PROBLEM SOLVING - COFFEE T+ANK

Decision Making Problem Solving ProcessRevision Date:30 September 2022
NOTE:The readings enclosed in this handout are excerpts from a variety of sources. Some of thesesources include Army doctrine with a direct correlation to the regulatory expectations of the contentbeing discussed, while other sources may include products from industry, having an indirect, yetrelevant correlation. Regardless, these readings are meant to serve as formative information resourcestowards instilling a foundation of knowledge on the subject(s) that will be discussed in future classes.Please reference the following pages, as shown in the Table of Contents below and engage the readingin the manner prescribed (i.e. read, skim, or review).Table of ContentsRead:FM5-0,Planning and Orders Production,16 May 2022,Ch 3 pp. 3-1 through 3-9Read:ATP 5-0.1, Army Design Methodology, 1 Julyy 2015, Ch 4 pp. 4-1 through 4-2

FM 5-03-1Chapter 3Problem SolvingThis chapter describes a systematic approach to solving problems. The chapter beginsby discussing problem solving as related to decision making. This chapter establishesthe base logic for all other problem–solving planning processes. The chapterconcludes by discussing the seven step process used in Army problem solving.PROBLEM SOLVING AND DECISION MAKING3-1.The ability to recognize and effectively solve problems is an essential skill for leaders. A problem isan issue or obstacle that makes it difficult to achieve a desired goal, objective, or end state. Army problemsolving is a form of decision making. It is a systematic approach to defining a problem, developing possiblesolutions to solve the problem, arriving at the best solution, and implementing it. The object of problemsolving is not just to solve near-term problems, but to also do so in a way that forms the basis for long-termsuccess.3-2.Not all problems require lengthy analysis to solve. For simple problems, leaders often makedecisions quickly—sometimes on the spot. However, for complicated problems involving a variety offactors, a systematic problem solving approach is essential. How much analysis is required to effectivelysolve a problem depends on the problem’s complexity, the leader’s experience, and amount of timeavailable.3-3.Army problem solving supports a single leader working alone or a group of leaders working together.Commanders normally direct their staff or subordinate leaders to work together to recommend solutions toproblems. In formal situations, they present their recommendations as staff studies, decision papers, anddecision briefings. At lower echelons, recommendations are normally presented orally. (See FM 6-0 formore information on staff studies, decision papers, and decision briefings.)3-4.Problem solving is an art and science. It is a structured analytic process designed to ensure that allcritical factors relevant to the problem are considered, and the relationships between variables areanticipated and accounted for in the solution. This ensures that the desired objective or end state is achievedin the most effective and efficient manner.3-5.The art of problem solving involves subjective analysis of variables that, in many cases, cannot beeasily measured. Leadership and morale, for example, are difficult to measure, but they may play a criticalrole in developing solutions to solve the problem. Problem solvers and decision makers make subjectiveassessments of such variables based on facts and assumptions and their likely effects on the outcome.Leader judgments are enhanced by their professional experience.3-6.The science of problem solving involves the use of quantitative and analytical tools available to thestaff. Quantitative analysis seeks to define and evaluate relevant factors or variables that can be measuredor counted. Quantitative analysis can be useful for identifying trends in data sets and sharp departures fromexpected norms or measurements. The results are often organized and displayed in the form of charts andgraphs. Quantitative analysis requires measuring or counting the values of relevant variables andcalculating changes in the observed effects on the problem or variables. It is possible to predict the effectson dependent variables when changes occur in the value of the independent variables.3-7.The structured nature of the Army problem-solving process depicted in Figure 3-1, on page 3-2,assists staff officers in identifying and considering key factors relevant to the problem. It also provides themore intuitively gifted and experienced officer with a framework for analyzing and solving problems. The

