BY ORDER OF THE SECRETARY OF THE AIR FORCE AIR FORCE

BY ORDER OF THE

SECRETARY OF THE AIR FORCE

AIR FORCE POLICY DIRECTIVE 90-11

6 AUGUST 2015

Special Management

AIR FORCE STRATEGY, PLANNING, AND

PROGRAMMING PROCESS

COMPLIANCE WITH THIS PUBLICATION IS MANDATORY

ACCESSIBILITY:

Publications and forms are available on the e-Publishing website at

www.e-publishing.af.mil for downloading or ordering.

RELEASABILITY:

There are no releasability restrictions on this publication.

OPR: AF/A8X

Supersedes: AFPD90-11, 26 March 2009

AFI90-10, 16 June 2006 and

AFPD10-28, 17 April 2012

Certified by: AF/A5/8

(Lt Gen James M. Holmes)

Pages: 11

This publication implements Department of Defense Directive (DoDD) 1200.17, Managing the

Reserve Components as an Operational Force, 29 October, 2008 and is consistent with DoDD

7045.14, The Planning, Programming, Budgeting and Execution (PPBE) Process, 25 January,

2013. It applies to all personnel involved with Air Force Strategy, Planning, and Programming

including the Total Force: Regular Air Force, Air Force Reserve and Air National Guard.

Refer recommended changes and questions about this publication to the Office of Primary

Responsibility (OPR) using the AF Form 847, Recommendation for Change of Publication; route

AF Forms 847 from the field through appropriate functional’s chain of command. Ensure all

records created as a result of processes prescribed in this publication are maintained in

accordance with Air Force Manual (AFMAN) 33-363, Management of Records, and disposed of

in accordance with the Air Force Records Disposition Schedule (RDS) in the Air Force Records

Information Management System (AFRIMS).

SUMMARY OF CHANGES

This document establishes the Air Force Strategy, Planning and Programming Process (SP3).

1. Policy. The Air Force will use the Strategy, Planning and Programming Process (SP3) to

integrate strategy, concepts, and capability development to identify force objectives and

programming to support practical organization, training, equipping and posture across the Total

Force.

2 AFPD90-11 6 AUGUST 2015

1.1. SP3 identifies feasible Air Force-oriented effects to support regional and functional end

states directed by the Secretary of Defense (SecDef); affordable concepts of operations to

generate desired effects; sustainable capabilities to support effects-based concepts of

operations; and, practical organization (including force posture and presentation). It also

identifies training and equipment to support capabilities; a realistic sequence of objectives

with decision points over the next 30 years that include investments/divestments to achieve

needed capabilities; resource guidance necessary to realize the intent of the planning process;

and budgeting and execution by which to measure the success of the program.

1.2. The three main elements of the SP3 are: 1) Strategic Planning (AF Strategy

development, AF Strategic Master Plan (SMP), AF Strategic Planning Guidance (SPG),

Resource Allocation Plan, Plan to Program Guidance (PPG) and support plans), 2) Program

Planning and Development (Program Objective Memorandum (POM) development), and 3)

Program Defense.

These three elements will use a corporate decision making process, tailored by the process owner

and defined in applicable AFIs, to ensure Major Commands (MAJCOM), Core Function Leads

(CFL), Air Reserve Component (ARC), Headquarters Air Force (HAF), Direct Reporting Units

(DRU) and Forward Operating Agencies (FOA) perspectives are included and addressed.

1.3. Strategic Planning: Ensures strategy and plans serve as the overarching framework for

program development in a repeatable, defensible manner with a unified and understandable

AF message linked to strategic guidance.

1.3.1. AF Strategy provides enduring Service purpose, strategic context, vision and

direction for supporting the National Defense Strategy (NDS). The AF Strategy

establishes realistic vectors to guide decisions over the next 30 years to navigate through

existing obstacles and prepare for the future. It is informed by force development

concepts that present new ideas for airpower employment assessed through wargaming

and other experimentation activities.

1.3.2. AF SMP supports and implements the AF Strategy across the Total Force by

providing resource-informed direction for organizational development, training and

equipment decisions to best achieve strategic objectives and support identified concepts

of operation. The SMP links the strategic vectors and priorities developed in the AF

Strategy to a Resource Allocation Plan.

