CWPC Contingency Wartime Planning CourseCWPC Contingency Wartime Planning Course

Base Support Planning


  INSTRUCTOR: MSgt Ricky Carter

DESCRIPTION: This lesson presents the concept of Base Support Planning (reception, beddown, joint support, etc.), covers the objectives of Base Support Planning, discusses the responsibilities of the Base Support Planning Community as well as BSP documents,. addresses Base Support Plan development, and provides Base Support Planning content guidance.

OBJECTIVE: The objective of this lesson is for each student to comprehend how base support planning relates to contingency wartime planning. And how Personnel Support for Contingency Operations (PERSCO) teams and Reception Cadres support deploying forces.


  1. Describe the principle objective of base support planning.
  2. Describe the base support plan development process.
  3. Describe the content of the two parts of the base support plan.
  4. Explain the difference between a Limiting Factor (LIMFAC) and a Shortfall.
  5. State the primary objectives of PERSCO and Reception Cadres




  1. Handout 1: Extract from Draft AFI 10-404, Sample BSP Table of Contents
  2. Handout 2: Extract from Draft AFI 10-404, BSP Briefing
  3. Read Armed Forces Staff College, " The Joint Staff Officer's Guide," 1997 para 617,
  4. STEP 2 - SUPPORT PLANNING, pages 6-55 thru 6-61

  5. Review the CWPC Desktop Reference Book for definitions of the following:
    1. WPARR
    2. VAL
    3. NEO
    4. TRAP
    5. POL
    6. POM
    7. SORTS
    8. DOC
    9. IRSP
    10. WCDO
    11. WRM


  1. Base Support Planning Definition: The installation level planning accomplished to support unified and specified command wartime operation plans, as well as MAJCOM supporting plans. It cuts across all functional support areas in a consolidated view of installation missions, requirements, capabilities and limitations to plan for actions and resources supporting war or contingency operations, including deployment, post-deployment, and employment activities (as appropriate).
  2. Principal objective of Base Support Planning: To quantify the existing capabilities of any operating location and to provide the foundation for conduction feasibility/capability analysis for a variety of employment driven requirements. At the unit level it represents a capability assessment and an employment plan at the tactical level. At the MAJCOM/NAF it represents quantifying theater/AOR support capabilities at the strategic level.

  4. Guidance: AFI 10-404, " Base Support Planning." OPR is HQ USAF/ILXX/XOO/DPX/XPM/RE, and ANG/LG.

  6. Other Documents and Guidance Used for Base Support Planning:


AFMAN 10-401 USAF Operations Planning AFI 10-402 Mobilization Planning AFI 10-403 Deployment Planning JOPES


