Chapter IX: The Supervision of the Planned Action

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(The Fourth Step)

The discussion in Chapter IX invites attention to the special
considerations which influence the supervision of the planned
action. The Running Estimate, which employs the procedure
typical of the fourth step, is described in detail.

Nature of Discussion. As explained previously (Foreword, page 4), the vast and important subject of the execution of the plan is treated herein, as to details, chiefly from the standpoint of the mental effort.

After the commander has issued a directive placing a plan in effect, it is his responsibility to supervise the execution of the planned action. Through the collection, analysis, evaluation, and interpretation of new information (page 161), he will be able to maintain a grasp of present progress and of future possibilities. He will correct deficiencies and errors in the plan and in its execution. He will guide the direction of effort toward the attainment of the objective. He will ensure that his forces conform their movement in correct relation to the physical objectives and to each other. He will reapportion strength to meet new conditions, through comparison of his accrued losses with respect to those he has anticipated. He will take appropriate measures for freedom of action.

If a new plan is needed, the commander will evolve one and adopt it. If the old plan requires changes as to its larger aspects, he will make such changes. Otherwise, he will modify details of his plan as the situation may demand, always, however, endeavoring to retain the integrity of the larger aspects. He will issue additional directives as may be required from time to time.

Goal of Planning. The function of planning (Part II, preceding) is to afford a proper basis for effective execution. Effective action, therefore, is the goal of planning.

Otherwise, planning is aimless, except as a mental exercise. Such mental exercise, though it be with no thought of specific application in the realm of action, has nevertheless the same fundamental aim as if the planning were so intended. The aim of such mental exercise is the inculcation of habits of thought which will provide a sound basis for effective action.

Importance of Execution. Sound planning is, as explained in previous chapters, the best basis for consistently effective action. Yet, important as planning is, the effective outcome of plans depends upon their execution.

While an unsound plan affords no firm basis for successful action, recognition has long been accorded to the companion fact that a perfect plan, poorly executed, may not provide as firm a foundation for success as a reasonably good plan, carried out with resolution.

No plan, moreover, can be confidently expected to anticipate all eventualities. Notwithstanding every effort to foresee all possibilities, unexpected changes are to be regarded as normal. This fact emphasizes the importance of effective supervision of the planned action.

The importance of such supervision reaches its maximum during actual hostilities; then (page 4) the necessity for alert supervision creates an accentuated demand for the intelligent application of mental power to the solution of military problems. Professional judgment then assumes supreme importance because vital issues may hinge upon the decisions reached during the development of the action.

Conditions in War. Standards of performance in peacetime exercises cannot be a conclusive guide as to what may be expected under the conditions of war. In the conduct of hostilities against a strong and determined enemy, men and materiel do not always function at their best. Commanders undergo extreme strains. Orders are often misinterpreted or go astray. Men, and the machines which they operate, frequently give less effective service than under the conditions of peace.

In war, mistakes are normal; errors are usual; information is seldom complete, often inaccurate, and frequently misleading. Success is won, not by personnel and materiel in prime condition, but by the debris of an organization worn by the strain of campaign and shaken by the shock of battle. The objective is attained, in war, under conditions which often impose extreme disadvantages. It is in the light of these facts that the commander expects to shape his course during the supervision of the planned action.

The Incentive. During the supervision of the action, problems calling for decision may derive their incentive, as already noted (page 79) either from a directive issued by superior authority, or by reason of a Decision which the commander himself has already made, or because of a recognition, by the commander concerned, of an incentive originating from the demands of the situation.

In the event that the incentive appears in the form of a new task assigned by a higher echelon, the commander's problem may become, relatively, simple. In such a case he is relieved of the necessity of recognizing for himself that the time is ripe for a new decision. This fact, however, in no wise alters his fundamental responsibility for taking action, or for abstaining therefrom, in accordance with the actual demands of the situation (page 15) in the event that the assigned task requires modification or alteration, or, further, in the event that circumstances even call for a departure from his instructions. Should modification, alteration, or departure be in order, the commander is responsible for recognition of the fact that the demands of the situation have introduced further problems.