1.3.3. AF SPG provides direction for subordinate planners and headquarters staff to

develop and update support plans. It includes planning assumptions, concepts and

capabilities development and investment/divestment planning guidance with key

parameters, and science & technology (S&T) planning priorities. The SPG details force

planning assumptions that form the basis for developing the Resource Allocation Plan

and additional force excursions.

1.3.4. Support plans are developed at the MAJCOM and Core Function level for use in

refinement of the fiscally constrained Resource Allocation Plan, capability gap

prioritization, investment/divestment plans and S&T priorities. They provide detailed

analysis in support of the SMP objectives and an entry point into SP3. Flight plans are

MAJCOM plans or functional plans by Deputy Chiefs of Staff used to achieve alignment

AFPD90-11 6 AUGUST 2015 3

across functional areas, influence resourcing decisions, provide informative inputs to

Support Plans, or direct discrete activities.

1.3.5. Resource Allocation Plan identifies budget allocations and

investments/divestments selected to support Air Force strategic objectives and concepts.

Developing the Resource Allocation Plan provides senior leaders options for alternative

concepts for lines of operation, organization, force structure component composition,

training and equipping at annual Planning Choices events and is captured in the PPG.

1.4. Program Planning and Development: Creates the AF portion of the DoD Future Years

Defense Program and is codified in the annual POM.

1.4.1. PPG provides direction for SAF/ Financial Management and Comptroller (FM) to

develop the POM consistent with the Resource Allocation Plan.

1.4.2. Program development aligns the Resource Allocation Plan with Congressional

directives, Office of Secretary of Defense (OSD) guidance, the SMP, Resource

Allocation Plan, PPG and other critical near-year directives.

1.5. Program Defense: Justifies the decisions made during the POM presenting a consistent

narrative for outside agencies.

1.5.1. The Air Force defends the POM through the OSD-led program review and budget

review. The defense uses realistic fiscal, operational and political realities but will have

its foundation in the AF Strategy, SMP, and the Resource Allocation Plan.

1.6. Assessments: Presents a description of how well strategic planning supports AF

guidance.

1.6.1. The Air Force will assess alignment of SP3 products and processes with strategic

guidance established by the AF Strategy and progress towards meeting goals and

objectives established by the AF SMP and its associated annexes. Findings, insights, and

recommendations will be reported to 4-star decision forums on a consistent, repeatable

cycle to enable timely decisions that drive successful SP3 execution.

2. Responsibilities.

2.1. The Secretary of the Air Force (SecAF) and Chief of Staff of the Air Force (CSAF) will

administer and implement the SP3 process to:

2.1.1. Establish strategic direction.

2.1.2. Approve the Strategy, SMP, SPG, Resource Allocation Plan and POM.

2.1.3. Oversee, conduct and approve results of Headquarters Air Force (HAF) Title 10

Wargames.

2.2. Assistant Secretary of the Air Force for Acquisition (SAF/AQ) shall:

2.2.1. Support enterprise affordability assessments.

2.2.2. Recommend acquisition approach and program strategies to support development

of the Resource Allocation Plan.

2.2.3. Provide inputs to SP3 for research, development, test, and evaluation (RDT&E),

S&T activities, and developmental planning (DP).

4 AFPD90-11 6 AUGUST 2015

2.2.4. Support and assist AF/A5/8 in strategic planning and SAF/FM in programming.

2.3. Chief, Information Dominance and Chief Information Officer (SAF/CIO A6) shall:

2.3.1. Perform information technology (IT) budget and reviews to maximize the

effectiveness of investments/divestments in the cyberspace domain.

2.3.2. Support and assist AF/A5/8 in strategic planning and SAF/FM in programming.

2.3.3. Identify and advocate cyberspace/IT investment requirements for timely

submission to the POM process.

2.3.4. Participate in analyses of force capabilities in future scenarios and support

development of future operational concepts.

2.3.5. Provide cyberspace/IT investment/divestment guidance to mission area

stakeholders.

2.4. Assistant Secretary of the Air Force for Financial Management and Comptroller

(SAF/FM) shall:

2.4.1. Develop the AF POM. Integrate, evaluate, and analyze the USAF Program across

the FYDP.

