Military Personnel: Full Extent of Support to Civil Authorities Unknown
but Unlikely to Adversely Impact Retention (Letter Report, 01/26/2001,
GAO/GAO-01-9).

The Department of Defense (DOD) provides a wide range of support to many
organizations at home and abroad. GAO estimates that, in fiscal year
1999, DOD provided support in at least 7,125 instances to at least 345
or more entities, including international organizations; private
citizens; and federal, state, local, and foreign governments. This
support consumed more than two million military staff-days. GAO could
not determine the total cost of DOD's support because of the limited
data it received. However, it conservatively estimates the cost to be
about $180 million. Providing assistance to civil authorities does not
appear to harm retention. DOD data show that overall retention has
remained relatively stable during the last decade. There are
alternatives to the use of military personnel. DOD and some civil
entities have used contractors rather than military personnel for
certain activities, such as construction, transportation, and medical
treatment. There are limitations on the kinds of support that
contractors can provide, however. For most of the 197 support instances
GAO reviewed that occurred in 1997-99 for the State Department, the Drug
Enforcement Administration, and the Secret Service, DOD billed and
collected about $31.7 million in reimbursable costs, including military
pay and allowances. Furthermore, DOD asked its components to report
outstanding bills and identified about $2.9 million in unpaid bills from
11 agencies. DOD is now collecting the late payments from these
agencies.

--------------------------- Indexing Terms -----------------------------

 REPORTNUM:  GAO-01-9
     TITLE:  Military Personnel: Full Extent of Support to Civil
	     Authorities Unknown but Unlikely to Adversely Impact
	     Retention
      DATE:  01/26/2001
   SUBJECT:  Cost analysis
	     Reimbursements to government
	     Military personnel
	     Military cost control
	     Human resources utilization
	     Interagency relations
	     Armed forces abroad
	     Department of Defense contractors
	     International relations

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GAO-01-9
A

Report to the Chairman and Ranking Member, Subcommittee on Military
Personnel, Committee on Armed Services, U. S. Senate

January 2001 MILITARY PERSONNEL

Full Extent of Support to Civil Authorities Unknown but Unlikely to
Adversely Impact Retention

GAO- 01- 9

Letter 3 Appendixes Appendix I: Scope and Methodology 18

Appendix II: Compendium of Major Legal Authorities Authorizing DOD Support
to Civil Organizations 23

Appendix III: Detailed Data on Extent of Military Support to Civil Entities
32 Appendix IV: Officer and Enlisted Retention Rates 41 Appendix V: Comments
from the Department of Defense 45 Appendix VI: Comments From the Federal
Emergency

Management Agency 47 Appendix VII: GAO Contacts and Staff Acknowledgments 48

Tables Table 1: Categories of DOD Assistance Provided to Civil Entities in
Fiscal Year 1999 7 Table 2: Instances, Duration, and Staffdays of DOD
Support to

Civil Entities in Fiscal Year 1999 32 Table 3: Military Occupations Most
Frequently Providing

Support to Civil Entities, Fiscal Year 1999 35 Table 4: Average Duration and
Staffdays of Fiscal Year

1999 Military Support, by Category 37 Table 5: Average and Total Staffdays
of Fiscal Year 1999

DOD Support to Civil Entities 39 Table 6: Retention Rates Among
Nonretirement- Eligible Commissioned and Warrant Officers (Combined), by

Service and DOD- Wide (Fiscal Years 1989- 99) 42 Table 7: Retention Rates
Among Nonretirement- Eligible Enlisted Personnel by Service and DOD- Wide

(Fiscal Years 1989- 99) 43 Figures Figure 1: Frequency of Civil Recipients
of Military Assistance,

Fiscal Year 1999 (Percent of Total Instances) 34 Figure 2: Consumers of
Military Support, Fiscal Year 1999

(Percent of Staffdays) 35 Figure 3: Duration of DOD Support, Fiscal Year
1999 36 Figure 4: Staffdays and Instances of Fiscal Year 1999 DOD Support by
Range of Duration 38

Figure 5: DOD Providers of Fiscal Year 1999 Military Support, by Instances
and Staffdays 40 Figure 6: Retention Rates Among Nonretirement Eligible
Commissioned and Warrant Officers by Service and

DOD- Wide (Fiscal Years 1989- 99) 41 Figure 7: Retention Rates Among
Nonretirement- Eligible Enlisted Personnel by Service and DOD- Wide

(fiscal years 1989- 99) 43

Lett er

January 26, 2001 The Honorable Tim Hutchinson Chairman The Honorable Max
Cleland Ranking Member Subcommittee on Military Personnel Committee on Armed
Services

United States Senate The Department of Defense (DOD) provides a variety of
assistance, from disaster relief to translations, to federal agencies, to
state and local governments, to private citizens, and even to other nations.
Some of this support has been provided for decades. DOD provides this
assistance while maintaining its warfighting capabilities and participating
in overseas operations. These combined factors have raised concern regarding
the

extent and cost of participation in civil activities as well as their effect
on uniformed military personnel. Consequently, you asked us to determine (1)
the extent to which uniformed military personnel supported civil activities;
(2) the effect on retention of using servicemembers to provide this
assistance; (3) whether any alternative sources exist to provide this
support; and (4) the extent to which entities have reimbursed DOD for its

support. We obtained information on such support from each of the military
services, the theater commanders in chief, and selected recipient agencies.
As agreed, we omitted DOD's peacekeeping operations and limited our review
of the National Guard's support to that rendered under presidential
declarations of federal emergencies. Because DOD is not required to
centrally manage the assistance it provides to civil entities, the
Department was unable to give us complete information. However, DOD
officials told us that the data provided us was the best available and
probably included

all major assistance. A detailed discussion of our scope and methodology
appears at appendix I.

Results in Brief Under a variety of statutes, DOD fairly frequently provides
a wide range of support to numerous organizations at home and abroad. Based
on the incomplete data we received, we estimate that, in fiscal 1999, DOD

provided support in at least 7, 125 instances 1 to at least 345 or more
entities, including international organizations; private citizens; and
federal; state; local; and foreign governments. 2 We estimate this support
consumed more than 2 million military staffdays 3 (about 0.4 of 1 percent of
total active- duty military staffdays). The total cost of this support could
not be estimated, as

DOD provided such data for fewer than 20 percent of the instances it
reported to us. However, we conservatively estimate the cost of pay and
allowances for this support to be about $180 million. The active force
provided the bulk of the support, and such assistance was typically short in
duration, with 90 percent lasting fewer than 10 days. Physical security was
the type of support most frequently given, followed by air transport. In

terms of staffdays of support provided, the largest amount was for
humanitarian assistance to foreign nations. Providing assistance to civil
authorities does not appear to negatively affect retention. DOD data show
that, overall, retention has remained relatively stable over the last
decade. Data from the 1999 DOD Survey of Active Duty Personnel indicates
that (1) only a small proportion of the force has been involved in support
to civil authorities, (2) such assignments have been of relatively short
duration, and (3) military personnel view those assignments as contributing
to the national interest. Our discussions with officials from selected
military units- those with high deployment rates

and frequent participation in support to civil entities- indicated that such
assignments have very little impact on retention. They said, in fact, that
providing support may in some cases positively influence retention, as it
often helps those in distress. DOD's personnel deployment data systems were
insufficiently detailed to conduct a data- based assessment of the time that
military personnel spend supporting civil authorities. However, visibility
over all deployments is likely to improve as statutorily required changes to
DOD's definition of deployments and tracking of deployments are implemented
in fiscal year 2001. 4

1 An instance of support is one occurrence of assistance as reported to us
by DOD; it may include many types of support, as in the case of responses to
natural disasters or humanitarian crises. 2 In particular, DOD's data did
not generally capture such locally provided assistance as flag presentations
and other community- relations support.

3 A staffday equals 8 hours, or 1 day, of support by one service member of a
DOD component.

There are alternatives to the use of military personnel. DOD and some civil
entities have used contractors rather than military personnel for certain
activities, such as construction, transportation, and medical treatment.

There are limitations on the kinds of support that contractors can provide,
however.

DOD does not centrally track or manage costs of and reimbursements for its
support to civil authorities. Information we received from unit- level
providers was insufficient to determine the extent of costs and

reimbursements. We did find that for most of the 197 support instances we
reviewed that occurred in 1997 99 for the State Department, the Drug
Enforcement Administration, and the Secret Service, DOD did bill and

collect about $31. 7 million in reimbursable costs, including military pay
and allowances. Furthermore, DOD asked its components to report outstanding
bills and identified about $2. 9 million in unpaid bills from 11 agencies.
DOD

is now collecting the late payments from these agencies. Background DOD
provides support to non- DOD entities under numerous authorities

(see app. II). Some of these authorities, such as the Economy Act, 5 require
reimbursement for actual costs incurred by DOD, including military pay and
allowances. For example, the Economy Act is recognized in a memorandum by
the President's Chief of Staff that directs reimbursement for certain civil
officials traveling on military flights. In cases where military personnel
are detailed to civil agencies, reimbursement may

depend on the law authorizing the detail. Sometimes, statutorily authorized
interagency agreements may specify what, if any, reimbursements will be
made. For instance, under a 1999 agreement, the Department of Health and

Human Services agreed to pay only for the incremental costs that DOD
incurred in providing support to refugee resettlement at Fort Dix. 6
Finally, certain DOD support is not reimbursable. For example, DOD is
authorized

to transport, without charge to any country, on a space- available basis, 4
National Defense Authorization Act for Fiscal Year 2000 (P. L. 106 65 sec.
586, Oct. 5, 1999, amended by P. L. 106- 398, sec. 574, Oct. 30, 2000,
codified at 10 U. S. C. 991, and section 923, codified at 10 U. S. C.
section 487). 5 The Economy Act (31 U. S. C. section 1535, 1536) authorizes
agencies to obtain goods or services by interagency agreement. 6 Incremental
costs are defined as only those costs DOD would incur to provide specified
support (e. g., food, contract personnel, equipment, utilities).

supplies provided by nongovernmental sources for humanitarian assistance.
The approval process for support to civil entities varies. It can range from
review and approval by the Secretary of Defense down to the local
commander's discretion, who may provide immediate emergency assistance in
the event of imminently serious conditions involving lives, suffering, or
great property damage. Units are selected according to the needed
capabilities, proximity to the incident, and current military obligations.

Military Support In fiscal year 1999, DOD provided many types of support to
civil authorities

Frequent and Varied, and organizations. This support was diverse and
provided from bases all

over the world by both the active and reserve components. Given the global
but Full Extent nature of this support and the absence of a requirement for
DOD to Unknown centrally monitor it, any records of such assistance was kept
at local units; these were not readily available.