AFI 10-212 Air base Operability AFI 10-215 PERSCO

AFI 10-216 NEO

AFI 10-217 READY Program

AFI 25-101 WRM

AFI 10-503 AF Base Survey and Unit

Beddown Program

Facilities listings

TPFDD extracts

WRM/WCDO lists

Installation Site Surveys


  1. Products:
    1. The BSP is intended to integrate all base wartime support requirements in a 2-part document.
    2. Part 1 of the BSP identifies the total base resources and capabilities without assessing the impact of wartime or contingency tasking. It addresses specific processes, responsibilities and functions that are applicable to the support of in-transit or beddown of forces under any scenario. (Plain Language: what is available on this base)
    3. Part 2 of the BSP assesses the ability of the installation to support contingency operations with the total resources identified in Part 1. It addresses processes, responsibilities and functions above those identified in Part 1 that will be required to support contingency operations. It is written more as a supplement that appends the contents of Part 1. (Plain Language: how this base intends to beddown/support an incoming operation)
    4. The BSP must contain enough detail to make clear to new assignees and deploying units what they must do and how they must do it. Such detail is particularly important for short tour areas and for bases without a major Air Force presence during peacetime.
    5. Each functional area should address specific items applicable to their area.
  1. Base Support Plan Development Process:
    1. Intended to consolidate the baseís go-to-war plan in a single document consisting of two parts. Part 1 must be accomplished prior to doing Part 2. Once completed, Part 1 should only need updating when there are major changes to the base infrastructure.
    2. Development generally follows the JCS planning cycle and the publication of MAJCOM supporting plans. However, identification of total base resources is an ongoing process and BSPs should be updated as changes warrant.
    3. The baseline data for BSP development are (1) MAJCOM OPLANs, (2) TPFDD (all forces), (3) the Wartime Aircraft Activity Report (WAAR), (4) War Reserve Materiel (WRM) authorization documents (WCDO, WPARR, VAL, IMP), (5) contingency in place requirements. LIMFACs will be based on the inability of the unit to support planned wartime activity as identified in the baseline data.
    4. Units are required to update/rewrite BSPs in conjunction with TPFDD updates, when there has been significant change in the unitís support posture, or as directed by MAJCOM Logistics Plans. BSP Part 2s must be completed within 90 calendar days from release of updated planning documents or as tasked by the MAJCOM.
    5. Functional planners identify requirements and capabilities and then work to use available capabilities to meet the baseís total requirements.
    6. Base host and tenant units, functional area OPRs, the planned users and MAJCOMs must coordinate BSP efforts. The BSP provides a detailed evaluation of all resources, requirements and functions to determine procedures, capabilities and limitations under various tasked scenarios.
    7. The installation approves and signs the BSP, any changes to the plan, and the LIMFAC reports.
    8. Coordinate and distribute plans among the major players to maximize crossfeed of contingency information. Crossfeed of BSP information promotes in-depth review and consistent development of requirements, tailored deployment packages that eliminate duplication of resources at the beddown location, and a common core of knowledge on plans to integrate incoming forces.
    9. The BSP should incorporate Noncombatant Evacuation Operations (NEO) requirements in all areas of support planning, including (but not limited to)billeting, messing, medical, transportation, chapel ministry, and mortuary services. However, if specific NEO numbers are not available, the BSP should identify any excess capability, after providing for the TPFDD beddown, to support NEO.
    10. Review and update the plan at least once a year or whenever major changes occur that affect an OPLANís baseís ability to support forces.
  1. Key Players - Responsibilities and Authorities:
    1. HQ USAF:
      1. Air Staff/Functional staffs: Serve as OPR for contingency planning. Provide specific policy and guidance to base support planners.
      2. The Directorate of Operations and Training (HQ USAF/XOO) is the Air Staff focal point for operations plans and prepares directives to support base support planning.
      3. The Directorate of Plans, Programs and Integration (HQ USAF/ILX) is the focal point for Air Force base support planning and provides policy and guidance to support reception and beddown operations.
      4. The Directorate of Personnel Plans (HQ USAF/DPX) provides policy and direction on management of noncombatant evacuation operations to include accountability measures. This office also provides policy and direction on the READY program.
      5. The Chief of Air Force Reserve (HQ USAF/AFRC), through the HQ AFRC staff, will provide appropriate guidance for base support planning for AFRC bases.
      6. The Director, Air National Guard (NGB/CF), through ANGRC/LGX, will ensure ANG forces are provided appropriate base support planning guidance.
    2. MAJCOM Responsibilities:
      1. MAJCOM Logistics Plans Divisions are responsible for providing command guidance for implementing base support planning concepts to meet their specific missions. This includes:
      2. Providing planning information (i.e., all forces TPFDD, WCDO, WPARR, VAL, IMP, etc.) and identify baseline planning data for BSP development.