2.4.2. Program and defend all Air Force appropriations, force structure and manpower,

including option development and pricing. Maintain programmatic data structure,

processes and systems.

2.4.3. Provide funding guidance to assist AF/A5/8 in building the Resource Allocation

Plan’s Total Obligation Authority (TOA) targets.

2.4.4. Conduct financial and budgetary analysis for all Air Force appropriations to

support and assist AF/A5/8’s development of fiscally informed RAP and PPG.

2.4.5. Prepare guidance, direction, and other governance of the formulation, review and

execution of plans, policies, and programs relative to cost, economic, and business case

analysis across the Air Force.

2.4.6. SAF/FM will lead the AF defense of the POM. In turn, after Budget formulation,

coordinate with AF/5/8 the defense of the Air Force Budget submission.

2.5. Inspector General of the Air Force (SAF/IG) shall:

2.5.1. Support and assist AF/A5/8 in strategic planning and SAF/FM in programming.

2.5.2. Provide or facilitate the provision of inspections expertise, complaints resolution,

investigative activities, and counterintelligence support.

2.5.3. Oversee policy, planning, programming, resource allocation, and program

evaluation for those programs within the SAF/IG portfolio.

2.6. Director, Legislative Liaison, Office of the Secretary of the Air Force (SAF/LL) shall

liaise with Congress, Executive Office of the President, OSD, and other government agencies

regarding the SMP, the POM, and other strategic planning initiatives.

2.7. Director of Public Affairs, Office of the Secretary of the Air Force (SAF/PA) shall

inform key audiences of the SMP, the POM, and other strategic planning initiatives.

AFPD90-11 6 AUGUST 2015 5

2.8. Deputy Chief of Staff for Manpower, Personnel and Services (AF/A1) shall:

2.8.1. Develop and administer policies for identification and adjustment of requirements

for Air Force manpower, personnel, and services that flow from the SP3 processes.

2.8.2. Provide methods for improving force quality, discipline, leadership, and

management to inform development of the SMP and its associated annexes.

2.8.3. Support and assist AF/A5/8 in strategic planning and SAF/FM in programming

2.9. Deputy Chief of Staff for Intelligence, Surveillance and Reconnaissance (AF/A2) shall:

2.9.1. Support and assist AF/A5/8 in strategic planning and SAF/FM in programming.

2.9.2. Oversee policy, planning, programming, resource allocation, and program

evaluation for the Military Intelligence Program.

2.10. Deputy Chief of Staff, Operations (AF/A3) shall:

2.10.1. Support and assist AF/A5/8 in strategic planning and SAF/FM in programming.

2.10.2. Participate in analyses of force capabilities in future scenarios and support

development of future operational concepts.

2.11. Deputy Chief of Staff for Logistics, Installations and Mission Support (AF/A4) shall:

2.11.1. Support and assist AF/A5/8 in strategic planning and SAF/FM in programming.

2.11.2. Participate in analyses of force capabilities in future scenarios and support

development of future operational concepts.

2.11.3. Serve as the lead for SP3 inputs related to logistics, engineering, and force

protection.

2.11.4. Provide perspectives on Joint and Sister Service implications of SP3 products.

2.11.5. Prepare follow-on guidance for responsible capability requirements development

and investment/divestment planning.

2.12. Deputy Chief of Staff, Strategic Plans and Requirements (AF/A5/8) shall:

2.12.1. Develop the AF Strategic Environment Assessment (AFSEA), Strategy, SMP,

SPG, the Resource Allocation Plan across the Total Force, and the PPG.

2.12.2. Provide guidance for force development concepts.

2.12.3. Integrate with Joint and Sister-Service concept development.

2.12.4. Use wargaming to examine force development concepts and future force

structure.

2.12.5. Provide guidance for capability requirements development and key parameters

for major investment/divestment planning; support planning tasks and resource guidance

to CFLs, MAJCOMs/ARC/DRUs/FOAs/HAF.

2.12.6. Approve Analyses of Alternatives Study Guidance before submitting to OSD.

2.12.7. Support capability gap prioritization and readiness and risk assessments.

2.12.8. Conduct Planning Choices events.

6 AFPD90-11 6 AUGUST 2015

2.12.9. Provide support during POM development and defense.

2.12.10. Monitor implementation and execution of the AF Strategy across all SP3

products and processes.

