Chapter 2: Exercise Design Sequence

This page is a section of TC 7-101 Exercise Design.

There are four phases the exercise planner goes through to develop a collective training event that critically assesses unit training status at any level. The exercise design sequence takes the exercise planner from the initial determination of exercise parameters, through countertask and operational environment (OE) development, and concludes with orders production.

During phase 1 (initial planning), the training unit and the exercise director determine the exercise parameters to start the design process. Once the design parameters and prioritized training objectives are determined, the focus in phase 2 (task and countertask development) is on developing opposing force (OPFOR) tasks that counter the training unit’s training objectives. Once phase 2 is completed, the exercise planner has the necessary tools to create the conditions of the OE in phase 3, (PMESII-PT OE development). Finally, during phase 4 (orders, plans, and instruction development), the exercise planner produces the orders, plans, and instructions that translate the OE decisions that were made in phase 3 into the products necessary for the training unit to conduct the exercise. Table 2-1 shows the exercise design sequence. It lists who should be involved in each phase, what tools are required, what key decisions must be made, and what the final products of the phase will be. Essential to all phases is the understanding of the concept of an OE and all the associated operational variables that affect military operations and training. Chapter 3 will describe, in detail, each operational variable and its subvariables.

Table 2-1. Exercise design sequence
Exercise Design Sequence	Phase 1 Initial Planning	Phase 2 Task and Countertask Development	Phase 3 PMESII-PT OE Development	Phase 4 Orders, Plans, and Instruction Development
WHO:	· Training Unit Commander · Exercise Director · Exercise Planner · Senior Trainer	· Exercise Planner · OPFOR Commander	· Exercise Planner	· Exercise Planner · Exercise Director
TOOLS:	· Troop List · Proposed Training Objectives · AUTL/UJTL · Requested Conditions · Commander’s Training Assessment · Exercise Resources · Exercise Director’s Initial Guidance	· Defined Exercise Parameters · Prioritized Training Objectives (METL) · TC 7-100 Series · OPFOR Tactical Task List · Worldwide Equipment Guide (WEG)*	· OE Assessment (OEA) · PMESII-PT Subvariables · Prioritized Training Objectives (METL) · OPFOR Countertasks · OE/WFF Analysis Matrix	· Defined OE · TC 7-100 Series · COA Sketch · OPFOR OB
KEY DECISIONS:	· Exercise Timeline · Type of Exercise · Operational Theme · Existing OEA or Composite OE	· Training Unit Tasks · OPFOR Countertasks · OPFOR OB* · OPFOR Task Organization* · OPFOR Tier Levels*	· PMESII-PT Subvariable Selection · Common Processes · Key Events	· Chronology of Key Events · C-,M- and D-Day · STARTEX · Disposition of Forces
PRODUCTS:	· Defined Exercise Parameters · Prioritized Training Objectives (METL)	· Developed Tasks and Countertasks · OPFOR OB* · OPFOR Task Organization* · OPFOR Tier Levels*	· OE/WFF Analysis · Refined Training Objectives and Task Organization · Developed OE	· Higher Unit OPLANs and Orders · OPFOR Orders · ROE · Role-Player Instructions · Road to War
* Phase 2 is the earliest point at which OPFOR OB and task organization, along with adjustment of OPFOR equipment tiers (using the WEG), could occur. However, this could also begin or be refined in phase 3 or phase 4.

Section I - Phase 1: Initial Planning

The initial step in the exercise design process is the most critical. The senior trainer, exercise director, and exercise planner meet for the first time at an initial planning conference to conduct preliminary planning and establish the parameters for the exercise. In many areas of the exercise, there is great uncertainty as to whether a new design will actually do what is desired, and new scenarios often have unexpected problems. The purpose of initial planning is to define and develop the parameters of the exercise. By defining the exercise parameters, certain key decisions can be made, which gives the exercise planner the tools necessary to begin developing the exercise. The initial planning establishes who is to be trained, where they are to be trained, expected training outcomes, and what broad conditions will be replicated in the exercise’s OE to meet the training objectives.

Tools

The training unit’s commander, the exercise director, and the exercise planner must be present at phase 1 for initial planning. During the initial planning phase, the training unit commander must provide the exercise director and exercise planners with the following parameters:

Troop list of unit to be trained.
Proposed training objectives based on HQDA-approved mission essential task list (METL).
Unit-requested conditions.
Available exercise resources (such as training area, support, simulations).
Commander's assessment of the unit’s current training status.

The training unit troop list should identify as closely as possible the actual task organization, number of Soldiers of the units participating in the exercise, and their equipment. The exercise planner needs to identify the key echelons to be trained and lock in the troop list as early as possible in the exercise development process to avoid time-consuming scenario rewrites. Additionally, a list of key leaders, their experience level, recent training, and time in position is helpful in gauging command and staff experience, which may influence training conditions and operational tempo (OPTEMPO).

Developed from established unit METLs, training objectives represent focal points for the exercise planner when developing courses of action (COAs) and the supporting OE. The accomplishment of the training objectives is the prime reason exercises are conducted. Training objectives are statements that describe the desired outcome of a training activity in the unit (FM 7-0). They consist of tasks, conditions, and standards. The development of training objectives is fully discussed in FM 7-15.

Some training environments are pre-determined based on the use of “live” training sites such as the maneuver combat training centers (MCTCs) or because units are training for specific situations in specific places (that is, mission rehearsal exercises). However, units participating in simulations or command post exercises (CPXs) may ask that a specific venue be developed to support the units training. The training unit may also request specific conditions in which to perform tasks.

Resources to be considered by the exercise planner include—

The amount of time available to complete the training.
Support personnel required.
Simulations available.
Observer-controller support.
OPFOR augmentation.
Transportation assets.
Available training areas.
Training facilities.

The amount of available resources can limit the size or number of live training events (for example, field training and live fire exercises), requiring commanders to substitute a mix of virtual and constructive simulation exercises.

As discussed in chapter 1, the senior trainer, in conjunction with the commander of the unit to be trained, conducts an assessment of the anticipated training status of the training unit immediately prior to the exercise. This training condition of the unit as it enters the exercise is expressed as T-P-U (trained, needs practice, and untrained) in accordance with FM 7-0. This status provides the exercise planner and/or OPFOR commander critical information on the proper mix of OPFOR units and other conditions needed for the exercise.

It is essential that the exercise director is involved throughout the entire exercise planning process and especially during phase 1. If the exercise director is not involved with the initial key decisions that are made to design the framework of the exercise, problems may evolve later when the exercise director arrives and the exercise is not going as he envisioned. The exercise director must provide initial guidance and also broker the compromises that must often be made in the decisions concerning the proper training objectives to train toward. Often the available resources are not available to meet all the desired training objectives and conditions. Therefore, a decision must be made as to what risk is acceptable in limiting the number of objectives, which can then reduce the level of fidelity of the OE conditions.

Key Decisions

Several key decisions need to be made at this point:

What are the time parameters of the exercise?
Will the exercise be live, virtual, constructive, gaming, or a combination?
What is the operational theme?
Will the scenario be based on an existing operational environment assessment (OEA) for an actual OE or a composite OE?

Time Parameters

The amount of time allotted for the exercise must be one of the first decisions made before an OE can be designed or fitted to an exercise. The exercise planner must know the length of the exercise in order to develop situations and the fidelity of the OE. For example, if the exercise is only a few days, more in- formation may have to be given to the training unit prior to the start in order for them to do their mission analysis and planning. If the exercise is longer, situations and events can have time to evolve and the training unit will have more opportunities to influence their environments. The exercise planner will be planning the buildup to key events and the consequences and effects of those key events. Depending on the time available, there may not be time to build up to a key event, and there may only be first- or second- order consequences after a key event.

Type of Exercise

The Army’s increased capability to integrate virtual and constructive simulations with live training, and the increased need for joint and multi-echelon training require exercise planners to develop a detailed and consistent OE for each training event. Defining the OE provides top-down coherence, flexibility, and continuity to the exercise and allows interaction at all levels. Depending on the particular training unit, the majority of training exercises will use a combination of live, virtual, constructive, and gaming (L-V-C-G) training enablers. For example, if a brigade combat team (BCT) trains at an MCTC, it may not have its full complement of troops available for the exercise and could be lacking its military intelligence company. Because a BCT cannot train effectively without its intelligence function, the military intelligence company could be simulated by having several intelligence experts communicate to the BCT through its normal communications and data transfer methods. Likewise, an aviation platoon may not have its normal equipment because of fielding or maintenance issues; so it could train virtually on a simulator, with the results transmitted to the BCT through normal communications and data transfer methods. This way, although all the troops and equipment are not available for the exercise, the unit is still able to complete effective collective training.

Operational Theme

Selection of the operational theme(s) is a key decision that the exercise director needs to make during the initial planning phase. In coordination with the higher commander, this initial decision is normally completed during the preliminary planning sessions. The operational theme is the character of the dominant major operation being conducted at any time within a land force commander’s area of operations. The operational theme helps convey the nature of the major operation to the force to facilitate common understanding of how the commander broadly intends to operate. (FM 3-0) Operational themes can be selected from the following:

Major combat operations.
Irregular warfare.
Peace operations.
Limited intervention.
Peacetime military engagement.

