JP4-3 Chapter 3 PDF - Joint Bulk Petroleum Operations

CHAPTER III PLANNING FOR JOINT BULK PETROLEUM OPERATIONS “By reducing the need for petroleum-based fuels, we can decrease the frequency of logistics convoys on the road, thereby reducing the danger to our Marines, Soldiers, and Sailors.” Lieutenant General Richard Zilmer, United States Marine Corps,...

CHAPTER III PLANNING FOR JOINT BULK PETROLEUM OPERATIONS “By reducing the need for petroleum-based fuels, we can decrease the frequency of logistics convoys on the road, thereby reducing the danger to our Marines, Soldiers, and Sailors.” Lieutenant General Richard Zilmer, United States Marine Corps, Commanding General, Multi-National Force West, Iraq July 2006, Urgent Operational Need Statement 1. Introduction The JPO conducts the overall planning of petroleum logistic support for their CCMD. This planning occurs at the strategic and operational levels and is usually embodied in appendix 1 (Petroleum, Oils, and Lubricants [POL] Supply) to annex D (Logistics) of the OPLANs or CONPLANs. The appendix covers theater-wide fuel requirements, resupply, and distribution. The format for fuels planning is prescribed in CJCSM 3130.03, Adaptive Planning and Execution (APEX) Planning Formats and Guidance. The DLA Energy regional offices and Service components support the JPO in developing a practical, sustainable petroleum support concept and plan. For more information, see Appendix A, “Planning Guidance for Appendix 1 to Annex D, Bulk Petroleum Supply for Military Plans.” 2. Joint Bulk Petroleum Operation Planning a. Utilizing the joint operation planning process, logisticians responsible for supporting bulk petroleum within the JLEnt assemble an array of tools to assist with support planning for the projection, distribution, and sustainment of joint forces. b. The LSA provides a broad assessment of key logistics capability areas required to execute the CCDR’s plans. The LSA is a critical plan assessment tool that seeks to measure the total unconstrained logistics requirement against available logistics enablers for the execution of a CONOPS. The LSA findings should highlight logistics deficiencies and their associated risks to support theater operations. Additional tools are the integrated consumable item support (ICIS) system, operation-logistic planners, and other planning documents such as the Global Petroleum Distribution Plan. c. Joint bulk petroleum plan development involves meticulous attention to the ability of global partners to provide bulk petroleum assets to the theater. The scope of this planning is widespread and involves the ability of contracting partners and HNs to complement the global partners’ strategic capabilities as seen in Figure III-1. Plan development must also integrate the availability of secure lines of communications (LOCs), the intensity of current and future operations, and the organizational structure of the JFC. Whether through deliberate or crisis action planning, the joint bulk petroleum planner should have the capability to call upon the vast information resources available III-1 Chapter III Required Actions When Planning for Bulk Petroleum Operations  Project accurate, timely fuel requirements.  Maximize use of in-country civilian or host nation support fuel facilities.  Tailor fuel equipment and support packages to the requirement.  Standardize and ensure compatibility of fuel equipment to support joint and multinational fuel operations.  Establish the theater joint petroleum office or subarea petroleum office with assistance provided by Defense Logistics Agency Energy regional offices and Service components. Figure III-1. Required Actions When Planning for Bulk Petroleum Operations across all operational levels. The collection of data from disparate information systems is essential to garner accurate assumptions and substantiated facts for planning processes. d. A fundamental tenet to successful planning for bulk petroleum support is the early and accurate identification of requirements enhanced by the joint bulk petroleum planner’s complete understanding of the commander’s intent and CONOPS. This critical knowledge will enhance the ability to direct available bulk petroleum resources to support the joint force and allow for greater flexibility in execution. The more integrated the logistics planning is with the development of the CONOPS and the commander’s intent, the more effective the overall operational execution. e. One critical aspect of joint bulk petroleum planning is the infrastructure where the operation will be conducted. Some theaters will have HN assets available, such as pipelines, storage facilities, and railways, that will help support the bulk petroleum distribution system. In these situations, airbases, tactical airfields, and other sites can be supported by pipelines whenever tactically feasible. In other theaters, HN or commercial bulk petroleum facilities may not be available and tactical assets will need to be used. Tactical bulk petroleum supply systems may include limited tanker mooring systems, floating hose lines, underwater pipelines, inland tank farms, temporary overland hose lines or pipelines, collapsible tanks, and tanker trucks. f. Within the planning process, the inventory management plan (IMP) is an important document that is validated and issued annually by DLA Energy in concert with the CCMDs and Services. The IMP identifies the petroleum inventory levels needed to support OS requirements and pre-positioned war reserve requirements (PWRR) and specifies the