Command and Control

CATALOG OF DOCTRINE TOPICS

Last Updated: 7 January 2020

Introduction to Command and Control

Commanding Airpower

Command Authorities and Relationships

Command and Control Mechanisms

Organizing Air Force Forces

Presenting Air Force Forces

Appendix A: Command Authorities and Relationships

Appendix B: The Air Operations Center

Appendix C: The Air Force Forces (AFFOR) Staff

Appendix D: Theater Air Control System

Appendix E: Definitions and Explanations of Terms

AFDP 3-30 COMMAND AND CONTROL

INTRODUCTION TO COMMAND AND CONTROL

Last Updated: 7 January 2020

THE AIR COMPONENT COMMANDER

Successful command and control (C2) of Air Force operations begins with the

commander. Joint forces are made up of a mixture of Service component commanders

assigned or allocated to the joint force commander (JFC) (e.g., the commander, Air

Force forces [COMAFFOR]) and functional component commanders designated by the

JFC (e.g., joint force air component commander [JFACC]).

Functional component commanders are designated by the JFC when forces of two or

more Military Departments must

operate within the same mission area

or physical domain. The JFC

designates a JFACC to establish unity

of command and unity of effort for joint

air operations. The Service component

commander with the preponderance of

forces and the ability to C2 joint air

forces should be designated as the

JFACC. The JFACC is normally

designated as the area air defense

commander (AADC) and the airspace

control authority (ACA) because these

three roles (JFACC, AADC and ACA)

are integral to each other.

The COMAFFOR has responsibilities

and authorities derived from his or her

roles in fulfilling the Service’s

Conditions-based authorities are procedures for predetermining delegation of authority to subordinate

commanders in anticipation of degraded or lost communication with higher headquarters. Command by

negation allows subordinate commanders to conduct operations as they see fit unless denied by their

superior. Details for these procedures are provided in documents such as the air operations directive,

area air defense plan, airspace control plan, special instructions, and other amplifying guidance.

AFDP 3-30 COMMAND AND CONTROL

It is a given in future conflicts that the joint

force will be conducting operations in a

contested environment. We must be

prepared to execute in a degraded C2

environment where clearly delineated and

forward thinking commander’s intent will be

a requirement. It is imperative senior

leaders provide our commanders with

conditions-based authorities delegated to

the lowest capable and competent level,

and empower command by negation to

accept the appropriate level of risk, all while

working toward moments of clear C2.

- General Charles Q. Brown, Jr.,

Commander, Pacific Air Forces

administrative control (ADCON) function. ADCON is the authority necessary to fulfill

Military Department Title 10

responsibilities for administration, support, and organizing,

training and equipping Air Force forces and is normally the senior Airman in theater.

The JFC in almost all cases designates the COMAFFOR as the JFACC. In accordance

with joint doctrine, the dual-designated air component commander will exercise

operational control (OPCON) and ADCON over Air Force forces as the COMAFFOR,

and tactical control (TACON) over Air Force forces and other Services’ forces made

available for tasking as the JFACC.

Since the COMAFFOR and JFACC are nearly always the same individual, this

annex makes use of the term, “air component commander” when referring to

duties or functions that could be carried out by either or both, clearly delineating

COMAFFOR or JFACC (or their respective staffs) only when discussing functions

that are unique to one or the other.

See United States Code, Title 10, Armed Forces, Subtitle D – Air Force.

Control of Airpower in Contested Environments

Air operations against a peer adversary in a contested environment are C2

intensive, with a joint or combined air operations center orchestrating a

multitude of simultaneous missions in support of the JFC. Using air, space,

cyberspace and electromagnetic warfare assets, the mission commanders

(TACON to the air component commander) plan different types of "packages"

to defeat integrated air defense systems, interdict C2 and fielded forces, and

gain control of the air. During these operations, forward based airpower can

conduct air operations based on a standing "integrated tasking order" (ITO). In

this air equivalent of mission command, forward based air expeditionary wings

or task forces receive conditions based authorities with standing orders and

commander's intent on the ITO. This empowers subordinate commanders with

the flexibility to provide coverage of key defensive counterair combat air patrols

(CAPs); air interdiction kill boxes; suppression of enemy air defense CAPs;

close air support; or intelligence, surveillance, and reconnaissance in support

of surface forces. This decentralized execution model enables local

commanders to maintain pressure on the enemy even when disconnected from

communications with higher headquarters due to a contested environment

against a peer or near-peer adversary.

4 
 
KEY CONSIDERATIONS OF COMMAND AND CONTROL 
 
Commanders should be cognizant of the authorities they are given and their 
relationships under that authority with superior, subordinate, and lateral force 
commanders. Command relationships should be clearly defined to avoid confusion. The 
command of airpower requires intricate knowledge of the capabilities and 
interdependencies of forces employed, and an understanding of the JFC’s intent.  
 
ORGANIZING FOR COMMAND AND CONTROL 
 
Modern military operations must execute across the competition continuum in a 
complex global security environment. This requires the right mix of forces with clearly 
defined command relationships and appropriate command and control mechanisms.  
 
C2 and organization are inextricably linked. Forces should be organized around the 
principle of unity of command. Clear lines of authority, with clearly identified 
commanders at appropriate echelons, exercising appropriate control, are essential to 
achieving unity of effort, reducing confusion, and maintaining priorities. Commanders 
should be clearly identified and empowered with appropriate operational and 
administrative command authorities, and appropriate joint command arrangements 
should be clearly specified to integrate effects across Service lines. Air Force 
expeditionary organization and preferred command arrangements are designed to 
address unity of command.  
 
When Air Force forces are assigned or attached as part of a joint force at any level (i.e., 
combatant command, subordinate unified command or joint task force), they become 
the Air Force Service component to that JFC. All Air Force Service components have 
three common features: Air Force forces tailored to the needs of the JFC and the tasks 
to be performed, a single designated air component commander, and the appropriate 
mechanisms and authorities to command the Air Force forces. 
 
The manner in which attached Air Force expeditionary forces are organized will depend 
upon whether or not there is an existing Air Force C2 structure in place. Combatant 
commands (e.g., US Indo-Pacific Command) and subordinate unified commands (e.g., 
United States Forces Korea) have Air Force Service components with an established 
Air Force C2 structure. Depending upon the combatant commander, the Air Force 
Service component may be either a component major command (e.g., Pacific Air 
Forces) or a component numbered air force (e.g., First Air Force [Air Forces Northern])   
 
Additional Air Force expeditionary forces attached to a combatant commander should 
normally organize within the existing Air Force Service component. For instance, an F-
16 squadron deployed from Shaw Air Force Base (AFB) for operations at Misawa 
Airbase, Japan, should normally be designated as an expeditionary fighter squadron 
(EFS), (e.g., 55 EFS) and should be organized under the in-place 35th Fighter Wing at 
Misawa. However, if the combatant commander elects to establish a joint task force 
(JTF) to include attached Air Force forces, there is no in-place Air Force command 
structure for the JTF. In this case, a temporary air expeditionary task force (AETF) 

would be formed as the Air Force Service component to the JTF. The commander of the

AETF would either be the COMAFFOR directly responsible to the JTF commander, or

established in a supporting role to the JTF under the authority of the theater air

component commander.

Some capabilities may not be organic to the component and may be made available

through a supported / supporting command relationship, or be made available through

reachback or distributed C2 arrangements.

COMMANDING AIRPOWER

Last Updated: 7 January 2020

OPERATIONAL AND ADMINISTRATIVE BRANCHES OF THE CHAIN

OF COMMAND

The President and the Secretary of Defense (SecDef) exercise authority and control of

the armed forces through two distinct branches of the chain of command and control

(C2). One branch runs from the President, through the SecDef to the combatant

commanders (CCDRs) for missions and forces assigned to their commands. This is

commonly referred to as the “operational branch” of the chain of command. The

“administrative branch” of the chain of command, runs from the President, through the

SecDef, to the Secretaries of the Military Departments, and as prescribed by the

Secretaries, to the commanders of military Service forces.

The Secretaries of the Military Departments exercise administrative control (ADCON)

over Service forces through their respective Service chiefs and Service commanders.

The Service chiefs, except as otherwise prescribed by law, perform their duties under

the authority, direction, and control of the Secretaries of the respective military

Departments to whom they are directly responsible.

The two branches of the chain of command merge at the air component commander.

Within the administrative branch, the commander, Air Force forces (COMAFFOR) is

delegated ADCON over assigned and attached Air Force forces from the Air Force

chain of command. Simultaneously, within the operational branch, the COMAFFOR is

delegated OPCON over assigned and attached Air Force forces, and ensures forces

are properly organized, trained, and equipped to be employed in support of the joint

force commander’s (JFC’s) operational requirements.

In summary, the air component commander normally holds both administrative

(ADCON) and operational control (OPCON) authority over Air Force forces and

tactical control (TACON) over other assigned or attached joint air forces.

AFDP 3-30 COMMAND AND CONTROL

THE JOINT FORCE AIR COMPONENT COMMANDER (JFACC)

The JFACC should be the Service component commander with the

preponderance of forces to be tasked and the ability to plan, task, and control

joint air operations. If working with allies in a coalition or alliance operation, the

JFACC may be designated as the combined force air component commander (CFACC).

The JFACC recommends the proper employment of air component forces. The JFACC

also plans, coordinates, allocates, tasks, executes, and assesses joint air operations to

accomplish assigned operational missions. Because of the wide scope of joint air

operations, the JFACC typically maintains a similar theater-wide or joint

operations area (JOA)-wide perspective as the JFC.

Some of the JFACC tasks are listed below:

 Make recommendations to the JFC on proper employment of forces in air, space,

and cyberspace.

 Accomplish assigned tasks for operational missions.

 Develop and recommend courses of action (COAs) to the JFC.

 Develop a strategy and operation plan that incorporates multi-domain solutions to

fully exploit air, space, and cyberspace capabilities to support the JFC’s objectives.

 Develop a joint air operations plan (JAOP) and air, space and cyberspace

operations directive(s) to support the JFC’s objectives.

 Recommend and implement, when passed down by the JFC, theater rules of

engagement.

 Make air apportionment recommendations to the JFC.

 Normally serve as the supported commander for the following operations as directed

by the JFC. As the supported commander, the JFACC has the authority to designate

the target priority, effects, and timing of these operations. The JFACC also has

authority to attack targets across the entire JOA in accordance with JFC guidance,

to include coordinated targets within land and maritime areas of operations (AOs).

 Defensive counterair and offensive counterair.

 Close air support (CAS).

 Airborne intelligence, surveillance, and reconnaissance and incident awareness

and assessment.

 Air mobility operations.

 Strategic attack.

 Air interdiction.

 Normally serve as supporting commander, as directed by the JFC, for operations

such as CAS, air interdiction within other components’ AOs, and maritime support.

 If so designated, act as airspace control authority (ACA), area air defense

commander (AADC), space coordinating authority (SCA), and develop plans and

products associated with these responsibilities.

 Conduct, control, coordinate, and integrate such aspects of space, cyberspace,

and information operations as are delegated to the JFACC by the JFC.

 As required, perform the duties of the personnel recovery coordinator, including

combat search and rescue (CSAR).

 Direct intratheater air mobility operations and coordinate them with intertheater air

mobility operations.

 Coordinate support for special operations requirements with the joint force special

operations component commander or the joint special operations task force

commander.

 Perform assessment of air component operations at the operational (component)

and tactical levels.

 Provide lateral liaisons with Army, Navy, Marines, and special operations

components; as well as multinational and coalition partners; and integrate joint and

partner liaisons into JFACC processes.

Refer to JP 3-30, Joint Air Operations, for more discussion of the JFACC.

THE COMMANDER, AIR FORCE FORCES

The COMAFFOR is the Air Force commander of an Air Force Service component

command assigned or attached to a JFC at the unified combatant command,

subordinate unified command, or joint task force (JTF) level. At the unified

combatant command level, the CCDR’s Air Force Service component is specified in the

Secretary of Defense’s (SecDef’s) Forces for Unified Commands memorandum. The

SecDef or CCDR may elect to permanently establish a subordinate unified command or

temporarily establish a subordinate JTF as part of his or her organizational structure.

Thus, in a theater without a dedicated air operations center or numerous air

expeditionary task forces exist, the position of COMAFFOR may exist

simultaneously at different levels within a given theater as long as each

COMAFFOR is separately assigned or attached to a different JFC.

Command authorities are explained in more detail in Appendix A.

The COMAFFOR should normally be designated at a command level above the

operating forces and should not be dual-hatted as commander of one of the

subordinate operating units. This allows the COMAFFOR to focus at the operational

level of war, while subordinate commanders lead their units at the tactical level of war.

Operational Responsibilities of the COMAFFOR

When Air Force forces are assigned or attached to a JFC, the JFC normally receives

OPCON of these forces. This authority is best exercised through subordinate JFCs and

Service component commanders and thus is

normally delegated accordingly. If not delegated

OPCON, or if the stated command authorities

are not clear, the COMAFFOR should request

delegation of OPCON.

Administrative Responsibilities of the

COMAFFOR

Commanders of Air Force Service components

have responsibilities and authorities that derive

from their roles in fulfilling the Service’s ADCON

function. ADCON is the authority necessary to

fulfill Military Department Title 10 responsibilities

for administration and support. Among these

responsibilities are:

 Organization of Service forces

 Control of resources and equipment

 Personnel management

 Logistics

 Individual and unit training

 Readiness

 Mobilization & demobilization

 Discipline

[General MacArthur] had

finished his talk, when one of

the correspondents said,

"General, what is the Air Force

doing today?" General

MacArthur said, "Oh, I don't

know. Go ask General

Kenney.” The newspaperman

said, “General, do you mean to

say you don't know where the

bombs are falling?" MacArthur

turned to him, grinned, and

said, "Of course I know where

they are falling. They are falling

in the right place. Go ask

General Kenney where it is."

— George C. Kenney,

General Kenney Reports: A

Personal History of the

Pacific War

 Other matters not included in the operational missions of the subordinate or other

organizations.

The COMAFFOR should be focused on and have authority for those administrative

branch tasks that are necessary to carry out the operational branch tasks as assigned

by the JFC. Within the administrative branch, the COMAFFOR has ADCON of all

assigned Air Force Service component forces. However, for non-assigned Air Force

forces attached to the Air Force Service component, the forward COMAFFOR should

normally have ADCON over those specific elements of administrative branch

responsibilities necessary to carry out the JFC’s operational missions. Which specific

elements of ADCON are delegated to the forward COMAFFOR and which are retained

by the home unit chain of command may require negotiation between the COMAFFOR

and the force provider and should be delineated in the appropriate deployment orders.

As the Service component commander to a JFC at any level, the COMAFFOR has the

following responsibilities commensurate with all attached forces, regardless of

MAJCOM or Air Force component (Regular, Guard, or Reserve):

 Organize, train, and sustain assigned and attached Air Force forces for CCDR-

assigned missions.

 Prescribe the chain of command within the Air Force Service component.

 Maintain reachback between the Air Force component and other supporting Air

Force elements. Delineate responsibilities between forward and rear elements.

 Provide training in Service-unique doctrine, tactical methods, and techniques.

 Provide for logistics and mission support functions normal to the command.

 Provide the JFC timely information on changes in logistics support that will affect

operations.

 Maintain internal administration and ensure good order and discipline in accordance

with the Uniform Code of Military Justice.

 Establish force protection and other local defense requirements.

 Provide Service intelligence matters and oversight of intelligence activities to ensure

compliance with laws, executive orders, policies, and directives.

 Oversee the morale, welfare, safety, and security of assigned and attached forces.

