Chapter 21

THE INAUGURATION OF THE PLANNED ACTION

(The Third Step--The Formulation and Issue of Directives)

In the discussion which now follows, it is demonstrated that, if the second step (Chapter VII) has been carried through completely, the formulation of directives requires only the completion of details of the Order Form, which is explained. The various types of naval plans and directives are also described.

Scope of the Third Step. As previously stated (in Chapter V, on page 107), the inauguration of the planned action (the third step) begins when the commander forms the intention of immediately promulgating, as one or more directives, his solution of the problem represented by the second step. The third step ends at the moment when the problem becomes one of supervising the planned action in the course of its execution.

Military Plans and Military Directives. A plan is a proposed scheme, procedure, or method of action for the attainment of an objective. It is one of the essential links between decision and action.

A directive, in the general sense, initiates or governs conduct or procedure. It is the means by which one's will or intent is made known to others. Sometimes the word is employed as a synonym for "order"; at others, it carries the significance of various instructions ranging from the simple to the complex; at still others, it denotes a plan formulated to be placed in effect in a particular contingency or when so directed. In all cases, a directive, to be suitable as a guide for others, has as its origin a plan.

The words plan and directive are used herein as follows:--A plan may exist only in the mind. Even if formulated and set down in writing, it may receive no distribution. A plan continues to be exclusively a plan so long as it concerns the originating commander alone, and it never loses its identity as a proposed procedure or method of action. When, however, the commander forms the intent of promulgating the plan immediately, the plan becomes also a directive. At this point, as noted in the preceding paragraph ("Scope of the Third Step"), the execution phase begins, from the standpoint of the exercise of mental power, with the inauguration of the planned action.

A directive may therefore be (1) an order effective upon receipt, in which case it may be an order placing in effect a plan already issued; or a directive may be (2) a formulated plan which the commander intends to issue immediately to his subordinates.

Accordingly, certain written instruments prepared under the designation of plans are also included under the classification of directives. In the use of these terms hereinafter, the distinction between a plan viewed as a basis for a directive, and a plan intended to be promulgated as a directive, will be indicated in the context.

Whether written or mental, the complete plan will cover the scope of the Decision, and will be the commander's method of procedure for his future conduct of operations. A commander may, or may not, formulate his complete plan in writing, or embody it in a formal directive which will provide for the execution, in full, of the Decision of his estimate. He may find that his plan divides into several parts, and he may make separate provision for the execution of each of these parts. While the integrity of a plan depends upon the soundness of its essential details, the plan is properly formulated as a directive or directives projected in detail, only so far into the future as the commander's estimate of the situation assures him of reasonable freedom of action (see page 57).

Where the commander divides his plan into parts for separate accomplishment, he will naturally exercise care that each part is, in itself, the suitable basis for a complete and homogeneous plan. Successful execution of all these plans results in the complete accomplishment of his Decision.

Directives required to further the success of a particular operation may be issued without awaiting formulation of the entire plan. Parts of the plan may be transmitted as fragmentary directives to guide the action of subordinates in instantaneous or early execution. Such cases are far more frequent than are those in which a formal written plan, to guide either the operations in their entirety or a part thereof, is prepared and distributed as a directive. Effective action by the subordinate is thus not delayed by the absence of complete written directives.

The commander, more especially during war, may be the only individual who is conversant with the entire plan. He may consider that the necessity for secrecy is paramount, or that there are features to whose details he is unwilling to commit himself until the situation is clearer. However, he may usually expect to disclose its scope and general features to his immediate superior, and the plan in its entirety to his next junior; or, in the interests of mutual understanding, to all his subordinates of the next lower echelon or even to his entire command. The scope of the plan also may be a determining factor. If the plan covers an entire campaign or an extended series of operations, its dissemination is less likely and less general than if it is concerned with only a minor operation.

During peace, in exercises simulating war, the complete plan is frequently given circulation for purposes of training.

Subsidiary Plans. Subsidiary plans, discussed in Chapter VII (page 168), are frequently issued as annexes to the Operation Plan (page 196) which carries into effect the basic Decision. The commander will be the judge as to whether alternative subsidiary plans are necessary or desirable under the circumstances.

Essentials of Military Directives.

General. By the issue of directives, a commander communicates to his subordinates his plans or such parts of them as he desires. Directives may be oral or written, or may be transmitted by despatch.

Whether a directive is to be effective upon receipt, or under specified conditions, or at a specific time, or upon further instructions from the commander, will be evident from its nature, or will be prescribed in the body of the directive itself.

The manner of determining the details of a plan has been discussed in