Operation Iraqi Freedom
Long-standing Problems Hampering Mail Delivery Need to Be Resolved Gao ID: GAO-04-484 April 14, 2004Mail is a morale booster for troops fighting overseas and for their families at home. More than 65 million pounds of letters and parcels were delivered to troops serving in Operation Iraqi Freedom in 2003 and problems with prompt and reliable mail delivery surfaced early in the conflict. Congress and the White House forwarded more than 300 inquiries about mail delivery problems to military postal officials. GAO was directed to review mail delivery to troops stationed in the Middle East. In this report, GAO assesses (1) the timeliness of mail delivery to and from troops in Operation Iraqi Freedom, (2) how mail delivery issues and problems during this operation compared with those experienced during Operations Desert Shield/Storm in 1991, and (3) efforts to identify actions to resolve problems in establishing mail operations for future contingencies.
The timeliness of mail delivery to troops serving in Operation Iraqi Freedom cannot be accurately assessed because the Department of Defense (DOD) does not have a reliable, accurate system in place to measure timeliness. In general, DOD's transit time and test letter data show that mail delivery fell within the current wartime standard of 12 to 18 days. However, the methodology used to calculate transit times significantly understated actual delivery times. In the absence of reliable data, GAO conducted discussion groups with a non-representative sample of 127 service members who served in-theater. More than half reported they were dissatisfied with mail delivery, underscoring the negative impact it can have on troop morale. Despite differences in operational theaters and efforts by DOD postal planners to incorporate Operations Desert Shield/Storm experiences into planning for Operation Iraqi Freedom, postal operations faced many of the same problems: difficulty with conducting joint-service mail operations; postal personnel who were inadequately trained and initially scarce owing to late deployments; and inadequate postal facilities, equipment, and transportation. The operations plan created for joint-service mail delivery contained certain assumptions key to its success but led to unforeseen consequences or did not occur. Also, plans for a Joint Postal Center were not fully put in place. One lesson learned from 1991 was carried out with success during Operation Iraqi Freedom: mail was transported overseas by dedicated contractor airlifts rather than by military. DOD has not officially tasked any entity to resolve the long-standing postal problems experienced during contingency operations. Moreover, the Military Postal Service Agency does not have the authority to ensure that these problems are addressed jointly. This agency and the military services, however, have taken some steps toward tackling these issues.
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Director: Team: Phone:GAO-04-484, Operation Iraqi Freedom: Long-standing Problems Hampering Mail Delivery Need to Be Resolved
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Report to Congressional Committees:
United States General Accounting Office:
GAO:
April 2004:
Operation Iraqi Freedom:
Long-standing Problems Hampering Mail Delivery Need to Be Resolved:
GAO-04-484:
GAO Highlights:
Highlights of GAO-04-484, a report to the Senate and House Committees
on Armed Services and the Subcommittees on Defense, Senate and House
Committees on Appropriations
Why GAO Did This Study:
Mail is a morale booster for troops fighting overseas and for their
families at home. More than 65 million pounds of letters and parcels
were delivered to troops serving in Operation Iraqi Freedom in 2003 and
problems with prompt and reliable mail delivery surfaced early in the
conflict. Congress and the White House forwarded more than 300
inquiries about mail delivery problems to military postal officials.
GAO was directed to review mail delivery to troops stationed in the
Middle East. In this report, GAO assesses (1) the timeliness of mail
delivery to and from troops in Operation Iraqi Freedom, (2) how mail
delivery issues and problems during this operation compared with those
experienced during Operations Desert Shield/Storm in 1991, and (3)
efforts to identify actions to resolve problems in establishing mail
operations for future contingencies.
What GAO Found:
The timeliness of mail delivery to troops serving in Operation Iraqi
Freedom cannot be accurately assessed because the Department of
Defense (DOD) does not have a reliable, accurate system in place to
measure timeliness. In general, DOD's transit time and test letter data
show that mail delivery fell within the current wartime standard of 12
to 18 days. However, the methodology used to calculate transit times
significantly understated actual delivery times. In the absence of
reliable data, GAO conducted discussion groups with a non-
representative sample of 127 service members who served in-theater.