Overlapping and interconnecting areas of ADCON shared among the various

commanders make it essential that appropriate written orders clearly state which

elements of ADCON authority and responsibility are executed by which commander.

The COMAFFOR also has some ADCON responsibilities for Air Force elements and

personnel assigned to other joint force components (such as liaisons). For reserve

component forces, the Air National Guard and Air Force Reserve Command retain all

other ADCON responsibilities, such as Reserve Component activation, inactivation,

partial mobilization, and length of tour. Additionally, antitheater forces, such as

intertheater airlift and forces transiting another COMAFFOR’s area of interest, are

subject to the ADCON authority of the respective COMAFFOR while transiting that

COMAFFOR’s area for administrative reporting and for TACON for force protection

requirements derived from the geographic CCDR.

COMAFFOR Authority to Declare Air Force Forces as “Organic”

Historically the Air Force has made all Air Force Service component forces available for

tasking by the JFC. However, it may be necessary to designate some Air Force forces

as “organic” to the Air Force Service component. These organic Air Force forces would

be those that are necessary for the COMAFFOR to properly organize, train, equip, and

employ Air Force forces to accomplish JFC objectives. Organic forces may be those Air

Force forces that are necessary and essential for the COMAFFOR to carry out his or

her responsibilities in either the administrative or the operational branch. In simple

terms, the Air Force Service component cannot function as designed without

organic forces.

Designation of a force as organic does not usurp the JFC’s authority to direct how that

force will be used or to whom it may be further attached. However, such decisions for

internal Service reorganization or transfer of organic forces should only be done in

consultation with the Service component commander. It is the Service component

commander who has the necessary expertise to understand the immediate impact and

long term mission cost of reorganizing Service forces. If an organic force is removed

from its parent command then the JFC must accept the risk that the Air Force Service

component can no longer perform the functions for which it was provided in the manner

for which it was designed. Ultimately it is the decision of the JFC to accept the risk but it

is the duty of the COMAFFOR to fully inform the JFC of the risk of transferring organic

forces.

COMAFFOR Use of Commercial Support to Operations

Commercial support to operations

(CSO) includes commercially procured Host-Nation

Support acquired through Acquisition and Cross-Serving Agreements or Mutual

Logistics and Services Agreements and Operational Contract Support. CSO augments

Air Force forces, as necessary, to accomplish JFC objectives. As the use of CSO

increases, successful employment relies on proper planning, execution, and

management.

Also known as “contractor support to operations” (Joint Publication 1-02, DOD Dictionary of Military and

Associated Terms).

The COMAFFOR has responsibility for CSO personnel operating under the jurisdiction

of his or her command. The COMAFFOR can receive CSO from another Service,

combat support agency, or a joint contracting organization. Identifying and evaluating

risks when using CSO is critical to establishing the proper force employment strategy.

Ultimately, it is the decision of the COMAFFOR whether to use CSO or where and when

in the operation to utilize the capability.

COMAFFOR Responsibilities Specific to Commercial Support

Operations

When the COMAFFOR employs CSO, he or she has the following responsibilities:

 Determine the most appropriate source of commercial support to the operation.

 Perform risk assessment and vendor threat mitigation of contracted support to the

operation, partner nations, and/or other host nation.

 Provide logistics support and base life support to contracted personnel accompanying

the force on the land, sea, or air

 Develop appropriate supporting plans and implement information management tools

to:

 Monitor and prioritize contract support requirements.

 Track contractor personnel with base access and logistics support.

 Report contractor accountability.

 Determine arming authorizations for contracted personnel.

 Evaluate contractor performance.

COMAFFOR Responsibilities Specific to a Combatant Commander

When the COMAFFOR is the CCDR’s Air Force Service component commander, he or

she also has the following additional operational and administrative responsibilities:

 Develop program and budget requests that comply with CCDR guidance on war-

fighting requirements and priorities.

 Inform the CCDR (and any intermediate JFCs) of program and budget decisions that

may affect joint operation planning.

 Support the CCDR’s theater campaign plans through development of appropriate

supporting Service plans.

 Develop steady-state strategy to support the CCDR’s strategy.

 Contribute to the development of CCDR steady-state campaign plans and

security cooperation country plans.

 Develop campaign support plans in support of CCDR campaign plans.

 Develop security cooperation country support plans in support of CCDR security

cooperation country plans.

 Recommend and implement policy and rules of engagement for the conduct of

steady-state operations, including planning, execution, and assessment.

 Provide commander’s intent to inform tactical-level planning, execution, and

assessment.

 Execute and assess steady-state operations.

COMMAND AUTHORITIES AND RELATIONSHIPS

Last Updated: 7 January 2020

Clear command relationships are central to effective operations and

organizations. Joint doctrine establishes four command relationships within the

operational branch of the chain of command: combatant command (command authority)

(COCOM), operational control (OPCON), tactical control (TACON), and support. These

authorities flow through joint channels, from the Secretary of Defense (SecDef) to the

combatant commanders (CCDRs), to subordinate joint force commanders (JFCs) if

established by the CCDR, and to Service or functional component commanders as

delegated by the JFC. The JFC normally delegates appropriate authorities to the

various subordinate functional and Service component commanders. The air

component commander (usually the functional joint force air component commander

[JFACC]) is normally delegated OPCON over own Service forces and TACON over

other joint air forces.

Administrative control (ADCON) delegated from the Secretary of the Air Force’s

statutory authorities through the Air Force Service chain, provides the COMAFFOR the

necessary authority to ensure that Air Force Service component forces are properly

organized, trained and equipped to accomplish those functions and tasks assigned by

the JFC. In accordance with Title 10, US Code, Armed Forces, the COMAFFOR’s

ADCON authority is subject to the operational authority of the combatant commander to

whom Air Force forces are assigned or attached.

Two other relationships, coordinating authority and direct liaison authorized

(DIRLAUTH), are useful for establishing collaborative relationships between

organizations.

These authorities are more completely described in Appendix A.

ASSIGNMENT AND ATTACHMENT OF FORCES

Assignment of Forces

Forces are assigned to combatant commands (CCMDs) by the SecDef’s Forces for

Unified Commands memorandum. Assignment of forces is relatively permanent. A force

assigned to a CCMD may be transferred from that command only as directed by the

AFDP 3-30 COMMAND AND CONTROL

SecDef and under procedures prescribed by the SecDef and approved by the

President. A CCDR may subsequently organize assigned forces as necessary, to

include the establishment of subordinate unified commands and joint task forces (JTFs).

Establishing authorities for subordinate unified commands and JTFs may direct the

assignment or attachment of their forces to those subordinate commands as

appropriate.

Allocation and Attachment of Forces

When a CCDR requires more forces or capabilities than those already assigned, he or

she may request additional forces be allocated and attached to that gaining command.

Attachment of forces, unlike assignment of forces, is temporary. These forces may be

sourced from other CCDRs or Service-retained forces and attached for continuing

presence or operations on an annual rotational basis or may be attached for emerging

contingencies. Forces allocated and attached for either annual or emergent

requirements are identified and transferred in accordance with procedures in the

SecDef’s Global Force Management Implementation Guidance (GFMIG) and Chairman

of the Joint Chiefs of Staff Manual series 3130.06, Global Force Management Allocation

Policies and Procedures. Annual rotational forces are normally listed in a SecDef

deployment order called the Global Force Management Allocation Plan (GFMAP).

Forces identified for emergent contingencies are detailed in a modification to the

GFMAP. The command relationship the gaining commander will exercise over such

attached forces (and the losing commander will relinquish) should be specified by the

SecDef in an establishing directive. The SecDef will normally attach forces with

specification of operational control (OPCON) to the gaining CCDR.

COMMAND RELATIONSHIP MODELS FOR AIR FORCE FORCES

The deployment order (DEPORD) is the primary instrument for transferring forces

and establishing supported and supporting relationships between CCDRs. Forces

may also be transferred by an execute order which executes an approved

operation plan. Other orders created during the planning process, such as warning

orders, planning orders, alert order, or fragmentary orders, may also specify or shape

command relationships, but they do not transfer forces. The SecDef, as the only

authority for transferring forces between CCDRs, normally approves DEPORDs. This

DEPORD should specify to which CCDR the deployed forces are assigned or attached

and the command relationship (OPCON or TACON) to be exercised by the gaining

commander. While the JFC ultimately has the authority to determine the delegation of

command among subordinates, Air Force commanders should make consistent

recommendations and present forces in a consistent manner to the JFC.

For Air Force forces, there are four general models for command relationships.

Considerations for these relationships should include the ability of gaining commands to

receive the forces and to command and control them appropriately, the characteristics

and support requirements of the forces involved, and the operating locations of the

forces.

In-Theater Forces

In general, when Air Force forces deploy into a theater to conduct operations, OPCON

of those forces should normally go forward to the CCDR to whom the President or

SecDef has assigned responsibility for accomplishing the mission. Since not all

elements of ADCON authorities and responsibilities are transferred to the forward-

based gaining commander, ADCON can and does run concurrently between the gaining

COMAFFOR and the parent organizations of the deployed forces. Which elements of

ADCON are specified to the forward COMAFFOR and which are retained by the parent

organization should be clearly specified.

Out-of-Theater Forces

There are two general cases in which Air Force forces may execute missions inside a

theater of operations while based outside the theater. These cases involve forces based

in the continental US (CONUS), and forward-based forces operating outside the

CONUS (OCONUS) and outside the geographic CCDR’s area of responsibility (AOR).

 CONUS-Based Forces that launch from their CONUS home station, conduct

operations in another theater, and recover in CONUS should normally be transferred

with the appropriate command relationship (OPCON or TACON) to the supported

CCDR at a designated date/time group or geographic point. ADCON should remain

with the original Air Force command. CONUS-based forces that do not deploy, but

provide support to forward-based operations, normally remain under the OPCON

and ADCON authority of their owning command chain and establish support

relationships with their forward customers. (Note: see related discussion on

reachback and distributed operations in this section.)

 OCONUS Forces outside the AOR should be OPCON to the CCDR executing the

mission, while ADCON is best specified to the COMAFFOR of the AOR in which

they bed down. An example of this situation would be bombers stationed at Diego

Garcia in the US Indo-Pacific Command AOR, but conducting operations under the

command of US Central Command (USCENTCOM). The Commander,

USCENTCOM would exercise OPCON and TACON of the bombers through the air

component commander to US Air Forces Central. The Commander, Pacific Air

Forces (PACAF), would exercise specified elements of ADCON through the

established PACAF organizational structure but would have no operational

responsibility or authority over the forces attached to Commander, USCENTCOM.

Transient Forces

Per Joint Publication (JP) 1, Doctrine for the Armed Forces of the United States,

geographic or local commanders do not normally exercise OPCON of transient forces.

However, such forces are subject to local force protection, general orders, dining,

lodging, and administrative reporting requirements.

Forces in Exercises

Forces participating in joint exercises under the orders of a CCDR should normally be

under the OPCON of the sponsoring CCDR. With the exception of the USNORTHCOM

AOR, a geographic CCDR has TACON for exercise purposes for forces conducting

exercises within his/her AOR. In this context, TACON provides directive authority over

exercising forces for purposes relating to that exercise only; it does not authorize

operational employment of those forces.

FUNCTIONAL FORCES

Functional forces satisfy mission requirements across multiple AORs and are thus best

centrally controlled by their functional CCDR. For such forces, the functional CCDR

frequently retains OPCON of assigned forces and executes as supporting commander

to the supported geographic CCDR. In those cases where functional forces bed down in

a geographic CCDRs AOR, the Air Force host base commander (or senior Air Force

officer present on the installation, if the Air Force is a tenant) normally exercises

TACON for force protection and a minimum degree of ADCON for Uniform Code of

Military Justice enforcement, dining and lodging, and some limited force reporting. (See

the discussion on ADCON responsibilities of host installation commanders in this

annex).

Transfer of Functional Forces to a Geographic Command

In some situations, a geographic commander may request additional functional forces

beyond those apportioned or allocated during contingency planning. The decision to

transfer functional forces, with specification of OPCON to a geographic CCDR, should

be balanced against competing needs across multiple AORs. In some cases, the

requirement for OPCON over specific forces to accomplish the geographic CCDR’s

missions may be of higher priority than the competing worldwide mission requirements

of the functional CCDR. Therefore, after coordination with the owning functional

commander and upon SecDef approval, functional forces may be transferred to the

geographic command and organized accordingly.

The decision to attach additional functional forces has two parts. First, the decision

should consider whether:

 The geographic CCDR will use the forces at or near their full capability with little or

no residual capability for other global missions.

 The forces will be used regularly and frequently over a period of time, not just for a

single mission employment.

 The geographic commander has the ability to effectively command and control (C2)

the forces.

If the answer to all three conditions above is “yes,” then the functional forces

should be attached to the geographic CCMD. If any of the above conditions are

answered “no,” then the functional forces should remain under the OPCON of the

functional CCDR’s air component commander and be tasked in support.

If the decision is to attach forces, the second decision is whether the forces should be

attached with specification of either OPCON or TACON.

 Specification of OPCON: OPCON “provides authority to organize and employ

commands and forces as the commander considers necessary to accomplish

assigned missions. It does not include authoritative direction for logistics or matters

of administration, discipline, internal organization, or unit training” (JP 1).

 Specification of TACON: TACON is “the authority over forces that is limited to the

detailed direction and control of movements or maneuvers within the operational

area necessary to accomplish missions or tasks assigned.” JP 1 states “[w]hen

transfer of forces to a joint force will be temporary, the forces will be attached to the

gaining command, and JFCs, normally through the Service component commander,

will exercise OPCON over the attached forces.” While it is possible for the SecDef

to attach forces across CCMD lines with the specification of TACON rather than

OPCON, this would deviate from joint doctrine and would result in a chain of

command with OPCON and TACON split between two different CCDRs.

REACHBACK AND DISTRIBUTED OPERATIONS

Reachback

Reachback is defined as “the process of obtaining products, services, and

applications, or forces, or equipment, or material from organizations that are not

forward deployed” (JP 3-30, Joint Air Operations). Reachback may be provided from a

supporting or supported relationship or by Service-retained forces. This relationship

gives the air component commander the support necessary to conduct operations while

maintaining a smaller deployed footprint.

Distributed Operations

Distributed operations are defined as operations when independent or

interdependent forces, some of which may be outside the joint operations area,

participate in the operational planning and/or operational decision-making

process to accomplish missions and objectives for commanders. Forces

conducting distributed operations should be assigned or attached to a combatant

command. The design of a distributed operation should enable a more survivable C2

network through distribution of tasks, information, and responsibilities. In some

instances, the commander may establish a formal supported or supporting relationship

between distributed nodes. In

other instances, distributed nodes

may have a horizontal

relationship. Technology enables

more participants from greater

distances to create and manage

complex networks for distributed

operations.

Split Operations

Split operations are distributed

operations conducted by a

single C2 entity that is

separated between two or more

geographic locations. A single

commander should have oversight

of all aspects of a split C2

operation. For example, sections

of the air tasking order may be

developed from a rear area or

backup operation center to reduce

the deployed air operations center

(AOC) footprint.

Although distributed and split

operations are similar to

reachback, there is one major

difference. Reachback provides

ongoing combat support such

as products, services, or

equipment to the operation

from the rear, while a

distributed or split operation

indicates actual involvement in

operational planning or decision-

making.

The decision to establish distributed or split operations invokes several tradeoffs:

 The fewer personnel or forces deployed forward, the less support is required to be

pushed across great distances; however, face-to-face interaction between forward

and rear decision makers may be limited, and decision making timelines may

stretch.