Chapter 33-2FM 5-0±² 0D\ ³´³³Army problem-solving process helps to ensure that no key piece of information is overlooked in theanalysis, thereby minimizing the risk of unforeseen developments or unintended consequences.Figure 3-1. Seven step problem-solving process3-8.Problem solving is a daily activity for Army leaders, and it is often done intuitively. The Armyproblem-solving process is a systematic way to arrive at the best solution to a problem not easily solvedintuitively. It applies at all echelons and involves the steps needed to develop well-reasoned, supportableactions. It incorporates risk discussion and risk management techniques appropriate to the situation. Armyleaders remain as objective as possible when solving problems. The goal is to prepare an unbiased solutionor recommendation for the decision maker, based on the facts. Problem solving is an important Armyleadership action. It is essential to good staff work and command.CRITICAL ANDCREATIVETHINKING3-9.Thinking includes awareness, perception, reasoning, and intuition. Thinking is naturally influencedby emotion, experience, and bias. As such, commanders and staffs apply critical and creative thinking toassist them in understanding situations, making decisions, directing actions, and assessing.3-10.Critical thinking is purposeful and reflective thought about what to believe or what to do in responseto observations, experiences, verbal or written expressions, or arguments. By thinking critically, individualsformulate judgments about where the information they encounter is true or false, or if it falls somewherealong a scale of plausibility between true and false. Critical thinking involves questioning information,assumptions, conclusions, and points of view to evaluate evidence, develop understanding, and clarifygoals. Critical thinking helps commanders and staffs identify causes of problems, arrive at justifiableconclusions, and make good judgments. Critical thinking helps commanders counter their biases and avoidlogic errors.3-11. Creative thinking examines problems from a different perspective to develop innovative solutions.Creative thinking creates new and useful ideas and reevaluates or combines old ideas to solve problems.Leaders face unfamiliar problems that require new or original approaches to solve them. This requires

Army Problem Solving±² 0D\ ³´³³FM 5-03-3creativity and a willingness to accept and embrace change and a flexible outlook of new ideas andpossibilities.3-12. Breaking old habits of thought, questioning the status quo, visualizing a better future, and devisingresponses to new problems require creative thinking. Leaders routinely face unfamiliar problems or oldproblems under new conditions. Leaders apply creative thinking to gain new insights, novel approaches,fresh perspectives, and new ways of understanding problems and conceiving ways to solve them.3-13. Both critical and creative thinking must intentionally include ethical reasoning—the deliberateevaluation that decisions and actions conform to accepted standards of conduct. Ethical reasoning withincritical and creative thinking helps commanders and staffs anticipate ethical hazards and consider optionsto prevent or mitigate the hazards within their proposed solutions. (See ADP 6-22 for a detailed discussionof ethical reasoning.)STRUCTURE OFPROBLEMS3-14. In terms of structure, there are three types of problems: well-structured, medium-structured, and illstructured. The degree of interactive complexity is the primary factor that determines the problem’sstructure. Another factor determining problem structure is an individual perception of a problem.Perception of whether a problem is well, medium, or ill structured depends on the perceived familiarity andunderstanding of the problem. (See ATP 5-0.1 for more information on the structure of problems.)3-15. Well-structured problems are generally the easiest to solve. This is because with a well-structuredproblem—zAll or almost all required information is available.zThe problem is generally self-evident.zKnown methods are available to solve the problem.zThe problem displays little interactive complexity.zThe problem is generally easy to recognize and place in categories.zThere is typically a correct, verifiable answer.3-16. Medium-structured problems are most of the problems Army leaders and problem solvers face.These types of problems fall between the extremes of well- and ill-structured problems. In partiallystructured problems, problem solvers may find that—zLeaders generally agree on its structure.zThere may be more than one“right”answer.zLeaders may disagree on the best solution.zThe problems require some creative skills to solve.3-17. Ill-structured problems are the most challenging to understand and solve. With ill-structuredproblems—zLeaders often disagree on what the true problem is cannot agree on a shared hypothesis.zLeaders often disagree on how to solve the problem.zThe problems are complex and involve many variables, making them difficult to accuratelyanalyze.zLeaders may disagree on the desired end state.zLeaders may disagree on whether an end state is achievable.zThey may require multiple solutions applied concurrently or sequentially. Problem solvers mustsometimes reduce complex ill-structured problems into smaller problems.THE PROBLEM-SOLVING PROCESS3-18. Army problem solving provides a standard, systematic approach to define and analyze a problem,develop and analyze possible solutions, choose the best solutions, and implement a plan of action thatsolves the problem. The military decision-making process (MDMP) and troop leading procedures (TLP)are typically used for planning and problem solving related to operations. Army problem solving can aid in

