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DOTMLPF
DOTMLPF
DOTMLPF
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DOTMLPF (pronounced "Dot-MiL-P-F") stands for doctrine, organization, training, material, leadership and education, personnel, and facilities. It is used by the US Department of Defense[1] and was defined in the Joint Capabilities Integration Development System, or JCIDS Process as the framework to design what administrative changes and/or acquisition efforts would fill a capability need[2][3]: 47:00  required to accomplish a mission.[4] Because combatant commanders define requirements in consultation with the Office of the Secretary of Defense (OSD), they are able to consider gaps in the context of strategic direction for the total US military force and influence the direction of requirements earlier in the acquisition process, in particular, materiel.

DOTMLPF

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It also serves as a mnemonic for staff planners to consider certain issues prior to undertaking a new effort.

Here is an example of how DOTMLPF would be interpreted in the military context:

  • Doctrine: the way they fight, e.g., emphasizing maneuver warfare combined air-ground campaigns.
  • Organization: how they organize to fight; divisions, air wings, Marine-Air Ground Task Forces (MAGTFs), etc.
  • Training: how they prepare to fight tactically; basic training to advanced individual training, various types of unit training, joint exercises, etc.
  • Materiel: all the “stuff” necessary to equip our forces that DOES NOT require a new development effort (weapons, spares, test sets, etc., which are “off the shelf” both commercially and within the government)[5]
  • Leadership and education: how they prepare their leaders to lead the fight from squad leader to 4-star general/admiral; professional development.
  • Personnel: availability of qualified people for peacetime, wartime, and various contingency operations.
  • Facilities: real property; installations and industrial facilities (e.g. government owned ammunition production facilities) that support the forces

The idea is to fix the capability gap, and CJCSI 3170.01G – Joint Capabilities Integration and Development System, 1 March 2009[clarification needed] is the one governing instruction on materiel (requiring new defense acquisition programs) and non-materiel (not requiring new defense acquisition program) solutions.[6]

The Defense Acquisition University glossary gives the following definitions.

  • Material: Elements, constituents, or substances of which something is composed or can be made. It includes, but is not limited to, raw and processed material, parts, components, assemblies, fuels, and other items that may be worked into a more finished form in performance of a contract.[7]
  • Materiel: Equipment, apparatus, and supplies used by an organization or institution.[7]
  • Material specification: Applicable to raw material (chemical compound), mixtures (cleaning agents, paints), or semi-fabricated material (electrical cable, copper tubing) used in the fabrication of a product. Normally, a material specification applies to production, but may be prepared to control the development of a material.[7]
  • Materiel solution: A new item (including ships, tanks, self-propelled weapons, aircraft, etc., and related spares, repair parts, and support equipment, but excluding real property, installations, and utilities), developed or purchased to satisfy one or more capability requirements (or needs) and reduce or eliminate one or more capability gaps.[7]

DOTMLPF-P

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A 'DOTMLPF-P' acronym (doctrine, organization, training, materiel, leadership and education, personnel, facilities, and policy) was used during the US Army's process of developing and fielding laser Directed Energy-Maneuver Short-Range Air Defense (DE-MSHORAD) on Strykers. The DOTMLPF-P acronym is further incorporated by the Army Rapid Capabilities and Critical Technologies Office (RCCTO)'s "Octagon"— a stakeholder forum attended by representatives for doctrine, organization, training, materiel, leadership and education, personnel, facilities, and policy.[8]

Similar acronyms

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DOTMLPF-I

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NATO uses a similar acronym, DOTMLPF-I, the "I" standing for "Interoperability", meaning the ability to be interoperable with forces throughout the NATO alliance.[9] NATOs AJP-01 Allied Joint Doctrine (2022) describes interoperability as the "ability of NATO, other political departments, agencies and, when appropriate, forces of partner nations to act together coherently, effectively and efficiently to achieve Allied tactical, operational and strategic objectives".[10] Interoperability can be achieved within the three dimensions of interoperability; the technical, the procedural and the human dimension.