Remotely Piloted Aircraft and

Remote Split Operations

Current remotely piloted aircraft (RPA)

technology provides effective employment

capabilities as well as unique C2

challenges. One solution is a concept

called remote split operations (RSO).

RSO refers to the geographical separation

of the RPA from its launch and recovery

crew, typically bedded down in a

geographic combatant commander’s

(CCDR) operational area, and from the

mission crew, which generally remain in

the continental US. This enables the

extension of RPA capabilities to almost

anywhere in the world through a distributed

secure network.

For RSO, the in-theater RPA and launch

crew are typically assigned or attached to

the CCDR, similar to other in-theater

forces. However, the CONUS mission crew

and control center may be formally

attached to the CCDR based on Secretary

of Defense-established global priorities

and requirements, and can “swing” to

support other CCDRs as those priorities

and requirements change. This allows

significant flexibility in RPA tasking and

support, while allowing these high-demand

assets to best meet warfighter needs.

20 
 
  Having fewer personnel or forces forward reduces security requirements; however, 
their expertise is no longer immediately at hand for ad hoc problem solving.  
 
  Reachback requires more bandwidth for communications. These links may then 
become critical vulnerabilities. However, a distributed operation may arguably be 
more survivable and less prone to single-point failure. 
 
MULTINATIONAL OPERATIONS  
 
Multinational operations are operations conducted by forces of two or more nations, and 
are usually undertaken within the structure of a coalition or alliance. 
 
  An alliance is “the relationship that results from a formal agreement [e.g., a 
treaty] between two or more nations for broad, long-term objectives that further 
the common interests of the members” (JP 3-0, Joint Operations). 
 
  A coalition is an arrangement between two or more nations for common 
action. Coalitions are formed by different nations with different objectives, usually 
for a single occasion or for longer cooperation in a narrow sector of common 
interest.  
 
Commanders may not have the same defined degree of control over coalition 
forces as a US-only force; degrees of control may have to be negotiated. 
Sometimes, existing non-US controls may be used, as may be encountered in North 
Atlantic Treaty Organization (NATO) operations by the use of NATO operational 
command, OPCON, NATO tactical command, and TACON; commanders and staff 
should be aware of the different nuances. Finally, each nation may retain its own chain 
of command over its forces and its own rules of engagement; thereby further 
complicating unity of command. Thus, the challenge in multinational operations is the 
effective integration and synchronization of available capabilities toward the 
achievement of common objectives through unity of effort despite disparate C2 
structures, capabilities, equipment, and procedures.  
 
For additional details and considerations refer to JP 3-16, Multinational Operations  
 
Multinational and Interagency Coordination  
 
Many operations involve military forces of allies, and many operations also involve 
intergovernmental organizations (IGOs), nongovernmental organizations (NGOs), and 
regional organizations. Direct command over these various entities is frequently not 
possible, and unity of effort rather than unity of command becomes the goal. 
 
Interagency coordination is “the coordination that occurs between elements of the 
Department of Defense [DOD], and participating United States Government agencies 
and departments for the purpose of achieving an objective” (JP 3-0). Attaining national 
objectives requires the efficient and effective use of the diplomatic, informational, 

economic, and military instruments of national power supported by and coordinated with

those of our allies and various IGOs, NGOs, and regional organizations.

 “Interagency coordination is conducted between elements of DOD and relevant

USG departments and agencies to achieve unity of effort. Interagency coordination

links the US military and the other instruments of national power.

 Interorganizational coordination refers to broader interaction among elements of

the DOD; relevant USG departments and agencies; state, territorial, local, and tribal

agencies; foreign military forces and government agencies; international

organizations; NGOs; the private sector; and other mission partners.” (JP 3-08,

Interorganizational Cooperation)

As with multinational operations, C2 is not as straightforward as within a US-only

joint force, and unity of effort is the goal.

COMMAND AND CONTROL MECHANISMS

Last Updated: 7 January 2020

AIR COMPONENT STAFF

The air component commander requires an appropriately sized and configured C2

capability to effectively command and control the Air Force Service component and joint

air forces made available for tasking. This C2 capability includes an air component staff

and an AOC. When the JFC follows normal doctrinal recommendation and practice and

designates the COMAFFOR to be the JFACC then the COMAFFOR’s C2 structure, with

joint augmentation, forms the basis for the JFACC’s C2 structure.

The staff of the air component (both Service and joint functional) is the mechanism

through which the commander exercises responsibilities across the continuum of

conflict.

These responsibilities include the deployment, basing, sustainment, and

redeployment of Air Force forces. The staff supports the commander in both operational

and administrative responsibilities. The operational responsibilities include the planning,

execution, and assessment of steady-state operations in support of the combatant

commander’s (CCDR’s) theater campaign plan. The administrative responsibilities

include those activities for organizing, training, and equipping Air Force forces.

An air component staff should be ready to fill one or more roles: that of a theater-wide

Air Force Service component, an Air Force warfighting component within a joint task

force (JTF), or the core within a JTF headquarters. In the latter case, the air component

staff would require augmentation from outside the theater and by other Service

personnel to meet manning requirements. Regardless, the air component staff should

be trained and ready to transition from steady state to contingency operations. When

able, commanders should avoid dual- or triple-hatting their staff.

The staff’s function is to support and assist the air component commander in preparing

to carry out the functions and tasks assigned by the joint force commander (JFC). The

The “conflict continuum” described in Joint Publication (JP) 3-0, Joint Operations, is expanded by Joint

Doctrine Note 1-19, Competition Continuum, 3 Jun 19. “Competition continuum” is expected to be the

accepted phrase in the next iteration of JP 3-0, but “conflict continuum” remains in joint doctrine at

present.

Workload distribution and recommendations on augmentation derived from lessons learned during

Exercise AUSTERE CHALLENGE 2010.

AFDP 3-30 COMMAND AND CONTROL

staff’s responsibilities will vary depending on the level of the JFC to which the air

component is assigned or attached.

See Appendix B, which outlines C2 structures and the basic air operations center

(AOC). Appendix C provides a summary of baseline Air Force forces (AFFOR) and air

component staff organization.

AIR OPERATIONS CENTER

With joint augmentation, the AOC becomes the joint AOC (JAOC). With joint, coalition,

or other multinational augmentation, the AOC becomes the combined AOC (CAOC).

AOCs do not work in isolation; they require connectivity to operations centers of

higher headquarters, to lateral headquarters (e.g., other joint force components), to

subordinate assigned and attached Air Force units, and to other functional and

geographic AOCs.

Both the air component staff and the AOC perform warfighting functions and should

work together to fulfill air component responsibilities to the JFC. An AOC, along with

subordinate C2 elements, should be tailored to the requirements of the mission. An

AOC should be capable of performing the following tasks:

 Develop the component strategy and requisite planning products.

 Task, execute, and assess day-to-day component operations.

 Plan and execute intelligence, surveillance, and reconnaissance (ISR) tasks

appropriate to assigned missions.

 Conduct operation assessment.

AOC tasks may include integrating intertheater air mobility support; developing and

issuing airspace control procedures; and providing direction for theater air and missile

defense. Defensive cyberspace operations and defensive counterspace activities are

coordinated with responsible operations centers and headquarters through the

DIRSPACEFOR and DIRCYBERFOR.

AOCs and their subordinate C2 elements may be geographically oriented or functionally

oriented. To bring all the Air Force’s capabilities together for a given operation or

activity, the AOCs normally work together in a mutually supporting command

arrangement, with one of them designated as the supported center.

For more detailed guidance on internal structure and procedures, refer to Air Force

Instruction 13-1AOC, Volume 3, Operational Procedures-Air Operations Center.

Liaisons in the AOC

The air component commander may have a number of liaison teams and liaison officers

(LNOs) within the AOC to facilitate planning and execution among the other

components in the joint force.

Component Liaisons. Component liaisons work for their component commanders and

with the air component commander and staff. Each component provides liaison

elements that work within the AOC and AFFOR staff. These liaison elements consist of

specialists who provide component planning and tasking expertise and coordination

capabilities. They integrate, coordinate, and deconflict their component’s participation in

joint air component operations. The air component may require other liaison

augmentation to support AOC functions such as security, intelligence and other aviation

elements.

Battlefield Coordination Detachment (BCD). The BCD supports integration of air

component operations with Army operations. BCD personnel are integrated into AOC

divisions to support planning, operations, air defense, ISR, airlift, logistics, airspace

control, and communications. The BCD coordinates ground force priorities, requests,

and items of interest. One of the BCD’s most important functions is to coordinate

boundary line and fire support coordination measures changes and timing. The BCD

provides ground order of battle situational awareness and expertise to the AOC.

Naval and Amphibious Liaison Element (NALE). The NALE personnel from the

maritime components support the AOC in integrating maritime air, fires, amphibious

operations, and other activities into theater air operations, and monitor and interpret the

maritime battle situation for the AOC. When required, the NALE brings maritime order of

battle (both friendly and enemy) situational awareness, and provides update and

intelligence briefings.

Marine Liaison Element (MARLE). MARLEs are representatives of the commander,

Marine Forces and the associated aviation combat element commander. The MARLEs

support the air component commander in integrating Marine air-ground task force

(MAGTF) fires, maneuver, and Marine air into the theater campaign and supporting joint

air operations plan. This team should be well versed in the MAGTF commander’s

guidance, intentions, schemes of maneuver, and direct support aviation plan.

Special Operations Liaison Element (SOLE). The joint force special operations

component commander (JFSOCC) provides a SOLE to the air component commander.

The SOLE coordinates, synchronizes, and deconflicts special operations forces’ air,

surface, and subsurface operations within the operational area through the air tasking

order and airspace control order. The SOLE chief, serving as the JFSOCC’s

representative to the air component commander, places LNOs throughout the AOC

staff.

Coalition and Allied LNOs. LNOs representing coalition and allied forces may improve

AOC situational awareness regarding the disposition of friendly forces, especially when

those forces do not have a mature theater air control system. They are essential for

unity of effort for coalition or allied air defense operations and airspace deconfliction.

AOC directors should anticipate the need for LNOs in an immature theater and seek

them out via the JFC’s staff, in-country military group, staff country team, or direct

contact with coalition forces.

JOINT AIR COMPONENT COORDINATION ELEMENT

The air component commander may establish one or more joint air component

coordination elements (JACCEs) with other component commanders’ headquarters,

and the supported JTF headquarters, to better integrate operations. These elements act

as the air component commander’s primary representatives to the respective

commanders and facilitate interaction with their staffs.

It is recommended that a JACCE be provided to any sub-theater JFC below the 3-star

level of command. This enables the theater air component commander to provide Air

Force forces in a supporting role as required, while maintaining the proper level of

required command and control be retained at the theater commander level for JOA-wide

operations.

The JACCE facilitates integration by exchanging intelligence, operational data, and

support requirements. The JACCE coordinates the integration of airspace coordinating

measures, fire support coordination measures, close air support, and air mobility. The

JACCE is a liaison element, not a command and control node, and has no authority to

direct or employ forces. However, a joint force air component commander, and other

Service components, may delegate certain authorities to a JFC assigned JACCE, based

on operational requirements and to enhance overall C2 and integration and

employment. Element expertise may include plans, operations, intelligence, airspace

management, logistics, space, cyberspace, and air mobility. The JACCE communicates

the supported JTFs or component commander’s decisions and interests to the theater

air component commander. The JACCE director is the air component commander’s

personal and official representative and should have sufficient rank to effectively work

with the component or JTF commander to which he or she is attached. Finally, the

JACCE director should not be dual-hatted as the commander of a tactical unit.

The JACCE should:

 Ensure the air component commander is aware of each commander’s priorities and

plans.

 Ensure the air component commander staff coordinates with components or JTF

headquarters counterparts.

 Ensure appropriate commanders are aware of the air component commander’s

capabilities and limitations.

 Ensure appropriate commanders are aware of the air component commander’s plan

to support the JFC’s intent and objectives.

 Facilitate air component commander processes with component and JTF

commanders.

 Provide oversight of other air component commander liaisons to component and JTF

headquarters staffs.

 Ensure information flows properly between the AOC, sister components, and JFC.

For further readings on recent JACCE operations in Afghanistan, see the article “NATO

Air Command–Afghanistan: The Continuing Evolution of Airpower Command and

Control” in Volume 28, No. 1 of Air and Space Power Journal.

ORGANIZING AIR FORCE FORCES

Last Updated: 7 January 2020

Organization is critically important to effective and efficient operations. It is

essential that Airmen understand the fundamentals of Air Force and joint

organization, command relationships, and responsibilities of the senior Air Force

commander.

The Air Force Service component command is the organizational structure for Air

Force forces assigned or attached to a joint force commander (JFC). Combatant

commands and subordinate unified commands typically have assigned Air Force

Service component commands (component major command [C-MAJCOM] or

component numbered Air Force [C-NAF]) to which additional expeditionary forces

may be attached as required for operations. Joint task forces (JTF) normally do not

have standing Air Force structures and require the Air Force establish an Air

Expeditionary Task Force (AETF) as a temporary Air Force Service component

command. The commander of the AETF would either be the commander, Air Force

forces (COMAFFOR) directly responsible to the JTF commander, or established in a

supporting role to the JTF under the authority of the theater air component

commander. If appropriate, the commander of the AETF may also be designated as a

JACCE to the supported JTF commander.

REGIONAL ORGANIZATION AND CONTROL

All military missions are ultimately under the authority of a JFC at the

appropriate level. If the entire theater is engaged, the combatant commander

(CCDR) may be the JFC. If the situation is less than theater-wide, the CCDR may

establish a subordinate JTF commanded by a subordinate JFC.

 Within a joint force, the JFC may organize forces in a mix of Service and functional

components. All joint forces contain Service components, because

administrative and logistics support are provided through Service components.

 The JFC may also establish functional component commands when forces from

two or more military Services operate in the same dimension or domain, or there is

a need to accomplish a distinct aspect of the assigned mission.

AFDP 3-30 COMMAND AND CONTROL

28 
 
FUNCTIONAL ORGANIZATION AND CONTROL 
 
Many types of airpower are capable of serving more than one geographic CCDR at a 
time. Such forces are organized under functional CCDRs to facilitate cross-area of 
responsibility (AOR) optimization. When such forces are deployed in a geographic 
CCDR’s AOR, they may remain under the operational control (OPCON) of their 
respective functional CCDR and operate in support of the geographic CCDR, or with 
Secretary of Defense (SecDef) approval, they may be transferred to a geographic 
commander and attached with specification of OPCON or tactical control (TACON). 
 
THE AIR EXPEDITIONARY FORCE 
 
 
To address growth in diverse regional commitments, the Air Force established the 
air expeditionary force (AEF) concept as a means to provide Air Force forces and 
associated support on a rotational, and more predictable, basis. AEFs provide a 
source of readily trained operational and support forces. They do not provide a 
commander (specifically, a COMAFFOR) or the necessary command and control 
(C2) mechanisms. Thus, AEFs by themselves are not discrete, employable entities. 
Forces sourced from AEFs should be integrated with in-theater command 
structures, and link up with in-theater Air Force forces (which may be in the form of 
an AETF). 
 
Refer to Air Force Instruction (AFI) 10-401, Air Force Operations Planning and 
Execution, for further details. 
 
THE AIR EXPEDITIONARY TASK FORCE 
 
The AETF is the organizational structure for Air Force forces to execute 
operational tasking when there is not an existing Air Force structure prepared 
to accept expeditionary forces. The AETF provides a task-organized, integrated 
package with the appropriate balance of force, sustainment, control, and force 
protection. 
 
The AETF presents a scalable, tailorable organization with three elements: a single, 
clearly designated commander, appropriate C2 mechanisms, and tailored and 
fully supported forces.  
 