The assignment of the operational theme for a training exercise is critical because it helps commanders identify the most important training tasks. It also helps provide the means to coordinate and integrate more focused supporting collective and individual tasks throughout the organization. Depending on the time allotted for the exercise, it may be possible to train sequentially under two different operational themes.

Operational Environment Assessment

The decision on whether a training exercise will be based an existing OEA for an actual OE or a composite COE-based OE depends on whether the exercise is the based on a directed or contingency mission. For example, sometimes a training unit is assigned a contingency mission in a particular area of the world; so its training could be based on a real location and OE. Otherwise, the training unit would focus on honing its core tasks. Either way, the OEA is a tool to easily and effectively design the OE for the exercise. If a particular area of the world is the focus, the TRADOC G-2 Intelligence Support Activity (TRISA) has developed several OEAs that can be found on its website at https://www.us.army.mil/suite/files/14752839 (AKO access is required). The purpose of the OEAs on the TRISA website is twofold. Each OEA provides a detailed description and analysis of a specific OE and a model for the application of the operational variables (PMESII-PT) to support actual operations or exercises. The PMESII-PT variables, their subvariables, and related impacts are discussed, as well as potential trends in the OE. If no existing OEA corresponds to the OE desired for a particular training exercise, exercise planners can follow the methodology of these real-world examples to create an OEA for the OE associated with the desired geographical area. If an exercise does not require fidelity to an actual OE, exercise planners can modify an existing OEA or design their own composite OE. A composite OE is developed by selecting the subvariable or sub-subvariable settings (from a detailed list found in chapter 3) that best support the training objectives. If the training unit is only focusing on its core tasks, it can also use an existing OEA, modify an existing OEA, or it can design its own composite OE.

Note. In order to meet specific training requirements or unit-requested conditions, the creation of any training event will normally include portions of existing, modified, or composite OEs regardless of whether training is for a contingency mission or core tasks.

Products

Products resulting from the initial planning should be defined exercise design parameters based on available resources and METL-based prioritized training objectives.

Section II - Phase 2: Task and Countertask Development

The purpose of phase 2 is for exercise planners to examine the selected training tasks and conduct an OPFOR countertask analysis in order to counter or stress the training unit. During this phase, it is assumed that the commander of the U.S. unit to be trained has already identified the units he wants trained in the selected tasks.

Who

The key players in this phase are the exercise planner and OPFOR commander. Depending on the size and type of exercise, the specific makeup of these planners may change. The OPFOR commander’s role in an exercise may be two-fold. That is, he is required to command the OPFOR, but as a trainer he may act in a “white-hat” or neutral capacity for exercise control and the exercise director to ensure the training unit’s training objectives are being met. He therefore may be privy to some aspects of the training unit’s planning and operations, but required not to use the information to OPFOR tactical advantage. Regardless of who is involved, it is critical that both training unit and OPFOR planners coordinate closely during this phase in order to ensure a cohesive and productive training exercise.

Tools

The exercise planner must have the products from phase 1 (the defined exercise parameters and METL-based prioritized unit training objectives). He also must have TC 7-100 series publications and the OPFOR Tactical Task List (see appendix B).

Note. If the nature of the exercise allows the exercise planner to develop the OPFOR OB, task organization, and equipment tier levels during phase 2, this could necessitate the use of the Worldwide Equipment Guide (WEG) as another tool. This tool is discussed under phase 2 only because this is the earliest phase in which it could possibly be used.

Key Decisions

While training unit tasks are determined by the unit’s METL, the supporting collective and individual tasks on which the exercise will focus must be carefully selected. This selection will drive the selection of appropriate OPFOR countertasks.

Note. In some cases, the exercise planner may be able to proceed from OPFOR countertasks directly to the development of the OPFOR OB, task organization, and equipment tier levels during phase 2. Otherwise, those decisions may need to occur after OE development, in phase 3 or even in phase 4. These actions are discussed under phase 2 only because this is the earliest phase in which they could possibly occur. Even if these decisions are initially made in phase 2, they could be refined during a later phase.

OPFOR Countertasks

The OPFOR Tactical Task List (see appendix B) is a listing of OPFOR tactical countertasks. From this list, the exercise planner must select the countertasks that match the training unit’s tasks. If, for example, the training unit’s selected training objectives include overcoming barriers, obstacles and mines, the OPFOR countertask would involve creating barriers or obstacles or emplacing mines. If the training unit’s tasks include air defense, then the OPFOR needs to have aviation unit tasks. If the training unit’s tasks include counterinsurgency operations, then the OPFOR should include insurgent tasks. The exercise planner should develop OPFOR countertasks that—

Oppose the training unit’s training objectives in accordance with the OPFOR Tactical Task List.
Reflect TC 7-100 series doctrine, organizations, and equipment (unless training for a specific contingency with a specific adversary).
Are appropriate to the training unit troop list, expected training status, and area of operation (AO).

Once the OPFOR countertasks (or COAs) are selected, the exercise planner aligns training unit tasks with OPFOR countertasks to determine OPFOR missions. For example, in order to arrive at a training unit task of “Actions on Contact” and the OPFOR countertasks of ambush, improvised explosive device (IED), electronic warfare (EW), and indirect fire, the exercise planner studies the required supporting subtasks from the Army Universal Task List (AUTL) in FM 7-15, as shown in table 2-2, to determine what counter- tasks are required of the OPFOR.

Table 2-2. Example training unit supporting subtasks (actions on contact)
ART 1.2.2.7 CONDUCT ACTIONS ON CONTACT
No.	Scale	Measure
01	Yes/No	Unit generated and sustained overwhelming combat power at the point of contact if the element that made contact was able to defeat the enemy unassisted.
02	Yes/No	The generation of overwhelming combat power was the product of the recommended course of action to the higher commander.
03	Yes/No	Intelligence, surveillance, and reconnaissance assets were used to develop situation without main body being in contact with the enemy.
04	Time	To deploy and report.
05	Time	To evaluate and develop the situation.
06	Time	To choose a course of action (COA).
07	Time	To execute a selected COA.
08	Time	To recommend a COA to the higher commander.
09	Time	To return to previous mission.
10	Percent	Of friendly forces available to continue previous mission.
11	Percent	Of combat effectiveness of enemy force that made contact.

By studying the assigned task (actions on contact) and its supporting subtasks, the exercise planner can see that the OPFOR required must—

Not start with overwhelming combat power, but can get there.
Allow the training unit to use ISR assets to stay out of contact.
Be able to challenge the training unit’s ability to carry out its selected COA.
Be able to cause the training unit to not be able to continue its mission.

In another example, the exercise planner studies the required training unit subtasks of “Conduct Joint Operations Area (JOA) Missile Defense,” as shown in table 2-3, in order to determine what countertasks are required of the OPFOR. By studying the assigned task and its subtasks, the exercise planner can see that the OPFOR required must be able to employ ballistic, air-to-surface, and cruise missiles.

Table 2-3. Example of training unit task (JOA missile defense)
OP 6.1.5 CONDUCT JOINT OPERATIONS AREA (JOA) MISSILE DEFENSE To identify and integrate joint and coalition forces supported by integrated capabilities to detect and destroy enemy theater missiles directed toward the JOA in flight or prior to launch. This task includes disrupting the enemy’s theater missile operations through an appropriate mix of mutually supportive passive missile defense, active missile defense, attack operations, and supporting command, control, communications, computers, and intelligence (C4I) measures. This task includes providing early warning of theater missile attack to the joint operations area (JOA) as well as distribution of this warning to joint and multinational forces within the operational area. The term “theater missile” applies to ballistic missiles, air-to-surface missiles, and air-, land-, and sea-launched cruise missiles whose targets are within the joint force commander’s (JFC’s) operational area.
No.	Scale	Measure
M01	Minutes	Warning provided to friendly assets prior to threat arrival.
M02	Percent	Of attacking missiles successfully penetrated friendly defenses.
M03	Percent	Of launched air-to-surface missiles destroyed before impact.
M04	Percent	Of launched ballistic missiles destroyed before impact.
M05	Percent	Of launched cruise missiles destroyed before impact.
M06	Percent	Of theater assets defensible against theater missile threat.
M07	Percent	Of TMD capability damaged by incoming missile attacks.
M08	Percent	Of DAL locations defensible against theater missile threat.
M09	Percent	Of DAL locations, successfully defended.
M10	Instances	Of failure to apply passive missile defense procedures.
TMD = theater missile defense; DAL = defended asset list

OPFOR OB And Task Organization

An important factor in the continuation of this phase is whether the training unit has a specific real- world OE and the type of exercise selected is deployment related, such as an MRX. If this is the case, then the exercise planner and/or OPFOR commander could continue with building an OPFOR OB to include task organization, since the OE or exercise conditions have already been established. The exception to this is if the deploying training unit also has the OB of the actual enemy force in sufficient resolution to use in conducting the MRX. However, if the training unit does not have a predefined OPFOR or OE, then the conditions for their exercise will have to be developed first, which will be discussed in the phase 3 (PMESII-PT OE development).

Note. Phase 2 is only the first of three phases in which OPFOR OB and task organization may be determined. The steps in the following example could be followed in phase 3 or even in phase 4.