NATO's capability development (CAPDEV) is part of the NATO Defence Planning Process (NDPP), where DOTMLPFI is used as a framework to test and develop these concepts and capabilities.[11] While developing a concept, NATO describes two orientations; either to transform or to find a solution. NATO CD&E Handbook (2021) describes using the DOTMPLFI framework and the lines of development when trying to find the solution.[12]

Norway

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The Norwegian Defence Research Establishment (NDRE) has established a dedicated innovation center for all the stakeholders within the Norwegian defense sector, called 'ICE worx'. 'ICE worx's' model for rapid innovation is used when modern technology with a high technical readiness level is available to find new solutions with only some minor needs for development. Said rapid innovation model uses the DOTMLPFI framework to identify how the development and experimentation of new technology will effect the different factors.[13]

DOTMLPFI-IE

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The Norwegian Armed Forces (NAF) used the DOTMLPFI framework to develop a 'total project plan' (TPP) in investment processes. The TPP was formalized in the NAF in 2018. In the procurement of materiel, which is done by the Norwegian Defence Material Agency (NDMA), they use the PRINSIX project model, based on the PRINCE2 method. The TPP is formed in close coordination with the project plan developed by NDMA, and where the project plan covers how the materiel procurement is managed, the TPP covers all the factors needed for the procurement to reach the business goals and achieve the operative benefits of the investment.

However, to ensure all factors in materiel investments are taken into consideration, prior to the NAF being ready to start using materiel and equipment, they added an I for Information systems and E for Economy.

Information systems include communication systems, battle management systems, radios or information security. Often Information systems are not part of the specific materiel investment project, but are still regarded as government-furnished equipment (GFE). Economy was added to the DOTMLPFI-IE because NAF in 2015 (and in 2024) got a rapport from the NDRE stating that "Operating costs are given little weight in investment decisions".[14] Economy as its own factor in the TPP is to ensure the different processes both before, during and after the materiel procurement is done, is planned with in order to mitigate risks relating to operating costs.

References

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DOTMLPF

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DOTMLPF (pronounced "dot-mill-pee-eff") is a holistic framework employed by the United States Department of Defense (DoD) to systematically assess and address capability gaps in military operations and force development. It stands for Doctrine, Organization, Training, Materiel, Leadership and Education, Personnel, and Facilities, providing a structured lens to evaluate non-materiel and materiel solutions across these interconnected domains. Developed as part of the Joint Capabilities Integration and Development System (JCIDS), this acronym guides decision-makers in identifying changes needed to enhance warfighting effectiveness, from tactical execution to strategic resourcing. The framework originated within the JCIDS process, formalized in Chairman of the Instruction (CJCSI) 3170.01G in March 2009, to ensure comprehensive beyond just equipment procurement. Prior to this, similar concepts evolved from earlier DoD planning methodologies, but JCIDS integrated DOTMLPF as a core tool for capability portfolio management, emphasizing integrated solutions over siloed approaches. In practice, DOTMLPF serves as the initial step in the Functional Solutions (FSA) phase of JCIDS, where capability deficiencies identified in a preceding Functional Needs are evaluated to recommend viable paths forward, such as doctrinal updates or organizational restructurings; some applications explicitly include as an eighth element (DOTMLPF-P). Each element of DOTMLPF addresses a distinct yet interdependent aspect of military capability:
  • Doctrine encompasses the fundamental principles and procedures guiding how forces conduct operations, such as tactics.
  • Organization refers to the command structures and unit configurations, like divisions or air wings, that enable mission accomplishment.
  • Training involves the methods and programs to prepare personnel, ranging from basic individual skills to complex exercises.
  • Materiel covers the physical items and support systems, including weapons, , and spares.
  • Leadership and Education focuses on developing leaders through professional at all levels, from junior officers to general officers.
  • Personnel ensures the , retention, and assignment of qualified individuals to meet force requirements.
  • Facilities includes the and , such as bases, training ranges, and maintenance depots, necessary for operations.
Variations of the framework exist internationally and in specific contexts; for instance, some U.S. applications add (DOTMLPF-P) to integrate overarching DoD guidelines, while NATO employs DOTMLPF-I, adding to align allied forces. In the U.S. Army and other services, DOTMLPF underpins modernization efforts, including the DOTMLPF Change Recommendation (DCR) for non-materiel adjustments to or organization. This enduring tool remains central to DoD's adaptive planning, ensuring that capability enhancements are balanced, sustainable, and aligned with national security objectives as of 2025.