Chapter 33-4FM 5-0±² 0D\ ³´³³understanding the operational problem as described in the MDMP, or TLP, or used as a separate process tounderstand and solve problems. For these types of situations, the Army’s approach to problem solvinginvolves the following steps:zGather information and knowledge.zIdentify the problem.zDevelop criteria.zGenerate possible solutions.zAnalyze possible solutions.zCompare possible solutions.zMake and implement the decision.GATHERINFORMATION ANDKNOWLEDGE3-19. Gathering information and knowledge is an important first step in problem solving. Leaders cannotunderstand or identify the problem without first gathering information and knowledge. While described as astep, gathering information and knowledge continues throughout the problem-solving process. It helpsleaders understand the situation and determine what the problem is by defining its limitations and scope.Leaders never stop acquiring and assessing the impact of new or additional information relevant to theproblem.3-20. Leaders require facts and assumptions to solve problems. Understanding facts and assumptions iscritical to understanding problem solving. In addition, leaders need to know how to handle opinions andorganize information.Facts3-21. Facts are verifiable pieces of information or information that has objective reality. They form thefoundation on which leaders base solutions to problems. Regulations, policies, doctrinal publications,commander’s guidance, plans and orders, and personal experiences are just a few sources of facts.Assumptions3-22. Assumptions are specific suppositions of an operational environment (OE) or problem that areassumed to be true, in the absence of positive proof. Planners and commanders only use assumptions thatare essential for the continuation of planning. In other words, an assumption is information that is acceptedas true in the absence of facts, but at the time of planning cannot be verified. Appropriate assumptions usedin decision-making have two characteristics:zThey are valid; that is, they are likely to be true.zThey are necessary; that is, they are essential to continuing the problem-solving process.3-23. If the process can continue without making a particular assumption, the assumption is unnecessaryand not used. So long as an assumption is both valid and necessary, leaders treat it as a fact. Leaderscontinually seek to confirm or deny the validity of their assumptions. The confirmation or denial of anassumption may require the problem and plan to be reassessed.Opinions3-24.When gathering information, leaders evaluate opinions carefully. An opinion is a personal judgmentthat the leader or another individual makes. Opinions cannot be totally discounted. They are often the resultof years of experience. Leaders objectively evaluate opinions to determine whether to accept them as facts,include them as opinions, or reject them.Organizing Information3-25. Organizing information includes coordination with units and agencies that may be affected by theproblem or its solution. Leaders determine these requirements as they gather information. They coordinatewith other leaders as they solve problems, both to obtain assistance and to keep others informed of

Army Problem Solving±² 0D\ ³´³³FM 5-03-5situations that may affect them. Such coordination may be informal and routine. For an informal example, asquad leader checks with the squad to the right to make sure thesquads’fields of fire overlap. For a formalexample, a corps action officer staffs a decision paper with the major subordinate commands. As aminimum, leaders always coordinate with units or agencies that might be affected by a solution theypropose before they present it to the decision maker.IDENTIFY THE PROBLEM3-26. The next step in problem solving is recognizing and defining a problem. This step is crucial, as theproblem may not be obvious. Therefore, leaders determine what the problem is by clearly defining its scopeand limitations. Leaders should allow sufficient time and resources to clearly define the problem beforemoving on to other steps in the process.3-27. A problem exists when the current state or condition differs from or impedes achieving the desiredend state or condition. Leaders identify problems from a variety of sources. These include—zHigher echelon headquarters’directives or guidance.zDecision maker’s guidance.zSubordinates.zPersonal observations.3-28.When identifying a problem, leaders actively seek to identify its root cause, not merely the symptomson the surface. Symptoms may be the reason that the problem became visible. They are