Assuming that the training unit has defined OE conditions but does not have predetermined OB of the OPFOR for the exercise, the exercise planner would begin determining the appropriate type and size of OPFOR unit(s) capable of performing the OPFOR countertasks. The type of OPFOR unit is determined by the type of capability required for each OPFOR countertask. The size of the OPFOR organization is determined by the type of capability required and the size of the U.S. units(s) being trained. If, for example, the exercise is focused on major combat operations and the training unit will be attacking with two brigade- size units, then the OPFOR needs a brigade-size organization in order to provide an adequate defense. The optimal OPFOR organization for conducting such a defense, if the exercise is conducted in complex terrain, could include relatively light motorized infantry units with some mechanized infantry combined with an antiarmor capability. Such a mix of forces would include the use of a brigade tactical group (BTG) task organization. If an insurgency also exists in the OE, then a local insurgent force could also be included to provide the training unit with an opportunity to combat an insurgency. The insurgent force can either operate independently or become affiliated with the regular military force.

For the purpose of this example, only one guerrilla battalion will be resubordinated from its original parent insurgent organization to become an actual part of the BTG task organization. Because of its more military-like structure, this battalion can easily be incorporated into the BTG command structure and fight as a combat unit alongside the light motorized infantry. However, the remainder of the local insurgent organization remains only loosely affiliated with the BTG, rather than subordinate to it.

At this point, exercise planners review the OPFOR administrative force structure (AFS) organizational directories, which provide example equipment plus personnel types and the numbers of each type typically found in specific organizations. The AFS is to be used as the basis for OPFOR organization in all Army training exercises, except real-world-oriented MRXs. The AFS is the aggregate of various military headquarters, organizations, facilities, and installations designed to man, train, and equip the OPFOR. Within the AFS, tactical-level commands have standard organizational structures. The purpose of the AFS is to give trainers and exercise planners a general idea of what an OPFOR structure should look like. A complete list of AFS organizational directories, volumes I-IV, can be found at the U.S. Army Training and Doctrine Command (TRADOC) G2-TRISA Website at https://www.us.army.mil/suite/files/19296289 (AKO access required).

Note. The AFS organizational directories are online files linked to FM 7-100.4. FM 7-100.4 provides detailed step-by-step instructions on how to construct a task organization in its chapter 3 and appendix B; its chapter 4 describes how to select equipment options.

From the AFS menu, exercise planners can compile an initial listing of OPFOR units for the task organization (see example in table 2-4). The purpose here is to review the OPFOR organizational directories to determine which standard OPFOR unit(s) most closely matches the type and size of units required for performing OPFOR countertasks. At this point, the initial list only identifies the units available, without concern for any higher-level command to which they are subordinate in the AFS. In most cases, the organizations found in the AFS will require task-organizing in order to construct an OPFOR OB appropriate for the exercise. Once selected, this OPFOR unit will become the base unit to which modifications are made.

Table 2-4. Example of initial listing of OPFOR units selected for task organization
• BTG Headquarters (based on Bde HQ)	• Sniper Company
• Motorized Infantry Battalion (x2)	• Air Defense Battalion (Motorized)
• Mechanized Infantry Battalion (APC)	• Engineer Battalion
• Guerrilla Battalion (Hunter-Killer)	• Materiel Support Battalion
• Antitank Battalion	• Maintenance Battalion (APC/Motorized)
• Artillery Battalion	• Signal Company
• Reconnaissance Battalion (Motorized)	• Chemical Defense Company
• SPF Company	• Medical Company
• SPF Deep Attack/Recon Platoon

In the example in table 2-4, the exercise planner has determined that most of the units needed to conduct OPFOR countertasks can be found in the AFS organizational directory for a separate motorized infantry brigade. Therefore, that brigade will serve as the base unit for the required task organization, which will be a BTG based on that brigade’s headquarters and some of its original subordinates in the AFS. However, OPFOR countertasks will also require the capabilities of some APC-equipped mechanized infantry, guerrilla forces, special-purpose forces (SPF), and additional snipers.

For the insurgent organization affiliated with the BTG in this example, the exercise planner would select the “Local Insurgent Organization” from the AFS organizational directories. He would then adjust the “default” numbers of the various function-oriented cells to tailor the organization to provide the desired insurgent tasks.

Before extracting the base unit from the organizational directories, exercise planners should deter- mine how much of the organizational detail in the directories they actually need for their particular training exercise or simulation. The directories typically break out subordinate units down to squad-size components. However, some simulations either cannot or do not need to provide that level of resolution. Therefore, exercise planners should identify the lowest level of organization that will actually be portrayed. If the only task-organizing involved will be internal to that level of base unit, any internal task-organizing is transparent to the users. However, if any subordinate of that base unit receives assets from outside its immediate higher organization, it might be necessary to first modify the subordinate into a task organization and then roll up the resulting personnel and equipment totals into the totals for the parent organization in the OPFOR OB for the exercise.

Several decisions are involved in modifying the standard OPFOR baseline unit to become the new task organization. This can involve changes in subordinate units, equipment, and personnel. If training objectives do not require the use of all subordinates shown in a particular organization as it appears in the AFS, users can omit the subordinate units they do not need. Likewise, exercise planners can add other units to the baseline organization in order to create a task organization that is appropriate to training requirements. Users must ensure that the size and composition of the OPFOR is sufficient to meet training objectives and requirements. However, total assets organic to an organization or allocated to it from higher levels should not exceed that which is realistic and appropriate for the training scenario. Skewing the force ratio in either direction negates the value of training. Therefore, specific OBs derived from the organizational directories are subject to approval by the trainers’ OPFOR-validating authority.

OPFOR Tier Levels

During the task-organizing process, adjustments in equipment may be necessary in order to modify the strength and capability of the OPFOR unit. If a particular piece of equipment shown in the AFS organizational directories is not appropriate for a specific scenario, exercise planners may substitute another system according to the guidelines in the Worldwide Equipment Guide (WEG). The WEG is organized into di- rectories consisting of three volumes:

Volume I, Ground Systems.
Volume II, Airspace and Air Defense.
Volume III, Naval and Littoral Systems.

The WEG is maintained and continuously updated, as necessary, by TRADOC G2-TRISA. Volumes I-III can be found at the TRADOC G2-TRISA Website at: https://www.us.army.mil/suite/files/14751393 (AKO access required). It is important to note that even the baseline OPFOR organizations are subject to change over time. The equipment found in those organizations can also change. Therefore, planners should always consult the online AFS directories and the WEG for the latest, most up-to-date versions of organizational and equipment data.

The WEG contains equipment data, tier tables, and substitution matrices for the various categories of equipment found in OPFOR organizations. Exercise planners should exercise caution in modifying equipment holdings, since this impacts on an OPFOR unit’s organizational integrity and combat capabilities.

Exercise planners can employ the tier tables and substitution matrices in the WEG to find appropriate substitutes for baseline equipment shown in the AFS organizational directories. Within each functional category of equipment, there are four tiers representing different levels of capability, with Tier 1 representing the highest level of capability and modernity. The four distinct tiers and their definitions are as follows:

Tier 1 reflects systems across the different functional areas that a major military force with state- of-the-art technology would generally have. At Tier 1, new or upgraded systems are limited to those robust systems fielded in military forces or currently developed and marketed for sale, with capabilities and vulnerabilities that can be portrayed for training.
Tier 2 reflects modern competitive systems fielded in significant numbers for the last 10 to 20 years, with limitations or vulnerabilities being diminished by available upgrades. Although forces are equipped for operations in all terrains and can fight day and night, their capability in range and speed for several key systems may be somewhat inferior to U.S. capability. Since the equipment listed in the AFS directories are Tier 2 equipment, any adjustments to equipment should be considered in light of this baseline structure.
Tier 3 systems date back generally 30 to 40 years. They have limitations in all three subsystems categories: mobility, survivability, and lethality. Systems and force integration are inferior. However, guns, missiles, and munitions can still challenge vulnerabilities of U.S. forces. Selective upgrades can provide synergistic and adaptive increases in force effectiveness.
Tier 4 systems reflect 40- to 50-year-old systems, some of which have been upgraded numerous times. These represent equipment typically found in forces of Third World or smaller developed countries. Use of effective strategy, adaptive tactics, selective technology upgrades, and terrain limitations could enable a Tier 4 OPFOR to challenge the effectiveness of a U.S. force in achieving its goals. This tier includes militia, guerrillas, special police, and other forces.

Note. No force in the world has all systems at the most modern tier. The OPFOR, as with all military forces worldwide, is a mix of legacy and modern systems. Thus, the typical OPFOR force comprises a mix of Tier 1-4 systems.

Table 2-5 provides a sample of systems listed in the tier tables (from volume I, chapter 15 of the WEG as of 2009). The characteristics of individual equipment listed can be found in the preceding chapters of volume I.

