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Updated December 9, 2020
Joint All-Domain Command and Control (JADC2)
What Is JADC2?
algorithms to identify targets, then recommending the
Joint All-Domain Command and Control (JADC2) is the
optimal weapon—both kinetic and nonkinetic (e.g., cyber
Department of Defense’s (DOD’s) concept to connect
or electronic weapons)—to engage the target.
sensors from all of the military services—Air Force, Army,
Some analysts take a more skeptical approach to JADC2.
Marine Corps, Navy, and Space Force—into a single
They raise questions about its technical maturity and
network. Traditionally, each of the military services
affordability, and whether it is even possible to field a
developed its own tactical network that was incompatible
network that can securely and reliably connect sensors to
with those of other services (i.e., Army networks were
shooters and support command and control in a lethal,
unable to interface with Navy or Air Force networks). DOD
electronic warfare-rich environment. Analysts also ask who
officials have argued that future conflicts may require
would have decisionmaking authority across domains,
decisions to be made within hours, minutes, or potentially
given that, traditionally, command authorities are delegated
seconds compared with the current multiday process to
in each domain rather than from an overall campaign
analyze the operating environment and issue commands.
perspective. Some also question how much a human will be
They have also stated that the Department’s existing
needed for JADC2 to make decisions in real time, and
command and control architecture is insufficient to meet the
whether it is appropriate to reduce the amount of human
demands of the National Defense Strategy (NDS). Congress
involvement in military-related decisions.
may be interested in the concept because it is being used to
develop many high-profile procurement programs.
Why Change Current C2 Structures?
DOD uses ride-sharing service Uber as an analogy to
The future operating environment articulated by the NDS,
describe its desired end state for JADC2. Uber combines
the NDS Commission, and other sources describes how
two different apps—one for riders and a second for drivers.
potential adversaries have developed sophisticated anti-
Using the respective users’ position, the Uber algorithm
access/area denial (A2/AD) capabilities (see Figure 2).
determines the optimal match based on distance, travel
These capabilities include electronic warfare, cyber
time, and passengers (among other variables). The
weapons, long-range missiles, and advanced air defenses.
application then seamlessly provides directions for the
U.S. competitors have pursued A2/AD capabilities as a
driver to follow, delivering the passenger to their
means of countering traditional U.S. military advantages—
destination. Uber relies on cellular and Wi-Fi networks to
such as the ability to project power—and improving their
transmit data to match riders and provide driving
ability to win quick, decisive engagements.
instructions.
Figure 2. A2/AD Environment
Figure 1. Visualization of JADC2 Vision
Source: https://www.monch.com/mpg/news/ew-c4i-channel/7334-
saic-and-usaf-partner-for-jadc2.html.
JADC2 envisions providing a cloud-like environment for
Source: https://www.japcc.org/electronic-warfare-the-forgotten-
the Joint force to share intelligence, surveillance, and
discipline/.
reconnaissance data, transmitting across many
communications networks, to enable faster decisionmaking
Senior DOD leaders have stated that access to information
(see Figure 1). JADC2 intends to enable commanders to
will be critical in the future operating environment. In
make better decisions by collecting data from numerous
addition, these leaders have stated that to challenge
sensors, processing the data using artificial intelligence
potential peer adversaries, a multidomain approach is
required (where U.S. forces would use ground, air, naval,
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Joint All-Domain Command and Control (JADC2)
space, and cyber forces to challenge an adversary’s
interoperability with the other services. According to recent
targeting calculus). The Joint All-Domain Operations
press coverage, the Navy has focused on its own networks
concept, thus, provides commanders access to information
but plans to integrate with the Army and Air Force.
to allow for simultaneous and sequential operations using
surprise and the rapid and continuous integration of
JADC2 Experimentation
capabilities across all domains—to try to gain physical and
DOD has held at least two major JADC2 exercises. The
psychological advantages and influence and control over
first, held in Florida in December 2019, focused on a
the operational environment.
simulated cruise missile threat. The exercise represented the
first demonstration of ABMS. Air Force and Navy aircraft
DOD argues that current C2 programs, like the Air and
(including F-22 and F-35 fighter jets), a Navy destroyer, an
Space Operation Centers, E-8C Joint Surveillance and
Army Sentinel radar system, a mobile artillery system, plus
Target Attack Radar System, and E-3 Airborne Warning
commercial space and ground sensors demonstrated being
and Control System are not optimized for the speed,
able to collect, analyze, and share data in real-time to
complexity, and lethality of future conflict; that the
provide a fuller picture of the operating environment.
