Military Operations: DOD Needs to Provide Central Direction for  
Supporting Coalition Liaison Officers (09-APR-04, GAO-04-452).	 
                                                                 
In the National Defense Authorization Act for Fiscal Year 2003,  
Congress authorized the Secretary of Defense to provide 	 
administrative services and support to foreign coalition liaison 
officers temporarily assigned to the headquarters of a combatant 
command or any of its subordinate commands. Congress required GAO
to assess the implementation of this legislation. Specifically,  
GAO's objectives were to determine (1) what guidance the	 
Department of Defense (DOD) has provided on the implementation of
this legislation, (2) the extent to which the commands are aware 
of and are using this legislation, and (3) the level of support  
being provided by commands using this legislation and the	 
benefits derived from it.					 
-------------------------Indexing Terms------------------------- 
REPORTNUM:   GAO-04-452 					        
    ACCNO:   A09696						        
  TITLE:     Military Operations: DOD Needs to Provide Central	      
Direction for Supporting Coalition Liaison Officers		 
     DATE:   04/09/2004 
  SUBJECT:   Data collection					 
	     Developing countries				 
	     Foreign military assistance			 
	     International cooperation				 
	     Military officers					 
	     Military operations				 
	     Military policies					 
	     Reporting requirements				 
	     Federal legislation				 

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GAO-04-452

United States General Accounting Office

GAO

                       Report to Congressional Committees

April 2004

MILITARY OPERATIONS

DOD Needs to Provide Central Direction for Supporting Coalition Liaison Officers

GAO-04-452

April 2004

MILITARY OPERATIONS

DOD Needs to Provide Central Direction for Supporting Coalition Liaison Officers

GAO could find no evidence that DOD had issued any guidance to combatant
commanders on how to implement this legislation. In addition, GAO was
unable to identify an office within DOD that has responsibility for
implementing this legislation. The DOD Office of the Inspector General, as
GAO's focal point within DOD, was also unable to identify a responsible
office.

Although the legislation was inspired by the needs of the coalition
assembled for the Global War on Terrorism, its authority is available
through the Secretary of Defense to all combatant commanders. According to
the results of GAO's research, the combatant commands' awareness of and
need to use the legislation varied widely with Central Command being the
only command using the authority to support liaison officers.

Awareness and Use of the Legislation by Combatant Commands Commands not
aware of Commands aware of but not and not needing to use the needing to
use the Commands using the legislation legislation legislation

Northern Command Pacific Command Central Command

Southern Command Joint Forces Command

European Command Special Operations Command

Strategic Command Highlights of GAO-04-452, a report to the Chairmen and
Ranking Minority Members of the Senate and House Committees on Armed
Services

In the National Defense Authorization Act for Fiscal Year 2003, Congress
authorized the Secretary of Defense to provide administrative services and
support to foreign coalition liaison officers temporarily assigned to the
headquarters of a combatant command or any of its subordinate commands.
Congress required GAO to assess the implementation of this legislation.
Specifically, GAO's objectives were to determine (1) what guidance the
Department of Defense (DOD) has provided on the implementation of this
legislation, (2) the extent to which the commands are aware of and are
using this legislation, and (3) the level of support being provided by
commands using this legislation and the benefits derived from it.

                             Transportation Command

GAO recommends that the Secretary of Defense take the following two
actions: (1) designate an office within DOD to take responsibility for
this legislation and (2) direct this designated office to promulgate and
issue guidance on how to implement this legislation.

Source: GAO.

Central Command and MacDill Air Force Base, as the host location for
Central Command, spent $17 million in fiscal year 2003 to provide
administrative services and support to more than 300 coalition liaison
officers from over 60 countries. As allowed by the legislation, the
command also paid the travel, subsistence, and personal expenses of over
70 of these officers from more than 30 developing countries.

Fiscal Year 2003 Costs by Type of Support Provided to Foreign Coalition
Liaison Officers

Administrative support $14,475,179

DOD officials concurred with the report in official oral comments. DOD
stated that it would designate the Joint Staff as the office responsible
for implementing the legislation and issuing appropriate guidance.

www.gao.gov/cgi-bin/getrpt?GAO-04-452.