Table 2-5. Example of equipment listed in WEG tier tables
Equipment Type	Tier 1	Tier 2	Tier 3	Tier 4
Infantry Fighting Veh	BMP-2M Berezhok	BMP-2M	AMX-10P	BMP-1PG
Infantry FSV for IFV	BMP/Kliver AD/AT	BMP-2M Kornet/SA-18	AMX-10/SA-16/AT-5B	BMP-1PG w/ SA-16/AT-5
Armored Psnl Carrier	BTR-90	BTR-80A	BTR-80	M113A1
Amphibious APC/IFV	BTR/Kliver BMP/Kliver	BTR-80A/BMP-3 UAE	WZ-551/BMP-2	VTT-323/BMP-1PG
Infantry FSV for APC	BTR/Kliver AD/AT	BTR-80A/SA-18&Kornet	WZ-551/SA-16/AT-5B	BMP-1PG w/ SA-14/AT-5
Airborne APC/IFV	BTR-D/ BMD-3/Kliver	BTR-D/BMD-3	BTR-D/BMD-2	BTR-D/BMD-1P
Heavy IFV/Heavy IFSV	BMP-3M/BTR-90M/BMD-4	BMP-3 UAE	Marder 1A1	BMP-1PG
Main Battle Tank	T-90A	T-72B (Improved)	Chieftain	T-55AM
Amphibious Tank	Type 63A Modernized (AM)	Type 63AM	M1985	PT-76B
Tracked HACV	2S25	AMX-10 PAC 90	AMX-13EE-9	M41A3
Wheeled HACV	AMX-10RC Desert Storm	AMX-10RC	EE-9	EE-9
Combat Recon Veh	BRM-3K/Credo	BRM-3K	BRM-1K	EE-9
Abn/Amphib Recon CRV	BMD-3/Credo 1E	BMD-3K	BMD-1PK	BMD-1K
Armored Scout Car	BRDM-2M	BRDM-2M	Fox	BRDM-2
Sensor Recon Vehicle	HJ-62C	HJ-62C	BRM-1K	BRM-1K
AT Recon Vehicle	PRP-4M (TALL MIKE)	PRP-4M (TALL MIKE)	PRP-4 (TALL MIKE)	PRP-3 (SMALL FRED)
Armored Cmd Veh	MP-21	BMP-1KSh	BMP-1KSh	BMP-1KS
Abn/Amphib ACV	BMD-1KShM	BMD-1KShM	BMD-1KShM	BMD-1KShM
Wheeled ACV	Kushetka-B	Kushetka-B	BTR-60PU/BTR-145BM	BTR-60PU/BTR-145BM
Command APC	BTR-90AK	BTR-80AK	BTR-60PBK	M113A1
Motorcycle	Gear-Up (2-man)	Gear-Up (2-man)	Motorcycle (2-man)	Motorcycle (2-man)
Tactical Utility Veh	VBR	VBL/VBR	UAZ-469	UAZ-469
Armrd Multi-purpose	MT-LB6MB	MT-LB6MA	MT-LBu	MT-LB
All-Terrain Vehicle	Supacat	Supacat	LUAZ-967M	LUAZ-967M

OPFOR organizations and equipment must support the entire spectrum of COE training scenarios for the U.S. Army. The OPFOR, as described in the TC 7-100 series, represents a variety of adversaries, and offers flexibility for use in training applications and scenarios for U.S. training. The main part of the WEG deals with systems that are widely proliferated in the current timeframe. Lists of equipment in the tier tables offer convenient baseline examples arranged in capability tiers for use in composing OPFOR equipment arrays for training scenarios. Each volume of the WEG also has a chapter on emerging technology trends. Tables in those chapters offer an extended capabilities tier for the near- and mid-term. Table 2-6 provides an example from an emerging technology trends chapter as of 2009.

Table 2-6. Example of emerging technology trends from WEG
System	Near-Term OPFOR (FY 09-13)	Mid-Term OPFOR (FY 14-19)
APC Air Defense/Antitank (ADAT) Vehicle	APC Bn and Bde MANPADS btry, selected other units	See AIR DEFENSE
Infantry Fighting Vehicle	2-man turret, amphib tracked. Add ERA. 30mm gun (sabot, 110+mm pen). Frag-HE Electronic- fuzed ammo 5 km. Buckshot rd for UAVs. 40-mm ABM AGL, 4 x fiber-optic guided ATGM 8 km launch on move, 2nd gen FLIR. Auto-track, hunter- killer FCS. Remote MGs 12.7mm, 2 x 7.62. Laser designator 15 km. CPS/ATS	Hybrid drive. Box ERA 100mm KE /600 CE. 45-mm CTG. Fused FLIR /II sight 13 km. ADAT dart rd 4 km. SAL/LBR ATGM 8-12 km. MMW radar. Micro-UAVs recon/atk. Radar warner, laser radar. Tunable LTD 15 km. CPS. 2 remote MGs, 1x 12.7. TV/IR attack grenades
IFV ADAT Vehicle IFV Bn/Bde MANPADS	IFV chassis and APC ADAT weapons and upgrades	See AIR DEFENSE, APC ADAT for weapons and upgrades
Heavy Infantry Fighting Vehicle (Heavy IFV in Heavy Bn, Infantry Fire Support Vehicle, or IFV Company Command Vehicle, as Required)	2-man turret, amphib tracked, Box ERA. Auto- track, hunter-killer FCS, ATGM lch on move. 100 and 30mm guns. 100mm HEAT, DPICM rounds. 40mm ABM AGL, NLOS (LBR/SAL) ATGM 8+km lch-on-move. 30/100-mm HE electronic fuzed rd 7 km. 30-mm buckshot rd for UAVs. AD 12.7mm MG, 2 remote 7.62 MG. Laser designator 15 km. CPS/ATS	Hybrid drive. Armor and box ERA protects 300mm KE/800 CE. 45-mm CTG, KE, HE, ADAT rds. KE missile 8 km. Micro-UAVs recon/ atk. CPS. Fused FLIR/II sight 13 km. ATGM 8-12 km. Tunable laser designator to 15 km. Radar/ MMW warners. AGL, 2 remote MGs, 1x 12.7. TV/IR atk grds
HIFV ADAT Vehicle HIFV and Amphib Bn/Bde	HIFV chassis with APC ADAT weapons and upgrades	See AIR DEFENSE, APC ADAT for weapons and upgrades
Main Battle Tank	Welded turret with more KE protection. 125mm gun, bigger sabot (800+mm), LBR ATGM 6 km. SAL-H/IR-homing HEAT rd 5 km in 1 sec, SAL-H ATGM 8 km. LTD to 10 km. Controls tank robot. 2nd gen FLIR (7 km) and 50X Day/night sights. ATGM fire on move. Auto-tracker, laser radar, laser dazzler blind sights. Focused frag HE rd for heli, AT targets. HEAT-MP, DPICM submunition rds. IR/MMW CM. CPS/ATS	Reduced turret, compartmented rds, electromagnetic/ceramic armor, 3 gen ERA, 500 mm top/mine armor. Laser/radar warners. CPS. Hybrid drive. Sabot defeats 1000mm KE. KE ATGM to 12 km. Tunable LTD to 15 km. ADAT msl 8 km. Medium laser weapon. Fused FLIR/II sight 100 X to 13 km. MMW FC. Atk/recon micro-UAV, atk grds. Controls a robot tank.

Products

The products always resulting from phase 2 are the OPFOR countertasks developed from selected training unit tasks. In some cases, phase 2 may also include the consequent development of OPFOR OB, task organization, and equipment tier levels. As mentioned previously, those would only be developed during this phase if the OE was already defined but the OPFOR units were not defined. In that case, the entire process of phase 2 could result in building the appropriate OPFOR OB, which must provide suitable organizations capable of countering those tasks selected from the AUTL or UJTL for the training unit. For training units that do have an existing OE and defined OPFOR, the exercise planner would only develop countertasks during this phase. For training units that do not have a defined OE, the exercise planner must first develop an appropriate OE in phase 3 before he can define the OPFOR.

Section III - Phase 3: PMESII-PT Operational Environment Development

An operational environment (OE) is a composite of the conditions, circumstances, and influences that affect the employment of capabilities and bear on the decisions of the commander (JP 3-0). Because this term was first introduced and defined in a Joint Pub about joint operations, a common misconception is that the term operational environment equates only to the operational level of war and that the “operational variables” used to describe an OE are applicable only at the operational or joint level. Both of those views are incorrect. The “operational” in both terms simply means that they relate to an operation, at any level. Every commander, at every level, has his own specific OE, which is part of the OE of his parent command and includes the OEs of his subordinate commands. A specific mission occurs within the context of a specific OE.

At this point, the exercise planner has analyzed and integrated the exercise parameters and OPFOR countertasks. The next step is to match the results of phases 1 and 2 to the appropriate OE conditions for the training scenario. This step is critical because it essentially creates the conditions for the selected unit training objectives. These conditions, when combined with the standards for the METL task, help commanders assess unit readiness for a mission. Upon completion of this phase, all the conditions for the training exercise are set.

Tools

In the exercise is based on an existing OEA (for an actual operation or for an existing training scenario), that OEA is the foundation for phase 3. Depending on training requirements, the exercise planner may draw the necessary conditions directly from the existing OEA, develop more specific conditions for the specific OE of a smaller unit within that broader OE, or otherwise modify the existing OEA. If the exercise is not based on an existing OEA, the first step would be to create a composite OE that is appropriate for the training objectives, training unit tasks, and OPFOR countertasks already selected. In any case, the primary tool for this phase is to apply the framework of the eight operational variables and select appropriate settings for the subvariables.