Such recognition, therefore, irrespective of whether higher authority has issued instructions covering the new situation, constitutes an incentive to take action. No commander is justified in taking wrong action, or in taking none, merely because no instructions have been received. The ability to recognize the fact that the situation presents a new problem is therefore a primary qualification for command.

Recognition of New Problems. The supervision of the planned action, as the fourth step (see Chapter V) of the exercise of mental effort in the solution of military problems, therefore constitutes in itself a problem, in that it involves fundamentally the ability to recognize the existence of new situations which present new problems for solution. To recognize such new problems requires a constant, close observation of the unfolding of the original situation.

Only an alert commander can invariably determine whether the situation is unfolding along the lines which he desires and as promulgated in the directives formulated in the third step (see Chapter V and Chapter VIII). In effect, the commander, after action has begun, considers the changing situation as a variable in the problem presented by the original situation. With the march of events he is, therefore, constantly critical to detect whether variations in the original situation are in accordance with his design or whether these variations demand a departure from his plan.

Nature of Readjustments Required. If variations in the original situation are in accordance with his design, the commander has the assurance that all goes well, and that the unfolding of the situation is following his intent. However, if this is not the case, changed circumstances may demand recognition of the fact that a new problem has presented itself. In this event a new incentive, arising from the demands of the situation, calls for the solution of the new problem by the procedure distinctive of the first step (Chapter VI).

Should directives of higher authority introduce a new incentive, the commander solves such a new problem, also, by employing the procedure distinctive of the first step.

On the other hand, the commander may find that the changed situation motivates merely a modification of his previously determined operations and of his directives already in force. In other words, while his basic problem (Chapters V and VI) may remain the same, need may arise for certain deviations from the decisions arrived at in the first and second steps of its solution. Should this be the case, each such problem will require solution by a return to the procedures described (Chapter VII) with reference to the second step.

In the event of a demonstrated need, not for any change of plan, but for a clarification of directives, the procedure involved is that distinctive of the third step (Chapter VIII).

The commander may not safely view the succession of events with complacency, even though the situation appears to be unfolding according to plan. Perhaps the enemy may be purposely lessening his opposition, in order to prepare for the launching of an offensive elsewhere. As the situation unfolds, everything is viewed with intelligent suspicion.

It is also possible that, during the progress of an operation, an unforeseen opportunity may present itself to take advantage of a new situation and to strike the enemy a more serious blow than that originally intended.

Unwise caution is to be avoided no less than undue temerity. Where a change appears, after proper consideration, to be indicated, no hesitancy is justified in abandoning the original plan. Blind adherence to plan is to be condemned no less than unwarranted departures from predetermined procedure. Obstinate insistence on the use of a certain method, to the exclusion of others calculated to attain the same effect, may jeopardize the success of the effort. Undue emphasis on the particular means to be used, and on the manner of their employment, may exact a penalty by obscuring the objective.

On the other hand, undesirable departures from plan involve a corresponding penalty, because changes, unless duly justified by the situation, increase the possibility of failure. Frequency of such changes, to the point of vacillation, is a sure indication of a lack of aptitude for the exercise of command.

Importance of the Will of the Commander. It is accordingly clear that qualification for the exercise of command requires the mental capacity to recognize the need for changes in plan, or for no change. No less essential, however, are the moral qualities required to carry justified changes into effect, or to resist the pressure of events in favor of changes not justified by the situation. (See also pages 8, 9, and 72.)

Hence the universal importance accorded, by the profession of arms, to the will of the commander. This is the quality which, together with the mental ability to understand what is needed, enables the commander to bend events in conformity with his plan (page 47), or, where such shaping of circumstances is infeasible, to ensure for his command every possible advantage which can be obtained.

A recognized defect of certain forms of theoretical problems lies in the fact that they indicate, themselves, the time when a Decision is needed. In other words, they fail to vest the commander with responsibility for the decision that the time has come for a Decision to be made. Hence the great importance, from the viewpoint of timing, of those problems and exercises which partake more fully of the reality of war. The successful conduct of war, notwithstanding its demand for utmost mental power, is founded predominantly on those moral qualities (see pages 9 and 72) which spring less from the intellect than from the will.

