Defense Logistics: Army and Marine Corps' Body Armor		 
Requirements, Controls, and Other Issues (06-JUN-07,		 
GAO-07-911T).							 
                                                                 
In recent years, a number of reports and newspaper articles have 
cited concerns regarding the level of protection and the	 
available amounts of body armor to protect deployed service	 
members. As part of GAO's efforts to monitor the Department of	 
Defense's (DOD) and the services' action to protect ground	 
forces, GAO reviewed the Army and Marine Corps's actions to	 
address these concerns. On April 26, 2007, GAO issued a report	 
regarding the Army and the Marine Corps's individual body armor  
systems. Today's testimony summarizes the report's findings	 
regarding the extent to which the Army and Marine Corps (1) have 
met the theater requirements for body armor, (2) have the	 
controls in place to assure that the manufacturing and fielding  
of body armor meet requirements, and (3) have shared information 
regarding their efforts on body armor ballistic requirements and 
testing. The report also included additional information	 
concerning whether contractors or non-DOD civilians obtain body  
armor in the same way as U.S. forces and DOD civilians given the 
number of contractors and non-DOD civilians in Central Command's 
(CENTCOM) area of operation. GAO did not make recommendations in 
the report. DOD officials did not provide written comments on the
report but technical comments were incorporated as appropriate.  
-------------------------Indexing Terms------------------------- 
REPORTNUM:   GAO-07-911T					        
    ACCNO:   A70366						        
  TITLE:     Defense Logistics: Army and Marine Corps' Body Armor     
Requirements, Controls, and Other Issues			 
     DATE:   06/06/2007 
  SUBJECT:   Department of Defense contractors			 
	     Information management				 
	     Iraq War and reconstruction			 
	     Logistics						 
	     Military forces					 
	     Military materiel					 
	     Military personnel 				 
	     Operational testing				 
	     Product evaluation 				 
	     Protective equipment				 
	     Reporting requirements				 
	     Requirements definition				 
	     Testing						 
	     Information sharing				 
	     Interceptor Body Armor				 

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GAO-07-911T

   

     * [1]Summary
     * [2]Background
     * [3]Army and Marine Corps Body Army Meets Current Theater Requir
     * [4]Controls in Place to Assure Body Armor Meets Requirements
     * [5]Army and Marine Corps Share Body Armor Information
     * [6]Contractors and Non-DOD Civilians Are Provided Body Armor Wh
     * [7]Conclusion
     * [8]Contacts and Staff Acknowledgments

          * [9]Order by Mail or Phone

Testimony

Before the Committee on Armed Services,
House of Representatives

United States Government Accountability Office

GAO

For Release on Delivery
Expected at 10:00 a.m. EST
Wednesday, June 6, 2007

DEFENSE LOGISTICS

Army and Marine Corps' Body Armor Requirements, Controls, and Other Issues

Statement of William M. Solis, Director Defense Capabilities and
Management Issues

GAO-07-911T

Mr. Chairman and Members of the Committee:

I am pleased to be here today to discuss our findings regarding Army and
Marine Corps's individual body armor systems. As you know, since combat
operations began in Iraq and Afghanistan, U.S. forces have been subjected
to frequent and deadly attacks from insurgents using various weapons such
as improvised explosive devices (IED), mortars, rocket launchers, and
increasingly lethal ballistic threats. Since 2003, to provide protection
from ballistic threats, U.S. Central Command (CENTCOM), which is
responsible for operations in Iraq and Afghanistan and other areas, has
required service members and Department of Defense (DOD) civilians in its
area of operations to be issued the Interceptor Body Armor (IBA) system.^1

Congress has expressed strong interest in the quality of our ground
force's body armor protection, especially since combat operations began in
Iraq and Afghanistan and news reports citing concerns regarding body armor
shortages and quality issues. In response to these concerns, we reviewed
the Army and Marine Corps's actions regarding individual body armor
systems, and on April 26, 2007, issued a report.^2 My testimony today
summarizes the findings in this report. Specifically, I will discuss the
extent to which the Army and Marine Corps (1) have met the theater
requirements for body armor, (2) have the controls in place to assure that
the manufacturing and fielding of body armor meet requirements, and (3)
have shared information regarding their efforts on body armor ballistic
requirements and testing. I will also include additional information
concerning whether contractors or non-DOD civilians obtain body armor in
the same way as U.S. forces and DOD civilians given the number of
contractors and non-DOD civilians in CENTCOM's area of operation.