Operational Variables (PMESII-PT)

The Army’s increased capability to integrate virtual, gaming, and constructive simulations with live training, along with the increased need for joint and multi-echelon training, requires exercise planners to develop a detailed and consistent OE for each training event. Defining the OE provides top-down coherence, flexibility, and continuity to the exercise and allows interaction at all levels. Most importantly, the operational variables of PMESII-PT (political, military, economic, social, information, infrastructure, physical environment, and time) and their interaction provide the analytical framework for establishing conditions at all levels of training. The complexity of a specific OE in training can also be adjusted to ensure training objectives are met.

The framework for analysis of any OE should always consist of all eight operational variables that determine the nature of an OE and how it will affect an operation. The following is a brief description of each PMESII-PT variable, along with an example of questions a small-unit commander might need to have answered about each variable in his particular OE (in parentheses):

Political. Describes the distribution of responsibility and power at all levels of governance— formally constituted authorities, as well as informal or covert political powers. (Who is the tribal leader in the village?)
Military. Explores the military and/or paramilitary capabilities of all relevant actors (enemy, friendly, and neutral) in a given OE. (Does the enemy in this particular neighborhood have anti- tank missiles?)
Economic. Encompasses individual and group behaviors related to producing, distributing, and consuming resources. (Does the village have a high unemployment rate that makes it easy for the enemy to get villagers to perform tasks for pay or other benefits?)
Social. Describes the cultural, religious, and ethnic makeup within an OE and the beliefs, values, customs, and behaviors of society members. (Who are the influential people in the village— for example, religious leaders, tribal leaders, warlords, criminal bosses, or prominent families?)
Information. Describes the nature, scope, characteristics, and effects of individuals, organiza- tions, and systems that collect, process, disseminate, or act on information. (How much access does the local population have to news media or the internet?)
Infrastructure. Is composed of the basic facilities, services, and installations needed for the functioning of a community or society. (Is the electrical generator in the village working?)
Physical Environment. Includes the geography and man-made structures as well as the climate and weather in the area of operations. (What types of terrain or weather conditions in this AO favor enemy operations?)
Time. Describes the timing and duration of activities, events, or conditions within an OE, as well as how the timing and duration are perceived by various actors in the OE. (At what times are people likely to congest roads or conduct activities that provide a cover for hostile operations?)

PMESII-PT Subvariables

Each of the eight PMESII-PT variables also has associated subvariables. A complete list of subvariables in detail is in chapter 3. Each subvariable listed there contains a subvariable definition and a break- down of several distinct settings in order to develop specific exercise conditions. Each subvariable setting also has a corresponding definition, as well as associated planning considerations and notes to include links to other associated variables and subvariables. However, these are not always linked to a specific setting. (For an example of a subvariable, see table 2-7.)

Table 2-7. “Political: Type of Government” subvariable definition, settings, and setting definitions
Definition: Determines the type of government structure and associated behaviors encountered.
Subvariable Setting	Setting Definition	Considerations and Additional Notes
Dictatorship/Authoritarian	A mode of government characterized by the existence of a single ruler or group who arrogate to themselves and monopolize power in the state, exercising it without restraint.	For live training requires robust domestic security apparatus, bureaucratic institutions and bloated role-player government structure (1.5 normal manning).
Theocracy	A government ruled by or subject to religious authority. A system of government in which God or a deity is held to be the civil ruler.	Can only occur in the first two categories of social religious diversity.
Representative Government	Characterized as a representative form of government—either democratic, republic or parliamentary in form—with elected representatives and executives. All politics are governed by will of people and government has limited, defined powers over the population.	Can be democratic, republic or parliamentary. Requires specific, prominent influencers, council members be present in the scenario (in addition to the normal role-player government positions).
Anarchy	Absence of any form of political authority. Political disorder and confusion. Absence of any cohesive principle, such as a common standard or purpose.	Tribal and religious role-players present in scenario. Small percentage of disenfranchised or former government officials with little influence.
Subvariable Links: Economic: Illegal Economic Activity; Social: Education Level, Religious Diversity, Criminal Activity.

Ultimately the exercise planner is responsible for choosing the combination of subvariables for the exercise. Table 2-8 provides an overview of the PMESII-PT variables and all their associated subvariables.

Table 2-8. PMESII-PT variables and subvariables
Political Variable	Information Variable
Attitude toward the United States Centers of political power Type of government Government effectiveness and legitimacy Influential political groups	Public communications media Information warfare Intelligence Information management

Military Variable	Infrastructure Variable
Military forces Government paramilitary forces Non-state paramilitary forces Unarmed combatants Nonmilitary armed combatants Military functions	Construction pattern Urban zones Urbanized building density Utilities present Utility level Transportation architecture

Economic Variable	Physical Environment Variable
Economic diversity Employment status Economic activity Illegal economic activity Banking and finance	Terrain Observation and fields of fire Avenues of approach Key terrain Obstacles Cover and concealment Landforms Vegetation Terrain complexity Mobility classification Natural hazards Climate Weather Precipitation High temperature—heat index Low temperature—wind chill index Wind Visibility Cloud cover Relative humidity
Social Variable	Time Variable
Demographic mix Social volatility Education level Ethnic diversity Religious diversity Population movement Common languages Criminal activity Human rights	Knowledge of the AO Cultural perception of time Key event resolution Information offset Tactical exploitation of time Key dates, time periods, or events

The eight variables and their associated subvariables describe the OE in terms that relate to specific situations as well as threat capabilities. These variables are relevant to every echelon of command and are relevant to every military operation. While individual variables do not dominate every environment, they are all present and require careful consideration. The PMESII-PT variables produce a coherent profile of the exercise conditions that can be applied to multi-level training exercises and small-unit (brigade and below) training exercises alike.

Operational Environment Assessment

The purpose of an OEA is to understand all relevant aspects (conditions, circumstances, and influences) of a particular, specific OE for an actual operation or a training event. An OEA is a systematic examination of all eight operational variables (PMESII-PT) and the subvariables that make up each of those variables. An OEA also identifies interrelationships among the variables and subvariables, as well as potential trends over time.

The exercise planner can either use an existing OEA (for an actual OE or a composite OE used in previous exercises), modify an existing OEA, or create an OEA for a new OE tailored to the requirements of the planned exercise. By using an existing OEA, the PMESII-PT variables and subvariable settings are pre-set. By adjusting an existing OEA, the exercise planners can change specific subvariable settings to meet requested training objectives or specified conditions in the OE. However, a composite OE can also be built by the exercise planner by selecting the desired subvariable settings straight from chapter 3.

The subvariable settings have definable differences that result in unique characteristics or planning factors. Their characteristics also directly impact on the ability of a unit to accomplish its mission in an operation or in training. The exercise director is ultimately responsible for approving the combination of settings for the exercise.

The operational variables can describe conditions of a composite OE created for an exercise but are equally applicable to describing real-world OEs as required for mission rehearsal training. The OEA, depending on the required resolution of the exercise, can be an invaluable tool in determining the proper subvariable settings to produce the desired OE. Now that the exercise planner has developed the parameters of the exercise as well as established training unit tasks and OPFOR countertasks, he has the tools and products necessary to develop the exercise’s OE, the foundation of the scenario.

Order of Consideration

PMESII-PT is the memory aid for the eight operational variables that make up any OE. When listing the variables, it is therefore advisable to list them in the same order as in the memory aid—to ensure that all are considered. The same is generally true for their order as headings, for instance in an OEA. However, that does not mean that one always addresses and analyzes the variables in that particular order. The order in which variables are considered may depend on several things, including—

Whether a training exercise will use live, virtual, constructive, and or gaming enablers.
Whether the operational theme(s) selected for the exercise require specific conditions in one or more variables.
Whether one is analyzing an actual OE, modifying an actual OE, or creating a composite OE for training.
Whether the training unit has requested specific conditions in which to perform tasks.

Training Enablers

One of the key decisions that must be made during phase 1 is the type of exercise—whether the exercise will be live, virtual, constructive, gaming, or a combination of those training enablers. This decision may affect the order in which variables are considered. For example, if the exercise (or part of it) is to be conducted in a live training venue, much of the Physical Environment variable is predetermined. The terrain, natural hazards, climate, and weather are whatever actually exists at the live training venue. When virtual, constructive, or gaming enablers are involved, the Physical Environment might be considered only after settings for other variables have been determined.

Operational Themes

The choice of operational theme or a combination of themes and the tasks inherent in them may cause emphasis on certain operational variables. Commanders must understand the OE for an operation in terms of the operational variables and describe their desired end state in terms of how they envision the conditions of the OE when the operation ends. This affects their focus on certain tasks and certain operational variables or subvariables related to those tasks. For example, foreign humanitarian assistance operations within an operational theme of limited intervention might cause exercise planners to place special emphasis on the Social and Economic variables and possibly the “natural hazards” subvariable of the Physical Environment variable. Thus, exercise planners might choose to consider such key variables first.

Actual, Modified, or Composite OE

Another key decision in phase 1 is whether the scenario will be based on an existing OEA for an actual OE or a composite OE. The type of OE being analyzed will determine the relative importance of individual operational variables and the order in which they should be considered. The order may be different for conducting an OEA for an actual OE than for using the operational variables as a tool to design a modified or composite OE for training.

