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EXTRACT OF FM 7-20
COMMAND AND STAFF ACTIONS
The decision making process, which involves the most complete interaction of the battalion commander and staff, is the sequence of command and staff actions. This decision making process is continuous but is most evident when the battalion must conduct missions requiring detailed plans. Time often becomes the most critical factor in regulating the depth of the interactions. Because command and staff actions are a means to an end, as are troop-leading procedures, the battalion commander follows them to the degree he needs to make timely decisions.
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The sequence of command and staff actions begins with the receipt of the mission. Normally, the mission is assigned by brigade headquarters. At best, the battalion commander receives the OPORD in person and the brigade commander articulates the mission so that the commander fully understands his intent. At worst, the battalion commander may receive the mission in an OPORD, delivered by messenger. On receipt of the mission, the battalion commander and staff exchange information. The battalion commander provides the staff a warning order on the mission. The staff updates the battalion commander on critical matters that pertain to their area of responsibility.
The battalion commander then conducts a mission analysis to insure that he identifies all the specified and implied tasks contained in the order. The tasks that are essential to the overall success of the mission are then incorporated into the battalion commander's restated mission. It is a clear, concise statement of the task(s) to be accomplished by the command and the purpose to be achieved.
The restated mission becomes the basis of all commander and staff estimates, oral or written, and it becomes paragraph 2 (MISSION) of the battalion OPORD. Along with his restated mission, the battalion commander provides the staff with planning guidance. The frequency, amount, and content of the planning guidance will vary with the mission, time and information available, situation, and experience of the commander and the staff. When time is available, the guidance may be general so as to give the staff maximum leeway in developing courses of action, staff estimates, and recommendations. However, the battalion commander may give the staff specific guidance, impose restrictions, or give the staff courses of action to consider. Generally, the less time available, the more specific the guidance will be.
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The coordinating staff then prepares and presents their estimates and recommendations to the battalion commander. The staff members coordinate with each other while the estimates are being made. The coordination can be formally organized by the executive officer. More often, the coordination is informal, with staff estimates based on tentative courses of action developed by the S3. The S3 develops tentative courses of action for staff consideration, based on the restated mission, the commander's guidance, and the significant conditions that directly oppose the success of any friendly course of action. Those courses of action represent possible solutions to the accomplishment of the mission. Courses of action, although stated in general terms, are formulated in sufficient detail to distinguish one from the other, and to provide a base for a flexible analysis. The courses of action developed by the staff are analyzed based on the factors of mission, enemy, terrain and weather, and troops and time available (METT). Most often, the S3 or executive officer presents the staff's joint recommended course of action to the commander. By that time, the staff has determined if they can support that course of action or if there are significant problems in their area of responsibility. After presenting the recommended course of action, the staff states its support of it, or significant problem areas.
While the staff is preparing its estimates, courses of action, and recommendation, the battalion commander similarly is preparing an informal commander's estimate. This estimate is based on personal knowledge of the situation, information from the staff, and personal reconnaissance. He usually takes at least his fire support officer on the reconnaissance with him and may include the S2, S3, and combat engineer. After presentation by the staff, the commander analyzes
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the courses of action and decides which to adopt, modified as necessary. His analysis is based on the factors of METT.
After deciding on the course of action to adopt, the battalion commander issues his commander's concept to the staff so they can prepare appropriate orders. The commander's concept is a description of how he visualizes the operation being conducted. It is through his concept that the commander's intent is expressed.
The commander's concept, estimates of the situation, and the factors of METT are applicable to both troop-leading procedures and command and staff actions and are discussed in detail later in the chapter.
The commander decides the amount of detail needed in the plans and orders to insure understanding among his staff and subordinate commanders. He may require written copies with overlays, one copy to talk from and overlays for subordinates; or he may use notes and a mapsheet. He issues his orders from a vantage point from which he can see the terrain, when possible, or from a map with graphics. He issues the order in sufficient detail to get across his intent. If the commander's intent is clearly understood, subordinates may then exercise initiative to accomplish the mission.
Commanders and staffs supervise the execution of orders.
Refinement of plans and orders, and changes to orders by FRAGO, are based on the feedback of information to the commander through reports and personal observations and contact.
TROOP-LEADING PROCEDURES
Through troop-leading procedures, the leader develops and issues instructions to his subordinates so that the unit can accomplish its assigned mission. The lower the echelon, the more simple, direct, and rapid is the process. Nevertheless, all the steps should be taken even if they are taken in a matter of seconds. In other words,
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the troop-leading steps should be an instinctive and automatic way of thinking for squad and platoon leaders and company commanders. Once the battle starts, subsequent orders and responses must be fast, effective, and simple. This requires teamwork. It also requires leaders who can turn a mission-type order into action that supports the plan of the next higher commander without detailed instructions. Elaborate troop-leading procedures reduce the responsiveness of the force.
