NATO STANDARD APP-28 TACTICAL PLANNING FOR LAND FORCES
NATO UNCLASSIFIEDNATO STANDARDAPP-28TACTICAL PLANNINGFOR LAND FORCESEdition A Version 1NOVEMBER 2019NORTH ATLANTIC TREATY ORGANIZATIONALLIED PROCEDURAL PUBLICATIONPublished by theNATO STANDARDIZATION OFFICE (NSO) NATO/OTANNATO UNCLASSIFIED
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NATO UNCLASSIFIEDNORTH ATLANTIC TREATY ORGANIZATION (NATO)NATO STANDARDIZATION OFFICE (NSO)NATO LETTER OF PROMULGATION21 November2019The enclosed Allied Procedural Publication APP-28, Edition A, Version 1,1.TACTICAL PLANNING FOR LAND FORCES, which has been approved by the nationsin the Military Committee Land Standardization Board, is promulgated herewith. Theagreement of nations to use this publication is recorded in STANAG 2631.2.APP-28, Edition A, Version 1, is effective upon receipt.No part of this publication may be reproduced, stored in a retrieval system, used3.commercially, adapted, or transmitted in any form or by any means, electronic,mechanical, photo-copying, recording or otherwise, without the prior permission of thepublisher. With the exception of commercial sales, this does not apply to member orpartner nations, or NATO commands and bodies.4.This publication shall be handled in accordance with C-M(2002)60.rigadi r General, HUNAFDirector, NATO Standardization OfficeNATO UNCLASSIFIED
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NATO UNCLASSIFIEDAPP-28RECORD OF RESERVATIONSCHAPTERRECORD OF RESERVATION BY NATIONSNote: The reservations listed on this page include only those that were recorded at time ofpromulgation and may not be complete. Refer to the NATO Standardization DocumentDatabase for the complete list of existing reservations.IIINATO UNCLASSIFIEDEdition A Version 1
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NATO UNCLASSIFIEDAPP-28RECORD OF SPECIFIC RESERVATIONS[nation][detail of reservation]CANi. Canada disagrees with some of the terms and/or definitionspertaining to mission analysis, information briefs and decision briefs.Canada will continue to use its own terminology until compatibleterms and definitions can be developed;ii. Canada does not agree with the merging of the estimate processinto the operations planning process. Canada sees the twoprocesses as distinct and separate the former being done by acommander with no/minimal staff, and the latter by a commanderwith dedicated staff. Generally, estimates are done at the unit andbelow level, while the operations planning process is used at theformation level.DEUDEU does not recognize air interdiction as part of the Receipt ofMission Brief (para 22.8, subpara 2.f.). In line with the other listedareas (AOO, AIR), DEU replaces air interdiction (AI) with area ofinterest (AOI).Reservation 2:DEU does not follow the definitions of deep, close and rearoperations (para 3.1.4., subpara 3a. – c.), because they are not inline with NATO terminology according to NATOTerm. DEU appliesthe NATO agreed definition as follows:Deep Operation: An operation conducted against forces or resourcesnot engaged in close operations.Close Operation: Operation conducted at short range, in closecontact and in the immediate timescale.Rear Operations: Operations which establish and maintain one'sown forces in order to generate the freedom of action to allow for theconduct of close and deep operations.DNKDNK doctrine on tactical planning is in its overall substance in linewith the doctrine described in STANAG 2631.However STANAG 2631 does not take reconnoiter into accountduring the planning process. DNK doctrine allows staff recce andrecce with subunits in the ORIENT phase (also decribed in AnnexB). DNK sees recce as a key element in the planning process.Note: The reservations listed on this page include only those that were recorded at time ofpromulgation and may not be complete. Refer to the NATO Standardization DocumentDatabase for the complete list of existing reservations.VNATO UNCLASSIFIEDEdition A Version 1