Some centrally managed assistance came from active and National Guard
counterdrug programs and other support for which Congress specifically
appropriates funding. In fiscal 1999, these types of assistance cost about
$1 billion- about 0.4 percent of DOD's total budget. The bulk of this

support was counterdrug activities, which totaled $941 million. These
programs do not figure into the rest of our report. 7 Because DOD did not
centrally maintain the data we requested regarding

nonspecially appropriated assistance, it directed all services and theater
commanders in chief to gather such data from their units. The material we
received from this effort still lacked much of the information needed,

particularly regarding costs. Several officials said they could not account
for all support to civil entities, especially that performed at the local
commander's discretion. As a result, our estimates of instances, duration,
staffdays, and costs are understated. A different picture of military
assistance emerges depending upon which measure of extent is used- the
number of support instances or the number of support staffdays. We 7 We have
also omitted from this report DOD data on funeral honors, as we could not

identify that portion of the support that was nonmilitary. In fiscal year
1999, DOD estimates that 37,700 instances of funeral honors were provided at
a cost of about 75, 400 staffdays, which we estimate to have cost about
$13.2 million in pay and allowances.

grouped the support reported to us into certain categories, as shown in
table 1.

Table 1: Categories of DOD Assistance Provided to Civil Entities in Fiscal
Year 1999 Instances Staffdays Category

Tot al Percent Tot al Percent

Humanitarian a and refugees 190 3 864, 239 43 Miscellaneous (e. g., repairs,
medicine,

616 9 556,996 28 ceremonial) Natural disasters (e. g., earthquakes, fires,
283 4 446, 384 22

tornadoes, in the United States) Meteorology, science, and research 354 5
71, 860 4 Security (dog teams, protection, police) 4, 696 65 37,200 2
Special events b 109 2 23, 588 1 Air transport c 992 14 11, 637 1

Tot al 7, 240 d 102 e 2,011,904 d 101 e Overall 7, 125 2,009, 350

Note: Numbers of instances and staffdays are estimates. a Support to foreign
nations. b The papal visit, the State of the Union Address, the
international ski competition, and the support to the Secret Service for the
NATO summit.

c Contains some instances also included in the Humanitarian and refugee
category. d Exceeds actual instances and staffdays because some instances
fell into more than one support category. e Exceeds 100 percent due to
rounding. Source: DOD. By far, the category of support most frequently
provided was security, followed distantly by air transport. However, as also
shown in table 1, a different picture results when military support is
measured in terms of staffdays. For example, while security was the most
common type of assistance, it accounted for only 2 percent of the total
staffdays of support provided to non- DOD entities. Similarly, while 14
percent of the total instances of support was for air transport, only 1
percent of the staffdays were used for transport. From a staffday
perspective, only 3 percent of all instances of support was for humanitarian
and refugee assistance, it consumed about 43 percent of the total staffdays.
Natural disasters comprised only 4 percent of the total support instances
but consumed about 22 percent of the total staffdays. Recipients of this
military support in

fiscal 1999 ranged from private citizens to 36 U. S. states and territories
and 43 foreign nations. The most frequent recipients- that is, the ones
accounting for the most instances of support- were the Treasury Department
(27 percent), followed closely by the State Department (25 percent) and U.
S. city and county governments (21 percent). However, the non- DOD entities
that received the most support in fiscal 1999 in terms

of staffdays were the foreign nations (40 percent) and the Federal Emergency
Management Agency (21 percent). For more detail, see figures 2 and 3 in
appendix III. The personnel who provided military assistance in fiscal year
1999 possessed a wide variety of military skills, ranging from weather
observers and instructors to linguists and communications specialists.
Certain events, such as hurricanes and earthquakes, called for support from

servicemembers in many roles- medics, engineers, pilots, rescuers, depot
managers, cooks, drivers, and many others. The most frequently used
personnel (in terms of support instances) were explosive ordnance detection
and disposal units (dog teams) and the aircrews of helicopters and fixed-
wing aircraft. (For more information, see app. III, table 3.) Other

support was provided year round; we received information on several such
types of assistance, including

? meteorological and climatological information to government agencies and
the public,

? calibration and maintenance of measurement and diagnostic equipment,

? medical treatment, and

? de- mining operations in Europe and Asia. Military support in fiscal 1999
varied considerably in length. Nearly all the 7,125 instances of support- 90
percent- lasted 10 days or less; more than 80 percent lasted only 1 day.
(For more information on duration, see app. III, tables 2 and 4, and figures
2 and 3.)

The active Army was the lead provider by far. In fiscal year 1999, the Army
expended more than 870,000 staffdays- 43 percent of the total. Second was
the active Air Force, with 565,000 staffdays (28 percent). The National
Guard was third with nearly 250,000 staffdays (12 percent), followed by the
active Navy (nearly 175,000, or 9 percent) and the active Marine Corps
(88,900, or 4 percent). Total participation by the reserve components was

nearly 1,700 staffdays (0.1 percent). (For more details, see app. II, table
2 and figure 4.) However, the numbers for all these groupings might be
larger, since more than 57,500 staffdays (3 percent) were reported to us as

expended by unidentified service personnel. DOD was able to provide little
data on costs, either for the total or for pay and allowances. About 18
percent of the support instances provided by DOD included total costs ($ 459
million), and only 3 percent included pay and allowance costs ($ 20.4

million). However, we were able to improve upon this data

? By using reimbursable aircraft rates and some reported billing data, we
estimate total costs for another 9 percent of the support instances,
yielding $508 million for 27 percent of all instances.

? By using a generic rate for pay and allowances (that we generated- see
app. I) for another 97 percent of the support instances, we estimated that
the entire 7,125 instances of assistance cost about $180 million in pay and
allowances.

? By adding estimated pay and allowances to those instances that did not
provide total costs, we estimated the total cost in fiscal year 1999 for all
instances was $666 million.

DOD Support to Civil At the time of our review, DOD did not maintain
deployment information in

Entities Does Not sufficient detail to enable a data- based assessment of
how support for civil activities relates to servicemembers' retention.
However, retention has Appear to Affect

remained stable over the last decade, and a DOD- wide survey indicates that
Retention

deployments to support civil entities do not appear to negatively affect
retention. Similarly, discussions with officials from selected units that
frequently provide support indicate that these types of deployments do not
appear to have a negative effect on retention. Visibility over all
deployments, including those to support civil authorities, should improve as
DOD, during fiscal year 2001, implements changes required by the National
Defense Authorization Act for Fiscal Year 2000.

DOD Survey and Visits with DOD's retention information for fiscal years 1989
99 shows that all the

Units Suggest That services retained about 90 percent of their officers.
Retention of enlisted Deployments for Civil

service members over the same period was also consistent but varied by
Activities Do Not Affect service. Appendix IV shows officer and enlisted
retention rates for fiscal years 1989 99. Retention

Survey data that we analyzed indicates that assignment to support civil
authorities is unlikely to negatively affect retention. According to a 1999
DOD survey administered to a random sample of 66,000 servicemembers, more
personnel were satisfied with military life and intended to stay in the
military than were dissatisfied and planned to leave. Frequent deployments

were only one of many factors that servicemembers cited for leaving. Pay was
by far the most frequently cited reason for leaving or considering leaving.
Personal and family time and job enjoyment were also cited as reasons for
leaving. While satisfaction was lower among those who spent more time away
from home, the majority of those surveyed- almost 82

percent- reported spending fewer than 5 months away from their home station,
with 45 percent away less than a month.

The 1999 survey also showed that only a small percentage of the force
reported participating in events or deployments that could be considered
support to civil authorities.

? 6 percent participated in humanitarian assistance;

? 4 percent participated in domestic- disaster assistance or civil emergency
operations; and

? 2 percent participated in counterdrug operations. Of the servicemembers
that participated in these deployments, most reported being away fewer than
3 months, and 82 percent of those that participated in domestic disaster
assistance reported being deployed less than 1 month. This is consistent
with the data DOD provided on the typical duration of instances of military
support to civil entities. Since very few

personnel have been assigned to such activities and the length of such
assignments was generally short, we believe it unlikely that such
assignments would negatively affect retention. The survey also showed that
participants tended to view such domestic disaster and foreign humanitarian-
assistance deployments as important to the national interest.

Our discussions with officials in selected DOD units that had participated
in civil support and had high deployment rates indicated that deployments
for these events minimally affected a servicemember's decision to leave the
military. According to officials in the Air Force's active and reserve
component wings that provide airlift support and the Army unit that provides
chemical and biological weapons expertise, deployments to support civil
activities do not impair retention. They said that while civil

support contributes to time away from servicemembers' home stations, the
deployments are generally of short duration and unlikely to directly
influence decisions to leave the military. Officials noted that many
deployments to support civil activities, such as disaster relief,
humanitarian assistance, or special events, actually have a positive
influence on retention. They said that a servicemember is more likely to
leave the

military because of an undesirable assignment or duty station or because of
employment opportunities in the private sector.

Required Changes to Statutorily required changes to the management of DOD
personnel Provide Better Deployment

deployment should result in better information about the many types of
Visibility deployments, including those supporting civil activities. This
could help DOD assess the effect that deployment rates and certain types of
deployment may have on retention. Previously, each service defined and

measured deployments differently, and their deployment categories were
insufficiently detailed to identify many deployments, including those in
support of civil entities. The National Defense Authorization Act for Fiscal
Year 2000 directed DOD to establish, to the extent practicable, uniform
terminology and policies for deployments of units and servicemembers and to
track and monitor

deployments at the individual servicemember level. DOD began implementing
these changes beginning October 2000. For example, DOD developed more
detailed deployment categories based on the single deployment definition.
Servicemembers engaged in civil support will be

tracked under categories such as counterdrug, domestic civil, humanitarian,
or law enforcement support, according to DOD officials. Contractors May

To reduce the total number of military personnel needed for an operation,
Provide Alternative to

some federal organizations, including DOD, have used contractors as an
alternative to military personnel for such functions as medical treatment,
DOD Support of Civil

supply operations, housing construction, and transportation. 8 The State
Activities

Department, for example, is using a contractor to staff a medical clinic
formerly run by military personnel for embassy personnel in Haiti. Also, in
an effort to reduce costs, the Secret Service quit using military doctors to
accompany agents overseas and instead contracted with Johns Hopkins
University for the same service. According to Secret Service officials, this
arrangement saved it about $230,000 per year.