To assess these issues we focused on Army and Marine Corps body armor
systems for U.S. service members and DOD and non-DOD civilian personnel
deployed within CENTCOM's area of operations, including Iraq and
Afghanistan. To determine whether the Army and Marine Corps are meeting
the theater ballistic and inventory requirements for body armor, we
reviewed documentation and interviewed officials from key DOD, Army, and
Marine Corps organizations, such as the Office of the Under Secretary of
Defense, Acquisition, Technology, and Logistics, the Defense Logistics
Agency, and CENTCOM, which are responsible for managing theater ballistic
and inventory requirements. We analyzed the ballistic requirements and
compared these requirements to the body armor systems provided to
personnel. Moreover, we concentrated on the body armor system currently
being used in CENTCOM's area of operation. We also obtained and reviewed
the amount of body armor systems available worldwide for the Army and
Marine Corps to determine if the available amount met the quantity needed
in theater. We analyzed the distribution practices to assure that
personnel were receiving body armor systems that met ballistic theater
requirements and that these systems were available for those preparing to
deploy. We did not independently verify that deployed personnel wore the
body armor systems as recommended by their commanders.

^1U.S. Central Command (CENTCOM) is one of DOD's five geographic combatant
commands, whose area of responsibilities encompasses 27 countries,
including Iraq and Afghanistan, in Southwest Asia, South and Central Asia,
and the Horn of Africa. Combatant commanders are responsible for
overseeing U.S. military operations that take place in their geographic
area.

^2 GAO, Defense Logistics: Army and Marine Corps's Individual Body Armor
System Issues, [10]GAO-07-662R (Washington, D.C.: Apr. 26, 2007).

To assess the extent to which the services have controls in place during
manufacturing and after fielding to assure that body armor meets
requirements, we reviewed documentation and discussed the services'
ballistic test processes and procedures with their program and technical
officials. We analyzed these test processes and procedures to determine if
controls are in place that assure body armor meets ballistic requirements
during manufacturing and after fielding. Our analysis included ballistic
test methods for the tactical vests and the protective plate inserts;
however, we did not independently verify test results. In addition, we
reviewed the services' past experiences where the services concluded that
fielded body armor systems failed to meet contract specifications and
ballistic testing requirements. We analyzed the services' actions to
determine if their actions corrected the failures. We also reviewed
documentation and interviewed Army and Marine Corps body armor program
officials who provided manufacturer production quality and ballistic
testing lot failures for early 2006 through early 2007.

To identify the extent to which the Army and Marine Corps share
information regarding their efforts on body armor ballistic requirements
and testing, we analyzed the services' body armor programs and policies
and discussed with service officials whether there is a requirement to
share information between the services regarding their separate programs.
We also discussed with officials and reviewed documentation to determine
whether the services do share information and if shared, what specific
actions they take. To determine whether contractors or non-DOD civilians
obtain body armor in the same way as U.S. forces and DOD civilians in
CENTCOM's area of operations, we obtained and analyzed DOD and CENTCOM
policy regarding personal protection for contractors and non-DOD
civilians. We also interviewed Army, Marine Corps, and CENTCOM officials
on this issue.

We did not make recommendations in our report. DOD officials did not
provide written comments on the report but technical comments were
incorporated as appropriate. We conducted our review from November 2006 to
March 2007 in accordance with generally accepted government auditing
standards.^3

Summary

The Army and Marine Corps have taken several actions to meet theater
requirements, assure testing, and share information on body armor.
Contractors and non-DOD civilians receive body armor if this provision is
included in a negotiated contract. Specifically, we reported that the Army
and Marine Corps

           o are currently meeting theater ballistic requirements and the
           required amount needed for personnel in theater, including the
           amounts needed for the surge of troops into Iraq;
           o have controls in place during manufacturing and after fielding
           to assure that body armor meets requirements; and
           o share information regarding ballistic requirements and testing,
           and the development of future body armor systems, although they
           are not required to do so.

           Regarding contractors or non-DOD civilians, we found that DOD
           Instruction 3020.41 allows DOD to provide body armor to
           contractors where permitted by applicable DOD instructions and
           military department regulations and where specified under the
           terms of the contract. CENTCOM's position is that body armor will
           be provided to contractors if it is part of a negotiated contract.
			  
			  Background

           Used by all U.S. military service members and DOD civilians in the
           area of operations, the IBA consists of an outer tactical vest
           with ballistic inserts or plates that cover the front, back, and
           sides. As the ballistic threat has evolved, ballistic requirements
           have also changed. The vest currently provides protection from 9mm
           rounds, while the inserts provide protection against 7.62mm
           armor-piercing rounds. Additional protection can also be provided
           for the shoulder, throat, and groin areas. Figure 1 details the
           body armor components.
			  
