1. MDMP-M Steps 6: Plans and Orders Development
Reference: MNF SOP Version 3.1
MDMP-M Steps 6:
Plans and Orders Development
Multinational Planning Augmentation Team
Mobile Training Team (MPAT MTT)
March 2017

2. Purpose
Discuss how plans and orders are produced and where to find examples in the MNF-SOP
Reference
Multinational Force Standing Operating Procedures (MNF SOP) 2 2

3. MDMP-M
Now let’s examine Step #6 of the MDMP-M process, “Plan/Order Development” 3

4. What is Plan/Order Development?
A Concept of Operations (CONOPS) is developed by the staff and is the eventual centerpiece of the plan
A plan (with or without an order [OPORD]) is developed based upon the approved Course of Action (COA)
There are four types of plans based on the level of detail required and the time available to plan
Plans may be promulgated by an Operation Order (OPORD)
The Approval of a COA leads to the development of plans and orders since the selected COA is the basis for these steps. There are four basic types of plans: Commander’s Estimate, Basic Plan, CONPLAN and OPLAN. Additionally an OPORD may be the end product if certain conditions apply
The step consists of a development of a concept of operations and supporting plans, a rehearsal of concept, refinement and forwarding the plan/order to the higher headquarters.
Plans/orders are based on the approved COA

5. Plan/Order Development
Starting Conditions
Commander has submitted Commander’s Estimate that includes recommended COA
Ending Conditions
MNF plan and order, if required, are forwarded to the Higher Headquarters (HHQ)
Approved MNF plan is issued by an OPORD (if required) to subordinate components to coordinate execution of an operation
This step begins with a COA being submitted via the Commander’s Estimate to the Supported Strategic Commander who either approves it or another COA for approval. Just as the CTF Commander can select a COA not recommended by the Planning Group, the Strategic Commander could review the Commander’s Estimate and select a COA that appeals to them as well.
The formal launch of this step is receipt of a PLANORD or ALERTORD from HHQ; there may be other types of directives in a multi-national context, but the key is that it is a formal planning order that commits the CTF/MNF staff to plan based on a particular COA
This step ends when an operations plan or order has been prepared for the selected COA and forwarded to the Strategic Commander for Approval

6. Steps in Plan/Order Development
Develop Concept of Operations (CONOPS)
Develop one of the following types of plans
Commander’s Estimate (completed in MDMP-M Step 5)
Basic Plan (BPLAN)
Concept Plan (CONPLAN - Operational Plan (OPLAN) in abbreviated format)
Operational Plan (OPLAN - complete and detailed plan)
Develop an Operations Order (OPORD), if required
Conduct Rehearsal of Concept (ROC) drills
Forward to HHQ for approval
There are 5 Major Actions during the Plan/Order development step.
First is the Concept of Operations (CONOPS). A CONOPS is an expansion of the approved COA into something executable; it will form the centerpiece of the plan or OPORD. It requires input from the Commander and Staff along with subordinate and supporting components and other organizations.
Each potential planning goal indicates the level of planning detail to which the staff is expected to go; in general, time available before execution dictates the level, but other HHQ elements may be involved.
The Commander’s Estimate has the least amount of detail. It focuses on multiple COAs and includes a COA briefing, command directive, commander’s estimate or memorandum. Most often this level of planning provides one or more COAs for a potential contingency.
A Basic Plan, BPLAN, describes a CONOPS, major forces, concepts of support and anticipated timelines for completing a mission; it omits annexes and force deployment data.
A CONPLAN is an abbreviated OPLAN. It incorporates a BPLAN as well as a plan summary and annexes A (Task Organization), B (Intelligence), C (Operations), D (Logistics), J (Command Relationships), K (Communications), S (Special Technical Operations), V (Interagency Coordination), and Z (Distribution). Force deployment data would make this a level 3-plan while a troop list and force deployment would require an Annex E (Personnel).
An OPLAN is a complete and detailed plan with a full description of the CONOPS, all annexes applicable, and force deployment data. It identifies specific forces, functional support and resources required to execute. It provides closure estimates for force flow into theater. OPLANS are the easiest to develop quickly into an OPORD.
An OPORD is a directive from a commander to a subordinate commander to effect coordinated execution of an operation. If the OPORD comes after approval of a Commander’s Estimate by higher headquarters, then the MNF transmits the OPORD of the plan that is within the Estimate. HHQ must approve any more detailed plans before they are transmitted as an OPORD.
With a level of required planning detail known, the MNF component commands finalize plans and synchronize them with the MNF.
At this point, rehearsal drills, ROCs review and game the plan or OPORD informally to refine the plan.
Once games, the Commander forwards the completed plan to HHQ.