Problems Involving Modifications of the Basic Plan

Relatively minor deviations from decisions reached during the first and second steps of the solution of a military problem are frequently required during the action phase, because of incentives arising from the demands of the situation. Such requirements will not occasion serious dislocation in the predetermined effort of the competent commander.

However, more momentous situations are also to be expected. These will present new problems for the commander to solve. Such new problems, so long as they do not challenge the integrity of the basic plan, will not prevent the competent commander from proceeding with his predetermined effort if he takes appropriate action in due time to control the unfolding situation. To maintain such control may call for the exercise of outstanding qualities of the mind and of the will.

For example, it is assumed that the commander's basic Decision was to destroy an enemy convoy, the purpose of the Decision being to prevent the convoy from reaching its destination. Now, it is supposed that, during the supervision of the action planned for the destruction of the enemy convoy, the commander receives information of a hostile reinforcement. It is further supposed that this reinforcement, if it joins the enemy convoy's escort, can jeopardize the success of the basic plan.

The commander is now confronted with a serious situation which, if not controlled by action of the right kind, at the right time, and at the right place, may result in shattering his basic plan. However, if the commander takes action along correct lines in due time, he can still preserve the integrity of his basic plan and so continue to control the shaping of the situation.

Having re-examined his solution of his basic problem and found it sound, the commander finds himself under the necessity of resolving a perplexity as to what to do about the enemy reinforcement. In this case, he concludes that his proper action is to prevent the enemy reinforcement from protecting the convoy. This task, self-assigned because of the demands of the situation, becomes the basis for the mission of his new problem, the mission being:--

(Task) To prevent the enemy reinforcements from protecting the
convoy,

(Purpose) in order to contribute to the eventual destruction
of the convoy.

The commander now considers the various courses of action open to him for the accomplishment of this mission. He also considers the enemy courses of action. He then considers each of the former in relation to each of the latter. He compares, on this basis, each of his retained courses of action with the others and so selects the best course of action. Finally, he arrives, in this manner, by the same process as in a basic problem (Chapter VI), at a decision as to the best course of action. Should this decision be to sink the enemy reinforcement, its statement linked to its purpose, would be:--

To destroy the enemy reinforcement, in order to prevent it
from protecting the convoy.

Problems Challenging the Integrity of the Basic Plan

During the planned action, a change in the situation may have the effect of challenging the integrity of the basic plan. The commander is then faced by a problem calling for the exercise of the highest order of ability. While problems of this type probably occur with least frequency, they are the most important of those which may be encountered during the fourth step.

Because such a problem, arising from the demands of a new situation, requires a re-estimate of the basic situation, the essential procedure is the same as for a basic problem (Chapter VI), but certain modifications necessarily appear.

Summary of the Situation. While a commander will rarely find himself operating without instructions, the importance of problems arising when no directive applies is not lessened by the fact that such problems may infrequently occur. When the commander is faced with a situation not covered in orders of his superior, action may be necessary before he can inform higher authority and receive instructions. Usually this situation will be an emergency. Often it will not allow time for a written estimate. The fact that such a situation has arisen, and the reasons causing the commander to conclude that it has arisen, are appropriately included in Section I-A of the Estimate, under the "Summary of the Situation".

Recognition of the Incentive. The conclusion on the part of the commander that the situation requires him to make provision for its maintenance, or for a change, which in either case calls for a departure from his basic Decision, constitutes a recognition of his new incentive.

Appreciation of the Objective. Frequently the new incentive will indicate that the objective embodied in the commander's present task is no longer suitable, but that the purpose of his mission still applies. By modifying the objective indicated in his assigned task, but adhering to that in the purpose of his mission, he may be able to visualize a new objective which will be appropriate to the new circumstances. In this case the retained purpose assists the commander to select a new objective which he can confidently adopt as the basis for a new task which he assigns to himself.