amount of petroleum product, by location, held to cover requirements. These two categories of inventory guide the sizing of the stock levels to permit III-2 JP 4-03 Planning for Joint Bulk Petroleum Operations immediate and short-term operations. Their purpose is to sustain such operations until resupply can occur. Because of storage limitations, one CCDR may cover the requirements of another CCDR’s OPLANs with concurrence of the supported CCDR’s JPO. Although not desirable, this practice is allowed when products can be delivered within the required joint OPLANs timeframe and before normal commercial resupply can be made to a stockage location. To the extent practicable, and consistent with acceptable risk, stocks are positioned at or near the point of intended use. When possible, stocks are dispersed and held in conventional hardened facilities in high-threat areas. DLA plans for war reserve storage are coordinated with the CCMDs and the Joint Staff JPO and may be consistent with host-nation support (HNS) programs. g. To ensure an adequate supply of petroleum products in the initial phases of a contingency, the CCMDs and Services develop requirements to properly size PWRS. The PWRR are based on the need to support specific joint operations until normal LOCs are established. Biennially, the Joint Staff, in coordination with DLA Energy, develops guidelines, approved by the Office of the Secretary of Defense (OSD), on days of supply (DOS) and appropriate assumptions for secure sources of resupply. (1) PWRR for campaign plan or OPLAN. PWRR is the CCDR’s war reserve fuel required to support a campaign or operation as outlined in the CCDR’s campaign plan, OPLAN, or OPORD. The requirement is determined by applying operational tempo and fuel consumption rates to all the deployed weapon systems in the campaign or operation. The Global Petroleum Distribution Plan should be considered when determining stockage location. The Joint Staff (JS), J-4 [Logistics Directorate], publishes this plan, which establishes recommendations for petroleum support. (2) ICIS is available to assist the joint logistics planner. ICIS develops PWRR by using the CCDR’s time-phased force and deployment data (TPFDD) and applying Service consumption data in order to produce detailed time-phased requirements. Each Service should validate the ICIS consumption factors periodically (recommend annually) to ensure that platform and consumption factors are included in the annual PWRR computation. ICIS output, coupled with Joint Flow and Analysis System for Transportation, is used to develop a sealift tanker delivery slate in the form of non-unit TPFDD records. The ICIS force deployment module allows direct entry of forces into the module for crisis action and exercise planning when a TPFDD is not available. h. The PWRS are the on-hand products designated to satisfy the PWRR. They consist of stocks to support deployment and combat operations, and are sized to meet requirements until resupply can be affected from a secure source. Sourcing assumptions and PWRS DOS factors are developed by the Chairman of the Joint Chiefs of Staff and forwarded to OSD for approval. (1) Establishment. PWRS is based on the most demanding operational plan requirement for each location and is in addition to OS for each location. The CCDR’s JPOs are authorized to release or reallocate PWRS in emergency situations. (2) Types of PWRS III-3 Chapter III (a) Starter stocks are war reserve materiel located in or near a theater of operations to support the conduct of military operations until resupply at wartime rates can be established, or until the contingency ends, whichever occurs sooner. OSD’s DOS guidance is utilized to compute the appropriate PWRS for a geographic location. (b) Swing stocks are positioned afloat or ashore and are capable of supporting the requirements of more than one contingency in more than one theater of operations. Swing stock guidance and positioning is recommended by the Global Petroleum Distribution Plan and through collaboration between JS J-4 JPO and affected CCMD JPOs. i. The GCCs, with recommendations from the responsible Service component, prescribe the location, level of protection, and security of PWRS. j. OS are the amount of product required to sustain peacetime operations in support of military demands. The fuel OS levels are computed annually by DLA Energy for all defense fuel support points and utilize the factors depicted in Figure III-2. k. Joint Bulk Petroleum Inventory. Bulk petroleum inventory consists of PWRS and OS. Both inventories are sized, based on a concept of having enough fuel on hand until resupply can be assured. PWRS shall be in addition to OS and are designated as starter or swing stocks or both. See IAW DODI 3110.06, War Reserve Materiel (WRM) Policy. This approach optimizes stock levels to maintain an acceptable degree of support and sustainability across the range of military operations. Inventory levels are independently determined for each location or, where practical, for a defined area. Factors for Computing Operating Stocks Daily Demand Rate – The past and projected years’ issues are used to calculate a daily demand rate. Economic Resupply Quantity – The fuel quantity a defense fuel support point can receive that ideally balances economic and operational requirements. Safety Level – The safety level is the amount of fuel to compensate for variability in resupply time and demand during the resupply cycle. Unobtainable Inventory – That fuel needed to prime a storage dispensing system