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NATO UNCLASSIFIEDAPP-28TABLE OF CONTENTSCHAPTER 1OVERVIEW OF TACTICAL PLANNING FOR LAND FORCES . 1-11.1.SECTION I—MISSION COMMAND AND THE OPERATIONSPROCESS. 1-11.1.1.Introduction . 1-11.1.2.Mission Command . 1-11.1.3.The Operations Process . 1-21.1.4.The Manoeuvrist Approach . 1-21.2.SECTION II—PLANNING, PLANS, AND ORDERS . 1-31.2.1.Planning . 1-31.2.2.Plans and Orders . 1-41.2.3.Mission-Type Orders . 1-41.3.SECTION III—SRUCTURE AND ROLES . 1-51.3.1.General . 1-51.3.2.Role of the Commander . 1-61.3.3.Role of the Chief of Staff . 1-61.3.4.Role of the Staff . 1-81.3.5.Modifying Tactical Planning . 1-8CHAPTER 2 PHASE I – UNDERSTANDING THE SITUATION AND PROBLEM. 2-12.1.General . 2-12.2.SECTION I: PHASE I – STEP 1: RECEIPT OF MISSION . 2-22.2.1.General . 2-22.2.2.Alert the Staff and Other Key Participants . 2-32.2.3.Prepare for Planning . 2-32.2.4.Initiate Intelligence Preparation of the Operating Environment . 2-42.2.5.Update Running Estimates . 2-42.2.6.Estimate Mission Timelines . 2-52.2.7.Estimate Staff Planning Timelines . 2-52.2.8.Prepare and Deliver Receipt of Mission Briefing . 2-62.2.9.Prepare and Issue Commander’s Initial Planning Guidance . 2-62.2.10.Issue Initial Warning Order . 2-72.3.SECTION II: PHASE I – STEP 2: MISSION ANALYSIS . 2-72.3.1.General . 2-72.4.SECTION III: PHASE I – SUB-STEP 2A: ORDERS ANALYSIS . 2-82.4.1.General . 2-82.4.2.Analysis of the Higher Commander’s Order . 2-92.4.3.Develop a (restated) Mission Statement . 2-132.4.4.Formulate Commander’s Initial Intent . 2-142.4.5.Develop Additional Commander’s Planning Guidance . 2-152.4.6.Prepare and Deliver the Order Analysis Briefing . 2-172.5.SECTION IV: PHASE 1 - SUB-STEP 2B: EVALUATION OF FACTORS. 2-182.5.1.General . 2-182.5.2.Staff Analysis on Specific Parts of Order and Annexes . 2-192.5.3.Perform Intelligence Preparation of the Operating Environment . 2-19VIINATO UNCLASSIFIEDEdition A Version 1
NATO UNCLASSIFIEDAPP-282.5.4.Review Troops and Support Available to Identify Capability Shortfallsand Vulnerabilities to Protect. 2-202.5.5.Review and Update Time Available to Plan, Prepare, Execute andAssess the Upcoming Operation . 2-202.5.6.Identify Risks and begin Risk Assessment . 2-202.5.7.Develop Commander’s Critical Information Requirements . 2-212.5.8.Develop the Initial Intelligence Collection Plan . 2-222.5.9.Prepare and Deliver the Mission Analysis Briefing . 2-222.5.10.Develop and Issue Additional Commander’s Planning Guidance . 2-232.6.0.Develop and Issue a Warning Order . 2-242.6.1.Commander’s Initial Back-Brief . 2-242.6.2.Supporting Techniques . 2-24CHAPTER 3CONSIDER AND DEVELOP COURSES OF ACTION . 3-13.0.SECTION I: PHASE 2 - STEP 3: COURSE OF ACTIONDEVELOPMENT . 3-13.1.General . 3-13.1.1.Choose a COA Development Method . 3-13.1.2.Assess Relative Combat Power . 3-23.1.3.Generate Options . 3-33.1.4.Establish an Operations Framework . 3-43.1.5.Array Forces. 3-53.1.6.Assign Tasks (and, as required, Headquarters) . 3-63.1.7.Develop Course of Action Statements and Sketches . 