“Single Commander…” 
 
In the context of joint organization, a single commander presents one Air Force 
position to the JFC and results in clear lines of authority. The AETF commander is the 
senior Air Force warfighter and exercises the appropriate degree of control over the 
forces assigned, attached, or in support of the AETF. Within the joint force, these 
degrees of control are formally expressed as OPCON, TACON, or support. Within 
Service lines, the AETF commander exercises administrative control (ADCON). 
 

“Appropriate Command and Control Mechanisms…”

The AETF commander requires command mechanisms to exercise appropriate

operational and Service administrative control. An AETF attached with specification of

OPCON to a JTF, will include a COMAFFOR under the OPCON of that JTF

commander. However, due to resource constraints in both manning and equipment,

the theater air component normally will not have sufficient resources to provide the

AETF with a C2 capability adequate for being designated as a JTF level joint force air

component commander (JFACC). The CCDR should direct the theater air component

commander to retain TACON over joint air forces and be established in support to the

JTF commander. This support relationship may be enabled through a JACCE

appointed by the theater air component commander. The AETF commander will

provide C2 through clearly delineated commander’s intent that is forward thinking. It is

imperative these commanders have conditions-based authorities, empowered

command by negation while accepting the appropriate level of risk, all while working

towards moments of clear C2 back to the theater level air component commander.

Within the authorities and responsibilities of ADCON, the COMAFFOR oversees the

deployment and sustainment of Air Force forces, normally through the Air Component

staff and subordinate Service organizations (e.g., wings, groups, squadrons, etc.).

Sustainment activities are critical to the successful accomplishment of operational

functions, and should be fully integrated with and complementary to the air operations

center’s (AOC’s) operational activities.

“Tailored and Fully Supported Forces…”

The AETF should be tailored to the mission; this includes not only forces, but also the

ability to command and control those forces for the missions assigned. It should draw

first from in-theater resources, if available. If needed the AETF will likely draw from the

AEF currently on rotation. These forces, whether in-theater or deployed from out of

theater, should be fully supported with maintenance, logistical, health services, and

administrative elements.

AETF Organization

The AETF commander organizes forces as necessary into wings, groups, squadrons,

flights, detachments, or elements to provide reasonable internal spans of control,

command elements at appropriate levels, and to retain unit identity.

Numbered Expeditionary Air Force

Numbered expeditionary Air Force (NEAF) is the generic title for an AETF made up

of multiple expeditionary wings and is the largest sized AETF. NEAFs normally carry

an appropriate numerical designation based on numbered Air Forces (NAFs)

historically associated with the region or command.

Air Expeditionary Task Force-X

“Air Expeditionary Task Force-X” (AETF-X) is the generic title used when a provisional

Air Force command echelon is needed between a component numbered Air Force (C-

NAF) or NEAF and an air expeditionary wing (AEW). AETF-X is used when a C-NAF

or NEAF-level AETF establishes a subordinate provisional command echelon

consisting of two or more AEWs. An example of this usage is when the Commander,

US Air Forces Central (USAFCENT) established two subordinate AETFs, 9

AETF-Iraq

(AETF-I) and 9

AETF-Afghanistan (AETF-A), to provide command over multiple AEWs

in their respective joint operations areas.

Depending on why this echelon is established, and its relationship within Service

and joint force organizations, the AETF-X commander may or may not be a

COMAFFOR. See “Air Force Component Presentation Considerations” for further

discussion.

Air Expeditionary Wing

AEW is the generic title for a deployed wing within an AETF. An AEW normally is

composed of the wing command element and subordinate groups and squadrons.

AEWs normally carry the numerical designation of the wing providing the command

element. An AEW may be composed of units from different wings, but where possible,

the AEW is formed from units of a single wing.

Air Expeditionary Group

Air expeditionary group (AEG) is the generic title for a deployed group assigned to an

AEW or a deployed independent group assigned to an AETF. Expeditionary groups

that deploy independent of a wing structure should contain elements of all the

functions needed to conduct semi-autonomous operations. An AEG is comprised of a

command element and some squadrons.

If deployed as an independent group, the AEG commander normally reports to the air

component commander. If deployed as a group subordinate to an expeditionary wing,

the AEG commander reports to the AEW commander. The AEG is normally the

smallest independently deployable AETF.

Air Expeditionary Squadron

Air expeditionary squadron is the generic title for a deployed squadron within an AETF.

Deployed squadrons (assigned or attached) retain their numerical designation and

acquire the “expeditionary” designation. An individual squadron is not designed to

conduct independent operations; it normally requires support from other units to obtain

the synergy needed for sustainable, effective operations. If a single operational

squadron or squadron element is all that is needed to provide the desired operational

effect (e.g., an element of C-130s performing humanitarian operations), it should

deploy with provision for support and C2 elements as well as ability for reachback

support.

Expeditionary Elements below Squadron Level

The Air Force may deploy elements below the squadron level for specific, limited

functions, often as individuals or specialty teams. For ADCON purposes, these

elements should normally be attached to the commander of a larger Air Force entity in

the region.

Exercising ADCON over small, remotely located Air Force elements has posed

challenges for the Air Force component headquarters.

Designation of Expeditionary Units

An AETF is named based on the unit providing the senior-echelon command

function, its size, and the operation name.

Units operating from their normally assigned, in-place location, such as permanently

assigned units in Korea under US Indo-Pacific Command need not adopt

expeditionary nomenclature. The overall operation, however, should still be modeled

as an AETF to delineate clear chains of operational and administrative authority.

Other deployed wings, groups, and squadrons that are not assigned or attached to

the AETF, but provide significant support (such as airlift and air refueling units in the

intertheater air bridge), may be designated “expeditionary” at the discretion of their

owning major command or Service component commander.

Provisional Units

In some instances, expeditionary forces may not form around active numbered units,

when there are insufficient active numbered units in the AEF rotation to satisfy a very

large operation or a single major force provider cannot be identified. In such cases,

provisional units may be created using predesignated inactive units. A unit under a

single provisional unit designation should also be considered to provide continuity of

operations for extended contingency operations in which units are frequently rotated in

and out (e.g., Operations SOUTHERN WATCH and IRAQI FREEDOM).

Examples of AETFs

Component AETF

When directed, an AETF may be formally attached to a joint force at the JTF level,

usually with specification of OPCON, forming a Service component command. In these

cases, the AETF commander is a COMAFFOR, and a separate C2 capability (possibly

less than a full AOC and Air Force forces (AFFOR) staff are normally required to

employ and support the AETF.

AETF in Support

During some operations, especially when there may be multiple joint operations areas

(JOAs) with multiple JTFs, it may not be feasible to attach AETFs to each JTF due to

C2 resource constraints. In such cases, subordinate AETFs may be established and

placed in support of JTFs. Examples of this structure occurred in the later phases of

Operations ENDURING FREEDOM and IRAQI FREEDOM, US Air Forces Central

(USAFCENT) established subordinate task forces to directly support sub-theater-level

JTFs operating in separate JOAs within US Central Command (USCENTCOM).

AETF for ADCON Only

On occasion, AETFs may be established to address a specific but purely internal

Service challenge and may have no direct relation to a joint force. Examples can be

found during the initial phase of Operation IRAQI FREEDOM, when the Air Force

formed two task forces for ADCON purposes only, one in Pacific Air Forces, under

13th Air Force on Guam, and one in US Air Forces in Europe, under 16th Air Force in

Turkey. These AETFs were formed to provide more direct oversight of Air Force

support activities of those forces bedded down in (at the time) US Pacific Command

(now US Indo-Pacific Command) and US European Command AORs, supporting

USCENTCOM’s main effort. In this case, these task forces’ commanders only

exercised ADCON; they were not delegated any operational authorities.

INTEGRATING REGIONAL AND FUNCTIONAL AIR FORCE FORCES

Functional and geographic capabilities most likely to be integrated in a supported or

supporting role are air mobility operations, space operations, special operations,

cyberspace operations, and nuclear operations.

Integrating Air Mobility Operations

Command relationships can allow an interlocking arrangement to manage intratheater

and intertheater air mobility operations. Normally, intratheater air mobility forces are

attached to the JFC, with OPCON delegated to the air component commander.

Intertheater air mobility forces normally remain under the control of US Transportation

Command (USTRANSCOM), delegated downward within Air Mobility Command

(AMC). Within a regional operation, the director of mobility forces (DIRMOBFOR),

along with the air mobility division (AMD) in the AOC, provides a coordination function

between the intertheater and intratheater air mobility operations.

The Director of Mobility Forces

The DIRMOBFOR is the air component commander’s designated coordinating

authority for air mobility operations, and coordinates on behalf of the air component

commander with the AMD in the AOC. To ensure close coordination with the overall

theater effort, the DIRMOBFOR is normally assigned to the air component

commander’s special staff. In those instances when no JFACC is designated, or the

JFACC is from another Service, the DIRMOBFOR should normally report to the

COMAFFOR.

For specific authorities and responsibilities, refer to Annex 3-17, Air Mobility Operations.

Integrating Space Operations

Space capabilities may be used to fulfill single theater, multiple theater, or global

objectives. Thus, the C2 structure established for integrating assets and forces must

be robust enough to account for these various operating areas. Employing assets to

meet global or multiple theater requirements normally requires a structure that bridges

more than one theater and is capable of incorporating non-Department of Defense

agencies. The CDRUSSPACECOM may act as either the supporting or supported

commander in a conflict, depending on the scenario. Space capabilities within a

regional operation are normally focused by the designation of a single authority for

space operations.

Space Coordinating Authority

Within a regional operation, the JFC has space coordinating authority (SCA) to plan,

integrate, and coordinate space operations involving forces of two or more military

departments, functional components, or two or more forces of the same Service.

Although JFCs may retain authority at the JFC level, they should normally delegate

SCA to the component commander who provides the preponderance of military space

capabilities, the requisite ability to command and control them, and the resident space

expertise. The air component commander provides these capabilities through the Air

Force’s organic space C2 infrastructure.

The Director of Space Forces

The director of space forces (DIRSPACEFOR) serves as the senior space advisor to

the air component commander. The DIRSPACEFOR advises and facilitates

coordination, planning, execution, and assessment of space operations and courses of

action for the air component commander. In addition, when the air component

commander is delegated SCA, the DIRSPACEFOR works the day-to-day SCA activities

on their behalf. The DIRSPACEFOR is part of the air component commander’s special

staff. In those instances when no JFACC is designated, or the JFACC is from another

Service, the DIRSPACEFOR reports to the COMAFFOR. Whether a permanent

member of the theater major command staff or provided to the theater by Air Force

Space Command (AFSPC), the DIRSPACEFOR should be pre-identified to allow that

officer time to become familiar with that theater’s space requirements.

For specific responsibilities of SCA and DIRSPACEFOR, see Annex 3-14, Counterpace

Operations.

34 
 
Integrating Special Operations 
 
Commander, US Special Operations Command (USSOCOM) exercises combatant 
command (command authority) (COCOM) of worldwide special operations forces, 
while the geographic CCDR exercises OPCON of assigned or attached Air Force 
special operations forces (AFSOF) through the commander of the theater special 
operations command. For conventional missions, the COMAFFOR may receive 
OPCON or TACON of AFSOF assets when directed by the JFC. However, in most 
cases, AFSOF will be in a direct support relationship with conventional assets. 
When SOF operate in concert with “conventional” JTFs, they normally take the form 
of a separate joint special operations task force (JSOTF) within the JTF. The Joint 
Special Operations Air Component is the SOF functional air component. 
 
Whether operating under control of the joint special operations component 
commander (JFSOCC) or in support of the air component commander, SOF aviation 
missions are synchronized with other air activities supporting the theater campaign 
To ensure SOF aviation and surface assets are closely synchronized in all joint air 
operations, from planning through assessment, the JFSOCC provides the air 
component commander a special operations liaison element (SOLE) to coordinate, 
deconflict, and synchronize SOF operations, strategy, and plans with other air 
operations. In return, the air component commander should provide a joint air 
component coordination element (JACCE) to the JFSOCC. 
 
The Special Operations Liaison Element 
 
Whether operating autonomously or in conjunction with conventional forces, SOF 
aviation and surface assets should be closely synchronized with all joint air 
operations—from planning through execution—to provide coordination and 
deconfliction, prevent fratricide, and exploit synergistic effects. 
 
The SOLE is a liaison team that represents the JFSOCC to the air component 
commander. The SOLE synchronizes all SOF air and surface operations with joint air 
operations via the tasking process. Additionally, the SOLE deconflicts SOF operations 
with other component liaisons in the AOC. Specific functions include synchronization of 
SOF requirements into air tasking order (ATO) and airspace control order generation, 
real time mission support within the AOC, operations and intelligence support for 
targeting, combat airspace control for prevention of fratricide, coordination with special 
plans functions, and coordination with the joint personnel recovery center. The SOLE 
also assists in the deconfliction of joint special operations areas and unconventional 
warfare operating areas with the air component commander. 
 
For specific responsibilities of the SOLE, see Annex 3-05, Special Operations. 
 
Integrating Cyberspace Operations 
 
Global cyberspace capabilities may be presented to a combatant command through a 
supporting relationship, with United States Cyber Command (USCYBERCOM; also 

35 
 
USCC). USCC is a unified combatant command responsible for providing offensive 
and defensive cyberspace capabilities to other CCDRs. USCC presents cyberspace 
capabilities to CCDRs through Service-led, regionally aligned, Joint Force 
Headquarters Cyber (JFHQ-C) staffs and assigned teams. 
 
For further discussion, see Annex 3-12, Cyberspace Operations 
 
The Director of Cyberspace Forces 
 
Within an Air Force component, the director of cyberspace forces (DIRCYBERFOR) 
serves as the senior cyberspace advisor to the air component commander. The 
DIRCYBERFOR facilitates the coordination, integration, and synchronization of 
cyberspace operations with air and space operations. The DIRCYBERFOR provides 
senior leader perspective and guidance on the planning, development, integration, 
and employment of cyberspace capabilities for Air Force component operations and 
facilitates synchronization of cyberspace capabilities and effects. The DIRCYBERFOR 
is part of the air component commander’s special staff. In those instances when no 
JFACC is designated, or the JFACC is from another Service, the DIRCYBERFOR 
should report to the COMAFFOR. 
 
For specific responsibilities of the DIRCYBERFOR, see Annex 3-12, Cyberspace 
Operations. 
 
Integrating the Air Reserve Components 
 
The Air Reserve Components (ARC) are the Air Force Reserve (AFR) and the Air 
National Guard (ANG). The ARC provides operational capabilities and strategic depth to 
meet US defense requirements across the competition continuum. ARC forces are 
normally employed to take advantage of military opportunities, cover shortfalls in regular 
component critical skills, and to support short duration national priorities. The 
importance of this factor—the part-time nature of the force—should be fully considered. 
When evaluating which ongoing operational missions are best suited for ARC 
participation, factors such as predictability, tour length, and duty location should all be 
considered. 
 
The AFR consists of the Ready Reserve, the Standby Reserve, and the Retired 
Reserve, which includes retirees from both the ARC and regular component. The 
Ready Reserve consists of the Selected Reserve and the Individual Ready Reserve. 
ADCON for AFR forces is maintained by the commander of Air Force Reserve 
Command (AFRC). 
 
The ANG consists of members of the Air National Guard (ANG) who are on active duty 
under Title 10, United States Code (USC), Armed Forces. The ANG consist of the 
federally recognized organized militia of the States and Territories, Puerto Rico, and the 
District of Columbia. ADCON for Guardsmen not in federal status flows to their 
respective adjutant general and governor. When activated under Title 10 USC, ADCON 
is maintained through the ANG Readiness Center. 