such as pipeline fill, manifold fill, and tank bottom below the suction line. Figure III-2. Factors for Computing Operating Stocks III-4 JP 4-03 Planning for Joint Bulk Petroleum Operations l. Emergency Allocation of Petroleum. Various levels of responsibility govern the allocation of fuel during a national emergency. These responsibilities are dependent on the theater and worldwide commercial environment. Based upon the CCDR’s guidance, the JPO will direct the allocation of petroleum products. This allocation will include using PWRS to meet peacetime operations. Actions taken are coordinated with DLA Energy. DLA Energy is responsible for providing the CCDR with the needed information on the overall fuel situation and efforts under way to overcome deficiencies. m. If the Services or the CCMDs are not satisfied with the allocation of products by DLA Energy during constrained fuel availability, they may request the activation of the Joint Materiel Priorities and Allocation Board (JMPAB). The JMPAB, which acts for the Chairman of the Joint Chiefs of Staff in all petroleum allocation matters, will be established during extreme situations, such as worldwide fuel shortages, resulting in ultimate supply failure or in unacceptable degradation of wartime sustainability. Specific information that the Service or CCMDs provide to the JMPAB includes current inventories, resupply forecasts, and impacts on both peacetime and wartime operations. n. The prudent use of war gaming and exercises, either through simulation or other means, can be an important aid to identify gaps and clarify roles and responsibilities in bulk petroleum operational plans before they become problematic in execution. Modeling new concepts is a useful way to develop solutions without actual hostilities; however, the planner must be cognizant of depending too heavily on assumptions that would lead to flawed conclusions. o. Overall Theater Petroleum Support. The inland petroleum distribution plan (IPDP), developed by the JPO or SAPO, provides a single source document for understanding how the guidance provided in the CONPLANs or OPLANs will be executed. It provides the details necessary for Service commanders to understand how to interface with units, agencies, and firms providing petroleum support. p. Just as the JPO is responsible for theater petroleum planning, the SAPO is responsible for bulk petroleum planning and execution matters within its operational area. This level of planning focuses on support for each Service component. Its products are the IPDP and base support plans. The IPDP complements the intratheater and intertheater planning efforts of the JPO, and forms the tactical basis of the petroleum portion of the OPLANs and CONPLANs. The IPDP is published either as a tab to the appendix 1 (Petroleum, Oils, and Lubricants [POL] Supply) to annex D (Logistics) of the OPLANs or as a stand-alone document. 3. Bulk Petroleum Plan Development a. The mission and the planned size and composition of the joint forces to be supported should be guiding parameters for planning efforts. Theater contingency scenarios, worldwide materiel distribution policies, and other guidance should be considered in determining specific theater requirements. CCDRs develop plans to minimize the types of fuels required in joint operations. III-5 Chapter III b. The following questions will aid in the development of the appendix 1 (Petroleum, Oils, and Lubricants [POL] Supply) to annex D (Logistics): (1) Should a SAPO for resupplying bulk petroleum be established? (2) What is the CONOPS for petroleum support? (3) What HNS is available? (4) What are the components’ responsibilities for petroleum support? components provided estimates of their bulk petroleum requirements? Have (5) Have arrangements been made to contract for HNS or theater support contractor resources with the supported CCMD JPO or DLA Energy? (6) Have bulk petroleum storage methods and sites been selected? What is the threat level within the operational environment? Have security arrangements for the sites been established? (7) Have arrangements been made for transportation of bulk petroleum within the assigned theater? Appendix A, “Planning Guidance for Appendix 1 to Annex D, Bulk Petroleum Supply for Military Plans,” provides additional planning guidance. 4. Joint Bulk Petroleum Logistics Planning Considerations a. IAW DODI, 4140.25, DOD Management Policy for Energy Commodities and Related Services, DLA acquires, stores, and distributes bulk petroleum with associated fuel additives to all DOD component customers wherever and whenever it is needed across the full range of operational situations, with the goal of providing the appropriate fuel support for every weapon system. DLA coordinates with the DOD components on these matters when operational constraints may be implied. The petroleum supply system must be designed for the operations and climate of the specific theater. Some planning considerations for joint bulk petroleum logistics are listed in Figure III-3 and additional discussion on select considerations follows: b. Mission. The mission and the planned size and composition of the joint forces to be supported should be guiding parameters for planning efforts. Theater contingency scenarios, worldwide materiel distribution policies, and other guidance should be considered in determining specific theater requirements. c. Joint Petroleum Logistics. Joint petroleum logistics to support the deployment and employment of forces are determined by the Services. Service components