8 We issued the following reports on the use of contractors : Contingency
Operations: Army Should Do More to Control Contract Cost in the Balkans
(GAO/ NSIAD 00 225, Sept. 29, 2000) and Contingency Operations:
Opportunities to Improve the Logistics Civil Augmentation Program (GAO/
NSIAD 97 63, Feb. 11, 1997).

The agencies that we reviewed tended to look to DOD for support as a last
resort. The Federal Emergency Management Agency, for example, requests DOD
support only when other sources of support are unavailable. In addition, the
Department of Justice considers DOD personnel support only if it is
overwhelmed by the magnitude of a situation or if it needs technical
expertise unique to the military. And while DOD has agreed to provide the
State Department airlift for noncombatant evacuations, State prefers to use
commercially chartered aircraft, if possible, because it provides more
scheduling flexibility and provides cost information in advance, according
to Department of State officials. Although contractors can provide an
alternative to military personnel under some conditions, there are
limitations on using them. Certain functions related to the public interest,
such as military command, criminal investigations, or foreign relations,
cannot be contracted for because they are considered inherently
governmental. 9 Practicality can also limit the use of contract support.
Time requirements, for example, can make the use of contractors impractical,
as in the resettlement of Kosovar refugees in 1999.

After being tasked to support the Department of Health and Human Services in
this operation, DOD decided to use military personnel instead of contractor
support under an existing Army logistics augmentation contract because the
requirement to establish facilities for the incoming refugees was under the
15 days of notice that the contract stipulated. Although the contractor
could have done the job in the required time, the contract would have
required modification in this case and would likely have cost additional
money, according to DOD officials. Operating

conditions can also make the use of contractors impractical. For example,
while the Department of State prefers to use contract aircraft for
noncombatant evacuations if possible, it will request DOD aircraft if
hostile conditions exist.

Reimbursement for DOD DOD units that provided support for civil activities
are responsible for Support Is Not Centrally

tracking costs and collecting payments for costs incurred when Managed or
Tracked appropriate. Neither the Office of the Secretary of Defense nor the
military departments are required to centrally manage or track
reimbursements associated with the support. We found that DOD was sometimes
slow to

bill for the services provided. We also found that recipient agencies were 9
Federal Activities Inventory Reform Act of 1998 (P. L. 105 270, Oct. 19,
1998); Office of Management and Budget Circular Number A 76, Revised
Supplemental Handbook (1999).

sometimes late in making reimbursement payments. Nevertheless, DOD was paid
for the reimbursable support it provided in most of the cases that we
reviewed.

The Economy Act 10 is often used as authority for DOD support to other
agencies; it requires reimbursement of actual costs for the goods or
services provided. We reviewed the records of three of the many agencies
that DOD provided support to under this act. We selected these agencies
because each provided lists that included many instances of DOD support

under the Economy Act. We did not determine the universe of DOD's Economy
Act support to all agencies. We believe the 195 agreements of support that
we chose are representative because they are typical of the Economy Act
support that DOD and other agencies reported to us.

DOD Does Not Always DOD's financial management regulation requires
components involved in Promptly Bill for Some

civil activities to bill recipients for the support within 30 calendar days
of Reimbursable Support the last month in which the support was provided.
Supporting DOD units bill recipients directly or through the Defense Finance
and Accounting Service. To determine whether DOD billed and collected
reimbursable costs, we reviewed 195 instances of DOD Economy Act support for
the Department of State, the Drug Enforcement Administration, and the Secret
Service during fiscal years 1997 99. We found that DOD was in some cases
slow in billing the three entities but collected about $36. 6 million in

reimbursable support costs for 163 of the 195 instances. One area in which
DOD acknowledged that it had not consistently collected reimbursements was
for airlifts provided by the Air Force's 89th Airlift Wing for executive
branch travel. As we noted in a previous report, reimbursements had not been
collected for 63 instances of airlift support from 1993 to 1999. 11 We
estimate in our report that DOD was owed about

$1. 9 million from non- DOD agencies for these airlifts. The State
Department and other agencies were not billed because the Air Force had not
provided to the Defense Finance and Accounting Service the necessary

10 The Economy Act authorizes agencies to enter into interagency agreements
to obtain goods or services. DOD's financial management regulation requires
reimbursement for military labor, based on the actual hours worked or
assigned, and for military fringe benefits and temporary duty costs for
support provided under the act.

11 Defense Transportation: 89th Airlift Wing Executive Branch Policies
Improved, but Reimbursement Issues Remain (GAO/ NSIAD 99 170, Aug. 16, 1999)

information on the airlifts. In early 1999, the Air Force reported the
airlifts to the Defense Finance and Accounting Service and it prepared bills
for them. In May and June of 2000, the State Department received bills for
$378,205 for 26 airlifts from 1995 to 1999. The State Department paid all of
these bills in June 2000, according to State Department documents and a
Defense Finance and Accounting Service official.

The Drug Enforcement Administration had not received bills for some of the
support that DOD provided. During fiscal years 1997 99, the Drug Enforcement
Administration had 43 support agreements with DOD under the Economy Act. As
of November 2000, the agency had paid $19.4 million to DOD under 30 of the
agreements. Drug Enforcement Administration records show that the agency had
not paid for support under 13 (30 percent) of the agreements, but agency
officials said that DOD had not

yet billed the agency for the support. In addition, DOD had not billed the
Drug Enforcement Administration until July 2000 for support provided under
the Economy Act in 1991 and 1992. Because the appropriation that was
originally obligated for these agreements had expired, the agency paid

these two bills from a current appropriation. The Secret Service also had
not received bills for some of the support that DOD provided during fiscal
years 1997 99. The Secret Service had 126 support agreements with DOD under
the Economy Act and, as of October 2000, had reimbursed DOD $16. 8 million.
Secret Service accounting records show that, for 19 of the 126 agreements
(15 percent), reimbursement had not been made to DOD as of October 2000.
However, Secret Service officials said that they had not been billed for the
support provided under the 19 agreements. In addition, DOD has not yet
billed the Secret Service for $65,000 in support provided under an Economy
Act agreement from fiscal year 1992.

Supported Agencies Were Recipient federal agencies are not always timely in
reimbursing DOD for

Not Always Timely in the support they receive. The fiscal year 2000 and 2001
DOD appropriations acts 12 prohibit DOD from providing additional
reimbursable support to

Reimbursing DOD for Billed another agency whose reimbursements for previous
support are more than

Support 90 days in arrears. To obtain information on late payments, the
Office of the Under Secretary of Defense (Comptroller) asked DOD components
to review their records and report all the outstanding bills for support.
They 12 P. L. 1 0 6 79, sec. 8122, Oct. 25, 1999, and P. L. 106 259, sec.
8103, Aug. 9, 2000.

reported that 11 departments and agencies owed almost $2.9 million of
outstanding payments to DOD as of April 2000. The bills were dated in 1998
and 1999, and one was dated February 1997. Letters requesting payment and
copies of the unpaid bills were sent to each of the agencies.

DOD was most concerned about the State Department's unpaid bills because it
owed more than half (about $1.9 million) of the total amount. In an April
2000 letter, the DOD Comptroller requested immediate payment. In

a May 2000 letter, State said that it would not pay outstanding bills of
about $1. 4 million 13 related to embassy security provided in Nairobi,
Kenya. State asked for additional Marine Corps security guards after the
embassy bombing there in August 1998. Starting in June 2000, DOD required
the State Department to pay in advance for all routine Economy Act support,
including airlifts. In a July 2000 letter to DOD, the State Department said
that it would pay the $1. 4 million owed for embassy security, and it made
that payment to DOD in September 2000. Immediately after receiving the
payment, DOD stopped requiring the State Department to pay in advance for
all routine Economy Act support.

The remaining 10 agencies that owed about $1 million in outstanding bills
had paid or planned to pay their bills, according to an Office of the Under
Secretary of Defense (Comptroller) official. In some cases, payments to DOD
had been misdirected, payments made to DOD had not been recorded, and DOD's
bills were incorrect. Office of the Under Secretary of Defense (Comptroller)
is continuing to receive additional information from DOD components on
outstanding payments due from other agencies.

Agency Comments and We provided a draft of this report to the Office of the
Secretary of Defense;

Our Evaluation the Secretary of State; the Secretary of the Treasury; the
Attorney General;

the Secretary of Health and Human Services; and the Director, Federal
Emergency Management Agency. The Departments of State, Treasury, Justice,
and Health and Human Services did not have comments and DOD and the Federal
Emergency Management Agency provided written comments. None of the agencies

13 DOD also reported an outstanding State Department bill of $484, 351 for
helicopter lift support for avalanche relief in Austria. In this case, the
State Department requested DOD support on behalf of the government of
Austria, which assumed responsibility for paying for it. The State
Department paid the bill in May 2000.

raised questions about our findings. We have incorporated technical comments
as appropriate.

Appendixes V and VI are DOD's and the Federal Emergency Management Agency's
comments, respectively, in their entirety. We are sending copies of this
report to the Secretary of Defense; the Secretary of the Army; the Secretary
of the Navy; and the Secretary of the Air Force. We will also send copies to
the Secretary of State; the Secretary of the Treasury; the Attorney General;
the Secretary of Health and Human Services; and the Director of the Federal
Emergency Management Agency. We will make copies available to others on
request.

Please contact me at (202) 512- 4300 if you or your staff have any questions
concerning this report. Key contacts and contributors on this assignment are
listed in appendix VII.

Henry L. Hinton, Jr. Managing Director Defense Capabilities and Management

Appendi Appendi xes x I

Scope and Methodology To determine the extent to which DOD supported civil
activities, we interviewed several headquarters organizations that
coordinated the provision of goods and services to civil organizations. In
particular, we discussed pertinent policy guidance and regulations with
officials in those organizations. We used existing data to assess the extent
of DOD's support, but those data generally did not demonstrate the full
extent of DOD's support. Therefore, we limited our analysis on the extent of
DOD's support to fiscal year 1999. We based our analysis on two major
sources of

information: ? File copies of formal requests for support that had been
received by the Office of the Secretary of Defense.

