Joint Targeting

31 January 2013

Joint Targeting

Joint Publication 3-60

vii

EXECUTIVE SUMMARY

COMMANDER’S OVERVIEW

• Provides an understanding of Targets and Targeting

• Explains the Joint Targeting Cycle

• Addresses Joint Force Targeting Duties and Responsibilities

Understanding Targets and Targeting

Targeting is the process of

selecting and prioritizing targets

and matching the appropriate

response to them, considering

operational requirements and

capabilities.

Joint targeting is a fundamental task of the fires

function that encompasses many disciplines and

requires participation from all joint force staff

elements and components, along with various

nonmilitary agencies. The primary purpose of joint

targeting is to integrate and synchronize all weapon

systems and capabilities.

Target Description

Targets should be logically and

causally tied to objectives at all

levels—strategic, operational,

and tactical.

A target is an entity (person, place, or thing)

considered for possible engagement or action to

alter or neutralize the function it performs for the

adversary. A target’s operational importance is

determined by conducting an assessment to

determine if engaging the target is consistent with

planned operations and will help achieve the

commander’s objective(s) and the end state.

Characteristics of Targets

Every target has distinct intrinsic or acquired

characteristics that form the basis for target

detection, location, identification, and classification

for ongoing and future surveillance, analysis,

engagement, and assessment. Physical, functional,

cognitive, environmental, and temporal are broad

categories that help define the characteristics of a

target.

The purpose of targeting is to

integrate and synchronize fires

into joint operations by utilizing

available capabilities to generate

a specific lethal or nonlethal

effect on a target.

Targeting systematically analyzes and prioritizes

targets and matches appropriate lethal and nonlethal

actions to those targets to create specific desired

effects that achieve the joint force commander’s

(JFC’s) objectives, accounting for operational

requirements, capabilities, and the results of

previous assessments. The emphasis of targeting is

on identifying resources (targets) the enemy can

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viii JP 3-60

least afford to lose or that provide him with the

greatest advantage (high-value target [HVT]), then

further identifying the subset of those targets which

must be acquired and engaged to achieve friendly

success (high-payoff target [HPT]). Targeting links

the desired effects to actions and tasks.

Principles of Targeting

Adherence to these four principles throughout the

targeting cycle should create desired effects while

diminishing undesired collateral effects.

Focused. The function of targeting is to efficiently

achieve the JFC’s objectives through target

engagement within the parameters set by the

concept of operations (CONOPS), the operational

limitations within the plans and orders (to include

fragmentary orders), the rules of engagement

(ROE), the law of war, and agreements concerning

the sovereignty of national territories. Every target

nominated should contribute to attaining the JFC’s

objectives.

Effects-Based. The art of targeting seeks to create

desired effects with the least risk and least

expenditure of time and resources.

Interdisciplinary. Joint t

argeting entails

participation from all elements of the JFC’s staff,

component commanders’

staffs, other agencies,

departments, organizations, and multinational

partners.

Systematic. The joint targeting cycle is designed to

create effects in a systematic manner. It is a rational

and iterative process that methodically analyzes,

prioritizes, an

d assigns assets against targets

systematically.

Prioritization and Special

Considerations

Planning and execution of all joint and component

targeting should be in accordance with the priorities

established by the JFC. The JFC’s guidance should

describe the objectives to be achieved and the

relative priority of each. Sensitive targets refer to

those targets for whi

ch planned actions warrant

President or the Secretary of Defense review and

approval. An HVT is a target that the enemy

Executive Summary

Certain targets may require

special care or caution in

treatment because attacking them

improperly could lead to adverse

consequences.

commander requires for the successful completion

of the mission. An HPT is one whose loss to the

enemy will significantly contribute to the success of

the friendly course of action (COA). A time-

sensitive target (TST) is a JFC-validated target or

set of targets of such high importance to the

accomplishment of the JFC’s mission and

objectives, or that presents such a significant

strategic or operational threat to friendly forces or

allies, that the JFC dedicates intelligence collection

and engagement assets, or is willing to divert assets

away from other targets in order to find, fix, track,

target, engage, and assess it. Component

commanders may nominate targets to the JFC for

consideration as TSTs. If they meet TST criteria,

but are not approved as TSTs by the JFC, these

component-critical targets may still require

dynamic execution with cross-component

coordination and assistance in a time-compressed

fashion.