To view the full product, including the scope and methodology, click on
the link above. For more information, contact Neal P. Curtin at (757)
552-8100 or [email protected].

Travel and personal expenses 2,582,000

Total costs $17,057,179

Source: Unaudited DOD data analyzed by GAO.

Central Command officials stated that they could not accomplish the
coalition integration planning and coordination important to the Global
War on Terrorism as effectively or efficiently as they are doing without
the liaison officers. They also commented that the legislation helps
facilitate the participation of a developing country in the coalition if
the command can pay for travel and subsistence.

Contents

    Letter                                                                  1 
                                  Results in Brief                          2 
                                     Background                             4 
               DOD Has Not Issued Guidance to Implement This Legislation    5 
              Awareness and Use of the Legislation by Combatant Commands 
                                    Vary Widely                             5 
              CENTCOM Support to Liaison Officers Benefits Global War on 
                                     Terrorism                              6 
                                    Conclusions                             9 
                        Recommendations for Executive Action               10 
                                  Agency Comments                          10 

  Table

Table 1: Fiscal Year 2002 and Fiscal Year 2003 Costs by Type of Support Provided
                         to Coalition Liaison Officers

Abbreviations

CENTCOM U.S. Central Command DOD Department of Defense

This is a work of the U.S. government and is not subject to copyright
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separately.

United States General Accounting Office Washington, DC 20548

April 9, 2004

The Honorable John W. Warner
Chairman
The Honorable Carl Levin
Ranking Minority Member
Committee on Armed Services
United States Senate

The Honorable Duncan Hunter
Chairman
The Honorable Ike Skelton
Ranking Minority Member
Committee on Armed Services
House of Representatives

Since the attacks of September 11, 2001, the United States has been
fighting a Global War on Terrorism with support from other countries,
such as Great Britain. The coalition partner countries participating with
the United States in operations in Afghanistan and Iraq have sent more
than 300 foreign military personnel to the U.S. Central Command
headquarters to serve as liaison officers supporting U.S. planning and
operation efforts.

In the National Defense Authorization Act for Fiscal Year 2003,1 Congress
authorized the Secretary of Defense to provide administrative services and
support to foreign coalition liaison officers temporarily assigned to the
headquarters of a combatant command, a component command, or a
subordinate operational command.2 Congress also allowed the Secretary
to pay for travel, subsistence, and personal expenses of those coalition

1 National Defense Authorization Act for Fiscal Year 2003, Public Law
107-314, title XII, section 1201, (Dec. 2, 2002).

2 A combatant command is a unified command established and so designated
by the President of the United States with a broad continuing mission
under a single commander, typically with geographic or functional (e.g.,
transportation) responsibilities. A component command consists of a
commander and those forces of a military service assigned to a combatant
command. A subordinate operational command is established on an area or
functional basis by a combatant commander to conduct operations.

liaison officers from developing countries.3 These services, support, and
expenses may be provided with or without reimbursement from or on behalf
of the receiving coalition liaison officers. Congress required us to
assess the implementation of this legislation. Specifically, our
objectives were to determine (1) what guidance, if any, the Department of
Defense (DOD) has provided on the implementation of this legislation, (2)
the extent to which the commands are aware of and are using this
legislation, and (3) the level of support being provided by commands using
this legislation and the benefits derived from it.

To address these objectives, we used a data collection instrument to
gather information from officials serving in the headquarters of combatant
commands, component commands, and subordinate operational commands. This
instrument was designed to measure the awareness of the legislation among
these various commands, to identify the commands using the legislation,
and to obtain the costs incurred to provide support to foreign coalition
liaison officers. To assess how the commands are implementing this
legislation, we visited U.S. Central Command headquarters and met with
officials who have responsibility for tracking costs incurred by foreign
coalition liaison officers. As agreed with your offices, we did not
independently validate the costs incurred by the command. We conducted our
review from September 2003 through January 2004 in accordance with
generally accepted government auditing standards.