? Detailed support data gathered at our request by DOD from military
providers. DOD tasked its commands and offices to gather certain specific
data- events, dates, types of support, recipients, providers, staffdays,
costs, billing, reimbursements, and statutes authorizing reimbursements or
waivers- from their subordinate units. Most of the responses we received
were incomplete, particularly concerning the numbers of military personnel
and costs. Consequently, the data presented in this report are only
estimates of the level of support DOD provided in fiscal year 1999. As
agreed, we also limited our review of National Guard support to its
participation in presidentially required

federal support, not state- directed efforts. To estimate the pay and
allowance costs associated with the support DOD provided civil authorities
in fiscal year 1999, we developed weighted average cost factors for each
service. To calculate the daily cost of an event, we multiplied the total
number of staffdays by a cost factor to get the daily cost of an event.
Because many of the reports of support lacked cost data or cost factors that
we could use in estimating cost, we had to develop

reasonable cost factors ourselves. In addition to not knowing which cost
factors by rank to use, we would usually know only the number of staffdays
involved in the event and would not know the breakdown by rank. Therefore,
in developing cost factors, we had to address

? which cost factor to use by grade, and

? the grades of military personnel who participated in support efforts. To
address the first problem, we used the official 1999 DOD reimbursement rates
(those used by the military to bill non- DOD entities). These rates included
basic pay, retired pay accrual, basic housing allowance, and other

such factors to compute, on an annual basis, the rate by grade. We converted
the annual rates to daily rates by dividing by 365. To address the second
problem, we assumed that the breakdown for an event would be the same as for
the service as a whole. We used a weighted average to develop our cost by
grade. This seemed reasonable, since most of a service is composed of lower-
ranked personnel, and it seemed likely

that most of the support personnel would also be lower- ranked. For example,
in 1999, personnel ranked E 1 through E 5 made up 60 percent of the Army.
For an event supported by more than one service, we used that service's cost
factor for its staffdays and the other service's cost factor for

its staffdays. For the Reserves and the National Guard, we used the active
Air Force, Army, or Navy rates, as appropriate. For those instances where
the service was not identified, we used an average of the total cost factor
for all the services. The daily rates we generated and used were as follows:

? U. S. Air Force, Air National Guard, and Air Force Reserve, $146.88.

? U. S. Army, Army National Guard, and Army Reserve, $128.18.

? U. S. Navy and Navy Reserve, $142.97.

? U. S. Marine Corps, $115.48.

? Generic National Guard (branch unidentified), $136. 30.

? Component unidentified, $135.46. Generally, our DOD sources gave us either
the total number of staffdays for a support instance or the calendar
duration and number of personnel. For 15 instances, however, we were given
data on the duration of the support and the peak number of staffdays. For
these instances, we estimated the

total number of staffdays in the following manner: ? For 10 of these
instances lasting 23 calendar days or less we estimated the total staffdays
in each case by multiplying duration by peak staffdays because of their
nature (6 were natural disasters) and their relatively short duration. For
example, for 7 days in May 1999, DOD gave assistance for tornado recovery
efforts in Oklahoma. At its peak, this event was supported by 11 active-
duty Army personnel. To estimate the total staffdays for the event, we
multiplied the peak number (11) by the

duration (7 days) to arrive at an estimated total of 77 staffdays.

? For three of the remaining five instances with durations longer than 23
calendar days, we judged it appropriate, given their nature, to derive our
estimates of total staffdays by multiplying duration by peak staffdays.

? For the last two instances, which had durations of 91 and 365 calendar
days, we assumed a period of buildup, a peak period, and a drawdown period.
We assumed one sixth of the duration was for build- up, one sixth for
drawdown, and two thirds for peak. For the buildup, we divided the peak
staffdays by the number of days for the buildup. For each day of the
buildup, we assumed that the staffday total would increase by this
calculated number until the peak staffday was reached. We assumed the

reverse for the drawdown. Using this assumed distribution for the staffdays
for these two instances, we summed the staffdays to get the total.

To determine whether DOD support provided for civil activities has adversely
affected military retention, we examined retention trends for the four
military services and across DOD for fiscal years 1989 99. We reviewed
several recent studies on DOD retention and deployments,

including the 1999 DOD- wide survey of active- duty personnel. We identified
units that deployed often, using DOD personnel deployment data, and
determined, from information collected during our review of the extent of
activity, which of these units frequently deployed for civil activities. We
visited some of these units (see list at the end of this appendix) to
discuss

how deployments for civil support have affected personnel retention. To
discuss changes in the tracking of deployments, we met with and reviewed
information from DOD officials involved in developing and implementing the
congressionally mandated changes to DOD's personnel deployment tracking
systems.

Concerning the availability of sources other than DOD to support civil
activities, we contacted each of the military services' logistics contract
augmentation offices to obtain and discuss with officials the use of
contractor support. We reviewed pertinent directives and Office of
Management and Budget guidance on the performance of services by

contractors. We discussed with officials from various recipient agencies
their rationale for requesting DOD support and contacted several commercial
contractors regarding their capabilities to provide such support.

To determine whether DOD charged other agencies for the support provided and
whether these agencies reimbursed DOD, we reviewed statutes, directives, and
regulations that provide policy and procedures on reimbursements. We also
identified the various authorities requiring full or partial reimbursement
or that authorized a waiver of support costs. In addition, we analyzed DOD's
fiscal year 1999 data regarding the extent of

support to determine which support was reported to be reimbursable and the
amounts reimbursed.

For a more detailed review of billings and reimbursement payments, we
selected 195 instances of support provided under the Economy Act by many
different DOD components to the State Department, the Drug Enforcement
Administration, and the Secret Service. We selected these agencies because
they provided lists to us that included many instances of support from DOD
under the Economy Act. Many other agencies also use

Economy Act support, but we did not determine the universe of DOD's Economy
Act support to these agencies. Therefore, we cannot possible to project our
findings on billings and reimbursement to the universe. However, we believe
the 195 instances of support we chose are representative because they are
typical of all the Economy Act support reported to us by DOD and other
agencies. We determined the amount the

agencies were billed for DOD's support and the status of payments to DOD. We
interviewed financial management officials on the timeliness of billings by
DOD. In addition, we reviewed the efforts of the Office of the Secretary

of Defense (Comptroller) to identify DOD bills that had not been paid by
other agencies and to collect the amounts that were in arrears.

We did not include support services provided by the Army Corps of Engineers
in our review because the Corps' mission involves monitoring contractors
rather than directly supplying support. Support services provided to DOD by
other federal agencies were also beyond the scope of our review.

Due to the volume and decentralized nature of the available data and the
limited time available, we did not verify DOD data for accuracy, especially
that on billed and reimbursed amounts. We excluded any classified support
that DOD provided.

We performed our work at the following DOD, service, and civil agencies
located in Washington, D. C.:

? Office of the Executive Secretary.

? Directorate for Accession Policy, Office of the Assistant Secretary of
Defense, Force Management Policy.

? Director, Joint Chiefs of Staff (Manpower and Personnel), J 1.

? Office of the Secretary of Defense (Comptroller).

? Departments of the Army, Navy, and Air Force (Comptroller).

? Director of Military Support.

? Army and Air National Guard.

? Director, Programs, Resources and Assessments, Drug Enforcement Policy and
Support, Office of the Assistant Secretary of Defense, Special Operations/
Low- Intensity Conflict.

? Washington Headquarters Services.

? Director, Innovative Readiness Training, Office of the Assistant Secretary
of Defense for Reserve Affairs (Readiness, Training, and Mobilization).

? Federal Emergency Management Agency.; Department Of State.; Department Of
Justice.; Department of Treasury.; and Department of Health and Human
Services.

We also visited the following military units:

? Technical Escort Unit, Edgewood Arsenal, Maryland.

? 437th (active) and the 315th (reserve) Airlift Wings, Charleston Air Force
Base, South Carolina.

We conducted this review from October 1999 to January 2001 in accordance
with generally accepted government auditing standards.

Compendium of Major Legal Authorities Authorizing DOD Support to Civil

Appendi x II

Organizations Authorities For Detail a Reimbursement

10 U. S. C. section 711. The President, with the advice and consent of the
Not mentioned. b

Senate, may appoint an officer from each of the three military departments
as senior members of the Military Staff Committee of the United Nations. 10
U. S. C. section 711a. Commissioned officers of the three military Not
mentioned. departments may be detailed for duty with the American Red Cross
by the Secretary of the military department concerned for medical- or
dentalrelated activities.

10 U. S. C. section 712. Upon application of the country concerned, the
Arrangements may be made with the receiving countries

President may detail military personnel to various countries to assist in
for reimbursement or other cost- sharing associated with military matters.
having the detailed members perform functions under this section.

10 U. S. C. section 713. The Secretary of a military department, upon
request Assignment or detail may be with or without by the Secretary of
State, may assign or detail members of the armed forces reimbursement.
However, the member's travel expenses for duty as couriers and building
inspectors.

may be paid as authorized for officers of the Foreign Service from State
Department appropriations.

10 U. S. C. section 719. Upon the request of the Secretary of Commerce, the
Reimbursement required. Secretary of a military department may assign or
detail military personnel for duty in the National Oceanic and Atmospheric
Administration.

10 U. S. C. section 1491. The Secretary of Defense shall ensure, upon Not
mentioned. request, that a funeral honors detail is provided for the funeral
of any veteran.

10 U. S. C. section 3534. The President may detail not more than three Corps
Not mentioned. of Engineers officers to assist the Mayor of the District of
Columbia. 10 U. S. C. section 4301. The Secretary of the Army may detail
Army Expenses incident to the detail shall be paid from any

members as students at educational institutions or as students, observers,
Army appropriation.

or investigators at industrial plants, hospitals, and other places in order
to acquire knowledge and perfect their skills. 10 U. S. C. section 5983.
Upon request by the Secretary of State, the

Not mentioned. Secretary of the Navy may assign enlisted members of the Navy
to serve as custodians at any embassy, legation, or consulate.

10 U. S. C. section 5985. The President may detail Navy officers as Not
mentioned, but see 46 U. S. C. App. section 1295c, at superintendents or
instructors at state or regional maritime academies that the end this
section. receive benefits under the Merchant Marine Act, 1936 (46 U. S. C.
App. section 1295c). 10 U. S. C. section 5986. To promote naval engineering
and architecture, the Not mentioned.

President, upon the application of any established scientific school in the
United States, may detail a qualified Navy officer as a professor in that
school. 10 U. S. C. section 9301. The Secretary of the Air Force may detail
Air Force Expenses incident to the detail shall be paid from any Air members
as students at educational institutions or as students, observers,

Force appropriation. or investigators at industrial plants, hospitals, and
other places in order to acquire knowledge and perfect their skills.

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22 U. S. C. section 287d 1. The President, in support of United Nations
Reimbursement required, but in exceptional

activities specifically directed to the peaceful settlement of disputes, may
circumstances, or when the President finds it to be in the detail to the
United Nations no more than 1,000 personnel of the armed national interest,
he may waive, in whole or in part, the forces. reimbursement requirement.

