[Senate Hearing 119-75, Part 6]
[From the U.S. Government Publishing Office]
S. Hrg. 119-75, Pt. 6
DEPARTMENT OF DEFENSE AUTHORIZATION
REQUEST FOR APPROPRIATIONS FOR FISCAL
YEAR 2026 AND THE FUTURE YEARS DEFENSE PROGRAM
=======================================================================
HEARING
before the
COMMITTEE ON ARMED SERVICES
UNITED STATES SENATE
ONE HUNDRED NINETEENTH CONGRESS
FIRST SESSION
ON
S. 2296
TO AUTHORIZE APPROPRIATIONS FOR FISCAL YEAR 2026 FOR MILITARY
ACTIVITIES OF THE DEPARTMENT OF DEFENSE, FOR MILITARY CONSTRUCTION,
AND FOR DEFENSE ACTIVITIES OF THE DEPARTMENT OF ENERGY, TO PRESCRIBE
MILITARY PERSONNEL STRENGTHS FOR SUCH FISCAL YEAR, AND FOR OTHER
PURPOSES
__________
PART 6
PERSONNEL
__________
APRIL 9, 2025
__________
Printed for the use of the Committee on Armed Services
[GRAPHIC NOT AVAILABLE IN TIFF FORMAT]
Available via: http://www.govinfo.gov
______
U.S. GOVERNMENT PUBLISHING OFFICE
61-984 PDF WASHINGTON : 2025
COMMITTEE ON ARMED SERVICES
ROGER F. WICKER, Mississippi, Chairman
DEB FISCHER, Nebraska JACK REED, Rhode Island
TOM COTTON, Arkansas JEANNE SHAHEEN, New Hampshire
MIKE ROUNDS, South Dakota KIRSTEN E. GILLIBRAND, New York
JONI K. ERNST, Iowa RICHARD BLUMENTHAL, Connecticut
DAN SULLIVAN, Alaska MAZIE K. HIRONO, Hawaii
KEVIN CRAMER, North Dakota TIM KAINE, Virginia
RICK SCOTT, Florida ANGUS S. KING, Jr., Maine
TOMMY TUBERVILLE, Alabama ELIZABETH WARREN, Massachusetts
MARKWAYNE MULLIN, Oklahoma GARY C. PETERS, Michigan
TED BUDD, North Carolina TAMMY DUCKWORTH, Illinois
ERIC SCHMITT, Missouri JACKY ROSEN, Nevada
JIM BANKS, Indiana MARK KELLY, Arizona
TIM SHEEHY, Montana ELISSA SLOTKIN, Michigan
John P. Keast, Staff Director
Elizabeth L. King, Minority Staff Director
______
Subcommittee on Personnel
TOMMY TUBERVILLE, Alabama, Chairman
JONI K. ERNST, Iowa ELIZABETH WARREN, Massachusetts
RICK SCOTT, Florida RICHARD BLUMENTHAL, Connecticut
TED BUDD, North Carolina MAZIE K. HIRONO, Hawaii
JIM BANKS, Indiana TAMMY DUCKWORTH, Illinois
(ii)
C O N T E N T S
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april 9, 2025
Page
Department of Defense Personnel Policies......................... 1
Member Statements
Statement of Senator Thomas H. Tuberville........................ 1
Statement of Senator Elizabeth Warren............................ 2
Witness Statements
Lieutenant General Brian S. Eifler, Deputy Chief of Staff for 5
Personnel, G-1, United States Army.
Cheeseman, Vice Admiral Richard J., Jr. USN Chief of Naval 9
Personnel, N-1, United States Navy.
Borgschulte, Lieutenant General Michael J., USMC, Deputy 13
Commandant for Manpower and Reserve Affairs United States
Marine Corps.
Miller, Lieutenant General Caroline M., USAF, Deputy Chief of 20
Staff for Manpower, Personnel, and Services, A-1, United
States.
Kelley, Ms. Katharine, Deputy Chief of Space Operations for Human 25
Capital, United States Space Force.
Questions for the Record......................................... 48
(iii)
DEPARTMENT OF DEFENSE AUTHORIZATION
REQUEST FOR APPROPRIATIONS FOR FISCAL
YEAR 2026 AND THE FUTURE YEARS DEFENSE PROGRAM
----------
WEDNESDAY, APRIL 9, 2025
United States Senate,
Subcommittee on Personnel,
Committee on Armed Services,
Washington, DC.
DEPARTMENT OF DEFENSE PERSONNEL POLICIES
The Subcommittee met, pursuant to notice, at 2:35 p.m. in
room SR-222, Russell Senate Office Building, Senator Tommy
Tuberville (Chairman of the Subcommittee) presiding.
Committee Members present: Senators Tuberville, Scott,
Warren, Blumenthal, Hirono, and Duckworth.
OPENING STATEMENT OF SENATOR THOMAS H. TUBERVILLE
Senator Tuberville. Good morning. I'd like to call this
hearing in session from the Armed Services Personnel
Subcommittee. We appreciate our witnesses here today, and thank
you all for your service.
You're going to find today, and as the last couple weeks
have been very, very busy, so we'll have people in and out. I
think we have three votes going on, one going on as we speak,
and so we'll be in and out. Hopefully we can get more people
here today. We have other hearings going on, so thank you for
being here, and Ranking Member Warren, thank you for being
here, we had to sprint to get here, right?
Senator Warren I did.
[Laughter.]
Senator Tuberville. All right. Senate Armed Service
Subcommittee on Personnel meets this afternoon to provide an
important opportunity for senior leaders at the Department of
Defense (DOD) to highlight areas where Congress can support and
strengthen our military's most valuable asset: it's people.
People are our most valuable asset. I think we should all
know that those who volunteer to serve in and out of uniform
are the backbone of our National Defense. This is a critical
discussion as we prepare for the National Defense Authorization
Act (NDAA) for fiscal year of 2026.
I want to thank our witness for joining us today,
Lieutenant General Brian Eifler, Deputy Chief of Staff for
Personnel for the United States Army, Vice Admiral Richard
Cheeseman, Chief of Naval Personnel for the United States Navy,
Lieutenant General Michael Borgschulte, Deputy Commandant for
Manpower, and Reserve Affairs for the United States Marine
Corps. Lieutenant General Caroline M. Miller, Deputy Chief of
Staff for Manpower, Personnel, and Services for the United
States Air Force and Ms. Katharine Kelley, Deputy Chief of
Space Operations for Human Capital for the United States Space
Force.
I'm glad to see our military refocusing on warfighting and
readiness after the previous Administration prioritized
diversity, equity, and inclusion (DEI) and abortion and other
progressive policies initiatives over lethality. One of the
reasons we're here today. This shift is already leading to
renewed enthusiasm for personnel for military services among
the American people.
While I'm encouraged by the recent improvements in military
recruitment, I'm increasingly concerned about the quality of
the recruits we're bringing in. Many of the services have
lowered their standards to meet requirement goals. The Army and
Navy's Prep Courses have seen some success, but that success
only matters if they're actually raising the academic and
physical performance of our recruits. The caliber of men and
women we bring in directly affects readiness levels, and the
long-term strength and effectiveness of our military.
I'd like the witnesses to address the effect that lowered
enlistment standards could have on long-term attrition and
readiness, and how you are ensuring you're not sacrificing
quality for quantity.
I'd also like to address the health of the force in this
hearing. Military hospitals and clinics are facing staffing
shortages, leading to reduced access to care, which ultimately
impacts the health and retention of servicemembers and their
families. This combined with lower recruiting standards, means
the force is more susceptible to health issues like obesity and
mental health challenges. I'd like to hear what the services
are doing to ensure the health and readiness of their military
personnel.
In recent years, this subcommittee has invested heavily
into the quality-of-life servicemembers ensuring they and their
families have the resources and support necessary to thrive,
both in and out of uniform. This remains a priority. However,
these investments will be undermined if we fail to address the
quality of recruitment and health of the force. Sustaining a
healthy and effective military goes beyond simply meeting and
recruiting missions. It requires a commitment to the well-being
and long-term readiness of every single servicemember.
I thank all the witnesses for being here today. I look
forward to your testimony and Senator Warren now can give her
opening statement.
STATEMENT OF SENATOR ELIZABETH WARREN
Senator Warren Thank you very much, Mr. Chairman. Our
annual posture review hearing provides the department and the
military services the opportunity to discuss personnel
priorities for the coming year.
It's also a chance for Members of this Subcommittee to
continue to address the major challenges confronting our all-
volunteer force. After all, our ability to defend ourselves and
defeat our adversaries depends on brave men and women stepping
up and volunteering to serve. I am pleased to see the military
services are making progress in addressing their recruiting
challenges since our last posture hearing.
It's critical that we welcome and support anyone who wants
to serve their country. But in just the last 2 months,
President Trump has fired General C. Q. Brown and Admiral Lisa
Franchetti. It sends a chilling message about who is and who is
not welcome in our military. Secretary Hegseth has removed the
military's top legal advisors, and the Army has reportedly cut
training on combat medicine and the laws of war.
Secretary Hegseth has announced plans to fire or push out
50 to 60,000 civilians, and he has already fired civilians who
do everything from acquisitions to missile defense to childcare
for military families. So, let's start with the civilian
workforce. As Secretary Hegseth told this committee during his
confirmation process, ``Civilians are important and provide
continuity and expertise to our armed forces.'' DOD civilians
are not just critical to supporting the military, they're also
a bargain for taxpayers.
The most recent study from the Federal Salary Council,
found that civilian employees earned nearly 25 percent less
than their counterparts in the private sector. They come to
work because they believe in the most important mission we
have, and that is to keep Americans safe. But what are co-
Presidents Trump and Musk doing? Well, just last week,
President Trump signed an illegal executive order attacking
Federal unions and stripping Federal employees of their rights.
At DOD, this won't make us safer. This won't make us more
efficient. It will diminish morale and harm recruiting.
The Department of Government Efficiency (DOGE) has plans to
slash the DOD workforce by 8 percent. The results will fall
into one of three buckets, and none of them are good. First,
the military manpower could be pressed into service to
accomplish the tasks that are more appropriately performed by
civilians or the Federal Government could pay billions more to
backfill these employees by using contractors or critical work
could just be left undone.
So far, neither Elon Musk nor Secretary Hegseth has given
any indication of how they plan to deal with the workload that
these civilian employees currently perform. As part of the 8
percent planned reduction, Elon Musk has taken a chainsaw to
DOD's probationary workforce. Think about what that means. It
means firing workers who've been recently promoted or who've
been hired to fill a critical need, often to fill gaps
identified by Members of this very Committee.
The law makes it very clear that the Secretary must make
sure that reductions do not jeopardize our national security,
specifically the law. 10 U.S.C Section 129a mandates that the
Secretary may not reduce the civilian workforce, ``Unless the
Secretary conducts an appropriate analysis of the impacts of
such reductions on workload, military force structure,
lethality, readiness, operational effectiveness, stress on the
military force, and fully burdened costs.''
We have no indication that this analysis has occurred, and
I look forward to working with Members of this Subcommittee to
ensure that this Administration complies with the law. It is
also important for this Subcommittee to understand how damaging
the Trump administration's efforts to shut down the Consumer
Financial Protection Bureau (CFPB) will be for servicemembers
and their families. An entire division of the Consumer
Financial Protection Bureau functions as the cop on the beat to
enforce servicemembers' consumer rights, and it has been
remarkably effective.
The CFPB has discovered more than $363 million in financial
scams directly affecting our servicemembers and veterans, and
it has gotten that $363 million returned directly to the
servicemembers and vets who were cheated. Dismantling the CFPB
will devaState the enforcement of the servicemember Civil
Relief Act and the Military Lending Act, which provides special
protections for servicemembers.
For example, current law permits servicemembers to break
their lease if they are deployed or if their duty station is
transferred. The law also protects servicemembers from being
foreclosed on or having their car repossessed without a court
order. Without the CFPB to enforce these key laws,
servicemembers are now vulnerable to scams and predatory
practices that distract from the mission and undermine our
military readiness.
I also continue to be concerned that this Administration
does not understand how essential women are to our military.
None of our military branches would have met their recruiting
goals if women had not volunteered, and we cannot afford to
dismiss the talents of more than half our population. I am very
concerned that this Administration is more focused on pushing
women out of combat roles and reinstalling a glass ceiling that
will only make us weaker.
There are several topics I want to focus on with our
witnesses today. First, childcare. We need to make sure that
servicemembers have access to high-quality, affordable
childcare. The most recent Blue Star Family Survey confirmed
that ``Childcare continues to be a top barrier to employment
for Active Duty spouses.'' Failing to address these shortfalls,
threatens retention, and will drive out the military families
we need.
Second, making sure that servicemembers receive the
benefits they deserve and are protected against predatory
companies. To thank servicemembers for the sacrifices they
make, Congress has created programs like the Public Service
Loan Forgiveness and Tuition Assistance program, making it
easier for servicemembers to get the education that they want
and that they need.
I look forward to discussing how we can improve those
programs in a bipartisan fashion. I want to thank all of our
witnesses for being here today, and I look forward to your
testimony. Thank you, Mr. Chairman.
Senator Tuberville. Thank you, Senator Warren.
Now, we'll have opening statements from each of our
witnesses. General, you'd like to start?
STATEMENT OF LIEUTENANT GENERAL BRIAN S. EIFLER, DEPUTY CHIEF
OF STAFF FOR PERSONNEL, G-1, UNITED STATES ARMY
Lieutenant General Eifler. Chairman Tuberville, Ranking
Member Warren, and distinguished Members of the Subcommittee.
Thank you for the opportunity to address you today.
The Army stands ready to defend our Nation. Our Army can
provide combat power anywhere in the world to protect American
and allied interests. Our Army is lethal, cohesive, and ready.
We are proud, but we are not satisfied. The Army is
transforming its organizations and delivering technology to
keep up with the evolving battlefield. Continually transforming
means the Army is more adaptable, flexible, and lethal.
The Army is moving forward under four focus areas that
directly address an increasingly volatile world. These pillars
are warfighting, ready combat formations, continuous
transformation, and strengthening the profession. Within these
four pillars, our team of professionals will execute all human
resource (HR) actions that directly support our most important
asset, our people.
Under this framework, the goal is to improve, streamline,
and renovate how we do things in the H.R. community, to be
faster and more efficient. Our readiness for large scale combat
operations depends on it. As an example, we will focus on the
overhaul and revamping of our retention processes. This will
ensure quality over quantity, and provide leaders the right
skills for our formations.
Next, we'll modernize our centralized promotion board
system and leverage artificial intelligence in an ethical and
responsible way to make sure we update the systems.
Additionally, we will work with this Congress to overhaul the
officer professional management system to make it relevant to
the current operational environment and the future.
The Army remains committed to quality-of-life initiatives
to ensure our soldiers remain focused on their missions.
Barracks renovations, and modernization efforts are correcting
outdated housing, dining facilities are being updated to
provide more flexible and nutrition options. The Holistic
Health and Fitness Program (H2F) embeds experts directly into
our units to ensure peak performance. Recruiting will remain a
priority.
The Army exceeded its fiscal year 2024 goal with over
55,000 new soldiers and is targeting 61,000 in this fiscal
year, and are currently on glide path to surpass without
lowering standards. With congressional support, we will keep
the Army on a sustainable strategic path as we transform for
the future. We will deliver ready combat formations with
advanced capabilities to defend our Nation and its interest.
As we celebrate our 250th anniversary this year, I thank
you for your unwavering support of our talented soldiers,
civilians, professionals, and their families.
[The prepared statement of Lieutenant General Brian S.
Eifler follows:]
Prepared Statement by Lieutenant General Brian S. Eifler
Chairman Tuberville, Ranking Member Warren, distinguished Members
of this Subcommittee, thank you for the opportunity to appear before
you on behalf of the men and women of the United States Army. The
United States Army is amidst a fundamental transformation. We are
adapting and changing capabilities, force structure and recruiting
enterprise in order to recruit and retain the best talent for our All-
Volunteer Army. We are committed to upholding standards, merit-based
leadership, and are prioritizing safety and well-being of our
personnel.
recruiting and accessions
I am happy to report that the Army exceeded its Fiscal Year 2024
Regular Army accessions mission of 55,000 with over 1100 in the Delayed
Entry Program. This success comes after deliberate transformation of
Army recruiting and from the unwavering efforts of recruiters across
the country. We are building off last years momentum and started off
fiscal year 2025 with historic recruiting numbers. The Army is on track
to surpass fiscal year 2025 accessions goals and has already achieved
70 percent of its recruiting mission as we enter our busiest recruiting
season. We are doing this without lowering standards or sacrificing
quality.
The Army is continuously transforming and refining its enlistment
and retention incentives to efficiently recruit and retain the best
talent. Active Army enlistment incentives encourage prospects to commit
to high-priority jobs for longer periods, building and sustaining
readiness. Qualified applicants can select from a menu of options that
include both monetary and non-monetary incentives, reflecting the fact
that potential recruits are motivated by a variety of different things.
This approach increases satisfaction for the individual soldier while
allowing the Army to more effectively meet its mission requirements. In
fiscal year 2024, the Army increased selection into priority MOSs by an
average of 19 percent while paying $200 million less in bonuses. There
were almost 5,000 more requests for non-monetary vs. monetary
incentives, and the two most popular options were Critical Skill
Military Occupational Specialty (MOS) selection and Station of Choice.
While pursuing quality accessions, the Army remains committed to
retaining its best and brightest talent. The Army is modernizing its
Enlisted Retention program to remain competitive with the other
services and the private-public sector. These efforts include
professionalization of 79S MOS Career Counselor and the use of current
Data Analytics to inform quality retention targets.
As a result of our wide-range of flexible incentives, many choose
to serve for an additional 1-to-3 years. In fact, during fiscal year
2024, the Regular Army retained 62,500 soldiers (114 percent) of the
target objective of 54,700. The United States Army Reserve retained
11,700 of 12,000 (97.5 percent) and the ARNG retained 38,500 of 39,500
(97.4 percent). As of 31 January 2025, all components retained above
their year-to-date (YTD) targets. The Regular Army retained 19,000 (131
percent) of the 14,500 fiscal year 2025 YTD target. The USAR retained
7,000 (108 percent) of their 6,500 target and ARNG retained 14,000 (119
percent) of 11,800 target.
innovative talent management
The Army continues to modernize its Talent Management Program to
ensure we have the right soldier, in the right place, at the right
time. To achieve this, we've implemented a comprehensive, data-driven
approach and published an updated Talent Framework. This framework
identifies 137 knowledge, skills, and attributes (KSAs) essential for
success in modern Army jobs. It provides a common language for talent
management and allows us to better understand the strengths of each
individual within the Total Force.
The Army is modernizing its personnel processes by leveraging
analytics, robotic process automation, and machine learning to optimize
talent decisions while returning time and resources to line formations.
This effort has spurred a more comprehensive transformation of the
promotion and evaluation process, with objectives to 1) improve the
quality of candidates selected for promotion; 2) reduce manpower
requirements for operating promotion boards; 3) reduce cognitive load;
and 4) increase the transparency of the centralized board process. Our
approach combines the strengths of analytics and human judgment, using
technology to support and inform decisionmaking, while maintaining
human involvement as the final arbitrators of all personnel decisions.
Additionally, we've established the first Army Talent Assessment
Strategy. This strategy will guide the development of an assessment
ecosystem that measures the KSAs outlined in our framework. This new
approach will enable data-driven, informed talent decisions that are
related to recruitment, development, and retention. Beyond the
framework, we are pursuing innovative programs to directly enhance our
talent management and innovation capabilities with a focus on
increasing efficiency and reducing redundancy of our processes, while
facilitating the lethality of the force through access to modern and
innovative developmental resources and tools.
The Army Coaching Program provides leaders at all levels with
dedicated, trained coaches. These coaches empower self-development,
guide professional goals, enhance performance, and help individuals
navigate critical career transitions. Since 2020, this program has
trained more than 300 Army Coaches and provided coaching to more than
6,000 personnel. We are strategically expanding this program to focus
on key areas like Army Recruiting, Human Resources, and trainer
development.
Finally, the Army is also piloting a Career Mapping Tool. This
innovative tool is revolutionizing career planning for soldiers,
Officers, and Civilians. By leveraging individual interests, KSAs, and
career aspirations, this tool provides personalized career roadmaps,
empowers individuals to make informed decisions about their future,
while also enabling leaders to identify growth opportunities for their
subordinates and better understand the talent within their formations.
More than 5,000 members of the Total Force have already used this tool,
providing overwhelmingly positive feedback.
leader selection and personnel system modernization strategies
The Command Assessment Program (CAP) remains focused on objective
assessments and informing merit-based selection for O-5 and O-6
command, Brigade Command Sergeant Major, and key leader positions. CAP
collects, synthesizes, and uses objective and relevant data to inform
the command and key billet slating decision process. It provides
individualized feedback and executive coaching. The program assesses
approximately 2,000 candidates annually to select the Army's most
capable leaders and inform their alignment against half of the field-
grade commands and key leader positions every year. The top third are
selected for command, reflecting the Army's unwavering commitment to
merit-based leadership.
As CAP has matured, the Army has seen a decrease in the number of
high-risk candidates certified for command. The U.S. Air Force and the
U.S. Navy are beginning to develop their own command selection system,
inspired by the Army's success. Additionally, the British Army used CAP
to develop their One Star Command Assessment Program to select
brigadier generals.
The Army invests a great deal into its officer corps to ensure that
leaders uphold the Army values, can make strategic decisions, and are
ready to command in combat. The Army is committed to retaining that
talent and is transforming the Officer Retention Program. We do this by
incentivizing high performers through monetary and non-monetary tools,
incentivizing service beyond Active Duty service obligations and by
reviewing and modernizing the Officer Personnel Management System XXI.
the integrated personnel and pay system--army (ipps-a)
IPPS-A is the Army's online Human Resources (HR) solution to
provide integrated HR capabilities across all Army Components. It
provides a platform to align with the Army's efforts to sustain a
ready, effective, efficient, and lethal force to support the Nation.
Next, the system will be modified to complete all movement order types
for the Total Force, facilitating Audit 2028 requirements. Finally,
IPPS-A projects to release one-time payments for Army military pay
starting in fiscal year 2026. One-time payments include Death Gratuity
Payments, adoption reimbursement, and Temporary Lodging Allowance.
Within IPPS-A, the Army is transforming talent management, by
offering a suite of features designed to enhance force readiness and
improve the soldier experience. Enhanced auditability is achieved by
automating transactions and creating detailed logs, ensuring
responsible resource management and compliance with auditing standards.
Total Force Visibility is made possible for the first time through a
single, centralized platform for viewing personnel data across all Army
components, providing leadership with critical insights for strategic
planning.
IPPS-A empowers soldiers with 24/7 mobile access to their records,
enabling them to view information, submit requests, and track their
progress with ease. This increased transparency extends to all aspects
of a soldier's career, from tracking promotion points to managing the
retirement process. The integrated Customer Relationship Management
System streamlines communication with H.R. professionals, allowing
soldiers to find answers and resolve issues efficiently. Additionally,
the Streamlined Talent Marketplace optimizes talent management by
connecting soldiers with assignments that match their skills and
aspirations.
With the upcoming integration of DD214/214-1 forms and automated
one-time payments, IPPS-A will further streamline transitions for
separating soldiers. This widespread adoption and proven ability to
process millions of transactions accurately demonstrates IPPS-A's
progress toward creating a more agile, ready, and soldier-centric
force.
transition assistance program
The Army's commitment to caring for its people through the
Transition Assistance Program (TAP) is multi-faceted and designed to
support soldiers during a crucial period of their lives, their
separation and departure from the Service. By providing comprehensive,
personalized, and ongoing support, the Army prepares soldiers to become
veterans. During the transition, soldiers and their families are
prepared for building successful civilian lives through varied career
opportunities from civil service to becoming an entrepreneur. We've
learned that our best recruiters for the next generation of soldiers
are those who came before, the last generation of soldiers and our
Soldiers for Life.