7. Becomes “centerpiece” of the plan
Step 1: Develop CONOPS
Concisely expresses the Commander’s intent and how it will be done
MNF component/supporting organization actions
Friendly and threat centers of gravity (COGs)/vulnerabilities
Operational Tempo (OPTEMPO)
Links military objectives, lines of operation, decision points and supporting effects
Must include level of detail to ensure MNF component commanders understand mission, tasks and other requirements
The Commander and staff collaborate with component and supporting commanders to develop a clear and concise expression of what the Commander intends to accomplish and how that goal will be reached using available resources. The CONOPS describes force component and supporting organization actions, including how they will be integrated, synchronized and phased.
The CONOPS should incorporate Operational Design elements that led to the COA from which the CONOPS is developed. Certainly, it should reiterate the Commander’s Intent, the expected integration and synchronization of component actions, a restatement of friendly and threat COGs at both the strategic and operational level, a concept of control of operational tempo, and how decision points are linked to effects, etc.
The incorporation of a Red Cell into the CONOPS development helps flesh out the adversarial characteristics.
Staff estimates are incorporated as required into the CONOPS
The CONOPS is not immensely detailed but it must provide enough detail for subordinate and supporting units to plan their portions of the COA without telling them how to do it.
Becomes “centerpiece” of the plan

8. Step 2: Plan/Order Development
The plan/order will include force flow and task arrangement details
Supporting annexes are developed in parallel
Plan arrangement:
Situation
Mission
Execution
Administrative and logistics
Command and signal
The MNF will issue a PLANORD to guide planning activities. The CPG is again the focal point of plans/orders development, but MNF components will liaise closely with the CPG to ensure coordination and synchronization between MNF and component plans. If necessary, the staffs (MNF and component) can compare HHQ, MNF and component plans in systematic “crosswalks. In addition to this type of synch, MNF HQ to component and subordinate back-briefs may be necessary to ensure consistency.
In the case of OPLAN development, the goal is to work out an operational plan that is not time sensitive or focused on immediate action while developing an OPORD is focused on execution in a time-sensitive manner.
Similar in structure to the Commander’s Estimate (Mission; Situation & COA; Analysis of opposing COAs; Comparison of friendly COAs; Decision), the Operational Order focuses on the detailed execution of the selected COA and includes planning details for functional areas throughout the base plan and it’s annexes and appendices. Formats for the OPORD and OPLAN/OPORD Annexes can be found in the MNF SOP Version 2.8, Part C, Chapter 5, Annex B, Appendices 6 and 6A. We’ll see an example of an OPORD on the next slide, and the list of annexes on the one following.
The OPORD identifies specific tasking for MNF components.
While the overall Plan/Order development is focused in the CPG with small plan group meetings with the Commander, Annexes are most often developed parallel in their particular MNF Staff Directorates or within the Components.
MNF SOP Part C, Chapter 5, Annex B, Appendix 6 & 6A

9. Step 2: Develop Plan
Develop the Plan - type of plan to develop depends on the level of detail required and the time available
Commander’s Estimate – (the most basic plan) can be a COA briefing, command directive, commander’s estimate or a memorandum
Other plans (BPLAN, CONPLAN, OPLAN) – will be formatted into an Operations Order (OPORD) with varying degrees of detail
Plans range from the most basic, Commander’s Estimate to the most detailed, Operation Plan. Once the plan is developed, details are formatted into an Operation Order ie OPORD with varying levels of detail, depending on the complexity of the plan. 9

10. Step 3: OPORD Development
OPORD Annexes (per MNF SOP, Part F, Chapter 3, Annex F)
A—Task Organization
B—Intelligence
C—Operations
D—Logistics
E—Personnel
F—Public Affairs
G—Civil–Military Operations
H—Meteorological and Oceanographic Operations
J—Command Relationships
K—Communications Systems
L—Environmental Considerations
(Source: Joint Publication 5-0, Joint Operation Planning, 11 August 2011)
These two slides show the OPORD annexes from Joint Pub 5-0, Joint Operation Planning. Joint Pub 5-0 is available online and if you have access to the internet while planning there is a wealth of information to help with the planning process.

