Chapter 2: Exercise Design Sequence

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 uncer- tainty 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 ar- rives 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 train- ing unit will have more opportunities to influence their environments. The exercise planner will be plan- ning 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. Be- cause 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 Operational Themeits 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 under- standing 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 mis- sion. 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 set- tings (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.

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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.

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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).

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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.

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Key Decisions

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

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Note. In some cases, the exercise planner may be able to proceed from OPFOR countertasks di- rectly 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.

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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).

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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.

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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 deter- mined 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 ter- rain, 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 oper- ate 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 or- ganization remains only loosely affiliated with the BTG, rather than subordinate to it.

At this point, exercise planners review the OPFOR administrative force structure (AFS) organiza- tional 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).

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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.

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From the AFS menu, exercise planners can compile an initial listing of OPFOR units for the task or- ganization (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 organ- izations 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. There- fore, 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 organi- zational directories is not appropriate for a specific scenario, exercise planners may substitute another sys- tem 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.

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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.

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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.