Joint All-Domain Command and Control (JADC2)
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Updated January 21, 2022
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 All-Domain Command and Control (JADC2)
air, naval, space, and cyber forces to challenge an
using artificial intelligence and manned/unmanned teaming
adversary’s targeting calculus). The Joint All-Domain
to enable Distributed Maritime Operations. The Navy has
Operations concept, thus, provides commanders access to
stated one of its primary focus to support the JADC2 effort
information to allow for simultaneous and sequential
is to remove proprietary network standards, thus enabling
operations using surprise and the rapid and continuous
interoperability with the other services. In FY2022, Project
integration of capabilities across all domains—to try to gain
Overmatch requested funding across three classified
physical and psychological advantages and influence and
program elements.
control over the operational environment.
JADC2 Experimentation
DOD argues that current C2 programs, like the Air and
DOD has held at least two major JADC2 exercises. The
Space Operation Centers, E-8C Joint Surveillance and
first, held in Florida in December 2019, focused on a
Target Attack Radar System, and E-3 Airborne Warning
simulated cruise missile threat. The exercise represented the
and Control System are not optimized for the speed,
first demonstration of ABMS. Air Force and Navy aircraft
complexity, and lethality of future conflict; that the
(including F-22 and F-35 fighter jets), a Navy destroyer, an
decades-old platforms cannot adequately leverage new
Army Sentinel radar system, a mobile artillery system, plus
technology; and that the supporting structures to enable
commercial space and ground sensors demonstrated being
future C2 either do not exist or require maturation. Air
able to collect, analyze, and share data in real-time to
Force officials have argued that a JADC2 architecture
provide a fuller picture of the operating environment.
would enable commanders to (1) rapidly understand the
battlespace, (2) direct forces faster than the enemy, and (3)
DOD performed a second test of JADC2 in July 2020.
deliver synchronized combat effects across all domains.
During this test, Air Force aircraft connected with naval
vessels positioned in the Black Sea, along with special
DOD Lines of Effort
operations forces and eight other NATO nations, in a
DOD. DOD is leading a Joint Cross-Functional Team to
simulated environment to counter a potential Russian threat.
explore JADC2 as the concept evolves. The team includes
representatives from the offices of the DOD Chief
JADC2 FY2021 Legislation and Funding
Information Officer (CIO), the Under Secretary of Defense
The FY2021 National Defense Authorization Act (NDAA)
for Research and Engineering, and the Under Secretary of
has two provisions focused on JADC2. Section 157 requires
Defense for Acquisition and Sustainment. The DOD CIO
the Joint Requirements Oversight Council to produce
has stated it plans to use 5G technologies to enable JADC2.
validated requirements by April 2021. Section 1076
requires the Vice Chairman of the Joint Chiefs of Staff to
Joint Staff. The Joint Staff is leading efforts to move
provide a quarterly briefing. DOD requested $302.3 million
JADC2 from a concept to policies, doctrine, and
for ABMS in FY2021 but was appropriated $158.7 million
requirements, and has designated the Air Force as the
(a $143.6 million decrease) due to unjustified growth and
executive agent for JADC2 technology development.
forward financing (P.L. 116-260). DOD also requested
According to press reports, JADC2 is a component of the
$207 million for 5G Congested/Contested spectrum
upcoming released Joint Warfighting Concept.
research and development, seeking to develop spectrum-
Air Force. To implement JADC2, the Air Force is
sharing technologies and network security architectures.
developing the Advanced Battle Management System
(ABMS). ABMS is a network intended to provide data to
Potential Questions for Congress
pass information across all domains. Air Force leaders
How can Congress consider JADC2-related activities in
stated that ABMS has been used to help facilitate DOD
advance of validated requirements or cost estimates?
support during the COVID-19 pandemic. Throughout
Without an official program or budget request, how
FY2020, the Air Force has held at least three ABMS
much does DOD budget for JADC2?
demonstrations, connecting Army and Navy systems. In
What are JADC2 spending priorities, and are there
FY2022, the Air Force requested $204 million for ABMS.
initiatives DOD might not be investing in?
Army. The Army’s modernization strategy identified
How can DOD ensure interoperability among the
network modernization to enable multidomain operations.
military services’ and allies’ communications systems?
Army Futures Command is the service representative
How should DOD prioritize competing communications
developing the JADC2 concept. As part of an exercise
requirements for its future network?
called Project Convergence, it has conducted a series of
experiments demonstrating the service’s ability to provide
What role will artificial intelligence play in future
access to joint and coalition networks. The Army tested
command and control decisionmaking systems?
several concepts transmitting targeting information using
What potential force structure changes will be necessary
nontraditional methods in September 2020 in Project
to meet JADC2 requirements?
Convergence’s first demonstration. In FY2022, the Army
How should DOD manage JADC2-related efforts?
requested $106.8 million for Project Convergence.