      3. Identifying and resolving base support planning issues impacting Guard and Reserve units to ANGRC and HQ AFRC.
      4. Reviewing the wing base support plans for those areas where functional expertise is not resident within the NAF and will forward comments to the wings with an information copy to the NAF. It is recommended that MAJCOMs review all BSPs within their AOR and provide comments to the host wing with an information copy to the NAF.
      5. Monitoring unit LIMFAC reports as required.
      6. Performing staff assistance visits (SAVs) as required. The purpose of the SAV will be to review BSP (Primarily Part II) progress, provide guidance and clarification, and assist logistics planners and functional area OPRs in developing BSP chapters. Each MAJCOM will develop a policy for performing SAVs
      7. Conducting periodic logistics training (to include base support planning training) visits to all their bases. Wing logistics plans units will inform functional OPRs of training classes.
      8. The theater air component command MAJCOM will be responsible for sponsoring, hosting, and funding USAF participation at Part 2 planning conferences at USAF beddown and en route support locations within their AORs. Specifically, ACC is responsible for SOUTHCOM, ACOM and CENTCOM AORs, USAFE is responsible for EUCOM AOR, PACAF is responsible for PACOM AOR, and responsible parent MAJCOMs for CONUS based installations. These MAJCOMs may delegate any or all of these responsibilities to subordinate levels (NAF/wing) within the AOR to accomplish these actions.
    1. Deploying Unit Commanders: Will be responsible for reviewing BSPs for those locations to which their units are tasked to deploy to or transit through. Deploying unit commanders will coordinate with and advise the reception base or transit location of unique-support requirements, suggested changes, or other impacts on reception planning. Units are strongly encouraged to conduct site surveys of their deployment locations to coordinate these requirements and to plan for the most effective use of resources. Every effort should be taken to accomplish BSP site surveys or planning conferences in conjunction with scheduled deployments and or exercise participation. These visits will not only facilitate the development of viable base support plans but will provide the deploying units the opportunity to tailor their deployment packages to eliminate duplication and reduce reception and transportation requirements.
    2. The Installation BSP OPR is the Logistics Plans function and will:
      1. Develop and manage the BSP.
      2. Manage the BSP Limiting Factor (LIMFAC) reporting program.
      3. Schedule and manage BSPC meetings and notify/invite the appropriate NAF/LGX of scheduled meetings. Note: BSPC is optional for ANG.
    1. Tenant Units and Other Base Level Support. All commanders and functional area experts, regardless of command, will be responsible for development, management, and review of their portions of the BSPs. BSP chapter OPRs will develop continuity books (and checklists/formulas) as outlined in AFI 10-404 to ensure succeeding personnel are aware of how the chapter was developed (internal checklists, POCs, formulas used, etc.).
    2. Base Support Planning Committee: The BSPC is a deliberate planning body chaired by the wing/installation commander or his designated representative.
      1. Its primary responsibility is to actively integrate the efforts of all base-level wartime planning bodies. The BSPC is the key to successful base support planning and must function with senior leadership interest and motivation. Commanders should task their BSPCs to meet on a continuing basis to develop and maintain a truly integrated plan. Primary members of the BSPC will be all group commanders and aerial port commanders, wing staff agency chiefs, and squadron commanders.
      2. On installations where a Civilian Personnel Office (CPO) is located, the CPO or representative with appropriate clearance will be on the BSPC. This individual will ensure civilians are accounted for in the BSP when appropriate, satisfy the need for linkage between BSPs and Emergency-Essential designations, and provide overall expertise in civilian personnel matters.
      3. Upon receipt of initial planning data, BSPCs will convene and disseminate information and establish timelines and requirements. BSPCs should meet, as a minimum, on a semiannual basis. However, BSP concerns may necessitate more frequent meetings.
      4. The BSPC will review contingency in-place requirements (if not in TPFDD, obtain from wing Manpower & Quality (MQ) office), and other base-level plans which describe contingency or wartime requirements for possible inclusion into the BSP and to deconflict the need for competing resources ( e.g., installation deployment plan).
      5. Review wartime and contingency requirements and identify all aircraft, personnel (to include noncombatant evacuees and all services), and equipment competing for base resources. Review all other base support planning efforts. This review should include air base operability actions, reception task force responsibilities, command and control structures, facility and utility usage, security requirements, noncombatant evacuation planning (to include Safe Haven operations), and tenant base support planning involvement.
      6. Compare available resources to contingency requirements to identify overages and shortfalls. Review personnel augmentation requirements (shortages) and forward requests to the READY review board. Note: The READY program is not applicable to the ANG.