TAP is dedicated to supporting soldiers as they transform into
civilian life. The TAP process begins with an initial assessment with
counseling, employment and education workshops, and seminars to help
soldiers achieve Career Readiness Standards, which are mandated by law
and policy. The program ensures that soldiers are well-prepared for
their next chapter, whether it involves furthering education,
employment options, or other pursuits. The TAP provides life-long
learning, critical skills and empowerment tools to the servicemember,
tools they will take with them along the journey into civilian life.
career skills program (csp)/ skillbridge (sb).
On average, 10 percent of transitioning soldiers participate in a
CSP/SB. About 7,250 CSP/SB applications were submitted during FY24, of
which 58.9 percent of the graduates were junior enlisted soldiers (E-1-
E-6), 17.5 percent were senior Enlisted Non-commissioned Officers (E-7-
E-9), 14.9 percent were Warrant Officer/Company-grade Officers, and 8.7
percent were field-grade officers.
The Army recently revised the program to ensure junior enlisted
soldiers receive the maximum benefits of the program with the lowest
barriers to usage. While any separating servicemember may participate,
more senior-ranking soldiers and officers require approval from the
first general officer in their chain-of-command. This ensures that
funding is maximized by junior enlisted, the population who needs these
career enhancing opportunities the most.
response to reductions across the civilian workforce
In response to the President's Executive Order ``Implementing the
President's `Department of Government Efficiency' Workforce
Optimization Initiative'' as well as OPM and OMB's memorandum
``Guidance on Agency RIF and Reorganization Plans'', the Army has been
focused on reshaping the force by maximizing existing voluntary
separation and recruitment restriction tools at our disposal.
Specifically, we continue to comply with the DOD hiring freeze and are
finalizing a process to ensure no vacant civilian position is filled,
and no new civilian positions are created, except in cases where
exemptions are approved by the Secretary of the Army. In addition, we
continue to support and facilitate the voluntary separation (through
either resignation or retirement) of thousands of civilian employees
from the Army's rolls via the OPM Deferred Resignation Program (DRP).
The Army has also been evaluating its year-to-date use of Voluntary
Early Retirement Authority (VERA) and Voluntary Separation Incentive
Pay (VSIP) and determining the extent to which opening one or more
VERA/VSIP windows would further assist in right sizing the civilian
force. Our use of these tools aligns with the Administration's
directive to streamline the Federal workforce and ensure effective
resource allocation.
The Army works closely with the commands to ensure our workforce
can maintain the readiness and capabilities that the Army must have to
meet its missions worldwide.
conclusion
The Army remains focused on its mission: to fight and win our
Nation's wars. To meet our mission requirements, we rely on Congress's
support as we modernize and refine our workforce. This relationship and
these investments in our people will ensure the Army's readiness today
and into the future.
The Army's number one priority is warfighting--with our people
being our most important resource. The people of the United States
Army--these soldiers who serve our Nation, both in and out of uniform,
along with the families and Army civilians who support them --are our
strength and our legacy. Congressional support for our Army enables our
ability to transform our force while showcasing our abilities and
offering opportunities to allow careers and Families to flourish.
Thank you for your generous and unwavering support of our
outstanding soldiers, civilian professionals, and their families.
Senator Tuberville. Admiral.
STATEMENT OF VICE ADMIRAL RICHARD J. CHEESEMAN JR. USN CHIEF OF
NAVAL PERSONNEL, N-1, UNITED STATES NAVY
Vice Admiral Cheeseman. Chairman Tuberville, Ranking Member
Warren, and distinguished Subcommittee Members. Thank you for
the opportunity to testify today, representing the incredible
sailors and families of our United States Navy.
Supporting me today is my Senior Enlisted Advisor, Fleet
Master Chief Delbert Terrell, who provides wise counsel on all
issues whether officer enlisted or civilian. It is those
sailors and civilians that we both serve who are on duty around
the clock and around the globe, a lethal fighting force working
to deter aggression, particularly in the Red Sea, Eastern
Mediterranean, and Western Pacific.
Continuing Resolution (CR) 2025 funds a thorough strategy
driven Navy budget that is focused on delivering resources to
ensure our naval forces remain ready, resilient, and agile to
execute national tasking, and preserve peace through strength.
I thank you for your support within CR 2025, that helps Navy's
recruiting and retention efforts, as well as our quality-of-
service initiatives writ large. They are making a difference,
and I encourage continued congressional support in these areas
for fiscal year 2026 and beyond.
Navy recruiters had a historic 2024, contracting more
sailors than in any given year since 2003. We exceeded our
increased contracting goal by implementing real time data
informed processes, capitalizing on the Future Sailor Prep
Course, streamlining medical waiver reviews, increasing the
quality and number of recruiters, and identifying and removing
barriers to recruiter productivity. As a result, we are on pace
to exceed our fiscal year 2025 recruiting goal of 40,600 future
sailors.
I remain focused on ensuring our schoolhouse supply chain
is ready to receive this influx of motivated students, and we
are ensuring every future sailor receives the training they
need to be ready on day one in a fiscally responsible,
efficient, and effective manner. Additionally, we continue to
exceed retention forecast across all zones, in part due to
consistent congressional support in funding sailors? special
incentive pay and bonuses.
Sea Duty manning is an essential element of our operational
readiness, and I know our chronic shortfalls impact job
satisfaction and retention. We are driving barrier removal
across the enterprise, and we can now predict a steady drop in
gaps at sea over the next 18 months. My goal remains achieving
100 percent rating fill by 2027.
Our sailors, civilians, and their families are the backbone
of our navy. It is our duty to take care of them by delivering
the highest standards of quality of service. We must build
great people, great leaders, and great teams to innovate, solve
hard problems, and dominate in combat. Our sailors stand ready
as a lethal fighting force to deter or confront any adversary.
You and every American can be proud of your Navy and this team.
This is my last scheduled hearing in front of this body as
I retire later this summer. It's been a privilege to serve in
this role over the last 3 years, and I sincerely thank all the
Members of this Subcommittee and the staff for your continued
support. Thank you.
[The prepared statement of Vice Admiral Richard J.
Cheeseman follows:]
Prepared Statement by Vice Admiral Richard J. Cheeseman Jr.
introduction
Good afternoon Chairman Tuberville, Ranking Member Warren and
distinguished Members of this Subcommittee. On behalf of all of the men
and women of your United States Navy, thank you for the opportunity to
appear before you today.
Our Navy builds great people, great leaders, and great teams to
innovate, solve hard problems, and dominate in combat. Our sailors
stand ready as a lethal fighting force to deter or confront any
adversary. We will always evaluate and enhance our capability to
attract, develop, and manage a talented workforce. Ultimately, the
Navy's success in combat is dependent on the strength of our Navy team.
Navy thanks the bipartisan support from Congress, and the work of
this Subcommittee in particular, for passing P.L. 118-159, the
Servicemember Quality of Life Improvement and National Defense
Authorization Act for Fiscal Year 2025 (FY 2025 NDAA). The fiscal year
2025 NDAA grants us several authorities to use to increase readiness
and sustain our Culture of Excellence. Another example is the enhanced
capabilities given to Navy to manage our servicemembers such as
allowing officers to opt-out of selection board considerations to
complete certain assignments, advanced education, or career progression
requirements delayed by an assignment or education goal. Navy must
maintain a strong foundation of our most critical strength, our highly
trained and skilled personnel in order to enhance lethality and
readiness.
When I first testified to this Subcommittee, I assured you that we
would continue to evaluate and improve our capabilities to achieve our
mission of attracting, developing and managing the talent to ensure our
advantage at sea while providing exceptional service to military and
veteran families, caregivers and survivors. As I look back on my
journey in charge of our Navy's greatest asset, I am proud of what our
team has accomplished and encouraged for the future of our fighting
force.
our sailors
Thanks to the incredible performance of our recruiting nation, who
utilized all statutory authorities, levers and data available, we not
only met but exceeded our mission in fiscal year 2024, contracting
40,978 future sailors, the highest number since 2003. We continue to
drive toward increased accession missions to meet the requirements of
the Fleet; our fiscal year 2025 mission is 40,600, which we are on
glideslope to meet and exceed this year. Our recruiting initiatives,
coupled with enhanced retention levers, will promote improvements in
our manning goal of 100 percent enlisted rating fill by the end of
2026, which will directly translate to reducing our 20,000 operational
gaps at sea. We expect to start seeing that progress on the waterfront
later this Spring.
The fiscal year 2025 budgeted end strength reflects the continuing
recovery to meet Fleet requirements and is achievable given the current
recruiting environment and shipping capacity. Projected execution and
requirements of the Fleet are greater than what is currently budgeted
as Navy will maintain recruiting goals necessary to further reduce the
gap to Fleet requirements.
recruitment
Building on the success of our recruiting efforts in fiscal year
2024, the Navy implemented a comprehensive strategy to further enhance
recruitment for both enlisted sailors and officers. We achieved this
improvement by implementing data informed processes throughout the
recruiting enterprise. Navy established a Recruiting Operations Center
to monitor data in real time, implemented the Future Sailor Preparatory
Course to improve accession success, streamlined medical waiver
reviews, increased the quality and number of recruiters, adjusted
recruiting goal incentives, improved marketing processes, and
identified and removed barriers to recruiter productivity. These
changes are sustainable. As a result, Navy is on pace to exceed our
fiscal year 2025 recruiting goal of 40,600.
We continue to explore innovative strategies to attract qualified,
motivated individuals. Navy is maximizing its pool of recruits with the
physical and academic Future Sailor Preparatory Courses, as well as by
expanding our reach through partnerships and traditional and mixed
media marketing. We are maintaining our standards as every recruit must
complete the same training at boot camp and meet all qualifications for
his or her assigned rating.
Navy Recruiting Command (NRC) achieved 99 percent of the Active
Component Officer mission in fiscal year 2024, falling slightly short
in Nuclear Propulsion Officer Candidate (NUPOC) and Medical. NRC is now
using data-driven production reviews to ensure accountability and
adherence to recruiting directives. These data-driven decisions are a
direct result of NRC's enhanced use of our enterprise-wide Customer
Relationship Management (eCRM) system to improve candidate tracking,
offering a more intuitive interface and user-friendly dashboards.
Finally, our strengthened partnerships with Chaplain, Medical, and
Nuclear community leaders enabled a more targeted outreach and
specialized recruitment strategies to build a strong talent pipeline.
talent management
Continued investment in Force Development (FD) is critical to
ensuring our sailors receive the advanced, comprehensive, and effective
training and education they need--whether on the job, during
deployment, or in their off-duty hours. The Navy is committed to
expanding and modernizing education, professional development, and
training to enhance sailor performance and Fleet readiness. Our
programs provide a continuous learning path that develops the skills
and knowledge sailors need to succeed throughout their careers. To
build and retain combat-ready Warfighters, the Navy offers rewarding
career paths, advancement opportunities, and leadership development,
supported by a strong performance management system. Furthermore, we
are modernizing our talent marketplace, shifting from a vacancy-driven
advancement system to a billet-based approach, which offers sailors
more choice in their assignments while better aligning with the Navy's
operational needs and enhancing mission outcomes across the force.
We continue to develop a more robust enlisted talent marketplace
focused on flexible, streamlined, and responsive community and career
management. MyNavy H.R. is adopting a talent management approach that
better values strengths, skill portfolios (to include proficiency and
experience), and career development aligned with the Navy's operational
needs. This is being achieved through the Detailing Marketplace
Campaign Plan (DMCP), with continued emphasis on Billet-based
Advancement (BBA). BBA aims to align the Navy's advancement and
distribution systems, ensuring commands have stable personnel
assignments and sailors have the experience and obligated service to
complete their tours. This merit based process matches sailors with
Navy job requirements and skillsets, advancing them to the new paygrade
once they accept, obligate, and report to the new command, while
supporting informed career decisions and meeting critical manning
needs.
Our officer talent management efforts continue to benefit from the
authorities provided by Congress in the Defense Officer Personnel
Management Act, to include promotion merit reorder, expanded
continuation authority and expanded officer spot promotion authority.
To enhance leader development, we utilize the Navy Leadership
Assessment Program (NLAP), which is a data-driven initiative process
that provides valuable insights into the strengths, vulnerabilities,
the potential of officers, and complements existing command
qualification processes. The program, developed in collaboration with
the Office of Naval Research, uses a standardized leadership competency
model and includes technical solutions to automate and visualize data
for screening boards. As NLAP moves forward, it will expand to include
more Type Commanders, integrating lessons learned and tailoring the
program to meet specific community needs while maintaining rigorous
scientific standards.
retention
Navy is dedicated to retaining our most capable sailors; retention
is a critical component of achieving our end-strength goals. To that
end, we leverage monetary and non-monetary incentives, including
Selective Reenlistment Bonuses, suspension of High Year Tenure Length
of Service gates, the Retention Excellence Award and Best in Class
program, and enhanced exit and milestone surveys which focus our
retention efforts. As a result, enlisted retention remains healthy. We
exceeded our fiscal year 2024 retention benchmark forecasts in zone A
(0-6 years), zone B (610 years), and zone C (10-14 years). Navy
continues to meet or exceed its retention benchmark forecast for fiscal
year 2025.
These efforts are improving manning in critical billets at sea and
ashore, ensuring we have the right people in the right places to
maintain our operational readiness. We regularly review compensation
packages to ensure we remain competitive in a tight labor market,
positioning the Navy as an employer of choice. The latest Department of
Defense Quadrennial Review of Military Compensation highlights that our
compensation package is strongly competitive with the civilian
employers.
While officer retention remains a challenge in specific career
fields, we appreciate the continued support of Congress in supporting
our budget to preserve monetary retention incentives in areas such as
Aviation, Explosive Ordnance Disposal, Surface Warfare, Submarine
Warfare, Naval Special Warfare, and Health Professions Officers.
Ship manning is an essential element of operational readiness, but
it also impacts job satisfaction and retention. Since 2015, Navy has
increased the number of authorized billets on at-sea units, but at-sea
manning has not kept pace with that growth. At the beginning of fiscal
year 2025, Navy had a shortfall of sailors relative to at-sea billets.
Our recruiting and retention efforts will drive progress toward our
primary manning goal of 100 percent enlisted rating fill by the end of
2026. Gaps at sea have fallen from 15 percent to 13 percent, although
this metric trails recruiting successes by the length of time it takes
for new accessions to complete training and report to the Fleet.
The Navy continues strong emphasis on quality of life improvements,
such as expanded family support programs, improved housing, and more
robust mental health resources, as we know that this affects sailors'
retention decisions. Additionally, Navy Personnel Command recently
spearheaded targeted efforts to discuss and influence sailor intentions
ahead of stay/go decision points, leaning in on how we might
accommodate career options to retain them. These combined efforts help
to build a more resilient, experienced, and sustainable force for the
future.
quality of service
The Navy recognizes and values the service and sacrifice of our
sailors around the world. As such, it is our duty to take care of our
sailors and families by delivering the highest standards of Quality of
Service (QoS) they deserve. MyNavy H.R. continues to be an active
member of the VCNO-established QoS Cross-functional Team to identify
and address issues that result in an inadequate experience for our
sailors.
MyNavyHR remains focused on providing sailors with a meaningful
sea-going experience during their initial tour. We identified off-ship
career growth opportunities for sailors stationed on aircraft carriers
undergoing Refueling and Complex Overhaul (RCOH). We conducted Fleet
Manpower Requirements Determination (FMRD) studies to ensure the right
manpower mix for mission readiness. Moving forward, we will hold
proactive manning summits to reduce sailor tour lengths on operational
assets in industrial environments. In addition, we also issued a policy
establishing tour length guidelines for first-term sailors in RCOH or
extended shipyard periods, addressing manning levels, special handling
for communities like nuclear-trained sailors, and sailors volunteering
to stay.
Taking care of our sailors is a top priority, and that includes
offering those in non-deployable status meaningful and challenging
assignments that align with their skills and career goals. To help keep
talented sailors during times when they cannot deploy, the Navy
launched the EMPLOY program. EMPLOY is a new process that happens
before a sailor--whether officer or enlisted--gets formally considered
by a Medical Evaluation Board (MEB) for entry into the Disability
Evaluation System (DES). The EMPLOY Board decides if a non-deployable
sailor can continue serving in important, mission-focused roles
onshore, either in the U.S. or overseas, instead of entering the DES
process. Through this program, detailers and Community Managers work
with sailors to explore career path changes, like switching to more
shore-based specialties. This initiative helps the Navy retain sailors
with valuable skills, knowledge, and experience that are essential to
our warfighting mission.
mynavy h.r. service delivery and it drivers
The Navy is focused on improving performance, integrating Active
and Reserve components, increasing productivity, ensuring auditability,
and driving cost efficiencies in personnel readiness. This
transformation leverages data-driven decisionmaking to optimize talent
distribution and enhance H.R. services for over 400,000 sailors and
their families. In fiscal year 2024, the Navy achieved historic lows in
transaction times, resolving military pay cases in 3 days, travel
claims in 2 days, and activity gains and losses in 2 days. We also
ensured DD-214s were delivered 60 days before separation when submitted
on time. Additionally, the implementation of eCRM streamlined
processes, improved sailor service, and reduced burdens on both sailors
and the workforce. Significant progress was also made in auditability
and financial management, with positive results from the independent
Public Auditor.
By integrating advanced technologies and data-driven solutions, the
transformation seeks to streamline personnel management processes such
as pay, benefits, career management, and training. This initiative
replaces outdated systems with more agile, secure, and user-friendly
platforms, empowering sailors to manage their careers more effectively
while enabling leaders to make better-informed decisions. Ultimately,
IT transformation will enhance overall mission readiness by optimizing
H.R. operations through innovation and technology.
advancing our culture of excellence
Our sailors and their families deserve to serve in an environment
of trust, respect, and connectedness. The Navy's drive at sustaining a
Culture of Excellence (COE) prioritizes command culture alongside
combat readiness. Our COE prepares sailors to operate in uncertain,
complex, and rapidly changing environments by ensuring every member of
the Navy team--sailors and civilians--has the opportunity to become the
best version of themselves as they work to preserve the peace, respond
in crisis, and win decisively in combat. We are keeping sailors aware
of best practices learned from the Fleet, among other insights aimed to
enhance sailors' everyday lives. Specifically, we are (1) setting clear
standards and measures, (2) providing education and training, starting
with commands, then scaling up/down the career continuum, (3)
practicing standards and measures through development forums, for the
individual and unit, (4) incentivizing through talent management, and
(5) awarding at the unit and individual levels.
The Navy is unwavering in its commitment to taking care of its
sailors, recognizing that primary prevention is our best defense
against suicide and sexual assault. The Navy Suicide Prevention Program
prioritizes sailors' well-being by offering critical resources, stress
management tools, and guidance to help recognize and address suicide
risks early. Through initiatives like Embedded Mental Health programs,
the Sailor Assistance and Intercept for Life (SAIL) program, and the
Suicide-Related Behavior Response and Postvention Guide, the Navy
fosters a culture of support and connection, empowering leaders to
promote mental health and resilience within their units. Similarly, the
Navy's Sexual Assault Prevention and Response (SAPR) program is
grounded in the belief that any occurrence of sexual assault is
unacceptable, emphasizing prevention, education, and training while
ensuring 24/7 worldwide reporting and comprehensive victim care. The
Navy remains committed to accountability and building a culture where
sailors feel supported, safe, and valued, ensuring that every sailor
has the resources they need to thrive.
conclusion
We will continue to recruit and retain talented, dedicated
Americans to ensure Navy will remain the strongest, lethal fighting
force. We will also deliver the quality of service that our sailors and
families deserve. I greatly appreciate the partnership with this
Subcommittee and other Members of Congress to maintain our strong
warfighting teams over my past 3 years, and I am especially grateful
for the work of the professional staff members, who enabled open and
transparent communications. It is my greatest hope that we can continue
our collaborative relationship as I transition with my relief, when
confirmed. It has been the honor of a lifetime to serve as the Chief of
Naval Personnel and more importantly as a uniformed member of the Naval
Service. On behalf of the United States Navy and their families, I
thank you for your sustained commitment and unwavering support as we
look toward the Navy of the future.
Senator Tuberville. Thank you, Admiral. General
Borgschulte.
STATEMENT OF LIEUTENANT GENERAL MICHAEL J. BORGSCHULTE USMC,
DEPUTY COMMANDANT FOR MANPOWER AND RESERVE AFFAIRS UNITED
STATES MARINE CORPS
Lieutenant General Borgschulte. Chairman Tuberville,
Ranking Member Warren, and distinguished Members of the
Subcommittee, I am honored to appear before you and tell the
Marine Corps story through the personnel lens.
The Marine Corps approaches the challenges of this critical
manpower portfolio with a singular focus, and that is
delivering combat-credible lethal forces to operational units
wherever they are needed. Every decision we make, whether
that's through recruiting, retention, assignment, or policies
are evaluated through the lens of lethality.
Today, your Marine Corps has over 30,000 marines
operationally deployed in over 35 countries across the globe.
These marines are supporting our Nation's campaigning efforts,
underpinned deterrence, under the banner of peace, through
strength, and ready to respond when called upon. Sustaining
this high State of warfighting readiness depends entirely on
our ability to recruit and retain those lethal warriors. I'm
pleased to report that we continue to win on the recruiting
front and we will make mission again this year.
We've achieved these recruiting goals while exceeding all
DOD quality standards without lowering and without ever
compromising those standards that define us, the marines. We
believe our discipline culture, our warfighting ethos and high
standards, attracts the competitive high performing Americans,
that we need to fill our ranks with tough, smart, and gritty
marines.
The retention of our marines has also reached historic
heights this year. We've exceeded last year's unprecedented
numbers, and just this last week we surpassed a hundred percent
of the retention goals that we need, and we're not stopping.
This marks the highest number and highest quality we've
retained of marines in decades and proves that warriors that
earn the title marine want to stay marine and are proud to
protect and defend the Nation that we love.
I'd also like to thank you, each of you on this
Subcommittee for your ongoing support in providing each of the
services with the tools that make these successes possible.
Financial incentives, quality of life initiatives, school
access, family support programs, and many, many more, make a
difference when a young American decides to become a marine or
stay a marine.
Now I'm going to go a little bit, step further with a
request. If you have sons or daughters or family members or
friends that you think have what it takes to be a marine, I
know a general, they can make that happen. I'll leave a bunch
of business cards out here after testimony so we can get in
contact with me.
But after all this success talk, I'd be remiss if I didn't
stress this. We can't stop here. The success each service is
going to highlight today, which has been fantastic, it remains
fragile. The force depends not only on resources, but on
something more enduring. That's the value of military service.
Our Nation must reawaken a sense of purpose around serving,
around being part of something bigger than self. I ask you to
help us restore the value and prestige of service in the eyes
of our fellow citizens.
In closing, I'll ask that we all continue to commit to
attack each key decision through the lens of lethality and
warfighting excellence. Our marines and our Nation are counting
on it. I look forward to your questions today. Semper Fidelis.
[The prepared statement of Lieutenant General Michael J.
Borgschulte follows:]
Prepared Statement by Lieutenant General Michael J. Borgschulte
introduction
Chairman Tuberville, Ranking Member Warren, and distinguished
Members of the Subcommittee, it is my privilege to appear before you
today to provide testimony on Marine Corps personnel. Our Commandant
has provided clear guidance on Marine Corps priorities and the
individual marine remains the bedrock. We will continue to focus on
recruiting the best and most qualified young Americans who seek the
challenge of becoming a marine. We will invest in their personal and
professional development and retain the very best who demonstrate the
courage, discipline, critical skills, and ethos that make the Marine
Corps the Nation's most lethal warfighting organization.
marine corps efficiency
The Marine Corps has always been a lean organization. We do not ask
for more than we need, and we hold sacred the funding which the
American people trust to us. We are proud to report that we attained a
clean audit in fiscal year 2023--the first in the Department of
Defense's history--and sustained that clean audit in fiscal year 2024.