We could find no evidence that DOD has issued any guidance to combatant
commanders on how to implement this legislation. In addition, we were
unable to identify an office within DOD that has responsibility for
implementing this legislation. The DOD Office of the Inspector General, as
our focal point within the department, was also unable to identify a
responsible office.

Although the legislation was inspired by the needs of the coalition
assembled for the Global War on Terrorism, its authority is available
through the Secretary of Defense to all combatant commanders. However, not
all combatant commands were aware of or have a need to use this

3 The term "developing country" as defined by the Organization of Economic
Cooperation and Development, an international organization to which the
United States belongs, is a country included in the organization's list,
"Least Developed: Other Low Income and Lower Middle Income."

  Results in Brief

legislation. Five of the nine combatant commands were not aware of, nor
did they have a need to use, the authority in the legislation; three were
aware of, but had no need to use, the authority; and one, along with one
of its subordinate commands, was using it to support coalition liaison
officers. In response to a data collection instrument we created and
distributed to the combatant commands, representatives from Northern,
Southern, European, Transportation, and Strategic Commands stated they
were not aware of the legislation. Representatives from Pacific, Central,
Joint Forces, and Special Operations Commands stated they were aware of
the legislation. Central Command and one of its subordinate commands were
the only commands providing support to coalition liaison officers.

Central Command, with some of its component and subordinate commands, and
MacDill Air Force Base, as the host location for Central Command, provided
administrative services and support to more than 300 coalition liaison
officers from over 60 countries at a cost of about $14.5 million in fiscal
year 2003. The command also paid travel, subsistence, and personal
expenses of over 70 of these officers from more than 30 developing
countries at a cost of about $2.6 million in fiscal year 2003. The command
has established internal operating procedures to define what support it
will provide and what guidelines, including the use of the Joint Federal
Travel Regulations, to use in setting appropriate spending limits. The
command provides office space, furniture, equipment, phones, and other
administrative support for all coalition liaison officers, as well as pays
for travel, subsistence, and personal expenses for officers from
developing countries. Command officials stated that they could not
accomplish the coalition integration planning and coordination important
to the Global War on Terrorism as effectively or efficiently as they are
doing without the liaison officers. They also commented that the
legislation helps facilitate the participation of a developing country in
the coalition if the command can pay for travel and subsistence.

We are recommending that the Secretary of Defense take two actions: (1)
designate an office within the Department of Defense to take
responsibility for the legislation and (2) direct this designated office
to promulgate and issue guidance to implement the legislation.

In official oral comments on a draft of this report, DOD concurred with
the report. DOD stated that it would designate the Joint Staff as the
office responsible for implementing the legislation and issuing
appropriate guidance.

Background

The United States prefers to conduct operations as part of a coalition
when possible.4 In prosecuting the Global War on Terrorism, the United
States, through the U. S. Central Command (CENTCOM), has acted in concert
with a number of other countries as part of a coalition to conduct
Operation Enduring Freedom in Afghanistan and Operation Iraqi Freedom in
Iraq.5 Most of these countries have sent officers to CENTCOM
headquarters-located at MacDill Air Force Base in Tampa, Florida-to act as
liaisons between their countries and CENTCOM commanders and assist in
planning and other operational tasks.

As coalition liaison officers began arriving to assist in Operation
Enduring Freedom, CENTCOM officials established a secure area with
trailers outfitted as offices for the officers to use. As the coalition
expanded and Operation Iraqi Freedom started, the number of liaison
officers grew, as did the need for more trailers and administrative
support. CENTCOM officials initially paid for the support from Combatant
Commander's Initiative Funds6 earmarked for short-term initiatives
identified by the commander. However, as the coalitions for both
operations grew and were expected to continue into fiscal year 2003,
CENTCOM requested that Congress allow the command to use funds from its
budget to pay for the support provided to the liaison officers. Congress
responded in the fiscal year 2003 National Defense Authorization Act by
authorizing the Secretary of Defense to provide administrative services
and support to those liaison officers of countries involved in a coalition
with the United States and to pay the travel, subsistence, and personal
expenses of those liaison officers from developing countries. This
legislation expires September 30, 2005. The legislation does not direct us
to assess whether it should be renewed and we did not do so.