If neither the commander's task nor the purpose of his mission apply in the new situation, the evolution of a proper new objective may be much more difficult. Under such circumstances the commander, by the use of such information as may be in his possession, will first endeavor to deduce an objective whose attainment constitutes a suitable purpose. Such a deduction will be made on the basis of the larger circumstances of the war, the campaign, or the operation. Having made this determination, the commander will then deduce a task appropriate to the new situation and in furtherance of the adopted purpose. (See Chapter IV, page 52.)

Formulation of the New Mission. An appropriate new task having been determined, as well as a proper purpose, the commander is now in a position to formulate his mission. The procedure to this end is the same as described (Chapter VI) with respect to the estimate of a basic problem.

Other Items of the Estimate. For such problems of the fourth step, other items of the Estimate Form require no essential modification of the procedures described (Chapter VI) as applicable for the first step.

The Further Procedure Applicable to Such Problems of The Fourth Step

After the commander has reached his new decision, the further course of events may call for the resolution of the required new action into detailed operations and for the inauguration of a new planned effort. In such case, these procedures are accomplished through processes essentially similar to, and fortified by the experience gained in, those distinctive of the second and third steps. (Chapters VII and VIII, respectively).

The new planned effort having been inaugurated, its supervision continues, in turn, through the critical observation and the appropriate action described herein as distinctive of the fourth step.

The Running Estimate of the Situation

The procedure employed in the constant, close observation of the unfolding of the situation--to the end that justified changes of plan may be initiated, while those uncalled-for may be avoided--is known as the "Running Estimate of the Situation". Such an estimate, as indicated by its name, is intended to keep pace with the flow of events, so that the commander may be assured, at any time, that his concurrent action will be based on sound decision. To this end, there is a definite technique for which the standard Estimate Form provides the basis. This technique is an aid for solution of the problem involved in the supervision of the planned action.

Aim of the Technique Involved. Any procedure adopted to this end is properly intended to assist in the supervision of the planned action, but not to restrict the commander to particular methods. Flexibility is a prime consideration. The ultimate aim of the technique is (see also page 114) the rapid and successful exercise of mental effort in the fast-moving events of the tactical engagement. It is under such conditions, more especially, that effective supervision of the planned action becomes a problem calling for every facility that can be afforded the commander.

Nature of the Technique. The solution of this problem requires mentally or in writing according to the particular case, (a) the assembly of information as to events bearing on the situation, and (b) the organization of this knowledge in a manner permitting its ready use. Accordingly, it will be found helpful, where circumstances permit written records to be kept, to provide for (a) a journal (a form of diary) of events, with a file to support it, and (b) a work sheet to organize applicable information in proper form for use. The journal affords a basis for the work sheet. The latter in turn facilitates the procedure, continuous while the action lasts, of estimating the situation so that a Decision maybe rendered at any time desired.

Where written records are unnecessary or impracticable, the same fundamental process is nevertheless employed. The fact that the process is then wholly mental, without extraneous aids, involves no change in the basic character of the essential procedure.

Journal. The journal, to serve the purpose indicated above, is kept in a form permitting entry of essential data as to information needed for the Running Estimate. Such data may include (see the suggested Form, next page) the appropriate heading of the journal, the entries applicable to each item of pertinent information, and the authentication with which the journal, for any chosen period, is closed.

* * * * *

JOURNAL

(Organization, staff subdivision, etc.)

From: .................................................
(date and hour)

To: ...................................................
(date and hour)

Place: ................................................

The heading of the journal is completed by inserting the designation of the organization and, where appropriate, the staff subdivision concerned, as well as the date and hour of beginning and closing the journal, and the place (or general area) where the commander is located.

Each entry includes, where appropriate, a time notation: for example, as to the occurrence of an incident; the receipt (TOR) or despatch (TOD) of a message; the receipt or issue of an order. The serial number assigned to the entry is recorded. The "time dated" is the date and hour of the incident, or, in the case of the message or order, the date and hour appearing thereon.

Entry of the nature of incidents or of the content of messages and orders, etc., is made under the heading "Incidents, Messages, Orders, etc."; for example:

As to an incident:

Enemy bombed light forces in screen from northward.