We accomplished this with a great deal of hard work and dedication and
by leveraging and modernizing our technology--automating our system
interfaces and streamlining the functionality of our systems and
related business processes. What it means is that, when the Corps is
provided a taxpayer dollar, we can show where and how it has been
invested--a responsibility we take very seriously. Readiness for the
warfighter means being accountable for our assets, knowing where they
are, and in what condition they can be found, at a moment's notice. The
Marine Corps' commitment to combat readiness, lethality,
accountability, and discipline are enhanced with every dollar with
which we are entrusted.
recruiting
The significance of Marine Corps recruiting efforts is highlighted
by the fact that all officer, enlisted, regular, Reserve, and prior
service recruiting efforts fall under the Marine Corps Recruiting
Command (MCRC), the Commanding General of which reports directly to the
Commandant of the Marine Corps (CMC).
Despite continued challenges, we are winning at recruiting. Your
Marine Corps once again made its recruiting mission in fiscal year 2024
and is currently on track to meet it again this fiscal year. Service as
a marine continues to attract those who meet our standards and aspire
to prove themselves worthy of earning the title. Importantly, we have
achieved our recruiting missions while exceeding all DOD quality
standards; we will not lower our standards.
We must collectively ensure the health of our All-Volunteer Force
and the strategic advantage it provides--talent, capability, and
warfighting excellence. The CMC remains committed to providing
resources and sending the very best marines to become recruiters in
order to achieve the accession mission while sustaining quality and
standards. One in four of our general officers have been recruiters
during their career, and we pride ourselves in assigning a sergeant
major to every recruiting station, and a recruiter to every zip code in
our Nation. This is the bedrock of successful Marine Corps recruiting.
We are thankful for this Committee--and to all of Congress--for
passing into law an increase in tuition assistance for our Platoon
Leaders Course. This will help to modernize a program which aims to
attract more highly qualified officers earlier in their educational
endeavors. This will greatly assist our Officer Selection Officers in
their efforts to find the next generation of marine leaders.
Despite our success, we must remain mindful of the long-game--that
recruiting will continue to be difficult into the future. Our delayed
entry program is where these future marines are first trained and
educated on what it takes to be a marine. Historically, we have started
each fiscal year with a pool of approximately 50 percent of our
recruiting mission. In fiscal year 2023, this fell to 22 percent, as we
leveraged the pool to ensure mission accomplishment. This required
marine recruiters to focus on finding individuals to ship in the near-
term, impacting their time to physically and mentally prepare for the
rigors of the transformation process to marine. The good news is that
we built the pool back up to 28 percent last year and are on track to
be well over 30 percent this year. Our success has been the combined
results of leadership, increasing our recruiting force, re-aligning
recruiters and recruiting assets, increased advertising, and efforts to
streamline applicant medical processing.
The Marine Corps advertising program is essential to building
awareness among high quality populations that are increasingly
unfamiliar with military service. Advertising funds repay many times
over, producing lower first-term attrition, higher quality marines, and
increased readiness. Robust and sustained advertising funding is
essential, now more than ever.
We thank Congress for its continued support for recruiter access to
high schools and colleges. The Fiscal Year 2024 National Defense
Authorization Act (NDAA) provided additional timeliness guidelines for
recruiter access to directory lists. However, continued vigilance is
essential to ensure that recruiters have consistent and quality access
to ensure the ability to recruit the best. The single biggest reason we
hear from young people for not joining the Corps is that they simply
were not made aware of the opportunity. Maintaining meaningful access
to high schools and student directories remains a top priority for the
Marine Corps. We will certainly continue to come to Congress with new
ideas to further improve recruiting.
retention
As a result of Force Design, we shifted from a ``recruit and
replace'' to an ``invest and retain'' model with immediate positive
results. We are transitioning to a more experienced enlisted force
characterized by increased retention and contract utilization; this
will give us the technical and leadership intensive skills necessary on
21st-century battlefields. At the same time, the service is increasing
investment in quality of life and quality of service initiatives most
closely related to the care and retention of marines and their
families. Major reform initiatives implemented in recent years such as
the Commandant's Retention Program and the extended first term
alignment plan retention model are continuing to secure our highest
performing marines for reenlistment at earlier points in their career.
At the same time, we are implementing new initiatives such as the
Enlisted Career Designation Program, which, for the first time this
year, will offer our most experienced marines the opportunity to
reenlist for the duration of their careers, rather than force them to
reenlist at regular intervals. All efforts are focused on sustaining
combat readiness by increasing the number of trained, experienced, and
deployable marines across the total force.
Overall, we are retaining marines with the right skills and talent
at a historic pace. This reinforces that once an individual becomes a
marine, they want to ``stay marine.'' We achieved historic retention in
fiscal year 2023 and fiscal year 2024 and we will exceed mission again
in fiscal year 2025. The desire for continued service speaks to our
ethos--being part of a team, accomplishing the mission, taking care of
one another, and serving something bigger than self. It reinforces that
marines value their service to our Corps and Country and the high
standards we demand of our marines.
Key components of our retention strategy are re-enlistment bonuses
and quality of life initiatives; we thank you for your support of
these. One main initiative for your marines in the strategic Indo-
Pacific area of operations was very simple--to allow shipment of more
than one vehicle when a marine had a family member of driving age. This
authority supports the marine, the spouse who needs to get to work or
transport a child to childcare, or the spouse or child that needs to
get to school. It is a big deal to those who we send to these remote
locations overseas.
Despite these successes, the retention environment is competitive.
We continue to experience challenges retaining certain communities,
like aviation, cyber, and some of our intelligence specialties. Of
particular importance is aviation retention. Assessments have shown
this must be viewed holistically and cannot be solved by bonuses alone.
We are exploring monetary and non-monetary incentives, to include
improving aircraft readiness rates and flying hours, and increasing the
production pipeline throughput, all of which support increased
operational readiness.
We thank Congress--especially this Subcommittee--for the
incentives, flexibilities, and special pays you have authorized. They
enable the development of better strategic talent pools and increase
access to our talent for longer periods and with more options to better
access and match it to warfighting requirements.
compensation
Competitive compensation is a foundation of the All-Volunteer Force
with impacts to both recruiting and retention. Currently, basic pay and
accompanying benefits, such as housing, medical care, bonuses and
allowances, and tax advantages, are very competitive. According to the
recent DOD 14th Quadrennial Review of Military Compensation, pay for
officers is in the top 24 percent of pay as compared to their civilian
counterparts; for enlisted, it is in the top 17 percent. We appreciate
Congress' 4.5 percent basic pay increase for marines.
We continue to use both monetary and non-monetary incentives to
retain, match, and assign marines to billets that are appropriate for
their experience and skill. Selective Retention Bonuses for Active and
Reserve marines allow shaping specific personnel requirements by
targeting critical military occupational specialties and supporting
lateral movement of marines to these billets. We continue to be
proactive in the retention campaign by designing complementary monetary
and non-monetary incentive packages tailored to individual marines with
unique desires and aspirations.
talent management
The Marine Corps is a notable example of a meritocratic
institution. The Corps takes pride in commitment to recognizing and
rewarding excellence among its ranks in a fair, transparent, and
methodical way. Whether it is accessing, assigning, promoting,
awarding, or retaining marines, we remain dedicated to merit-based
principles. To remain the most ready and lethal force, we capitalize on
the knowledge, skills, abilities, performance, and potential of every
marine, and provide each marine opportunity for success on their
merits.
To further increase our readiness and lethality, we are modernizing
how we manage our talent. The overarching goal of Talent Management
(TM) is to increase Marine Corps combat capability and remain the
premier expeditionary force-in-readiness. TM requires that we recruit
and retain the best talent, modernize the assignment process consistent
with our warfighting philosophy, introduce new measures to increase
career flexibility, and utilize modern digital tools, processes, and
analytics, with transparency. Much like the overarching approach to
Force Design, TM is a multi-year, total force effort--a service-wide
strategic design process that we are executing. Some of our proven
talent management initiatives include:
Commandant's Retention Program (CRP) identifies the most
competitive marines and offers them an opportunity to stay a marine via
pre-approved reenlistment. Since its introduction in fiscal year 2023,
over 4,000 high-performing marines have chosen to reenlist under CRP.
Enlisted Career Designation Pilot (ECDP) provides greater
stability and career certainty for senior enlisted marines, allowing
Eligible E-8 and E-9 marines can voluntarily opt into the ECDP upon
reenlistment, committing to an additional 24 months of service and
potentially extending their careers to their desired end date up to
their enlisted career force control dates for their current rank.
Direct Affiliation Program (DAP) affords qualified Active
component marines the opportunity to seamlessly transition to the
Reserve component with no break in service. As of February 2025, we've
accomplished more than 40 percent of our fiscal year goal, which
equates to over 800 warfighting marines ready to serve our Nation in
the Reserves.
Special Duty Assignment (SDA) Volunteer Program allows
marines to provide duty station preference for recruiter, drill
instructor, and combat instructor billets if they volunteer for them.
Since its initial inception during the fiscal year 2023 SDA Campaign,
this program has sustained an 86 percent average increase in total
volunteer assignments, significantly reducing involuntary screenings
and improving career satisfaction and retention.
Sequenced Professional Military Education (PME) Staff
Non-Commissioned Officer (SNCO) Promotion Selection Model increases the
number of marines that our enlisted promotion selection boards may
consider eligible for promotion. As of March 2025, 746 marines across
the total force have promoted under this initiative. These additional
SNCOs would have otherwise not been eligible and passed for promotion.
Our standards have not changed. Once selected, marines must still
complete all PME requirements for grade before delivery of their
promotion.
Staff Non-Commissioned Officer (SNCO) Alternate Selection
List incentivizes strong performance and provides the service with an
additional TM mechanism to mitigate risk to mission. As of March 2025,
we have activated 113 alternates for promotion--directly enhancing
overall readiness by reducing potential gaps in or formations.
Increasing Lateral Movement incentivizes qualified
marines to transition into high-demand, low-density MOSs.
Promotion Opt-Out allows officers to opt out of promotion
without penalty and enables them to complete a broadening assignment,
advanced education, career progression requirement, or other
assignment.
Other initiatives in development:
Improved MOS Assignment will be a better, more
predictive, data-driven matching tool that will optimally align
applicant interest, Primary Military Occupational Specialty (PMOS)
skill requirements, and the needs of the Marine Corps.
Retention Prediction Network (RPN) is currently being
developed to identify a potential recruit's likelihood to enlist and
continue to serve through their first enlistment and beyond. RPN is a
multi-year collaborative effort with academia that harnessed vast
quantities of manpower data to provide data-informed talent management
decisions.
Talent Marketplace will modernize the current assignments
system with a Total Force, transparent, data-based environment that
allows marines, commands, and duty assignment professionals to
collaborate on the assignments process. At full implementation, the
marketplace is envisioned to utilize advanced analytics supported by
artificial intelligence and machine learning elements to enable a
market-style assignment system.
Total Force Retention System 2.0 (TFRS 2.0) is being
deployed this year and will leverage a fully digital platform to
support the first term alignment plan reenlistment campaign, resulting
in a modern user experience and significant reduction in processing
time.
TM success will remain dependent on modern technology systems, and
we continue to modernize our IT portfolio--consolidating older,
disparate systems into a small subset of interoperable, multi-faceted
applications that ride on a single IT system hosted in the cloud. Cloud
migration allows IT efficiencies and effectively scaled applications,
data bases, and services across the enterprise to meet emergent
requirements in a dynamic environment. As we migrate to the cloud, we
will be able to optimize and capitalize on the promise of artificial
intelligence and machine learning. Our vision of cloud-based,
application-accessible platforms must move at the ``speed of
relevance.'' The goal is to have modern technology with increased
capabilities to enable the management of marines' careers.
reserves
As a vital component of a fully integrated Total Force, the Marine
Corps Reserve delivers responsive, joint capable, combat-ready units
and individuals to the Naval and Joint Force, fulfilling warfighting
requirements for contingencies and crisis response across the entire
competition continuum. Aligned with ongoing Force Design modernization,
the Reserves continue to adapt to meet contemporary and evolving
warfighting challenges. By actively contributing to the National
Defense Strategy, the Reserves enhance operational effectiveness by
participating in strategic exercises, fostering critical partnerships,
and supporting operational commands. Resources are prioritized to
deliver robust and immersive training opportunities, cultivating a
ready and resilient force, and fostering a profound sense of purpose
among reservists in defense of the Nation.
Bonus programs support the retention of experienced drilling
reservists and incentivize direct affiliation of marines transitioning
from the Active component. Bonuses also enable ambitious yet attainable
reserve recruiting missions throughout the fiscal year. Together, these
recruiting and retention initiatives populate reserve formations with
high-performing marines, stabilizing unit readiness and contributing to
the readiness and lethality of your Marine Corps.
civilian workforce
Our civilian employees--both appropriated and non-appropriated
funded--support the mission and daily functions of the Marine Corps and
are an integral part of our Total Force. Our civilian workforce is
lean--with only one civilian for every nine marines, compared to 1:2
for DOD as a whole. They exemplify our core values; embrace esprit de
corps, teamwork, and pride in belonging to our Nation's Corps of
Marines; and serve alongside our marines throughout the world, in every
occupation and at every level. A large majority of our civilians work
outside the Washington, DC, beltway at 57 bases, stations, depots, and
installations around the world. Fifty-nine percent of our civilians are
veterans who have chosen to continue to serve our Nation; of those, 23
percent are disabled veterans. Many others are spouses of marines. Our
civilians steadfastly continue to provide vital support to our marines,
Reserve marines, their families, and our wounded, ill, and injured.
They continue to truly show themselves as Semper Fidelis by keeping our
marines and their families in the forefront.
taking care of marines and their families
Warfighting capabilities are not just built on unit training; they
are also built on trust and meeting the other operational needs that
support overall wellness of our marines and their families. Marines
rely on the institution to provide their families with stability. To
that end, we recognize the importance of marine and family
predictability and support it as a major line of effort for
successfully achieving combat readiness.
Marine Corps Total Fitness (MCTF) is an integrated system of
health, wellness, prevention, and performance capabilities that enable
the readiness, lethality, and resilience of individual marines and
enhance the well-being of marine families. MCTF is our primary
prevention delivery mechanism and a proactive, holistic approach to
prevention and wellness, program delivery, resource management,
infrastructure development, and policy design. MCTF emphasizes four
domains of fitness--mental, spiritual, social, and physical. It also
recognizes other foundational building blocks for wellness such as
sleep, nutrition, medical/dental care, and financial, environmental,
and occupational fitness.
Our Warrior Athlete Readiness and Resilience centers prioritize the
marine warfighter who is closest to the fight and recognize that
meeting marines' operational needs are inseparable components of
mission success. We engage marines and families where they work, train,
live, and naturally congregate to create greater accessibility,
sustainability, affordability, and benefit. We help marines and
families build life skills that contribute to holistic wellness: coping
and problem-solving strategies, stress identification and mitigation,
healthy relationships and boundaries, and peer-to-peer mentorship and
support. We appreciate Congress' support of our integrated prevention
strategy to combat harmful behaviors and improve the readiness,
performance, and resiliency of the Corps and our families.
suicide prevention
A life lost to suicide is tragic. Suicide prevention remains a top
priority for Marine Corps leaders. Suicide is also a critical issue
across the United States; the current U.S. suicide rate is the highest
since 1941. Marine Corps' efforts to reduce suicides include
implementing Suicide Prevention and Response Independent Review
Committee recommendations, expanding our integrated prevention efforts,
and promoting MCTF to reduce suicides by strengthening the social,
spiritual, mental, and physical health of our people. Our Unit Marine
Awareness and Prevention Integrated Training and Operational Stress
Control and Readiness training focus on primary prevention and early
intervention basics. The Prevention in Action training for leaders and
stakeholders outlines a comprehensive approach to prevention. We have
also fully implemented the Brandon Act, which ensures marines are
educated on all options to seek care, including the option to
voluntarily seek help through an officer or SNCO supervisor and
initiate a referral for a mental health evaluation. Part of our effort
will always be to encourage every marine to use the care and services
available--and we need to make sure that mental health care is easily
accessible. Nationwide shortages of health care personnel and providers
have created significant challenges for accessing quality, timely
health care, especially in more remote and overseas locations.
sexual assault/sexual harassment prevention
The Marine Corps values every marine and is committed to fostering
a culture where all marines feel safe in their unit and where the
crimes of sexual assault and sexual harassment are eradicated. The
Marine Corps Sexual Assault Prevention & Response program encourages
prevention, reporting, investigation, and prosecution of these criminal
behaviors to the fullest extent. We remain steadfast in holding
perpetrators appropriately accountable for their crimes and commanders
and senior enlisted leaders accountable for the climate of their units.
We also provide training and education to marines, sailors, dependents,
and eligible civilians to foster an environment where sexual assault
and harassment of any kind is not tolerated and provide guidance on how
to respond and report. We appreciate Congress' support as we continue
these efforts.
family support
Permanent Change of Station (PCS) Flexibility. The Marine Corps
continues to prioritize stability for units and reducing the stress
placed on marines and their families. PCS moves, while essential, can
be disruptive. Through TM, we seek to further increase PCS and
permanent change of assignment (PCA) flexibilities, balancing the needs
of the individual marine's career, their family, and the service.
Childcare. High quality childcare is one of the many important
child and youth programs we offer. It is a readiness priority for the
Marine Corps. Our child development centers currently serve more than
40,000 children, and we have waitlists for 800 children, primarily at
Camp Pendleton, Hawaii, Quantico, MCAS Beaufort/MCRD Parris Island, and
Camp Lejeune/New River. While waitlists are caused by a variety of
factors, we share the national challenge of employee turnover rates. We
are addressing childcare waitlist issues through several initiatives,
to include a non-competitive childcare employee transfer program. More
than 40 percent of our direct care childcare employees are marine
spouses, which contributes to the annual turnover rate due to PCS. The
non-competitive transfer program enables employees to seamlessly
transfer from their current position to one at a different
installation. This has provided dividends, allowing us to retain more
than 180 spouse employees we may have otherwise lost.
We also offer childcare fee assistance for eligible marines who are
assigned to an installation with a significant waitlist or who are not
stationed near a DOD childcare facility. Over the past 3 fiscal years,
the rate of fee assistance utilization has increased steadily for both
community-based childcare providers as well as children served. In
fiscal year 2024, more than 1,800 children were enrolled in the fee
assistance program with 733 community-based providers, at a total cost
of $8.7 million.
Spouse Employment. Spouse employment is also important for many
Marine Corps families and can be a significant factor in their
financial security, readiness, and retention. The Family Member
Employment Assistance Program provides employment-related referral
services, career and skill assessments, career coaching, job search
guidance, portable career opportunities, and education center
referrals/guidance. Additionally, to support our spouses who work
within Marine Corps Community Services, we released the Relocation Tool
within the personnel system to allow spouses to identify their next
Marine Corps duty station ahead of their move, which fosters direct
transfers and career continuity. We also reimburse eligible marine
spouses up to $1,000 for State licensure and certification and other
business costs arising from relocation to another State and have
supported 511 spouses thus far. We appreciate Congress' recent
expansion of this program and continued support.
conclusion
Our highest priority will always be recruiting, developing, and
retaining elite warriors in the highest state of combat readiness to
support and defend this great Nation. Every initiative that we
undertake must demonstrably and logically contribute to readiness and
lethality. Our measure of success is a Marine Corps with improved
performance in combat which enables us to fulfill our congressional
mandate to be `most ready when the Nation is least ready,' today and on
the battlefields of the future. Today, we stand ready to do exactly
that.
Semper Fidelis.
Senator Tuberville. Thank you General. General Miller.
STATEMENT OF LIEUTENANT GENERAL CAROLINE M. MILLER USAF, DEPUTY
CHIEF OF STAFF FOR MANPOWER, PERSONNEL, AND SERVICES, A-1,
UNITED STATES AIR FORCE
Lieutenant General Miller. Chairman Tuberville, Ranking
Member Warren, and distinguished Members of this Subcommittee.
I'm honored to have the opportunity to appear before you with
my fellow service personnel colleagues.
The Department of the Air Force is committed to ensuring we
are postured to deter and if necessary, prevail against our
sophisticated peer competitors to include China and Russia. As
the department looks to the future, readiness continues to be
the foundation of our mission success
Readiness can be assessed through multiple lenses; however,
our most significant competitive advantage is our people, our
airmen. We exist to fly, fight and win, none of which is
possible without the dedication and talent of the men and women
who volunteer to serve. This year, we continue to focus on
recruiting, developing, and retaining skilled and innovative
individuals, ensuring they are equipped with essential
operational skills and resources.
Fiscal year 2024 saw improvements in recruiting due to an
increase in recruiter manning, changes to training processes,
and an increased in delayed entry program to its highest level
in 10 years. The department is also improving pilot retention
through increased sessions and training through pit capacity,
using monetary and non-monetary authorities granted by
Congress.
As readiness is directly linked to the welfare of our
airmen and their families, we continue to target barriers to
well-being and overall force readiness in areas including
economic security, access to quality childcare, sexual assault
and sexual harassment prevention and suicide prevention.
Efforts to reduce financial stress include training through
programs such as the personal financial readiness program and
direct financial assistance authorized by the Fiscal Year 2025
National Defense Authorization Act.
We also remain committed to improving access to available,
affordable, and quality childcare programs. To bolster sexual
assault and sexual harassment response and prevention, we have
implemented policies to establish standards for care providers
to ensure accountability and facilitate inter-office
collaboration.
Furthermore, the Department has codified the DOD suicide
response system and implemented a postvention command support
team. This team delivers leader-focused training designed to
implement rapid response activities following a suicide event
to minimize suicide contagion, facilitate individual and unit
cohesion, and reduce negative impacts of force readiness.
Talent management remains one of the cornerstones of our
efforts to build and develop the force we need. Our talent
management philosophy is based on high standards,
accountability, and meritocracy. Each airman record is
evaluated on its own merits, specifically in terms of job
performance, demonstrated skills and warfighting readiness. To
improve readiness, the department is focused on developing
specialized skills to solve operational and strategic
challenges.
As the Department of the Air Force looks to the future to
preserve our supremacy against adversaries, I assure you the
Air Force leadership is wholly focused on maximizing readiness
and lethality, while caring for our force.
Thank you for your continued partnership and your advocacy
of the United States Air Force. I look forward to your
questions.
[The prepared statement of Lieutenant General Caroline M.
Miller follows:]
Prepared Statement by Lieutenant General Caroline M. Miller
introduction
Chairman Tuberville, Ranking Member Warren, and distinguished
Members of this Committee, thank you for the opportunity to appear
before you today and for your continued support. I am honored to share
the continuing efforts of the United States Air Force within the human
resources portfolio to build and maintain critical airmen readiness.
As the Department of the Air Force (DAF) looks to the future,
readiness continues to be a cornerstone of our mission. While readiness
can be assessed through the lens of our platforms, lethality of our
pilots, and weapons in our inventory, our most significant competitive
advantage is our people--our airmen. They are the foundation of our
force; their knowledge, skills, and abilities are critical to deterring
aggression, sustaining combat operations, and defending the Nation at a
moment's notice. As we navigate evolving global threats, it is
essential that we recruit, train, and retain a lethal and well-equipped
force that is prepared to successfully respond to current and future
challenges. Meeting today's challenges requires a highly capable,
combat-ready force that will enable the Air Force to have the right
airmen in the right place at the right time. Ensuring our manpower is
aligned to future force structure and modernization efforts requires a
focus on recruitment & retention, force readiness, and talent
management to develop and retain the talent needed to execute assigned
missions and strengthen our lethal fighting force for the United
States.
The Air Force relies on the strength of our meritocracy at every
level of the personnel system; we must rebuild readiness and enforce
high standards & accountability to fulfill the President's objective of
leading with peace through strength. The DAF maintains a commitment to
excellence across all facets of our force structure. We have a robust,
dynamic, well-developed and technically proficient total force
encompassing Regular, Reserve and Air National Guard personnel together
with our civilian workforce who are prepared to respond to any conflict
or crisis. Our comprehensive approach to readiness reflects our
unwavering dedication to provide care and support for our airmen,
guardians and their families to ensure they are equipped to thrive in
an ever-changing landscape and remain postured to succeed.
grow the future airman
To maintain air supremacy, the Air Force must maintain steadfast
focus on its greatest strength: our airmen. We exist to fly, fight, and
win--none of which is possible without the dedication and talent of the
men and women who volunteer to serve. Ensuring the right airman is in
the right job at the right time requires that we not only attract
skilled and adaptable individuals, but also effectively develop them
and reward excellence so they choose to continue serving. Our approach
to recruitment, readiness and talent management is centered on that
principle.