More than half reported they were dissatisfied with mail delivery,
underscoring the negative impact it can have on troop morale.
Despite differences in operational theaters and efforts by DOD postal
planners to incorporate Operations Desert Shield/Storm experiences into
planning for Operation Iraqi Freedom, postal operations faced many of
the same problems: difficulty with conducting joint-service mail
operations; postal personnel who were inadequately trained and
initially scarce owing to late deployments; and inadequate postal
facilities, equipment, and transportation. The operations plan created
for joint-service mail delivery contained certain assumptions key to
its success but led to unforeseen consequences or did not occur. Also,
plans for a Joint Postal Center were not fully put in place. One lesson
learned from 1991 was carried out with success during Operation Iraqi
Freedom: mail was transported overseas by dedicated contractor airlifts
rather than by military.
DOD has not officially tasked any entity to resolve the long-standing
postal problems experienced during contingency operations. Moreover,
the Military Postal Service Agency does not have the authority to
ensure that these problems are addressed jointly. This agency and the
military services, however, have taken some steps toward tackling these
issues.
What GAO Recommends:
GAO is recommending that the Secretary of Defense (1) implement a new
system to accurately track, calculate, and report postal transit times
and (2) consolidate lessons learned from Operation Iraqi Freedom and
develop and implement a specific course of action to resolve them. DOD,
in its formal review of this report, fully concurs with GAO‘s
recommendations and has begun taking steps to implement them.
www.gao.gov/cgi-bin/getrpt?GAO-04-484.
To view the full product, including the scope and methodology, click on
the link above. For more information, contact Neal P. Curtin, (757)
552-8100, curtinn@gao.gov.
[End of section]
Contents:
Letter:
Results in Brief:
Background:
Timeliness of Mail Delivery Cannot Be Accurately Determined:
Many Problems Identified in Operations Desert Shield/Storm Continued to
Hamper Mail Delivery in Operation Iraqi Freedom:
Various Military Postal Units Have Identified Solutions to Postal
Problems, but No Mechanism Is in Place to Ensure Their Consolidation
and Resolution:
Conclusions:
Recommendations for Executive Action:
Agency Comments and Our Evaluation:
Appendix I: Scope and Methodology:
Appendix II: Comments from the Department of Defense:
Tables:
Table 1: Example of How Methodology Is Used:
Table 2: Planning Assumptions, Actions and Their Effects:
Figures:
Figure 1: Mail Flow into Iraqi Theater:
Figure 2: Mail Handlers at the Joint Military Mail Terminal in Kuwait:
Figure 3: Truck Convoy Carrying Mail outside of Kuwait City:
Figure 4: Average Transit Times for Parcels and Letters, as Reported by
the Transit Time Information Standard System for Military Mail, from
February through September 2003:
Figure 5: Test Letter Average Monthly Transit Times:
Figure 6: Damaged Parcels at Camp Pendleton, California:
Figure 7: Number of Days Army Reserve Postal Units Spent at
Mobilization Stations:
Figure 8: Rough Terrain Container Handler (left) and Rough Terrain Fork
Lift (right) at the Joint Military Mail Terminal in Kuwait, December
2003:
Abbreviations:
DOD: Department of Defense:
GAO: General Accounting Office:
United States General Accounting Office:
Washington, DC 20548:
April 14, 2004:
Congressional Committees:
On March 19, 2003, coalition forces led by the United States began
Operation Iraqi Freedom. The operation required a high level of
coordination and planning, especially in the area of support for the
war fighting troops. One such area of support--and a necessary
component in the maintenance of service members' morale--was postal
operations. Effective postal operations are important to both the
troops stationed in theater and for their families and friends at home.
Even though alternative methods of communicating, such as the Internet
and mobile phones, became available to some troops and their families
for the first time during Operation Iraqi Freedom, the mail remained
the main form of communication and the delivery of goods.
More than 65 million pounds of letters and parcels were delivered to
U.S. Central Command's contingency area of responsibility during
calendar year 2003. U.S. Central Command is the combatant command for
Operation Iraqi Freedom. The largest amount moved in a single month was
April 2003, when over 11 million pounds of mail was delivered. This
represents an average of just over 377,000 pounds per day-the
equivalent of about forty 40-foot-long trailers full of mail.