Actual OE

By using an existing OEA, the PMESII-PT variables and subvariable settings are preset. For an actual OE, the characteristics of all the variables are determined by the actual situation in the particular part of the world in which an operation is taking place or could take place. In this case, the purpose of an OEA is to help understand all the relevant aspects of that particular OE—most likely starting with the basic Physical Environment of the selected geographic area. Even when doing an OEA for a contingency operation, the general physical location—the where of the operation—is known. Until an actual mission is received, the when of the operation (part of the Time variable) may not be known. Even without knowing the specific time, however, the commander and staff can begin the OEA process—assessing the nature and impact of all the other variables as they exist at the present and as they continue to evolve over time. The variables and their subvariables might be considered in order of available information.

In a particular actual OE, one or more operational variables might obviously have a greater impact on operations than others. In that case, one might want to consider those variables first, in order to be able to assess how they will influence other variables.

Note. PMESII-PT should always be used in analyzing an OE regardless of whether or not the training unit has a specified OE. Even an existing OEA does not always have the appropriate level of resolution for the type or level of training exercise that may desired. PMESII-PT provides the comprehensive framework necessary for the development of the conditions for any level and type of training.

Modified OE

The order of consideration may be different when modifying an existing OE (for an actual operation or a previous training exercise) to meet specific training requirements and/or resource constraints. Most characteristics of the variables are a given, determined by the nature of those aspects of an OE that has already been analyzed. By adjusting an existing OEA, the exercise planner can change specific subvariable settings to meet specified training objectives or requested conditions in the OE. The order of consideration may depend on the exercise parameters, which will determine how closely the OE for training can or should replicate the actual conditions of the actual OE. Training objectives may necessitate adding, deleting, or modifying some conditions (when considering tasks, conditions, and standards). Resources constraints will determine where risk must be accepted and where intelligent compromise will be necessary.

Composite OE

If one is creating a composite OE, the exercise parameters will drive the order in which variables are considered. Since training objectives are driven by METL, certain supporting tasks for the training unit will drive the countertasks selected for the OPFOR. The OPFOR countertasks could determine the basic characteristics of the Military variable up front. As exercise planning continues, planners would refine their design of the OPFOR, creating the appropriate OPFOR OB and task organization—all part of the Military variable. In this case, the consideration of the rest of the variables could follow the decisions about the Military variable and would provide conditions that appropriately interact with those of the Military variable to produce the desired training results. However, some training unit tasks might not correspond to an OPFOR countertask, but rather to some other condition in the OE used for training (for example, a failed government or natural disaster). In such cases, those variables might be considered first or early in the process of developing the OE.

Key Decisions

During phase 3, the exercise planner must select the appropriate subvariable settings for each of the operational variables. He must ensure that the selected settings reinforce the specific OE conditions the training unit requires. He must also determine the common processes and key events that help portray the OE conditions and their impact on the training unit.

Subvariable Selection Example

The following is an extended example that follows the logic of how one exercise planner might select the subvariable settings to meet requirements for a particular exercise. Obviously, these are not the only settings possible. Likewise, the order in which the planner in this example considers the eight operational variables is only one example of one possible order in which an exercise planner might address the variables.

For the purpose of this example, the exercise planner is selecting subvariable settings for an exercise that is not an MRX with a specified AO and will not use a live training environment. However the exercise parameters may indicate a requirement to create a particular type of geographical area to conduct the exercise. For example, the exercise planner could need to develop an OE centered around an AO in which the Physical Environment variable—

Provides terrain that accomplishes terrain-based training objectives (for example, river crossing and urban operations).
Provides terrain appropriate to the troop list.
Provides conditions that stress command, control, and logistics.

Once these exercise parameters have been taken into account, the exercise planner in this example could begin by selecting the subvariable settings for the Physical Environment variable. At this point, the planner is trying to establish realistic conditions, using the PMESII-PT variables, which will stress all anticipated operations and requirements. For example (see figure 2-1), the exercise planner may choose the “mixed” setting for the “landforms” subvariable of the Physical Environment variable. Since the setting definition of “mixed” is “two or more ... landforms comprising over 80% of the available terrain in an AO,” the planner may select “mountain/glacial” in the eastern portion of the country and “coastal” in the western side of the country. It follows then that the associated “climate” subvariable settings selected for this AO would be “oceanic” in the west and “subarctic” in the east. Since the planner may also want to ensure that the physical environment accommodates the maneuver of mechanized and armor formations and is open enough to allow long-range engagements, he may also select a “grassland” setting of the “vegetation” subvariable of the Physical Environment variable. This in turn would require the planner to also define “cover and concealment” as generally poor except in mountainous regions.

Figure 2-1. Selecting an area of operations (example)

Next the exercise planner in this example could continue developing the OE using the variable of Time. One of the more important subvariables of Time is “knowledge of the AO.” This subvariable defines the amount of information the training unit will have received before the exercise begins, based on the amount of time they have spent in the AO (according to the scenario). If, for example, the training unit does not have detailed knowledge of the AO and OE, the planner could select “established,” which means the unit in the scenario is midway through its tour of duty and has only moderate knowledge of the AO and OE. Additional time subvariables that should also be considered are “key-event resolution” and “information offset.” Key-event resolution defines the number of key events and orders of effect to be designed into the scenario in order to accomplish unit training objectives. Information offset is the percentage of significant OPFOR activities that will be presaged by sufficient tips or indicators in order to enable successful training on unit reaction or interdiction response to the designed events.

If, as in this example, the Physical Environment and Time variables are determined first, those variables will shape and define the rest of the variables. The exercise planner then begins to complete the design of the OE by reviewing chapter 3 to determine the appropriate subvariable settings for the remaining variables. Again, the exercise planner tries to find the best fit to support the scenario and the training objectives.

At this point in the process, the exercise planner could develop the capabilities of the OPFOR by selecting the applicable subvariables of the Military variable. Using the countertasks already established in phase 2, the planner begins by selecting the type of military forces he will use in the exercise in order to field a challenging and capable OPFOR. Since we already know that the physical environment in the ongoing example was designed for major combat operations, it follows that the OPFOR selected, within the subvariable of “military forces,” would be “predominately tank and mechanized infantry.” Once this is determined, the next step would be to determine the degree to which this OPFOR can perform various “military functions,” which is also a subvariable of Military. The planner would then select the appropriate setting for each function, such as fire support or maneuver, using a scale of “high,” “medium,” or “low.” In the example discussed in the previous paragraphs, the planner may select “medium,” which means the OPFOR can conduct limited, complex, synchronized tasks, is limited primarily to the theater of operations in its ability to influence friendly forces, and has predominantly Tier 2 equipment. (See chapter 3 on the Military variable for details.) If the exercise design also requires an insurgency, the planner would continue selecting various subvariables of the Military variable that specifically address the composition of this organization.

In our example, the exercise planner has already established subvariable settings for a physical environment suitable for the exercise by considering the training objectives and troop list of the training unit. The exercise planner understands the subvariable settings and implications of Time. He knows that the training unit is established in the AO and that the OPFOR will include the capability to conduct major combat operations as well as an insurgency. He has also developed his tentative COAs for the training unit. With all this in mind, the exercise planner might next consider the relationship and connectivity between the established subvariables of Physical Environment, Time, and Military and the remaining variables. Using these three variables as a foundation, the planner might then analyze their impact when selecting the remaining subvariable settings related to Political, Social, Economic, Information, and Infrastructure.

During this portion of the OE development process, the exercise planner might choose to first address the subvariable settings for the Political, Social, and Economic variables. This would allow him to build a foundation from which he can then develop the appropriate Information and Infrastructure conditions. For example, the planner might wish to choose the Political subvariable settings of “vulnerable: failing” under “government effectiveness and legitimacy” and “tribal” under the “centers of political power.” Consequently, he would choose the Economic subvariable settings of “high unemployment” and a “single industry present.” It is then quite plausible that the Social subvariable settings would be a relatively young or “unbalanced, age” population and “social volatility” that is high.

Based on this foundation, the planner in this example would then select subvariable settings from the remaining Information and Infrastructure variables that logically match the other OE conditions selected. For example, the Information variable would probably have a “public communications media” subvariable that has widespread “postal” and “radio” with limited “Internet” and “television.” The “information management” subvariable setting would probably be either “rudimentary” or “basic.” Finally, appropriate sub- variable settings for the Infrastructure variable would be selected. Since the training unit in this example wants an insurgency as part of the design, the planner would ensure that selected Infrastructure settings included “dense, random construction” and “high” building density, as well as urban zones that include a “city core” and a “high-rise residential area.” This would allow for an insurgency to operate using cities as cover as well as provide a training platform for urban operations.

Once the overall OE has been developed using the PMESII-PT variables, the exercise planner or OPFOR planner could begin building the appropriate OPFOR OB details and task organization covered previously in phase 2. For the ongoing example, this would include the conventional OPFOR units as well as the insurgent organizations, using the appropriate TC 7-100 series and associated documents described earlier.

