2). The Military Services Had Fewer Fighter Pilots Than Authorizations Due to a Variety of Contributing Factors; Initiatives Are Underway to Increase Fighter Pilot Staffing Levels

According to Air Force, Navy, and Marine Corps data, each military  service had fewer fighter pilots than authorizations from fiscal years 2013  through 2017, and the Air Force and the Marine Corps project that these  gaps will continue for several years. Service officials identified multiple factors that have led to low numbers of  fighter pilots, including challenges in training and retaining fighter pilots. This gap grew from 192 fighter pilots (5 percent of authorizations) in fiscal  year 2006 to 1,005 (27 percent) in fiscal year 2017. Specifically, in fiscal year  2013 the Navy had a gap of 57 fighter pilots (12 percent) at the first tour  milestone (i.e., a fighter pilot’s first operational tour at sea completed  between 3 and 6 years of service), and this gap grew to 136 fighter pilots  (26 percent) in fiscal year 2017 (see fig. Navy officials told us that  they believe current gaps in the fighter pilot community could increase  through mid-2019. The Military Services Have Not Reevaluated Fighter Pilot Squadron Requirements to Reflect Changing Conditions, Increased Workload, and Emerging UAS Requirements

Fighter pilots and squadron leaders told us that the fighter pilot  occupation has significantly changed in recent years, but the military  services have not reevaluated fighter squadron requirements. Fighter  pilots and squadron leaders from each of the military services consistently  told us that the fighter pilot occupation has significantly changed in recent  years due to changes in fighter aircraft tactics and technology, additional  training requirements, and the removal of administrative support positions  from squadrons. Once these requirements are funded by  Congress, they are an “authorization.” Service guidance requires  squadron requirements to be reevaluated on a 2-year schedule (5 years  for the Navy) and to be updated as conditions change. Further, a document outlining the Air Force’s vision for  UAS for fiscal years 2009 through 2047 notes that systems will work in  tandem with cockpit-operated aircraft, for example to attack air-defense  systems, and that autonomous technologies will potentially allow one pilot  to direct multiple aircraft, leading to personnel efficiencies. Without steps  by the military services, to include reevaluating workload and taking into  account the impact that the planned use of UAS will have on the fighter  pilot workforce, the military services will not fully know the extent and  nature of gaps between fighter pilot numbers and authorizations and how  to best target actions to address these gaps. Conclusions

Fighter pilots are critical to achieving and maintaining air dominance  during combat operations. In short, reevaluating  fighter pilot requirements is a key first step to help the military services  clearly determine the magnitude of the gaps and target strategies to meet  their personnel needs. Appendix I: Scope and Methodology

To assess the extent to which the military services had differences in the  number of fighter pilots compared to authorizations, as well as  contributing factors and service initiatives to address the differences, we  obtained and analyzed data on authorizations designated for pilots and  corresponding staffing levels of pilots for all fixed-wing, cockpit-operated  (hereafter referred to as fixed-wing) aircraft communities in the Air Force,  the Navy, and the Marine Corps. To assess the extent to which the military services have reevaluated  squadron requirements for the number of fighter pilots needed, including  the consideration of UAS pilot requirements, we reviewed service  guidance to determine the frequency with which elements of fighter pilot  squadron requirements are to be reevaluated, reviewed service  documentation, and interviewed service officials to determine the extent  to which these elements had been reevaluated on schedule, reviewed  service documentation regarding the planned mix of cockpit-operated and  remotely-operated aviation platforms for future operations, and discussed  with service officials the extent to which these plans are incorporated into  forecasts of fighter pilot squadron requirements. Air Force: Actions Needed to Strengthen Management of Unmanned  Aerial System Pilots.
Why GAO Did This Study

Fighter pilots operate aircraft that are critical to achieving and maintaining air dominance during combat operations. The military services invest significant time and funding to train, compensate, and retain fighter pilots. According to Air Force officials, it costs between $3-$11 million and takes approximately 5 years to develop an individual fighter pilot to lead combat missions.
Senate Report 114-255 included a provision for GAO to review the Department of Defense's (DOD) management of the fighter pilot workforce. GAO's report (1) assesses the extent to which the military services had differences in the number of fighter pilots compared to authorizations, and describes any contributing factors as well as initiatives to address the differences, and (2) assesses the extent to which the military services had reevaluated squadron requirements for the number of fighter pilots needed, including consideration of UAS pilot requirements.
GAO analyzed military service personnel data, documentation on service initiatives to address factors contributing to fighter pilot shortages, and service documentation of requirements; met with a non-generalizable sample of fighter pilots at seven locations; and interviewed DOD and service officials.

What GAO Found

The Air Force, the Navy, and the Marine Corps had gaps between the actual numbers of fighter pilots and authorizations (i.e. funded positions) in fiscal years (FY) 2013 through 2017. In FY 2017 the Air Force's gap was the widest at 27 percent of authorizations (see fig. below) and is projected to continue through FY 2023. The Marine Corps' gap grew from 6 percent in FY 2006 to 24 percent in FY 2017; it is concentrated in fighter pilots below the rank of major. While the Navy did not have comparable data, it had a gap at fighter pilots' first operational tours that grew from 12 percent in FY 2013 to 26 percent in FY 2017, and Navy officials stated it could increase through mid-2019. Service officials attributed these gaps to aircraft readiness challenges, reduced training opportunities, and increased attrition of fighter pilots due to career dissatisfaction. To help increase fighter pilot numbers, the military services are taking actions, including increasing the amounts of financial incentives to retain pilots.
The military services have not recently reevaluated squadron requirements to reflect increased fighter pilot workload and the emergence of unmanned aerial systems (UAS). According to service guidance, squadron requirements are to be reviewed on a 2-year schedule and to be updated as conditions change (in June 2017 the Navy revised its guidance to extend its schedule from 2 years to 5 years). However, service officials acknowledged that they have not updated all squadron requirements within the last 2 years. These officials stated that the requirements have not been reevaluated because existing conditions do not warrant the change. However, fighter pilots and squadron leaders interviewed at locations GAO visited consistently stated that the typical workload has significantly increased in recent years due to, among other things, changes in fighter aircraft tactics and technology and reductions to administrative support in squadrons. Further, the military services have not assessed the effect of increased reliance on UAS on fighter pilot requirements. The Air Force's vision for UAS notes that systems will work in tandem with cockpit-operated aircraft and that autonomous technologies will potentially lead to personnel efficiencies. Without re-evaluating squadron requirements to reflect current and emerging conditions, the nature of the gap may be inaccurate and thus make it difficult for the military services to target strategies to meet their personnel needs.

What GAO Recommends

GAO recommends that the Air Force, the Navy, and the Marine Corps reevaluate fighter pilot squadron requirements. DOD concurred with the recommendations.