Overview

Definition

DOTMLPF is an employed in U.S. and planning to denote a holistic framework for assessing and developing capabilities across multiple domains. It expands to , , , , and , Personnel, and Facilities. The term is pronounced "Dot-MiL-P-F," facilitating its use as a mnemonic device for systematic evaluation in military contexts. This originated as a structured tool within U.S. Department of Defense processes to ensure comprehensive consideration of non- and solutions for capability gaps. Doctrine refers to the fundamental principles that guide the employment of forces in coordinated action toward a common objective, serving as the basis for operations and concepts. Organization encompasses command structures and unit compositions designed to accomplish operations, functions, or activities, often requiring adjustments to align with evolving strategic needs. Training involves the preparation of individuals and units through individual, staff, and collective exercises, grounded in doctrine to enhance readiness for missions. Materiel includes equipment, weapons, and supplies essential for improving joint force capabilities, forming the basis for requirements in addressing future challenges. Leadership and Education focuses on the development of leaders through formal and informal means, such as Joint Professional Military Education (JPME), to align with visions for future joint operations. Personnel addresses manpower requirements, skills, and authorizations, ensuring military or civilian individuals possess the necessary qualifications to execute assigned missions and tasks. Facilities covers infrastructure such as bases and support installations critical for operations, including command and industrial sites that support functions.

Purpose

The DOTMLPF framework serves as a comprehensive analytical tool within capability development processes to identify, assess, and integrate solutions that address operational gaps holistically, encompassing both and non- domains. Its core objective is to ensure a thorough of all facets of transformation, extending beyond equipment acquisitions to promote synchronized changes across , organization, , , and , personnel, and facilities, thereby enabling integrated and effective force designs. This approach supports the Capabilities Integration and Development (JCIDS) by recommending changes that produce required force capabilities while mitigating risks associated with incomplete solutions. Key benefits of DOTMLPF include its ability to reveal interdependencies among its components, such as how the introduction of new might necessitate revisions to programs or organizational structures to maintain operational effectiveness. By facilitating this interconnected , the framework aids decision-makers in evaluating the feasibility, suitability, and acceptability of proposed force designs, ultimately enhancing , affordability, and adaptability across and service-specific operations. For instance, it ensures that non- adjustments, like updated tactics or personnel policies, are considered early to support materiel implementations, reducing lifecycle costs and operational risks. In distinction from materiel-only approaches, DOTMLPF emphasizes the prioritization of non-materiel solutions—such as doctrinal shifts or enhancements—to efficiently close capability shortfalls without over-relying on resource-intensive equipment . This broader perspective avoids siloed , fostering cost-effective alternatives that address systemic issues and promote sustainable readiness.

History

Origins in US Military Doctrine

The DOTMLPF framework was introduced in 2003 as a core component of the Joint Capabilities Integration and Development System (JCIDS), instituted by the Department of Defense to replace the materiel-centric Requirements Generation System (RGS) that had guided acquisitions since 1991. JCIDS integrated DOTMLPF to systematically evaluate capability gaps, ensuring solutions balanced technological acquisitions with doctrinal, organizational, and personnel adjustments for joint force effectiveness. This inception aligned with post-Cold War DoD reforms, particularly the transformation agenda in the 2001 Quadrennial Defense Review (QDR), which called for a capabilities-based model to address unpredictable threats through agile, non-materiel innovations alongside legacy system recapitalization. The QDR's emphasis on joint interoperability and rapid adaptability, driven by Secretary of Defense Donald Rumsfeld's vision, positioned DOTMLPF as essential for overcoming materiel biases in traditional acquisition processes.

Evolution and Standardization

The DOTMLPF framework was formally incorporated into U.S. in 2004 as part of the Joint Capabilities Integration and Development System (JCIDS) processes outlined in the Chairman of the Manual (CJCSM) 3170.01A. This manual established DOTMLPF as a structured analytical tool for assessing non- and solutions to capability gaps during the functional solutions phase of JCIDS, emphasizing its role in linking requirements development to joint transformation efforts. Subsequent revisions to the CJCSI 3170.01 series, such as the 2005 CJCSI 3170.01E, further integrated DOTMLPF into the broader validation and prioritization of joint military capabilities. The framework expanded in 2009 with the addition of policy considerations in CJCSI 3170.01G, evolving it into the DOTMLPF-P variant to address comprehensive change recommendations across , , , , and , personnel, facilities, and policy. This refinement was further codified in documents like the 2012 CJCSI 3170.01H, which consolidated prior instructions and aligned DOTMLPF-P with evolving joint warfighting needs. DOTMLPF was also integrated into service-specific publications, such as the U.S. Army's ADRP 1-02 (2016), where it is defined as encompassing , , , , and , personnel, and facilities to support operational and capability assessments. Over time, the emphasis on DOTMLPF shifted from its initial focus on military transformation to broader applications in sustainment and modernization, particularly in response to strategic priorities like those in the 2018 National Defense Strategy (NDS). The NDS highlighted the need for rapid capability development to counter competition, leveraging DOTMLPF across domains to enhance readiness, such as in sustainment efforts that addressed multiple DOTMLPF elements to align with NDS objectives. This evolution positioned DOTMLPF-P as a foundational tool for implementing NDS-driven reforms, including multi-domain operations and resilience, and continued into the 2022 NDS with emphasis on integrated deterrence and campaigning.