3-63.1.8.Prepare and Deliver Course of Action Briefing . 3-83.1.9.Select or Modify COA for Continued Analysis3-93.2.SECTION II: PHASE 2 - STEP 4: COURSE OF ACTION ANALYSIS 3-93.2.0.General . 3-93.2.1.Preparation. 3-103.2.2.Perform . 3-113.2.3.Course of Action Analysis Briefing (optional) . 3-113.3.SECTION III: PHASE 2 - STEP 5: COURSE OF ACTIONCOMPARISON. 3-123.3.1.General . 3-123.3.2.Determine COA Advantages and Disadvantages Analysis . 3-123.3.3.Compare Courses of Action . 3-133.3.4.Identify the Staff Preferred COA. 3-143.3.5.Prepare and Deliver a Course of Action Decision Briefing . 3-15CHAPTER 4COMMUNICATION . 4-14.1.SECTION I: PHASE 3 - STEP 6: COMMANDER’S DECISION . 4-14.1.0.General . 4-14.1.1.Issue Final Planning Guidance. 4-14.1.2.Issue Warning Order . 4-24.2.SECTION II: PHASE 3 - STEP 7: ORDERS PRODUCTION,DISSEMINATION, AND TRANSITION . 4-24.2.1.General . 4-24.2.2.Plans and Orders Reconciliation . 4-34.2.3.Approving the Plan and/or Order . 4-3VIIINATO UNCLASSIFIEDEdition A Version 1
NATO UNCLASSIFIEDAPP-284.2.4.Transition the Operation Plan or Operation Order from the Planning Cellto the Current Operations Cell (when applicable) . 4-34.2.5.Prepare and Issue the Orders . 4-44.2.6.Prepare and Deliver Back Briefs and Rehearsals . 4-4CHAPTER 5PLANNING IN A TIME-CONSTRAINED ENVIRONMENT . 5-15.0.General . 5-15.1.SECTION I: RESPONSIBILITIES . 5-15.1.1.The Commander’s Responsibility . 5-15.1.2.The Staff’s Responsibility . 5-15.2.SECTION II: TIME SAVING TECHNIQUES . 5-15.2.1.Time-Saving Techniques . 5-1ANNEX ARELATED ALLIED PUBLICATIONS AND STANAGS . A-1ANNEX BCOMPARISON MATRIX OF NATO PLANNING PROCESSES . B-1ANNEX CTACTICAL PLANNING FOR LAND FORCE QUICK REFERENCEGUIDE . C-1ANNEX DTEMPLATES . D-1ANNEX EFACTORS . E-1ANNEX FTIME-SAVING TECHNIQUES . F-1LIST OF ILLUSTRATIONSFigure 1-1. The Operations Process . 1-2Figure 1-2. Planning Horizons . 1-4Figure 1-3. Mission Statement Structure . 1-5Figure 1-4. Steps of the Tactical Planning for Land Forces . 1-7Figure 2-1. Tactical Planning for Land Forces Overview . 2-2Figure 2-2. Step 1–Receipt of the Mission . 2-3Figure 2-3. Step 2–Mission Analysis . 2-8Figure 2-4. Example of Commander’s Initial Intent . 2-14Figure 3-1. Step 3–Course of Action Development . 3-1Figure 3-2. Step 4-COA Analysis . 3-9Figure 3-3. Step 5–COA Comparison . 3-12Figure 4-1. Step 6–Commander’s Decision . 4-1Figure 4-2. Step 7–Orders Production, Dissemination, and Transition . 4-3Figure F-1. Example of Simplified COA Sketches . F-2LIST OF TABLESTable 2-1. Examples of Commander’s Planning Guidance by Combat Function . 2-16Table 2-2. Three Column Model . 2-26Table 3-1. Historical Minimum Planning Ratios . 3-5Table 3-2. Sample COA Advantages and Disadvantages . 3-13Table 3-3. Sample Decision Matrix . 3-13Table B-1. Comparison Planning Processes Matrix . B-2IXNATO UNCLASSIFIEDEdition A Version 1
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NATO UNCLASSIFIEDAPP-28PREFACE0001. PurposeNorth Atlantic Treaty Organization’s (NATOs) recent operations show an increase inthe formation and employment of multinational headquarters at the land componentcommand level and below. To improve alliance interoperability and operationaleffectiveness within these headquarters, a standardised approach to planning tacticaloperations is required. Allied Procedural Publication (APP)-28, Tactical Planning forLand Forces, provides this standardisation.0002. Scopea.APP-28 provides a common approach to planning operations at the