22 U. S. C. section 2388. The head of any U. S. agency may detail, assign,
or Reimbursement not required, but by agreement may be otherwise make
available any officer or employee to an international obtained for all or
part of the detailee's compensation, organization to serve with, be a staff
member of, or provide technical or

travel expenses, and benefits and allowances. See 22 professional advice to
such organization. U. SC. section 2390. 22 U. S. C. section 2348. The
President may furnish assistance to friendly Such assistance may include
reimbursement to DOD for countries and international organizations for
peacekeeping operations and

expenses incurred under 22 U. S. C. section 287d 1 except other programs
carried out in furtherance of the national security interests of that such
reimbursements may not exceed $5 million the United States.

unless a greater amount is authorized by this section. 36 U. S. C. section
2101. The President shall appoint one officer of the

Not mentioned. Regular Army to serve as secretary of the American Battle
Monuments Commission. Also, armed forces members may be appointed members of
the Commission by the President. 36 U. S. C section 2102. On request by the
American Battle Monuments Reimbursement required for pay and allowances of
Commission, the head of any U. S. agency may make personnel and

personnel made available to the Commission. facilities available to the
Commission.

42 U. S. C. section 2473. Members of the military services may be detailed
to Not mentioned. However, the detail of a member may be to the National
Aeronautics and Space Administration under cooperative the same extent as
that to which he/ she might be lawfully agreements with the service
Secretaries.

assigned in DOD. 42 U. S. C. section 5144. Authorizes any federal agency to
temporarily detail

Reimbursement may or may not be required as determined personnel to
emergency support teams involved in major disasters or

by the President. emergencies.

46 U. S. C. App. 1295c( e). The President may detail any of the personnel of
Not required. the Navy, Coast Guard, or the U. S. Maritime Service to any
state maritime academy to serve as superintendents, professors, lecturers,
or instructors.

Aurthorities for Services c Rembursement

8 U. S. C. section 1521. The Director, Office of Refugee Resettlement, may
Not mentioned. enter into arrangements with other agencies to fund and
administer programs relating to refugee resettlement

8 U. S. C. section 1522( b)( 3). The Secretary of Health and Human Services
Not mentioned. is authorized to make arrangements (including cooperative
arrangements with other federal agencies) for the temporary care of refugees
in the United

States in emergency situations, including the establishment of processing
centers. 10 U. S. C. section 168. The Secretary of Defense may conduct
military- to Not mentioned, but appropriations authorized. military contacts
designed to encourage a democratic orientation of other countries' military
forces. Activities may include exchanges of military and civilian personnel.

10 U. S. C. section 371. DOD may provide information collected during the 10
U. S. C. section 377 requires a civilian law enforcement normal course of
military training or operations that may be relevant to a agency to
reimburse DOD for support provided under 10 violation of federal or state
law to appropriate federal, state, or local law U. S. C. section 371 382
unless support is provided in the enforcement officials. normal course of
training or operations or the support results in a benefit to DOD akin to
training or operations. d

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Authorities For Detail a Reimbursement

10 U. S. C. section 372( a). DOD may make available to any federal, state,
or 10 U. S. C. section 377 requires a civilian law- enforcement local law
enforcement agency for law enforcement purposes any DOD agency to reimburse
DOD for support provided under 10

equipment, base facility, or research facility. U. S. C. section 371 382
unless support is provided in the

normal course of training or operations or the support results in a benefit
to DOD akin to training or operations. d 10 U. S. C. section 372( b). In
preparation for or in response to an emergency 10 U. S. C. section 377
requires a civilian law- enforcement involving chemical or biological
agents, DOD may, in addition to equipment agency to reimburse DOD for
support provided under 10 and facilities, provide appropriate material or
expertise to federal, state, and

U. S. C. section371 382 unless support is provided in the local law-
enforcement or emergency- response agencies. normal course of training or
operations or the support results in a benefit to DOD akin to training or
operations. d 10 U. S. C. section 373. DOD personnel can train federal,
state, or local law

10 U. S. C. section 377 requires a civilian law enforcement enforcement
officials in the operation and maintenance of equipment and

agency to reimburse DOD for support provided under to 10 provide such
officials with expert advice. U. S. C. section 371 382 unless support is
provided in the normal course of training or operations or the support
results in a benefit to DOD akin to training or operations. d 10 U. S. C.
section 374. DOD personnel may be made available to maintain 10 U. S. C.
section 377 requires a civilian law- enforcement equipment made available to
civilian law- enforcement agencies and may

agency to reimburse DOD for support provided under to 10 operate equipment
for a federal and civilian law- enforcement agency with U. S. C. section 371
382 unless support is provided in the respect to violations of certain
criminal laws, including those relating to normal course of training or
operations or the support controlled substances, immigration, and customs
and for specified results in a benefit to DOD akin to training or
operations. d purposes, such as aerial reconnaissance, and interception of
vessels or

aircraft outside the land area of the United States. P. L. 101 510 section
1004, as amended, 10 U. S. C. section 374 note. Not required. Authorizes
DOD, through fiscal year 2002, to provide a variety of support for
counterdrug activities to federal, state, local, or foreign law- enforcement

agencies, including the transportation of personnel, establishment of bases
for facilitating counterdrug activities, and ground reconnaissance. 10 U. S.
C. section 382. At the Attorney General's request and under jointly 10 U. S.
C. section 377 requires a civilian law- enforcement prescribed regulations,
DOD may provide equipment and personnel to agency to reimburse DOD for
support provided under to 10 assist specified law- enforcement activities
during an emergency involving a

U. S. C. section 371 382 unless support is provided in the biological or
chemical weapon of mass destruction.

normal course of training or operations or the support results in a benefit
to DOD akin to training or operations. P. L. 106 65 section 1023, 10 U. S.
C. section 382 note. Until September 30,

Reimbursement required for DOD's incremental costs of 2004, the Secretary of
Defense, at the request of the Attorney General, may

providing assistance unless waived by the Secretary of assist civil
authorities by deploying DOD personnel or resources in Defense. However, if
the Department of Justice receives an responding to an act of terrorism or
threat of such act involving a weapon of appropriation for such assistance,
the Attorney General mass destruction within the United States.

shall reimburse DOD, regardless of a waiver. 10 U. S. C. section 401.
Authorizes DOD to carry out humanitarian and civic

Not required. Expenses to be paid out of funds specifically assistance
activities in a foreign country in conjunction with authorized appropriated
for humanitarian and civic assistance. military operations. Examples of such
activities include medical, dental, and veterinary care; construction of
rudimentary roads; well drilling; and construction of basic sanitation
facilities.

P. L. 106 259 section 8009. c The Secretary of the Army may provide medical
The Secretary may provide services without services at, and transportation
to, Army hospitals in Hawaii for civilian

reimbursement. patients from American Samoa, the Commonwealth of Northern
Mariana Islands, the Marshall Islands, the Federated States of Micronesia,
Palau, and Guam.

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Authorities For Detail a Reimbursement

10 U. S. C. section 402. Authorizes DOD to transport without charge to any
Not required.

country, on a space- available basis, supplies provided by nongovernmental
sources intended for humanitarian assistance. 10 U. S. C. section 404.
Authorizes the President to direct DOD to provide

Not required. Amounts appropriated for DOD's Overseas disaster assistance
outside the United States in the form of transportation, Humanitarian,
Disaster, and Civic Aid programs shall be supplies, services, and equipment.

available to fund assistance. 10 U. S. C. section 2012. The Secretary of a
military department may Not mentioned. authorize units or individual members
to provide support and services to designated non- DOD governmental
organizations, youth and charitable activities, and other entities approved
by the Secretary. The assistance must be otherwise authorized by law or
incidental to military training.

10 U. S. C. section 2342. Secretary of Defense may enter into an agreement
10 U. S. C. section 2344. Logistics support, supplies, and with NATO
governments and other organizations for the reciprocal provision services
under such agreement may be acquired or of logistic support, supplies, and
services to their respective military forces.

transferred by the United States on a reimbursement basis or by replacement
in kind or exchange of supplies or services of an equal value. 10 U. S. C.
section 2543. The Secretary of Defense may, with respect to Reimbursement
required. The Presidential Inaugural presidential inaugural ceremonies,
provide assistance to the Presidential

Committee shall reimburse the Secretary for any Inaugural Committee and the
congressional Joint Inaugural Committee.

assistance the Secretary deems appropriate beyond items specifically
identified. The Committee shall also defray any expense incurred for the
delivery, return, rehabilitation, replacement, or operation of loaned
property.

10 U. S. C. section 2544. The Secretary of Defense, in connection with a
Supplies and expendable medical supplies are provided national or world Boy
Scout Jamboree, may lend cots, blankets, and other

without reimbursement. Reimbursement is required for the equipment; furnish
services and expendable medical supplies; and provide

delivery, return, rehabilitation, or replacement of loaned transportation.

equipment and for any actual costs of transporting Scouts or loaned
equipment. 10 U. S. C. section 2545. The Secretary of Defense is authorized
to provide Reimbursement required for actual transportation costs.
transportation for Girl Scouts as well as their equipment and property to
and from specified national and international meetings.

10 U. S. C. section 2546. The Secretary of a military department may make
Not required. shelter and incidental services available to the homeless.
Bedding may also be made available to non- DOD entities operating homeless
shelters.

10 U. S. C. section 2548. The Secretary of a military department, in Not
mentioned. Services can be provided only within funds connection with an
annual conference of a national military association, may available to the
Secretary concerned. provide limited air and ground transportation,
communications, medical assistance, administrative support, and security
support, provided that the services can be provided in conjunction with
military training and meet other requirements.

10 U. S. C. section 2549. Implicitly authorizes the Secretary of Defense to
Reimbursement is required unless comparable care is

provide inpatient medical care in the United States to foreign military and
made available to a comparable number of U. S. military diplomatic personnel
or their dependents.

personnel and their dependents in the foreign personnel's country.

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Authorities For Detail a Reimbursement

10 U. S. C. section 2551. Funds authorized to be appropriated to DOD for a
Not mentioned.

fiscal year for humanitarian assistance shall be used for the purpose of
providing transportation of humanitarian relief and for other humanitarian
purposes worldwide. 10 U. S. C. section 2554. The Secretary of Defense may
provide assistance Not mentioned with regard to security and safety
services.

for the World Cup Soccer Games, the Goodwill Games, the Olympics, and
However, other assistance must be reimbursed in

any other civilian sporting event in support of essential security and
safety at accordance with 10 U. S. C. section 377 (discussed such event if
the Attorney General certifies that assistance is necessary. previously in
connection with 10 U. S. C. section 371) and

Other assistance may also be provided in support of other needs relating to
other applicable law. such event.