Components

Doctrine

In the DOTMLPF framework, doctrine encompasses the fundamental principles, tactics, techniques, and procedures that guide the employment of U.S. forces in coordinated action toward common objectives. These published guidelines, often articulated in publications, field manuals, and service-specific documents, provide the conceptual foundation for how forces operate across the spectrum of conflict. Doctrine emphasizes strategic alignment, ensuring that operational approaches support goals while adapting to emerging threats and technologies. Within the DOTMLPF-P analysis process, doctrine plays a critical role in identifying and addressing capability gaps by evaluating whether current principles adequately support mission requirements or if revisions are needed. This involves assessing adherence to existing doctrines and determining if non-materiel solutions, such as updated tactics or procedures, can resolve deficiencies before pursuing other framework elements. Changes to doctrine typically occur through the Joint Doctrine Development System, where new concepts are validated and incorporated into official publications like joint publications (JPs) to reflect evolving operational environments. For instance, doctrine directly informs training curricula by establishing the standards and methods for preparing personnel. Historical shifts illustrate doctrine's adaptability within DOTMLPF assessments. Following the , the U.S. transitioned from attrition-based approaches to the doctrine in 1982, which emphasized , deep strikes, and integrated air-ground operations to counter Soviet threats in . This doctrinal evolution addressed post-Vietnam critiques of rigid tactics and enhanced force effectiveness against conventional adversaries. In modern contexts, the integration of cyber elements has been formalized through Joint Publication 3-12, Cyberspace Operations (2022), which defines principles for offensive and defensive activities to support joint force operations across domains. These updates ensure doctrine remains relevant to hybrid threats, such as state-sponsored cyber attacks, by embedding digital capabilities into core warfighting guidance.

Organization

In the DOTMLPF framework, the Organization component addresses the allocation of forces into units, the establishment of command relationships, and the development of hierarchical structures to enable effective mission execution. This includes how personnel and equipment are assembled into operational formations, such as divisions, air wings, naval squadrons, or Marine Air-Ground Task Forces, to support warfighting functions. According to guidance, organizational changes may arise from validated joint concepts that propose new methods for structuring the force to better perform missions and enhance overall effectiveness. Within capability assessments, the element evaluates whether current structures align with evolving doctrines or necessitate restructuring to address gaps in joint operations. For instance, it analyzes the suitability of unit designs for integrating multi-domain capabilities, ensuring that command chains facilitate rapid and . The Association of the United States Army describes this as focusing on authorized, staffed, and resourced structures that support strategic objectives, often requiring DOTMLPF-P reviews to confirm feasibility before implementation. Organizational decisions also briefly inform personnel requirements by defining the scale and composition of units needed for missions. A prominent example of organizational reform is the Goldwater-Nichols Department of Defense Reorganization Act of 1986, which restructured the U.S. military to emphasize jointness by empowering the Chairman of the , unifying combatant commands under a single authority, and reducing service-specific silos to improve inter-service coordination. This act directly influenced DOTMLPF assessments by mandating changes in command relationships and force structures to support unified operations, as evidenced in subsequent joint exercises and deployments. Another key instance occurred post-2003 with the U.S. Army's shift to a modular force structure, centered on Brigade Combat Teams (BCTs) as self-sufficient, rapidly deployable units with integrated combat support. This reorganization, driven by lessons from and , enhanced flexibility and reduced reliance on larger divisions, undergoing rigorous DOTMLPF analysis to validate its impact on operational readiness.

