Commanders initially provide their intent to the staff with the restated mission and planning guidance
The JTF Commander refines intent as the staff considers staff estimates and completes the Commander’s Estimate
1.At the end of the mission analysis process, the planning staff provides the commander a mission analysis brief. This brief should culminate with his approval of the restated mission and planning up to that point, and solicit his guidance for further planning.
2.The restated mission statement is a clear, concise statement of the essential tasks to be accomplished by the command and the purpose of these tasks. It includes the who, what, when, where, and why.
3.Intent is not static. It is refined as the situation evolves. Intent is an iterative process. 6 5 5

5. Elements of Commander’s Intent
Desired end state
Purpose of the operation
How operations (the joint force as a whole) will progress towards the end state
It may include how the posture of units at that end state facilitates transition
It may also include commander’s assessment of the enemy commander’s Intent, or the threat
It may contain an assessment of where and how the commander will accept risk
1.Now, what kind of information does the commander’s intent include?
2.Here are some suggested elements for a commander’s intent. This list is taken from U.S. Joint Publication 3-0, Doctrine for Joint Operations.
3.Remember, there is no “cookie cutter” school solution or template. The commander may incorporate many of these items in his intent. We recommend to our joint and combined task force commanders that at least the first three items be incorporated into the intent:
4. Desired end state
Purpose of the operation
How operations-the joint force as a whole-will progress towards the end state
5.For end state, the commander should specify the results expected including effects on opponents or other forces, such as in peace operations, and the desired posture of friendly forces.
 6. The intent should describe how the execution phase is visualized including expected enemy reactions to the actions of friendly forces as the operation progresses.
 7.Risk is inherent in military operations, and risk assessment is important. By giving guidance concerning risk, the commander can focus the efforts of his subordinates
Intent is Not a Summary of the Concept of the Operations 7 6 6

6. Commander’s Intent
1.General Grant, the famous Union general in the US civil war, wrote all his orders personally. They are considered masterpieces of clarity and directness
2. Here is the statement of intent that General Grant gave General Sherman towards the end of the civil war.
3.You I propose to move against Johnston’s army, to break it up and to get into the interior of the enemy’s country as far as you can, inflicting all the damage you can against their war resources.
4.The end result of this intent was the famous Sherman march to the sea in 1864, during which General Sherman, taking his cue from General Grant, laid waste to the countryside, destroying crops, and burning the city of Atlanta, thus denying important resources to the Confederate forces.
“YOU I PROPOSE TO MOVE AGAINST JOHNSTON’S ARMY, TO BREAK IT UP AND TO GET INTO THE INTERIOR OF THE ENEMY’S COUNTRY AS FAR AS YOU CAN, INFLICTING ALL THE DAMAGE YOU CAN AGAINST THEIR WAR RESOURCES.” 10 9 9

7. Recent Commander’s Intent
UNMIH INTENT: “The purpose of this mission is
to maintain a secure and stable environment which allows the government of Haiti to maintain functional governance, gradually transferring responsibility for the secure and stable environment to the government of Haiti. The end state is defined as the secure and stable environment that allows social and economic development, free election, and peaceful transition of responsibility to the government of Haiti.”
1.This intent statement is an example from the latter phase of peace operations conducted in Haiti in This was the United Nations Mission in Haiti’s intent.
2. The intent covers the key areas of concern:
3. Purpose of the operation
4. How operations will progress towards the end state.
5. The desired end state.
6.The United Nations Mission in Haiti’s restated mission statement, based on this commander’s intent, was as follows: Under the operational control of the United Nations Mission in Haiti, UN forces maintain a secure and stable environment and conduct a peaceful transition of responsibility to the government of Haiti no later than 29 February 1996, in accordance with United Nations Security Council Resolutions 940, 975 and 1007. 8 7 7

8. Recent Commander’s Intent (cont.)
USFORHAITI INTENT: “The purpose of the operation is to divest Zone V of all operations in support of the government of Haiti. We will accomplish this purpose through progressively transferring all support operations to the government of Haiti, setting time limits on continued support to encourage timely transfers. Maintain only enough presence to detect an impending loss of security or stability in sufficient time to counteract it. At the end of the operation the government of Haiti assumes all responsibility for maintaining the secure and stable environment. Zone V forces are postured to facilitate and cover the withdrawal of UN forces and protect key installations.”
1. This was the commander, US Force Haiti’s intent statement for peace operations conducted in Haiti in 1996 during the execution of their exit strategy.
 2. “The purpose of the operation is to divest Zone V of all operations in support of the government of Haiti. We will accomplish this purpose through progressively transferring all support operations to the government of Haiti, setting time limits on continued support to encourage timely transfers. Maintain only enough presence to detect an impending loss of security or stability in sufficient time to counteract it. At the end of the operation the government of Haiti assumes all responsibility for maintaining the secure and stable environment. Zone V forces are postured to facilitate and cover the withdrawal of UN forces and protect key installations”
 3. At some point the staff must begin planning the exit strategy. US Force Haiti defined their exit strategy as “the planned transition to the host nation of all functions performed on its behalf by peace operations forces.”
4. The bottom line for intent is the test by subordinate commanders: does the higher commander’s statement of intent add clarity and assist in their planning and execution of the operation?
 5. US Force Haiti’s restated mission was: “Joint Task Force Dragoon transfers responsibility for the maintenance of a secure and stable environment in Haiti to the government of Haiti no later than 29 February 1996, in order to fulfill United Nations Security Council Resolutions 940, 975, and 1007.”  8 7 7

9. Task Force BAYANIHAN Commander’s Mission Statement
Assist the Disaster Response Task Groups (DRTGs) in Visayas and Mindanao in the conduct of large scale humanitarian assistance and disaster response in regions 6,7,10 and 13, in order to save lives, protect property and minimize damage.
1. Based on the scenario example that is part of our module training process, the commander of TASK FORCE BAYANIHAN has stated his mission as shown here.
2. Assist the Disaster Response Task Groups in Visayas and Mindanao in the conduct of large scale humanitarian assistance and disaster response in regions 6,7,10 and 13, in order to save lives, protect property and minimize damage.