often the firstthings noticed and frequently require attention. However, focusing on the symptoms of a problem may leadto false conclusions or inappropriate solutions. Using a systematic approach to identifying the real problemhelps avoid the“solving symptoms”pitfall. Leaders do the following to identify the root cause of aproblem:zCompare the current situation to the desired end state.zDefine the problem’s scope or boundaries.zAnswer the following questions:Who does the problem affect?What does the problem affect?When did the problem occur?Where is the problem?Why did the problem occur?zDetermine the cause of obstacles between current and desired end state.zWrite a draft problem statement.zRedefine the problem as necessary as the staff acquires and assesses new knowledge andinformation.zUpdate facts and assumptions.3-29. After identifying the root causes, leaders develop a problem statement—a statement that clearlydescribes the problem to be solved. When the staff bases the problem upon a directive from a higherauthority, it is best to submit the problem statement to the decision maker for approval. This ensures theproblem solver and decision maker agree on the problem to solve with updated guidance provided asnecessary before continuing.3-30.Once leaders develop a problem statement, they make a plan to solve the problem. Leaders make thebest possible use of available time and allocate time for each problem-solving step. This allocation providesa series of deadlines to meet in solving the problem. Leaders use reverse planning to prepare their problemsolving timeline. They use this timeline to periodically assess progress. They do not let real or perceivedpressure cause them to abandon solving the problem systematically. They change time allocations asnecessary, but they do not omit steps.

Chapter 33-6FM 5-0±² 0D\ ³´³³DEVELOP CRITERIA3-31.The third step in the problem-solving process is developing criteria. A criterion is a standard, rule, ortest by which something can be judged—a measure of value. Problem solvers develop criteria to assistthem in formulating and evaluating possible solutions to a problem. Criteria are based on facts orassumptions. Problem solvers develop two types of criteria: screening and evaluation.SCREENINGCRITERIA3-32. Leaders use screening criteria to ensure that the solutions they consider can solve the problem.Screening criteria defines the limits of an acceptable solution. They are tools to establish the baselineproducts for analysis. Leaders may reject a solution based solely on the application of screening criteria.Leaders apply five categories of screening criteria to test a possible solution:zFeasible—fits within available resources.zAcceptable—worth the cost or risk.zSuitable—solves the problem and is legal and ethical.zDistinguishable—differs significantly from other solutions.zComplete—contains the critical aspects of solving the problem from start to finish.EVALUATIONCRITERIA3-33. After developing screening criteria, a problem solver develops the evaluation criteria in order todifferentiate among possible solutions. (See figure 3-2 for sample evaluation criteria.) Well-definedevaluation criteria have five elements:zShort Title—the criterion name.zDefinition—a clear description of the feature being evaluated.zUnit of Measure—a standard element used to quantify the criterion. Examples of units ofmeasure are U.S. dollars, miles per gallon, and feet.zBenchmark—a value that defines the desired state or“good”for a solution in terms of aparticular criterion.zFormula—an expression of how changes in the value of the criterion affect the desirability ofthe possible solution. The problem solver states the formula in comparative terms (for example,less is better) or absolute terms (for example, a night movement is better than a day movement).Figure 3-2. Sample evaluation criterion

Army Problem Solving±² 0D\ ³´³³FM 5-03-73-34. A well thought-out benchmark is critical for meaningful analysis. Decision makers employ analysisto judge a solution against a standard, determining whether that solution is good in an objective sense. Itdiffers from comparison, in which a decision maker judges possible solutions against each other,determining whether a solution is better or worse in a relative sense. Benchmarks are the standards used insuch analysis. They may be prescribed by regulations or guidance from the decision maker. Sometimes, adecision maker can infer the benchmark by the tangible return expected from the problem’s solution. Often,however, leaders establish benchmarks themselves. Four common methods for doing this are—zReasoning—based on personal experience and judgment as to what is good.zHistorical precedent—based on relevant examples of prior success.zCurrent example—based on an existing condition, which is considered desirable.zAveraging—based on the mathematical average of the solutions being considered. Averaging isthe least preferred of all methods because it essentially duplicates