Training

In the DOTMLPF framework, the Training component encompasses the processes and activities designed to develop and maintain the skills, , and proficiency of individuals, units, staffs, and forces to execute assigned missions effectively. This includes a range of activities such as basic and advanced individual training, unit-level exercises, and combined training events, and the integration of simulations to replicate operational environments. According to the Chairman of the Instruction (CJCSI) 3010.02E, training focuses on preparing forces to apply and concepts in dynamic scenarios, ensuring tactical and operational readiness without relying solely on solutions. The role of Training within DOTMLPF is to systematically identify deficiencies in current regimens that hinder mission accomplishment and recommend targeted enhancements, such as updated curricula, expanded exercise programs, or advanced simulation tools, to close capability gaps. During capability analysis, such as in the Joint Capabilities Integration and Development System (JCIDS), analysts evaluate whether observed shortfalls arise from inadequate training frequency, realism, or alignment with evolving threats, proposing non-materiel changes to bolster force preparedness. For instance, AcqNotes describes this as assessing tactical preparation methods, including whether joint exercises sufficiently address identified needs before pursuing equipment acquisitions. aligns briefly with by operationalizing its principles through practical application in exercises and simulations. A prominent example of adaptations occurred following the 2001 attacks and the subsequent operations in and , where the U.S. Army shifted focus from to (COIN) tactics, incorporating specialized exercises like Training Exercises (ATX) at Fort Rucker that used role players and simulations to prepare Combat Aviation Brigades for urban and stability operations. This adjustment, part of broader DOTMLPF changes by 2003, emphasized air-ground coordination and COIN-specific scenarios in Combat Training Centers to address the irregular threats encountered. In modern contexts, the integration of (VR) into training programs exemplifies proposed updates, enabling immersive simulations for medical, tactical, and decision-making skills that reduce costs and risks while enhancing retention; for example, the U.S. Army has adopted VR for and procedural training.

Materiel

In the DOTMLPF framework, the Materiel component encompasses all equipment, systems, spares, and repair parts required to enable forces to conduct operations effectively, including weapons, vehicles, support systems, and related technologies that are either commercially available off-the-shelf or developed by government programs. This includes items necessary for equipping, operating, maintaining, and supporting activities, but excludes , installations, and utilities. The focus is on tangible assets that directly contribute to mission accomplishment, ensuring they meet operational demands across the full life cycle from acquisition to disposal. Within the DOTMLPF analysis, serves as a critical lens for evaluating whether capability gaps arise from deficiencies in existing equipment or systems, prompting assessments of whether adaptations to current assets suffice or if entirely new acquisitions are required. If selected as the primary solution, it initiates formal acquisition processes under the Joint Capabilities Integration and Development System (JCIDS), including the development of Initial Capabilities Documents or Capability Development Documents to define requirements for new or modified approaches. This component also considers sustainment factors, such as environmental safety, occupational health, and human systems integration, to ensure long-term viability and with other DOTMLPF elements. solutions often depend on supporting facilities for storage, maintenance, and deployment to realize their full operational potential. Representative examples illustrate the Materiel component's application in addressing identified gaps. The U.S. Army's development of the M1E3 Abrams tank modernization program represents a solution to enhance armored capabilities against evolving threats, incorporating advanced features like improved modular and enhanced protection while building on the existing M1A2 SEPv4 platform. Similarly, the Department of Defense's pursuit of counter-small unmanned aircraft systems (C-sUAS) represents a targeted response to capability shortfalls in defending against proliferating drone threats, involving the acquisition of integrated systems like the Forward Station Layered Interception and Detection System (FS-LIDS) for detection, tracking, and neutralization using and electronic warfare technologies. These efforts underscore how Materiel analysis drives innovation in to close operational voids without relying solely on non-materiel changes.

Leadership and Education

In the DOTMLPF framework, the Leadership and Education component encompasses programs designed for the selection, development, and education of military leaders across all echelons, with a particular emphasis on professional military education (PME) to foster strategic thinking and decision-making capabilities. This includes structured curricula that integrate joint operations, , and adaptive problem-solving, often delivered through institutions like war colleges and senior-level courses. Unlike general training, these programs target and senior enlisted development to prepare individuals for command and policy roles. Within the broader DOTMLPF analysis, Leadership and Education plays a critical role in enabling leaders to respond to doctrinal shifts, technological advancements, and evolving threats by incorporating relevant updates into educational pipelines. For instance, joint concepts approved by the Chairman of the Joint Chiefs of Staff directly inform PME curricula, such as elective courses and research topics in programs like the Pinnacle, Capstone, and Keystone courses for general officers, flag officers, and senior non-commissioned officers. Curriculum reforms are periodically reviewed—annually through coordination with the Joint Staff J-7—to align education with strategic needs, ensuring leaders can integrate new capabilities like cyber operations or multi-domain warfare. This component thus bridges conceptual learning with practical application, promoting adaptability without altering manpower structures. Post-World War II reforms exemplified the emphasis on leader development through the reestablishment of key institutions. The U.S. Army War College, suspended during the war, reopened in 1950 at , , to resume its focus on strategic education for senior officers, later relocating to in 1951. Similarly, the was founded in 1946 to provide interservice education on policy, marking a shift toward joint training in response to wartime lessons on unified command. These initiatives established dedicated leadership tracks within officer education, such as intermediate and senior PME phases, to cultivate expertise in and interagency coordination.