decades-old platforms cannot adequately leverage new
technology; and that the supporting structures to enable
DOD performed a second test of JADC2 in July 2020.
future C2 either do not exist or require maturation. Air
During this test, Air Force aircraft connected with naval
Force officials have argued that a JADC2 architecture
vessels positioned in the Black Sea, along with special
would enable commanders to (1) rapidly understand the
operations forces and eight other NATO nations, in a
battlespace, (2) direct forces faster than the enemy, and (3)
simulated environment to counter a potential Russian threat.
deliver synchronized combat effects across all domains.
JADC2 FY2021 Legislation and Funding
DOD Lines of Effort
The FY2021 National Defense Authorization Act (NDAA)
DOD. DOD is leading a Joint Cross-Functional Team to
has two provisions focused on JADC2. Section 157 requires
explore JADC2 as the concept evolves. The team includes
the Joint Requirements Oversight Council to produce
representatives from the offices of the DOD Chief
validated requirements by April 2021. Section 1076
Information Officer (CIO), the Under Secretary of Defense
requires the Vice Chairman of the Joint Chiefs of Staff to
for Research and Engineering, and the Under Secretary of
provide a quarterly briefing. DOD requested $302.3 million
Defense for Acquisition and Sustainment. The DOD CIO
for ABMS in FY2021; the FY2021 NDAA (H.R. 6395)
has stated it plans to use 5G technologies to enable JADC2.
authorizes $216.3 million (an $85 million decrease) due to
unjustified growth. DOD also requested $207 million for
Joint Staff. The Joint Staff is leading efforts to move
5G Congested/Contested spectrum research and
JADC2 from a concept to policies, doctrine, and
development, which looks to develop spectrum-sharing
requirements, and has designated the Air Force as the
technologies and new network security architectures.
executive agent for JADC2 technology development.
According to press reports, JADC2 is a component of the
Potential Questions for Congress
upcoming released Joint Warfighting Concept.
What is the relative priority for JADC2 compared with
Air Force. To implement JADC2, the Air Force is
other major DOD programs?
developing the Advanced Battle Management System
Have all of the military services embraced the JADC2
(ABMS). ABMS is a network intended to provide data to
concept, or is there some resistance within DOD?
pass information across all domains. Air Force leaders
What personnel, equipment, facilities, and training
stated that ABMS has been used to help facilitate DOD
resources would be required to achieve JADC2?
support during the COVID-19 pandemic. Throughout
FY2020, the Air Force has held at least three ABMS
What is the estimated cost for force-wide
demonstrations, connecting Army and Navy systems.
implementation and lifecycle upkeep of JADC2? When
could the network become operational?
Army. The Army’s modernization strategy identified
What role would AI have in JADC2 development? How
network modernization to enable multidomain operations.
much human-in-the-loop is necessary if sensors are
Army Futures Command is the service representative
linked to shooters in real-time?
developing the JADC2 concept. As part of an exercise
called Project Convergence, it has conducted a series of
CRS Products
experiments demonstrating the service’s ability to provide
CRS Report R46564, Overview of Department of Defense Use of
access to joint and coalition networks. The Army tested
the Electromagnetic Spectrum, by John R. Hoehn, Jil C.
several concepts transmitting targeting information using
Gallagher, and Kelley M. Sayler
nontraditional methods in September 2020 in Project
CRS In Focus IF11654, The Army’s Project Convergence, by
Convergence’s first demonstration.
Andrew Feickert
Navy. On October 1, 2020, the Navy announced it would
start Project Overmatch, which it plans to integrate into the
This report was originally written by Nishawn S. Smagh
overall JADC2 concept. The Navy states that Project
during his military fellowship with CRS.
Overmatch is intended to develop a new fleet architecture
using artificial intelligence and manned/unmanned teaming
John R. Hoehn, Analyst in Military Capabilities and
to enable Distributed Maritime Operations. The Navy has
Programs
stated one of its primary focus to support the JADC2 effort
IF11493
is to remove proprietary network standards, thus enabling
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Joint All-Domain Command and Control (JADC2)
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