      7. Review and prioritize installation LIMFACs that affect force deployment, reception, employment, and overall mission accomplishment.
  1. LIMFACs, Shortfalls, and Overages:
    1. Limiting Factor (LIMFAC): A factor or condition that, either temporarily or permanently, impedes mission accomplishment and have a critical negative impact on the ability of a unit to perform its wartime mission, and require the aid of higher headquarters to resolve. (AFI 10-404)
    2. Shortfall: The lack of forces, equipment, personnel, materiel or capability reflected as the difference between the resources identified as a plan requirement and those apportioned to a combatant commander for planning, that would adversely affect the commandís ability to accomplish its mission. (AFI 10-404)
    3. Overages: By identifying overages in the base support planning process to higher headquarters, installations can reduce the amount of support (messing, lodging, storage, etc) required to maintain the assets. It is important for base support planners to understand that identifying the assets does not mean they will be removed from the TPFDD.
    4. Each unit on base will compare capabilities against OPLAN requirements and identify those constraints having a critical negative effect on a base's warfighting capability. These constraints will be reviewed by the unit commander and submitted to the logistics plans function for review at the BSPC meeting. The BSPC will review and prioritize all LIMFACs for wing commander approval.
    1. Constraints which do not meet BSP LIMFAC criteria should be identified as such ( e.g., constraint, shortfall, etc.) and included in a separate section in the BSP Chapter 37. The following should be considered in reporting LIMFACs:
      1. LIMFACs should concentrate on wartime or contingency operations, not on peacetime conditions.
      2. Worldwide shortages such as missiles, TRAP, and rations need not be reported in the BSP LIMFAC channel. MAJCOMs will continue to work these shortages in normal functional channels and provide appropriate status. Facility constraints precluding prepositioning of commodities such as rations may be reported as LIMFACs.
      3. Items/issues/assets/facilities addressed in budget submissions, or funded projects which will not be resolved in six months, may be reported as BSP LIMFACs if they affect the base's wartime mission. For example, a shortage of POL storage which affects base sortie rates reflected in the WMP-4 should be reported as a BSP LIMFAC and should be included in base budget submissions.
      4. Units must be specific in their reports to ensure problems are worked at the appropriate level and with ample emphasis. For example, if there is a shortage of a particular vehicle, such as R-9s, do not report a shortage of vehicles. Do not lump several problems together, since different functional areas may work different parts of a LIMFAC. Problems that require construction, additional funds, storage space, etc., must be backed up by POM budget submissions, Civil Engineer construction projects, etc.
      5. USAF support to allies, even though the lack of support could impact mission accomplishment, should not be forwarded as a BSP LIMFAC. On the other hand, lack of allied support to USAF which would impact mission accomplishment, should be forwarded as a BSP LIMFAC.
      6. Status of Resources and Training System (SORTS) LIMFACs will not be reported as BSP LIMFACs. Do not report as BSP LIMFACs, critical resource shortages that will be reported via a wing LIMFAC Situation Report (SITREP). Criteria for inclusion in the BSP LIMFAC report vice SORTS reporting will rest with the Designed Operational Capability (DOC) statement. If the LIMFAC pertains to an in-place or deploying unit type code (UTC) contained in the DOC statement, then the proper reporting vehicle is SORTS. If the LIMFAC is not associated with a UTC in a DOC statement and will significantly decrease the ability of a unit to perform its wartime mission, the proper reporting vehicle is the BSP LIMFAC report. For example, a shortage of an in-place readiness spares package (IRSP) associated with taskings contained in the unit-level DOC statement should be reported through SORTS, whereas a shortage of facilities to store the IRSP should be addressed to the BSPC as a possible BSP LIMFAC.
      7. LIMFACs will be identified with a wing tracking number, e.g., Kadena LF-1, Kadena LF-2, etc. Tracking numbers will be linked to a particular LIMFAC until the LIMFAC is closed. Each LIMFAC will include the date submitted, base OPR (organization and phone number), subject line, LIMFAC summary, unit actions taken to resolve the LIMFAC, and ECD.
  1. PERSCO (Personnel Support for Contingency Operations)
    1. UTC designed to provide essential personnel support to deployed forces
    2. Objectives (purpose): Account for deployed forces, identify shortfalls, handle

    casualty reporting and required personnel actions, work replacement requirements.

    Their primary purpose is to provide strength accountability.

  2. Reception CADRE:
    1. Purpose: theater-experienced, supporting MAJCOM personnel immediately deployed to COBs/BBs to aid USAF augmenting forces in their rapid transition from deployment to employment.
    2. Composition (as MAJCOM decides): usually 12-24 members from a cross-section
    3. of logistics, combat support, and operations functions.

    4. Basic Responsibilities: in-process initial support and operational personnel,

interface/establish base logistics and support with host nation.