4 The National Security Strategy of the United States of America,
September 2002.

5 The exact number of countries in the coalition is classified.

6 Combatant Commander's Initiative Funds are provided to the combatant
commander by the Chairman of the Joint Chiefs of Staff for certain
activities authorized by 10 U.S.C. section 166a. Joint Chiefs of Staff
policy normally precludes using these funds for multiyear activities.

  DOD Has Not Issued Guidance to Implement This Legislation

Although it is the responsibility of the Secretary of Defense to formulate
general defense policy and policy related to all matters of direct and
primary concern to DOD, we could find no evidence of guidance issued by
DOD to combatant commanders on how to implement the legislation allowing
DOD to provide support to coalition liaison officers. Also, we could not
identify any office within DOD that has responsibility for implementing
the legislation and, therefore, may have promulgated guidance on the
legislation. Guidance for issues that affect all the components originates
at the DOD level. Typically, DOD will issue a directive-a broad policy
document containing what is required to initiate, govern, or regulate
actions or conduct by DOD components. This directive establishes a
baseline policy that applies across the combatant commands, services, and
DOD agencies. DOD may also issue an instruction, which implements the
policy or prescribes the manner or a specific plan or action for carrying
out the policy, operating a program or activity, and assigning
responsibilities. In our opinion, this guidance is important for
consistent implementation of a program across DOD.

To determine what guidance has been provided to the commands, we contacted
offices within DOD, the Office of the Secretary of Defense, and the Joint
Staff to determine which office has responsibility for implementing this
legislation. After calls to the Offices of Legislative Affairs and
Comptroller within the Office of the Secretary of Defense, as well as the
Joint Staff's Plans and Policy Directorate and Comptroller, neither we nor
the DOD Inspector General, our focal point within DOD, were able to locate
any office having this responsibility.

In the data collection instrument we sent to the combatant commands, we
asked whether the commands had received any guidance on how to implement
the legislation. All commands replied that they had received no guidance
from any office within DOD.

  Awareness and Use of the Legislation by Combatant Commands Vary Widely

Although the legislation was inspired by the needs of the coalition
assembled for the Global War on Terrorism, its authority is available
through the Secretary of Defense to all combatant commanders. However,
according to the results of our research, the awareness of and need to use
the legislation by combatant commands vary widely. To determine the extent
to which the combatant commands are aware of and using this legislation,
we created a data collection instrument and e-mailed it to representatives
at each combatant command. In responding to this instrument,
representatives from Northern Command, Southern Command, European Command,
Transportation Command, and Strategic

  CENTCOM Support to Liaison Officers Benefits Global War on Terrorism

Command stated that they were not aware of nor did they have a need to use
the legislation, while representatives of Joint Forces Command, Special
Operations Command, and Pacific Command were aware of, but had no need to
use, the legislation. CENTCOM and one of its subordinate commands were the
only commands both aware of and using the legislation.

CENTCOM is providing administrative services and support to more than 300
foreign coalition liaison officers from over 60 countries fighting the
Global War on Terrorism with the United States.7 In addition, CENTCOM is
paying travel, subsistence, and personal expenses to over 70 liaison
officers from more than 30 developing countries that are included in the
larger number.

In the absence of guidance from the Office of the Secretary of Defense or
the Joint Staff, CENTCOM officials established internal operating
procedures to provide the administrative and travel related support that
the foreign coalition liaison officers needed. These procedures are not
written, but they are based on existing criteria defining developing
countries, federal regulations governing travel, economies of scale, and
what appears to be prudent fiscal management.