The ARC provides sustainable, rotational support across numerous operational

missions, such as airlift, air refueling, North American Aerospace Defense Command air

sovereignty mission, and combat support. ARC forces may be mobilized to support

rotational capability for steady state operations, during a surge operation, and for

activities requiring critical skills.

ARC Organization

The majority of the ARC is organized into two types of units: unit-equipped or

associates. Stand-alone unit-equipped organizations have their own organic equipment;

associate organizations can be either unit-equipped (active associations) or share the

weapon systems of an equipped host organization (classic association) and train to

perform the same mission.

These unit associations allow for consistent training, leveraging of resources, and

familiarization between the regular component and ARC. The associate models are:

 Classic Associate: A Regular Air Force organization retains principal responsibility

for a weapon system that it shares with one or more associate ARC organizations.

Each component exercises ADCON of its respective members.

 Active Associate: A sponsoring ARC organization has principal responsibility for a

weapon system which it shares with one or more associate regular organizations.

Reserve and regular units retain separate organizational structures and chains of

command.

The Air Force is responsible for organizing, training, and equipping Air Force forces to

provide combat ready resources to combatant commanders. Air Force commanders are

responsible for ensuring regular and ARC forces are leveraged to achieve that purpose.

This is done through the Total Force Integration (TFI) concept. TFI management is a

collaborative process of planning, organizing, and aligning AF units from different Air

Force components; each with its own command chain and ADCON responsibilities.

When operating together in garrison (not deployed and activated to active status) unity

of effort for TFI is achieved through the concept of operational direction (OPDIR). As

detailed in Air Force Instruction 90-1001, Planning Total Force Associations (TFAS),

OPDIR is an agreed-upon understanding (codified in memoranda of record,

understanding, or agreement) between commanders of total force associations to allow

functional leaders from any component, whether from the sponsor or the associated

organization, to lead and guide personnel in their in garrison mission and daily tasks.

Air Force Reserve

The AFR also provides individual reservists through the individual mobilization

augmentee (IMA) program and the participating individual ready reserve program

(PIRR). IMAs are trained reservists who augment regular units to support mobilization

requirements, contingency operations, or other specialized requirements. Their

experience helps the regular component accomplish its mission by augmenting (or

rounding out) the regular unit, backfilling positions that have been vacated by deploying

regular component members, or performing missions at the normal duty station. IMAs

perform the full range of Air Force missions. The ARC retains ADCON of IMAs and

PIRR personnel.

Air National Guard

National Guard Airmen can be called to long-term active duty under five different

statutes, as authorized in Title 10 USC. They range from full mobilization, which

requires a declaration of war or national emergency by the Congress, to reserve

component volunteers, which requires consent of the individual reserve component

member and consent from the governor to activate individuals in the National Guard.

The various mobilization statutes determine how many guardsmen can be called up, to

whom the call up applies, and the duration of the call up.

Accessing ARC Forces

ARC forces can be activated both voluntarily and involuntarily to support national

requirements. Once activated, there are different degrees of OPCON and ADCON

applicable to ARC members. The ARC structure normally retains full ADCON; the

gaining COMAFFOR normally exercises specified elements of ADCON, which should

be articulated in appropriate orders. OPCON transfers in accordance with Secretary of

Defense (SecDef) orders.

 Voluntary. Volunteers are placed on Federal active duty by the Secretary of the Air

Force, as authorized by Title 10, USC.

 Involuntary. There are three authorities that outline the limits and requirements for

involuntarily activating members of the ARC:

 Presidential Reserve Call-up. This provides the President a means to activate,

without a declaration of national emergency, not more than 200,000 members of

the Selected Reserve and the Individual Ready Reserve (of whom not more

than 30,000 may be members of the Individual Ready Reserve), for not more

than 365 days to meet the requirements of any operational mission. Members

activated under this provision may not be used for disaster relief or to suppress

insurrection. This authority has particular utility when used in circumstances in

which the escalatory national or international signals of partial or full mobilization

would be undesirable. Forces available under this authority can provide a

tailored, limited-scope, deterrent, or operational response, or may be used as a

precursor to any subsequent mobilization.

 Partial Mobilization. Expansion of the active Armed Forces resulting from

action by Congress (up to full mobilization) or by the President (not more than

1,000,000 for not more than 24 consecutive months) to mobilize Ready Reserve

component units, individual reservists, and the resources needed for their

support to meet the requirements of a war or other national emergency involving

an external threat to the national security.

 Full Mobilization. Expansion of the active Armed Forces resulting from action

by Congress and the President to mobilize all Reserve Component units and

individuals in the existing approved force structure, as well as all retired military

personnel, and the resources needed for their support to meet the requirements

of a war or other national emergency involving an external threat to the national

security. Reserve personnel can be placed on active duty for the duration of the

emergency plus six months. Under full mobilization, ADCON transfers to the

gaining COMAFFOR and OPCON transfers in accordance with Sedef orders.

Nuclear Support to Regional Commands

The 2018 National Defense Strategy has characterized a global environment whereby

great power competition threatens the nation and the international order. Air Force

nuclear capabilities, reliant on a modern and survivable command, control, and

communications (NC3) capability require precise integration with conventional

command and control operations, to deter our adversaries from strategic nuclear and

conventional attack. Air Force nuclear capabilities require robust integration with full

spectrum operations to ensure effective employment within a particular region and

account for larger political ramifications and allow effective operations in a nuclear

environment. When requested by a geographic combatant commander, global nuclear

capabilities are normally employed through a support relationship with US Strategic

Command as authorized by the SecDef and the President of the United States.

Refer to Annex 3-72, Nuclear Operations, for more information.

Homeland Defense Organizational Considerations

Military operations inside the United States and its Territories fall into two mission

areas: homeland defense, for which the DOD serves as the lead federal agency and

military forces are used to conduct military operations in defense of the homeland; and

civil support for which DOD serves in a supporting role to other agencies at the federal,

state, tribal, and local levels.

Homeland Defense

For most homeland scenarios, Air Force forces should be presented as an AETF

under the OPCON of a COMAFFOR. Air National Guard (ANG) forces whether

activated and operating in Title 10 status supporting a Federal mission or operation

under Title 32 and attached to a combatant command (CCMD) or remaining under

state control in Title 32 or state active duty status should be organized and

presented within an AETF or equivalent structure.

The command relationships between a JFC and a COMAFFOR in a homeland context

may have additional legal and interagency considerations. Additionally, when the ANG

is operating in Title 32 or state active duty status under the authority of a state

governor, a similar command relationship exists between the state Adjutant General or

JTF commander and the designated ANG air commander.

The SecDef may request State governors to allow their respective ANG personnel or

units to support federal operations or missions such as providing intelligence and

cyberspace support to CCDRs or supporting civil authorities pursuant to Title 32. ANG

personnel and units would remain in Title 32 status, but be attached to the Service

component of a CCMD, and under the operational authority of the CCDR. The nature,

extent, and degree of control exercised by the CCDR and his or her subordinate

commanders, including dual-status commanders, would be set forth in a command

arrangements agreement (CAA) agreed upon by the SecDef and state governors. The

CAA would be similar to those negotiated for multinational operations. Administrative

authority for ANG personnel and units would remain with the state.

Civil Support

The JFC may elect to allocate combat forces to subordinate functional task force

commanders (TF CDRs) with a specification of OPCON to the TF CDRs. For example,

a JFC in a major disaster relief operation might organize forces into separate

engineering, transportation, and medical task forces. This organizational scheme

divides Air Force assets among other component commanders and fractures Service

unity of command. This is not the most operationally effective scheme for achieving

unity of command and unity of effort under a single Airman. The JFC should delegate

OPCON of all assigned and attached Air Force forces to the air component

commander. The air component commander then provides direct support to the

various functional TF CDRs, as a supporting commander.

Each state has a state joint force headquarters (JFHQ-State) that may provide a

contingency C2 capability in support of homeland defense, civil support, and other

related operations, and may thus function as a bridge between state and federal

forces. Additionally, a governor may stand up a JTF-State to provide direction and

control of assigned non-federalized National Guard forces and those attached from

other states. ANG forces conducting operations in Title 32 or state active duty status

should be organized as an AETF or equivalent within their state force structure to

provide unity of command, with a single Airman in command of the ANG forces.

State and federal military forces may adopt a parallel command structure.

A parallel command structure exists when state and federal authorities have separate

chains of command, and retain control of their deployed forces. Unity of effort and

decisions of mutual interest are handled through a coordinated liaison effort of the

political and senior military leadership of state and federal forces.

 Federal statute permits a dual status command structure, in which a designated

commander subordinate to a combatant commander may simultaneously serve in

Federal and State duty statuses while performing the separate and distinct duties

of those statuses over forces. Such positions are intended for short-term response

situations that require both federal and state involvement, such as a multi-state

disaster or national event. The command authority for forces in Title 32 attached to

the CCDR is exercised by a dual-status commander pursuant to a CAA.

Additionally, the statute requires both presidential authorization and a governor‘s

consent to invest a commander with dual status.

For more detailed discussion on homeland operations in general, see Annex 3-27,

Homeland Operations. For more discussion on dual-status commanders, refer to

Joint Publication 3-28, Defense Support of Civil Authorities, Appendix C, and

“Department of Defense Dual-Status Commander.”

THE SENIOR / HOST AIR FORCE INSTALLATION COMMANDER

An installation commander exercises authority over and responsibility for protection of

assigned forces and assets, lodging, dining, and administrative reporting, regardless of

Service or the command relations of those forces.

Ultimately, the Air Force Service component commander within a region is

responsible for fulfilling ADCON responsibilities and common logistics support for all

Air Force forces within his or her region, regardless of organization of assignment of

those forces.

For non-Air Force forces operating from an Air Force-owned base, the provision of

logistics support is inherently the responsibility of the owning Service. Example, forces

belonging to other Service components operating from an Air Force-owned base such

as Army special operations forces or Marine aviation units. However, the host base

commander has responsibility for providing protection and other base operating

support for those forces as directed by the governing operations order or inter-Service

agreements. Commercial support may also be required to other operations personnel

(host nation, multinational support, and operational contract support) and other US

Government agencies.

G-series orders should detail which commanders are responsible for providing specific

elements of ADCON to deployed units and what authority that commander may use to

carry out these responsibilities. The orders are not required to spell out all support and

sustainment responsibilities. The minimum ADCON responsibilities and authorities to go

forward should be responsibility for enforcement of the Uniform Code of Military Justice,

protection of assigned forces and assets, lodging, dining, and force reporting.

Refer to AFI 38-101, Air Force Organization, for more specific policy guidance.

PRESENTING AIR FORCE FORCES

Last Updated: 7 January 2020

Modern operations require flexibility in execution to adapt to a wide variety of scenarios,

which drives a need to assemble the right mix of forces from the appropriate Services

tailored to the operation. This flexibility drives a corresponding need for adjustable

organization, command and control (C2) mechanisms, and appropriate command

relationships.

JOINT FORCE ORGANIZATIONAL BASICS

When a crisis requires a military response, the Secretary of Defense, combatant

commander (CCDR), a subordinate unified commander, or an existing joint force

commander can form a joint task force (JTF) tailored to address the crisis. If Air Force

forces are attached to the JTF, they stand up as an air expeditionary task force (AETF).

The joint force commander (JFC) at any echelon is responsible for delineating the

command relationships between forces under his or her operational control (OPCON)

and empowering subordinate commanders appropriately (see Appendix A for more

detail). Normally, a subordinate JFC receives OPCON of assigned or attached forces

and delegates OPCON to the appropriate Service component commanders.

Surface forces are usually assigned individual areas of operations (AOs) within the

JFC’s joint operations area (JOA); a less-than-total view of the theater. By comparison,

an air component commander typically has an operational-level, JOA-wide perspective

similar to the JFC’s.

Because all four Services have forces that operate in the air domain, the designation of

functional commanders allows greater synergy by integrating similar activities across

Service boundaries. The designation of joint force air, land, maritime and special

operations component commanders (the joint force air component commander

[JFACC], joint force land component commander [JFLCC], joint force maritime

component commander [JFMCC], and joint force special operations component

commander [JFSOCC] respectively) is at the discretion of the JFC. This functional

component model most easily transitions to one that supports combined (or coalition)

employment, and the functional component commanders become combined component

commanders (e.g. combined force air component commander [CFACC], combined

AFDP 3-30 COMMAND AND CONTROL

force maritime component commander [CFMCC], etc.). See figure, “Joint Force

Organization with Functional and Service Components.”

Joint Force Organization with Functional and Service Components

In accordance with joint doctrine, designation of a functional component commander

(e.g., a JFACC) should not adversely affect the command relationship between the

Service component (e.g., the commander, Air Force forces [COMAFFOR]) and the JFC.

Normally, the JFC designates the COMAFFOR as the JFACC. The air component

commander retains OPCON over Air Force forces and gains tactical control (TACON)

over joint air forces made available for tasking. In practice, the JFACC commands and

controls the joint air forces, including Air Force forces, through exercising TACON.

AIR COMPONENT RELATIONSHIPS WITHIN A JOINT FORCE

The JFC normally assigns broad missions to the component commanders; with each

mission comes a specification of supported commander for that mission. As an

example, the JFC may designate the air component commander as the supported

commander for counter air, strategic attack, air interdiction, and theater airborne

intelligence, surveillance, and reconnaissance (ISR) (among other missions). As such,

the air component commander would be responsible to the JFC for planning,

coordinating, executing, and assessing these missions, while other component

commanders support the air component commander. Subordinate commanders

normally work out the support relationships.

The commander responsible for a mission should be

given the requisite authority to carry out that

mission. For some missions or functions, specification of

support alone may be insufficient in order for a functional

component commander to fully integrate and employ

forces made available. In such instances, the JFC may

delegate to a subordinate commander TACON of specific

elements of another component’s resources (this, in fact,

is the usual command authority exercised by functional

component commanders over forces made available to

them). This provides that commander with a better

degree of control. Finally, written establishing directives

are extremely useful in clearly outlining the supporting /

supported relationship between commanders and

providing guidance for staffs.

The air component commander should establish a close

working relationship with the JFC to ensure the best

representation of airpower’s potential. When possible,

the air component commander should collocate with, or

at least be positioned close to, the JFC, so they may

benefit from frequent personal interaction. It also helps

keep a greater air component presence in the joint force

headquarters, as well as aiding the joint force

headquarters staff planning and running air component

operations.

AIR FORCE COMPONENT PRESENTATION

CONSIDERATIONS

There are three general models for presenting Air Force components in support of a

JFC:

 Theater-level component. This model establishes an Air Force component at the

CCDR level, attached with specification of OPCON and commanded by a theater

COMAFFOR who the CCDR will normally also designate as a theater JFACC.

 Sub-theater-level component. There are two different sub-theater level component

possibilities: a subordinate unified command or a joint task force. An Air Force

component at the subordinate unified command will normally be attached with

specification of OPCON and will include a COMAFFOR prepared to execute as a

JFACC over assigned and attached joint forces. An Air Force component at the JTF

level will normally be an AETF with a designated COMAFFOR, and will include a

JACCE that is the theater level JFACC’s liaison to the JTF commander.

There may be additional considerations during homeland operations that impact command

arrangements and command relationships. See Annex 3-27, Homeland Operations.

During World War II,

General MacArthur (right)

and his senior Airman, Lt

Gen Kenney (left), had a

close working relationship.

As a result, General

Kenney enjoyed a high

level of trust to employ air

power as best fit his

commander’s objectives.