of the CCMDs (or other organizations within each Service) use such factors as troop strength; numbers and types of aircraft, vehicles, or ships; deployment times; and intensity and duration of engagement to determine time-phased petroleum requirements. Plans should include these Service-generated requirements, all pre-positioned stocks, and sources for III-6 JP 4-03 Planning for Joint Bulk Petroleum Operations Planning Considerations  Mission  Fuel Requirements  Infrastructure  Equipment  Support Units  Assumptions  Command and Control Responsibilities  Quality  Interoperability of Fuel Transfer Systems  Sustainability and Survivability  Theater-Specific Factors  Threat Environment  Limiting Factors  Sealift and Other Distribution Methods Figure III-3. Planning Considerations resupply. Accurate fuel requirement forecasting is critical to support the warfighter’s mission. This includes considering the acquisition, transport, and storage of the requisite fuel additives through DLA Energy when commercial specification fuels are planned and used. Service headquarters (HQ) should ensure that bulk petroleum requirement planners have the training and resources to accomplish this task. The IMP, developed annually by DLA Energy in coordination with the Joint Staff, Services and CCMDs, details worldwide bulk PWRR and storage availability by location. The PWRR are sized by resupply sourcing assumptions included in the DOS factors, which are developed by the Joint Staff and approved by OSD. The Global Petroleum Distribution Plan should be considered when planning joint petroleum logistics. d. Infrastructure. The capability of commercial and organic installations and facilities in the operational area to provide fuel, storage, distribution, and laboratories must be considered. Size, capability, and maintenance status of offshore unloading facilities, terminals, distribution points, and bases are important to the logistic feasibility of the fuel plan. Collecting this information can help determine the need for, and method of, employment of tactical terminals, pipelines, hose lines, and other fuel-handling equipment. e. Equipment. To ensure that petroleum handling and distribution equipment is available for support of operations, fuel deployment packages and operational project stocks should be identified and considered for use. The USAF fuels operational readiness capability equipment (FORCE) and the USA inland petroleum distribution system (IPDS) are examples of such equipment. In addition, each Service’s operating units for the specific petroleum handling systems should be linked to those systems and identified for movement in the plan. To increase efficiency, standardized and interoperable equipment should be considered for planning and execution. III-7 Chapter III f. Support Units. Timely arrival of engineer units (or logistics civil augmentation program contractors) for construction of petroleum facilities, and underwater construction teams and mission specialists for OPDS setup, are some of the diverse types of support units that must be identified. The type and arrival dates of units not tied to any specific equipment system, and needed for various support roles, also need to be identified. g. Interoperability of Fuel Transfer Systems. Interoperability should be considered and resolved in the planning process for at least the following interfaces: (1) Tanker or oiler to Navy receiving ship, United States Coast Guard receiving ship, seaport load and off-load facilities, and JLOTS systems. (2) Airbase fuel storage and dispensing systems to receive fuel from commercial or military sources and issue fuel to Service component and multinational aircraft. (3) Shore distribution systems to tactical fuel systems and equipment such as IPDS, amphibious assault fuel system, and fuel tanker vehicles. (4) No system or set of systems should be planned to be utilized together without proper interoperability validation through the appropriate SCP. h. Limiting Factors. Most plans will have some limiting factors such as lack of sufficient bulk petroleum storage in theater, inadequate transportation assets to support the supply chain, inexperienced force structure, limited fuel quantities, or nonexistence of commercial petroleum infrastructure in the operational area. Services have limited, or no additive injection capabilities. Any of these can quickly bring an operation to a halt and must be explicitly identified in the planning documents. i. Supply Chain Responsiveness Considerations. Consideration must be given to supply chain specifics, such as how quickly refineries can produce product, how long it takes to deliver product, how much sustainment can be acquired from existing product inventories, whether new or additional contracting efforts are needed to sustain contingencies, and how US refinery contracting timelines compare to support rendered by other nations or agencies. DEFENSE SCIENCE BOARD FINDING “The task force found that in DOD [Department of Defense] combat simulation exercises, each military service emphasized mission execution while adequate fuel supplies were considered a constant. DSB [Defense Science Board] asserted that doing so left DOD unaware of the potential effects of fuel efficiency on combat operations and of the vulnerability of the fuel supply chain. Furthermore, with no model of efficient or inefficient fuel use, DOD could not analyze fuel related logistical requirements as part of the acquisition process.” Finding #4, Defense Science Board, February 2008 III-8 JP 4-03