In providing administrative services and support, CENTCOM officials
determined that each country's delegation (limited to no more than five
foreign coalition liaison officers) would be provided a trailer for office
space with furniture, telephone, computer, printer, copier, and shredder.
Some of the smaller delegations share office space. CENTCOM pays for the
furniture, shredders, copiers, telephones, and part of the custodial
expense. MacDill Air Force Base, which is host to CENTCOM, pays for
trailer leases, utilities, external security, and part of the custodial
expense.8 These trailers are located on MacDill property in a fenced
compound with security guards on duty. We toured some of the trailers and
determined that CENTCOM was providing the space and equipment

7 The exact number of coalition liaison officers and countries is
classified.

8 In January, 2004, we reported on the leases MacDill Air Force Base
negotiated for the trailers used as offices by the coalition liaison
officers (Defense Management: Issues in Contracting for Lodging and
Temporary Office Space at MacDill Air Force Base, GAO-04-296, Jan. 27,
2004). In that report, we identified weaknesses in contract management
that prevented us from assessing why final costs for the trailers were
higher than originally estimated.

typical of a small office for the coalition officers. However, CENTCOM
officials told us that some countries have spent their own funds to
upgrade the office space provided.

In determining how to pay the travel, subsistence, and personal expenses
for coalition liaison officers from developing countries, CENTCOM
officials told us they used existing criteria and federal regulations to
guide their decisions. Absent a DOD or Department of State list of what
would be considered developing countries, CENTCOM officials told us they
use a list of countries generated by the Organization of Economic
Cooperation and Development, an international organization to which the
United States belongs, and defined by that organization as "Least
Developed: Other Low Income and Lower Middle Income." According to the
officials, this list is recognized by the Joint Staff. To determine the
appropriate amounts to provide for travel, subsistence, and personal
expenses, CENTCOM officials use the Joint Federal Travel Regulations.9

CENTCOM officials established some basic standards for authorizing travel,
subsistence, and personal expenses for the coalition liaison officers from
developing countries. CENTCOM pays for one round-trip airplane ticket from
an officer's country of origin to Tampa, Florida, where CENTCOM is
headquartered, and return during a tour of duty. Other trips home are at
an officer's or his or her country's expense. Meals and incidental
expenses are based on the Joint Federal Travel Regulations' rate for Tampa
($42 per day in fiscal year 2003) paid monthly based on the number of days
the officer actually spends in Tampa. CENTCOM provides housing for foreign
coalition liaison officers through contracts it has negotiated with gated
apartment complexes offering on-site security. Because of the number of
officers needing housing (including those officers not from developing
countries, who pay for their own housing), CENTCOM officials told us that
they were able to negotiate rates for housing between $58 and $65 per day,
which are less than Joint Federal Travel Regulations' per diem rate for
the Tampa area ($93 per day in fiscal year 2003). CENTCOM does not pay any
expenses incurred for family members of the coalition liaison officer who
might accompany the officer to the United States. In fiscal year 2002, the
first year the coalition was

9 The Joint Federal Travel Regulations govern the amount of per diem,
travel, and transportation allowances that federal government employees
can receive when they are traveling on official government business.

formed, coalition liaison officers had to find their own housing, which
was more expensive than the contracts currently in place.

CENTCOM officials also told us that they rent cars for the coalition
liaison officers from the General Services Administration at a cost of
$350 per car per month, which is less expensive than renting from a
commercial car leasing company at a cost of $750 per month. Again, because
there are so many officers who require transportation, CENTCOM was able to
negotiate a lower rate. Officers are allowed one car for each three
members of a delegation. The officer whose name is on the car rental
agreement is allowed $60 per month for gas. The officers assigned to the
car must pay for any additional gas.

CENTCOM and MacDill Air Force Base spent a total of almost $30 million
between fiscal year 2002 and 2003 to support coalition liaison officers
(see table 1). In fiscal year 2002, CENTCOM and MacDill Air Force Base
spent $12.4 million to provide the administrative services and support and
pay travel, subsistence, and personal expenses for the coalition liaison
officers assigned to CENTCOM headquarters. The money came from Combatant
Commander's Initiative Funds and MacDill Air Force Base funds. The amount
spent in fiscal year 2003-nearly $17.1 million-included $898,000 in
Commander's Initiative Funds to pay for travel, subsistence, and personal
expenses, which was used until the legislation to provide support to
coalition liaison officers was passed and the funds became available. The
remaining amount came from CENTCOM and MacDill funds.