 Sub-theater-level AETF in support of a JTF. This model establishes an AETF, in

direct support of a subordinate JTF, with OPCON retained by the theater

COMAFFOR. In this model, the AETF commander is not a COMAFFOR or JFACC.

LEVELS OF FORCE PRESENTATION

Joint and Service doctrine explicitly describe three levels for organizing joint forces

within a geographic CCDR’s area of responsibility (AOR): the CCDR level (i.e., the

CCDR acts as the JFC), the

subordinate unified command, as in

Korea; and at the subordinate JTF

level. The three force presentation

models discussed above are not

meant to limit the CCDR’s authority

to organize forces to best

accomplish assigned missions but

instead to enable the Air Force to

effectively support the CCDR and

any subordinate organizations. The

following discussion summarizes

some of the considerations that may

affect the CCDR’s organizational

construct and force attachment

decisions, and require appropriately

tailored C2.

Theater-Level Component

This unified command-level model

establishes an air component

commander (both Service

component and JFACC) at the

CCDR level. This model optimizes

allocation of scarce airpower assets

and commander’s priorities across

the AOR. As the JFC, the CCDR

establishes priorities for employment

of all assigned and attached forces,

and resolves competing demands

among the subordinate commands.

In this model, the forces form up

under the CCDR’s Air Force

component command.

When the CCDR decides the most

effective way to accomplish the

“Deputy Commander—Air” in the

Afghanistan Joint Operations Area

Due to the complexity of operations in

the US Central Command’s AOR, the

US Air Forces Central Command

commander created two subordinate

AETFs (9 AETF-Iraq and 9 AETF-

Afghanistan) to better focus airpower

support in those two joint operations

areas. In Afghanistan, a North Atlantic

Treaty Organization operation, the

International Security Assistance Force

(ISAF) also required a clearly identified

command relationship with Air Force

forces.

To support US force presentation to

ISAF, the commander of 9 AETF-

Afghanistan was also designated as the

“Deputy Commander-Air” to the

commander, US Forces-Afghanistan,

the US component to ISAF. This

arrangement provided ISAF with an Air

Force commander who could exercise

command authorities over Air Force

forces in support of ISAF.

While a non-standard organization

structure, the Deputy Commander-Air

leverages basic doctrinal concepts to

achieve unity of command within a

complex command structure.

mission is by retaining forces at the theater level, the theater-level air component

commander will operate in support of the subordinate JTF commander(s) according to

the CCDR's theater-wide priorities.

To support planning and operations with subordinate JTFs and other components, the

theater-level air component commander may then deploy joint air component

coordination elements (JACCEs) to ensure the JTFs receive appropriate support. The

JACCE provides on-hand air component expertise and the direct link back to the theater

air component commander and the air operations center (AOC).

Sub-Theater-Level Component

This model establishes an Air Force Service component and air component commander

within a sub-theater level JFC (i.e., subordinate unified command or JTF commander),

responsible for an operational area below the CCDR level. This model may be

preferable when the span or scope of operations is less than theater-wide, or when

operations are sufficiently fluid to require planning and execution at more tactical levels.

Under this model, the CCDR-level COMAFFOR, as directed by the CCDR, relinquishes

OPCON of the forces attached to the sub-theater JFC, and the designated commander

of the sub-theater JFC accepts OPCON for the duration of the attachment. In

accordance with joint and Air Force doctrine, the sub-theater JFC then normally

delegates OPCON of attached Air Force forces to the identified sub-theater

COMAFFOR. Administrative control (ADCON) is retained within the Service chain from

the CCDR-level COMAFFOR downward to the sub-theater level COMAFFOR. This

COMAFFOR is poised to also act as a JFACC, if so designated by the sub-theater JFC.

The key advantage of this model is that it provides fully integrated airpower to a sub-

theater JFC, while the theater air component commander maintains control of high-

demand, low density capabilities. The key disadvantage is that Air Force forces

attached to the sub-theater JFC are not normally available to address demands outside

their operational area.

An AETF attached with specification of OPCON to a JTF will include a COMAFFOR under

OPCON of that JTF commander. However, the AETF will not have a command and

control capability adequate to being designated as a JTF-level JFACC. Under these

conditions, the CCDR may direct the theater air component commander to retain TACON

over joint air forces and be established in support to the JTF commander, exercised

through the JACCE.

Mix of Theater- and Sub-Theater-Level Components

Some theater requirements may drive a mix of the two previous models. This may be

desirable when there are competing requirements for low density/high demand Service

capabilities (e.g., ISR, remotely piloted aircraft; and air refueling) across the AOR, yet

there is also sufficient demand for dedicated airpower at subordinate levels to drive

attachment of Air Force forces to a subordinate JTF.

Sub-Theater-Level AETF In Support of a JTF

When the CCDR establishes one or more sub-theater JFCs but elects to retain all (or

most) Air Force forces at the theater level, the size and complexity of the mission would

typically drive establishment of subordinate AETFs in direct support of the sub-theater

JFCs.

Under this construct, the theater COMAFFOR retains OPCON and delegates

appropriate aspects of OPCON, TACON, and ADCON to the AETF commander while

maintaining theater-wide perspective and responsibility for recommending

apportionment of airpower capabilities across the theater of operations to the CCDR.

The AETF commander remains subordinate to the theater COMAFFOR.

The key advantage of this model is that it provides an Airman empowered with

command authorities to the sub-theater JFC while allowing the theater COMAFFOR to

retain OPCON of forces across the AOR to address the CCDR’s priorities. This model

normally requires a significantly smaller command and control capability than would an

AETF attached with specification of OPCON to a sub-theater JFC.

FORCE ATTACHMENT CONSIDERATIONS

When the operational mission at the JTF level outweighs competing missions at the

CCDR’s AOR level, the CCDR should consider attaching Air Force forces to the JTF

commander. Considerations include:

 Do the operational tempo, intensity, duration, and scope warrant near full-time use of

an attached AETF?

 Do the operational tempo, intensity, duration, and scope justify a dedicated AETF

that, once attached to the JTF, may not be available to support operations

elsewhere?

 Does the priority of the JTF mission, relative to other theater missions, justify a

dedicated AETF that, once attached to the JTF, may not be available to support

operations elsewhere?

 If the choice is to attach an AETF to a JTF, does the Air Force have the ability to

provide the required C2 of Air Force forces?

 Does the provision of forces to a subordinate JTF, either by attachment or direct

support, effectively demonstrate and enable the Air Force component’s commitment

to the joint force effort?

If the decision is to attach forces, the follow-on question is whether the forces should be

attached with specification of either OPCON or TACON.

 Specification of OPCON: OPCON includes organizing and employing commands

and forces, assigning tasks, designating objectives, and giving authoritative direction

necessary to accomplish the mission, to include repositioning of forces.

 Specification of TACON: TACON is limited to the detailed direction and control of

movements or maneuvers. TACON may provide sufficient authority for controlling

and directing the application of force or tactical use of combat support assets within

the assigned mission or task. Attaching forces with specification of only TACON

splits OPCON and TACON between two different commanders, but allows for quick

action and decisions at lower levels.

These situations require careful and continuing dialogue between the respective

joint and Service component commanders and their common superior

commander. Finally, the decisions, including the delineation of operational and

administrative authorities to be held among the involved commanders, should be

captured in written orders such as operation orders, execute orders, or fragmentary

orders; Air Force decisions may also be captured in G-series orders, such as those

appointing the COMAFFOR.

ACHIEVING UNITY OF EFFORT

To achieve unity of effort across an AOR, the CCDR should provide the requisite

guidance for the interaction between theater-level and subordinate components. This

should include clarity of supported and supporting command relationships between the

JTFs and theater air component commander, together with clear priorities of effort and

support, and apportionment. The theater air component commander should then

allocate effort across the AOR using CCDR guidance and priorities.

The CCDR sets the conditions for success by clearly stating and emphasizing the

supported command status of subordinate JTFs and the supporting command role of a

theater-level air component commander and by providing sufficient guidance for the

theater subsequent allocation decision. The CCDR is the ultimate arbiter for

prioritization and apportionment decisions among subordinate JTF commanders.

AIR COMPONENT C2 STRUCTURES

The air component commander requires an appropriately sized and configured C2

capability to effectively command and control the Air Force Service component and joint

air forces made available for tasking. At the combatant command level this C2 capability

includes an AOC and an air component staff to enable the air component commander to

command and control air forces in both the operational and administrative branches of

the chain of command.

The AOC and air component staff need to be fully integrated to cover the totality of the

COMAFFOR’s responsibilities as a component major command (C-MAJCOM) or

component numbered air force (C-NAF) commander, and to be prepared to assume the

duties of a JFACC when designated by the CCDR. Division of workload and

responsibilities between the AOC and air component staff depend upon the

requirements of the air component commander, mission requirements, and resources

available. In general, the AOC normally will plan for and employ the forces provided,

while the air component staff is normally focused on long-range theater strategy and

Service “organize, train, and equip” (OT&E) responsibilities in order to provide Air Force

forces that will be employed under CCDR orders and direction. Synergies of operational

mission accomplishment are gained by integrating the staffs in support of the JFACC

mission.

Mission requirements, manning, and rank structure differences between the various C-

MAJCOMs and C-NAFs do not readily support a “one size fits all” structure for the air

component commander’s C2 organization. Two structures in current use are: AOC

under the AFFOR A-3, and the AOC/CC and AFFOR A-3 separate individuals each

reporting directly to the air component commander.

AOC as Part of AFFOR/Air Component A-3

Under this structure the AOC commander works for the AFFOR / Air Component A-3,

where the core element of the air component staff is the AFFOR staff. The AOC retains

its divisions but the AOC is now a part of the AFFOR A-3 staff. To improve staff-to-staff

coordination with the JFC’s staff and the other components, the AOC divisions are also

identified with an appropriate A-3 staff number (e.g., Combat Operations Division is also

designated as A-33). This structure is illustrated in the figure, “AOC as Part of

AFFOR/Air Component A-3.”

This structure improves integration between Air Component Staff and the AOC and

provides easier cross-component staff-to-staff integration. While providing synergies

and manpower savings, this structure also requires the AFFOR/Air Component A-3 and

joint / combined AOC staffs to have clearly defined roles and responsibilities.

Air Operations Center as Part of AFFOR / Air Component A-3

AOC and AFFOR Staff as Different Organizations

In this structure, the AOC and Air Force Service component staff are separate

organizations, each reporting directly to the air component commander. This structure is

illustrated in the figure, “AOC and AFFOR Staff as Different Organizations.”

This structure provides manpower focused at appropriate levels for the AFFOR staff

and the AOC, and provides redundant capability for additional taskings (e.g., sub-

theater AETF, JTF headquarters). The structure enables parallel operations between

the separate COMAFFOR and AOC staffs, separating responsibilities and

simultaneously accomplishing OT&E and combat operations, respectively. While

providing more flexibility in the different COMAFFOR and JFACC roles, this structure

requires a substantial manpower bill, requires that cross-component staff-to-staff

channels have robust interaction, and requires that internal staff integration be clearly

defined.

APPENDIX A: COMMAND AUTHORITIES AND RELATIONSHIPS

Last Updated: 7 January 2020

Effective organizations require clear and effective command relationships. A

working understanding of command terminology is essential to understanding the

relationships among components and the responsibilities inherent in organizations.

COMBATANT COMMAND (COCOM)

Combatant command (command authority) is defined as “nontransferable command

authority, which cannot be delegated, of a combatant commander to perform

those functions of command over assigned forces involving organizing and

employing commands and forces; assigning tasks; designating objectives; and

giving authoritative direction over all aspects of military operations, joint training,

and logistics necessary to accomplish the missions assigned to the command”

(Joint Publication [JP] 1, Doctrine for the Armed Forces of the United States).

COCOM is exercised by commanders of combatant commands (CCMD) as directed by

the President or the Secretary of Defense (SecDef). COCOM should be exercised

through the commanders of subordinate organizations such as subordinate joint force

commanders (JFCs) and Service or functional component commanders. COCOM

provides full authority to organize and employ commands and forces as the combatant

commander considers necessary to accomplish assigned missions. (Note that the

acronym “COCOM” refers only to the command authority, not to an individual or an

organization.)

OPERATIONAL CONTROL (OPCON)

Operational control is defined as “the authority to perform those functions of

command over subordinate forces involving organizing and employing

commands and forces, assigning tasks, designating objectives, and giving

authoritative direction necessary to accomplish the mission” (JP 1).

OPCON can be delegated from a lesser authority than COCOM. OPCON normally

provides full authority to organize commands and forces and to employ those forces as

the commander in operational control considers necessary to accomplish assigned

AFDP 3-30 COMMAND AND CONTROL

missions. It does not include authoritative direction for logistics or matters of

administration, discipline, internal organization, or unit training.

OPCON should be exercised through the commanders of subordinate organizations,

such as subordinate JFCs and Service or functional component commanders. Normally,

JFCs exercise OPCON of assigned and attached Air Force forces through the

commander, Air Force forces (COMAFFOR).

TACTICAL CONTROL (TACON)

Tactical control is defined as “the authority over forces that is limited to the detailed

direction and control of movements or maneuvers within the operational area

necessary to accomplish missions or tasks assigned” (JP 1).

TACON may be delegated to and exercised by commanders at any echelon at or below

the level of CCMD. TACON provides sufficient authority for controlling and directing the

application of force or tactical use of combat support assets within the assigned mission

or task. TACON does not provide organizational authority or authoritative direction for

administrative and logistic support.

SUPPORT

Support is a command authority that aids, protects, complements, or sustains another

force. It is used when neither OPCON nor TACON is appropriate. The SecDef specifies

support relationships between CCDRs; the CCDR may establish support relationships

between components assigned or attached to the command.

There are four defined categories of support that a CCDR may direct over assigned or

attached forces to ensure the appropriate level of support is provided to accomplish

mission objectives. These include general support, mutual support, direct support, and

close support.

 General support. That support which is given to the supported force as a whole

rather than to a particular subdivision thereof.

 Mutual support. That support which units render each other against an enemy

because of their assigned tasks, their position relative to each other and to the

enemy, and their inherent capabilities.

 Direct support. A mission requiring a force to support another specific force and

authorizing it to answer directly to the supported force’s request for assistance.

 Close support. That action of the supporting force against targets or objectives that

are sufficiently near the supported force as to require detailed integration or

coordination of the supporting action with the fire, movement, or other actions of the

supported force.

ADMINISTRATIVE CONTROL (ADCON)

Administrative control is defined as the “direction or exercise of authority over

subordinate or other organizations with respect to administration and support”

(JP 1). This includes organization of Service forces, control of resources and

equipment, personnel management, unit logistics, individual and unit training,

readiness, mobilization, demobilization, discipline, and other matters not included in the

operational missions of the subordinate or other organizations.

ADCON is not a warfighting authority like that found in COCOM, OPCON, TACON, or

support relationships. Normally the COMAFFOR exercises ADCON over assigned Air

Force personnel, and at least those elements of ADCON that are necessary to ensure

mission accomplishment over those Air Force personnel attached to the Air Force

component command. It is through ADCON that the COMAFFOR provides properly

organized, trained, and equipped Air Force forces to be employed under the OPCON of

the JFC.

COORDINATING AUTHORITY

Coordinating authority is defined as “the commander or individual who has the

authority to require consultation between the specific functions or activities

involving forces of two or more Services, joint force components, or forces of the

same Service or agencies, but does not have the authority to compel agreement”

(JP 1). In the event that essential agreement cannot be obtained, the matter shall be

referred to the appointing authority. Coordinating authority is a consultation relationship,

not an authority through which command may be exercised.