10 U. S. C. section 2602. The President may accept the cooperation and
Travel is at the expense of the United States in the same assistance of the
American Red Cross. Employees of the American Red manner as civilian
employees of the armed forces. Office Cross, when performing duties in
connection with assisting the armed

space and communications are furnished without charge, forces, may be
furnished (1) transportation; (2) meals and quarters, at their and the
transportation of Red Cross supplies is at the expense or that of the Red
Cross, except that if civilian employees of the expense of the United States
if it is determined that the armed forces are quartered without charge,
employees of the Red Cross supplies are necessary for the assistance offered
to DOD. may also be quartered without charge; and (3) available office
space, warehousing, wharfage, and means of communications. Also, supplies of
the Red Cross may be transported.

10 U. S. C. section 2604. The Secretary of Defense may cooperate with and
Travel is at the expense of the United States in the same assist the United
Seamen's Service in establishing and providing facilities manner as civilian
employees of the armed forces. Office and services in foreign areas.
Personnel of the United Seamen's Service, space and communications are
furnished without charge, who perform duties in connection with such
cooperation and assistance, and the transportation of United Seamen's
Service have the same benefits as assisting Red Cross personnel under 10 U.
S. C. supplies is at the expense of the United States if it is section 2602.
determined that the supplies are necessary for the assistance offered to
DOD.

10 U. S. C. section 2606. The Secretary concerned may cooperate with and
Travel expenses are limited to those provided to DOD assist qualified
scouting organizations in establishing facilities and services civilian
employees; office space, etc., is provided without

at locations outside the United States. Personnel of the scouting charge,
and scouting supplies can be transported at organizations may be transported
at the expense of the United States, government expense. No mention is made
of meals and provided office space, warehousing, utilities, and
communications. Scouting quarters.

supplies may also be transported. 10 U. S. C. section 2635. Subject to
certain conditions, the Secretary of Reimbursement, if any, is to be
determined by the Defense may assist the Department of Health and Human
Services and the

Secretary. Department of Transportation in providing medical emergency
helicopter services to civilians. 10 U. S. C. section 2641. The Secretary of
Defense may provide

No charge may be imposed on the veteran or his survivors. transportation on
medical evacuation aircraft to transport a veteran to or However, the
Department of Veterans Affairs shall from a Department of Veterans Affairs
medical facility or to transport the

reimburse DOD for any transportation costs that DOD remains of a deceased
veteran who died at such facility after being otherwise would not have
incurred. transported to the facility under this provision.

10 U. S. C. section 2641a. The Secretary of Defense may provide Not
required. transportation on DOD aircraft on a space- available basis for
American Samoa veterans between American Samoa and Hawaii if hospital care
is required.

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Authorities For Detail a Reimbursement

10 U. S. C. section 4626. The Secretary of the Army may sell aviation fuel,
Not mentioned. However, aircraft shelter may be furnished oil, and supplies
for, and may furnish mechanical and other assistance to,

without charge. aircraft operated by a foreign military or air attachï¿½
accredited to the United States.

10 U. S. C. section 4744. The Secretary of the Army may, on a spaceavailable
Reimbursement required for the transportation of families

basis, permit specified classes of individuals (and in some cases, and of
officers and employees of Puerto Rico on official their families) to be
transported on vessels operated by the Army transport business. agencies or
by any military DOD transport agency. 10 U. S. C. section 7227. The
Secretary of the Navy may furnish specified

Generally, reimbursement is required without an advance services and
supplies to foreign naval vessels and military aircraft. of funds if foreign
government provides similar services and supplies. However, routine port and
airport services

may be furnished at no cost if such services are provided by U. S. naval
personnel and equipment without direct cost to the Navy. Also, reimbursement
is not required if either routine service is provided U. S. naval vessels or
military aircraft under a reciprocal agreement providing for the services
without reimbursement by the United States. 10 U. S. C. section 9305. The
Secretary of the Air Force may provide for the Training is to be without
cost to the United States, except training of civilians selected from the
instructional staff of civilian flying for necessary training supplies.

schools used by the Air Force to educate and train members of the Air Force.

10 U. S. C. section 9626. The Secretary of the Air Force may sell aviation
Not mentioned. However, aircraft shelter may be furnished fuel, oil, and
supplies for, and may furnish mechanical and other assistance

without charge. to, aircraft operated by a foreign military or air attachï¿½
accredited to the United States.

14 U. S. C. section 141( b). The Coast Guard, with the consent of the head
of Not mentioned. any U. S. agency, may avail itself of the agency's
officers, employees, and facilities in the performance of its duties.

18 U. SC. section 112 (f). The Attorney General, in enforcing a criminal Not
mentioned. provision prohibiting assaults against foreign officials,
official guests, and internationally protected persons, may request the
assistance of the military departments.

18 U. S. C. section 175a. The Attorney General may request the Secretary of
Reimbursement required to the extent required by 10 Defense to provide
assistance under 10 U. S. C. section 382 in support of U. S. C. section 377.
activities relating to the enforcement of 18 U. S. C. section 175 in an
emergency situation involving a biological weapon of mass destruction.

18 U. S. C section 229E. The Attorney General may request the Secretary of
Reimbursement required to the extent required by 10 Defense to provide
assistance under 10 U. S. C. section 382 in support of U. S. C. section 377.
activities relating to the enforcement of 18 U. S. C. section 229 in an
emergency situation involving a chemical weapon. f

18 U. S. C. section 831( d). In connection with criminally prohibited
Reimbursement may be required per 10 U. S. C. transactions involving nuclear
materials under section 831, the Attorney section 377. See discussion under
10 U. S. C. section 371. General may request DOD assistance in accordance
with chapter 18, title 10 U. S. C. (Military Support for Civilian Law-
Enforcement Agencies).

Continued from Previous Page

Authorities For Detail a Reimbursement

18 U. S. C. section 831( e). In connection with criminally prohibited The
Secretary may require reimbursement as a condition transactions involving
nuclear materials, the Attorney General may request

of assistance. DOD assistance in enforcing this section, notwithstanding the
Posse Comitatus Act (18 U. S. C. section 1385).

18 U. S. C. section 1116. The Attorney General, in enforcing a criminal Not
mentioned. provision prohibiting the murder or manslaughter of foreign
officials, official guests, and internationally protected persons, may
request the assistance of

the military departments. 18 U. S. C. section 1201. In enforcing a criminal
provision against kidnapping

Not mentioned. a foreign official, an internationally protected person, or
an official guest, the Attorney General may request assistance from the
military departments. P. L. 94 524, as amended, 18 U. S. C. section 3056
note. Executive Reimbursement required when temporary or permanent

departments and agencies provide the Secret Service with services,
assistance provided. However, DOD temporary assistance equipment, and
facilities on a temporary or permanent basis, as requested. directly
relating to protecting the President and specified other individuals is not
reimbursable.

22 U. S. C. Section 4805. Federal agencies may provide, with or without
Reimbursement depends on the terms of the agreement reimbursement, security
inspections, logistical support, and other overseas between the agencies.
security functions, including protection of U. S. government personnel on
duty abroad and U. S. missions as authorized by the Secretary of State and
agreed to by the providing agency. 31 U. S. C. section 1108( g). Amounts
available under law are available for

Not required where DOD estimates involved. See, DOD field examinations of
appropriation estimates. The use of the amounts is Directive 4515. 12, Dec.
12, 1964, Nonsponsored subject only to regulations prescribed by the
appropriate standing Nonreimbursable Travel, para. 5.1.1. committees of
Congress. (DOD interprets this authority as authorizing DOD to provide
transportation for members and staff of congressional committees when they
conduct field examinations of DOD appropriation estimates.)

31 U. S. C. section 1535, 1536 (The Economy Act). These provisions provide
Reimbursement of actual costs required for the goods or general authority
for one federal agency to provide goods and services to services provided.
another federal agency.

39 U. S. C. section 411. Authorizes DOD and other executive agencies to
Reimbursement, if any, is determined by agreement

furnish real and personal property and personal and nonpersonal services
between the Postal Service and the providing agency. to the Postal Service.

42 U. S. C. section 5170a. Authorizes the President to direct any federal
Reimbursement may or may not be required as determined

agency to utilize its authorities and resources in support of assistance by
the President.

efforts of state and local governments after a major disaster. g 42 U. S. C.
section 5170b( a). On the President's direction, federal agencies

The federal government is required to absorb at least 75 are authorized to
provide state and local governments various forms of percent of the eligible
cost of assistance provided under assistance that are essential to meeting
immediate threats to life or property this section. However, reimbursement
may be available resulting from a major disaster.

from funds appropriated for disaster relief. See 42 U. S. C. section 5147.
42 U. S. C. section 5170bï¿½. Authorizes DOD to perform immediate

Reimbursement shall be made from funds appropriated for emergency work to
preserve life or property for up to 10 days in situations disaster relief
for emergency work provided under this that may be major disasters or
emergencies.

subsection. 42 U. S. C. section 5185. The President is authorized during, or
in Not mentioned, but reimbursement may be available under anticipation of,
an emergency or major disaster to provide communications 42 U. S. C. section
5147.

systems to state and local governments.

Continued from Previous Page

Authorities For Detail a Reimbursement

42 U. S. C. section 5192. In any emergency, the President may direct any
Reimbursement may or may not be required, as federal agency to use its
authority and resources to support state and local

determined by the President. emergency assistance efforts.

42 U. S. C. section 5197. Authorizes the Director of the Federal Emergency
Agencies may be reimbursed for their expenditures, Management Agency to use
the services of federal agencies in connection

personnel compensation, or the use or consumption of with emergency
preparedness. their materials and facilities to the extent that funds are
available.