2.12.11. Assess the alignment and progress of guidance established by the AF Strategy

and SMP and report those assessments on a repeatable cycle.

2.12.12. Align SP3 with DoD and applicable AF strategic planning processes.

2.12.13. Conduct Enterprise Affordability Assessments.

2.13. Director, Studies, Analyses and Assessments (AF/A9) shall:

2.13.1. Support and assist AF/A5/8 in strategic planning and SAF/FM in programming.

2.13.2. Provide analytical support for concept development and future force structure

options with respect to Defense Strategic Guidance and in support of SP3.

2.14. Assistant Chief of Staff, Strategic Deterrence and Nuclear Integration (AF/A10) shall:

2.14.1. Support and assist AF/A5/8 in strategic planning and SAF/FM in programming.

2.14.2. Participate in analyses of force capabilities in future scenarios and support

development of future operational concepts.

2.15. Core Function Leads (CFLs) shall collaborate with stakeholders across the AF to align

strategy, operating concepts, resource allocation planning and programming and capability

development for their assigned Core Functions.

2.16. MAJCOMs, CFLs, ARC, DRUs, FOAs, and HAF shall support the development of the

Resource Allocation Plan with force development concepts, support plans, and programmatic

detail.

2.17. Non-lead MAJCOMs, ARC, DRUs, and FOAs shall collaborate with Lead Commands

to ensure representation in specific weapons system proposals and CFLs for future force

options.

DEBORAH LEE JAMES

Secretary of the Air Force

AFPD90-11 6 AUGUST 2015 7

Attachment 1

GLOSSARY OF REFERENCES AND SUPPORTING INFORMATION

References

DoDD 1200.17, Managing the Reserve Components as an Operational Force, 29 October, 2008.

DoDD 7045.14, The Planning, Programming, Budgeting, and Execution (PPBE) Process, 25

January, 2013

DoDD 5105.77, National Guard Bureau, 21 May 2008

Title 10, United States Code

Title 32, United States Code

AFI 16-501, Control and Documentation of Air Force Programs, 15 August, 2006

AFMAN 33-363, Management of Records, 1 March, 2008

Prescribed Forms

None

Adopted Forms

AF Form 847, Recommendations for Change of Publication

Abbreviations and Acronyms

AFI—Air Force Instruction

AFPD—Air Force Policy Directive

AFR—-Air Force Reserve

AFSEA—Air Force Strategic Environment Assessment

ANG—Air National Guard

ARC—Air Reserve Component (Air Force Reserve Command & Air National Guard)

CFL—Core Function Lead

CFSP—Core Function Support Plan

CSAF—Chief of Staff of the Air Force

CVA—Assistant Vice Chief of Staff of the Air Force

DoD—Department of Defense

DOTMLPF-P—Doctrine, Organization, Training, Materiel, Leadership and Education,

Personnel, Facilities and Policy

DP—Developmental Planning

DPG—Defense Planning Guidance

DRU—Direct Reporting Unit

8 AFPD90-11 6 AUGUST 2015

FM— Financial Management and Comptroller

FOA—Field Operating Agency

FPC—Force Planning Construct

FYDP—Future Year Defense Program

HAF—Headquarters Air Force

IT—Information Technology

MAJCOM—Major Command

NDS—National Defense Strategy

OSD—Office of the Secretary of Defense

PB—President’s Budget

PBR—Program Budget Review

POM—Program Objective Memorandum

PPBE—Planning, Programming, Budgeting, and Execution Process

PPG—Plan to Program Guidance

RDT&E—Research, Development, Test & Evaluation

SCF—Service Core Function

QDR—Quadrennial Defense Review

S&T—Science and Technology

SecAF—Secretary of the Air Force

SECDEF—Secretary of Defense

SMP—Strategic Master Plan

SP3—Strategy, Planning, and Programming Process

SPG—Strategic Planning Guidance

TOA—Total Obligation Authority

Terms

Air Force Strategic Environment Assessment—The AFSEA describes domestic and

international trends in the future strategic environment as well as the implications of those trends

for air, space, and cyberspace operations over the next 20 years. The AFSEA presents an

Airman's perspective on future constraints, restraints, threats, and opportunities while promoting

consistency throughout the Air Force Strategy, Planning, and Programming Process (SP3) and

the broader planning activities across the Air Force. The AFSEA informs follow-on analyses

and decision-making beginning with the Air Force Strategy development and provides the

baseline environment to be considered during the development of the Strategic Master Plan

(SMP), Strategic Planning Guidance (SPG), and support plans.

