From February 2001 through  February 2003, the task force issued three reports containing 194  recommendations for improving DOD’s response to domestic violence. DOD’s Ability to Report on Domestic Violence Incidents and Commander Actions Is Hampered by Incomplete Data

DOD’s ability to report domestic violence incidents involving  servicemembers and the disciplinary actions taken by commanders is  hampered because the data systems that the department uses to collect  domestic violence information contain incomplete data. Therefore, prior  to 2006, DOD did not provide complete information on all reported  instances of domestic violence. Without complete data on reported incidents  of domestic violence and the steps taken by commanding officers to  address these incidents, Congress and DOD will lack the visibility and  information needed to understand the magnitude of the domestic violence  problem, identify domestic violence trends, and proactively address these  issues as they emerge. Resources Provided and Progress Made, but Challenges Exist to Implementing the Remaining Task Force Recommendations

Over the past 3 years, DOD provided the Family Violence Policy Office  about $23 million, which it has used to make progress toward  implementing many of the task force’s recommendations. Notwithstanding this point, of the 194 recommendations made by  the task force, we found DOD had completed actions on 94  recommendations, had actions pending on 60 recommendations, and had  not taken actions on 40 recommendations because the department either  disagreed with the recommendations, the recommendation was not  applicable to the department, or DOD felt that the recommended action  was already undertaken. DOD’s  method of communicating its policy changes has not been effective in  ensuring consistent practices or promoting widespread understanding of  the new policies among DOD and the services. Steps Taken to Ensure Confidentiality and Provide Domestic Violence Training, but Additional Efforts Needed

DOD is taking steps to address specific task force recommendations to  ensure confidentiality for victims of domestic violence and to train  commanding officers, senior enlisted personnel, and chaplains on how to  respond to such incidents. DOD Has Not Established an Oversight Framework to Monitor Compliance and Evaluate Implementation of Recommendations

DOD has not established an oversight framework to monitor compliance  with and evaluate implementation of the task force recommendations on  domestic violence. The draft instruction, however, does not communicate how this should be  done and the Military Community and Family Policy Office has not  established a formal process for doing this. Without an overall management framework for monitoring and  reporting on implementation, DOD and Congress will continue to have  limited visibility and oversight to evaluate the changes associated with the  recommendations and to make improvements. Conclusions

Understanding the size and nature of domestic violence is essential to  DOD’s ability to improve its response to this important issue. Recommendations for Executive Action

To enhance implementation of the task force recommendations and  improve the effectiveness of domestic violence efforts, we recommend  that the Secretary of Defense direct the Under Secretary of Defense for  Personnel and Readiness to take the following seven actions:    Develop, in conjunction with the service secretaries, a comprehensive  management plan to address deficiencies in the data captured in DOD’s  domestic violence database that focuses on ensuring that accurate and  complete data exist and that all instances in the Defense Incident-Based  Reporting System and Family Advocacy Program Central Registry are  matched and reported annually, as required in DOD’s Manual 7730.47-M;  take appropriate steps, in conjunction with the service secretaries, to  ensure all commander actions related to domestic violence incidents are  entered in law enforcement systems;    develop a plan to ensure adequate personnel are available to implement  pending task force recommendations;    establish a communication strategy for effectively informing DOD and  service officials about new guidance implementing the task force  recommendations, to include  issuing a revised DOD family advocacy program directive that is  consistent with interim guidance for implementing the task force  recommendations; and    clearly articulating its policy regarding the distribution of military  protective orders using a method that will ensure consistent  application by all services and DOD;    develop, in conjunction with the service secretaries, procedures and  metrics to ensure that accurate, consistent, and timely domestic violence  training data are collected for chaplains;    develop, in conjunction with the service secretaries, chaplain guidance  and training materials that highlight and clarify chaplain responsibilities  concerning privileged communication; and    develop and implement, in conjunction with the services, a DOD-wide  oversight framework that includes a results-oriented evaluation plan for  the implemented recommendations, and a process for ongoing monitoring  of and reporting on implementation.
Why GAO Did This Study

Due to concerns about domestic violence in the military and its adverse effect on mission readiness, Congress required the Department of Defense (DOD) to establish a task force to assess the services' response to domestic violence and recommend improvements. The task force issued three reports containing 194 recommendations. The Fiscal Year 2004 National Defense Authorization Act required GAO to review DOD's progress in implementing the recommendations. This report discusses (1) DOD's ability to report on domestic violence incidents and disciplinary actions, (2) the resources DOD has provided to implement the recommendations, and (3) DOD's specific actions to ensure victim confidentiality and the education of commanding officers, senior enlisted personnel, and chaplains. GAO also examined whether DOD has established an oversight framework to monitor implementation.

What GAO Found

DOD's ability to report on domestic violence incidents and disciplinary actions taken by commanders is hampered because the systems that the department uses to collect domestic violence information do not contain complete data. DOD's domestic violence database does not capture data from all law enforcement systems and, therefore, does not provide a complete accounting of reported incidents and actions taken by commanders. Notwithstanding the task force's recommendation to report on the number of domestic violence incidents, DOD and the services have not developed any plans to address the data limitations, which do not allow for visibility over domestic violence incidents. Without complete information on reported incidents of domestic violence and the steps taken by commanders to address these incidents, DOD will not know the size and nature of the problems or be able to assess the effectiveness of its actions. DOD has provided about $23 million to implement the recommendations and has made progress in this regard. Specifically, GAO identified 94 recommendations of varying potential importance as completed, 60 as pending further action, and 40 in which no action had been taken because DOD either disagreed with the recommendations or determined that they were not applicable to the department. Nonetheless, DOD faces challenges in completing the pending recommendations in a timely manner because of potential shortages of essential personnel in the office overseeing implementation. In addition, DOD's method of communicating its policy changes resulting from the recommendations has not ensured consistent practices and widespread understanding of the policies among DOD and the services. While DOD is taking steps toward ensuring confidentiality for victims and to train its personnel on domestic violence issues, additional efforts are needed. To ensure victim confidentiality, DOD issued a policy, effective April 22, 2006, allowing victims to report domestic violence to specified people without notifying command. In addition, DOD issued guidance requiring training and is providing several educational options. However, data regarding which chaplains have completed training are not available because the department and the services do not track this training. Chaplains play a special role in assisting domestic violence victims and, without complete training data, DOD may be unable to determine if chaplains have been provided the needed resources to assist victims. DOD has not established an oversight framework to monitor compliance with and evaluate implementation of the task force recommendations. While the task force recommended and DOD's draft domestic violence instruction requires monitoring and evaluation of domestic violence efforts, DOD has not established a process to do so. Without an overall management framework, DOD and Congress have limited visibility and oversight to evaluate DOD's implementation efforts and make needed improvements.