10. TF BAYANIHAN COMMANDER’S INTENT
My intent is to support the Armed Forces of
the Philippines in HA/DR operations in the
affected areas of the Central Philippines.
We will conduct HA/DR combined
operations and rehabilitation efforts. In
other words, we will provide all available
assistance to alleviate human suffering and
restore normalcy.
1. Here is the commander’s intent on how he plans to accomplish the task force mission. Note that this statement incorporates the first three elements that should be in a commander’s intent: desired end state, purpose of the operation, and how the operations will progress towards the end state.
2. Desired end state. The phrase, “ alleviate human suffering and restore normalcy” indicates the desired end state.
3. Purpose of the operation. The purpose is to support the Armed Forces of the Philippines.
4. How operations will progress towards the end state. TASK FORCE BANIYAHAN will achieve its end state by conducting HA/DR combined operations and rehabilitation efforts. 8

11. Commander’s Guidance The degree of guidance depends upon
Time available
Staff level of proficiency
Flexibility
Commander’s comfort zone
General enough to allow ideas, initiative, and consideration of potentially important alternatives
Provides the “start point” for course of action development
1. Now lets switch topics and talk about commander’s guidance. Although the commander publishes his intent early in the planning process, he continues to steer the planning process through the issuance of guidance.
2. At the end of mission analysis & prior to the start of course of action development, the commander approves, or modifies and approves, the restated mission statement and then he gives his staff, and sometimes subordinate cmdrs, his initial planning guidance.
3. Guidance is essential for timely & effective course of action develpment and analysis.
4. It guides the staff as they complete their respective staff estimates. It should focus on essential tasks that were identified during mission analysis and that support mission accomplishment.
5. The commander should implant his vision of the proposed operation into the minds of his staff. He must provide enough guidance-preliminary decisions-to allow the staff to plan mission accomplishment consistent with his intent and the intent of higher HQs.
6. Guidance can be written or verbal. Note that the degree of guidance depends on the time available, staff level of proficiency, flexibility and the commander’s comfort zone.
7.Now, the great dilemma; guidance can be very explicit and detailed, or it can be very broad, allowing the staff and subordinate commanders wide latitude in course of action development. Guidance should be sufficiently detailed to provide clear direction and to avoid unnecessary work for the staff and subordinate commanders. Detailed guidance facilitates faster course of action development by the staff. On the other hand, very detailed guidance risks overlooking or inadequately examining one or more options or details that may effect mission execution.
8.Essentially, guidance should be general enough to allow ideas, initiative, and consideration of potentially important alternatives to be considered. The commander’s guidance provides the start point for course of action development.

12. Commander’s Guidance Topics
Time plan
Commander’s intent
Risk assessment
Limitations on the command
Specific adversary COAs, or threats, to be considered
Intelligence preparation of the battlespace/area of operation considerations
Key or decisive terrain
Commander’s Critical Information Requirements
Concept of operations
Effects desired on the adversary force/threats
1. The content of planning guidance varies from commander to commander and is dependent on situation and time available for planning.
2. Planning guidance should be arranged in a logical sequence to minimize the chances of misunderstanding and to enhance clarity.
3. In his guidance, a commander might state or imply his acceptable levels of risk.
4. Key or decisive terrain for peace operations may include airheads, power grids, distribution points, transportation routes, population centers, etc.
5. Commander should give guidance on what he believes are his critical information requirements, or CCIR. These can include priority information requirements, information he needs about friendly forces and friendly force information that he believes the multinational force must protect from discovery. 

13. Commander’s Guidance Topics (cont.)
EW usage
Priorities
Reserve capabilities
CSS instructions
C2 arrangements
Type of orders to be issued
Type of rehearsal to conduct
Election monitoring
Crowd control/rioting
1. Guidance should be given for command and control relationships; key elements of timing, phasing sequencing; force deployment; battlespace architecture; deception and information operations.
2. Priorities for planning efforts to include use of available planning time and the dissemination of information to subordinate units should also be covered.

14. Guidance Is Dynamic
After Mission Analysis staff briefings are complete and the Commander approves the restated mission, he provides initial planning guidance to the staff
Guidance may change or be modified later if assumptions or facts change
1. Similar to intent, the commander’s guidance must be dynamic and shaped to the situation as it develops.
2. Commander may issue updated planning guidance at any point during the planning process.
3. When the staff completes course of action development and briefs the commander, the commander will issue guidance and approval before the staff conducts further analysis and planning.

15. Summary Commander’s Intent: Guidance :
Begins with the commander’s vision of the operation
Should include: desired end state; purpose of the operation; how operations will progress towards end state
Is not static; is refined as the situation evolves
Guidance :
Is given initially, and throughout the planning process
Is essential for timely and effective course of action development
Should focus on essential tasks
1. In summary, commander’s intent:
2. Begins with the commander’s vision of the operation
3. Should include: desired end state; purpose of the operation; how operations will progress towards end state
4. Is not static; is refined as the situation evolves
5. Guidance:
6. Is given by the commander immediately following mission analysis to commence the planning process, and continues throughout the planning process.
7. Is essential for timely and effective course of action development
6. Should focus on essential tasks

16. Summary-continued
Commanders intent and guidance work in tandem to facilitate planning and execution of an operation
1. Here is the bottom line: the commander’s intent and guidance work in tandem to facilitate planning and execution of an operation. Intent and guidance are both critical.
JP 3-0