In fiscal year 2024, with the assistance of Congress, the DAF
successfully reintroduced Air Force Warrant Officers to boost and
retain cyber and information technology talent across the Department.
Warrant Officers will serve as technical experts charged with remaining
actively engaged in and abreast of advancements in the cyber and IT
fields to ensure the Air Force remains at the forefront of change. In
December 2024, after a 297-day sprint to develop the foundation and
training necessary for a Warrant Officer Corps, we graduated our first
class of 30 Air Force Warrant Officers, selected from a pool of 490
incredibly talented enlisted airmen. This historical class is the first
assessed class since we ceased accessing Warrant Officers in 1959.
force management strategy: recruitment and retention
Air Force lethality is grounded in the proficiency, skill, and
commitment of its airmen. Our end-strength force management strategy
directly influences recruitment and retention and ensures we have the
right airmen to execute our mission.
While fiscal year 2023 was a challenging recruitment year, the Air
Force successfully closed the gap in fiscal year 2024 through an
increase in recruiter manning, changes to training processes, and an
increase in the Delayed Entry Program to its highest level in 10 years.
Last year, we also reported declining retention rates, by slightly less
than a percentage point. This year, retention rates are up, with
overall retention at 90 percent (up 0.6 percent), with officer
retention at 93 percent (up 0.5 percent), and enlisted retention at 89
percent (up 0.6 percent). The programs and policies enacted to address
the previous dip in retention rates are strengthening our force,
reducing gaps in warfighting capability, and shaping future
investments.
The Air Force is also closing the gap in our pilot shortage by
focusing our efforts on increasing accessions and training throughput
capacity. We have deliberately and effectively used monetary and non-
monetary authorities granted by Congress to stabilize the force. We've
fully implemented the Fiscal Year 2025 Aviation Bonus program, which is
performing well. As of March 2025, the Air Force opened 485 new
Aviation Bonus contracts and anticipate by the end of fiscal year 2026,
additional bonus take rates coupled with an increased training pipeline
capacity will further reduce pilot shortfall, significantly improving
our ability to achieve full readiness levels and increased lethality.
Our fiscal year 2025 total force end strength strategic goal of 495,300
remains on target and will allow the Air Force to continue to fill gaps
in critically manned fields to bolster current operational
capabilities.
force readiness
Air Force readiness is inextricably linked to the well-being of our
airmen and their families. While preparing for the complexities of
modern warfare and evolving global security challenges, the Air Force
equips every airman not only with necessary operational skills and
resources but also psychological fortitude and familial support to
excel in their missions. The DAF continually identifies and addresses
barriers to well-being and overall force readiness through targeted
outreach and tailored programing, in areas including economic security,
access to quality childcare, sexual assault/sexual harassment
prevention and response, and suicide prevention. Many of these programs
provide services for airmen and guardians, so we work in concert with
the Space Force for implementation.
Servicemembers have historically identified ``financial stress'' as
one of their biggest strains, leading to the introduction of the
Personal Financial Readiness program. This series of 10 financial
training sessions, strategically scheduled at various life and career
stages, ensures members progressively develop financial knowledge
through targeted training. DAF rolled out initial mandatory training
IAW NDAA 2018, but in 2023, the first year with new metrics, 20,000
airmen and guardians completed the First Duty Station Personal Finance
Course. Evaluation results revealed 67 percent of participants
correctly answered financial knowledge questions after completing the
course. For fiscal year 2024, we continued to see benefits from this
program as approximately 14,000 airmen and guardians completed the
course, with correct answers increasing to 72 percent.
For airmen seeking direct financial assistance, recent
congressional actions have been influential in increasing financial
support. The Fiscal Year 2025 National Defense Authorization Act (NDAA)
mandates an increase in the eligibility threshold for the Basic Needs
Allowance (BNA) from 150 percent to 200 percent of the Federal Poverty
Guidelines. In addition to the 4.5 percent pay raise in January, it
also authorized a 10-percent Junior Enlisted Basic Pay Raise. The BNA
adjustment may increase the number of our BNA-eligible families from
below 40 to potentially 1,800 and consequently may increase the budget
requirement for military pay and compensation. However, this estimate
will be affected by the Junior Enlisted Basic Pay Raise and will be
monitored closely.
The DAF Military and Family Readiness Centers continue to provide
education, counseling, and referral services to airmen, guardians, and
their families with food security concerns. To supplement our
continuing efforts to investigate and implement innovative and cost-
effective strategies to counter food insecurity, the DAF has contracted
a Food System Transformation Study for the total force. This study will
provide a current State baseline, data-informed vision of an integrated
food system, and an implementation strategy to target these issues in
fiscal year 2026.
Access to available, affordable, and quality childcare programs
also directly impact mission readiness. In fiscal year 2024, the DAF-
operated Child and Youth Programs (CYP) served over 56,800 children. An
additional 7,800 children were supported with just over $33 million in
community-based childcare fee assistance. Due to targeted efforts to
retain staff, such as the childcare fee discount (expanded in the
fiscal year 2025 NDAA to 100 percent for the first child of all CYP
employees and a 25 percent discount for each additional child),
staffing levels increased from 72 percent in October 2022 to 86 percent
in December 2024. Through staffing increases and retainment efforts,
the unmet childcare needs waitlist fell below 3,000 at the end of
fiscal year 2024, the lowest it has been since DAF began tracking unmet
needs in March 2018. However, the current hiring freeze has severely
impacted our childcare centers by lowering our staffing levels and
increasing waitlists, with the current DAF waitlist a little over 4,000
as of 19 March 2025. With the projected reduction of the civilian
workforce, we are still monitoring the enterprise impact this will have
on DAF childcare.
Responding to and preventing sexual assault and sexual harassment
are critical to force readiness. One successful approach DAF has taken
is ``co-location,'' which implements our policies of ``Connect to
Care'' and ``No Wrong Door.'' These policies establish standards for
care providers to maintain accountability and facilitate inter-office
collaboration to support our airmen and guardians. ``Connect to Care''
is a collaborative approach to support victims and survivors of sexual
harassment, sexual assault, stalking, cyber harassment, domestic abuse,
and/or interpersonal violence. ``No Wrong Door'' ensures that victims
and survivors receive a warm handoff between support agencies,
regardless of which agency they initially engage. We have achieved co-
location and/or collaboration of services at 22 installations and plan
continued implementation across the DAF.
The DAF has codified the DOD Suicide Response System within its
services to airmen, guardians, and their families. The Suicide
Postvention Command Support Team (SPCST), with policy and guidance,
develops leader-focused training designed to implement rapid response
activities following a suicide event. These efforts help minimize
suicide contagion, facilitate individual as well as unit cohesion, and
reduce negative impacts on force readiness. SPCST is composed of
Headquarters Air Force subject matter experts who provide support and
consultation to commanders at installations experiencing a ``suicide
anomaly''--a greater than expected frequency of suicide deaths given
installation size and DAF suicide rate. The team provides immediate and
long-term recommendations for suicide prevention, intervention, and
postvention, as well as implementation of these recommendations.
Together with the Wingman Guardian Connect program, which focuses on
building personal relationships, the system hopes to significantly
increase cohesion and reduce suicide risk, thereby positively impacting
force readiness.
talent management
Talent management is the cornerstone to building the force we need.
The foundations of our talent management philosophy are high standards
and meritocracy. We believe that advancing the best-qualified airmen--
those with demonstrated performance, leadership, and potential--is
essential for mission success. In alignment with the President's
administration and under Secretary Hegseth's direction, the Air Force
has reviewed all personnel policies to ensure they remain grounded in
merit.
Each airman record is evaluated on its own merits, focusing on job
performance, demonstrated skills, and warfighting readiness. Promotion
boards are determined by Operational Categories to represent the
population of the Air Force. Operational Categories include Combat;
Combat Support; and Combat Service Support. Our promotion board
processes continue to use a whole-person concept to assess duty
performance, professional qualities, leadership, experience breadth,
and education--without regard to immutable characteristics. This
approach is consistent with longstanding Air Force values and Title 10
requirements.
Currently, the Air Force is balancing the DOD commitment to
reducing the civilian workforce with maintaining critical talent in
career fields that directly contribute to combat effectiveness. We are
committed to cutting overhead and improving efficiency but must
approach it strategically to avoid harming readiness by losing critical
talent. We continue to support NDAA initiatives aimed at strengthening
our civilian workforce though the use of direct-hiring authorities,
faster hiring timelines, and improved training programs for our
civilians. Through process improvements, the Air Force is very
competitive in hiring experts in cyber, engineering, and other high-
demand, critically manned fields.
The senior-leader focus on standards from Secretary of Defense
Hegseth and Chief of Staff of the Air Force General Allvin reinforces
that we will not lower the bar in the name of expediency. Whether it is
in training, daily performance, or conduct, we expect every airman to
meet high standards and we hold leaders accountable for enforcing those
standards. By rewarding individual initiative, excellence, and hard
work based on merit and standards, we foster a culture where every
airmen trusts that they have an equal opportunity to succeed. This not
only unifies our force but also improves effectiveness by ensuring the
most capable individuals assume leadership roles. We encourage a
culture where innovation is rewarded and seek to empower commanders and
supervisors to recognize and advance talent.
conclusion
Chairman Tuberville, Ranking Member Warren and distinguished
Members of this Committee, thank you again for this opportunity to
represent our distinguished servicemembers and their families. I want
to assure you that the Air Force leadership is wholly focused on
maximizing readiness and lethality while caring for our force. We align
our policies with a clear-eyed view of the threats we face and a deep
respect for the profession of arms. By advancing airmen who demonstrate
exceptional skill and performance and giving airmen the opportunity to
reach their full potential, we will continue to strengthen the world's
finest Air Force. Unified in this endeavor, we aim to be One Force, and
we look forward to our continued partnership and appreciate your
advocacy of the United States Air Force--those in uniform, our civilian
professionals, and the families, and caregivers who support them.
Senator Tuberville. Thank you, General. Ms. Kelley.
STATEMENT OF MS. KATHARINE KELLEY, DEPUTY CHIEF OF SPACE
OPERATIONS FOR HUMAN CAPITAL, UNITED STATES SPACE FORCE
Ms. Kelley Chairman Tuberville, Ranking Member Warren, and
distinguished Members of this Subcommittee. Thank you for the
opportunity to represent the United States Space Force here
today, and thank you for your opening remarks about the
importance of people. This Subcommittee like no other, is a
huge supporter of the talent that we have in the Space Force.
Our mission is clear: to secure our Nation's interests in,
from, and to space. Strategic competition in space, represents
a serious threat to our national security and to our global
leadership presence.
The Space Force remains focused on developing guardians
with the foundational skills and experience necessary in this
highly technical, contested, and lethal 21st century world that
we find ourselves in. This past year, the Space Force launched
its inaugural officer training course. This is a rigorous 12-
month course covering space, operations, intelligence, cyber,
and acquisition, designed to develop the most credible
guardians possible.
Simultaneously, we evaluated our enlisted training and
development in our cyber and intelligence as applied to the
space domain. For our civilians, we launched an optimization
for space course to enhance the civilian expertise in this
continuing evolving domain.
Building the force American needs requires the continued
growth and investments in all our space professionals and all
our guardians. As our uniform service grows, we are ensuring
the civilian workforce is aligned to critical functions and
indirect support of the warfighter mission and the support the
guardians give to the joint fight.
I'm proud to share that the Space Force has exceeded its
fiscal goal in 24 for enlisted recruiting, and we are on track
in 25 to exceed as well. We are also at a retention rate of 96
percent across our force, both officer and enlisted. Currently,
we have more than 440 recruits awaiting entry into the Space
Force, which will allow us a further pipeline for next year as
well,
To ensure the long-term pipeline of guardians, we've
established a recruiting squadron, which is the first time for
the Space Force to have a guardian recruiting other potential
guardians, and so, we are excited about what this new model can
bring. We're leveraging new marketing platforms as well because
we're cognizant of the talent that we seek for the Space Force,
leveraging technology and ways to meet these potential
guardians where they're at, and we are excited about a new
Space Force planetarium show, that will be debuting around the
country on National Space Day next month.
The Space Force is committed to fostering support for
guardians and their families as well, as we recognize things
like childcare are one of the primary resources crucial for
quality of life and readiness, that allow our guardians to
focus on the 24-7 operational support that much of our force
provides on a day-to-day basis to the joint fight.
We've made significant progress in consolidating space
expertise across the Department of Defense. We've opened our
first application window for space professionals in the
reserves to transition over to the Space Force in a full-time
capacity. We have far outweighed our ability and interest, and
we continue to bring more into the Space Force over the next
subsequent years.
The flexible service options that this committee provided
us in the Personnel Management Act, enable guardians to move
between full and part-time work roles in a much more seamless
way and aligned to the service mission needs. We are also
leveraging the authorities you gave us to incentivize and
compensate our best and brightest, our Science, Technology,
Engineering, and Math (STEM) focused talent and those guardians
who represent this Nation
Chairman Tuberville, Ranking Member Warren, and all
distinguished Members of this Subcommittee, thank you again for
the opportunity to represent our Space Force guardians with you
today. As the space domain becomes increasingly contested, no
longer a benign environment, we remain steadfast in our mission
to secure our Nation's interests. I very much look forward to
your questions here today.
[The prepared statement of Ms. Katharine Kelley follows:]
Prepared Statement by Ms. Katharine Kelley
introduction
Chairman Tuberville, Ranking Member Warren, and distinguished
Members of this Subcommittee, thank you for the opportunity to appear
before you today to represent the United States Space Force. Our Space
Force mission is clear: to secure our Nation's interests in, from,
through, and to space. This mission is achievable because of the
incredible men and women who are the guardians of the United States
Space Force. From intelligence analysts to cybersecurity experts, space
operators to acquisition officers, and more, guardians defend our
country and freedom to operate in space, deter aggression within the
domain while maintaining security and accessibility for military space
power and the next generation of innovation.
To achieve Peace through Strength, the Space Force needs to grow
smartly in order to respond to the challenges of the space domain. We
must recruit and retain the very best talent, anticipate and meet the
changing needs of the workforce, champion their professional growth,
and provide support for guardians and their families throughout the arc
of their careers. These are the goals we rise to meet every day--to
take care of the people who will take care of securing our country.
It is a privilege to share with you the continued work of the Space
Force in ensuring the warrior ethos is the nucleus of our Service as we
re-establish deterrence with a U.S. Space Force capable of providing
combat credible forces to execute military operations in the space
domain.
end strength
Space Force capabilities underpin national security. As we build
our military to match threats to capabilities and stay ahead of
strategic competitors, we must continue to grow the U.S. Space Force.
These capabilities will also assist in delivering the Golden Dome for
America and highlight the central role space-based capabilities have in
protection of the U.S. Homeland.
Additionally, the Space Force is actively building Service
Components to provide dedicated space capabilities and expertise to the
Combatant Commands, further increasing our operational footprint.
As our military end strength grows, we are reforming the civilian
workforce through realignment of personnel to critical functions in
direct support of warfighter requirements. The Space Force was created
to be lean with civilians performing critical roles for Space Missions.
As we optimize our workforce to ensure it is the right size for Space
Force, our focus is on retaining civilians with essential expertise.
recruiting and retention
The Space Force faces a unique recruiting situation--a smaller pool
of eligible candidates with STEM skills that are in high demand in the
commercial sector. Despite these obstacles, the Space Force exceeded
its fiscal year 2024 enlisted recruiting requirements by 4 percent and
is on track to meet our fiscal year 2025 recruiting goals.
To shape a sustainable long-term pipeline of guardians and ensure
effective future talent acquisition, the Space Force is establishing a
Recruiting Squadron. The squadron will influence and support
recruitment efforts, while scouting and attracting top talent aligned
with future missions. The Space Force Recruiting Squadron is projected
to achieve initial operational capability by Fall of 2025 and will
continue to mature over the next year to reach full operational
capability with 27 guardian recruiters by Fall of 2026.
This year the Space Force will also debut new marketing platforms.
On International Space Day, May 2d, planetariums around the country
will begin showing a video providing viewers with a basic understanding
of Space Force missions and the Service's role in protecting our
everyday way of life. Then in July, the Elevator Level 62 Mobile
Platform Experience will make its debut. This is a multisensory,
interactive mobile asset that recreates the experience of being 62,000
ft above the earth. Visitors experience different aspects of life as a
guardian--a rocket launch, navigating through space debris, and Space
Force military and humanitarian missions.
Continued investment in the Guardian Recruiting Squadron and fully
funding marketing needs are critical to attracting and recruiting
talented individuals in this competitive market.
Because the Space Force is competing with a robust commercial space
industry, a proactive strategy to ensure successful retention rates is
imperative. That is why the Service is focused on fortifying conditions
to ensure guardians understand how they contribute to the lethality,
agility, and mission accomplishment of the Space Force. Emphasizing
guardians' value and contributions as highly trained professionals and
joint warfighters positively influences their decision to remain in
military service and is why Space Force retention remains healthy and
on target. I am proud to share with this committee that, at the end of
2024, overall guardian retention was 92 percent.
managing talent
The implementation of the Space Force Personnel Management Act
(PMA), enacted in the fiscal year 2024 NDAA, enables the Space Force to
establish an innovative talent management system with flexible service
options. PMA defines conditions for guardians to serve on Space Force
active status in both full time and part time work roles, providing
guardians flexibility to move between roles aligned with service
mission needs. Implementation is now fully underway.
The PMA also enables Space Force to transfer Space missions
currently in the Air Force Reserve to the Space Force. In June 2024,
the Space Force opened the first application window for Air Force
Reserve professionals to transfer into the Space Force full-time.
Following three selection boards, approximately 300 full-time Reserve
space professionals are projected to transfer into the Space Force in
fiscal year 2025. Future transfer application windows are tentatively
planned for this summer.
Similarly, the PMA will enable the Space Force to implement Section
514 of the Fiscal Year 2025 NDAA which directed the transfer to the
Space Force of the space functions currently performed by the Air
National Guard. In collaboration with the Air Force and Air National
Guard, the Space Force has begun initial planning for this transfer and
will continue working to implement Congress' intent.
training and development
The Space Force is focused on developing guardians with the
foundational skills and experiences needed to lead in a highly
contested, lethal, and uncertain 21st century security environment
marked by adversary partnerships and the proliferation of advanced
weapons. We are optimizing our force through implementation of
innovative workforce development efforts for officer, enlisted, and
civilian guardians.
Last September, the Space Force launched the inaugural Officer
Training Course at Peterson Space Force Base. The 12-month program is
developing a multidisciplinary officer corps by providing newly
commissioned Space Force officers with foundational career field
training. This initiative prepares officers to address complex
operational and technical challenges. Following the course, graduates
will begin operational assignments in one of three disciplines,
supporting the Space Force's broader efforts to build a combat-credible
force to control the space domain.
Simultaneously, with the introduction of the Vosler Fellowships,
the Space Force has reimagined enlisted professional military education
with a customized curriculum emphasizing agile teamwork and a
Tactically Responsive Space mindset. The new fellowship model focuses
on leveraging industry and academic networks, short-term training for
staff, and a new experiential learning model to educate enlisted
guardians. There are three Vosler Fellowships structured across key
career milestones, with each course enhancing leadership and
operational capabilities while building upon the previous fellowship's
framework. We are also developing Space Force-specific enlisted
development programs, incorporating fully qualified promotions and
codifying our foundational warfighting capabilities into our functional
career fields.
For civilian guardians, the Space Force developed a 2-week pilot
course to optimize civilians for mission readiness. The first course
launched in October 2024 at the Space Systems Command, bringing
together civilian personnel to gain better understanding of Space Force
operations and strategic objectives. This program equips civilians with
the tools and knowledge needed to effectively support space
superiority.
pay and compensation
I want to thank you for protecting the increase in pay for our
junior enlisted servicemembers when passing the continuing resolution
to fund the government through the end of this fiscal year. While we
continue to work through the cost-of-living challenges facing our
guardians, we appreciate your support.
This year the Space Force expanded eligibility for the basic needs
allowance and launched assignment incentive pay for extreme cold
weather environments. We've also conducted a special duty assignment
pay review, implementing a new to ensure proper compensation and
improved financial stability for our enlisted guardians serving in
critical roles.
Retaining talent in highly technical fields is a priority for the
Space Force. As a result, we've increased the Selective Retention Bonus
(SRB) and secured policy exceptions to offer SRBs widely, based on
Space Force Specialty Codes. Our commitment to meritocracy is reflected
in the new military evaluation form to be fielded in fiscal year 2025.
It is tailored to the Space Force to ensure performance evaluations
align with service-specific values, focus on mission accomplishment,
and better reflect guardian roles and responsibilities.
quality of life
Quality of life directly impacts recruitment, retention, and the
overall readiness of the force. The well-being of guardians and their
families is essential and contributes to a strong and resilient force.
The Space Force fosters a strong sense of community and provides
support for guardians and their families through various resources and
programs. This past year the Space Force launched the Quality of Life
Learning Channel, a centralized platform with key resources, including
childcare support, travel reimbursement updates, and health and
wellness guidance for guardians and their families.
The Space Force was designed as a lean service. We rely on numerous
United States Air Force programs to support our servicemembers and
improve quality of life for guardians and their families. These
dedicated support professionals have ensured access to fitness centers,
childcare and youth programs, and food operations ensuring mission
readiness for guardians. This year, Space Force bases reached a 7-year
staffing level high across Child Development Centers, filling 87
percent of current vacancies and reducing the unmet need by 71 percent
since April 2022.
Guardian health and fitness is another key component of readiness
and resiliency. Critical at all points of service, this is especially
true when employed-in-place and supporting 24/7 missions. The Space
Force has operationalized its Holistic Health Approach with Guardian
Resilience Teams that work directly with servicemembers and their
families to provide multidisciplinary expertise to build skills and
enhance resiliency of the force. These teams have had more than 300,000
touch points with guardians across the enterprise since July 2024. They
are located at every Space Force Base, the National Capital Region,
Joint Base San Antonio (JBSA), Kirtland Air Force Base, and a remote
Guardian Resilience Team has been established for geographically
separated units and remote guardians.
conclusion
Chairman Tuberville, Ranking Member Warren and distinguished
Members of this Committee, thank you again for this opportunity to
speak to you today and represent Space Force guardians and their
families. As the space domain becomes increasingly contested, we remain
steadfast in our mission to secure our Nation's interests in, from,
through, and to the space domain.
This mission is not just about technology, strategy, or
capability--it is about people. It is about the guardians who have
pledged to protect our country, push the boundaries of innovation, and
uphold the warrior ethos that defines our Service. These men and women
operate in a challenging environment where precision, vigilance, and
adaptability are not just valued but required. Their commitment ensures
that our Nation remains secure, our warfighters stay connected, and our
future in space remains one of strength and leadership.
We must continue to recruit the best, develop their talents, and
provide them with the support they need to thrive--because when we
invest in our people, we invest in the security of our Nation. With the
right resources, the right policies, and the commitment of leaders like
you, we will ensure that America remains the preeminent space power for
generations to come.
The Space Force is not just preparing for the future--we are
shaping it--as we build a ready, resilient Force responsible for
preserving the United States's advantage in space.
Senator Tuberville. Thank you, Ms. Kelley. Thank you all of
you, and you all have very important jobs as we all know. We
all know the consequences if you do great or don't. So, thank
you for your efforts.
I once was a recruiter in my former job. I know how hard
that is, and pretty much the same level, in the same age group,
and it's a thrill a minute, you know, when recruiting 18-, 19-,
20-year-old young men and women. So, we'll go through a few
questions here.
General Eifler, you know, this week my office heard from a
constituent that the Army was planning to close its command and
General Staff College Satellite Campus at Redstone Arsenal, in
my State of Huntsville, Alabama. When was this decision made
and can you share with the committee the reasoning behind this
closure?