Personnel

In the DOTMLPF framework, the Personnel component addresses the military and civilian individuals required to accomplish assigned missions, tasks, and activities, encompassing the numbers, skill sets, and necessary to support operational needs. This includes evaluating the availability of qualified personnel for peacetime, wartime, and contingency operations, ensuring that the right individuals with matching skill sets are assigned to appropriate occupational specialties. Joint concepts under this component may necessitate new individual and collective skills, which are tracked and developed through Service and joint personnel systems to meet evolving requirements. The Personnel element plays a critical role in DOTMLPF assessments by determining whether the current force structure possesses the appropriate people to execute new or modified missions, often leading to recommendations for recruiting, retention, or restructuring strategies to address capability gaps. It evaluates potential shortfalls in placing qualified and trained personnel into key positions, thereby influencing broader force design decisions. Personnel requirements interact with the component, as individuals fill authorized slots within established structures to enable mission accomplishment. Examples of Personnel considerations in DOTMLPF analyses include end-strength adjustments during military drawdowns, such as the U.S. 's reduction from 570,000 active component personnel in 2010 to 490,000 by 2017, which required strategic manpower planning to maintain readiness while cutting overall numbers amid constraints. Another instance involves initiatives for specialized cyber personnel, where the Department of Defense has applied DOTMLPF-P to develop a dedicated structure, addressing shortages in skilled operators through targeted recruiting and assignment to cyber occupational specialties. These efforts highlight how Personnel assessments propose retention incentives and career pathways to sustain expertise in high-demand areas like operations.

Facilities

In the DOTMLPF framework, the Facilities component encompasses , including installations, bases, ranges, and industrial plants essential for supporting forces and operations. Key facilities are defined as command installations and industrial facilities of primary importance in support of operations or production programs, incorporating environmental considerations such as utilities and for sustainment. This includes both permanent structures like bases and temporary setups required for deployment, reception, staging, onward movement, and integration of forces, both within and outside the continental . The role of Facilities within the DOTMLPF analysis is to evaluate whether existing adequately supports proposed capabilities or if modifications, expansions, or new constructions are necessary to address gaps. This assessment ensures that physical environments enable effective training, operations, and , often integrating with other elements like storage to maintain overall readiness. For instance, facilities planning identifies needs for utilities, ranges, and accommodations that align with broader force design requirements, preventing bottlenecks in capability development. Examples of Facilities implementation include the (BRAC) process, through which the Department of Defense reorganizes installation to enhance and support evolving structures, as seen in multiple rounds from 1988 to 2005. In expeditionary contexts, the rapid development of forward operating bases (FOBs) during Operations Iraqi Freedom and Enduring Freedom in and demonstrated Facilities' adaptability, involving of self-sustaining for 100-200 personnel, including , utilities, and temporary housing to enable sustained combat operations. These FOBs, often built by military engineers and contractors using modular systems, highlighted the need for scalable environmental support in hostile areas.

Policy

In the DOTMLPF-P framework, the Policy component encompasses high-level decisions and directives issued by Department of Defense (DoD) and interagency leadership that govern and enable the other elements, including regulations on acquisition, , , and operational authorities. These policies provide the strategic and legal framework for capability development, ensuring alignment with national objectives, international agreements, and fiscal constraints. Unlike other components, Policy often acts as an enabler or limiter, influencing decisions across , , and beyond without directly specifying tactical or changes. Within DOTMLPF-P analysis, the Policy element assesses whether current directives facilitate proposed solutions or require revisions to remove barriers, such as updating acquisition rules for or establishing ethical guidelines for emerging technologies like in warfare. For example, policy changes may mandate the use of solutions to accelerate acquisition while complying with cybersecurity standards. This component integrates with Facilities and Personnel by shaping investments and workforce diversity initiatives, often involving coordination with and other agencies. A notable example of Policy's impact is the 2013 DoD decision to lift the ban on women serving in direct ground roles, announced by Secretary and implemented by 2016. This policy shift required DOTMLPF-P evaluations to revise standards, training, and assignments across services, promoting gender integration while maintaining and addressing physical qualification criteria. The change enhanced overall force capabilities by expanding the talent pool and aligning with evolving societal and operational demands.