DIRECT LIAISON AUTHORIZED (DIRLAUTH)

Direct liaison authorized is defined as “that authority granted by a commander (any

level) to a subordinate to directly consult or coordinate an action with a command

or agency within or outside of the granting command.” (JP 1).

APPENDIX B: THE AIR OPERATIONS CENTER

Last Updated: 7 January 2020

The following discussion outlines the basic air operations center (AOC).

The Air Force has established a number of AOCs that provide the ability to command

and control (C2) air, space, and cyberspace forces. By design and intent, the AOC

provides the best C2 capability to command and control the joint air effort and forms the

nucleus, with appropriate augmentation from other Services and components, of the

joint or combined AOC (JAOC or CAOC) when joint force commander (JFC) designates

the commander, Air Force forces (COMAFFOR) as the joint force or combined force air

component commander (JFACC or CFACC). The AOC is organic to the Air Force

Service component. If the JFC does not designate a JFACC, the AOC does not become

the JAOC but provides the COMAFFOR the ability to command and control Air Force

forces for employment as the Service component. If the JFC designates some other

Service component commander as the JFACC, that Service component C2 structure

forms the JAOC and the AOC provides the COMAFFOR the ability to command and

control Air Force forces that are made available for tasking under the TACON of the

non-Air Force JFACC.

The AOC provides operational-level C2 of air component forces as the focal point for

designing, planning, executing, and assessing air component operations. The AOC can

be tailored and scaled to a specific or changing mission, and to the associated Service

component the air component commander presents to the JFC. The AOC is organic to

the air component commander’s ability to command and control Air Force forces. Air

Force Tactics, Techniques, and Procedures 3-3.AOC, Air Operations Center and Air

Force Instruction 13-1AOC, Volume 3, Operational Procedures-Air Operations Center

provide further detail concerning the structure, functions, processes, and personnel

within the AOC.

The primary functions of the AOC are to:

 Develop air component operations strategy and planning documents that integrate

air, space, and cyberspace operations to meet air component commander objectives

and guidance the JFC designates.

AFDP 3-30 COMMAND AND CONTROL

 Task, execute, and assess day-to-day air component operations; provide rapid

reaction, positive airspace control, and coordinate and deconflict weapons

employment as well as integrate the total air component effort.

 Receive, assemble, analyze, filter, and disseminate all-source intelligence and

weather information to support air component operations planning, execution, and

assessment.

 Integrate space capabilities and coordinate space activities for the air component

commander when designated as space coordinating authority.

 Issue airspace control procedures and coordinate airspace control activities for the

airspace control authority (ACA) when designated.

 Provide overall direction of air defense, including theater missile defense (TMD), for

the area air defense commander (AADC) when designated.

 Plan, task, and execute the theater air component intelligence, surveillance, and

reconnaissance (ISR) mission.

 Conduct component-level assessment to determine mission and overall air

component operations effectiveness as required by the JFC to support the theater

assessment effort.

 Plan and task air mobility operations according to the theater priorities.

AOC ORGANIZATION

The baseline AOC organization includes an AOC commander, five divisions (strategy,

combat plans, combat operations, ISR, and air mobility), and multiple support/specialty

teams. Each integrates numerous disciplines in a cross-functional team approach to

planning and execution. Liaisons from other Service and functional components may be

present to represent the full range of joint air, space, and cyberspace capabilities made

available to the air component commander. The following provides a summary of the

major elements of an AOC.

AOC Commander

The AOC commander is charged with effectively managing air component operations

and establishing the AOC battle rhythm. The AOC commander develops and directs

processes to design, plan, coordinate, allocate, task, execute, and assess air

component operations in the area of operations or joint operations area based on JFC

and air component commander guidance. The AOC commander commands the AOC

(but not Air Force forces) and should be prepared to direct a joint AOC when

designated.

Strategy Division

The strategy division concentrates on long-range design and planning of air component

operations to achieve JFC objectives by developing, refining, disseminating, and

assessing progress toward achieving the air component commander component

strategy. The strategy division is normally task organized into three functionally oriented

core teams: the strategy plans team, the strategy guidance team, and the operational

assessment team. During less demanding operations, the information operations team,

which supports all AOC divisions, is administratively under the strategy division chief.

Key products include the joint air operations plan, the air operations directive (AOD),

and other air component commander guidance.

Combat Plans Division

The combat plans division applies operational art to develop detailed execution plans

for air component operations. The combat plans division is normally task organized into

four functionally oriented core teams: the targeting effects team; the master air attack

plan (MAAP) team; the air tasking order (ATO) production team, which also produces

space and cyberspace tasking orders (STO and CTO), as applicable; and the C2

planning team. The division’s key products are an area air defense plan, airspace

control plan, area air defense plan, ATO, STO, CTO, airspace control order (ACO),

special instructions, and joint integrated prioritized target list.

Combat Operations Division

The combat operations division monitors and executes current operations. The combat

operations division is also the focal point for monitoring the execution of joint and

combined operations, such as time-sensitive targeting, theater missile defense, joint

suppression of enemy air defense supported by theater forces, and the joint air attack

team. The combat operations division is normally task-organized into four functionally

oriented core teams: offensive operations, defensive operations, senior intelligence duty

officer team, and interface control team. The division’s main products are daily ATO,

STO, CTO, and ACO changes, and changes to other plans and orders, as required.

ISR Division

The ISR division, in conjunction with the other AOC divisions, plans and executes

airborne ISR operations and provides combat ISR support to air component planning,

execution, and assessment activities. The ISR division has four core teams: the

analysis, correlation and fusion team; the targeting and tactical assessment team; the

ISR operations team; and the processing, exploitation, and dissemination management

team. Major products include: the reconnaissance, surveillance, and target acquisition

annex to the ATO (or the ISR collection plan); updated intelligence preparation of the

operational environment; air component target nomination list; and intelligence

summaries.

Air Mobility Division

The air mobility division (AMD) plans, coordinates, tasks, and executes the theater air

mobility mission. Unlike the other AOC divisions that work solely for the AOC

commander, the AMD coordinates with the director of mobility forces (DIRMOBFOR)

but remains responsive to the tempo and timing of the AOC commander's operation.

The DIRMOBFOR is responsible for integrating the total air mobility effort for the air

component commander and, in this capacity, coordinates with the AMD to execute the

air mobility mission. The AMD coordinates with the theater deployment distribution

operations center and the 618 AOC (Tanker/Airlift Control Center). The AMD is

comprised of four core teams: the airlift control team, the air refueling control team, the

air mobility control team, and the aeromedical evacuation control team. Major products

include airlift apportionment plans and air refueling inputs to the MAAP, ATO, ACO, and

special instructions.

APPENDIX C: THE AIR FORCE FORCES (AFFOR) STAFF

Last Updated: 7 January 2020

This appendix supports the basic discussion of the AFFOR staff. More specific guidance

can be found in Air Force Instruction 13-103, AFFOR Staff Operations, Readiness and

Structures.

An AFFOR staff (sometimes also

called an

A-Staff) supports the air

component commander at the

combatant command (CCMD),

subordinate unified command, or

joint task force level. The AFFOR

staff is the vehicle through which

the air component commander

fulfills operational and

administrative responsibilities for

assigned and attached forces

across the competition

continuum. In the steady state,

the AFFOR staff performs

administrative responsibilities

(organize, train, equip, and

sustain), and also plans,

executes, and assesses

operations in support of the

combatant commander’s

(CCDR’s) theater campaign

strategies and plans. The

AFFOR staff is also responsible

for the operational planning that

occurs outside the air tasking

cycle (e.g., contingency

planning). The AFFOR staff

consists of functionally oriented

directorates, a command section,

AFDP 3-30 COMMAND AND CONTROL

Pacific Air Forces (PACAF) Staff:

Synchronizing Orders and Execution in

Great Power Competition

To facilitate the planning, direction,

distribution, and sustainment of air forces in

the Indo-Pacific theater against near peer

adversaries, the Commander, Pacific Air

Forces (COMPACAF) organizes the air

operations center (AOC) under the PACAF

A-3/6. Subordination of the combined force

air component commander’s operational-

level command and control (C2) center

under the Air Force Service component’s

staff officer responsible for operations and

communications allows the COMPACAF’s

staff to coordinate the functions necessary

to deploy, maintain, and maneuver

expeditionary Air Force forces in the

theater’s anti-access / area denial

environment. The alignment also facilitates

staff-to-staff integration of effort with

CCMD/J3 and joint operations center,

across components and within the air

component, which is necessary to

synchronize operations and maintain

initiative while achieving redundancy and

resiliency forward.

a personal staff, and any required liaisons. The AFFOR staff issues mission-type orders

on behalf of the air component commander to direct subordinate units to execute

actions outside of the scope of the air, space, or cyberspace tasking orders (ATO, STO,

and CTO, respectively). Examples of such orders may include setting a baseline force

protection condition, directing the move of a unit to another operating base, and

overseeing the execution of steady-state or security cooperation operations.

AFFOR STAFF ORGANIZATION

The following discussion of AFFOR staff duties is not intended to be all-inclusive.

The differing mission requirements of any given operation may dictate different

task emphasis and staff arrangements. Very large or complex operations, for

example, may require all staff directorates. In some cases, senior component liaison

elements may not be needed, while some of the required support may be obtained

through reachback. For very small or limited operations, a full AFFOR staff may not be

required. As a rule of thumb, the size and span of the AFFOR staff should normally be

held to the smallest number of divisions necessary to handle the demands of the

operation; in some cases, the air component commander may combine some

leadership positions (e.g., A-3/5). Other operations may employ an AFFOR staff split

into forward and rear elements, using reachback to maintain unity of effort. In each

case, based upon regional requirements, the air component commander determines the

size, shape, and location of the AFFOR staff, AOC, and liaisons to best support the

operation.

Command Section

The command section is normally composed of the air component commander, vice

commander, chief of staff, command chief master sergeant, executive assistant, and

appropriate administrative support personnel. Within the command section, the chief of

staff coordinates and directs the daily activities of the AFFOR staff; approves actions,

orders, and plans, as authorized by the air component commander; and ensures air

component commander decisions and concepts are implemented by directing and

assigning staff responsibilities.

Personal Staff

The air component commander has several staff activities that normally function outside

the AFFOR staff directorates. These activities fulfill specific responsibilities usually

related to providing close, personal advice or services to the commander, or assist the

commander and the component staff with technical, administrative, or tactical matters.

These activities may include the commander’s legal advisor; political advisor; public

affairs advisor; inspector general; protocol advisor; historian; chaplain; and advisors or

directors for counterintelligence and special investigations, financial management, force

protection, air mobility operations, space operations, cyberspace operations, medical,

knowledge operations management, and safety . Based on the needs of the operation

and the requirements of the AFFOR staff, some of these activities may be located within

the AFFOR staff directorates.

Senior Component Liaisons

The senior liaison officer (LNO) from each component represents his or her respective

commander to the air component commander. Subordinate LNOs from each component

may perform duties throughout the staff as required, providing weapon system

expertise. LNOs should be knowledgeable of the capabilities and limitations of their

units and Service.

Knowledge Management Enabling Decision Superiority

Prior to exercise Austere Challenge 2015, US Air Forces in Europe-Air Forces

Africa experienced significant challenges in trying to achieve decision superiority

due to a lack of knowledge management (KM) governance. Applying the joint

KM operational design approach, the chief of staff created a civilian KM officer

position, KM cell, and established a KM working group to plan, operate, and

maintain four lines of effort (decision support, process management, KM

governance, and a knowledge-sharing culture). The goal was to enable decision

superiority through improved shared situational awareness and understanding,

and to better support the commander’s decision-making process.

Working for the chief of staff, the KM team first analyzed what information the

commander and other senior leaders required. They then examined what

information the staff needed to improve their shared situational awareness and

inform their recommendations to the commander. Next, the KM team analyzed,

streamlined, and standardized the information flow processes used to gather,

input, and distribute operational knowledge products (e.g., operation plans and

orders, courses of action, and staff estimates). They then applied enabling

technologies, tools, business rules, and training to achieve the goal.

They created a Secret Internet Protocol Router Network-based “situation room”

architecture using SharePoint (IntelShare) with workflows and site-wide

metadata to consolidate and automate processes, and to increase search and

archive capabilities. This framework facilitated knowledge and information flows

across organizational lines within the command structure and with other

Department of Defense agencies. The staff became more effective at locating

data and information, and was better able to support the commander’s decision

making. Lessons learned and continuous process improvement methodologies

empowered the team to develop, implement, and sustain incremental

improvements across many exercises and operations since 2015.

Manpower, Personnel, and Services (A–1)

The director of manpower, personnel, and services is the principal staff assistant to the

air component commander for total force accountability, personnel policy and

procedures, the establishment and documentation of manpower requirements,

organizational structures, mortuary affairs, food and force beddown operations, the

coordination of exchange services, and the provision of quality of life programs to

enable and sustain forces assigned and attached.

Intelligence, Surveillance, and Reconnaissance (A–2)

The director of intelligence, surveillance, and reconnaissance (ISR) is the principal

staff assistant for policy and guidance for all Air Force ISR operational architectures,

personnel, systems, training, and intelligence preparation of the operational

environment (IPOE). The A–2 provides intelligence support to forces within the

assigned area of operations. The A–2 does not normally direct ISR collection assets

when an ISR division is resident in the AOC; this is normally directed by AOC’s ISR

division chief.

Operations (A–3)

The director of operations

serves as the principal staff

assistant in the direction and

control of all assigned and

attached Air Force forces.

When operational control of Air

Force units is formally

transferred to the air component

commander, the A-3 ensures

they are capable of performing

tasked missions. This includes

monitoring unit deployments

and beddown locations, combat

readiness, mission rehearsals,

force protection, and training

activities. The A-3 is the focal

point for executing component

operations outside the purview

of the AOC.

Logistics (A–4)

The director of logistics is the

principal staff assistant for

logistics and sustainment

PACAF Watch Center: Synergizing

Staff Functions for Agile Combat

Employment

The deployment, dispersal, and maneuver

of operations and support units forward

for adaptive basing in the Indo-Pacific

Theater is a formidable challenge for the

PACAF staff, including the PACAF A-4.

The PACAF chief of staff directs an

operations center called the Pacific Air

Forces Watch Center (PAFWC) to

synchronize PACAF A-4 functions with

the PACAF staff, the air component’s

AOC, and Logistics Combat Support

Teams in theater. In addition to

synergizing PACAF’s daily staff functions

overall, the PAFWC facilitates the

maintenance and sustainment of

dispersed forces for agile combat

employment and enables the air

component commander to distribute

commander’s intent, direction, and

guidance in a dynamic and competitive

environment.

support. The A-4 staff is a broad, multi-disciplined organization, generally comprised of

logistics plans, munitions, fuels, vehicle management, materiel management,

maintenance, host nation support, contracting, distribution and combat logistics support.

On some AFFOR staffs, the director of logistics also serves as the advisor for civil

engineer installation management, security forces, fire emergency services, explosive

ordinance disposal, emergency management, agile combat support, planning for

commercial support, integrated defense, weapons system security, antiterrorism, force

protection, and the senior maintenance officer.

Plans and Requirements (A–5)

The director of plans and requirements serves as the principal staff assistant for all

consolidated planning functions. In coordination with the A–4, the A–5 conducts

comprehensive force-level movement and execution planning throughout the campaign.

This involves preparation and subsequent refinement of the force flow, beddown, and

redeployment in the time-phased force and deployment data. The A–5 is the focal point

for planning not under the purview of the AOC, to include the campaign support plan

and security cooperation country plans. This planning is normally preceded by the

development of a strategy. The A-5 is also the focal point for the operational

assessment of such plans. In addition, the A-5 leads in the development of the

organizational structure and command relationships for the Air Force component within

the framework of the joint operation. The A–5 normally publishes the Air Force

component operations order to support the JFC’s campaign.