John R. Hoehn, Analyst in Military Capabilities and
Navy. On October 1, 2020, the Navy announced it would
start Project Overmatch, which it plans to integrate into the
Programs
overall JADC2 concept. The Navy states that Project
IF11493
Overmatch is intended to develop a new fleet architecture
https://crsreports.congress.gov
Joint All-Domain Command and Control (JADC2)
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 permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF11493 · VERSION 16 · UPDATED
Updated January 21, 2022
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 All-Domain Command and Control (JADC2)
air, naval, space, and cyber forces to challenge an
using artificial intelligence and manned/unmanned teaming
adversary’s targeting calculus). The Joint All-Domain
to enable Distributed Maritime Operations. The Navy has
Operations concept, thus, provides commanders access to
stated one of its primary focus to support the JADC2 effort
information to allow for simultaneous and sequential
is to remove proprietary network standards, thus enabling
operations using surprise and the rapid and continuous
interoperability with the other services. In FY2022, Project
integration of capabilities across all domains—to try to gain
Overmatch requested funding across three classified
physical and psychological advantages and influence and
program elements.
control over the operational environment.
JADC2 Experimentation
DOD argues that current C2 programs, like the Air and
DOD has held at least two major JADC2 exercises. The
Space Operation Centers, E-8C Joint Surveillance and
first, held in Florida in December 2019, focused on a
Target Attack Radar System, and E-3 Airborne Warning
simulated cruise missile threat. The exercise represented the
and Control System are not optimized for the speed,
first demonstration of ABMS. Air Force and Navy aircraft
complexity, and lethality of future conflict; that the
(including F-22 and F-35 fighter jets), a Navy destroyer, an
decades-old platforms cannot adequately leverage new
Army Sentinel radar system, a mobile artillery system, plus
technology; and that the supporting structures to enable
commercial space and ground sensors demonstrated being
future C2 either do not exist or require maturation. Air
able to collect, analyze, and share data in real-time to
Force officials have argued that a JADC2 architecture
provide a fuller picture of the operating environment.
would enable commanders to (1) rapidly understand the
battlespace, (2) direct forces faster than the enemy, and (3)
DOD performed a second test of JADC2 in July 2020.
deliver synchronized combat effects across all domains.
During this test, Air Force aircraft connected with naval
vessels positioned in the Black Sea, along with special
DOD Lines of Effort
operations forces and eight other NATO nations, in a
DOD. DOD is leading a Joint Cross-Functional Team to
simulated environment to counter a potential Russian threat.
explore JADC2 as the concept evolves. The team includes
representatives from the offices of the DOD Chief
JADC2 FY2021 Legislation and Funding
Information Officer (CIO), the Under Secretary of Defense
The FY2021 National Defense Authorization Act (NDAA)
for Research and Engineering, and the Under Secretary of
has two provisions focused on JADC2. Section 157 requires
Defense for Acquisition and Sustainment. The DOD CIO
the Joint Requirements Oversight Council to produce
has stated it plans to use 5G technologies to enable JADC2.
validated requirements by April 2021. Section 1076
requires the Vice Chairman of the Joint Chiefs of Staff to
Joint Staff. The Joint Staff is leading efforts to move
provide a quarterly briefing. DOD requested $302.3 million
JADC2 from a concept to policies, doctrine, and
for ABMS in FY2021 but was appropriated $158.7 million
requirements, and has designated the Air Force as the
(a $143.6 million decrease) due to unjustified growth and
executive agent for JADC2 technology development.
forward financing (P.L. 116-260). DOD also requested
According to press reports, JADC2 is a component of the
$207 million for 5G Congested/Contested spectrum
upcoming released Joint Warfighting Concept.
research and development, seeking to develop spectrum-
Air Force. To implement JADC2, the Air Force is
sharing technologies and network security architectures.
developing the Advanced Battle Management System
(ABMS). ABMS is a network intended to provide data to
Potential Questions for Congress
pass information across all domains. Air Force leaders
How can Congress consider JADC2-related activities in
stated that ABMS has been used to help facilitate DOD
advance of validated requirements or cost estimates?
support during the COVID-19 pandemic. Throughout
Without an official program or budget request, how
FY2020, the Air Force has held at least three ABMS
much does DOD budget for JADC2?
demonstrations, connecting Army and Navy systems. In
What are JADC2 spending priorities, and are there
FY2022, the Air Force requested $204 million for ABMS.
initiatives DOD might not be investing in?
Army. The Army’s modernization strategy identified
How can DOD ensure interoperability among the
network modernization to enable multidomain operations.
military services’ and allies’ communications systems?
Army Futures Command is the service representative
How should DOD prioritize competing communications
developing the JADC2 concept. As part of an exercise
requirements for its future network?
called Project Convergence, it has conducted a series of
experiments demonstrating the service’s ability to provide
What role will artificial intelligence play in future
access to joint and coalition networks. The Army tested
command and control decisionmaking systems?
several concepts transmitting targeting information using
What potential force structure changes will be necessary
nontraditional methods in September 2020 in Project
to meet JADC2 requirements?
Convergence’s first demonstration. In FY2022, the Army
How should DOD manage JADC2-related efforts?
requested $106.8 million for Project Convergence.
John R. Hoehn, Analyst in Military Capabilities and
Navy. On October 1, 2020, the Navy announced it would
start Project Overmatch, which it plans to integrate into the
Programs
overall JADC2 concept. The Navy states that Project
IF11493
Overmatch is intended to develop a new fleet architecture
https://crsreports.congress.gov
Joint All-Domain Command and Control (JADC2)
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 permission of the copyright holder if you
wish to copy or otherwise use copyrighted material.
https://crsreports.congress.gov | IF11493 · VERSION 16 · UPDATED