Targeting and Joint Operation

Planning

Target development and selection are based on the

JFC’s desired end state rather than on the available

ways and means to achieve them. In other words,

the focus should be on creating the desired target

effects that accomplish targeting-related tasks and

objectives in support of the JFCs objectives, rather

than simply servicing a list of targets or basing

targeting decisions on the availability of particular

weapons, platforms, or systems. Joint operation

planning is the mechanism by which a JFC

translates national military objectives into viable

plans and orders for conducting military operations.

The joint targeting process occurs within this

context.

The Joint Targeting Cycle

General Activities

The joint targeting cycle supports

the joint force commander’s

(JFC’s) joint operation planning

and execution with a

comprehensive, iterative, and

logical methodology for

Joint targeting is an integral part of joint operation

planning and continues through publication of the

campaign or contingency plan, operation order, or

fragmentary order. Detailed joint intelligence

preparation of the operational environment and

country assessments, performed by JFCs within

their operational areas (OAs), set the stage for

detailed targeting within the joint targeting cycle.

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x JP 3-60

employing the ways and means to

create desired effects that support

achievement of objectives.

Once actions are taken against targets, the

commander and staff assess the effectiveness of the

actions. If there is no evidence that the desired

effects were created, reengagement of the target

may be necessary, or another method selected to

create the desired effects.

Categories of Targeting

The targeting process can be generally grouped

into two categories: deliberate and dynamic.

Deliberate targeting normally supports the joint

force’s future plans effort, which is overseen by the

plans directorate of a joint staff (J-5). (Normally,

the future operations directorate focuses on 24

hours out to 72 hours. This is a critical linkage

during targeting execution.)

Dynamic targeting is normally employed in

current operations planning because the nature and

time frame associated with current operations

(usually the current 24-hour period) typically

requires more immediate responsiveness than is

achieved in deliberate targeting.

Categories of Targets

Targets may be described as two different

categories: planned targets and targets of

opportunity. Each has two separate subcategories:

Planned targets are known to exist in the

operational environment with engagement actions

scheduled against them. Planned targets may be

further divided into scheduled targets and on-call

targets. Scheduled targets are prosecuted at a

specific time. On-call targets have actions planned,

but not for a specific delivery time.

Targets of opportunity refer to targets that meet

the criteria to achieve objectives but were not

selected for action during the current joint targeting

cycle. Targets of opportunity can be divided into

two subgroups: unplanned targets and unanticipated

targets. Unplanned targets are known targets and

are included on a target list, but not selected for

engagement because the target was not nominated,

was nominated but did not make the joint integrated

prioritized target list (JIPTL), or was not expected

Executive Summary

to be available for engagement within the target

cycle. However, changes to the target status

(priority, access, permissions) could result in the

need (or opportunity) to engage the target during

the current cycle. Unanticipated targets are

unknown or not expected to be present in the

operational environment. These targets are not

included on a target list and an evaluation of the

target is needed to determine engagement

requirements and timing.

The Joint Targeting Cycle

The joint targeting cycle is a six phase iterative

process: end state and commander’s objectives,

target development and prioritization, capabilities

analysis, commander’s decision and force

assignment, mission planning and force execution,

and assessment.

Joint Targeting Cycle Phase 1—

The End State and Commander’s

Objectives

Understanding the military end state and the

commander’s intent, centers of gravity, objectives,

desired effects, and required tasks developed during

operational planning provides the initial impetus for

the targeting process. Understanding the JFC’s

guidance, CONOPS, and intent is the most

important and first activity of joint targeting

because they document the set of outcomes relevant

to the present situation and set the course for all that

follows. Objectives are the basis for developing the

desired effects and scope of target development,

and are coordinated among strategists, planners, and

intelligence analysts for approval by the

commander.

Joint Targeting Cycle Phase 2—

Target Development and

Prioritization

Target development is the analysis, assessment, and

documentation processes to identify and

characterize potential targets that, when

successfully engaged, support the achievement of

the commander’s objectives. Phase 2 is comprised

of three steps: target system analysis; entity-level

target development; and target list management.