Communications (A–6)

The director of communications is the principal staff assistant for communications-

electronics and certain information capabilities. This includes establishing the theater

communications and automated systems architecture to support operational and

command requirements.

Installations and Mission Support (A-7)

Current AFFOR staffs no longer include the A-7, but have incorporated the duties

under the A-4 and Air Force installation and mission support. However, CCMD

joint staffs still retain this directorate as the J-7. Should the air component

commander create such a directorate, duties include being primary advisor for

installations; mission support; force protection; explosive ordnance disposal; civil

engineering; firefighting; emergency management; chemical, biological, radiological,

and nuclear passive defense and response; contracting; and all cross-functional

expeditionary combat support.

Strategic Plans and Programs (A–8)

The director of strategic plans and programs provides comprehensive advice on all

aspects of strategic planning and programming. The A–8 also conducts program

assessment and provides coordinated resource inputs to the supporting Air Force major

command’s program objective memorandum processes.

Studies, Analyses, Assessments, and Lessons Learned

(A–9)

The director of studies, analyses, assessments, and lessons learned, collects,

documents, reports, and disseminates critical information necessary to analyze, assess,

and document Air Force aspects of campaigns and contingencies, and to document

lessons identified. This information provides the primary source documents for both

contemporary and future Air Force planning and analysis. Moreover, they serve as a

baseline for component mission accomplishment.

Strategic Deterrence and Nuclear Integration (A–10)

The director of strategic deterrence and nuclear integration is the primary advisor

for strategic deterrence, conventional/nuclear integration, and Air Force nuclear

enterprise matters. This includes nuclear force structure, readiness,

sustainability, and vulnerability data, as well as nuclear command, control and

communications, and nuclear weapons employment.

APPENDIX D: THE THEATER AIR CONTROL SYSTEM

Last Updated: 7 January 2020

The theater air control system (TACS) is the Air Force’s mechanism for commanding

and controlling theater airpower. It consists of airborne and ground elements to conduct

tailored command and control (C2) of airpower operations throughout the competition

continuum, including counterair, counterland, countersea, and counterspace operations;

airspace control; and coordination of space and cyberspace mission support not

resident within theater. The structure and positioning of the TACS elements adapt as

needed to effectively control airpower. As an organic Air Force system, the TACS

remains under the operational control (OPCON) of the air component commander. In

multinational commands, the name and function of certain TACS elements may differ,

but multinational air components have similar capabilities.

TACS ORGANIZATION

As the senior C2 element of the TACS, the air operations center (AOC) includes

personnel and equipment of the necessary disciplines to ensure the effective conduct of

air component operations (e.g., communications, operations, intelligence, and weather).

When the commander, Air Force forces (COMAFFOR) is designated as the joint force

air component commander (JFACC), airspace control authority, area air defense

commander, space coordinating authority, and electronic warfare control authority,

these functions are also performed through the AOC. The AOC should have secure and

redundant communications with higher and lateral headquarters, as well as subordinate

units. The TACS provides the air component commander connectivity from the theater

strategic level down through tactical elements such as Airborne Warning and Control

System (AWACS), Joint Surveillance Target Attack Radar System (JSTARS), control

and reporting centers (CRCs) to tactical air control parties (TACPs) and joint terminal

attack controllers (JTACs) organized under expeditionary air support operations groups

or expeditionary air support operations squadrons.

When the TACS is combined with other components’ C2 elements, such as the Army

air-ground system, the Navy tactical air control system, and the Marine Corps air

command and control system, they become the theater air-ground system (TAGS), and

collectively support the air component commander

AFDP 3-30 COMMAND AND CONTROL

Each Service component of a joint force employs its respective element of the TAGS.

The air component commander will exercise control of component forces made

available for tasking using TACS. If another Service component commander is

designated as the JFACC, then he or she would likely employ their own Service

component element of TAGS as the primary system for control of air component forces

made available for tasking. When some other Service component commander is

designated as the JFACC, the COMAFFOR will retain control of the TACS structure to

exercise OPCON over Air Force forces and integrate Air Force forces under the tactical

control of the JFACC. For a description of each Service’s TAGS element see Air Force

Tactics, Techniques, and Procedures 3-2.17, Multi-Service Tactics, Techniques, and

Procedures for the Theater Air-Ground System (common access card required).

The TACS is divided into ground and airborne elements as described below.

Ground TACS Elements

Ground TACS elements include the

CRCs, the air support operations

center (ASOC), and TACPs.

Control and Reporting Centers

The CRC is subordinate to the AOC

and conducts air surveillance and

supports strategic attack, counterair,

counterland, air refueling operations,

and other airpower functions and

missions as directed. Responsibility as

the region or sector air defense

commander may be decentralized to

the CRC, which acts as the primary

integration point for fighters

conducting defensive counterair and

air defense artillery (ADA) fire control

in its assigned area. It also enhances

the joint forces’ situational awareness

by disseminating the air picture over

data-links. The CRC may deploy

mobile radars and associated

communications equipment to expand

radar coverage and communications

range within its assigned operating

area. These remote radars are

capable of providing early warning,

surveillance, weapons control, and

identification functions.

The AOC is the senior element

within the TACS. The TACS includes

the AOC plus subordinate ground and

airborne elements, and is directly

involved in the C2 of most air

missions. Collectively, the TACS has

the capability to plan, direct, integrate,

and control all air, space, and

cyberspace forces assigned, attached,

or made available for tasking; monitor

the actions of both friendly and enemy

forces; plan, direct, coordinate, and

control air defense and airspace

control; and coordinate for required

space and cyberspace support.

It is important to remember that the

entire TACS is necessary for the air

component commander’s effective

command of airpower.

Air Support Operations Centers

The ASOC, which reports to the AOC, receives, coordinates, and processes air support

requests from subordinate TACPs, which are transmitted through the joint air request

net. ASOCs distribute allocated sorties to satisfy requests for air support and integrate

those missions with the supported units' fires and maneuver. An ASOC is normally

tasked to support an Army unit but can also support units from other organizations (e.g.,

special operations, coalition forces). It may also augment other missions requiring C2 of

air assets (e.g., humanitarian efforts).

Tactical Air Control Parties

TACPs are aligned with Army maneuver elements, battalion through division level. They

are primarily responsible for decentralized execution of close air support (CAS)

operations. TACPs request, coordinate, and control CAS missions as required. For

more information on TACPs and ASOCs, see Annex 3-03, Counterland Operations.

AIRBORNE TACS ELEMENTS

Airborne elements of the TACS include AWACS, JSTARS, and the forward air controller

(airborne) (FAC [A]).

Airborne Warning and Control System

AWACS is subordinate to the AOC and conducts air and maritime surveillance and

supports strategic attack, counterair, counterland, countersea, air refueling operations,

and other airpower functions and missions as directed. Responsibility as the region or

sector air defense commander may be decentralized to AWACS, which acts as the

primary integration point for air defense fighters and ADA fire control in its assigned

area. It also enhances the joint forces’ situational awareness by disseminating the air

and maritime picture over data-links.

Joint Surveillance Target Attack Radar System

JSTARS conducts ground and maritime surveillance and supports strategic attack,

counterair, counterland, countersea, and other airpower functions and missions as

directed. It primarily provides dedicated support to ground commanders and attack

support functions to friendly offensive and defensive air elements and may be employed

as an airborne extension to the ASOC. It also enhances the joint forces’ situational

awareness by disseminating the ground and maritime picture over data-links.

Forward Air Controller (Airborne)

The FAC (A) is an airborne extension of the TACP and has the authority to direct

aircraft delivering ordnance to a specific target cleared by the ground commander. The

FAC (A) provides additional flexibility in the operational environment by enabling rapid

coordination and execution of air operations. It also enhances the TACS’ situational

awareness by disseminating information on the flow of aircraft on target.

APPENDIX E: DEFINITIONS AND EXPLANATIONS OF TERMS

Last Updated: 7 January 2020

COMMAND

Command is “the authority that a commander in the Armed Forces lawfully exercises

over subordinates by virtue of rank or assignment” (Joint Publication [JP] 1, Doctrine for

the Armed Forces of the United States). Although commanders may delegate

authority to accomplish the mission, they cannot delegate the responsibility for

the attainment of mission objectives.

CONTROL

Control is “authority that may be less than full command exercised by a commander

over part of the activities of subordinate or other organizations” (JP 1). Control is the

process, inherent in command, by which commanders plan, guide, and conduct

operations. This process requires strong leaders who conduct assessment and

evaluation of follow-up actions. Time and distance factors often limit the direct control of

subordinates, especially in a contested environment. Commanders should rely on

delegation of authorities and promulgation of commander’s intent as methods to control

forces.

COMMAND AND CONTROL (C2)

Command and control is “the exercise of

authority and direction by a properly

designated commander over assigned and

attached forces in the accomplishment of

the mission” (JP 1). C2 enables mission

accomplishment by collaborative planning

and synchronizing, integrating forces and

operations in time and purpose. Fluid

horizontal and vertical information flow

enables effective C2 throughout the chain

of command. This information flow, and its

timely fusion, enables optimum decision-

making, operationalizing the tenet of centralized control and decentralized execution. A

AFDP 3-30 COMMAND AND CONTROL

“C2 functions are performed

through an arrangement of

personnel, equipment,

communications, facilities, and

procedures employed by a

commander in planning, directing,

coordinating, and controlling forces

and operations in the

accomplishment of the mission.”

-- JP 1

70 
 
robust and redundant C2 system provides commanders the ability to effectively employ 
their forces despite the fog and friction of war while simultaneously minimizing the 
enemy’s capability to interfere with the same. 
 
COMMANDER 
 
The dual-hatted air component commander (joint force air component 
commander [JFACC] and commander, Air Force forces [COMAFFOR]) is the most 
common and historically most successful arrangement for command and control 
of airpower. 
 
The JFACC should be the Service component commander within a unified combatant 
command, subordinate unified command, or joint task force (JTF) with the 
preponderance of air forces to be tasked and the ability to plan, task, and control joint 
air operations. 
 
The COMAFFOR is the single Air Force commander of an Air Force Service component 
assigned or attached to a joint force commander (JFC) at the unified combatant 
command, subordinate unified command, or JTF level. 
 
UNITY OF COMMAND  
 
Unity of command is one of the principles of joint operations. According to Volume 1, 
Basic Doctrine, “unity of command ensures concentration of effort for every objective 
under one responsible commander. This principle emphasizes that all efforts should be 
directed and coordinated toward a common objective.”  
 
Unity of command is not intended to promote centralized control without delegation of 
execution authority to subordinate commanders. As the breadth of command expands 
to include full spectrum of operations, commanders are typically unable to exercise 
immediate control over all operations in their area of command. Thus, C2 arrangements 
normally include the assignment of responsibilities and the delegation of authorities 
between superior and subordinate commanders. Senior commanders should provide 
the desired end state, desired effects, rules of engagement (ROE), and required 
feedback on the progress of the operation while subordinate commanders direct tactical 
operations. 
 
Forces should be organized to assure unity of command with commanders clearly 
delineated at appropriate echelons. Within a joint force, the JFACC provides a single 
Airman in command of assigned and attached Air Force forces and joint air forces made 
available for tasking. 
 
CENTRALIZED CONTROL AND DECENTRALIZED EXECUTION   
 
Centralized control and decentralized execution are a key tenet of C2; providing Airmen 
the ability to exploit the speed, flexibility, and versatility of airpower. Centralized control 

71 
 
is defined as “in joint air operations, placing within one commander the responsibility 
and authority for planning, directing, and coordinating a military operation or 
group/category of operations” (JP 3-30, Joint Air Operations). Decentralized execution 
is defined as “the delegation of execution authority to subordinate commanders” (JP 3-
30) and other tactical-level decision makers to achieve effective span of control and to 
foster disciplined initiative and tactical flexibility. Airpower’s speed, range, and ability to 
maneuver within three domains depend on centralized control and decentralized 
execution to achieve the desired effects.  
 
Because of airpower’s potential to directly affect the strategic level of war and 
operational level of war, it should be controlled by a single Airman at the air component 
commander level. A single commander, focused on the broader strategic perspective 
necessary to balance and prioritize use of airpower resources and aspects of an 
operation, can best mediate competing demands for tactical support against the 
strategic and operational requirements of the conflict. 
 
Volume 1, Basic Doctrine, more fully explains the Air Force’s commitment to the tenet of 
centralized control and decentralized execution of airpower. 
 
MISSION COMMAND 
 
“Mission command is the conduct of military operations through decentralized execution 
based upon mission-type orders and is a key component of the C2 function. 
Commanders delegate decisions to subordinate wherever possible, which minimizes 
detailed control and empowers subordinates’ initiative to make decisions based on the 
commander’s guidance rather than constant communications. While philosophically 
consistent with historical C2 of air operations, modern joint air operations demand a 
balanced approach to C2” (JP 3-30). See also JP 1 for further discussion. 
 
Its intent is for subordinates to clearly understand the commander’s intent and to foster 
flexibility and initiative at the tactical level to best accomplish the mission. 
Decentralization of tactical planning via conditions-based or mission-type orders, 
combined with command by negation and accepting the appropriate level of risk, allows 
subordinate commanders to focus on the superior commander’s intent and required 
effects to accomplish the mission in an efficient manner. Joint education, planning, and 
training are required to develop and demonstrate professional competence based on 
doctrine and knowledge. This approach is best codified in centralized control and 
decentralized execution.  
 
COMMANDER’S INTENT 
 
Commander’s intent is “a clear and concise expression of the purpose of the operation 
and the desired military end state that supports mission command, provides focus to the 
staff, and helps subordinate and supporting commanders act to achieve the 
commander’s desired results without further orders, even when the operation does not 
unfold as planned” (JP 3-0, Joint Operations). 

Two joint C2 concepts that nurture implicit communications are commander’s intent and

mission-type orders. By expressing intent and direction through mission-type orders, the

commander attempts to provide clear objectives and goals to enable subordinates to

execute the mission. The commander’s intent should specify the goals, priorities,

acceptable risks, and limits of the operation. Subordinates should be able to operate

independently for some period of time based solely on commander’s intent.

Guidance for planning and conducting air component operations is reflected in the

commander’s intent. Those granted delegated authority must understand the

commander’s intent, which is disseminated through such products as a JFC’s operation

plan; a JFACC’s joint air operations plan and air operations directive; air, space, or

cyber tasking orders produced by appropriate components; and annexes to such plans

and orders that provide specific guidance for specialized functions. Unity of effort over

complex operations is made possible through decentralized execution of centralized,

overarching plans. Roles and responsibilities throughout the chain of command should

be clearly spelled out and understood, not only to ensure proper follow-through of the

original mission intent and accountability for mission completion, but also to provide

continuity of operations in the event of degraded communications between echelons.

Communication between commanders and those to whom authority is delegated is

essential throughout all phases of the military operation.

Air Force commanders at all echelons are expected to command, to lead their forces to

accomplish assigned and implied tasks in furtherance of the superior commanders’

objectives. Training and exercises programs should be structured to ensure Air Force

commanders are equipped with the skills and knowledge to accomplish assigned or

implied tasks in a degraded or contested environment.

BATTLE RHYTHM

Battle rhythm discipline enhances control of forces. Effective operations in a theater

require the integration and synchronization of strategic, operational, and tactical

processes, to ensure mission planning, preparation, execution, and assessment are

coordinated. It is essentially a schedule of important events that should be synchronized

with the other Service or functional components and combined forces.