Applications

Role in JCIDS

The Joint Capabilities Integration and Development System (JCIDS) is the U.S. Department of Defense's primary process for identifying, assessing, and prioritizing joint military capability requirements to address gaps in warfighting capabilities. Within JCIDS, the DOTMLPF-P framework—encompassing Doctrine, Organization, Training, Materiel, Leadership and Education, Personnel, Facilities, and Policy—serves as a structured lens for analyzing these gaps and recommending integrated solutions during the development of key documents such as the Initial Capabilities Document (ICD) and Capability Development Document (CDD). Specifically, DOTMLPF-P enables a holistic evaluation that considers both materiel (e.g., new equipment) and non-materiel (e.g., doctrinal updates or training enhancements) approaches to mitigate operational risks identified in Capabilities-Based Assessments (CBAs). In the JCIDS process, DOTMLPF-P is applied step-by-step during the Functional Solutions Analysis (FSA) phase of a CBA, where capability gaps are examined against desired operational outcomes. This analysis begins by reviewing each DOTMLPF-P component to determine if changes—such as revising joint doctrine, reorganizing units, or upgrading facilities—can address shortfalls in proficiency, sufficiency, or without relying solely on new acquisitions. For instance, if a gap involves inadequate training for emerging threats, the FSA might recommend non- adjustments like enhanced simulation-based programs alongside potential solutions, ensuring recommendations are traceable to architectural views (e.g., CV-2, CV-3) and validated through Analysis of Alternatives (AoA) or equivalent studies. The ICD then documents these gaps and initial DOTMLPF-P-informed recommendations, prioritizing solutions based on risk levels and resource implications, while the CDD refines them for approaches by specifying required non-materiel enablers like policy updates or personnel qualifications. The application of DOTMLPF-P in JCIDS culminates in actionable outcomes that guide capability development, including the generation of Joint DOTMLPF-P Change Recommendations (DCRs) for non-materiel solutions. DCRs propose specific changes across one or more DOTMLPF-P areas to partially or fully close gaps, such as implementing new tactics, techniques, and procedures (TTPs) or adjusting force structures, and include implementation plans with offices of primary responsibility (OPRs), timelines, and resource estimates. These recommendations are endorsed by the (JROC) or Functional Capabilities Boards (FCBs) for joint significance and may complement acquisition programs by addressing interdependencies, such as intelligence support or energy efficiency key performance parameters (KPPs). This ensures that JCIDS outcomes balance cost-effectiveness, risk reduction, and alignment with broader force strategies. As of 2025, DOTMLPF-P remains integral to JCIDS updates per FY24 NDAA reporting.

Use in Force Design and Capability Analysis

DOTMLPF serves as a foundational framework in and capability analysis across the U.S. Department of Defense, enabling holistic evaluations of military requirements beyond initial capability identification processes. In service-specific planning, such as the U.S. Army's , DOTMLPF-P integrates , , , , , , , and to develop capabilities-based requirements, produce force structure plans, and align resources with strategic priorities. This model facilitates the generation of lethal, modernized, trained, and ready by recommending changes across DOTMLPF-P domains through mechanisms like and . DOTMLPF supports comprehensive assessments by evaluating how non-materiel adjustments, such as doctrinal updates or training enhancements, can address operational gaps, ensuring synchronized multi-service capabilities. A core application of DOTMLPF in capability gap analysis involves balancing non-materiel solutions against materiel acquisitions to achieve cost-effective and efficient outcomes. Analysts apply DOTMLPF-P to scrutinize identified deficiencies, determining whether reforms in areas like training protocols or organizational structures can resolve gaps without necessitating new equipment development. For instance, if a capability shortfall stems from inadequate personnel skills, DOTMLPF guides the prioritization of initiatives over hardware procurement, promoting resource optimization and rapid implementation. This approach ensures that solutions are comprehensive, addressing interdependencies across domains to enhance overall force effectiveness while minimizing fiscal burdens. In practical examples, DOTMLPF has informed major modernization efforts, such as the U.S. Army's 2022 Modernization Strategy, which leverages the framework to reimagine formations and capabilities across all DOTMLPF-P elements for multi-domain operations. The strategy emphasizes progressive transformations in these domains to integrate warfighting functions like long-range precision fires and next-generation combat vehicles, ensuring holistic enhancements to Army readiness. Post-9/11 force redesigns similarly employed DOTMLPF principles to adapt structures for and expeditionary operations, analyzing non-materiel changes in and alongside upgrades to support sustained global engagements. These applications underscore DOTMLPF's role in driving adaptive, integrated force evolutions responsive to evolving threats.