Units often have little time to prepare for combat operations. They must be ready to execute a new mission in a matter of minutes or, at most, a few hours. Efficient use of available time to make adequate preparation is vitally important. Leaders can respond to new mission requirements and direct or redirect their elements quickly if they have mastered troop-leading and follow the steps instinctively. These troop-leading steps are common at all levels of command. They are important, yet not rigid. The leader modifies them as necessary to fit the mission, situation, and available time. The steps of troop-leading procedures are:
Receive the mission and make an estimate of the situation.
Issue a warning order.
Develop the concept of operation and make a tentative plan.
Initiate necessary movement.
Reconnoiter.
Complete the plan.
Issue orders.
Supervise and refine.
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Receive the Mission. Leaders may receive a mission in either an oral or written OPORD or a FRAGO. Upon receipt of an order, the leader begins his estimate of the situation and plans the use of available time. Often, the most critical resource when a unit receives a new mission is TIME, especially daylight hours, in which to prepare. The leader must not waste time that should be used by platoon and squad leaders for reconnaissance and planning of their own. A reasonable guideline is to use no more than one third of the available time for planning and leaving two thirds for the leaders of subordinate units. Thus, a company commander given 9 hours to prepare for an operation uses no more than 3 hours and provides at least 6 hours for subordinates to issue subsequent orders and make their preparations.
Issue a Warning Order. A leader issues a warning order as early as possible--preferably on receipt of a warning order or immediately following receipt of an order from higher headquarters. He does this by telling his subordinates the mission, the time it starts, and the time and place for issuance of the actual order. This permits better use of time available to plan and prepare. A warning order is usually issued orally. See Appendix 8 for a discussion of warning orders.
Make a Tentative Plan. The leader should make a tentative plan of how he intends to accomplish his mission. The leader's estimate is based on the considerations of METT. When the mission is complex and time is available, he may make a formal mental estimate. When time is short, the estimate is informal and made quickly. The estimate results in a decision by the leader as to what his concept of operation will be. The concept must include a scheme of maneuver and a fire support plan. The concept he develops is the basis for coordination, unit movement, reorganization (if any), and reconnaissance.
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The mission will usually be stated in terms that are specific as to WHO, WHAT, WHEN, WHERE, and WHY.
Initiate Necessary Movement. The leader will have many important matters on his mind at this point. Often, the driving consideration is the absolute necessity to make good use of the available time so that subordinates can reconnoiter, move, prepare, and fit their units and weapons to the ground. If the unit must move a considerable distance, it should be set in motion immediately, based on the first rough concept. This permits platoons and squads to get on the ground early. Then the leader needs to get out on the ground and see for himself how to best employ the combat power of his unit. SOPs permit all these actions to proceed simultaneously so that no time is wasted. Equally important are the movement SOPs of the companies. Brief oral orders must effect instant movement by every element of the company. For example, orders like the following will be commonplace: "Change of mission. Assemble vicinity Checkpoint 12 and prepare to move north on Route RED. Movement order is now 2d Platoon, 1st Platoon. Third platoon overwatch from present position and follow on order. Mortars and trains remain behind 3d Platoon."
When the company commander is called to receive an order, he normally takes with him the executive officer, fire support team (FIST) chief, or some other person of authority who can return to the unit to issue a follow-on warning order, prepare the unit, and, if necessary, move it. With these activities under control, the company commander can make his reconnaissance, confirm or modify his tentative plan, and be ready to issue his final order on the ground while the company is moving to its new location.
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Reconnoiter. To make best use of his forces and fires on the assigned terrain, the leader must see that terrain. If possible, he meets his subordinates at a vantage point where they can see the terrain. There will be times when he can only make a map reconnaissance, but if time is available and the situation permits, leaders should get out on the terrain. During the reconnaissance, the leader confirms his tentative plan or modifies it to take advantage of his weapons and protect his troops. If he can see only part of the assigned area, then he plans the details for only that part of the operation. The remainder is covered in general terms by telling subordinates to be prepared to take other actions.
Complete the Plan. As a result of the reconnaissance, the leader may or may not alter his tentative plan. He refines his concept and plans for fire support. He now focuses upon specific tasks for all units, insuring that his plan fits together simply and effectively.