Lieutenant General Eifler. Yes, Chairman, there was no
decision. This is all pre-decisional. I know they're doing some
analysis out there based on some decisions for the delayed
retirement program, but no such decision has been made at this
time.
Senator Tuberville. Thank you. Secretary Hegseth recently
ordered a 60-day review of military combat armed standards to
ensure that everyone who filled these roles was held to the
same equal standard. Each one of you, and we'll start with the
General on the left here. Can each of you--if you have affected
jobs, discuss your services approach to meeting this deadline
and creating sex-neutral standards based solely on the
operational demands of the occupation and not an artificial
desire to achieve a certain representation number? Can each of
you talk about these requirements? General, we'll start with
you.
Lieutenant General Eifler. Yes, Chairman. Specifically, we
were looking into this because of the NDAA last year that
directed the close combat units specifically in Military
Occupational Specialty (MOSs) or specialties like infantry,
armor, special forces, engineers have a higher standard for
close combat activities. So, we have already been working on
that and we'll continue to work on that here soon, that is due
out by June to have in place, according to this Committee, in
this Congress.
What the Secretary of Defense has asked us also to look at
as having one standard that is regardless of sex for those
close combat units. So, we're taking our analysis and looking
at all of that to make sure that we are focused on lethality
and focused on what we require for combat
Senator Tuberville. Admiral.
Vice Admiral Cheeseman. Senator, thanks for the question.
Navy's taking a similar approach as my Army colleague here.
We've done some nascent work with our SEALs and Explosive
Ordnance Disposal (EOD) folks, also with some of our Civil
Engineering Corps folks. We have a much smaller cadre given
we're not necessarily ground focused, but for those communities
that are, we're working with Manpower Reserve Affairs, we're
developing those standards, but their work to date is nascent
Sir.
Senator Tuberville. General
Lieutenant General Borgschulte. Senator Tuberville, thanks
for asking this question. For marines, we carry high standards
and we don't apologize for it. We're very proud of our high
standards. Every marine conducts a combat fitness test, and a
physical fitness test. These combat fitness tests; this is
where you carry a marine over your shoulder through an agility
test for 50 meters. You throw a grenade, a dummy grenade, you
carry ammo cans and we're pretty proud of that. Every marine
fires an automatic weapon and qualifies not just from a hundred
yards, from 500 yards, five football, fields, every marine.
In addition, for our combat arms, all marines have the same
standards. So, things such as wearing your full combat, heavy
equipment with your service weapon, and going on a force march
for 20 miles under a certain time, all marines. Another
instance would be taking a mark 19, very heavy weapon, grenade
launch weapon system, putting that over your head, doesn't
matter. Male, female, all marines. Taking an Olympic bar, 115
pounds, putting it over your head, all marines. Taking an
Olympic bar, 150 pounds up holding, deadlift all marines. So,
we're again, very proud. Thanks for asking that question, we
hold our standards and we don't apologize for it. If you can't
meet that standard, you're not in USMC.
Senator Tuberville. Can you carry somebody 50 yards on your
shoulders?
Lieutenant General Borgschulte. I can. Yes, sir.
Senator Tuberville. I see your group behind you saying Yes,
[Laughter.]
Lieutenant General Borgschulte. If you come down to
Quantico, sir, I'll carry you.
Senator Tuberville. General Miller.
Lieutenant General Miller. Yes, sir. We had already started
doing this. We already have a special force combat arms
physical fitness test, and we just wrapped up the EOD. We've
been working over the EOD for the last couple years and they
finalized it last week actually. So, the timing was perfect.
We're getting ready to demonstrate it to the chief, and at that
point we'll be in compliance with the with the requirements.
Senator Tuberville. Were there a lot of adjustments to it?
Lieutenant General Miller. Not at all. None, and ours are
also sex-neutral, they always have been.
Senator Tuberville. Ms. Kelley?
Ms. Kelley Yes. Chairman, on the Space Force side, I would
add one unique dynamic for us. In addition to the review that
we're in the midst of on combat relevant, the piece for the
Space Force that we're really looking at is the cognitive
abilities necessary on an ops floor for us. A lot of what our
focus is for guardians is to make sure that they're coming to
work ready, rested, awake, focused on what they need to do.
So, in addition to the physical training and the fitness
that they're working on, we're also exploring whether we can
bring technology into that to help them see and be more aware
of how ready they are for that direct fight that night.
Senator Tuberville. Thank you, Senator Warren.
Senator Warren Thank you, Mr. Chairman. So, every parent in
this country understands how hard it is to find high quality,
affordable, available childcare. For our military families, the
tasks can be just whole orders of magnitude harder. Often, they
have to navigate finding childcare while they're on long
deployments, abrupt relocations, and non-standard work hours.
If military families can't find childcare, they just may not be
able to serve.
I appreciate that at least two of you specifically
mentioned childcare when we talk about our servicemembers and
our force readiness. DOD knows how important childcare is, and
that is why it runs the Nation's largest employer-based
childcare system. It's high quality, it's affordable, but right
now it is facing a huge shortage of childcare workers, which
means fewer childcare slots, and literally thousands of
families on wait lists.
In 2023, A DOD task force investigated the staffing
shortages and confirmed that, in order to fix this problem, we
need to increase childcare workers' wages. So, in last year's
NDAA, we tasked the DOD with redesigning the compensation model
and starting to implement it by April 1st. But here we are a
year later, and you haven't even finalized the redesign, much
less begun implementation that was supposed to have started,
what is it, 8 days ago?
So, for each witness, I want to ask, when can we expect to
see the updated compensation model and when can we expect to
see implementation begin? Lieutenant General Eifler, let's
start with you.
Lieutenant General Eifler. Thanks, Ranking Member.
Senator Warren I'll be writing these down. So, what's the
date?
Lieutenant General Eifler. Yes, so I am not clear on that
date, because I know, I believe all the services are working
with the Department of Defense on finalizing that. I do believe
the CR has some impacts because of funding for it because----
Senator Warren No, I'm sorry. The CR has impacts on your
implementation.
Lieutenant General Eifler. Right.
Senator Warren It does not have an impact on your
obligation to update your compensation model. You're supposed
to do the modeling with the money you got.
Lieutenant General Eifler. Yes.
Senator Warren So when can I expect to see your updated
model?
Lieutenant General Eifler. I would have to followup with
you, Senator, because I am not clear on when that's going to be
in place.
Senator Warren Okay. Well, I hope you're clear that you're
already way past due.
Lieutenant General Eifler. Yes, Senator.
Senator Warren Alright. Vice Admiral Cheeseman, how about
you? What's the date?
Vice Admiral Cheeseman. Senator, similar answer. We're
working with our Office of the Secretary of Defense (OSD)
partners on when that date would be, and when I have a more
informed name, I'll make sure I get back with it, ma'am.
Senator Warren Yes. Well, I'd like to have an answer that
suggests that you guys are paying attention to this. We didn't
put this in the law just for the fun of it. It wasn't advisory.
It was for you to actually perform by a date certain.
Lieutenant General Borgschulte.
Lieutenant General Borgschulte. Senator, thank you very
much for bringing this up. This is personal to me. I've got
kids, I've got a spouse that has a career and we have used our
world class childcare at every duty station.
Senator Warren Good for you. So, when?
Lieutenant General Borgschulte. So, I'll get back, we have
increased the wages. I'll get back to you with a specific date,
but we have over 40,000 kids in our child and youth programs. I
mean, think about that. So that really a retention effort and
that allows them to be free to go fight, and I just appreciate
you bringing that up.
Senator Warren Okay. So, you said many nice things and the
fact that you've actually moved toward increasing wages put you
a step ahead of the other two people to your right.
Lieutenant General Borgschulte. We'll take that. Senator,
I'll get you back an exact answer on this.
Senator Warren But I got to have this done. Okay.
Lieutenant General Miller.
Lieutenant General Miller. Yes, Ma'am. We've actually in
increased our wages----
Senator Warren Also good, how about your plan?
Lieutenant General Miller. We have a plan. I can get it
over to you, ma'am.
Senator Warren Oh, you actually, have it? because We
weren't able to find it, so I'm polite.
Lieutenant General Miller. I will initiate or I will send
over what we have done over the last year, which is quite
significant.
Senator Warren It's an updated compensation model?
Lieutenant General Miller. Yes, ma'am.
Senator Warren Is what you're required to do under the law,
and then start implementing that model. So, thank you. I hope
That's right. Lieutenant General Miller, Ms. Kelley.
Ms. Kelley Senator, we leverage the Air Force for our Child
Development Center (CDC). So, the model that General Miller is
referencing would be applicable for guardians as well.
Senator Warren You're pointing back in the other direction.
Yours will be ready when his is ready.
Ms. Kelley. No ma'am.
Lieutenant General Miller. Yes, ma'am. I'm sorry. Yes, we
support her.
Senator Warren I was taking you to the other end, I
apologize.
Ms. Kelley The Air Force runs the child development centers
that the Space Force guardians leverage. So, the adjusted
salaries that the Air Force has, to include the fee assistance
programs that are unbelievably helpful for our CDC workers,
we've seen significant improvement.
Senator Warren I just want to say on this, look, I
understand that I am unpleasant about this and intend to be
even more unpleasant if this doesn't get done. You all fully
understand why this is so important and so important anytime.
We don't say to our military families, here's this really hard
job, and then not give them the support that they need to be
able to carry it out.
So, I appreciate that you all seem to understand that. My
job is just to keep turning up the heat until we actually get
this done and pay them better. Let me just bring out one more
of course. This is all about making sure we have the staff
needed to bring down military childcare wait lists. But of
course, that's not going to happen if we're slashing the
civilian workforce.
Two weeks ago, a Child Development Center in Utah closed
because of cuts to its civilian staff. So, let just ask, do you
agree that cutting childcare by laying off civilian childcare
workers makes life harder for military families? Ms. Kelley,
we'll start at your end this time.
Ms. Kelley Senator, I absolutely agree that lack of
childcare is a readiness issue for all the services and
certainly for the Space Force.
Senator Warren Go ahead.
Lieutenant General Miller. Yes ma'am. It's a readiness
issue.
Senator Warren Thank you. General Borgschulte,
Lieutenant General Borgschulte. Senator Warren, I agree a
hundred percent. We have not shut any down and don't plan to.
Senator Warren I hope that's right, but it really is the
reminder that these civilian cuts can have profound effects for
our Active Duty servicemembers. Vice Admiral Cheeseman.
Vice Admiral Cheeseman. Senator, thanks for the question.
For our childcare employees, they are funded out of non-
appropriated funds. We have not let anybody go. In fact, our
staffing levels have increased by 10 percent over the last
year. We've decreased the wait list by about a thousand spots.
Senator Warren That is really terrific to hear. Thank you
very much. I appreciate your getting that on the record.
General Eifler.
Lieutenant General Eifler. Yes, Ranking Member, totally
concur. We have not shut down any, and we do believe it's a
readiness issue because of that.
Senator Warren Good. I appreciate that, and now in the name
of the chair I call on Ms. Hirono.
Senator Hirono Thank you very much. So, Senator Warren, you
said you can be very unpleasant about all this? It's called
oversight.
Senator Warren Yes.
Senator Hirono If we need to be unpleasant about it, so be
it. So, Admiral, did you say that this is the last time you're
going to be testifying?
Vice Admiral Cheeseman. Yes.
Senator Hirono Oh, thank you very much. Congratulations for
doing what you do and my best wishes to you. So, you know,
let's face it. I am deeply concerned about Secretary Hegseth's
personnel policy changes within the DOD, and their impact on
military personnel and overall readiness. You all acknowledge
how important all these programs are, including childcare and
everything else on readiness, but he's making these cuts.
The reinstatement of the transgender service ban and the
rollback of diversity, equity, and inclusion programs, raise
serious questions about their effects on recruiting, retention,
and unit cohesion. Furthermore, reports of abrupt dismissals of
tenured and nonpartisan military officials most recently,
General Hall, without clear justification, call into question
the institutional stability and apolitical foundation of our
military.
These concerning developments require a thorough
examination to ensure that DOD policy supports a diverse,
inclusive, and effective fighting force. Even as there are all
these attacks on diversity, equity, and inclusion, the fact of
the matter is that all of the services need to recruit from as
wide a swath of people as possible. So, these attacks on DEI,
they are the wrong way to go. As I said, we should be
recruiting from as wide a swath of people as possible.
This is for Admiral Cheeseman. The Navy currently has over
20,000 gaps at sea billets, and this shortfall has serious
readiness implications since it requires a Navy to pull sailors
assigned to ships and submarines undergoing maintenance and
assign them to units going on deployment. This cannibalization
of personnel causes cascading and disruptive effects across the
Service. Question to you, does this gap concern you?
Vice Admiral Cheeseman. Senator, thanks for the question.
It keeps me awake at night. Yes.
Senator Hirono So, it concerns you?
Vice Admiral Cheeseman. That's right.
Senator Hirono What are you doing about it?
Vice Admiral Cheeseman. Yes, ma'am. Our survey data tells
us the single biggest concern among our sailors is burnout due
to lack of manning. All right, so with that, we've done a
number of things. First, we have completely merged our
distribution and advancement systems into something we call
billet base advancement. That has shown great strides in this
area from E-5 to E-9, I essentially have no gaps at sea. In
fact, I have a small surplus. All of our gaps at sea right now
are among apprentices, and it speaks directly to the recruiting
challenges we've had in the past.
When we contracted over 40,000 sailors in 2024, it takes
time to get those sailors through the pipeline. They will start
arriving to ships in 2025. By the end of this fiscal year, we
should have about 18,000 gaps. By the end of 2026, we should be
down to about 8,000 gaps. It takes on average 9 months for a
sailor to get through the pipeline. Those new sailors are
coming.
Senator Hirono I hope you achieve those goals, and in fact,
we probably will be following up with you on how you are doing
because this is a huge, and you're not going to eliminate the
gaps by hoping that it will. I am just going to ask you all,
are women in the military important? Let's start with you.
Lieutenant General Eifler. Senator, yes, they are.
Vice Admiral Cheeseman. Senator, absolutely.
Lieutenant General Borgschulte. Yes, Senator, absolutely.
Lieutenant General Miller. Absolutely. Yes, Ma'am.
Senator Hirono So, when we talk about the how important
childcare is and all of those kinds of things, it makes me
wonder whether in fact women are important in the military. Let
me just point out a program that was created, it's called the
Women's Initiative Team (WIT). All the services had Women's
Initiative Teams. Apparently, they are all gone. Are they gone
in all your services? Are you planning to bring them back? It's
important, I would say if women are important to the services,
do you still have WITs?
Lieutenant General Eifler. I'm not aware of that we do,
Senator.
Senator Hirono Pardon Me?
Lieutenant General Eifler. I'm not aware that we do.
Senator.
Senator Hirono Did you ever have them?
Lieutenant General Eifler. I believe we did.
Senator Hirono Okay. Well, what about you?
Vice Admiral Cheeseman. Senator, for the Navy, we folded
our Women's Initiative Team. But we are, we do have a Navy
culture advisory group that takes in all issues from all
sailors.
Lieutenant General Borgschulte. Senator, I'm not aware of
that particular initiative. But we incredibly value our females
in the Marine Corps.
Senator Hirono Well, I'm told that all the services have
them, so the fact that you're not aware, and when you say that
women are important, and this is one of the ways that we can
recruit, retain them, and support them, I would suggest, in
fact, I'm going to followup and put language in the NDAA that
requires all of you to reinState this program, so that if women
in fact are important to the services, then your policies and
practices will reflect. General Miller.
Lieutenant General Miller. We all of our affinity clubs
have been stood down temporarily.
Senator Hirono Yes. I wonder why, I know why, that is a
rhetorical question. Ms. Kelley.
Ms. Kelley Yes, Senator. We connected with the Air Force
for this as well. They have been stood down. But I acknowledge
your point.
Senator Hirono Yes, and they've been stood down because
they're all supposedly under attack for promoting diversity,
equity, and inclusion. It's like totally wrong. Thank you, Mr.
Chairman.
Senator Tuberville. Thank you, Senator Warren.
Senator Warren Thank you, Mr. Chairman. So, when Congress
passed the GI Bill in 1944, a grateful Nation promised to help
servicemembers with the cost of their education. This was a
thank you for their sacrifices to our country. The promise is
not charity. It is an ironclad commitment, and its key to how
we recruit and maintain a fighting force.
Survey after survey has demonstrated how important this
promise is, both to recruitment and to retention. I see you're
nodding along with this. Too often, however, the Federal
Government has failed to live up to our promise, not delivering
on the student debt relief that servicemembers are entitled to,
or leaving them vulnerable to predatory lenders.
For example, after student loan repayments restarted after
the pandemic, the CFPB found that servicemember complaints
about student loan servicers went up, thanks to hours long hold
times, and other customers service failures with their
companies that were managing their loans. Meanwhile, the
Department of Veterans Affairs (VA) has warned about the rise
of scams, where predatory schools will promise ``immediate''
student debt cancellation that doesn't really exist in order to
lure veterans into enrolling.
So again, I'd like to go down the line, if we can, with our
witnesses for this question. Just yes or no. Does it undermine
our ability to recruit and retain personnel when we let bad
actors scam our servicemembers out of the educational benefits
that they have earned and been promised by the United States
Government? Lieutenant General Eifler, if I could start with
you.
Lieutenant General Eifler. Yes. Ranking Member
Senator Warren Vice Admiral Cheeseman?
Vice Admiral Cheeseman. Senator, yes, ma'am. Absolutely.
Senator Warren Lieutenant General Borgschulte.
Lieutenant General Borgschulte. Yes, ma'am. Absolutely. No
armory should not be scammed.
Senator Warren Lieutenant General Miller?
Lieutenant General Miller. Yes, ma'am.
Senator Warren Ms. Kelley?
Ms. Kelley Yes, ma'am. Absolutely.
Senator Warren Well, that is the reason that I have
proposed language for this year's NDAA to protect
servicemembers from predatory actors. This committee has worked
in a bipartisan fashion before to ensure that servicemembers
get the educational benefits that they have earned under a
bipartisan law signed by President George W. Bush back in 2007.
The Federal Government will cancel the student loans of
people who work in public service and faithfully pay their
loans for at least a decade, as a way to honor their public
service. Last year, Senators Cortez Masto and Senator Moran,
led a successful effort to require DOD and the Education
Department to perform a data match so that all eligible
servicemembers automatically receive the public service loan
forgiveness that the law says that they have earned.
So, once again, I want to go down the line with our
witnesses. Is it important that DOD do everything it can to
deliver debt cancellation under the Public Service Loan
Forgiveness Program to all eligible servicemembers as
statutorily required by Congress? Lieutenant General Eifler?
Lieutenant General Eifler. Yes. Ranking Member.
Senator Warren Vice Admiral Cheeseman?
Vice Admiral Cheeseman. Yes, ma'am.
Senator Warren Lieutenant General Borgschulte?
Lieutenant General Borgschulte. Yes, ma'am.
Senator Warren Lieutenant General Miller?
Lieutenant General Miller. Yes, Senator Warren
Senator Warren Ms. Kelley?
Ms. Kelley Yes, ma'am. Absolutely.
Senator Warren Okay, good. We're in a good place. Once
again though, this is work that remains unfinished. So, I have
submitted an NDAA proposal for this year requiring DOD to
provide quarterly updates until the public service loan
forgiveness data match is implemented, and also requiring the
Government Accountability Office (GAO) to analyze the
challenges that servicemembers face with student loan debt
repayment.
I have also submitted a proposal to require DOD implement
the same risk-based surveys that the VA is already statutorily
required to use to monitor fraud and waste and abuse at schools
that receive more than $600 million in servicemember tuition
assistance each year.
These are programs that matter to our servicemembers, and I
appreciate having all of you as allies to make sure that our
servicemembers get what the American people promised them. So,
thank you very much, and thank you, Mr. Chairman, for letting
me do this.
Senator Tuberville. Thank you, Senator Warren. Let's talk
about healthcare really quick. The demanding nature of military
service loan deployments and challenges of balancing military
and family life can lead to a burnout, and turnover among
military medical professionals.
Additionally, the potential for more lucrative
opportunities in the civilian sector can make it harder for the
military to retain these highly specialized medical
professionals. Last years NDAA included a provision to increase
the authorized number of nurse officers the services could
recommend for promotion. So one at a time, what are you doing
to recruit and retain military medical personnel specifically,
and what can we do to help assisting and retaining medical
personnel general?
Lieutenant General Eifler. Thanks, Mr. Chairman. I think
this, as you articulated pretty good, it's a competition that
we have with our local communities across the service, across
all services. Having recently served in Alaska, we're in
competition with the hospitals in the area for healthcare
professionals, the whole gamut.
So, we appreciate the support with being able to provide
the necessary bonuses and pay grade equal to what's out there
in the commercial sector to keep them in. I think one of our
biggest number one issues is job satisfaction. Our providers
want to be doing the things that they were trained to do. They
want to do more service on post. So, every time, if we channel
folks off post to other care, it limits their experience and
their satisfaction.
So, they want to do the surgeries, they want to do the
medical care. So, the more we can focus them on that, the
better off that they are with their satisfaction. That's one of
the things we're working on to make sure that all the medical
professions are getting to do the things and getting the
service and the experience in the field that they want to be
doing.
Senator Tuberville. Are you seeing a lot of interest in
medical and recruiting?
Lieutenant General Eifler. We are. It's just a competition.
It is something that we've got to be creative, we can't rest.
We got to keep the gas pedal down. We can't rest on our
laurels. We always are looking at ways to bring them in into
the service of our Nation. So, we're actively doing that across
our recruiting commands.
Senator Tuberville. Thank you, Admiral.
Vice Admiral Cheeseman. Senator, thanks for the question.
First thanks to the authority for the Nurse Corps, Navy intends
to use that to our advantage. For the medical community writ
large in the Navy, it's similar to the enlisted recruiting
problem we have, and our issues are because stress and burnout
on the force.
So, we have doubled down on our medical recruiting. We have
changed the process, which way we do that. We've outsourced
some of that to medical professionals to do the recruiting for
us. As a result, we've seen a tenfold increase to date in the
number of folks interested in joining the Navy. So nascent
efforts still, but trending in the right direction. We're going
to be much better this year than we have been in the past, sir.
Senator Tuberville. Thank you. General Borgschulte.
Lieutenant General Borgschulte. Sir, in the Department of
the Navy, the marines don't have any medical personnel, so we
rely on my good friend here by Vice Admiral Cheeseman to
support us. They do a very fine job of it, but I think it goes
deeper than that. That's in the Military Treatment Facilities
(MTFs), but also out in town. So, some of those bases and
stations can be an expeditionary force when we're out in areas
where they don't have access to a Military Treatment Facility.
Sometimes going out through TRICARE out in town can take 30
days plus, especially with mental health physicians, very
difficult. So again, thanks for the help with the Department of
Navy. We certainly support them, and I would ask for anything
that you can do to help with the out-of-town physicians
Senator Tuberville. General Miller?
Lieutenant General Miller. Yes, sir. We also have the same
struggles of trying to get our medical professionals on board.
I'll say that Defense Health Agency (DHA) has been challenging
as well just to work with them. General DeGoes, our Surgeon
General (SG), has been doing everything he can to get out there
and recruit the medical specialties. We're trying to give them
their credits so we can bring them on at higher grades than
they normally would.
Additionally, we're looking in the mental health
perspective of doing online. You know, so one provider can do
multiple areas, so they don't actually have to physically be
there, but they can do online mental health. So, it is a
struggle. We're trying everything that we can to get our force
back up because we've got to have them.
Senator Tuberville. Ms. Kelley.
Ms. Kelley Yes, Chairman. Much like the marines, we rely on
the Air Force for medical support. So, from a guardian
perspective, a guardian is going to a MTF that the Air Force is
running underneath the auspices of defense health. I would
agree that the recruiting is a challenge. I would also agree
that the way that the Air Force is attempting to tackle this
and that changes that they're making in that additional pay
structure are going to be very pivotal for the guardian as
well.