Variants

DOTMLPF-P

DOTMLPF-P represents an expansion of the original DOTMLPF framework by incorporating a "P" for , which encompasses laws, regulations, , and directives that govern operations, acquisitions, and . This addition emphasizes the need to evaluate how existing and proposed policies influence capability development, ensuring that solutions align with legal and strategic mandates to avoid barriers. The Policy component specifically directs tasks, prescribes required capabilities, and verifies that the armed forces are adequately prepared for their missions, often requiring assessment of policy feasibility during joint concept development. The variant was standardized within the Joint Capabilities Integration and Development System (JCIDS) through updates in the early 2010s, notably in the JCIDS Manual dated January 19, 2012, to address gaps in analyzing non-materiel approaches and promote a more holistic review of capability solutions. Prior to this, the framework focused primarily on operational elements, but the inclusion of recognized oversight deficiencies in how regulatory and budgetary constraints could undermine doctrinal or organizational changes. This evolution aimed to integrate considerations earlier in the process, facilitating better alignment between capability gaps and executable strategies. In practice, the Policy element plays a critical role in reviewing legal and regulatory constraints on innovations, such as ensuring new personnel policies comply with congressional mandates or that acquisition directives support rapid deployment in contingencies. For instance, during operations in , the "Afghan First" —guided by U.S. Central Command instructions and directives—prioritized local to build host-nation capacity, requiring DOTMLPF-P analysis to align solutions with host-nation laws, budgets, and judicial systems for effective transition. By mandating alignment, DOTMLPF-P helps mitigate risks like unresolved legal issues that could negate operational gains, thereby enhancing the overall efficacy of force design and capability integration.

DOTMLPF-I

DOTMLPF-I represents the NATO adaptation of the DOTMLPF framework, incorporating an additional element for to emphasize compatibility among alliance members in multinational operations. The acronym expands to , , , , and , Personnel, Facilities, and , where the "I" specifically addresses the ability of allied forces to operate seamlessly together through standardized equipment, procedures, and communications systems. This addition ensures that capability development accounts for cross-border integration, preventing silos that could hinder collective defense efforts. NATO has integrated DOTMLPF-I into its capability planning since the early 2000s, aligning it with the U.S. Joint Capabilities Integration and Development System (JCIDS) while customizing it for alliance-wide requirements, such as multinational force contributions and shared operational environments. This framework guides the identification and resolution of capability gaps across all eight components, promoting holistic solutions that enhance 's overall readiness. For instance, in capability assessments, ensures that solutions like joint command structures or shared logistics networks are viable across diverse national militaries. In practice, DOTMLPF-I plays a critical role in addressing interoperability challenges during joint multinational exercises, such as standardizing communication protocols to enable sharing among allied units. By analyzing exercises through this lens, identifies deficiencies in areas like doctrinal alignment or technical compatibility, leading to targeted improvements that strengthen collective operational effectiveness. This approach has been applied in processes to refine capabilities for future missions, ensuring sustained alliance cohesion.

Other International Adaptations

The have adapted the DOTMLPF-I framework for national defense planning, particularly in developing long-term strategies for forces (NORSOF). This adaptation emphasizes interoperability with allies by aligning Norwegian , such as the Norwegian Joint Doctrine (FFOD 2019), with standards like AJP-3.10 and AJP-10 to enhance operations in the information environment (OIE). In NORSOF contexts, the framework identifies gaps in information-related capabilities (IRCs), such as and joint targeting, recommending organizational changes like decentralized IRC integration and enhanced training to support total defense and -aligned joint operations. In , the DOTMLPF concept influences the Fundamental Inputs to Capability (FIC) model, which expands to nine elements including , collective , major systems, command and management, personnel, infrastructure, doctrine, logistics, and information systems, customized for regional threats like Indo-Pacific maritime challenges. This adaptation prioritizes societal inputs and long-range capabilities to overcome geographic distances, ensuring integrated force design for littoral and land operations. The employs the TEPIDOIL framework—Training, , Personnel, , , Organisation, , and —as a parallel to DOTMLPF for capability development, focusing on coordinated lines of development (DLoDs) to deliver integrated military effects against evolving threats. This model supports by mapping defense resources holistically to enhance advantage in competitive environments.

References

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