Issue Orders. Most orders are issued orally, sometimes from a handwritten OPORD outline and a sketch or overlay. If the leader has made a reconnaissance, he will usually issue orders from a vantage point in the assigned area. This permits him to point out particular terrain features on the ground as well as on the map, and it eliminates time that might be spent in driving back to a CP to speak to subordinates who would then drive forward to reconnoiter. The leader will normally have only his own map available with control measures sketched on it. He then requires subordinates to copy this information on their own maps. If the entire unit is moving or is already involved in an operation, he may issue orders over the radio or by messenger or may meet each subordinate in turn to instruct him face to face while the unit continues its activity. The leader must make his concept for the operation absolutely clear from beginning to end. Subordinates must understand how the leader sees the battle
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being fought and what he expects from each of them. They must also understand the tasks of adjacent and supporting elements. The company commander's subordinate leaders should also be clear on what actions to take in the event they lose communication with the commander.
Supervise and Refine. The leaders must supervise to insure that all necessary preparations for the conduct of the operation are being made, including coordination, reorganization, fire support, engineer activities, maintenance, resupply, movement, and any other required actions.
Once the operation is under way, the leader must monitor both friendly and enemy activity and issue FRAGOs to modify or refine the operation as the situation develops. Rarely will an operation be executed as initially planned. The requirement to supervise and provide strong decisive leadership is continuous.
COMMANDER'S CONCEPT OF OPERATION
In formulating plans for movement, offense, defense, or retrograde operations, the battalion commander's primary goal in using the decision making process is to develop, then execute, a concept of operation that will accomplish the unit's assigned mission.
The battalion commander's concept drives the planning process before the battle. It dictates the initial action of all elements during the battle. It also indicates appropriate courses of action as the battle develops. It is the common thread that runs through everything the battalion intends to do and does. Plans and orders are a formal, orderly expression of the concept.
The battalion commander should always have a concept in mind for the fighting of his battalion. He builds his basic concept on an in-depth understanding of the capabilities, limitations, and concepts of employment of the combat systems available to him. The more he
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Warning orders give notice of an action or an order that is to follow. They are usually issued as brief oral or written messages. Warning orders have four essential elements:
Addressees--tells recipient immediately if the order pertains to him.
Nature of the operation--stated in sufficient detail to allow recipients to begin routine or special preparations for the operation.
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Time of the operation--stated precisely. This allows recipient to allocate time and set priorities.
Time and place the entire order is to be issued and who is to come--exact location and time tell subordinates when and where to go to receive the entire order. Detailing an SOP "orders group" who usually receives orders helps shorten this process.
It is essential that leaders and units at all levels have maximum time to prepare for an operation. Therefore, warning orders are issued at all levels down to squad or section. Upon receipt of a warning order, each leader issues his own warning order to his subordinates in as much detail as he can.
Warning Order Examples-
This order is representative of a warning order that might be issued by a battalion commander after receiving a warning order from the brigade commander. This warning order is given as a net call over the battalion wire net:
"1-66 Infantry will be assigned a defensive sector somewhere between coordinates 070885 and 123960. Be prepared to move within 24 hours. More information to follow when brigade issues the OPORD."
This second warning order is representative of a warning order that might be issued by a battalion commander after receiving the OPORD from the brigade commander. This warning order is given as a net call over the battalion command net (secure):
"1-66 Infantry has been assigned a defensive sector from coordinates 100909 to 110933 to 078949 to 075916 to be occupied by 221330A Jul __. Only organic vehicles will be available for the move. Scout platoon departs ASAP to conduct area recon of assigned sector. Battalion order
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to be issued at battalion TOC 211500A Jul __ to battalion orders group."
OPERATION ORDERS
Operation orders detail the coordinated action necessary to carry out the concept of the commander. The order itself is issued orally by the battalion commander or S3 to subordinates, as described in chapter 3. It follows a standard five-paragraph format. An overlay should be prepared before the operation so that control measures are common throughout the battalion. Written orders, when completed, are also distributed to higher and adjacent units for information and are retained in unit files for historical purposes.
The most important part of any order is the commander's concept of the operation. He should personally explain his concept to subordinates in considerable detail so that there are no misunderstandings concerning what they are to do. Understanding how the commander envisions the battle being fought assists them in carrying out actions on their initiative when necessary--confident that they are operating within the framework of the commander's concept. The example attack, defense, and withdrawal orders, given later in this appendix, only provide the framework of the concept of operations. The commander would greatly expand on it orally.
The written order is the framework of the oral order presented by the battalion commander or S3. It does not contain all the details presented when the order is issued, but does contain sufficient detail so that the reader of the order can understand the concept of the operation.
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