the process of comparison.3-35.In practice, the criteria by which choices are made are almost never of equal importance. Because ofthis, it is often convenient to assign weights to each evaluation criterion. Weighting criteria establishes therelative importance of each one with respect to the others. Weighting should reflect the judgment of thedecision maker or acknowledged experts as closely as possible. For example, a decision maker or expertmight judge that two criteria areequalin importance, or that one criterion isslightly favoredin importance,ormoderatelyorstrongly favored. If decision makers assign these verbal assessments numerical values,from 1 to 4 respectively, they can use mathematical techniques to produce meaningful numerical criteriaweights.GENERATE POSSIBLE SOLUTIONS3-36. After gathering information relevant to the problem and developing criteria, leaders formulatepossible solutions. They carefully consider the guidance provided by the commander or their superiors, andthey develop several alternatives to solve the problem. Too many possible solutions may result in timewasted on similar options. Experience and time available determine how many solutions leaders consider.Leaders should consider at least two solutions. Limiting solutions enables a problem solver to use bothanalysis and comparison as problem-solving tools. Developing only one solution to“save time”mayproduce a faster solution, but this risks creating more problems from factors not considered.3-37. When developing solutions, leaders generate options. They then summarize solutions in writing,sketches, or both.GENERATEOPTIONS3-38. Leaders generate options by developing various solutions to the identified problem. Each solutionshould generally address the following:zDoes the solution achieve the desired end state?zWhat actions are required or what objectives must be achieved to reach the desired end state?zWhat resources are required for the solution?zWhat is the risks associated with the solution?3-39. Leaders must use creativity to develop effective solutions. Often, groups can be far more creativethan individuals. However, those working on solutions should have some knowledge of or background inthe problem area.3-40. The basic technique for developing new ideas in a group setting is brainstorming. Brainstorming ischaracterized by unrestrained participation in discussion. While brainstorming, leaders—zState the problem and ensure it is understood.zAppoint a recorder to capture ideas.zEncourage independent thoughts.zWithhold and suspend judgment of ideas.zAim for quantity, not quality.zGroup ideas—combine one person’s thoughts with those of others.

Chapter 33-8FM 5-0±² 0D\ ³´³³3-41. At the conclusion of brainstorming, leaders may discard potential solutions that clearly miss thestandards described by the screening criteria. If this informal screening leaves only one or no solution, thenleaders need to generate additional options.SUMMARIZE THESOLUTION INWRITING ANDSKETCHES3-42.After generating options, a recorder accurately records each possible solution. The solution statementclearly portrays how the action or actions solve the problem. In some circumstances, the solution statementmay be a single sentence. For example, it might be“Provide tribal leader with the means to dig a well.”Inother circumstances, the solution statement may require more detail, including sketches or conceptdiagrams. For example, if the problem is to develop a multipurpose small-arms range, leaders may chooseto portray each solution with a narrative and a separate sketch or blueprint of each proposed range.ANALYZE POSSIBLE SOLUTIONS3-43.Having identified possible solutions, leaders analyze each one to determine its merits and drawbacks.If criteria are well defined, including a careful selection of benchmarks, analysis is greatly simplified.3-44. Leaders use screening criteria and benchmarks to analyze possible solutions. They apply screeningcriteria to judge whether a solution meets minimum requirements. For quantitative criteria, they measure,compute, or estimate the raw data values for each solution and each criterion. In analyzing solutions thatinvolve predicting future events, they use war gaming, models, and simulations to visualize events andestimate raw data values for use in analysis. Once raw data values have been determined, the leader judgesthem against applicable screening criteria to determine if a possible solution merits further consideration.Leaders screen out any solution that fails to meet or exceeds the set threshold of one or more screeningcriteria.3-45. After applying the screening criteria to all possible solutions, leaders use benchmarks to judge themwith respect to the desired end state. Data values that meet or exceed the benchmark indicate that thepossible solution achieves the desired end state. Data values that fail to meet the benchmark indicate a poorsolution that fails to achieve the desired end state. For each solution, leaders