tactical level.It describes the tactical planning process—a process used by commanders and staffsto analyse a mission, develop, analyse, and compare courses of action, decide on theoptimum course of action, and produce a plan and order for execution.b.To effectively employ the processes and procedures in APP-28, readers mustbe familiar with the command and control doctrine found in Allied Tactical Publication(ATP)-3.2.2, Command and Control of Allied Land Forces. Readers must understandthe concept of mission command, the manoeuvrist approach, and the importance ofdeveloping mission-type orders. They must also understand the dynamic nature of theoperations process to include continuous planning and decision-making throughout anoperation. In addition, to effectively plan tactical operations, readers must fullyunderstand the tactics found in ATP-3.2.1, Allied Land Tactics.c.In order to (IOT) understand the interaction of operational and tactical levelplanning, readers should be familiar with the operational level planning process (OLPP)and the fundamentals of operational planning addressed in Allied Joint Publication(AJP)-5. The tactical planning for land forces is linked to the OLPP described in AJP5, Allied Joint Doctrine for Operational-Level Planning.0003. Applicability The primary audience for APP-28 is NATO commanders and staffswithin multinational headquarters at the land component command level and below.Commanders of tactical formations and units who have a staff use tactical planning forland forces to plan tactical operations. For headquarters established under the leadnation concept, commanders have the option to use their national planning doctrine(See Annex B – Comparison Matrix of NATO Planning Processes).0004. References APP-28 references several NATO documents in which additionalor more complete information on particular subjects is found. References cited areintended to reflect latest versions of documents, unless stated otherwise.XINATO UNCLASSIFIEDEdition A Version 1
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NATO UNCLASSIFIEDAPP-28CHAPTER 11.1.OVERVIEW OF TACTICAL PLANNING FOR LAND FORCESSECTION I—MISSION COMMAND AND THE OPERATIONS PROCESS1.1.1. Introduction1.Tactical planning for land forces integrates the activities of the commander,staff, subordinate headquarters, and other partners to understand the situation (toinclude the formation’s/unit’s mission) and develop a plan and order to achieve theassigned mission. It expands upon and standardises the decision-making processdescribed in Allied Tactical Publication (ATP)-3.2.2 Command and Control of AlliedLand Forces.2.The effective conduct of tactical planning for land forces requires anunderstanding of the philosophy of mission command, the manoeuvrist appro
NORTH ATLANTIC TREATY ORGANIZATION (NATO) NATO STANDARDIZATION OFFICE (NSO) NATO LETTER OF PROMULGATION 21 November2019 1. The enclosed Allied Procedural Publication APP-28, Edition A, Version 1, TACTICAL PLANNING FOR LAND FORCES, which has been approved by the nations in the Military Committee Land Standardization Board, is promulgated .
NORTH ATLANTIC TREATY ORGANIZATION (NATO) NATO STANDARDIZATION OFFICE (NSO) NATO LETTER OF PROMULGATION 4 October 2019 1. The enclosed Allied Quality Assurance Publication AQAP-2070, Edition B, Version 4 NATO MUTUAL GOVERNMENT QUALITY ASSURANCE (GQA), which has been approved by the nations in AC/327, is promulgated herewith.
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