As to a message:

Our troops held up on Beach A since 0500 this date.

In the case of a message or order, the source and the action addressee(s) are recorded in the columns marked "From" and "To (action)" respectively. The content of the despatch or order then follows. The amount of detail to be included depends upon the needs of the work sheet (see below) in its capacity as a basis for the running estimate of the situation. Further details can be ascertained, if needed, by reference to the journal file.

The action taken ("None" entered, if none is taken) is indicated briefly under that heading. In the case of the above entry as to the enemy bombing light forces, the "action taken" might, for example read:

Prepared for torpedo attack.

A single journal may be maintained for the commander concerned; or, if so desired, separate journals may be kept, for their respective purposes, by the several principal officers of his staff.

The journal itself and its use are readily adaptable to informal methods of preparation and maintenance. The Journal Form may be prepared hastily, as needed or desired. Where appropriate, the Journal Form may be made up in quantity by printing, multigraphing, or other practicable methods.

Journal File. The file to support the journal is merely an assembly of the records (messages, records of oral orders, and the like) from which the journal is compiled. Each item of the file bears a serial number corresponding to that of its entry in the journal. An ordinary spike-file is frequently adequate for safe-keeping of these records while in use. When the journal is closed, the corresponding journal-file is filed with the journal, in accordance with standing instructions or in compliance with any particular disposition directed by the commander concerned or by higher authority.

Work Sheet. The usual form of the work sheet follows the form of the estimate of the situation. A single work sheet may be kept for the commander concerned, or, if so desired, separate work sheets may be maintained, for their respective purposes, by the several principal subdivisions of his staff. If a single work sheet is maintained, entries by the several staff subdivisions may be facilitated by dividing the work sheet among them, provided that the entire document can always be promptly assembled for use as needed.

The work sheet, while an important official document, is ordinarily informal in nature. The various headings, items, or titles (other than the main heading) are merely copied, ordinarily, from the usual Estimate Form. An example of a work sheet is as follows (see next page):

WORK SHEET (For Running Estimate of the Situation)

........................................
(Organization, staff subdivision, etc.)

From: ..................................
(Date and hour)

To: ....................................
(Date and hour, if pertinent)

Place: .................................

I. Establishment of the Basis for Solution of the Problem.

A. The Appropriate Effect Desired.

(1) Summary of the Situation.
(Note: No other heading would be entered on the first page.)

* * *

(2) Recognition of the Incentive.
(Note: No other heading would be entered on the (initial)
(second) page.)

* * *

(3) Appreciation of the Assigned Objective.
(Note: No other heading would be entered on the (initial)
(third) page.)

(4) Formulation of the Mission.
(Note: No other heading would be entered on the (initial)
(fourth) page.)

* * *

B. (Note: This and subsequent headings are entered in the manner
indicated as to Section I-A, above.)

The remaining necessary headings and subheadings of the Estimate Form would be entered similarly, in due order, on succeeding pages.

The use of a voluminous work-sheet is facilitated by entering item headings in a narrow column at the left, and by cutting away unused space below the several headings in such column, so that all the headings (or the more important ones) can be seen at a glance. A person using the work-sheet can then readily find any page desired.

The main heading (top, first page) is filled out in the same manner as for the journal.

The other headings, for subdivisions of the work sheet, are ordinarily transcribed from the usual Estimate Form, according to the needs for the purpose of the particular work sheet. Such needs will vary with circumstances. As has also been noted, the Estimate Form, itself (Chapter VI), varies with the situation. For these reasons, the work-sheet form is necessarily flexible, and will rarely be prescribed in detail. Reproduction by printing, etc., will not be so frequent as in the case of more rigid forms. The work sheet is authenticated only if it is filed (see below), or if authentication is desired for other reasons. The work sheet is, in fact, as indicated by its name, merely a vehicle to facilitate the performance of important mental work.

When the work sheet has served its purpose, it is usually destroyed. It is not, ordinarily, a permanent record, since such purpose is served by the journal and its file. When a formal Estimate is made up from the work sheet, such Estimate may serve the purpose of an additional record. If no formal Estimate is made up for a given period and the commander desires the corresponding work sheet to be preserved for record, he may so direct.