list the areas in which analysisreveals it to be good or not good. Sometimes the considered solutions fail to reach the benchmark. Whenthis occurs, the leader points out the failure to the decision maker.3-46. Leaders carefully avoid comparing solutions during analysis. Comparing solutions during analysisundermines the integrity of the process and tempts problem solvers to jump to conclusions. They examineeach possible solution independently to identify its strengths and weaknesses. They are also careful not tointroduce new criteria.COMPARE POSSIBLE SOLUTIONS3-47. During this step, leaders compare each solution against the others to determine the optimum one.Comparing solutions identifies which solution best solves the problem based on the evaluation criteria.Leaders use any comparison technique that helps reach the best recommendation. The most commontechnique is a decision matrix. (See Appendix F for more information on decision matrices.)3-48. Quantitative techniques (such as decision matrices, select weights, and sensitivity analyses) may beused to support comparisons. However, these are the tools to support the analysis and comparison. They arenot the analysis and comparison themselves. The quantitative techniques should be summarized clearly sothe reader need not refer to an attachment for the results.MAKE AND IMPLEMENT THE DECISION3-49. After completing their analysis and comparison, leaders identify the preferred solution. If a superiorassigned the problem, leaders prepare the required products (verbal, written, or both) needed to present therecommendation to the decision maker. Before presenting the findings and a recommendation, leaderscoordinate their recommendation with those affected by the problem or the solutions. In formal situations,

Army Problem Solving±² 0D\ ³´³³FM 5-03-9leaders present their findings and recommendations to the decision maker as staff studies, decision papers,or decision briefings.3-50. A good solution can be lost if the leader cannot persuade the audience and decision maker that it iscorrect. Every problem requires both a solution and the ability to communicate the solution clearly andeffectively. The writing and briefing skills a leader possesses may ultimately be as important as goodproblem-solving skills.3-51. Based on the decision and final guidance, leaders refine the solution and prepare necessaryimplementing instructions. Formal implementinginstructions can be issued as a memorandum ofinstruction, policy letter, or command directive. Once leaders have given instructions, they monitor theirimplementation and compare results to the measure of success and the desired end state established in theapproved solution. When necessary, they issue additional instructions.3-52.A feedback system that provides timely and accurate information, periodic review, and the flexibilityto adjust must also be built into the implementation plan. Leaders stay involved and carefully avoidcreating new problems because of uncoordinated implementation of the solution. Army problem solvingdoes not end with identifying the best solution or obtaining approval of a recommendation. It ends whenthe problem is solved.

1 July 2015ATP 5-0.14-1Chapter 4Framing ProblemsThis chapter begins with a general discussion of problems. Next, this chapter describesactivities associated with problem framing. The chapter concludes with techniquesused in framing problems.NATURE OF PROBLEMS4-1.A problem is an issue or obstacle that makes it difficult to achieve a desired goal or objective. In abroad sense, a problem exists when an individual notices a difference between the current state and desiredend state. In the context of operations, an operational problem is a discrepancy between the state of affairs asit is and the state of affairs as it ought to be that compels military actions to resolve it. An operational problemincludes those issues that impede commanders from accomplishing missions, achieving objectives, andattaining the desired end state.4-2.Army leaders are problem solvers and the complexity of problems they address range from well-structured problems to those extremely complex and ill-structured. The degree of interactive complexity (seechapter 3)of a given situation is the primary factor that determines the problem’s structure.Another factordetermining problem structure is an individual perception of a problem. Perception of whether a problem iswell, medium, or ill-structured depends on the perceived familiarity and understanding of the problem. Table4-1 describes three types of problems and offers potential solution strategies for each one.Table 4-1. Types of problems and solution strategiesWell-structuredMedium-structuredIll-structuredPerceptionThe problem isself-evident.Leaders easily agree on itsstructure.Leaders have difficulty agreeing onproblem structure and will have toagree on a shared hypothesis.SolutiondevelopmentSolutiontechniques areavailable and thereare verifiablesolutions.There