Senator Tuberville. This question, if anybody can answer if
you want. There's been discussion over the past few years about
unnecessary and burdensome barriers to entry for DOD nurses,
including in 1-year prior experience required barrier. Can any
of you speak to these barriers and are they hurting or helping
recruiting? I mean, have you seen any of that? Anybody want to
throw anything in?
Vice Admiral Cheeseman. Sir, from the Navy, I have not seen
that or familiar with that, so I'll take that for the record
and get you a more fulsome answer.
Senator Tuberville. Okay. Thank you. Senator Scott.
Senator Scott Thank you. Chairman. First off, thanks to
each of you for your hard work. I don't think what you do is
easy. So, we've had a tough time other than the marines of
hitting our recruitment numbers right, for quite a few years.
So, should anybody be held accountable, and if so, have they
been held accountable for not meeting our recruiting goals?
Lieutenant General Miller. I'll start, sir. So, our
recruiting numbers in the Air Force have gone up. We're
actually exceeding where we thought we would be. The last 2, 3
years, it was a little more difficult based on COVID, I think
was one of the factors, the other thing is just the propensity
to serve across our Nation was down.
So, what we have done, we have put every effort we can into
increasing our recruits, and we have exceeded our goals. We
actually were planning to exceed it by about 3,000 this year.
We'll see if we have enough Military Personnel (MILPERS) to
cover that.
Senator Scott But y'all didn't meet the goals?
Lieutenant General Miller. Yes, sir. We did this year.
Senator Scott But the prior years?
Lieutenant General Miller. No, sir. We did not. So, we
looked at what was, we had our own barriers internal to the Air
Force, and so we removed those barriers. One of them, you know,
we had very strict, for example, tattoo policies and so we
removed some of those because it was a barrier for entrance
from some of the population of our Nation. So that increased
it.
The other thing that we did was we noted that internally to
the Air Force, you had to have a driver's license in order to
enter our Air Force. We removed that, and if it's required for
your position, we will work on getting the driver's license.
So, all of the internal barriers were moved and we have since
seen a larger population and from which we can recruit.
Additionally, we did not lower our standards at all. We have
maintained our standards, DOD standards.
Senator Scott But the individuals that were responsible for
recruiting before you started making your numbers, should they
have been held accountable or not? Or is it something that was
completely outside your control?
Lieutenant General Miller. It's not, I don't think it's in
my control, but I think that they were held accountable in the
fact that they were given specific goals. We used to do goals
every quarter, and now we do them monthly, and so, our
recruiter, who's a one-star general reports to a four-star. So,
I think the accountability was there from that aspect, sir.
Okay.
Senator Scott But nothing happened to anybody for not
meeting their goals? They were promoted just like anybody else?
Lieutenant General Miller. Well, he's been a one-star the
whole time, so he hasn't yet been promoted.
Lieutenant General Miller. Well, I mean he's been a one-
star the whole time, so he hasn't yet been promoted. However,
except for fiscal year 1979, fiscal year 1999, and fiscal year
2023, the Air Force Recruiting Service (AFRS)-now aligned under
the Air Force Accessions Center (AFAC)-has met or exceeded its
goals. Additionally, the current AFAC Commander and Director of
AFRS, Brigadier General Christopher Amrhein, took command in
June 2023 (end 3QFY23), upon the retirement of the previous
AFRS Commander. The Air Education and Training Command (AETC)
Commander, Lieutenant General Robinson, established
accountability via direct reporting for AFAC, and under
Brigadier General Amrhein's leadership, provided guidance to
the team that resulted in AFRS increased mission effectiveness
across the inspire, engage, and recruit spectrum. Consequently,
the DAF increased its Delayed Entry Program (DEP) to a point
where we exceeded goal in fiscal year 2024 (which was an
increase from the fiscal year 2023 goal). AFRS currently has
the largest DEP in 10 years and is on track to exceed its
fiscal year 2025 goal (again another increase from the fiscal
year 2024 goal).
Senator Scott Okay. How's the Navy? How about the Navy?
Vice Admiral Cheeseman. Sir, thanks for the question, and
also, thanks for the opportunity yesterday to speak in your
office----
Senator Scott You're meeting goals, right?
Vice Admiral Cheeseman. Sir, we're far exceeding our goals.
Absolutely, in 2025. I anticipate sending 44,000 future sailors
to bootcamp, probably just under that number, our goal is
40,600. So, we're well above it. I think inside of our
enterprise, my Navy H.R. enterprise, we took a really hard look
about who was tasked to do what. We upgraded the position of
the Navy recruiting commander from a one-star to a two-star,
and with that came a recruiting operations center, increased
data analytics, a review of medical waiver processes came. We
understand the data behind recruiting.
To be candid, sir, I think we had to learn how to recruit
coming out of COVID. I cannot speak for my fellow
servicemembers here, but that's how it was for the Navy. I
think prior to COVID, we were very good at processing the
people who walked in the recruiting stations. Coming out of
COVID with a decrease in propensity that General Miller just
mentioned, we really had to learn how to recruit. We're up on
step now, and we're running on all cylinders, sir.
Senator Scott How about the Army?
Lieutenant General Eifler. Yes, thanks, Senator. As you
know, probably a couple years ago, we completely revamped it. I
think this was an Army-entirety fault. I wouldn't say an
individual, but I would say the Army was at fault. We were
sleeping at the wheel for years on recruiting, resting on our
laurels and we put General Davis and a team of folks in there
to revamp and re-look how we did recruiting, systemically from
the top and the bottom.
Over the last 12 to 18 months have been putting these in
place and we're seeing now the fruition. We saw that last year
was a good year, this year is a great year. We are exceeding--
we're over 50,000 recruits out of the 61,000 that we are
shooting for this year, just 6 months in. So, we're having, as
I call it, catastrophic success with this, with how we're doing
now.
Senator Scott But the ones in charge when we weren't
successful, nothing's happened to them. They were promoted just
like normal? Like I think that's true.
Lieutenant General Eifler. No, they weren't Senator.
Senator Scott Okay. All right. Okay. So, so what's the
slogan for the marines?
Lieutenant General Borgschulte. Senator Scott, good to see
you. We talked a bit about this. We put our best marines in
recruiting even if they want to----
Senator Scott Do you have a slogan?
Lieutenant General Borgschulte. A slogan?
Senator Scott You have a slogan?
Lieutenant General Borgschulte. The few, the proud, we have
a lot of slogans, sir, if that's the one you're after. We don't
promise you a rose garden. Many different, we'll stop there.
Senator Scott Army, do you guys have one?
Lieutenant General Eifler. Yes, This We'll Defend, Senator.
Senator Scott How about the Navy?
Vice Admiral Cheeseman. Sir, Forged by the Sea.
Senator Scott Air Force.
Lieutenant General Miller. Fly, fight, and win. Aim high
Senator Scott Space Force?
Ms. Kelley Semper Supra, always above.
Senator Scott Do you think that when people come in, they
know what your mission is? When you're recruiting, do they know
what your mission is? I think we've all heard for years the
marine slogan, and we've all heard for years the Army slogan.
But I don't know, do you think we've heard the others? Do you
think that that's the reason why we've had a hard time? Are
people not sure what we're doing? Anybody?
Vice Admiral Cheeseman. So, Senator, I'll speak to it from
a Navy component. We've been with the Forged by the Sea
Marketing campaign for a little bit of time. It resonates well
with younger folks. The average age of our recruit is 22, not
necessarily 18 like some of the others are, So they're a little
older. It resonates that slogan, that culture manifests through
bootcamp, through A6C schools now into the fleet. So, I think
it's--pretty well,
Lieutenant General Miller. Senator, I'll offer from the
Space Force perspective, being just over 5 years old, we took a
concerted effort to market what a guardian is and more
importantly, what they do specifically for the joint fight. So,
I acknowledge your point. It's one of the focuses that we have
right now. We've actually built a planetarium show that we're
debuting in a month at planetariums around the Nation, to get
after exactly your point, which is, does the average American
know what the Space Force is, and that they can join it as its
newest service.
Senator Scott You think they do?
Lieutenant General Miller. Our data right now shows us that
we have a brand awareness problem. Absolutely.
Senator Scott That's right. That's what I would say in
Florida. Yes.
Lieutenant General Miller. Yes. Space Force, for sure, sir.
Senator Scott Yes. So, have so the marines continued to be
successful. After the problems that we had, did the other
branches--did they follow what the marines were doing? Did you
guys look at what the marines were doing as it's nice to be the
one who never has a problem.
I used to be the one that never had a problem. I was doing
business. I always wanted to be number one. You know, I always
wanted to be the one that nobody ever questioned my numbers.
Vice Admiral Cheeseman. Senator from a Navy perspective, we
did take a little bit of a look at what the marines had done.
We had already been involved in increasing the quality of our
recruiters. In talking to my good friend here, you know, that
manifests in what they're doing.
So, the communities that provide our officer recruiters
have increased the quality of those commanding officers that go
to recruiting the Commodore that oversee them, and we do
provide a large amount of incentives for our enlisted sailors
to head out to recruiting and the quality there is increasing
as well.
Lieutenant General Miller. Senator, from the Air Force
perspective, we absolutely did look at the marines and their
recruiting and the way that they attack it, and that they do
put their best and brightest on there. So, we did modify that
over the last year, when we added additional 400-plus
recruiters, and that you have to be selected to be there as
opposed to just throw your name in the hat because you thought
it would be fun to do so. Yes, sir. We did do that.
Ms. Kelley Senator, if I may, I would be remiss if I did
not go on the record and note that the Space Force has made its
recruiting numbers for the last 5 years, albeit small. We are
absolutely focused on finding the talent where it is and
leveraging some technical ways to connect directly with those
potential guardians.
Lieutenant General Eifler. Yes, Senator. The Army took into
a consideration even further professionalizing the recruiting
force. So, creating a new MOS, a new warrant officer that you
know, taking some things from industry training with industry
and how they do that, how do they relate, to get a little bit
better, and selecting. Not everybody is a good recruiter, some
people are better than others, and we're just making sure that
we're putting the right people in the right places to access
the people that we're trying to bring in.
Senator Scott Thank you for what you do. Thank you,
Chairman.
Senator Tuberville. Thanks Senator Scott. Senator
Duckworth.
Senator Duckworth Thank you, Mr. Chairman. Thank you for
keeping the hearing open so that I can make it here. I
appreciate it. Each of our services claims to build the best
and most capable leaders within the world's greatest fighting
force, capable of thinking critically, navigating the fog of
war and leading diverse teams in times of uncertainty. But how
can the department train leaders to make decisions for
themselves if it is actively banning books from Service
Academies, and micromanaging their access to information?
This Administration's obsession with removing diversity
within the force has now expanded into attacking diversity of
thought. Censorship does not produce stronger leaders; it
produces brittle ones. Suppressing ideas is not a sign of
might, it is an expression of fear and if we allow fear to
drive policy, we fail not only our cadets and servicemembers
seeking to develop themselves as leaders, but also the American
people who count on them to lead with wisdom and critical
thinking.
For each witness, do you believe our future commanders will
be fully prepared to navigate the complexity of tomorrow's
warfighting environment, if we continue to micromanage their
exposure to the world and different perspectives? Should we be
limiting their perspectives and banning books in our academies?
Would that make them better leaders?
Lieutenant General Eifler. Oh, no, Senator,
Senator Duckworth Thank you.
Vice Admiral Cheeseman. Senator, I'm generally familiar
with the issue you're talking about, but I've not seen
specifically the issues at the Naval Academy, or nor have I
talked to Admiral Davis about that. What I can tell you, I
agree with you. You know, I believe the Naval Academy should
have everything they need to create future naval officers.
Within my domain, I'm certain that we have everything we need
to make sure every sailor is qualified to do their job.
Lieutenant General Borgschulte. Yes, ma'am. Nice to see
you. I'm a proud graduate at one of those Service Academies,
and it,----
Senator Duckworth I could never make it in, I'm an ROTC
[Reserve Officer Training Corps] guy.
[Laughter.]
Lieutenant General Borgschulte. But it matters to us in the
sense we take 25 percent of that class, of that Naval Academy
class that comes into the Marine Corps, and we get eye-watering
talent. So just inspiring, attracting our top young Americans
to attend that school is important to us, and I just wanted to
put a plug for how important that school is, how much it means
to us.
Senator Duckworth Thank you. General Miller?
Lieutenant General Miller. Yes, ma'am. I would concur. You
know, I don't know exactly what they're doing at the United
States Air Force Academy (USFA) as far as the libraries and
going through the curriculum, but I do know that we have the
best airmen and a large portion of them come from the academy.
I think that we need to make sure that we continue to draw
similar to the Marines and Navy, the best individuals from the
United States.
Senator Duckworth But they need to be exposed to all
elements of thought and we should not be banning books in our
training of our servicemembers.
Lieutenant General Miller. I think they should definitely
be--they should have all trains of thought. Yes, ma'am.
Senator Duckworth Thank you, Ms. Kelley.
Ms. Kelley Ma'am, I agree with your point. Absolutely.
Senator Duckworth Thank you. I do think that we owe
servicemembers protection from moral injury by empowering them
with the training to operate in complex wartime environments
with life-or-death decisions for their brothers and sisters in
arms, as well as civilians who find themselves caught in the
middle.
But I heard some concerning things from the General counsel
nominee yesterday regarding this Administration's commitment to
the law of armed conflict. Will each of you commit to ensuring
that servicemembers receive the appropriate training and
education on the law of armed conflict?
Lieutenant General Eifler. Yes, Senator.
Vice Admiral Cheeseman. Thank you, Senator. Yes, ma'am.
Lieutenant General Borgschulte. Senator, this is key to our
warfighting effectiveness. Absolutely.
Lieutenant General Miller. Yes, ma'am.
Ms. Kelley Agree, ma'am.
Senator Duckworth That is why we're the greatest fighting
force on the face of the Earth. We set the standards for the
rest of the world. I'd like now to pivot to the Indo-Pacific.
I'd like to shift your attention specifically to the current
makeup of our active reserve and guard forces, and whether our
forces are prepared for the reality of fighting and sustaining
large-scale conflict in the Indo-Pacific region.
For each of you, do you believe your service currently has
the force structure, and personnel necessary to meet the
demands of such a fight in the Indo-Pacific? If not, given our
current personal projections and plans, are you confident your
service will be prepared to execute large-scale mobilization
and sustain power projection across contested domains? What can
this committee do to ensure you're fully supported? Because I
would tell you, it is a bipartisan issue.
We have talked about this in a bipartisan way, and I want
to make sure you have the ability, I think probably the Army
and the Marines would be most on this, Navy obviously, as well.
But can we sustain the fight where we are right, now, and what
kind of support do you need?
Lieutenant General Eifler. Thanks, Senator. Yes, we can,
but I'm not satisfied. I don't think we're satisfied that we
need to continue to transform to prepare for that even more,
and as you know firsthand, the more readiness, the better we're
going to be. We have to transform, not just our modernization,
our force, but how we do things in large scale combat
operations.
So, when our Chief says, hey, transformation and contact or
continuous transformation, that's what we're doing. We can't
rest on our laurels. We can't say we, hey, we won the last war,
we're good. We have to continually look and adapt, because as
we've seen in the battlefields across the globe, things are
changing faster than our budget cycle. They're faster than how
we can acquire equipment, for the acquisition. So, we have to
be faster. So, we can't say, hey, we're ready, we're good,
stop. No, we actually need to keep getting more ready, keep
adapting.
I think your support absolutely with your oversight, but
also with the proper appropriations and flexible funding so
that when something changes, like we're talking about with
counter Unmanned Aerial Systems (UAS), and that technology that
is changing so frequently inside that budget cycle, we've got
to be able to adjust and not get consumed by buying this one
thing that was good for that time and is no longer, and it's
obsolete. So that's what I would say we need help with.
Senator Duckworth Thank you,
Vice Admiral Cheeseman. Senator, thanks for the question. I
believe in our operators, I'm certain we'll get the mission
done. That being said, the Navy is on a journey. One of our
lines of effort is to make sure that we're very much aligned
within our maritime operation centers. We want to fight from
those operation centers in the future.
There's a lot of things going on in here with hardware,
software, people. From my portfolio, I'm sure I'll need more
people in those specific skill sets when it comes to the
information warfare (IW) community, the crypto audit community,
the intel community, the space community. So, we're on a growth
profile in those areas. Additionally, I know working closely
with the chief of Navy Reserve, Admiral Lacore, they are
organized around the fight from the mock concept.
So, the training that they do is so they're able to fight,
you know, fall in on those mocks when trouble is brewing, so
they can support the fight as well. So, we're modernizing the
entire approach toward the fight from the mock, and we just
look forward to continue to working with this committee to get
that done.
Senator Duckworth General Borgschulte.
Lieutenant General Borgschulte. Senator, thanks very much.
The Indo-Pacific theater is one of the most challenging
theaters. In my last job before this role, commanding aviators,
you know, the distances at which we may need to fight in that
theater makes it very difficult with the geographical
dispersion.
As you know, 6 years ago we started down this path with
General Berger and now General Smith on force design. Force
design was clearly meant to grow the force to the right type of
marine, right skillset, divest to invest. Now we're into the
invest phase, where we have the right numbers of marines,
capacity, and capability. We don't have the capacity we need,
so we are on a plan.
So, to your question, I really appreciate that, is to grow
our end strength, and we have a plan to get there, but it's
quite frankly, not fast enough, and so, any help that you can
provide us, in funding really for that end-strength we would
applaud. Thank you.
Senator Duckworth Thank You, General.
Lieutenant General Miller. Yes, we too are shifting to the
Pacific. The tyranny of distance is a challenge for us because
we have tankers and where we're going to put them and how we're
going to fight from there. So, we are doing large scale
exercises to make sure that we're ready. But we too need to
increase our end strength probably, and then we just have to
have the right kit forward, and so that's our challenge right
now.
Senator Duckworth If we're going up the People's Republic
of China (PRC), it's not going to be dominating the skies.
We're going to have to fight our way in and fight our way out,
same with the surface warfare.
Lieutenant General Miller. Yes ma'am.
Ms. Kelley Senator, I'd just like to add that from this
space perspective, the U.S. Indo-Pacific Command (INDOPACOM)
fight is absolutely enabled by the space capabilities that our
warfighters need. So, the ability for this service that is now
5 years old to continue to grow with the support of this
committee, is going to be very critical, because the space
enabling warfighter has got to be part of what we deliver for
the fight.
Senator Duckworth Thank you. You've been incredibly
generous, Mr. Chairman.
Senator Tuberville. Thank you. Senator Duckworth, I just
have one more question here before we finish. Mainly for the
NDAA. Specifically talking about bonuses and special pays,
retention. Obviously y'all want to recruit new people, but we
also have to recruit the people we already have in the service.
So, I'll start. General Miller, in the Fiscal Year 2024
NDAA Congress authorized the Air Force to increase aviation
retention bonuses up to $50,000 for pilots who agreed to extend
their contracts earlier than initially planned. Could you give
us some kind of update on the status of how these are working?
Lieutenant General Miller. Yes, Senator. Actually, they're
working incredibly well. We are right now across our rated
population, we are where we need to be with exception of the
11AFs, which are fighters. However, we have completely closed
the gap based on a lot of the aviation bonuses.
Additionally, we're looking at the how the trainers--were a
little bit short on the trainers, so we're training by
simulators too and we're finding that we're closing that gap.
We expect that we will get there relatively quickly. But thank
you very much for that NDAA, it's been very helpful.
Senator Tuberville. Yep. So, we'll start down here.
General, just what you think recruiting-wise in terms of
bonuses for retention, or what do you think we could do in the
future for just normal recruiting?
Lieutenant General Eifler. Yes, I think the support for the
Future Soldier Prep Course has been great. That's tapped into
another population that we haven't been able to access before
funding for that. Again, I hate to keep beating that horse on
the funding for those type of things that are not accounted for
typically in the budget cycle. So, I think that supports the
bonuses, obviously that's huge for retention as well as
recruiting and getting the people that we want to get into the
service. I think if you continue to get that support and
oversight for us, that'll be definitely helpful.
Senator Tuberville. Admiral.
Vice Admiral Cheeseman. Senator, thanks for the question
and allowing me the ability to highlight the importance of
these special incentive pays, the bonuses and such. It's
incredibly important to the retention game. We're doing very
well in retention, but we still shorten our manpower accounts
right now, so we're going to have to move some money around to
make sure we meet our obligations to our sailors and we don't
get to the point where we create an IOU situation.
I would like to highlight as we move into fiscal year 2026.
If we start the year with a continuing resolution fiscal year
2026, this will be problematic for that account. Right now, you
know, I appreciate the 10 percent pay raise for our junior
enlisted sailors that's funded for fiscal year 2025 only. If we
move into fiscal year 2026 with a CR only, it'll severely
depress the manpower account, and I'll have trouble paying
those bonuses, which are obligated to our sailors.
Senator Tuberville. Thank you. General.
Lieutenant General Borgschulte. Yes. Senator Tuberville,
thanks very much for this question. The aviation bonuses are
key, so are all the other bonuses. As Vice Admiral Cheeseman
had mentioned, the selective retention bonus, some are really
exquisite skilled senior enlisted and middle grade enlisted
that have cyber signals intelligence. Those type are really
difficult to retain.
But for the pilots in a sense, the bonuses are--it's kind
of a combined arms effect. It's the bonuses are important, but
it's also climate, culture and it really just selling that,
hey, flying a commercial aircraft is one thing, but flying a
gray aircraft with a trigger is another thing. We got to have
the bonuses that's important, but it's climate and culture as
well. Thanks for your support there.
Senator Tuberville. Ms. Kelley.
Ms. Kelley Senator, I would add for the Space Force, the
targeted bonuses are crucial. The space, cyber and Intel skill
sets, that is essentially the guardian population that we have
in the Space Force, are exquisite skills themselves. Much like
the other colleagues here today, the ability to retain and
attract and hold that type of exquisite skill is critical. The
targeted incentives help us do that.
Senator Tuberville. You just go to General Miller and say,
well, who's your best ones? I need your best ones. Right?
That's actually, she does that, right?
Lieutenant General Miller. Yes,
Senator Tuberville. I would too.
Ms. Kelley People want to join the Space Force, sir.
Senator Tuberville. Thank you. I apologize for all the
rigmarole here, but we got more hearings and people in--you
notice the lines outside. They're rather big.
But thanks for what you do. You have a great
responsibility. I don't think people really understand that the
responsibility, you know, you win with people and you know,
obviously we got weapons and all that, but you got to have good
people, and we thank for what you do.
Admiral Cheeseman, thank you for your service. I will tell
you this, I did the same thing. I retired and after a few
weeks, my wife walked by my couch, when I was drinking coffee
one morning, she says, hey, this has been my house for 40
years, go get you a damn job.
Vice Admiral Cheeseman. I'm hearing it already. Yes, sir.
Senator Tuberville. But thanks for what you do, and we want
to help as much as we can. That's one reason we had this today.
A lot of people will watch this on video, a lot of our members.
So, if there's anything that we can do to help in your
capacity, we want to help.
We're in harm's way every day and we got a lot of enemies
out there, but the bigger and better we have our military, the
less problems we'll have, because they don't want to mess with
the United States of America. We sure want them to know that,
but you're the beginning of it.
So, thank you all, and look forward to visiting with and
working with you many, many times. Again, Admiral, good luck.
Thank you.
This hearing's adjourned. Thank you.
[Whereupon, at 3:59 p.m., the Committee adjourned.]
[Questions for the record with answers supplied follow:]
Questions Submitted by Senator Ted Budd
pilot shortage
1. Senator Budd. Lieutenant General Miller, a RAND Report titled
``The Relative Cost-Effectiveness of Retaining Versus Accessing Air
Force Pilots'' concludes that ``retaining pilots is more efficient than
accessing new ones.'' Why does the Department choose to focus efforts
on increasing accessions and training throughput rather than retaining
the pilots already in service?
Lieutenant General Miller. The Air Force currently uses a tiered
retention bonus structure, offering up to the Congressional limit of
$50,000 per year. Pilots in critically manned specialties who commit to
additional 8 to 12-year service agreements are currently eligible for
the maximum authorized amount. Therefore, given we are already
operating at the maximum authority granted, current efforts are focused
on increasing accessions and training throughput to build a robust
pilot force.
