link to page 1 link to page 1 
Updated June 4, 2021
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 data and
(see Figure 1). JADC2 intends to enable commanders to
information will be critical in the future operating
make better decisions by collecting data from numerous
environment. In addition, these leaders have stated that to
sensors, processing the data using artificial intelligence
challenge potential peer adversaries, a multidomain
approach is required (where U.S. forces would use ground,
https://crsreports.congress.gov
Joint Al -Domain Command and Control (JADC2)
air, naval, space, and cyber forces to challenge an
stated one of its primary focus to support the JADC2 effort
adversary’s targeting calculus). The Joint All-Domain
is to remove proprietary network standards, thus enabling
Operations concept, thus, provides commanders access to
interoperability with the other services. In FY2022, Project
information to allow for simultaneous and sequential
Overmatch requested funding across three classified
operations using surprise and the rapid and continuous
program elements.
integration of capabilities across all domains—to try to gain
physical and psychological advantages and influence and
JADC2 Experimentation
control over the operational environment.
DOD has held at least two major JADC2 exercises. The
first, held in Florida in December 2019, focused on a
DOD argues that current C2 programs, like the Air and
simulated cruise missile threat. The exercise represented the
Space Operation Centers, E-8C Joint Surveillance and
first demonstration of ABMS. Air Force and Navy aircraft
Target Attack Radar System, and E-3 Airborne Warning
(including F-22 and F-35 fighter jets), a Navy destroyer, an
and Control System are not optimized for the speed,
Army Sentinel radar system, a mobile artillery system, plus
complexity, and lethality of future conflict; that the
commercial space and ground sensors demonstrated being
decades-old platforms cannot adequately leverage new
able to collect, analyze, and share data in real-time to
technology; and that the supporting structures to enable
provide a fuller picture of the operating environment.
future C2 either do not exis t or require maturation. Air
Force officials have argued that a JADC2 architecture
DOD performed a second test of JADC2 in July 2020.
would enable commanders to (1) rapidly understand the
During this test, Air Force aircraft connected with naval
battlespace, (2) direct forces faster than the enemy, and (3)
vessels positioned in the Black Sea, along with special
deliver synchronized combat effects across all domains.
operations forces and eight other NATO nations, in a
simulated environment to counter a potential Russian threat.
DOD Lines of Effort
DOD. DOD is leading a Joint Cross-Functional Team to
JADC2 FY2021 Legislation and Funding
explore JADC2 as the concept evolves. The team includes
The FY2021 National Defense Authorization Act (NDAA)
representatives from the offices of the DOD Chief
has two provisions focused on JADC2. Section 157 requires
Information Officer (CIO), the Under Secretary of Defense
the Joint Requirements Oversight Council to produce
for Research and Engineering, and the Under Secretary of
validated requirements by April 2021. Section 1076
Defense for Acquisition and Sustainment. The DOD CIO
requires the Vice Chairman of the Joint Chiefs of Staff to
has stated it plans to use 5G technologies to enable JADC2.
provide a quarterly briefing. DOD requested $302.3 million
for ABMS in FY2021 but was appropriated $158.7 million
Joint Staff. The Joint Staff is leading efforts to move
(a $143.6 million decrease) due to unjustified growth and
JADC2 from a concept to policies, doctrine, and
forward financing (P.L. 116-260). DOD also requested
requirements, and has designated the Air Force as the
$207 million for 5G Congested/Contested spectrum
executive agent for JADC2 technology development.
research and development, seeking to develop spectrum-
According to press reports, JADC2 is a component of the
sharing technologies and network security architectures.
upcoming released Joint Warfighting Concept.
Air Force. To implement JADC2, the Air Force is
Potential Questions for Congress
developing the Advanced Battle Management System
How can Congress consider JADC2-related activities in
(ABMS). ABMS is a network intended to provide data to
advance of validated requirements or cost estimates?
pass information across all domains. Air Force leaders
How can DOD ensure interoperability among the
stated that ABMS has been used to help facilitate DOD
military services’ and allies’ communications systems?
support during the COVID-19 pandemic. Throughout
How should DOD prioritize competing communications
FY2020, the Air Force has held at least three ABMS
requirements for its future network?
demonstrations, connecting Army and Navy systems. In
FY2022, the Air Force requested $204 million for ABMS.
What role will artificial intelligence play in future
command and control decisionmaking systems?
Army. The Army’s modernization strategy identified
What potential force structure changes will be necessary
network modernization to enable multidomain operations.
to meet JADC2 requirements?
Army Futures Command is the service representative
developing the JADC2 concept. As part of an exercise
How should DOD manage JADC2-related efforts?
called Project Convergence, it has conducted a series of
CRS Products
experiments demonstrating the service’s ability to provide
CRS Report R46725, Joint Al -Domain Command and Control:
access to joint and coalition networks. The Army tested
Background and Issues for Congress, by John R. Hoehn
several concepts transmitting targeting information using
CRS Report R46564, Overview of Department of Defense Use of
nontraditional methods in September 2020 in Project
the Electromagnetic Spectrum, coordinated by John R. Hoehn
Convergence’s first demonstration. In FY2022, the Army
requested $106.8 million for Project Convergence.
CRS In Focus IF11654, The Army’s Project Convergence, by
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
to enable Distributed Maritime Operations. The Navy has
https://crsreports.congress.gov
Joint Al -Domain Command and Control (JADC2)
John R. Hoehn, Analyst in Military Capabilities and
Programs
IF11493
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to
congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress.
Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has
been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the
United States Government, are not subject to copyright protection in the United States. Any CRS Report may be
reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include
copyrighted images or material from a third party, you may need to obtain the permissio n of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF11493 · VERSION 14 · UPDATED