Joint Targeting Cycle Phase 3—

Capabilities Analysis

This phase of the joint targeting cycle involves

evaluating all available capabilities against targets’

critical elements to determine the appropriate

options available to the commander for target

engagement while highlighting the best possible

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solution under given circumstances. Capabilities

analysis is comprised of four steps: target

vulnerability analysis, capabilities assignment,

feasibility assessment, and effects estimate.

Joint Targeting Cycle Phase 4—

Commander’s Decision and

Force Assignment

The force assignment process integrates previous

phases of joint targeting and fuses capabilities

analysis with available forces, sensors, and weapons

systems. The process of resourcing JIPTL targets

with available forces or systems and intelligence,

surveillance, and reconnaissance assets lies at the

heart of force assignment. This process links

theoretical planning to actual operations. Once the

JFC has approved the JIPTL, either entirely or in

part, tasking orders are prepared and released to the

executing components and forces. The

commander’s decision in phase 4 is to either

approve the draft JIPTL, approve targets to be

added to or removed from the JIPTL, or approves a

particular way or ways of engaging a particular

target or targets.

Joint Targeting Cycle Phase 5—

Mission Planning and Force

Execution

Upon receipt of tasking orders, detailed planning

must be performed for the execution of operations.

During execution, the operational environment

changes as a result of actions from the joint force,

adversary, and other actors. The joint targeting

process monitors these changes in order to allow

commanders to decisively use joint force

capabilities to seize and maintain the initiative.

Joint Targeting Cycle Phase 6—

Targeting Assessment

The targeting assessment phase is a continuous

process that assesses the effectiveness of the

activities that occurred during the first five phases

of the joint targeting cycle. The targeting

assessment process helps the commander and staff

determine if the ends, ways, and means of joint

targeting have resulted in progress toward

accomplishing a task, creating an effect, or

achieving an objective.

Time-Sensitive Target (TST)

Considerations

The JFC’s objectives and guidance shape the basic

procedural framework for components to expedite

engagement of TSTs. Additionally, the JFC

establishes guidance on procedures for

coordination, deconfliction, and synchronization

Executive Summary

xiii

Generally, TSTs are engaged

using dynamic targeting, so the

command and control

arrangements should include the

rapid identification and

communication capabilities

required for expedited decision

making.

among components. Once this guidance is issued,

the components establish planned and reactive

procedures for engaging the prioritized TSTs. A

critical aspect of successful TST engagement is to

understand the level of risk acceptable to the JFC.

Items to be considered in the risk assessment

include risk to civilians, friendly forces, and

noncombatants; possible collateral damage; and the

disruption incurred by diverting assets from their

deliberately planned missions.

The Relationship Between

Targeting and Effects

It is important that desired and

undesired effects be clearly

communicated as far down as

necessary to ensure these effects

are created or avoided

respectively.

From the targeting perspective, an effect is a change

in the physical or behavioral state of a target

system, a target system component, a target, or a

target element that results from an action, a set of

actions, or another effect. A desired effect can be

thought of as a condition that can support achieving

an associated objective, while an undesired effect is

a condition that can inhibit progress toward an

objective

Joint Force Targeting Duties and Responsibilities

Joint Targeting Integration and

Oversight

The JFC’s primary targeting responsibility lies in

establishing the objectives that component

commanders will achieve throughout the

operational environment with their forces (assigned,

attached, and supporting). With the advice of

subordinate component commanders, JFCs set

priorities, provide clear targeting guidance, and

determine the weight of effort to be provided to

various operations. Throughout the targeting

process, JFC and component commanders should

establish safeguards to reduce the possibility of

friendly fire. Joint standards and methods for

estimating collateral damage potential provide

mitigation techniques and assist commanders with

weighing collateral risk against military necessity

and assessing proportionality within the framework

of the military decision-making process.

Joint Force Targeting

Responsibilities

The JFC has the responsibility to conduct planning,

coordination, and deconfliction associated with

joint targeting. Joint targeting coordination

responsibilities for the JFC include:

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 Establish parameters for successful targeting

within the JFC’s OA by promulgating intent,

objectives, guidance, sequencing, and priorities.