OE-WEF Analysis

The success or failure of any mission may be determined by the comprehensiveness of the METL’s supporting tasks. If the commander is not aware of shortfalls in the task organization, planning, or training, he cannot address or alleviate them. Therefore, it is imperative that the commander have all-inclusive, across-the-board supporting METL tasks to guide planning and training and to highlight any issues requiring resolution. A comprehensive METL and associated tasks must consider all aspects of any issue(s) that may affect the accomplishment of the mission. This includes, but is not limited to, organizational shortfalls and capabilities and the defined OE using the PMESII-PT framework described above. Once these are analyzed and highlighted, the commander is then able to assign priorities and resources to each area.

Although other factors also affect the selection of the METL tasks, at a minimum well developed METL tasks must integrate the mission, the defined OE, and the warfighting functions (WFFs). This integration can be accomplished by taking into consideration the conditions, circumstances, and influences of the PMESII-PT variables in relation to the WFFs and the assigned mission. What is required is an analytical tool that fuses all these critical issues of interest to the commander. A convenient tool for this analysis is an OE-WFF analysis matrix. Filling in such a matrix should help identify conditions that may require adjustments to the original unit METL tasks and organization developed in phase 1. The requirements revealed in such an analytical matrix result in a comprehensive list of supporting tasks (including tasks of the basic table of organization and equipment [TOE] organization and newly added task-organized subordinates). The results provide an inclusive adjusted baseline that reveals critical METL supporting tasks for the commander’s review and approval.

To illustrate this process, figure 2-2 provides a new example of notional BCT METL supporting tasks. These were specific Army tactical tasks (ARTs) that were selected from the AUTL found in FM 7- 15 prior to applying the OE-WFF analysis matrix.

Figure 2-2. Notional BCT METL with doctrinal supporting tasks (example)

Using this notional METL and doctrinal supporting tasks as a baseline, the exercise planner then builds an OE-WFF analysis matrix using the assumed data already compiled from the PMESII-PT variables analyzed against doctrinal WFFs. (See table 2-9.) Using this construct, the initial supporting tasks are evaluated to determine if they do or do not correspond to the new conditions (PMESII- PT). In addition, the OE-WFF analysis matrix is used to determine if other supporting tasks need to be added.

Table 2-9. OE-WFF analysis matrix (example)

Analyzing this information can result in several changes to the initial supporting METL tasks. (Figure 2-3 shows an example of notional BCT METL supporting tasks adjusted for OE and WFF.)

Figure 2-3. Notional BCT METL supporting tasks adjusted for OE and WFF (example)

First, a task such as “Provide CBRN Passive Defense” can be deleted because, in this case, the OPFOR does not have a CBRN capability. Second, tasks such as “Provide Water Support” and “Provide Humanitarian Relief” have been added due to the humanitarian crisis in the OE. Issues, relationships, and cascading effects, not obvious with a stand-alone METL, become evident once combined with specifics unique to the assigned mission, the task organization, and the defined OE. Once all aspects are considered in one analytical process, the differences in the BCT supporting task list are significant, and obvious. This methodology provides the commander a tailored, all-encompassing tool to assess both the unit’s readiness and its ability to perform the directed mission in the form of adjusted supporting METL tasks based on OE- WFF analysis.

Once the OE has been determined, then further decisions and development can be made on the scenario. These include common processes and key events for the desired scenario.

Common Processes

An integral part of the scenario is the everyday activity that brings the scenario to life, making it a realistic training environment that forces the training unit to react and think through the ramifications of its actions. In order to understand this OE that appears so complicated, the exercise planner utilizes a method of preplanned events that are common to all exercise OEs. Examples would be delivery of basic services, conduct of manufacturing and agricultural activities, and transportation. The key to replicating the OE is resources. The level of fidelity and number of variables and subvariables replicated will be determined by factors such as the experience level of the unit, the type of training exercise, and the number of personnel available to role-play as members of an environment. Variables and their associated subvariables make the OE into an ever-changing and evolving situation that gives the training unit indications of upcoming and possible key events and reacts to actions the training unit takes or fails to take.

Key Events

Key events are preprogrammed events designed to highlight chosen training objectives. Early in the initial planning phase when the prioritized training objectives are developed, the senior trainer and exercise director usually determine if there will be key events and what their content will be. Key events found in exercises can involve things such as riots, mass casualties, and missing Soldiers.

To make the exercise more realistic and challenging, the exercise planner should consider key events more in terms of their relationship to the overall scenario, their training value, and their application across all PMESII-PT variables. Key events should also be precipitated by the buildup of indicators or situations that lead up to a key event. How the training unit responds to these indicators and events will determine the follow-on development of second-, third-, and even fourth-order effects. The training unit’s reactions should be mapped out ahead of time and future events anticipated for scripting or role-playing instructions. The results can then be used as part of after action-reviews to show the training unit why something happened and what could have been done differently.

An example of key event development could involve an insurgency. In this example, the insurgency is part of training scenario and the unit’s training objective of conducting stability operations. In this illustration, the exercise OE indicates an active insurgency in the vicinity of an important industrial city. This city also has an active black market and criminal activity. The planned key event would be the arrest of a suspected insurgent as the result of a raid on a meeting between leaders of this insurgency. Subsequent interrogations reveal that the person arrested is also the mayor of this city, a factory owner, and a tribal elder. How the training unit responds to this information will determine what and how the follow-on effects will play out. If the unit determines that he was only a sympathizer attending the meeting to placate the insurgency leaders, then the impacts of this arrest will be minimal. However, if the unit determines that he is lying and keeps him in detention without clear disposition, then the exercise director may cause a cascading of negative effects to develop. These effects may take place simultaneously and impact various PMESII-PT variables of this OE. Negative effects in this city may include: attitudes toward the U.S. forces, reduced local government effectiveness, factory shutdown, government strikes, demonstrations, riots, and increased criminal activity. These effects have already been predetermined and planned out to occur at certain times during the exercise unless the training unit takes actions to prevent or mitigate these effects. The sequence and level of resolution will most likely be based on the allocated time for the exercise and the unit’s level of experience.

Products

FM 7-0 states: “The Army trains and educates its members to develop agile leaders and organizations able to operate successfully in any operational environment.” In order to achieve this goal, all leaders and trainers must understand not only what an OE is but its impact on the mission and training as well. Using all the eight PMESII-PT variables and the OE-WFF analysis provides analytical tools that help ensure comprehensive training objectives have been developed for the exercise. The resulting products from these tools are a defined OE as well as refined training objectives and task organization.

Section IV - Phase 4: Orders, Plans, and Instruction Development

Orders, plans, and instruction development refers to all the materials and products issued by the exercise director and his staff to the training unit. Normally this includes operation orders, operation plans (OPLANs), overlays, warning orders (WARNOs), fragmentary orders (FRAGOs), country studies, intelligence estimates, and adjacent unit orders—in short, all documents required for the training unit to exercise its staff and Soldiers during the exercise. Issue times for these orders vary, and the exercise planner should develop an orders issue schedule affording adequate lead times for training units to prepare and issue their orders. This schedule, as well as the documents themselves prior to their issue, may require changes and updates and should be reviewed and updated throughout the exercise.

There are three sets of orders and instructions derived from the exercise design process: training unit orders, OPFOR orders, and role-player instructions. These three sets of orders, while they may be developed separately, must be thoroughly coordinated before and during development. The exercise planner develops the orders, plans and instructions, which include the training unit’s and OPFOR COAs, OPFOR OB, and the road to war.

Tools

Tools necessary for orders, plans, and instruction development are the results of phases 1 through 3 and the TC 7-100 series. Now that the OE is defined, the exercise planner can develop or refine the OPFOR OB to meet the requirements of the defined OE and then develop the training unit’s higher headquarters order with COAs and finally the road to war.

As discussed earlier, the development of the OPFOR OB may have already occurred as part of phase 2 or phase 3, if the OE and OPFOR are already determined and at sufficient resolution for the training exercise requirements. If this is the case, then these tools, as well as others previously covered, would be used to develop OPFOR orders.

If the OPFOR OB has not been developed, then that process and OPFOR task-organizing would have to be completed during this phase since it is vital prerequisite data necessary for the production of OPFOR orders. For details on the development of OPFOR OB see phase 2, task and countertask development.

At this point, assuming OPFOR OB already exists, the exercise planner has established a number of the key conditions that allow him to begin positioning the training unit and OPFOR in tentative positions for start of exercise (STARTEX). He has determined how the exercise will flow, the order of the missions, and OB for both the training unit and OPFOR. The exercise planner should position OPFOR units in a way that provides sufficient combat power and types of forces to rigorously oppose the training unit and its performance of the training tasks. The exercise planner should organize the battlefield that—

Provides nonlinear conditions.
Reflects current Army and OPFOR doctrine.
Is appropriate to the training unit troop list, training status, and AO.
Matches the PMESII-PT variables and subvariable settings.

The exercise planner should then organize an OPFOR force that—

Can accomplish all countertasks.
Reflects TC 7-100-series OPFOR doctrine, organization, and equipment tier structure.
Is appropriate to the training unit troop list and AO.
Matches the appropriate PMESII-PT subvariable settings for Military.

During this phase, the training unit’s higher headquarters COA is determined. The training unit’s higher headquarters COA is determined largely by tools discussed earlier, such as the prioritized training objectives of unit to be trained. However, both the training unit and OPFOR COAs will affect and be affected by conditions (operational variables) pertinent to the exercise. In all cases, the exercise planner tries to find the best fit of conditions and parameters to support the scenario and training objectives. (For details on COA development, see FM 5-0.)