2. Senator Budd. Lieutenant General Miller, title 37 U.S. Code,
section 334 (c)(1) provides statutory limits for aviation incentive pay
and bonus programs. Can you please provide the Department's analysis on
structuring aviation incentive pay and bonus programs, and why the Air
Force restricts these offerings to values less than the statutory
allowances?
Lieutenant General Miller. The Air Force is currently executing the
retention bonus in a tiered structure that offers the Congressional
monetary cap of $50,000 per year. The tiered structure is built to
incentivize longer Active Duty service commitments. Pilots in
critically manned specialties who commit to serving an additional 8 to
12 years currently have access to the maximum amount authorized by
Congress.
3. Senator Budd. Lieutenant General Miller, in the last three
fiscal years (fiscal year 2022 to fiscal year 2025), Active Duty pilot
retention has held steady between 40 to 43 percent, beneath the
required rates of 54 to 61 percent for the same years (according to an
Air Force Briefing on March 13, 2025). You testified that ``we have
deliberately and effectively used monetary and non-monetary authorities
granted by Congress to stabilize the force.'' Can you please explain
further how the retention incentives authorized by Congress, which have
been offered in varying formats during these years, have yielded an
appreciable change?
Lieutenant General Miller. Despite recent historically high rates
of hiring in the commercial sector, the United States Air Force has
continued to maintain a stable pilot retention rate by using both
monetary and non-monetary incentives. Prior testimony of stating "we
have deliberately and effectively used monetary and non-monetary
authorities granted by Congress to stabilize the force" is accurate,
but the retention rate has stabilized at a level below what is
necessary. A healthy year-group of pilots requires the United States
Air Force to train an average 1,500 pilots each year. Over the past
several years, the Air Force has only produced on average 1,250 pilots
each year. When the Air Force produces a year group that is smaller
than required, the standard retention rate (40 to 43 percent) is
insufficient, and the United States Air Force requires a higher
retention rate (54 to 61 percent). The current stable rate of
retention, while significant, does not compensate for the smaller size
of the recent year-groups.
__________
Questions Submitted by Senator Mazie K. Hirono
diversity, equity, and inclusion program rollback
4. Senator Hirono. Lieutenant General Eifler, Vice Admiral
Cheeseman, Lieutenant General Borgschulte, Lieutenant General Miller,
and Ms. Kelley, rollbacks of Diversity, Equity, and Inclusion (DEI)
initiatives, including termination of related training and office
closures, have raised alarm about their effect on morale and trust in
leadership, especially among female and minority servicemembers. Are
the Services tracking how the rollback of DEI programs is affecting
morale and trust?
Lieutenant General Eifler. The Army's personnel practices will
continue to provide fair treatment, access, opportunity, choice and
advancement for all soldiers and civilians. The Army's merit-based
system will continue to reward soldiers and civilians for their skills,
qualifications and performance. The Army focus is on prioritizing
lethality, meritocracy, accountability, standards and readiness to
ensure equal opportunity for all based on merit, not demographics or
immutable characteristics. By focusing on these priorities, we will
attract the best talent and maintain our position as the world's
premier fighting force. Using the Defense Organizational Climate Survey
(DEOCS), the unit commanders are able to assess and improve the climate
within their units. However, due to the DEI Executive Order, signed on
20 Jan 2025, the DEOCS is under review and will be made available in
September 2025. Once the DEOCS is approved for use, the survey will
begin collecting data again on morale and trust in leadership across
the entire force.
Vice Admiral Cheeseman. As these changes are relatively recent, we
have not collected any data to date that shows changes in morale and
trust. Our 2025 Health of the Force Survey, which will be available
this fall, will provide an update on morale and trust across the Navy.
Lieutenant General Borgschulte. The Marine Corps is a standards-
based organization. Those who enter our ranks understand they are part
of a team. We have not seen a drop in recruiting or retention numbers
this year. In fact, we have had historic recruiting and retention.
Marines understand they have support, when necessary, within our equal
opportunity offices.
Lieutenant General Miller. The United States Air Force values its
servicemembers and has routinely been on the leading edge of positive
change within the Department of Defense. All airmen expect us to treat
them with dignity and respect, as we will continue to do, regardless of
changes to the DEI policy. The United States Air Force will continue to
seek to identify and understand any changes in morale or leadership
trust in upcoming assessments.
Ms. Kelley. DAF routinely monitors trends in morale and leadership
perceptions through the Defense Organizational Climate Survey (DEOCS)
and other command climate assessment data. By leveraging both
quantitative survey feedback and comment data, Space Force will seek to
identify and understand any changes in morale or leadership trust
observed in upcoming assessments this Fall as part of our continual
process for improving the readiness and effectiveness of our personnel.
5. Senator Hirono. Lieutenant General Eifler, Vice Admiral
Cheeseman, Lieutenant General Borgschulte, Lieutenant General Miller,
and Ms. Kelley, have you seen changes in climate survey results or
retention data among underrepresented groups since the rollback?
Lieutenant General Eifler. Short answer: During second quarter of
FY25, we have not seen any significant changes in retention behavior
among under-represented groups in the Active Component. Overall
retention was higher in second quarter, which has been a trend for
several years, but the increase from first quarter to second quarter
was higher for minorities/under-represented eligibles.
Vice Admiral Cheeseman. The next window for unit/command climate
surveys will be August to October 2025. Our 2025 Health of The Force
Survey will provide insights into the work environment, climate, and
retention intentions. The results will be available this fall.
Lieutenant General Borgschulte. No. We have not seen any changes in
climate survey results with respect to retention for our marines.
Retention remains at a historic level. We have already met our
retention goals for this year. Once a marine becomes a marine, they
want to remain a marine--that says a lot about our climate, culture and
ethos.
Lieutenant General Miller. The Defense Organizational Climate
Survey (DEOCS) is administered August 1 to November 30 each year. The
Air Force will evaluate any shifts in morale and trust once the 2025
DEOCS survey results are published.
Ms. Kelley. To date, the Space Force has not seen changes in
command climate survey results or retention data among underrepresented
groups since the issuance of the Executive Orders. Currently, retention
is 1 percent higher than expected and the Service is on track to meet
end strength for the third year in a row.
recruiting best practices
6. Senator Hirono. Lieutenant General Eifler, Vice Admiral
Cheeseman, Lieutenant General Miller, and Ms. Kelley, I recently met
with the Commandant of the Marine Corps, and one of the reasons he
mentioned for the Marine Corps' consistent success in recruiting is the
emphasis you put on assigning high-performing personnel to recruiting
billets, along with stringent accountability metrics. Are you
implementing similar personnel practices within your organizations?
Lieutenant General Eifler. Yes, we implemented the Recruiting
Candidate Assessment and Selection Program, which was is designed to
select soldiers best fit to be career Recruiters in our new 42T MOS
(Talent Acquisition Specialist) by evaluating each individual for the
attributes needed to be successful in recruiting. This assessment
program continues to be refined to ensure we have the best talent
serving on recruiting duty.
Army Recruiting has also experienced a surge in soldiers
volunteering for recruiting duty, displaying strong motivation and
desire to recruit America's best and brightest to serve alongside them.
All volunteers are also assessed based on cognitive, non-cognitive, and
personality factors to ensure their best fit to be successful in
today's challenging recruiting environment. Several performance metrics
are maintained for each Recruiter and their chain of command holds them
accountable for their performance.
Vice Admiral Cheeseman. Yes, our priority is to assign only top-
performing sailors to recruiting billets. Two key tools we use to
support top-tier personnel in recruiting is the Meritorious Advancement
Program and Command Advance to Position. These provide a pathway for
sailors to advance in rank ahead of their peers. We additionally call
out recruiting as a priority assignment in the precept documents that
guide our advancement selection boards. To retain high performing
recruiters on recruiting duty, we encourage the very best to apply to
join the Career Recruiter Force (CRF). The CRF is a cadre of
exceptional recruiting managers that provide consistency and leadership
in the Navy's recruiting effort. Recruiter performance is measured
through established metrics, rewarded for excellence and reviewed by
performance boards to encourage success. A key accountability tool is
the Daily Production Review, a structured meeting which assesses daily
goals, tracks performance, recognizes achievements, and adjusts
strategies for recruiters. Navy Recruiting Command's National
Inspection Team also conducts detailed assessments at the command and
individual recruiter level to ensure accountability and alignment with
organizational standards.
Lieutenant General Miller. Air Force recruiters are selected via
the Developmental Special Duty (DSD) process. This process allows the
Recruiting Service to select the best possible talent from a pool of
those nominated to compete for DSD by their Wing leadership. This
process ensures a large talent pool to fill recruiting and other
special duty positions. Recruiting commanders are hired from a list of
board-selected nominees. DSD is a process where only airmen who meet
specific criteria, such as having exceptional performance records,
showing a high capacity to lead, and demonstrating the Air Force core
values can be nominated. All recruiting personnel are held to stringent
accountability standards up and down the chain of command using
established monthly recruiting goals. If a recruiter falls short on
their portion of the monthly recruiting goal, mandatory performance
reviews and supplemental training requirements are used to account for
and improve the members performance.
Ms. Kelley. In 2024, the Space Force trained its first cohort of
Guardian Recruiters after a multi-stage process designed to ensure only
the most qualified and talented guardians were selected. As the Service
continues to build this dedicated Recruiting Squadron, development and
implementation of specific accountability metrics is a key component
for evaluating effectiveness and identifying areas of improvement to
ensure the achievement of its recruiting goals.
transgender service ban
7. Senator Hirono. Lieutenant General Eifler, Vice Admiral
Cheeseman, Lieutenant General Borgschulte, Lieutenant General Miller,
and Ms. Kelley, the reinstatement of the transgender service ban has
prompted concern about its effect on unit cohesion, morale, and the
military's ability to attract and retain talent, especially among
younger, more diverse populations. How has the transgender service ban
impacted recruitment, especially among Gen Z recruits?
Lieutenant General Eifler. The key factors impacting the decision
to join the military have been consistent: fear of leaving home fear of
being injured, fear of being passed by peers, and fear of behavioral
health issues. With these factors in mind, the Army based its marketing
strategy around highlighting the opportunities available through Army
service, including advertisements that gain attention, spark interest,
and inform potential recruits, while also generating leads for
recruiters.
Vice Admiral Cheeseman. Navy is not aware of any negative impacts
on recruitment from the policy changes. Recruiting is always hard, but
we have seen good success for about the last year. Navy continues to
focus on prospecting talent from every zip code where it exists,
building trust-based relationships and closing the deal to change lives
for the better.
Lieutenant General Borgschulte. We are awaiting DOD guidance on new
gender dysphoria policy. We have seen no impact of recruiting. The
Marine Corps is winning at recruiting--meeting our mission and
exceeding all DOD quality standards.
Lieutenant General Miller. Despite the policy changes regarding
transgender individuals, there have been no changes to recruiting which
remains high, with Delayed Entry Program numbers at a 10-year high.
Ms. Kelley. Since the signing of Executive Order 14183, the March
preliminary injunction and the most recent Supreme Court ruling to
enforce the ban on transgender people serving in the military, there
has been no evidence of impacts to recruitment. Any specific impacts on
recruiting would be speculative until more time has passed. Space Force
will seek to identify and understand any changes in unit cohesion or
morale through the Defense Organizational Climate Survey (DEOCS) and
other command climate assessments this Fall.
8. Senator Hirono. Lieutenant General Eifler, Vice Admiral
Cheeseman, Lieutenant General Borgschulte, Lieutenant General Miller,
and Ms. Kelley, would each of you agree that losing qualified personnel
from your units detracts from military readiness?
Lieutenant General Eifler. I would not agree that losing qualified
personnel always detracts from military readiness. People flow through
the Army in a lifecycle that allows them to become better trained,
assume positions of greater responsibility, and get promoted. At some
point everybody will voluntarily or involuntarily leave the Active
Army. Readiness is impacted when the flow of personnel does not provide
adequate replacements. We strive to retain the best, most-qualified
personnel. However, some will voluntarily leave because they find the
Army is not for them, they have other options they want to explore, or
they leave the Active Army to join the Guard or Reserves. Most who
leave involuntarily are being separated because they have a
disqualifying medical condition or because they have failed to maintain
an Army standard, whether a standard of conduct or aptitude. Such
involuntary separations are necessary to maintain a high State of
readiness and discipline.
Vice Admiral Cheeseman. Loss of qualified personnel may run the
risk of affecting a unit's military readiness. Medical qualifications
are a vital aspect of ensuring military readiness and lethality.
Redundancy is also key to military readiness when it comes to
equipment, resources, and personnel. The Navy will manage any personnel
losses related to the ban on transgender servicemembers recent policy
changes in the same manner as any other personnel loss and will ensure
we remain able to effectively engage in combat and complete mission
assignments.
Lieutenant General Borgschulte. Yes, the more marines who are
deployable--and the higher our manning levels--the more lethal and
ready we are as a service. Marine Corps readiness is about having a
force that is trained, equipped, and deployable to fight. Readiness is
measured by a marine's ability to perform their duties, maintain
physical and mental fitness, and deploy.
Lieutenant General Miller. It is an unavoidable truth that every
organization, even the most effective military forces, experience the
loss of valuable personnel for various reasons. Great organizations
proactively prepare for these transitions. Our airmen represent a
significant investment in training, experience, and expertise.
Maintaining a highly ready and effective force requires recruiting top
talent and retaining experienced professionals who form the backbone of
the organization. To that end--readiness isn't accidental; it's built
on a solid foundation of three key elements: clearly defined
requirements that clearly communicate what everyone understands;
sufficient resources allocated to meet those requirements empowering
everyone to succeed; and enabling policies that streamline processes
and facilitate efficient execution. Focusing on these elements
mitigates the impact of personnel losses and maintains operational
momentum to ensure mission success even in the face of unavoidable
attrition.
Ms. Kelley. Military readiness is a multi-faceted assessment. The
Space Force continues to set standards to maintain readiness and
mitigate detractors, while building the force of the future. The Space
Force does not anticipate negative impacts to readiness as a result of
the Executive Order directing the prioritization of military excellence
and optimization of the civilian workforce.
space force personnel in indo-pacific
9. Senator Hirono. Ms. Kelley, U.S. Space Forces--Indo-Pacific
provides critical command and control of space operations in support of
combatant command priorities in the Indo-Pacific Area of Responsibility
(AOR). What is the status of U.S. Space Forces--Indo-Pacific staffing
and personnel readiness in U.S. Indo-Pacific Command (INDOPACOM)
Headquarters?
Ms. Kelley. There are 74 military, and 7 civilian billets aligned
to SF-INDOPAC, 10 military billets aligned to SF Japan and 17 military
billets aligned to SF-Korea for FY2025. SF-INDOPAC is currently manned
at approximately 83 percent, but Space Force anticipates SF-INDOPAC
will be fully staffed (at 100 percent or better fill rates) with the
Summer 2025 assignment cycle.
10. Senator Hirono. Ms. Kelley, are there additional resources and
personnel that U.S. Space Forces--Indo-Pacific needs to be at full
personnel capacity?
Ms. Kelley. Yes, and the information will be provided with release
of the Fiscal Year 2026 President's Budget.
__________
Questions Submitted by Senator Angus S. King, Jr.
transition assistance program
11. Senator King. Lieutenant General Eifler, Vice Admiral
Cheeseman, Lieutenant General Borgschulte, Lieutenant General Miller,
and Ms. Kelley, would it benefit retention efforts to provide
flexibility with participating in Transition Assistance Program (TAP)
class within 6 months rather than within 12 months of separation for
first term or second term recruits, or officers with less than 5 years
of service?
Lieutenant General Eifler.
A reduction in time would not benefit the soldier leaving
active service. It does not allow a soldier adequate time to prepare
for civilian life, which includes securing a residence, having time to
move themselves and/or family (perhaps cross county),securing
employment, health providers, and a host of additional real-world
elements for a normal life.
A properly transitioned soldier is our BEST recruiter.
For the seventh year in a row, the United States Army has
met or exceeded its retention goal. This time, the accomplishment comes
nearly 6 months ahead of schedule. The Army reportedly retained 15,600
soldiers eligible for reenlistment, 800 more than the original goal of
14,800. ``The early success in [fiscal 2025] reenlistments, combined
with the targeted retention strategy, is allowing the Army to
effectively manage personnel requirements,'' said Sgt. Maj. Enrique
Rose, a senior Army career counselor.``
Vice Admiral Cheeseman. Yes, this adjustment would benefit not only
retention, but also manning and mission readiness. First-and second-
term enlisted members often receive selective reenlistment bonuses, but
may not plan to reenlist until closer to three to 6 months before their
loss dates. Under the current policy of 12 months, commands are
required to send these individuals through TAP more than 12 months
prior to the end of their enlistment, even when they intend to
reenlist. Currently, Navy Career Development Boards provide sailors
with retention and transition-to-civilian-world information 15 months
before their enlistment is scheduled to end.
Lieutenant General Borgschulte. This proposal may be beneficial
because it would give the marine more time in service prior to making
decisions about transition. I believe that some marines, while going
through TAP, may not be fully decided on separating and that re-
enlistment topic may assist with overall retention efforts.
Lieutenant General Miller. Whether the servicemember is separating
after the first term of service or retiring, long-term planning helps
them to transition smoothly into civilian life or continue their
military careers with clarity. Participating in TAP class within 12
months of separation allows sufficient time to develop a comprehensive
and strategic plan, thereby reducing stress and mitigating risks
related to financial, career and emotional adjustments. Delaying
transition planning can negatively impact retention by limiting access
to essential resources, increasing stress levels, and decreasing
overall preparedness. An untimely approach may hinder servicemembers
from gaining the confidence and readiness necessary to make well-
informed decisions about their future.
Ms. Kelley. While this strategy may help retain our most junior
guardians, it may cause them to be less prepared when they separate.
Programs like TAP are most beneficial to servicemembers when they
provide them adequate time to make informed decisions. Ensuring all
guardians have opportunities to excel as veterans strengthens our
ecosystem because they are more likely to recommend serving in the USSF
and are more eager to return to support Space missions as civilians or
contractors.
12. Senator King. Lieutenant General Eifler, Vice Admiral
Cheeseman, Lieutenant General Borgschulte, Lieutenant General Miller,
and Ms. Kelley, what potential negative second and third order effects
occur should these cohort groups participate in TAP closer to their
separation?
Lieutenant General Eifler. Participating in Transition Assistance
Programs (TAP) too close to one's separation date can trigger a cascade
of negative second-and third-order effects. Transition preparation 12
to 18 months before an anticipated separation--with structured TAP
engagement, individualized counseling, and targeted skill building--is
essential to avert the negative downstream effects of ``just-in-time''
transition planning.
Leaders at all levels and TAP counselors also work to ensure that
soldiers on shorter timelines maximize remaining time for a successful
transition. This should be the exception and not the norm due to
extenuating circumstances.
Veterans who leave service at younger ages (17 to 19
years) or with shorter total service exhibit nearly five times the
suicide hazard rates compared to older or longer-serving peers.
Condensing TAP into the final weeks of service deprives these high-risk
groups of the sustained preparatory support shown to mitigate suicide
risk during the critical post-separation window.
If needed, the inability to participate in a CSP/
SkillBridge and prepare for employment/career training, potentially
increasing unemployment rates and unemployment compensation claims.
Participating in TAP closer to separation could affect
unit manning readiness (inability to properly request for personnel
manning fills for positions identified).
Many Army MOS credentials don't map directly to civilian
roles, participating in TAP closer to separation will result in
soldiers having insufficient time to gain new career skills needed--
often leading to prolonged job searches and underemployment.
Other drawbacks include: lack of clear goals and
direction, insufficient time for skill development and improvement;
inability to network properly, decreased confidence; insufficient time
to hone their time management skills and adapt to changes by enhancing
their resilience and preparedness for unforeseen challenges; reduction
in job satisfaction and financial stability; increased stress during
transition. No time for counselors or commanders to impact warm
handovers in a timely manner to a governmental agency which could cause
an increase in homelessness and lack of proper medical care
(specialized, physical, mental, dental etc.).
Vice Admiral Cheeseman. There is a tradeoff between finding the
best time to complete Transition Assistance Program requirements to
support the individual sailors' needs, mission requirements and
retention. Ideally, we want our sailors to have sufficient time to
prepare for their transition to civilian life. While these sailors
would still have access to all opportunities and the option to attend
TAP earlier than 6 months if they choose, some sailors may be rushed in
their transition preparation, particularly if they are still
considering continuing service.
Lieutenant General Borgschulte. If TAP is scheduled too close to
the date of separation or retirement, marines may find themselves
juggling numerous responsibilities, such as relocation plans or
personal arrangements. This could potentially hinder their ability to
fully engage with and retain the critical information provided in the
TAP classes. There are options identified during TAP, e.g. Skillbridge,
that demand substantial lead time to fully leverage. Job application
deadlines, networking events, and career fairs also require advance
notice to be most effective. We support the right balance between the
needs of the service and the marine and acknowledge that all marines
may not require the same level of transition assistance.
Lieutenant General Miller. Delaying TAP until shortly before
separation can result in several negative second and third order
effects, including inadequate preparation, heightened mental health
concerns such as stress and anxiety, limited access to resources,
financial difficulties, strain on family relationships, potential
homelessness, unemployment or underemployment and increased risk of
suicide. Initiating the transition process well in advance of the
anticipated date can significantly reduce associated risks and help
prevent a cascade of challenges that may require years to resolve.
Proactive planning promotes more seamless transitions for
servicemembers, their families, and their communities.
Ms. Kelley. Shortened timelines to prepare for separation narrows
the window for guardians to utilize available resources. Limited access
to these resources aimed at reducing stress during transition,
mitigating financial instability and ensuring connection with family
and community increase risk of harmful behavior. Also, in the long
term, guardians who struggle to transition into a post-military life
are less likely to recommend Service to potential recruits, potentially
impacting future recruiting efforts.
13. Senator King. Lieutenant General Eifler, Vice Admiral
Cheeseman, Lieutenant General Borgschulte, Lieutenant General Miller,
and Ms. Kelley, what other recommendations do you have to improve the
flexibility of the TAP program to meet the needs of separating
servicemembers?
Lieutenant General Eifler.
Recommendation: Retention starts at 18 months, which
could enhance retention and provide career counselors the opportunity
to show open requirements that are realistic instead of hypothetical;
waiting until incentives are loaded in the retain system of record. A
pilot would provide the detail if this course of action is effective or
not.
Continue to offer the TAP program in a distributive or
asynchronous model setting. The distributive model allows soldiers and
Leaders the flexibility to participate in TAP according to their own
timeline and to meet their individual needs.
The Army continues to look at improving the transition
process of our soldiers. As the Army identifies ways to improve the
soldier for Life TAP process, we will communicate any authorities or
appropriations needed from Congress to take better care of our soldiers
if needed.
Vice Admiral Cheeseman. Considering the significant changes made to
TAP over the past 5 years, full implementation was complicated by
COVID-19 until commands resumed normal in-person program operations.
The required TAP changes have now been implemented, and we recommend
allowing time for these updates to mature and produce measurable
results before considering further legislative adjustments.
Lieutenant General Borgschulte. The Marine Corps is open to
improvements in the program that further tailor preparation to
individual career paths and perhaps offer conversation about continuing
a Marine Corps career. We are also considering the possibility of
including a discussion of re-enlistment opportunities during TAP; I
believe that some marines, while going through TAP, may not be fully
decided on separating and that including a re-enlistment discussion may
assist with overall retention efforts. We already have a robust process
that ensures marines understand their retention opportunities and we
have made a concerted effort to educate our marines both prior to and
during TAP on the tangible and intangible benefits of our Direct
Affiliation Program into the Marines Corps Reserves. This provides
transitioning marines with more stability during transition and
employment opportunities, while increasing total force readiness.
Lieutenant General Miller. The United States Air Force continues to
enhance the integration of the Military Life Cycle to include TAP
components throughout a servicemember's career. This proactive approach
ensures preparation for separation or retirement is not concentrated
solely at the end of their career but is instead embedded at various
stages, enabling a more seamless and effective transition.