49 U. S. C. section 1113. The National Transportation Safety Board may use
Use may be on a reimbursable or other basis.

available services, equipment, personnel, and facilities of other U. S.
departments and agencies. P. L. 101 165, 103 as amended by P. L. 103 139,
section 8131. Establishes Reimbursement required. the Emergency Response
Fund, Defense, that the Secretary may use to provide supplies and services
in anticipation of or in response to requests from other federal entities
and state and local governments for assistance in

responding to natural or manmade disasters. 50 U. S. C. section 2312. Until
the President designates another lead agency, Not mentioned, but
appropriations authorized. the Secretary of Defense provides civilian
employees of federal, state, and local agencies with training and expert
advice regarding emergency responses to a use or threatened use of a weapon
of mass destruction or related materials. (DOD advises that, effective Oct.
1, 2000, the Attorney General will assume the Secretary's responsibilities.
The Attorney General

may then use DOD personnel and capabilities to provide training and expert
advice under the program. Reimbursement comments remain the same.) 50 U. S.
C. section 2314. The Secretary of Defense is to develop and Not mentioned.
maintain at least one domestic terrorism rapid- response team, composed of
military members and DOD civilian employees, capable of aiding federal and
nonfederal officials in the detection, neutralization, containment,
dismantlement, and disposal of weapons of mass destruction containing
chemical, biological, or related materials. 50 U. S. C. section 2333. The
Secretary of Defense, in consultation with the Not mentioned, but
appropriations authorized.

Commissioner of Customs, shall carry out programs for assisting customs
officials and border guards in the independent states of the former Soviet
Union, the Baltic states, and other countries of Eastern Europe in
preventing the unauthorized transfer and transportation of nuclear,
biological, and chemical weapons and related materials, by providing
training, expert advice, and the loan and maintenance of equipment and
audits.

Miscellaneous Authority Reimbursement

Memorandum from the Chief of Staff to the President. Describes basis for Not
required per memorandum. White House- directed use of DOD aircraft,
including use for Presidential Directed Missions on a nonreimbursement
basis.

a These authorities primarily cover the detail of DOD military personnel,
although some services may be involved. b The notation “not
mentioned” indicates only that the described authority does not
address reimbursement for provided details or services. Reimbursement may be
required under other authority, such as the Economy Act, 31 U. S. C. section
1535, 1536.

c These authorities primarily involve furnishing services but may also
involve details of DOD military personnel. d 10 U. S. C. section 377
provides that reimbursement, if required, should be made under the Economy
Act, 10 U. S. C. section 1535, 1536, or other applicable law.

e This provision is found in the DOD Appropriations Act for Fiscal Year
2001. Similar language has been enacted in prior DOD appropriations acts and
can be found at 10 U. S. C. section 401 note. f 18 U. S. C. section 2332c,
prohibiting chemical weapons and referenced in 10 U. S. C. section 382, was

repealed by section 201ï¿½, P. L. 105 277, 112 Stat. 2681 871 (1998). The same
public law created a new prohibition against chemical weapons at 18 U. S. C.
section 229. g E. O. 12656, November 18, 1998, as amended, assigns
“lead” and “supporting” responsibilities to various
federal agencies in connection with providing disaster relief. If DOD
provides services to a lead

federal agency or to a state or local government, reimbursement is generally
expected, absent a presidential determination or statutory prohibition to
the contrary. See 42 U. S. C. section 5147 (providing that agencies may be
reimbursed for providing disaster relief); the Economy Act, 31 U. S. C.
section 1535, 1536; the Defense Emergency Response Fund, P. L. 101 165
(1989); and DOD

Directive 3025 1, January 15, 1993.

Detailed Data on Extent of Military Support to

Appendi x II I Civil Entities Table 2: Instances, Duration, and Staffdays of
DOD Support to Civil Entities in Fiscal Year 1999

Instances Component and service Number a Percent of Total

Active Army 4,948 67 Army Reserve 5 0 Active Air Force 1, 615 22 Air Force
Reserve 5 0 Active Navy 199 3 Navy Reserve 4 0 Active Marine Corps 189 3
Army National Guard 69 1 Air National Guard 158 2 generic National Guard 4 0
Not identified 166 2 Tot al s a 7,362 Overall 7, 125

Calendar days Staffdays Percent of

Percent of Average Maximum Minimum Number a Total Average Maximum Minimum
Number Total

2 365 1 10,122 25 176 659, 340 1 871,821 43 7 17 3 37 0 258 980 3 1, 291 0
12 365 1 18,606 46 350 153, 300 1 565,311 28 11 38 1 57 0 69 304 1 343 0 8
365 1 1, 601 4 877 82, 583 1 174,526 9 917 53401521 558 0 5 365 1 980 2 470
85, 234 1 88,900 4 22 365 1 1, 530 4 3, 386 44, 013 1 233,619 12 8 120 1 1,
224 3 83 2, 517 1 13,187 1 106 365 2 425 1 698 2, 190 2 2, 790 0 37 365 1 6,
130 15 346 11, 664 1 57,503 3

40, 746 2,009,349 5 365 1 38,387 282 659, 340 1 2, 009,350

Note: Figures are our estimates. a Totals of instances, calendar days, and
staffdays exceed true totals because in many cases more

than one service or component rendered assistance. Source: DOD.

Figure 1: Frequency of Civil Recipients of Military Assistance, Fiscal Year
1999 (Percent of Total Instances)

All Others 6% Foreign Nations

3% Other Federal

Treasury Agencies

27% 11%

White House 7%

U. S. City & County Governments

State Department 21%

25% Source: DOD.

Figure 2: Consumers of Military Support, Fiscal Year 1999 (Percent of
Staffdays)

State Department 2% All others Treasury

5% Health and Human

2% Services

4% Unidentified

8% Foreign Nations

40% United Nations

3% Transportation

6% Veterans Affairs

9% Federal Emergency Mmanagement Agency

21% Source: DOD.

Table 3: Military Occupations Most Frequently Providing Support to Civil
Entities, Fiscal Year 1999

Instances Staffdays Occupations Number Percent Number Percent

Explosive ordnance detection/ disposal 4, 613 65 33, 106 2 (dog teams)
Aircrews 1, 208 17 706,376 35

Air support (e. g., ground crews, 254 4 183 0 maintenance) Investigators of
explosive mishaps 212 3 848 0

Linguists and translators 137 2 9, 850 1 Military police and other
protection

119 2 11,875 1 personnel Note: Figures are our estimates.

Source: DOD.

Figure 3: Duration of DOD Support, Fiscal Year 1999

Instances of Support 7,000

6,383 6,000 5,000 4,000 3,000 2,000 1,000

171 225 272 25 20 22 7 0

1 - 10 11 - 25 26 - 50 51 - 75 76 - 100 101 - 200 201 - 300 300+ Duration
(Calendar Days)

Note: Figures are our estimates. Source: DOD.

Table 4 provides the average duration (in calendar days) and consumption (in
staffdays) of assistance by category of support. On average, an instance of
support lasted about 5 days and consumed about 280 staffdays. Overall, the
support consumed more than 2 million staffdays. Humanitarian and

refugee assistance averaged the longest duration and accounted for the most
staffdays of support. This category and one other- responses to natural
disasters- together accounted for only an estimated 27 percent of the
calendar days of assistance but about 65 percent (1.3 million) of the
staffdays. The high number of staffdays for these categories resulted from

the extensive responses (319 instances) that DOD made to redress the damage
wreaked by six hurricanes that year- Brett, Dennis, Floyd, Francis, George,
and Mitch. In all, military support to hurricane recovery efforts in the
United States and abroad exceeded 1 million staffdays.

Table 4: Average Duration and Staffdays of Fiscal Year 1999 Military
Support, by Category Duration (calendar days) Staffdays Category Average
Total Percent Average Total Percent

Humanitarian and refugees 45 8, 456 22 4, 549 864, 239 43 Miscellaneous 15
9, 175 24 2, 255 556, 996 28 Natural disasters 7 1, 986 5 1,577 446, 384 22
Meteorology, science, and research 36 12, 710 33 203 71, 860 4 Security 1 2,
513 7 8 37, 200 2 Special events 16 1, 764 5 216 23, 588 1 Air transport a 2
2, 015 5 12 11,637 1

Tot al b 38, 619 b 101 c 2,011,904 b 101 c

Overall 5 38, 387 282 2,009, 350 Note: Figures are our estimates. a Contains
some instances also included in the humanitarian and refugee category. b
Exceed the true number of calendar days and staffdays, because some
instances fell into more than one support category. c Adds to more than 100
percent due to rounding. Source: DOD

As figure 4 shows, nearly all instances of support in fiscal year 1999
(about 90 percent) lasted no longer than 10 days and totaled fewer than
85,000 staffdays. The most staffdays were expended on instances that lasted
101 200 days and more than 300 days; the least on those lasting 26 50 days
and 200 300 days.

Figure 4: Staffdays and Instances of Fiscal Year 1999 DOD Support by Range
of Duration

Mandays Instances

800,000 7,000

6,383 700,000

691,678 658,363

6,000 600,000

5,000 500,000

4,000 400,000

3,000 300,000

259,733 250,492

2,000 200,000

100,000 84, 454

1,000 171

272 25, 165 37, 283

225 20 22 7 25 2,183

0 0

1 - 10 11 - 25 26 - 50 51 - 75 76 - 100 101 - 200 201 - 300 300+ Duration
(Calendar Days)

Note: numbers are our estimates Source: DOD.

However, as seen in table 5 the support instances of shortest duration
averaged the smallest consumption of staffdays. More than 80 percent of all
instances lasted only 1 day and averaged only 6 staffdays of personnel
support.

Table 5: Average and Total Staffdays of Fiscal Year 1999 DOD Support to
Civil Entities

Duration Total Staffdays Average Staffdays

1 to 10 days 84, 454 13 11 to 25 259,733 1, 519 26 to 50 25,165 112 51 to 75
37,283 1, 491 76 to 100 250,492 12, 525 101 to 200 691,678 31, 440 201 to
300 2, 183 312 301+ 658,363 2, 420 Overall 2, 009,350 a 282

Figure 5 below shows the staffdays and reported instances of DOD support by
three broad groupings of providers: active- duty military, National Guard,
and other (Reserves and unidentified).

Figure 5: DOD Providers of Fiscal Year 1999 Military Support, by Instances
and Staffdays

100% 94%

90% 85%

80% 70% 60% 50% 40% 30% 20%

12% 10%

3% 3% 2% 0.1% 0.2%

0% Active Reserve Guard Unknown

Providers Staffdays Instances Source DOD.

Appendi x V I Officer and Enlisted Retention Rates Figure 6: Retention Rates
Among Nonretirement Eligible Commissioned and Warrant Officers by Service
and DOD- Wide (Fiscal Years 1989 99)

100 In percent

90 80 70 60 50 40 30 20 10

0 1989 1990 1991 1992 1993 1994 1995 1996 1997 1998 1999 Fiscal Year

Air Force Army Marine Corps Navy DOD total Note: Service retention rates
should be viewed independently and not compared to each other because each
service, in order to sustain desired experience levels, determines a rate of
retention based on its mission and structure. Source: Defense Manpower Data
Center, Active Duty Master File.