Key Decisions

The final planning conference (also known as the STARTEX conference) between the exercise planner, exercise control (EXCON), OPFOR commander, senior trainer, and the exercise director is normally conducted during this phase in order to ensure all exercise details have been completed. The final planning conference or STARTEX conference locks in all troop lists, training objectives, and exercise conditions. This includes approval/disapproval by the exercise director of training unit requests for equipment and troop list exceptions outside of their normal TOE and task organization.

Approximately 30 days prior to STARTEX, the exercise planner prepares and presents the last pre- exercise briefing to the exercise director and all pertinent staff. Since this is designed as an information briefing, no decisions, except for unresolved issues, are expected from the exercise director. This briefing normally covers all aspects of the exercise and ensures deconfliction of any last-minute issues. It also promotes complete understanding of the exercise by those who are normally not part of the planning process. Topics covered in this briefing may include but are not limited to—

Finalized troop list.
Approved/disapproved equipment and troop list exceptions.
Observer-controller augmentation (when required).
Key leaders.
Resolved and unresolved issues.
Close air support/airlift units and sorties (if applicable).
Detailed exercise timeline.
Training unit missions and dispositions.
OPFOR missions and dispositions.
Chronology of major key events.
CBRN events (if applicable).
C-Day, M-Day, and D-Day.

Products

To promote realism in training and to provide as much information as possible to the training unit prior to the exercise, the exercise director may direct the development and issuance of appropriate country studies, WARNOs, intelligence summaries, role-player instructions, and higher unit OPLANs. Training units may use these documents in developing preparatory home-station training prior to the actual exercise.

To this point, within the sequence of events, the exercise planner has compiled and developed all required information derived from his analysis of tools, key decisions, and products of the previous three phases. He has established and defined the key conditions for the OE and the exercise. He has also developed and analyzed COAs for both the training unit and OPFOR. The exercise planner is now prepared to expand the above-listed information into the orders and plans necessary to support the exercise.

Higher Unit Orders and Plans

The number and detail of completeness of the orders and plans must be sufficient to meet all exercise requirements for the unit to be trained. Figure 2-4 is a list of typically required training-unit-associated orders and plans based on the level and fidelity of the exercise.

Figure 2-4. Example of required orders and plans

OPFOR Orders and Plans

The OPFOR also uses plans and orders. OPFOR orders give specific guidance for exercise play and rules of engagement. Similar to the regular five-paragraph order format as described in FM 5-0, they may include special instructions for scripted events, as in the case of MRXs. Length, format, and detail will vary depending on the type of exercise, training area, and OPFOR organization. OPFOR orders and plans require careful husbanding by EXCON and the exercise director to ensure maintenance of control measures, rules of engagement, and force ratios in support of the exercise training requirements. Larger exercises require continuous exercise director review and modification to ensure fairness and proper observer- controller evaluation of the training unit.

OPFOR orders should, at a minimum, include—

A description of the OE to include subvariable settings.
A discussion of the scenario, a scenario timeline, areas to be occupied (who, what, where, when, and duration).
Current higher-headquarters and strategic situation (OPFOR/training unit) and road to war.
Task organization.
Concept of operations to include coordinating instructions.
Administrative notes.
Events calendar/timetable.
Rules of engagement (may be time- and unit-specific).
Overlays and maps (for example, maneuver, fires, obstacle, reconnaissance and surveillance).
Scripted events and coordination instructions when required (for example, MRXs, role-play interaction).

Role-Player Instructions

Other written instructions that are important to develop during this phase are role-player instructions. Most exercise venues, including simulations, require interaction between the training unit and noncombatants. Role-player instructions create behavior profiles and events for individuals and groups within the role-player population. They also schedule specific events or incidents, which require close coordination between OPFOR, role-players, and EXCON.

Increasingly, training in civil affairs operations, the handling of news media, interaction with civilians (such as displaced persons, refugees and local inhabitants), as well as nongovernmental organizations (NGOs) has made the PMESII-PT Social and Political variables of primary concern to the exercise planner. The proliferation of transnational groups, criminal organizations, and international partnerships with U.S. and foreign companies has made OEs increasingly complex. Significant resources and coordination are required, depending on the exercise scenario, to script and execute desired incidents and events during exercises. Creative and tactically focused role-playing depicts the OE as a whole. Role-playing places training units in situations out of their comfort zone and forces them to make difficult decisions. It is a cornerstone of valuable training in today’s training environments. Role-player instruction development, therefore, is a challenge for all exercise planners. For a detailed guide on the use of role-players in training, refer to the Contemporary Operational Environment (COE) Actors & Role-Players Handbook. It can be accessed on the TRISA-CTID website at https://www.us.army.mil/suite/files/14712167 (requires AKO password).

The COE Actors & Role-Players Handbook outlines a methodology for the orientation and training of role-players in COE-based education and training exercises. Each of the chapters contains specific information designed to assist exercise planners, exercise directors, and role-players in developing a realistic and challenging OE. The chapters include the following:

Introduction to the COE.
Role-player terminology.
Individual and collective training considerations.
Tools for trainers.
Material and outfitting for the role-player.
Media affairs and the role-player.
Training program concept.

Figure 2-5 shows an example of the types of role-players described in the handbook.

Figure 2-5. Types of role players

In order to support all training objectives and, ultimately, mission accomplishment, trainers must discuss key aspects of the OE for the exercise with role-players. By doing this, trainers ensure that role- players understand their functions and how they will provide the environment that enables the unit to meet its training objectives. Role-play instructions should include at a minimum the following information about the training unit:

METL.
Training objectives.
Combined arms training strategy (CATS).
Individual tasks and collective tasks.
Battle tasks.
Warrior tasks.

According to the COE Actors & Role Players Handbook, the exercise planner, trainers, and role- players must analyze all aspects of the scenario to ensure scenario fidelity. Role-players must be familiar with the—

PMESII-PT variables and the training unit’s desired subvariable settings.
Training objectives.
Role-player dynamics.
Factors affecting the scenario.
Scenario end state.

A comprehensive list of role-player instructions is contained in the role-players handbook. Typical role-player instructions will—

Force the training unit to interact with local officials and law enforcement.
Cause situations that will test or force modification of the training unit’s rules of engagement.
Create situations that could cause possible violations of the rules of engagement and force the training unit to initiate investigations of alleged violations (AR 15-6).
Stress the training unit’s capabilities to deal with external organizations.
Force the training unit’s commander to deal with complaints regarding alleged injuries or deaths to civilians, destruction of civilian property, and failure to support NGO operations.
Coordinate OPFOR interaction with civilians to cause unrest and depict the training unit as the enemy.
Create an OE that forces the training unit to consider and plan for interaction with multiple external organizations.
Introduce a number of third-party actors into exercise play.

Road to War

The last step in the exercise design process is to develop the road to war. The road to war is not necessarily a formal document but describes chronologically the incidents and the events leading up to the current situation as well as the training unit and OPFOR disposition. The road to war should be consistent with the subvariable settings selected for the OE variables. The road to war at a minimum should include the following:

Explain the deployment and disposition of the training unit at STARTEX.
Identify C-Day, M-Day, and D-Day.
Explain OPFOR organization of the battlefield, organization of forces, and dispositions.
Reflect OPFOR doctrine in the TC 7-100 series (except for MRXs).
Provide reasoning for execution of training objectives and subtasks.

Section V - Summary

The planning events discussed in this chapter represent a practical approach to developing and executing training exercises. The events discussed provide context to exercise design and scenario development. Still, exact events and timings will be prescribed by each training organization, such as MCTC or Battle Command Training Program (BCTP).

Exercise design is an integrated process involving the determination of exercise parameters (phase 1, initial planning), development of training tasks (phase 2, task and countertask development), design of exercise conditions (phase 3, PMESII-PT OE development), and orders production (phase 4, orders, plans, and instruction development). These four phases meld the basic exercise design steps with the eight operational variables of PMESII-PT and their subvariable settings. This process, while extensive, ensures exercise continuity and compliance with the COE concept and OPFOR doctrine in the TC 7-100 series. A com- posite checklist with exercise development tasks and critical planning events can be found in appendix A.

Chapter 2: Exercise Design Sequence

Contents

Section I - Phase 1: Initial Planning

Tools

Key Decisions

Time Parameters

Type of Exercise

Operational Theme

Operational Environment Assessment

Products

Section II - Phase 2: Task and Countertask Development

Who

Tools

Key Decisions

OPFOR Countertasks

OPFOR OB And Task Organization

OPFOR Tier Levels

Products

Section III - Phase 3: PMESII-PT Operational Environment Development

Tools

Operational Variables (PMESII-PT)

PMESII-PT Subvariables

Operational Environment Assessment

Order of Consideration

Training Enablers

Operational Themes

Actual, Modified, or Composite OE

Actual OE

Modified OE

Composite OE

Key Decisions

Subvariable Selection Example

OE-WEF Analysis

Common Processes

Key Events

Products

Section IV - Phase 4: Orders, Plans, and Instruction Development

Tools

Key Decisions

Products

Higher Unit Orders and Plans

OPFOR Orders and Plans

Role-Player Instructions

Road to War

Section V - Summary