Ms. Kelley. We could better utilize prescribed forms to more
thoroughly understand why members are not compliant with TAP timeliness
or completion to help report, mitigate or eliminate those reasons.
Understanding reasons for noncompliance could also highlight system and
reporting limitations versus not meeting servicemember needs.
14. Senator King. Lieutenant General Eifler, Vice Admiral
Cheeseman, Lieutenant General Borgschulte, Lieutenant General Miller,
and Ms. Kelley, TAP participation remains a concern and in my view a
matter of leadership. What actions are uniformed leaders taking to
improve participation in TAP?
Lieutenant General Eifler.
Increased Leader Commander Engagement: involvement in
quarterly CSA Career Readiness Standard, Progress Report (Time), and
CSP/SB quarterly reports that allows command teams to see and
influence, Command Policy letters, include TAP topics an LPD.
Command teams take advantage of their HRC visit and
schedule and attend TAP brief.
The Army added a TAP Block of Instruction to the CDR /
1SG Course.
``Military Leader's Guide'' has been recently published
by MCTO. The guide educates military leaders on TAP so that they
understand the importance of the program, provide adequate support to
their soldiers and ensure they participate in TAP.
Vice Admiral Cheeseman. Navy Transition Assistance Program
participation rates are strong, with 96 percent of sailors completing
program requirements, however, we are working to improve sailors
meeting the timeliness metrics. To assist with awareness, the Navy is
adding a new dashboard for commands to track a sailor's timeliness
metrics. Additionally, The Office of Secretary of Defense Military to
Civilian Transition Office has introduced a new resource: the
``Military Leader's Guide to TAP,'' which introduces military leaders
to TAP, offering an overview of the transition process and providing
recommendations and resources for supporting transitioning
servicemembers.
Lieutenant General Borgschulte. Commanders play a critical role in
ensuring servicemembers participate in and comply with the TAP. To
support this responsibility, commanders appoint unit transition
coordinators (UTCs), who are integral to the internal coordination of
the program. The UTCs assist commanders by identifying eligible marines
and initiating notifications 20 to 18 months before separation. They
are tasked with ensuring that marines fulfill each requirement,
addressing any challenges that may arise, and keeping commanders
informed of issues by attending leadership meetings. This includes
highlighting cases where marines are unresponsive or at risk of
noncompliance with the prescribed timelines.
Lieutenant General Miller. The United States Air Force leadership
actively champions the importance of TAP participation, highlighting
its relevance even if servicemembers feel well-prepared/confident about
their transition planning. Leaders can help break down any
misconceptions by reinforcing that TAP is not just a formality but a
gateway to essential resources, career guidance, and long-term
benefits. The DAF (United States Air Force and United States Space
Force) collaborated with Departments of Defense, Labor, and Veterans
Affairs, along with the military services in April 2025 to field a
Military Leaders Guide to TAP. This guide assists military leaders in
supporting their transitioning servicemembers and their families. The
DAF consistently maintains a 98 percent compliance rate of the
congressionally mandated transition requirements as evidenced by the
installation's monthly compliance report.
Ms. Kelley. USSF is building personal readiness into our culture.
Furthermore, Space Force leaders amplify our core value of connection
through engagement with guardians at pivotal life and career moments,
including transitioning out of the Service.
15. Senator King. Lieutenant General Eifler, Vice Admiral
Cheeseman, Lieutenant General Borgschulte, Lieutenant General Miller,
and Ms. Kelley, what specific actions have you and your senior enlisted
leader taken to raise participation levels?
Lieutenant General Eifler.
Implemented Transitioning Servicemembers and Counselors
Reporting System (TSCRS) allows commanders at all levels better
visibility of their soldiers TAP participation and provides
transitioning soldiers with access to Army schedules, resources, and
tracking to reach their transition goals.
The Adjutant General sends out GO (1-2) Star and G1
Notes monthly and quarterly.
Briefed at Pre-Command Courses, Company Commander and
First Sergeant Course for AC, USAR, and ARNG.
Ensure The Adjutant General has installation specific
TAP data for installation visits, Conduct IG inspections. *
Vice Admiral Cheeseman. Navy Transition Assistance Program (TAP)
completion rates are strong at 96 percent. Our efforts to enhance
timeliness include:
Monitoring the in-house Navy Retention and Monitoring
System (NRMS) reports and updating them to capture values for each tier
and track completion for timeliness.
We are capturing reasons why sailors are not meeting the
timeliness metrics to better understand the problem. Some of these
reasons are fact of life issues such as short notice separations for
medical and legal reasons and sailors on deployment/extended
deployments.
During fiscal years 2023 and 2024, the Navy conducted 26
area site visits training over 2,161 counselors on requirements and
timeliness. Eight additional site visits are budgeted for FY25.
Including TAP on the Navy Inspector General inspection
list.
Lieutenant General Borgschulte. To increase participation, we
conduct inspections of TAP through Inspector General of the Marine
Corps (IGMC) inspections to assess the health of the program at the
command level and to ensure commanders are adhering to the prescribed
timeframes. These inspections also allow us to provide training and
mentorship to the commanders and their appointed UTCs on executing TRP
procedures, verifying Career Readiness Standards (CRS), and guiding
UTCs in building accountable, effective programs. We also empower local
TRP offices to lead command outreach, distributing materials,
leveraging local marquees, and incorporating TRP updates into
leadership briefings. Local offices, in conjunction with the commands,
ensure marines are notified of eligibility and reinforce key transition
requirements with both UTCs and servicemembers throughout each stage of
the process.
Lieutenant General Miller. The DAF is active in communicating to
commanders the significance of their role in facilitating a successful
transition for their personnel. This includes encouraging the
distribution and utilization of the Military Leaders Guide to
Transition among all commanders. The guide provides an overview of the
process, emphasizing the importance for leaders to understand and
actively support timely involvement in the TAP process. The DAF also
underscores the vital influence that a well-structured transition plan
has on a servicemember's ability to achieve long-term objectives,
including financial stability, improved quality of life, community
engagement, and overall well-being.
Ms. Kelley. We provided the Military Leaders Guide to Transition
(MLGTT) to our new Delta Commanders and Senior Enlisted Leaders. With
the guide we delivered a brief on how to leverage the Commander's Key
Support Program. The goal of this two-prong approach was to increase
spouse awareness and participation in TAP.
morale, welfare, and recreation programs
16. Senator King. Lieutenant General Eifler, Vice Admiral
Cheeseman, Lieutenant General Borgschulte, Lieutenant General Miller,
and Ms. Kelley, what benefits do Morale, Welfare, and Recreation (MWR)
programs provide to servicemembers and their families?
Lieutenant General Eifler. Morale, Welfare and Recreation (MWR)
activities boosts morale and enhances esprit de corps by offering
soldiers healthy outlets for stress relief, fostering camaraderie and
unit cohesion. MWR programs enhance quality of life by providing
recreational opportunities, family support services, and personal
development programs; MWR contributes to a positive work-life balance
for soldiers and their families. Robust MWR programs can be a
significant factor in attracting and retaining talented individuals in
the Army and their experience. In addition, MWR plays a crucial role in
preparing soldiers and their families for the unique challenges of
deployment, offering pre-deployment briefings, family support programs,
and resources for reintegration after deployment.
Vice Admiral Cheeseman. Morale, Welfare, and Recreation (MWR)
programs offer a wide range of benefits to servicemembers and their
families, enhancing their quality of life and supporting their well-
being. Here are some key advantages:
Fitness and Wellness: MWR programs promote physical
health through fitness centers, sports leagues, and wellness programs,
contributing to overall warfighter readiness and resilience.
Boosting Morale: MWR programs provide recreational
activities, sports, and entertainment that help servicemembers unwind
and recharge, especially during challenging times like deployments or
relocations.
Community Building: By organizing events and activities,
MWR programs foster camaraderie and strengthen bonds among
servicemembers and their families.
Affordable Recreation: From discounted tickets to
amusement parks and concerts to outdoor adventures like camping and
boating. MWR programs make leisure activities more accessible. In
addition to prices that are usually lower than off-base alternatives
base alternatives (when those alternatives are even available),
government-run MWR activities are generally exempt from State and local
taxes.
Available Recreation: Many MWR programs and services are
available even at remote, isolated, overseas, and deployed locations.
Deployed and Contingency Environments. MWR deploys with
the warfighter and programs are available downrange. The Military
Exchanges also operate at downrange and contingency (flood, hurricane,
or other acts of God) areas.
These programs are designed to address the unique needs of military
life, ensuring that servicemembers and their families have the support
and resources they need to thrive.
Lieutenant General Borgschulte. Our embedded and installation-based
morale, welfare, and recreation programs enable our marines and their
families to adapt to the changing circumstances of our operational
tempo and missions, successfully reintegrate post-deployment, and
maintain readiness to deploy again. The Marine Corps primary prevention
delivery mechanism is Marine Corps Total Fitness (MCTF). MCTF
strengthens marines, sailors, and families comprehensively across four
domains: social, spiritual, mental, and physical fitness. Strengthening
marines and enhancing resilience across all domains will prevent and
reduce harmful behaviors and are a benefit from MWR efforts across the
force.
Lieutenant General Miller. Morale, Welfare and Recreation (MWR)
programs deliver essential support to servicemembers and their families
at home station and in deployed locations by promoting well-being,
improving quality of life, and fostering community connections. They
contribute to personal development, strengthen family relationships,
support retention, and enhance overall readiness. Through personalized
services and recreational activities MWR provides valuable
opportunities for relaxation, leisure, and relationship-building--
ultimately supporting unit cohesion and family stability.
Ms. Kelley. Operated by the Air Force on Space Force Bases, MWR
programs offer a wide range of benefits to guardians and their families
that enhance their overall quality of life and well-being. Key benefits
include:
Fitness and Wellness through fitness centers, sports
leagues, and wellness programs.
Boosting Morale through recreational activities, sports,
and entertainment.
Family Support resources such as child care, counseling,
and educational opportunities.
Skill Development through classes and workshops.
Community Building through organized events and
activities.
Affordable Recreation via discounted tickets to amusement
parks and concerts, as well as outdoor adventures like camping and
boating.
Available Recreations even at remote, isolated, overseas,
and deployed locations.
17. Senator King. Lieutenant General Eifler, Vice Admiral
Cheeseman, Lieutenant General Borgschulte, Lieutenant General Miller,
and Ms. Kelley, how do these programs directly contribute to
warfighting lethality and readiness?
Lieutenant General Eifler. Soldiers and their families are entitled
to the same quality of life afforded the society they are pledged to
defend. Army Family and Morale, Welfare, and Recreation (MWR) programs
directly support readiness by delivering social, fitness, recreational,
and educational activities that enhance community life, foster soldier
and unit readiness, and promote mental and physical fitness. Many of
these activities satisfy basic physiological and psychological needs of
soldiers and their families by providing community support systems that
make military installations temporary hometowns for a mobile military
population. This sense of home and belonging, promotes retention in the
force, which ensures the lethality and readiness of the Army.
Vice Admiral Cheeseman. MWR (Morale, Welfare, and Recreation)
programs play a vital role in enhancing warfighting lethality and
readiness by supporting the physical, mental, and emotional well-being
of servicemembers. Here's how:
Physical Fitness: Many MWR programs provide access to
fitness centers, sports leagues, and recreational activities that help
servicemembers maintain peak physical condition, which is essential for
combat readiness.
Mental Resilience: Recreational activities and leisure
opportunities offered by MWR programs help reduce stress and improve
mental health, enabling servicemembers to stay focused and resilient in
high-pressure situations.
Family Support: MWR programs often include family
oriented services, such as childcare and family events, which
strengthen the support system for servicemembers. A stable home
environment contributes to a sailor's overall readiness.
Skill Development: Some MWR initiatives include
educational programs and workshops that enhance professional and
personal skills, indirectly boosting the effectiveness of military
personnel.
Community Building: By fostering camaraderie and teamwork
through group activities and events, MWR programs help build strong
unit cohesion, which is critical for operational success.
These programs ensure that servicemembers are not only physically
prepared but also mentally and emotionally equipped to perform their
duties effectively.
Lieutenant General Borgschulte. Our embedded and installation-based
morale, welfare, and recreation programs bolster lethality, combat
readiness, Marine Corps Total Fitness (MCTF) (social, spiritual,
mental, and physical), and resiliency through adaptable, affordable,
and accessible services and resources for marines, attached sailors,
and families, including behavioral health, personal and professional
development, family care, and fitness and recreation. MCTF is a force
multiplier and directly enhances the individual warfighter's lethality,
enhances the unit readiness, and directly contributes to lethality and
readiness of the Marine Corps.
Semper Fit/Warrior Athlete Readiness and Resilience (WARR) provides
an integrated system of health, wellness, prevention, and performance
capabilities that enable the readiness, lethality, and resilience of
individual marines, serve as force multipliers for marine units, and
enhance well-being and quality of life for marine families.
Lieutenant General Miller. MWR programs support operational
effectiveness and personnel readiness by fostering resilient
servicemembers. Through access to fitness centers, swimming pools, and
wellness activities, we promote physical conditioning. Additionally,
outdoor recreation initiatives encourage personal development,
facilitate reintegration, and strengthen family relationships following
deployments.
Ms. Kelley. MWR programs enhance readiness and operational
effectiveness by providing access to physical fitness, mental
resilience activities, and family support. When guardians know their
families are cared for, they can remain focused and mission-ready
without distraction.
permanent change of station moves
18. Senator King. Lieutenant General Eifler, Vice Admiral
Cheeseman, Lieutenant General Borgschulte, Lieutenant General Miller,
and Ms. Kelley, the new global household goods contract has negatively
impact morale and readiness. Although a U.S. Transportation Command
(TRANSCOM)-led issue, this directly impacts all personnel. What are you
doing to address the negative impacts this has had on servicemembers
and their families?
Lieutenant General Eifler. The Army, in close coordination with
U.S. Transportation Command and the Joint Service community, remains
fully engaged in addressing any adverse impacts of the Global Household
Goods Contract (GHC) transition on soldiers and their families. While
GHC is a USTRANSCOM-led initiative, the Army Enterprise recognize its
direct implications on soldier readiness and family quality of life,
and we are taking deliberate action to mitigate disruptions and
preserve operational effectiveness.
To ensure continuity of support, the Army has retained the
authority for transportation offices to re-award shipments
through the legacy Tender of Service (TOS) program. in response
to capacity shortfalls HomeSafe, the GHC prime, has recently
experienced. As of this fiscal year, over 95 percent of Army
shipments have been executed through legacy channels. DOD will
operate both the legacy TOS program and GHC simultaneously
through the 2025 peak season, with less than 20 percent of
total volume projected to be moved under GHC.
The Army is continuing to actively engage for advocation of
flexible execution policies, while elevating field-level
feedback to the Defense Personal Property Management Office for
policy refinement and rapid issue resolution. We are also
leveraging legacy system exemptions, to shield high-risk and
complex shipments--such as Non-Temporary Storage, BLUEBARK
(shipments of personal property belonging to a deceased
military member or civilian employee of the Department of
Defense), Safety and Wounded Warrior moves, and shipments to/
from OCONUS (including Alaska and Hawaii)--from GHC execution
until operational risk is reduced. Additionally, GHC phase-in
of nine key Army installations has been deferred until after
the 2025 peak season to minimize disruption. These include Fort
Bragg, Fort Irwin, White Sands Missile Range, Aberdeen Proving
Ground, Rock Island Arsenal, LRC Miami, McAlester Ammunition
Plant, Red River Army Depot, and Pine Bluff Arsenal.
The Army remains steadfast in its commitment to safeguarding
soldier and family relocation experiences during this period of
transition. We continue to hold our industry and agency
counterparts accountable, while taking every measure to ensure
the resilience of the Personal Property Program in support of
force readiness and quality of life.
Vice Admiral Cheeseman. The Navy strives to ensure our sailors and
their families experience healthy Permanent Change of Station (PCS)
moves. While we value the work of TRANSCOM, the Navy Personnel Command
surveys our sailors and their families on their experiences from their
moves. To mitigate any adverse situations, our sailors and their
families have access to a range of support services provided by their
commands and the Navy Fleet and Family Support Centers throughout their
moves.
It is important to note that Navy has significantly reduced the
number of out-of-area PCS moves to increase geo-stability for families
and reduce overall PCS costs since fiscal year 2023. Over the past
fiscal year, this change has led to a 10 percent reduction in PCS
moves. As a result, sailors and their families experience fewer
negative impacts.
Lieutenant General Borgschulte. Our Deputy Commandant for
Installations & Logistics--and the other services--have worked with
USTRANSCOM to develop processes and procedures to support moves that we
deem are ``at risk'' of missing important performance standards, such
as missed pickups and missed deliveries. Those offices are constantly
monitoring shipments to reduce the disruptions as best they can. They
have had discussions with USTRANSCOM to determine a more effective way
ahead until such time as the contractor can stabilize and demonstrate
higher shipment pickup and delivery success rates.
Lieutenant General Miller. While the Global Household Goods
Contract (GHC) is a U.S. Transportation Command (USTRANSCOM)-led
initiative, we fully recognize the significant impact its challenges
have had on servicemembers and their families. DAF has taken several
proactive steps to mitigate negative effects and ensure a stronger
focus on quality relocation experiences. This includes increased
oversight of Joint Personal Property Shipping Offices and local
Personal Property Processing Offices to ensure timely communication and
support throughout the move process, while maintaining direct
coordination with USTRANSCOM to quickly address and field concerns. To
offset staffing gaps, we have prioritized training and the use of
experienced counselors and quality assurance personnel during the peak
season for household goods movements, with real-time monitoring of
shipments at all DAF locations for consistent service. Performance
monitoring has been strengthened through enhanced quality assurance
programs and emphasis on the generation of Contract Discrepancy Reports
to track and correct poor contractor performance. Our transportation
professionals also solidify member support through direct engagement,
increased customer service touchpoints, expanded use of feedback from
surveys and examination of the contractor's Key Performance Indicators.
Additionally, Military and Family Readiness Centers (M&FRCs) on each
installation offer the Relocation Assistance Program (RAP). RAP
provides proactive planning and education on the permanent change in
station (PCS) and pre-arrival orientation workshops, during which an
emphasis on potential delays assists in mitigating the negative impacts
for members and their families.
Ms. Kelley. USSF has not received any direct concerns or complaints
about the new global household goods contract from guardians in the
field. We will remain vigilant and offer assistance if we learn of it
impacting servicemembers and their families.
19. Senator King. Lieutenant General Eifler, Vice Admiral
Cheeseman, Lieutenant General Borgschulte, Lieutenant General Miller,
and Ms. Kelley, what specific steps are being taken ahead of the busy
`summer moves' period to mitigate impact to the morale of the force
because of difficulties with executing the global household goods
contract?
Lieutenant General Eifler. In preparation for the high-demand
summer Permanent Change of Station (PCS) peak season, the Army is
executing a multi-pronged mitigation strategy to preserve soldier
morale and minimize disruptions, stemming from challenges associated
with the Global Household Goods Contract (GHC). While U.S.
Transportation Command (USTRANSCOM) leads the program, the Army and
other Services, are taking proactive steps to ensure mission continuity
and family support remain the most essential aspects of central
execution. USTRANSCOM has assured the Military Services that both the
legacy TOS and GHC will be available for the Services to leverage
during peak season to support servicemember moves.
Key actions include:
Maintaining Dual-System Operations: The Army continues to
leverage both theGlobal Household Goods Contract (GHC) and the legacy
TOS to preserve operational flexibility. This dual-option approach
allows transportation offices to reassign shipments in the Defense
Personal Property System, the TOS program when the GHC prime's capacity
is unavailable or insufficient, ensuring maximum support to soldiers
and families. DPS acts as a critical backstop, absorbing demand
overflow and safeguarding the PCS process from contractor-related
disruptions.
Targeted Reduction of GHC Service Areas: In partnership
with U.S. Transportation Command and coordination with the GHC prime,
HomeSafeAlliance, over 28,000 ZIP codes have been deactivated from the
GHC service network and will instead be serviced under the legacy TOS
program. This deliberate action eliminates high-risk or low-capacity
areas from GHC servicing. Shipments in these deactivated areas continue
to be executed through the TOS program, leveraging the experience and
geographic reach of legacy providers.
Field-Level Coordination: Army transportation offices are
actively collaborating with USTRANSCOM (Defense Personal Property
Management Office) to elevate issues in real-time, apply targeted
solutions, and document Performance Work Statement violations.
Enhanced Strategic Communication and Messaging: The Army
is supporting USTRANSCOM-led efforts to improve transparency and manage
expectations through a robust communication strategy and activities.
The Army regularly uses the GHC Communication Toolkit USTRANSCOM has
published specifically for local transportation offices to engage with
unit leaders and military families about this major change. Other
activities include regular social media posts to inform and educate
servicemembers and families, active participation in media roundtables
to address public concerns, and the publication of routine press
releases that provide status updates on GHC rollout and ongoing
mitigation measures. These efforts aim to build trust, manage morale,
ensure the broader military community remains informed and engaged, and
facilitates aligned messaging across all military services.
The Army remains committed to protecting soldier and family morale
throughout this transition, while continuing to work closely with all
stakeholders to uphold the highest standards of care and service our
soldiers, civilians and families deserve.
Vice Admiral Cheeseman. A positive PCS move is a retention driver
and factor for our sailors' quality of life. The Navy is alleviating
any negative impacts by performing actions such as ensuring PCS orders
are released in a timely manner and including points of contacts for
household goods on orders to ensure that sailors have access to key PCS
personnel as required. By doing so, sailors and their families are able
to arrange their move dates when PCS orders are received. Additionally,
when a sailor receives orders, they are also provided information on
overseas/sea duty screening, special programs screening, passports, and
security clearance requests. Providing key information and timely
orders execution allows our sailors and their families to more
seamlessly transition housing, childcare and other key quality of life
items that often are most stressful. While negative impacts such as
delayed PCS funding and household goods contracts are out of the Navy's
control, we prioritize the needs of our sailors and their families
within the levers that we have.
Lieutenant General Borgschulte. Marine Corps leadership recognizes
that peak moving seasons can have capacity issues. There are mitigating
levers being used for the legacy program to ensure we utilize all
available capacity. We communicate often and clearly with marines and
other servicemembers and consistently meet and discuss issues with
USTRANSCOM. Further, we have well-trained inspectors on the road to
validate the services being provided to our marines and their families.
Finally, we are continuing to review performance indicators and
monitoring shipments to ensure our marines and their families have a
good PCS experience.
Lieutenant General Miller. The USAF leadership consistently
receives updates on the GHC, outlining challenges and mitigation
efforts. These communications stress the need for transparent
information flow to help commands support servicemembers and families
effectively. The United States Air Force has urged installation leaders
to strengthen communication with local traffic management offices, use
base-wide messaging to inform families, and ensure Quality Assurance
personnel are accessible for support. To mitigate the impact on
readiness and morale, we coordinate closely with USTRANSCOM to monitor
the vender's performance and adjust shipment allocations based on
capacity and reliability. During this peak relocation period,
installations are categorized based on their level of participation in
the GHC: full participation, no participation, and partial
participation in both GHC and the legacy household goods movement
program. Participating installations have clear guidance on how to
support members experiencing delays; or who have unique move
requirements. Additionally, we have implemented a robust oversight
process, including formal discrepancy reporting and shipment revocation
thresholds, to hold the vender accountable and ensure timely service.
To protect the relocation experience for our families, shipments will
be revoked and offered to legacy providers when the vender indicates an
inability to provide service. Additionally, M&FRCs on each installation
offer RAP. RAP provides proactive PCS planning education and pre-
arrival orientation workshops, during which an emphasis on potential
delays assists in mitigating the negative impacts for members and their
families.
Ms. Kelley. USSF approves Report No Later Than Date (RNLTD)
adjustments and can delay or adjust RNLTDs in coordination with
gaining/losing commanders to allow flexibility for guardians. If
guardians and/or their families are impacted by any issues related to
the new global household goods contract, we will work directly with the
individuals impacted to adjust their RNLTDs.
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