Problems with the prompt and reliable delivery of mail to troops during
Operation Iraqi Freedom surfaced during the first months of the
conflict and continued throughout. From February 23, 2003, through
November 3, 2003, Congress and the White House forwarded to military
postal officials more than 300 inquiries concerned with the delivery of
mail to and from troops stationed in theater. The majority of these
inquiries dealt with the failure of troops to receive mail sent by
their families and friends and with other criticisms of the postal
operations. The volume of inquiries served as an indication that postal
operations serving Operation Iraqi Freedom were experiencing problems.
The Department of Defense (DOD) Appropriations Act, 2004, and also the
Senate Report to the National Defense Authorization Act for Fiscal Year
2004, directed that we review mail delivery to troops stationed in the
Middle East and compare delivery efficiency issues from Operation
Desert Storm with those of Operation Iraqi Freedom.[Footnote 1] As
agreed with your offices, in this report we assess (1) the timeliness
of mail delivery to and from troops stationed in the Gulf Region, (2)
how mail delivery issues and problems experienced during Operation
Iraqi Freedom compare with those during Operations Desert Shield/Storm,
and (3) efforts to identify actions to resolve problems for future
contingencies.
To address these objectives, we obtained and reviewed DOD guidance for
military postal operations. We collected, analyzed, and assessed the
reliability of transit time data. We interviewed DOD and Joint Staff
officials in charge of developing policy for postal operations and key
postal officials stationed at various postal agencies in the United
States, Iraq, Kuwait, and Bahrain about their views on the
implementation of postal operations. We conducted discussion groups
with a non-representative sample of 127 soldiers and marines serving in
Operation Iraqi Freedom to obtain their opinions on the quality of mail
service during the conflict. We conducted our review from August 2003
through March 2004 in accordance with generally accepted government
auditing standards. Further information on our scope and methodology
appears in appendix I.
Results in Brief:
The timeliness of the mail delivery to troops serving in Operation
Iraqi Freedom cannot be accurately determined because DOD does not have
a reliable, accurate system in place to measure timeliness. Transit
time data reported by the Transit Time Information Standard System for
Military Mail show that average transit times for letter and parcels
into the theater consistently fell within the 11-to 14-day range--well
within the current wartime standard of 12 to 18 days. However, we
determined that the method used to calculate these averages
consistently masks the actual times by using weighted averages that
result in a significant understating of transit times. A second source
of data--test letters that were sent to individual service members at
military post offices by the Military Postal Service Agency from
February through September 2003--indicate that mail delivery, on
average, met the wartime standard during all but 1 month. However, we
found that a significant number of test letters were never returned and
that test letters do not accurately measure transit time to the
individual service member because they are sent only to individuals
located at military post offices. It could take several more days for
mail to get to forward-deployed troops. Even though the data show
otherwise, military postal officials acknowledge that mail delivery to
troops serving in Operation Iraqi Freedom was not timely. Therefore, in
the absence of reliable data to describe timeliness, we conducted
discussion groups with a non-representative sample of 127 soldiers and
marines who served in theater. While their responses cannot be
projected, more than half said they were dissatisfied with mail
delivery, many waiting 4 weeks or longer to get mail. Moreover, some
troops received certain pieces of mail only after they returned home to
their stateside installations. According to this group of soldiers, one
of the issues that hampered mail delivery was that postal information
was not able to keep up with changing deployment information.
Furthermore, these soldiers stated that these problems and delays had a
negative impact on the morale of deployed troops, as mail was often
their only link with family and friends at home.