Ordinarily, the work sheet is not destroyed or filed (and a new one started) at any specified time. The work sheet is kept current by marking out old entries no longer applicable; by inserting new entries; and by inserting fresh pages when old ones have been filled. The old pages, unless otherwise desired, may be destroyed.

A separate page of the work sheet is ordinarily used for each item under which entries are to be made. This procedure applies not only to principal headings, but also to subordinate titles, according to the convenience of the user.

The procedure of devoting a separate page, initially, to each item of the form enables additional pages to be inserted, where needed. Manifestly, the amount of space needed for particular items of the form cannot always be foreseen. The entries, for example, under the "Summary of the Situation", in Section I-A of the Estimate Form, may require little space or a great deal, depending upon the occurrence of events and upon the period of time covered by the particular work sheet. The same considerations are applicable as to other items.

When a work sheet is used as the basis for rendering special reports (e.g., as to intelligence or operations), its form follows that used for such reports. It is, therefore, in essence, merely an outline-form, for entry of applicable data.

Procedure as to Entries. When a report, a plan, a dispatch, or other pertinent item is received, its applicable content may first be entered on the chart (or charts) maintained by the commander (or by his staff). Thereafter the usual procedure would be an entry in the journal, followed by a corresponding entry in the work sheet. The document so received and recorded would then be placed in the journal file. This procedure is subject to proper variation, as desired. Immediate entry of data on the chart enables the commander and staff to study the implications of the item, without waiting for completion of routine clerical work.

Outgoing messages, instructions, etc., after approval or signature by the commander, are handled by a similar routine. Where applicable, such routine involves appropriate entry on the chart, in the journal, and in the work sheet. The routine of entry is preferably based on a copy (or copies), in order to avoid delay in dispatch.

Staff Organization and Functioning. The commander may desire important documents to be handed to him at once, on receipt. He may, of course, call for them at any time. He naturally will not, however, permit any unnecessary delay to occur in the usual routine disposition of such items. The routine exists to assist him, and its arbitrary disruption, if he has properly defined the essential routine in the first instance, cannot but work to his disadvantage.

Few things are more disturbing to the functioning of a staff than undue eccentricity on the part of the commander or of senior members of the staff. For instance, a personal habit to be rigorously suppressed--a habit not infrequently in evidence, especially under strain of active operations--is that of absent-mindedly pocketing documents needed in the work under way. This subject might, but for limitations of space, be illustrated by numerous other examples whose homely character may not safely be permitted to detract from their considered importance to unity of effort.

Where circumstances permit, it is desirable that incoming and outgoing items be reproduced in quantity sufficient to supply separate copies for the commander and for the several interested members of his staff.

A competent staff brings to the commander's attention all the items necessary--but only those necessary--for his proper performance of his duties. Inordinate attention by the commander to unnecessary detail cannot but tend to distract his attention from his proper duties.

The importance of smooth and effective functioning of a staff emphasizes the need for an established, though flexible, procedure. Such procedure, if reasonably standardized, facilitates unity of action, not only within staffs, but also among the several commanders, and their staffs, throughout the chain of command.

The same fundamentals apply as to staff organization. If proper functioning of staffs is generally understood, and if staffs are correctly organized to perform their functions, the basis for their sound organization will become a matter of general understanding. Such organization, so understood, becomes a powerful influence in behalf of unity of effort.

Staff functions--i.e., characteristic activities of staffs--divide fundamentally into two classifications. These may be referred to, for convenience of terminology, as "general" and "special".

The latter have to do with the characteristic operations of the command, rather than of the commander; they therefore relate to such matters as routine administration and to the technical aspects of movement, of the use of weapons, and of supply, sanitation, and hospitalization. The administrative, technical, and supply staff, thus broadly considered, may be said to be concerned with special functions relating to the operations of the command.

