	Background

		U.S. Operations in Afghanistan, Iraq, and Syria

The U.S. government has engaged in multiple efforts in Afghanistan since  declaring a global war on terrorism in 2001 that targeted al Qaeda, its  affiliates, and other violent extremists. Force management levels and  similar caps have been a factor in military operations for a long time— dating at least to the Vietnam War, during which troop ceilings were used  to manage the number of deployed U.S. forces. The executive branch used force management levels to shape the  drawdown of forces in Afghanistan and Iraq. Actions DOD Has Taken to Maximize Military Capabilities While Operating under Force Management Levels in Ongoing Operations

Military officials planning for and executing operations under force  management levels have taken various actions to maximize military  capabilities deployed to countries under those limits. Among the actions  DOD has taken to accomplish these goals in Afghanistan, Iraq, and Syria  is that of increasing its reliance on: (1) partner nation security forces; (2)  U.S. and Coalition airpower; (3) special operations forces; and (4)  contractor and temporary duty personnel. Increased Engagement with Partner Nation Security Forces

One of the tools DOD has used to maximize the number of mission- focused personnel under a force management level to achieve its  objectives is to increase engagement with partner nation security forces  through a range of security cooperation efforts. As a result, this can create complications for U.S. planners in  terms of allocating capabilities and resources within the force  management levels. In addition, in 2011 we reported on challenges DOD  has faced when supplying advise and assist teams, such as in providing  the necessary field grade officers and specialized capabilities. We also  found that splitting up brigade combat teams to source these advisor  teams had an effect on the readiness and training of those brigades. We  made three recommendations to the department to ensure that the  activities of individual advisor teams are more clearly linked to command  goals and to enhance the ability of advisor teams to prepare for and  execute their mission. DOD concurred with our recommendations and  has implemented two of them. U.S. and Coalition Airpower

With a limited U.S. footprint under the current force management levels in  Afghanistan, Iraq, and Syria, DOD has relied on U.S. and coalition  airpower to provide support to partner ground forces in lieu of U.S. ground  combat capabilities. Additionally, since U.S. operations related to ISIS  began in August 2014, coalition members have flown nearly 44,000  sorties and dropped more than 57,000 munitions. While effective,  according to senior DOD officials, this reliance on air power is not without  its costs or challenges. For example, according to the Secretary of  Defense in February 2016, the accelerating intensity of the U.S. air  campaign against ISIS in Iraq and Syria has been depleting U.S. stocks  of GPS-guided smart bombs and laser-guided munitions. Similarly, airborne intelligence, surveillance, and reconnaissance (ISR)  systems have proved critical to commanders to support military  operations in Afghanistan, Iraq and Syria. Increased Pace of U.S. Special Operations Deployments

In a force management level-constrained environment, DOD has  increased the use of U.S. Special Operations Forces (SOF), who are  specially organized, trained, and equipped to conduct operations in  hostile or politically sensitive environments. The Commander’s statements are consistent with our  prior work, which has found that a high pace of deployments for SOF can  affect readiness, retention, and morale. DOD  concurred or partially concurred with our recommendations and has  implemented them. Increased Use of Contractors and Personnel on Temporary Duty

In a force management level-constrained environment, DOD relies on  contractors to support a wide range of military operations and free up  uniformed personnel to directly support mission needs. During operations  in Afghanistan and Iraq, contractors played a critical role in supporting  U.S. troops with the number of contractor personnel sometimes  exceeding the number of deployed military personnel. We made four recommendations to improve oversight of  operational contract support. DOD concurred with our recommendations  and implemented three of them. We made one recommendation that DOD  develop guidance related to costs of overseas operations. DOD partially  concurred with our recommendation and it remains open. Special Operations Forces

Special Operations Forces: Opportunities Exist to Improve Transparency  of Funding and Assess Potential to Lessen Some Deployments.
Why GAO Did This Study

The United States has engaged in multiple efforts in Afghanistan, Iraq, and Syria since declaring a global war on terrorism in 2001. Currently, in Afghanistan, Iraq, and Syria, U.S. forces are deployed under force management levels set by the administration. Force management levels and similar caps limit the number of U.S. military personnel deployed to a given region and have been a factor in military operations at least since the Vietnam War. Force management levels were also used to shape the drawdowns of operations in Afghanistan and Iraq. In June 2016, the President announced that the force management level for Afghanistan is 9,800. According to DOD, in September 2016 the United States authorized additional troops for Iraq and Syria, for a total of 5,262.
Today's testimony discusses some of the actions DOD has taken to maximize military capabilities while operating under force management levels in ongoing operations.
In preparing this statement, GAO relied on previously published work related to operations in Afghanistan, Iraq, and Syria since 2001.

What GAO Found

Military officials planning for and executing operations under force management levels have taken various actions to maximize military capabilities deployed to countries under those limits, as discussed below:
Increased Engagement with Partner Nation Security Forces. The Department of Defense (DOD) has increased its engagement with partner nations through advise-and-assist missions that rely on partner nation security forces to conduct operations. While this action helps leverage U.S. resources, it can create complications for U.S. planners in terms of allocating capabilities and resources. In 2011, GAO reported that the Army and Marine Corps have faced challenges in providing the necessary field grade officers and specialized capabilities for advisor teams, as well as challenges regarding the effect on the readiness and training of brigades whose combat teams have been split up to source advisor teams. GAO made three recommendations related to advisor teams. DOD concurred and implemented two recommendations relating to improving the ability of advisor teams to prepare for and execute their mission.
Reliance on Airpower. DOD has relied on U.S. and coalition airpower to provide support to partner nation ground forces in lieu of U.S. ground combat capabilities. For example, since U.S. operations related to the Islamic State of Iraq and Syria (ISIS) began in August 2014, coalition members have dropped more than 57,000 munitions. Air-based intelligence, surveillance, and reconnaissance systems have also proved critical to commanders by providing them timely and accurate information. While effective, this reliance on air power is not without its costs or challenges. For example, the Secretary of Defense stated in February 2016 that the intensity of the U.S. air campaign against ISIS has been depleting U.S. stocks of certain weapons.
Increased Pace of U.S. Special Operations Deployments. DOD has increased its use of U.S. Special Operations Forces to increase its operational reach and maximize its capabilities under force management levels. However, the increased use of U.S. Special Operations Forces in operations has resulted in a high pace of deployments which can affect readiness, retention, and morale. GAO made 10 recommendations to DOD related to U.S. Special Operations Forces. DOD concurred or partially concurred and has implemented 7 recommendations relating to security force assistance activities and readiness of U.S. Special Operations Forces.
Increased Use of Contractors and Personnel on Temporary Duty. DOD relies on contractors to support a wide range of military operations and free up uniformed personnel to directly support mission needs. During operations in Afghanistan and Iraq contractor personnel played a critical role in supporting U.S. troops and sometimes exceeded the number of deployed military personnel. However, the increased use of contractors and temporary personnel to provide support during operations has its challenges, including oversight of contractors in deployed environments. GAO made four recommendations to improve oversight of operational contract support. DOD concurred with all four, and has implemented three of them. GAO also made a recommendation that DOD develop guidance relating to costs of overseas operations, with which DOD partially concurred and which remains open.

What GAO Recommends

GAO made 18 recommendations in prior work cited in this statement. DOD has implemented 12 of them. Continued attention is needed to ensure that some recommendations are addressed, such as improving visibility in total Special Operations funding to determine whether opportunities exist to balance deployments across the joint force.