^3 More detailed information regarding our scope and methodology can be
found in GAO, Defense Logistics: Army and Marine Corps's Individual Body
Army System Issues, [17]GAO-07-662R (Washington, D.C.: Apr. 26, 2007).

           Figure 1: Interceptor Body Armor System

           Note: The figure depicts the Army Basic System. The Marine Corps
           Basic System excludes the deltoid protector.

           Concerns regarding the level of protection and amount of IBA
           needed to protect U.S. forces have been raised in recent years,
           prompted by a number of reports, newspaper articles, and recalls
           of issued body armor by both the Army and the Marine Corps. In May
           2005, the Marine Corps recalled fielded body armor because it
           concluded that the body armor failed to meet contract
           specifications, and in November 2005, the Army and Marine Corps
           recalled 14 lots of body armor that failed original ballistic
           testing.^4 Additionally, in April 2005,^5 we reported on shortages
           of critical force protection items, including individual body
           armor. Specifically, we found that the shortages in body armor
           were due to material shortages, production limitations, and
           in-theater distribution problems. In the report, we did not make
           specific recommendations regarding body armor, but we did make
           several recommendations to improve the effectiveness of DOD's
           supply system in supporting deployed forces for contingencies. DOD
           agreed with the intent of the recommendations and cited actions it
           had or was taking to eliminate supply chain deficiencies.

^4Army and Marine Corps officials told us they took actions to address the
causes of lot failures.

           Army and Marine Corps Body Army Meets Current Theater Requirements

           Army and Marine Corps body armor currently meets theater ballistic
           requirements and the required amount needed for personnel in
           theater, including the amounts needed for the surge of troops into
           Iraq. Used by all U.S. military service members and DOD civilians
           in the area of operations, the IBA consists of an outer tactical
           vest with ballistic inserts or plates that cover the front, back,
           and sides. The vest and inserts currently meet the theater
           ballistic requirements. The vest provides protection from 9mm
           rounds, while the inserts provide protection against 7.62mm
           armor-piercing rounds. Additional protection can also be provided
           for the shoulder, throat, and groin areas. The Army and Marine
           Corps body armor meets the required amounts needed for personnel
           in theater as well. Table 1 details Army and Marine Corps theater
           requirements and worldwide inventory quantities of the body armor
           as of February 2007.

           Table 1: Army and Marine Corps Body Armor Requirement as of
           February 2007
			  
                                   Army                      Marine Corps
                                                                      Current 
                      Amount                                 Amount worldwide 
Body Armor      needed in Current worldwide available  needed in available 
Systems           theater                   inventory    theater inventory 
Outer tactical    154,000                     991,580     23,000   198,088 
vest                                                                       
Enhanced small    154,000                     402,369     23,000    56,970 
arms inserts                                                               
Side protection   154,000                     244,192     23,000    50,500 
Shoulder          154,000                     243,229      4,600     4,600 
protection                                                                 

           Sources: Army Operations, PEO Soldier, and Marine Corps Systems
           Command.

           Note: Army and Marine Corps amounts include service personnel, DOD
           civilians, and contractors embedded with units. For the Army,
           shoulder protection is issued, but its use is optional. For the
           Marine Corps, shoulder protection is only issued to specialized
           personnel such as turret gunners.
			  
^5GAO, Actions Needed to Improve the Availability of Critical Items during
Current and Future Operations, [18]GAO-05-275 (Washington, D.C.: Apr. 8,
2005).

           CENTCOM requires that all U.S. military forces and all DOD
           civilians in the area of operations receive the body armor system.
           Currently, service members receive all service-specific standard
           components of the body armor system prior to deploying. For
           example, the Army issues the shoulder protection equipment to all
           its forces; however, Marine Corps personnel receive this equipment
           item in theater on an as-needed basis. The Army and the Marine
           Corps provide the DOD civilians with components of the armor
           system. However, the time frame for receipt of these items varies
           as some receive the body armor prior to deploying and others upon
           arrival in theater. Army unit commanders only reported one body
           armor issue in their December 2006 to February 2007 classified
           readiness reports. This one issue did not raise a significant
           concern regarding the body armor. Moreover, Marine Corps
           commanders' comments contained in the December 2006 and January
           2007 readiness reports did not identify any body armor issues
           affecting their units' readiness. In December 2006 and January
           2007, the Army, in its critical equipment list did not identify
           body armor as a critical equipment item affecting its unit
           readiness.
			  