By contrast, the functions of the commander, as such, have to do with the necessary supervision of these special functions and, more especially, with the important duty of planning for the future employment of the command. The supervisory and planning activities may, for purposes of differentiation from the specialties noted above, be properly described as general functions. They relate more particularly to the duties performed personally by the commander or, where such duties become too onerous for performance by one person, by specifically designated members of his staff.

In our naval service, the higher commanders are provided, where appropriate, with a chief of staff, who coordinates and supervises the work of the entire staff. Provision is also made, where the nature and amount of the work to be done calls for such assignment, for the detail of additional staff officers to perform the important general functions mentioned above. Appropriate provision is also made for staff officers to care for the special functions inherent in the character of the particular command.

The important general functions referred to are those relating to intelligence duties, and to operations. Intelligence duties have to do with the collection of information as to the enemy and the theater of operations, the analysis of this information, its evaluation, its conversion into intelligence by the process of drawing conclusions, i.e., by interpretation, and, finally, its dissemination to the command or to other appropriate destinations (page 161). Intelligence estimates and plans have been discussed previously (Chapters VII and VIII).

Operations, in the sense in which the term is employed in this connection, relate to the strategical or tactical activities of the command, as distinguished from routine functions pertaining to such matters as administration and supply. Operations, therefore, as a term employed in contradistinction to intelligence activities, refer more especially to the performance of the commander's own force, while intelligence functions are oriented more particularly with respect to the activities of the enemy. Operation plans, which may include subsidiary intelligence plans, have been discussed previously (Chapters VII and VIII).

Further details in this connection are touched on hereafter with respect to rendition of reports and estimates.

Reports. The work-sheet facilitates the rendition, at any time, of such special reports as may be required by higher authority, or by the commander from his staff. The appropriate staff officer is prepared at all times to render a report, oral or written, informal or formal, brief or detailed, of the situation of the command and of other friendly forces, or of the situation with reference to the enemy.

No less important than rendition of reports to the commander and to higher authority is the duty of the staff, or of the commander if he lacks such staff assistance, to insure that subordinate commands receive pertinent information at the proper time. Cooperating friendly forces will also require such information. This need is sometimes met by the issue of periodical reports or bulletins. However, during the intervals between such reports, and at all times when such reports are lacking, it is a primary duty of the commander and staff to ensure that all concerned are informed as to the situation. The work sheet is a valuable aid for the performance of this duty.

Oral Estimates. When called for by higher authority, or by the commander from his staff, oral estimates of the situation can be rendered promptly and effectively by reference to the work sheet. Estimates called for by the commander are presented by the appropriate staff officers. Presentation is made to the commander or, if so directed, to the chief of staff, the latter being prepared to render, in turn, an estimate to the commander. Oral estimates desired by higher authority are made by the commander, or by the staff officer concerned, at the direction of his commander.

Partial estimates may be called for from time to time as to particular aspects of the situation.

In the larger staffs, the work is facilitated if each principal staff officer is prepared to present his appropriate portion of the estimate. In such case the intelligence officer deals with matters relating to the enemy; the operations officer deals with those relating to own forces, etc. The entire staff acts as a team in the presentation of a well-rounded estimate which will bring all pertinent matters to the attention of the commander so that he may arrive at a sound decision.

Should the commander call also for recommendations as to the decision or decisions to be made, the appropriate members of the staff will be prepared to submit their views. They will be prepared, as well, to answer at any time the calls of higher authority for information, for the conclusions of the commander, or for his recommendations. Should the commander have no staff for the performance of the foregoing functions, such detailed duties devolve upon him personally.

Certain further aspects of estimates of the situation, with reference to the circumstances obtaining during the supervision of the planned action, are noted under the discussion of written estimates, which follows.

Written Estimates. The foregoing remarks as to oral estimates are no less applicable to those submitted in written form, whether formal or informal, partial or full, brief or detailed. The nature of an estimate, as to these characteristics, will largely depend on the time element. A long and detailed estimate, often desirable when time is available, may be wholly impracticable when the press of events requires rapid decision. The written estimate, even if informal, partial, or brief, would frequently be out of place in situations where an oral estimate would be adequate or, if not adequate, would be all that could be accomplished under the circumstances of the case.