AFPD90-11 6 AUGUST 2015 9

Air Force Strategic Master Plan—The Air Force Strategic Master Plan (SMP) sets goals and

objectives for the AF in support of national objectives. The SMP is the primary source document

for the development and alignment of organizational strategic plans across the entire Air Force.

The alignment of Air Force priorities and goals to national guidance shall inform planning and

actions at successively lower level of Air Force organizations and will form the basis for the

development of future force options and performance management plans.

Air Force Strategic Planning Guidance—The AF SPG provides direction for subordinate

planners and headquarters staff to develop and update support plans. It includes planning

assumptions, concepts and capabilities development and investment/divestment planning

guidance, S&T planning priorities as well as key parameters for major investments/divestments.

The SPG provides direction to provide support for corporate decisions on required capacities,

capabilities and risk mitigation as well as directed studies, analysis and Air Force leadership

initiatives. The SPG details Resource Allocation Plan assumptions that form the basis for

developing the Resource Allocation Plan and additional force excursions.

Air Force Strategy—A capstone document that looks out 30-years and explains how the Air

Force will organize, train and equip to provide Global Vigilance, Global Reach, and Global

Power in the future security environment. The Strategy describes the guiding principles used to

influence and inform decisions related to organizational structures, planning, programming,

acquisition and requirements.

Core Function Lead—SecAF/CSAF-appointed senior leader responsible for specific Core

Functions (CF) providing AF-level, long-term views. CFLs integrate Total Force concepts,

capabilities, modernization, and resourcing to ensure future assigned core capabilities across the

range of military operations as directed by AF Strategy and Strategic Planning Guidance. CFLs

are responsible for the Core Function Support Plan and recommendations for the development of

the POM for the assigned CF. CFLs have tasking authority regarding CF issues to identify

enabling capabilities and integration requirements/opportunities.

Core Function Support Plans—MAJCOM and CFL staffs develop these plans to support annual

refinement of the fiscally constrained 30-year Resource Allocation Plan, capability gap

prioritization, capabilities investment, and S&T priorities. CFSPs provide detailed analysis in

support of the AF Strategy and SMP objectives and an entry into the SP3.

Defense Planning Guidance—The DPG, issued by the SecDef, sets objectives for future force

capabilities and is used to assess the planning and programming priorities of the Military

Departments and Defense agencies. The DPG’s main objectives are to (1) implement aspects of

DoD’s future force vision captured in the Quadrennial Defense Review (QDR), (2) guide

development of planning and programming initiatives, and (3) help meet Combatant Commander

needs through development of joint capability portfolios.

Developmental Planning—An activity to understand and synthesize future warfighting needs

and reconcile those with available and potential capabilities, concepts, and enabling

technologies, and should be a key process to support AF strategic decisions.

Direct Reporting Unit—A subdivision of the Air Force, directly subordinate to the CSAF. A

DRU performs a mission that does not fit into any of the MAJCOMs. A DRU has many of the

same administrative and organizational responsibilities as a MAJCOM. (AFI 38-101, Air Force

Organization)

10 AFPD90-11 6 AUGUST 2015

Field Operating Agency—A subdivision of the Air Force under the operational control of a HQ

USAF functional manager. An FOA carries out field activities outside the scope of any of the

MAJCOMs.

Flight Plans—Top-level plans that inform resourcing decisions (other than Support Plans), such

as MAJCOM plans or functional plans by Deputy Chiefs of Staff, used to achieve alignment

across functional areas, influence resourcing decisions, provide informative inputs to Support

Plans, or direct discrete activities. They may also be used to develop planning choice proposals.

There are no specific requirements directing flight plan development, timeline, or contents but if

written, flight plans must be aligned with the Strategy or SMP.

Force Development Concept—Links strategic guidance to the development and employment of

future force capabilities and serves as "engines for transformation" that may ultimately lead to

doctrine, organization, training, materiel, leadership and education, personnel, facilities, and

policy (DOTMLPF-P) changes.