 Direct the formation, composition, and specific

responsibilities of a joint fires element (JFE)

and joint targeting coordination board (JTCB)

(if required).

 Approve or delegate approval of the JIPTL

developed from component and staff

nominations.

Joint Targeting Coordination

Board

Targeting coordination tasks are normally

accomplished through the JFC established JTCB or

like body. The JFC normally appoints the deputy

JFC or a component commander to chair the JTCB

to provide the appropriate level of experience and

focus. When a JTCB is not established and the JFC

decides not to delegate targeting oversight authority

to a deputy or subordinate commander, the JFC may

perform this task at the joint force headquarters,

with the assistance of the operations directorate of a

joint staff (J-3). The JFC ensures that this is a joint

effort involving applicable subordinate commands,

other agencies, and multinational partners, as

appropriate. The JTCB normally facilitates and

coordinates joint force targeting activities with the

components’ schemes of maneuver to ensure that

the JFC’s priorities are met.

Joint Fires Element

The JFC may approve the formation of a JFE within

the J-3. The JFE is an integrating staff element that

synchronizes and coordinates fires planning and

coordination on behalf of the JFC and should be

physically located near the joint task force joint

operations center, colocated with the information

operations cell if possible.

Joint Targeting Working Group

The joint targeting working group (JTWG) supports

the JTCB by conducting initial collection,

consolidation, and prioritization of targets and

synchronization of target planning and coordination

on behalf of the JFC. The JTWG is an action officer

level venue, chaired by the JFE chief, operations

Executive Summary

directorate of a joint staff (J-2) (chief of targets), or

similar representative, and meets as required to

consolidate and prioritize the draft JIPTL and

discuss targeting integration and synchronization

issues raised by the JFC, staff, planning teams, and

the JFC’s major subordinate commands.

Joint Force Staff Responsibilities

Intelligence Directorate. The J-2 has the primary

responsibility for prioritization of intelligence

collection efforts, analysis, validation, and

assessment for all joint operations. In addition, the

J-2 provides a major input to the J-3 and J-5 in the

form of adversary COA assessments critical to the

joint target prioritization process and identification

of HVTs and HPTs.

Operations Directorate. The J-3 assists the

commander in the direction and control of

operations, including the planning, monitoring, and

completion of specific operations. In this capacity,

the directorate is the lead for coordinating,

integrating, and executing operations throughout the

OA.

Staff Judge Advocate (SJA). The SJA advises the

JFC and other staff members on applicable

international and domestic laws, legal custom and

practice, multilateral and bilateral agreements with

host nations, law of war issues, compliance and

interpretation of the ROE, and other pertinent issues

involved in joint target recommendations and

decisions.

Component Commander

Responsibilities

With regard to joint targeting, the components’

responsibilities normally include the following:

 Conduct target development.

 Nominate potential targets for inclusion in the

joint target list and restricted target list.

 Nominate targets for inclusion on the JFC’s

TST list and maintain their own lists of HPTs.

 Provide timely and accurate reporting to the

JFE in support of joint operations assessment.

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 Coordinate components’ deliberate and

dynamic targeting via established procedures.

Federated Targeting Support

The Joint Staff intelligence

directorate of a joint staff

normally ensures that federated

targeting support requirements

are addressed in contingency

plans and orders and will assist

in the dissemination of targeting

support-related information

between the federated partners

and the supported JFC.

A federated target development and assessment

process can provide reachback support to the JFC

and component commanders during the joint

targeting cycle. Under a collaborative federated

architecture, the supported JFC works in

conjunction with the National Joint Operations and

Intelligence Center and the Joint Staff J-2 using the

intelligence planning process to establish federated

targeting support partners and assessment reporting

responsibilities between combatant commands in

accordance with the supported combatant

commander’s requirements. Many organizations

provide critical support to joint targeting.

Federation establishes partnerships and leverages

appropriate expertise, allowing access to more

actionable information than would otherwise be

available to JFCs and their staffs. It also provides

for an efficient division of labor and maximizes

resources. Federation provides commands

conducting operations access to organizations and

individuals that are experts in their respective

analytic areas.

CONCLUSION

This publication provides doctrine for the planning,

coordination, and execution of joint targeting.