Special Remarks as to Entries

Entries on Charts. Entries on charts are made by the usual conventional signs and symbols. Colors are employed where appropriate. Information not yet confirmed is indicated as doubtful; e.g., by a question mark. Special remarks, comments, or other notations may also be entered, but in such a manner as not to obscure other data on the chart.

Where operations of land forces are involved, maps are prepared by the methods prescribed for own land forces. The higher naval staffs, or those of forces specially designated for such operations, may include army officers who will look after these matters; marine officers may also be assigned such duties.

Special charts or maps are those prepared for special purposes. A chart (or map) maintained to show the existing situation is known as a "situation chart" (or map). Charts (or maps) prepared for particular operations are known as "operations charts" (or maps).

Entries in Journals. Entries in journals, already referred to, are purely factual. Such entries may be complete copies of the content of incoming or outgoing orders or messages. Again, as already indicated (page 209), entries may consist of condensations of such matters. The oral instructions of the commander are also appropriate items for entry, when the matter is of sufficient importance. The journal may also make note of the movements of the commander, his staff officers, and other persons. Other pertinent happenings may also be made the subject of entry.

Entries in Work Sheets. Entries in the work sheet, since it is the basis for estimates of the situation, are both factual and otherwise. All matters entered in the journal are normally appropriate for notation in the work sheet. Information not yet confirmed is indicated as doubtful. The work sheet is also the proper place for notation of matters of conjecture (noted as such) and for other like items related to estimates of the situation. The various considerations influencing the commander and staff, with respect to current operations, are proper entries in the work sheet. Its informal character affords wide latitude as to entries which may be considered worthy of record in this manner. The underlying consideration is that anything may and should be entered which will be of value in preparing estimates or rendering the special reports for which the work sheet is to provide the basis.

A succinct running account of the situation is kept posted to date under the appropriate heading of the work sheet.

Entry is also made of the incentive which motivates the solution of the problem presented by the situation. Notation is made as to whether the incentive arises from a task imposed by higher authority or is derived by the commander from other sources (see page 200). In either case, the work sheet is the proper place for the entry of such facts and of the reasons which have led the commander to regard this incentive as motivating his actions in the situation existing at the time.

Information of the enemy, after receipt from the various collecting agencies (radio, observers, subordinate forces, etc.), is subject to the usual procedures of analysis, evaluation, interpretation, and dissemination (page 214). Analysis determines the source and the circumstances which led to the dispatch of the message. Evaluation determines its degree of reliability. Interpretation calls for drawing conclusions. The resulting intelligence is then disseminated to those concerned, either within the command or elsewhere.

Since information of the enemy does not become intelligence until converted thereinto by the process of drawing conclusions, this important procedure is recorded briefly in the work sheet. Such record makes available, for inclusion in estimates or in reports, the reasons which have formed the basis for such conclusions.

Information of friendly forces, with any deductions drawn therefrom, is similarly entered in the appropriate portions of the work sheet.

The facts and conclusions as to fighting strength of own and enemy forces are important entries. The summary of fighting strength includes proper conclusions as to the relative fighting strength of the opposing forces, own and enemy's.

The work sheet is also the proper document for other entries pertinent to estimates of the situation: e.g., the determination of own courses of action, the examination into enemy capabilities, and the selection of own best course of action. The commander's decisions, as rendered from time to time, are also entered for purposes of temporary record.

Summary

The work sheet, therefore, if properly utilized, contains the Running Estimate of the Situation, and is supported by the journal and the journal file. By the use of the Running Estimate and its supporting documents, the commander is enabled to keep himself apprised of the developments of the situation. On this basis he is able to detect the necessity for any changes in his plan and to arrive promptly at decisions in accordance with such needs. These decisions become the basis for new or modified plans and directives, to cause the action of his command to conform to changes in the situation.

Where the full procedure described in this Chapter is unnecessary or impracticable, a suitable modification without fundamental change will be found applicable. The mental process, even if no records are kept in writing, applies to the supervision of the planned action in every situation.

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Sound Military DecisionChapter IX: The Supervision of the Planned Action

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