Congressional Rationale for DOD’s Family Separation Allowance Eligibility Requirements

In 1963, Congress established the $30-per-month family separation  allowance to help offset the additional expenses incurred by the  dependents of servicemembers who are away from their permanent duty  station for more than 30 consecutive days. According to statements made  by members of Congress during consideration of the legislation  establishing the family separation allowance, additional expenses could  stem from costs associated with home repairs, automobile maintenance,  and childcare that could not be performed by the deployed  servicemember. Over the years, the eligibility requirements for the family  separation allowance have changed. For example, while the family  separation allowance was initially authorized for enlisted members in pay  grades E-5 and above as well as to enlisted members in pay grade E-4 with  4 years of service, today the family separation allowance is authorized for  servicemembers in all pay grades at a flat rate of $250 per month. The rationale for establishing the  30-day threshold is unknown. DOD Has Not Identified Frequent Deployments Less Than 30-days as a Family Separation Allowance Issue

DOD has not identified frequent short-term deployments less than 30-days  as a family separation allowance issue. No proposals seeking  modifications to the family separation allowance because of frequent  short-term deployments have been provided to DOD for consideration as  part of DOD’s Unified Legislation and Budgeting process, which reviews  personnel compensation proposals. To analyze concerns that might be raised by  those experiencing frequent short-term deployments, we conducted group  discussions with Air Force strategic C-5 airlift aircrews at Travis Air Force  Base, which we identified as an example of servicemembers who generally  deploy for periods less than 30 days. We did not identify any specific  concerns regarding compensation received as a result of short-term  deployments. We found that the C-5 aircrews were generally more  concerned about the high pace of operations and associated  unpredictability of their schedules, due to the negative impact on their  quality of life, than about qualifying for the family separation allowance. Personnel Deployed Less Than 30 Days May Be Eligible to Receive Additional Compensation

In addition to basic compensation, DOD has several special pays and  allowances available to further compensate servicemembers deployed for  less than 30 days. Servicemembers who are deployed domestically or  overseas for less than 30 days may be eligible to receive regular per diem. The per diem amount varies depending upon location. However, DOD has not implemented one special allowance  designed, in part, to compensate those frequently deployed for short  periods. Congress supported DOD’s legislative proposal to authorize a  monthly high-deployment allowance with passage of the National Defense  Authorization Act for Fiscal Year 2004. This provision allows the services  to compensate their members for lengthy deployments as well as frequent  shorter deployments. The rates range from $86 to $284  per day within the continental United States and from $20 to $533 per day  when outside the continental United States, depending on whether  government meals and lodging are provided. Recommendations

We recommend that the Secretary of Defense direct the Deputy  Undersecretary of Defense (Personnel and Readiness), in concert with the  Service Secretaries and the Commandant of the Marine Corps, to take the  following three actions    set a timetable for establishing criteria to implement the high deployment    define, as part of the criteria, what constitutes frequent short-term  deployments within the context of the cumulative day requirement as  stated in the high deployment allowance legislation; and    determine, as part of the criteria, eligibility requirements targeting the high  deployment allowance to selected occupational specialties. To assess what special pays and allowances are available, in addition to  basic compensation, to further compensate servicemembers deployed for  less than 30 days, we identified special pays and allowances that do not  have a time eligibility factor through the DOD’s Military Compensation  Background Papers, legislative research, and discussions with  OSD officials.
Why GAO Did This Study

The fiscal year 2004 National Defense Authorization Act directed GAO to assess the special pays and allowances for servicemembers who are frequently deployed for less than 30 days, and to specifically review the family separation allowance. GAO's objectives were to assess (1) the rationale for the family separation allowance eligibility requirements, including the required duration of more than 30 consecutive days away from a member's duty station; (2) the extent to which DOD has identified short-term deployments as a family separation allowance issue; and (3) what special pays and allowances, in addition to basic military compensation, are available to compensate members deployed for less than 30 days.

What GAO Found

In 1963, Congress established the family separation allowance to help offset the additional expenses that may be incurred by the dependents of servicemembers who are away from their permanent duty station for more than 30 consecutive days. Additional expenses may include the costs associated with home repairs, automobile maintenance, and childcare that could have been performed by the deployed servicemember. Over the years, the eligibility requirements for the family separation allowance have changed. Today, the family separation allowance is authorized for officers and enlisted in all pay grades at a flat rate. The rationale for establishing the 30-day threshold is unknown. DOD has not identified frequent short-term deployments as a family separation allowance issue. No proposals seeking modifications to the family separation allowance because of frequent short-term deployments have been provided to DOD for consideration as part of DOD's Unified Legislation and Budgeting process, which reviews personnel pay proposals. Further, DOD officials were not aware of any specific concerns that have been raised by frequently deployed servicemembers about their eligibility to receive the family separation allowance. Based on group discussions with Air Force strategic airlift aircrews, who were identified as examples of those most likely to be experiencing short-term deployments, we did not identify any specific concerns regarding the lack of family separation allowance compensation associated with short-term deployments. Rather, many aircrew members indicated the high pace of operations and associated unpredictability of their schedules was a greater concern due to the negative impact on their quality of life. In addition to basic military compensation, DOD has several special pays and allowances to further compensate servicemembers deployed for short periods. Servicemembers who are deployed for less than 30 days may be eligible to receive regular per diem. The per diem amount varies depending upon location. For example, these rates range from $86 to $284 per day within the United States and from $20 to $533 per day when outside the United States. However, DOD has not implemented the high deployment allowance designed, in part, to compensate those frequently deployed for shorter periods. Congress supported DOD's legislative proposal to authorize a monthly high deployment allowance. This allowance permits the services to compensate members for lengthy as well as frequent shorter deployments. The most recent amendment to this provision provides DOD with the authority to adjust a cumulative day threshold to help compensate servicemembers experiencing frequent short deployments. DOD has flexibility to exclude all occupations except those that it wishes to target for additional pay. However, DOD has not established criteria to implement this allowance, nor has DOD set a timetable for establishing such criteria.