			  Controls in Place to Assure Body Armor Meets Requirements

           The Army and Marine Corps have controls in place during
           manufacturing and after fielding to assure that body armor meets
           requirements. Both services conduct quality and ballistic testing
           prior to fielding and lots are rejected if the standards are not
           met. They both also conduct formal testing on every lot of body
           armor (vests and protective inserts) prior to acceptance and
           issuance to troops. During production, which is done at several
           sites, the lots of body armor are sent to a National Institute of
           Justice-certified laboratory for ballistic testing and to the
           Defense Contract Management Agency for quality testing (size,
           weight, stitching) prior to issuance to troops. Figure 2
           illustrates the lot acceptance process.

           Figure 2: Lot Acceptance Process for Army and Marine Corps Body
           Armor

           Once approved, the body armor is issued to operating forces.
           Currently, both Army and Marine Corps personnel are issued body
           armor prior to deployment. The Army lot failure rate from January
           2006 to January 2007 was 3.32 percent for the enhanced small arms
           inserts, and there were no failures for the outer tactical
           vests.^6 From February 2006 to February 2007, the Marine Corps lot
           failure rate was 4.70 percent for the outer tactical vests.

           Although not required to do so, after the systems have been used
           in the field, the Army does limited ballistic testing of outer
           tactical vests and environmental testing of the outer tactical
           vests and the inserts. The Marine Corps visually inspects the vest
           and the plates for damage. According to Army officials, there has
           been no degradation of body armor based on ballistic and
           environmental testing results. Additionally, to determine future
           improvements, the Army and the Marine Corps body armor program
           offices monitor and assess the use of body armor in the field,
           including the review of medical reports from the Armed Forces
           Medical Examiner. For example, the Army and Marine Corps added
           side plates and throat protection based on body armor usage in the
           field.

^6The lot failure rate is calculated by dividing the total lots rejected
by the total lots tested. A lot is a pallet or grouping of manufactured
items varying in number per lot. For example, the Army's outer vest lots
range from 1,100 to 1,200. A lot is manufactured within a specific period
of time, at a common location.

           DOD has a standard methodology for ballistic testing of the hard
           body armor plates, but not for the soft body armor vest.
           Currently, DOD's Director, Operational Test and Evaluation Office
           is developing a standard methodology for ballistic testing of the
           soft body armor to eliminate discrepancies in testing
           methodologies. The new standard is expected to be issued sometime
           in 2007.
			  
			  Army and Marine Corps Share Body Armor Information

           The Army and Marine Corps share information regarding ballistic
           requirements and testing, and the development of future body armor
           systems, although they are not required to do so. For example, in
           August 2006, the Marine Corps attended the Army's test of next
           generation body armor types at Fort Benning, Georgia. Similarly,
           the Army sent representatives to attend the Marine Corps's
           operational assessment of the new Modular Tactical Vest. DOD
           officials indicate that there is no requirement to share
           information. Title 10 of the U.S. Code allows each service to have
           separate programs, according to Army and Marine Corps officials.
           Nevertheless, the services are sharing information regarding
           ongoing research and development for the next generation of body
           armor.
			  
			  Contractors and Non-DOD Civilians Are Provided Body Armor Where
			  Permitted

           Regarding contractors or non-DOD civilians, DOD Instruction
           3020.41 allows DOD to provide body armor to contractors where
           permitted by applicable DOD instructions and military department
           regulations and where specified under the terms of the contract.
           It is CENTCOM's position that body armor will be provided to
           contractors if it is part of the terms and conditions of the
           contract. According to CENTCOM officials, non-DOD government
           civilians such as State Department civilians are expected to make
           their own arrangements to obtain this protection. However, the
           officials said that commanders, at their discretion, can provide
           body armor to any personnel within their area of operation.
			  
			  Conclusion

           In conclusion, Mr. Chairman, the Army and Marine Corps have taken
           several actions to address concerns, including assuring that the
           body armor systems meet the current theater requirements and that
           the amounts needed in theater are available. However, ballistic
           theater threats can change, and the services will need to continue
           to monitor and evaluate the theater ballistic threats in order to
           develop and provide individual body armor that can counter these
           changing threats. The services also will need to monitor and
           evaluate new technologies that may counter emerging theater
           ballistic threats. Moreover, they will need to continue to assure
           that controls are in place during manufacturing and after fielding
           to assure that existing and future body armor systems meet theater
           ballistic requirements.

           Mr. Chairman, this concludes my statement. I would be pleased to
           respond to any questions you or other Members of the Committee may
           have.
			  