Table 6: Retention Rates Among Nonretirement- Eligible Commissioned and
Warrant Officers (Combined), by Service and DODWide (Fiscal Years 1989 99)

Fiscal year Service and DOD- wide 1989 1990 1991 1992 1993 1994 1995 1996
1997 1998 1999

Air Force

Total officers 88, 288 87, 234 83, 090 80, 326 74, 924 69, 606 68,020 65,
633 63,814 61, 911 59, 789 Number 83, 581 81, 982 78, 636 73, 769 68, 081
66, 081 63,388 61, 646 59,732 57, 649 55, 509 continuing Continuation 94. 7
94.0 94. 6 91.8 90.9 94.9 93.2 93. 9 93.6 93. 1 92. 8

rate (%) Army

Total officers 90, 019 90, 191 87, 715 85, 755 79, 040 73, 950 71,349 69,
481 67,057 65, 985 65467 Number 84, 434 83, 306 82, 943 76, 259 70, 674 67,
792 66,047 63, 992 62,004 61, 659 60, 767 continuing Continuation 93. 8 92.4
94. 6 88.9 89.4 91.7 92.6 92. 1 92.5 93. 4 92. 8

rate (%) Marine Corps

Total officers 17, 046 17, 009 16, 672 16, 407 16, 033 15, 298 14,574 14,
233 14,309 14, 226 144160 Number 15, 796 15, 795 15, 623 15, 163 14, 737 13,
979 13,637 13, 271 13,338 13, 380 13472 continuing Continuation 92. 7 92.9
93. 7 92.4 91.9 91.4 93.6 93. 2 93.2 94. 1 93. 5

rate (%) Navy

Total officers 57, 259 56, 506 58, 234 57, 821 56, 389 53, 993 50,448 48,
255 46,698 45, 185 44, 016 Number 53, 119 52, 246 54, 168 53, 436 51, 979
48, 139 45,870 44, 721 43,244 41, 833 40, 116 continuing Continuation 92. 8
92.5 93. 0 92.4 92.2 89.2 90.9 92. 7 92.6 92. 6 91. 1

rate (%) DOD total Total officers 252,612 250, 940 245,711 240, 309 226,386
212, 847 204,391 197, 602 191,878 187,307 183, 688 Number continuing 236,930
233, 329 231,370 218, 627 205,471 195, 991 188,942 183, 630 178,318 174,521
169, 864

Continuation rate (%) 93. 8 93.0 94. 2 91.0 90.8 92.1 92.4 92. 9 92.9 93. 2
92. 5

Source: Defense Manpower Data Center, Active Duty Master File.

Figure 7: Retention Rates Among Nonretirement- Eligible Enlisted Personnel
by Service and DOD- Wide (fiscal years 1989 99)

100 In percent

90 80 70 60 50 40 30 20 10

0 1989 1990 1991 1992 1993 1994 1995 1996 1997 1998 1999

Fiscal Year Air Force Army Marine Corps Navy DOD total

Note: Personnel in this figure have 1- 19 years of service. Service
retention rates should be viewed independently and not compared to each
other because each service, in order to sustain desired experience levels,
determines a rate of retention based on its mission and structure. Source:
Defense Manpower Data Center, Active Duty Master File.

Table 7: Retention Rates Among Nonretirement- Eligible Enlisted Personnel by
Service and DOD- Wide (Fiscal Years 1989 99) Fiscal Year Service and DODwide
1989 1990 1991 1992 1993 1994 1995 1996 1997 1998 1999

Air Force

Tot al 94, 092 112,244 103,383 98,294 86,089 77, 475 82, 160 75,818 71,867
69,493 68,550 eligible Number 59, 310 69,904 66,866 57,791 52,072 48, 269
46, 627 48,468 44,851 42,304 41,681

retained Retention 63.0 62.3 64.7 58. 8 60. 5 62.3 56.8 63.9 62.4 60. 9 60.
8 rate (%)

(Continued From Previous Page)

Fiscal Year Service and DODwide 1989 1990 1991 1992 1993 1994 1995 1996 1997
1998 1999

Army

Tot al 219, 680 189,257 165,105 191, 929 150,859 134, 914 143, 562 144,793
128,167 107, 290 104,364 eligible Number 113, 151 108,406 84,318 83,477
75,743 70, 106 79, 156 77,274 72,184 55,799 54,102

retained Retention 51.5 57.3 51.1 43. 5 50. 2 52.0 55.1 53.4 56.3 52. 0 51.
8 rate (%) Marine Corps

Tot al 45, 376 44,651 49,444 56,370 51,169 46, 997 47, 243 51,572 50,986
48,912 46,901 eligible Number 18, 638 22,069 19,522 20,038 17,382 17, 295
19, 220 21,893 20,888 18,802 17,066

retained Retention 41.1 49.4 39.5 35. 5 34. 0 36.8 40.7 42.5 41.0 38. 4 36.
4 rate (%) Navy

Tot al 154, 437 149,854 143,007 147, 803 142,221 132, 257 115, 347 114,542
119,119 105, 023 101,623 eligible Number 85, 090 85,759 86,429 82,402 75,593
70, 004 65, 980 67,425 69,745 62,739 62,415

retained Retention 55.1 57.2 60.4 55. 8 53. 2 52.9 57.2 58.9 58.6 59. 7 61.
4 rate (%) DOD total Tot al eligible 513, 585 496,006 460,939 494, 396
430,338 391, 643 388, 312 386,725 370,139 330, 718 321,438 Number retained
276, 189 286,138 257,135 243, 708 220,790 205, 674 210, 983 215,060 207,668
179, 644 175,264 Retention rate (%) 53.8 57.7 55.8 49. 3 51. 3 52.5 54.3
55.6 56.1 54. 3 54. 5

Note: Personnel in this figure have 1- 19 years of service. Source: Defense
Manpower Data Center, Active Duty Master File.

Appendi x V

Comments from the Department of Defense Note: GAO comment supplementing
those in the report text appears at the end of this appendix.

The following are GAO's comments on the Department of Defense's letter dated
January 9, 2001. GAO Comments 1. DOD cited a concern about the title of the
report, stating that it implied

a complete and detailed review of military retention in general rather than
the retention of personnel assigned to those organizations and agencies
specifically surveyed during the course of the review. Actually, our
assessment of the impact of military support assignments on retention was
based primarily on DOD's 1999 Survey of Active Duty Personnel. That survey
was administered to a stratified random sample of 66,000 servicemembers and
can be projected to represent the views of the entire force. Consequently,
we believe it is appropriate to

indicate in the title that military support to civil authorities is unlikely
to have a negative impact on retention.

Comments From the Federal Emergency

Appendi x VI Management Agency

Appendi x VII

GAO Contacts and Staff Acknowledgments GAO Contacts Norman J. Rabkin (202)
512- 5140 William E. Beusse (202) 512- 5140 Brenda S. Farrell (202) 512-
5140

Staff In addition to the contacts named above, Dudley C. Roache, Jr., Ken

Acknowledgments Adams, Albert Abuliak, Alan M. Byroade, Colin L. Chambers,
Melissa

McDowell, Charles Perdue, and Alan S. Goldberg made key contributions to
this report.

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GAO United States General Accounting Office

Page 1 GAO- 01- 9 Military Personnel

Contents

Contents Page 2 GAO- 01- 9 Military Personnel

Page 3 GAO- 01- 9 Military Personnel United States General Accounting Office

Washington, D. C. 20548 Page 3 GAO- 01- 9 Military Personnel

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Appendix I

Appendix I Scope and Methodology

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Appendix I Scope and Methodology

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Appendix I Scope and Methodology

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Appendix I Scope and Methodology

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Appendix II

Appendix II Compendium of Major Legal Authorities Authorizing DOD Support to
Civil Organizations

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Appendix II Compendium of Major Legal Authorities Authorizing DOD Support to
Civil Organizations

Page 25 GAO- 01- 9 Military Personnel

Appendix II Compendium of Major Legal Authorities Authorizing DOD Support to
Civil Organizations

Page 26 GAO- 01- 9 Military Personnel

Appendix II Compendium of Major Legal Authorities Authorizing DOD Support to
Civil Organizations

Page 27 GAO- 01- 9 Military Personnel

Appendix II Compendium of Major Legal Authorities Authorizing DOD Support to
Civil Organizations

Page 28 GAO- 01- 9 Military Personnel

Appendix II Compendium of Major Legal Authorities Authorizing DOD Support to
Civil Organizations

Page 29 GAO- 01- 9 Military Personnel

Appendix II Compendium of Major Legal Authorities Authorizing DOD Support to
Civil Organizations

Page 30 GAO- 01- 9 Military Personnel

Appendix II Compendium of Major Legal Authorities Authorizing DOD Support to
Civil Organizations

Page 31 GAO- 01- 9 Military Personnel

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Appendix III

Appendix III Detailed Data on Extent of Military Support to Civil Entities

Page 33 GAO- 01- 9 Military Personnel

Appendix III Detailed Data on Extent of Military Support to Civil Entities

Page 34 GAO- 01- 9 Military Personnel

Appendix III Detailed Data on Extent of Military Support to Civil Entities

Page 35 GAO- 01- 9 Military Personnel

Appendix III Detailed Data on Extent of Military Support to Civil Entities

Page 36 GAO- 01- 9 Military Personnel

Appendix III Detailed Data on Extent of Military Support to Civil Entities

Page 37 GAO- 01- 9 Military Personnel

Appendix III Detailed Data on Extent of Military Support to Civil Entities

Page 38 GAO- 01- 9 Military Personnel

Appendix III Detailed Data on Extent of Military Support to Civil Entities

Page 39 GAO- 01- 9 Military Personnel

Appendix III Detailed Data on Extent of Military Support to Civil Entities

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Page 41 GAO- 01- 9 Military Personnel

Appendix IV

Appendix IV Officer and Enlisted Retention Rates

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Appendix IV Officer and Enlisted Retention Rates

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Appendix IV Officer and Enlisted Retention Rates

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Page 45 GAO- 01- 9 Military Personnel

Appendix V

Appendix V Comments from the Department of Defense

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Page 47 GAO- 01- 9 Military Personnel

Appendix VI

Page 48 GAO- 01- 9 Military Personnel

Appendix VII

United States General Accounting Office Washington, D. C. 20548- 0001

Official Business Penalty for Private Use $300

Address Correction Requested Presorted Standard

Postage & Fees Paid GAO Permit No. GI00
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