In addition to CENTCOM, the Coalition Joint Task Force-Horn of Africa, a
CENTCOM subordinate operating command, reported spending over $300,000 to
provide administrative support and pay travel, subsistence, and personal
expenses to 13 liaison officers assigned to the task force headquarters.
No other subordinate operating command or component command reported
spending funds to support coalition liaison officers.

Table 1: Fiscal Year 2002 and Fiscal Year 2003 Costs by Type of Support
Provided to Coalition Liaison Officers

               Types of support Fiscal year 2002 Fiscal year 2003

Administrative support

              Infrastructure improvements                $232,900  $1,405,600 
                     Trailer leases                       490,600   1,000,400 
                       Furniture                          300,000     155,000 
       Command, control, communication, computer,       4,972,698   5,038,779 
                intelligence equipmenta                           
       Command, control, communication, computer,       4,061,366   5,400,000 
                 intelligence supportb                            
                    Force protection                      793,000     956,000 
                       Utilities                          207,000     519,000 
              Miscellaneous one-time costs                136,500 
                        Subtotal                      $11,194,064 $14,475,179 

                               Personal expenses

                 Travel                           $480,000         $1,363,000 
       Housing and rental vehicles                 734,000          1,219,000 
                Subtotal                        $1,214,000         $2,582,000 
                  Total                        $12,408,064        $17,057,179 

Source: Unaudited DOD data analyzed by GAO.

a

Includes items such as computers, local area networks, servers, and
audio-visual dissemination systems.

b Includes maintenance, technical support, and repair on equipment.

CENTCOM officials stated that this legislation has benefited the coalition
by providing maximum communication and coordination for the deployment of
those forces committed to fighting the Global War on Terrorism. They also
stated that without the presence of the liaison officers at CENTCOM, they
could not accomplish the coalition integration planning and coordination
important to the Global War on Terrorism as effectively or efficiently as
they are doing. CENTCOM officials stated that the legislation's authority
to pay for travel, subsistence, and personal expenses for developing
countries' liaison officers also has given the command a tool to use in
negotiating with developing countries for their participation in the
coalition force.

Conclusions 	DOD-wide guidance provides uniform direction throughout the
department on how to implement programs and policies. While CENTCOM

has developed procedures for managing support to coalition liaison
officers and has taken steps to provide the support authorized by the
legislation in the least costly way, in the absence of DOD-wide guidance,

Recommendations for Executive Action

  Agency Comments

there can be no assurance that prudent procedures will always be followed.
Moreover, without DOD guidance, should other commands choose to use the
authority granted by this legislation, there is no assurance that they
will implement it in a uniform and prudent manner. As of January 2004,
there was no DOD office responsible for the implementation of the
legislative authority allowing commands to pay for support for coalition
liaison officers and no DOD-wide guidance on its use.

We recommend that the Secretary of Defense take the following two actions:
(1) designate an office within DOD to take responsibility for this
legislation and (2) direct this designated office to promulgate and issue
guidance to the combatant commands and their component and subordinate
commands on how to implement this legislation.

In official oral comments on a draft of this report, DOD concurred with
the report. DOD stated that it would designate the Joint Staff as the
office responsible for implementing the legislation and issuing
appropriate guidance.

We are sending copies of this report to interested congressional
committees; the Secretary of Defense; and the Director, Office of
Management and Budget. We will also make copies available to others on
request. In addition, the report will be available at no charge on the GAO
Web site at http://www.gao.gov.

If you or your staff have any questions, please contact me on
(757) 552-8100 or by e-mail at [email protected]. Major contributors to this
report were Steven Sternlieb, Ann Borseth, Madelon Savaides, David
Mayfield, and Renee McElveen.

Neal P. Curtin
Director, Defense Capabilities and Management

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