			  Contacts and Staff Acknowledgments

           For more information regarding this testimony, please call me at
           (202) 512-8365. Individuals making key contributions to the
           testimony include: Grace Coleman, Alfonso Garcia, Lonnie
           McAllister, Lorelei St. James, and Leo Sullivan.
			  
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(351055)

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[19]www.gao.gov/cgi-bin/getrpt?GAO-07-911T .

To view the full product, including the scope
and methodology, click on the link above.

For more information, contact William M.Solis at (202) 512-8365 or
[email protected].

Highlights of [20]GAO-07-911T , a testimony before the Committee on Armed
Services,

House of Representatives

June 6, 2007

DEFENSE LOGISTICS

Army and Marine Corps' Individual Body Armor Requirements, Controls, and
Other Issues

In recent years, a number of reports and newspaper articles have cited
concerns regarding the level of protection and the available amounts of
body armor to protect deployed service members. As part of GAO's efforts
to monitor the Department of Defense's (DOD) and the services' action to
protect ground forces, GAO reviewed the Army and Marine Corps's actions to
address these concerns.

On April 26, 2007, GAO issued a report regarding the Army and the Marine
Corps's individual body armor systems. Today's testimony summarizes the
report's findings regarding the extent to which the Army and Marine Corps
(1) have met the theater requirements for body armor, (2) have the
controls in place to assure that the manufacturing and fielding of body
armor meet requirements, and (3) have shared information regarding their
efforts on body armor ballistic requirements and testing. The report also
included additional information concerning whether contractors or non-DOD
civilians obtain body armor in the same way as U.S. forces and DOD
civilians given the number of contractors and non-DOD civilians in
CENTCOM's area of operation. GAO did not make recommendations in the
report. DOD officials did not provide written comments on the report but
technical comments were incorporated as appropriate.

Army and Marine Corps body armor currently meets theater ballistic
requirements and the required amount needed for personnel in theater,
including the amounts needed for the surge of troops into Iraq. The
Interceptor Body Armor (IBA) consists of an outer tactical vest with
ballistic inserts or plates that cover the front, back, and sides. The
vest and inserts currently meet the theater ballistic requirements. The
vest provides protection from 9mm rounds, while the inserts provide
protection against 7.62mm armor-piercing rounds. CENTCOM requires that all
U.S. military forces and all DOD civilians in the area of operations
receive the body armor system. Currently, service members receive all
service-specific standard components of the body armor system prior to
deploying. The Army and the Marine Corps provide the DOD civilians with
components of the armor system.

The Army and Marine Corps have controls in place during manufacturing and
after fielding to assure that body armor meets requirements. Both services
conduct quality and ballistic testing prior to fielding, and lots (a
grouping of items varying in number) are rejected if the standards are not
met. They also conduct formal testing on every lot of body armor (vests
and protective inserts) prior to acceptance and issuance to troops. During
production, which is done at several sites, the lots of body armor are
sent to a National Institute of Justice-certified laboratory for ballistic
testing and to the Defense Contract Management Agency for quality testing
(size, weight, stitching) prior to issuance to troops. Although not
required to do so, after the systems have been used in the field, the Army
does limited ballistic and environmental testing to determine future
improvements.

The Army and Marine Corps share information regarding ballistic
requirements and testing although they are not required to do so. Title 10
of the U.S. Code allows each service to have separate programs, according
to Army and Marine Corps officials. Nevertheless, the services are sharing
information regarding ongoing research and development for the next
generation of body armor.

DOD Instruction 3020.41 allows DOD to provide body armor to contractors
and non-DOD civilians where permitted by applicable DOD instructions and
military department regulations and where specified under the terms of the
contract. It is CENTCOM's position that body armor will be provided to
contractors if it is part of the terms and conditions of the contract.
However, the officials indicated that commanders, at their discretion, can
provide body armor to any personnel within their area of operation.

References

Visible links
  10. http://www.gao.gov/cgi-bin/getrpt?GAO-07-662r
  11. http://www.gao.gov/
  12. http://www.gao.gov/
  13. http://www.gao.gov/fraudnet/fraudnet.htm
  14. mailto:[email protected]
  15. mailto:[email protected]
  16. mailto:[email protected]
  17. http://www.gao.gov/cgi-bin/getrpt?GAO-07-662r
  18. http://www.gao.gov/cgi-bin/getrpt?GAO-05-275
  19. http://www.gao.gov/cgi-bin/getrpt?GAO-07-911T
  20. http://www.gao.gov/cgi-bin/getrpt?GAO-07-911T
*** End of document. ***