may be more thanone “right” answer. Leadersmay disagree on the bestsolution. Leaders can agreeon a desired end state.Leaders will disagree on—How the problem can besolved.The most desirable end state.Whether the end state can beattained.Execution ofsolutionSuccess requireslearning to perfecttechnique.Success requires learningto perfect techniques and toadjust the solution.Success requires learning toperfect technique, adjust thesolution, and continuously refineunderstanding of the problem.AdaptiveiterationNo adaptiveiteration required.Adaptive iteration isrequired to find the bestsolution.Adaptive iteration is required torefine the problem structure andsolutions.WELL-STRUCTUREDPROBLEMS4-3.Well-structured problems are easy to identify because required information is available. In addition,known methods (for example a math formula) are available to solve these types of problems. While difficultto solve, well-structured problems display little interactive complexity and have verifiable solutions. Mostindividuals are comfortable addressing well-structured problems. Such problems are easy to control throughtechnical means and systematic method-based solutions. The types of problems are easier to recognize and

Chapter 44-2ATP 5-0.11 July 2015place in categories. For example, Army doctrine provides tasks, conditions, and standards for problemsranging from tank gunnery to performing a movement to contact. The most structured problems, tank gunneryfor example, have one correct solution. Success in gunnery requires learning to perfect the establishedtechnique.MEDIUM-STRUCTUREDPROBLEMS4-4.Medium-structured problems are more interactively complex than well-structured problems. Forexample, a field manual describes how a combined arms battalion performs a defense, but it offers no singlesolution that applies to all circumstances. Leaders can agree on the problem and the end state for theoperation. However, they may disagree about how to apply the doctrinal principles to a piece of terrain againstan enemy. Furthermore, a defense may succeed against one enemy yet fail against another under the samecircumstances. Success and failure differs as a function of interactive complexity or technical differencebetween the two enemy forces. Success during execution requires not only learning to perfect a techniquebut also adjusting the solution based on changing conditions.ILL-STRUCTUREDPROBLEMS4-5.Ill-structured problems are complex, nonlinear, and dynamic. These problems are the most challengingto understand and solve. Unlike well or medium-structured problems, leaders disagree about how to solveill-structured problems, what the end state should be, and whether the desired end state is achievable. At theroot of this lack of consensus is the difficulty in agreeing on what is the problem. Unlike medium-structuredproblems, there is no clear action to take because the nature of the problem itself is not clear. Classic examplesof ill-structured problems include social issues like crime, racism, and poverty and military operations as awhole. ADM helps commanders and staffs identify and understand ill-structured problems.FRAMING ACTIVITIES4-6.Identifying and understanding problems is essential to solving them. As the planning team understandsan operational environment and the desired end state, the planning team shifts their efforts to identifying andunderstanding those issues that may impede progress toward achieving the desired end state. Theseinterrelated issues represent the problem situation or “system of problems” the command will need to address.During problem framing, commanders and staffs answer questions such as:What is the difference between the current state of an operational environment and the desired endstate?What is the difference between the natural tendency of an operational environment and the desiredend state?What is the difference between the desired end state of other actors and the desired end state?What is preventing the command from reaching the desired end state?What needs to change?What does not need to change?What are the opportunities and threats from a friendly perspective?What are theopportunities and threats from an enemy and other actor’s perspective?4-7.The planning team captures its work in a problem frame that describes the set of interrelated problemsor system of problems in a narrative supported by visual models. The problem frame supports thecommander’s dialogue with higher commanders and unified action partners in defining problems anddeveloping common expectations regarding resolution. This is vital to develop an effective operationalapproach to solve or manage identified problems.4-8.Like framing an operational environment, there is no “one way” or set of steps for framing problems.There are three activities that help the commander and staff develop a problem frame.Review the environmental frame.Identify problems and map out their relationships.Capture the problem frame in text and graphics.