Force Planning Construct (FPC)—Established by the 2006 QDR, the FPC provides capstone

guidance for overall size and composition of the joint force (capacity), types of forces and

systems (capabilities), and the levels of effort (steady-state or surge) needed to implement the

NDS. The FPC focuses on three fundamental elements: (1) homeland defense, (2) war on

terror/irregular warfare, and (3) conventional campaigns.

Force Structure—Numbers, size, and composition of the units that comprise our Defense forces;

e.g., wings.

Military Intelligence Program—Funds intelligence programs, projects, and activities that

primarily support military operations or address a unique DoD requirement.

National Defense Strategy—Describes the projected security environment and the key military

missions for which we will prepare.

National Security Strategy—Broad document published by the National Security Council

outlining the defense, economic, internal, and international security objectives of the United

States.

Plan to Program Guidance—Provides direction to develop POM based on applicable OSD

guidance, outcomes of Planning Choices and Resource Allocation Plan.

Planning Choice—Any specific deviation from the draft Resource Allocation Plan that will be

considered for inclusion during that year’s planning process.

Planning Choices Event—An annual strategic forum during which senior leaders review

assumptions, update Guiding Principles and consider detailed force structure options and

approve incorporation into the 30-year Resource Allocation Plan.

Planning, Programming, Budgeting, and Execution System—A cyclic process containing four

distinct and interrelated phases:

Planning—produces a fiscal forecast, planning force by defining and examining alternative

forces and weapons and support systems, and program guidance;

Programming—creates the AF portion of the DoD FYDP codified in the annual POM.

Budgeting—formulates and controls resource requirements, allocation, and use; and

AFPD90-11 6 AUGUST 2015 11

Execution—measures and validates the performance of the planning, programming, and

budgeting phases.

President’s Budget—The budget for a particular fiscal year transmitted to the Congress by the

President in accordance with the Budget and Accounting Act of 1921, as amended.

Program Objective Memorandum—The final product of the programming process within the

DoD, the Components’ POM displays the resource allocation decisions of the Military

Departments in responding to and in accordance with Defense Guidance.

Resource Allocation Plan—The Resource Allocation Plan (RAP) is the 30-year force structure

and funding allocation plan for Air Force Blue-TOA. The RAP is organized as a fiscally

constrained and risk informed effects-based capability portfolio. It is adjusted annually in order

to adapt to evolving fiscal and strategic guidance.

Service Core Functions—Functional areas that delineate the appropriate and assigned core

duties, missions, and tasks of the USAF as an organization, responsibility for each of which is

assigned to a CFL. SCFs express the ways in which the USAF is particularly and appropriately

suited to contribute to national security, although they do not necessarily express every aspect of

what the USAF contributes to the nation.

Strategic Planning—The process of systematically evaluating the nature and direction of the

strategic environment, identifying far-term goals and objectives, and developing strategies to

reach the goals and objectives to support resource allocation. Strategic planning embraces a

capabilities-based planning methodology and performance planning, and covers near-, mid-, and

long-term planning horizons as determined by the needs of the specific organization.

Strategy, Planning, and Programming Process (SP3)—The Air Force SP3 is comprised of

distinct, interrelated elements set in the context of Presidential and DoD guidance. The elements

are categorized as Strategic Planning, Program Planning and Development, and Program

Defense.

Support Plans—Provide a long-term view integrating Total Force concepts, capabilities,

modernization, and resourcing to ensure future core function capabilities across the range of

military operations as directed by the Strategic Master Plan and the Strategic Planning Guidance.

Title 10 Wargame—A CSAF-directed, HAF-conducted wargame which explores current and

future issues impacting doctrine, force structure and concepts (future, employment, operational,

etc.). HAF conducts two Title 10 wargames: (1) Unified Engagement (UE) is the biennial

wargame operationally focused to address military challenges and concept exploration

(traditionally 10-12 years out), and (2) The AF Future Capabilities wargame, also known as the

Futures Game (FG), is the biennial wargame focused on addressing future concepts and force

structure alternatives (traditionally 20+ years out).

Total Force—The combined labor force (i.e. mix of personnel resources) of the Regular Air

Force, AF Reserve Command, Air National Guard, and the government civilian workforce.