11. Step 3: OPORD Development
Annexes M through Z:
M—Geospatial Information and Services
N—Space Operations
P—Host-Nation Support
Q—Medical Services
R—Reports
S—Special Technical Operations
T—Consequence Management
U—Notional Counterproliferation Decision Guide
V—Interagency Coordination
W—Contingency Contracting
X—Execution Checklist
Y—Strategic Communication
Z—Distribution

12. Ends, ways & means are all linked
Step 4: ROC Drill
Review and gaming of the plan and OPORD by Force Commander, component commanders and staff
Used to exercise and refine the plan or order
Planning conducted as lessons are learned
Uses the CONOPS as the basis for review
Links the strategic objectives, military objective, and end state conditions with the tactical tasks
Promotes unity of effort and shared understanding
Synchronization
Understanding of risks, effects, etc.
The 3rd Action for OPORD Development is called the Rehearsal of Concept Drill (ROC). Similar to COA Gaming, the ROC Drill provides a method to refine the plan following production of the various Annexes and appendices. This step uses the CONOPS as its basis and incorporates – again – the participating nations’ NCEs along with the MNF command and component commanders.
The goal of the ROC drill is to ensure that the tactical tasks identified in the functional teams are compatible and are linked to the overall strategic objectives and desired end-states. This step is critical because of the level of difficulty involved in so many planners developing an OPORD that is synchronized.
In addition to linking ends, ways and means – or end-state conditions, objectives and tasks – it helps identify risk, confirm lines of operations, decisive points and supporting effects for decisive point attainment. It moves a long way toward synchronizing actions among MNF components and HQ.
If a red team is used, it performs a similar role as in COA Gaming, representing the threat point of view.
Ends, ways & means are all linked

13. Step 5: Forwarding of Plans/Orders
Force Commander forwards completed OPLAN/OPORD to HHQ for review/approval
MNF staff must be ready to answer concerns
Pre-submission review should familiarize staff and Commander with potential issues
Review will consider the following criteria:
Adequacy, feasibility, acceptability, completeness, and compliance with multinational strategic guidance
Finally, once the Operational Plan or Operational Order is produced, it is submitted to the Strategic Supported Commander for approval. The strategic commander and his staff will review and submit to the lead and other nations for approval.
The MNF staff must finalize the OPLAN/OPORD details along with component plans. Once again this finalization must reconsider whether the proposed plan has the characteristics of : Adequacy, Feasibility, Acceptability and Completeness (Distinguishably is less important at this stage). It must be clearly in line with multi-national strategic guidance and achieve military end-state conditions.
Even when the Force Commander forward the OPLAN/OPORD to HHQ, planning continues within the component.
CPG leads review; Force Commander approves

14. Steps in Plan/Order Development
Develop Concept of Operations CONOPS
Develop one of the following types of plans
Commander’s Estimate
Basic Plan (BPLAN)
Concept Plan (CONPLAN)
Operational Plan (OPLAN)
Develop an Operations Order (OPORD) if required
Conduct Rehearsal of Concept (ROC) drills
Forward to HHQ for approval
This brief looked at the development of an OPLAN or OPORD (depending on the HHQ directives and the time-sensitivity of the contingency/crisis). It detailed how a COA becomes a CONOPS and then a plan.

15. Next: Step 7 - Execution Planning
Next, the MNF moves to Step 7 of the MDMP-M planning process, Execution Planning. That will entail asssessing progress and adapting or moving on to previously expected branches and sequels. Remember that during the entire planning and execution phase, the MNF Commander is continually integrating new insights into the Appreciation and Design. 16

16. Discussion