Despite differences in operational theaters and an effort by postal
planners to incorporate Operations Desert Shield/Storm experiences into
the planning for Operation Iraqi Freedom, many of the same problems
were encountered. These problems include (1) difficulty in conducting
joint-service postal operations; (2) inadequately trained and initially
scarce postal personnel owing to late deployments; and (3) inadequate
postal facilities, heavy material-handling equipment, and
transportation assets to handle the initial mail surge. U.S. Central
Command created an operations plan for joint mail delivery, but some of
the planning assumptions were flawed and the plan was not fully
implemented. This plan included several assumptions that were key to
its success, but certain assumptions produced unforeseen negative
consequences and others were not implemented or were unrealistic. For
example, the elimination of mail addressed to "any service member"
increased the number of parcels because senders found ways around the
restriction. In addition, plans to restrict the size and weight of
letters and parcels until adequate postal facilities had been
established were never enacted; and the initial surge of mail exceeded
the planned estimate, overburdening the developing mail system. The
plan also directed that a Joint Postal Center--comprising postal
officials from all services--manage and coordinate joint postal
operations in theater. However, this effort was not fully implemented,
and joint mail delivery suffered as a result. The Military Postal
Service Agency did implement one strategy that proved to be successful
as a result of lessons learned from Operations Desert Shield/Storm.
Dedicated contractor airlift of mail into the contingency area was
employed, avoiding the necessity of competing for military air cargo
capacity, which greatly improved the regularity of mail service to the
theater.
No single entity has been officially tasked to resolve the long-
standing postal problems seen again during Operation Iraqi Freedom.
Military postal officials have begun to identify solutions to some of
these issues. However, despite early efforts made by the Military
Postal Service Agency to consolidate problems and identify solutions,
this agency does not have the authority to ensure that these problems
are jointly addressed and resolved prior to the next military
contingency. During our meetings with dozens of key military postal
officials serving during Operation Iraqi Freedom, we collected
memoranda, after action reports, and their comments regarding the
postal issues and problems that should be addressed to avoid a
repetition of the same postal problems in future contingencies. These
issues include: improving joint postal planning and ensuring joint
execution of that plan; early deployment of postal troops; preparing
updated tables of organization and equipment for postal units;
improving peacetime training for postal units; and reviewing the
command and control of postal units in a joint theater. The Military
Postal Service Agency hosted a joint postal conference in October 2003
to discuss postal problems with dozens of key postal participants in
Operation Iraqi Freedom and is currently in the process of
consolidating these issues into a single document with the intent of
developing plans to resolve the issues. In addition, the service
components and the Military Postal Service Agency have taken some
initial steps in employing alternative mail delivery and tracking
systems.
We are making several recommendations aimed at (1) establishing a
system that will accurately track, calculate, and report postal transit
times and (2) designating responsibility and providing sufficient
authority within the department to address and fix long-standing postal
problems identified in this report. In written comments on a draft of
this report, the Department of Defense stated that it concurred with
our recommendations and has directed the Military Postal Service Agency
to (1) implement a more accurate system to track and report postal
transit times and (2) facilitate and track corrective actions taken by
DOD entities specified in the Joint Services After Action Report
following the Joint Service Postal Conference held in October 2003.
Background:
The Postal Reorganization Act of 1970 created the independent U.S.
Postal Service and authorized it to make arrangements with DOD
regarding the performance of military postal services.[Footnote 2] Each
military service managed its own mail program until 1980, when DOD and
the U.S. Postal Service entered into an agreement for the joint
provision of postal services for all branches of the armed forces. The
agreement created the Military Postal Service Agency, which acts as an
extension of the U.S. Postal Service beyond the boundaries of U.S.
sovereignty and must provide full postal services, as nearly as
practicable, for all DOD personnel overseas where there is no U.S.
Postal Service available.[Footnote 3] The Military Postal Service
Agency is DOD's single manager for military postal functions. Although
this joint service agency is organizationally located under the Army
Adjutant General and depends on the Army for funding and staffing, the
Under Secretary of Defense (Acquisitions, Technology, and Logistics) is
responsible for the agency's policies and oversight.
In October 2002, several months prior to U.S. and coalition troops
crossing the border into Iraq, a joint planning conference was held at
U.S. Central Command--the designated combatant command for Operation
Iraqi Freedom. The U.S. Central Command hosted the conference, bringing
together postal officials from all four military components, as well as
the U.S. Postal Service and the Military Postal Service Agency. The
conference led to the creation of a U.S. Central Command postal
operating plan that assigned roles and responsibilities for all joint
postal operations during the impending contingency.
The DOD doctrine for joint military operations states that postal
support for any contingency is coordinated by the combatant command in
the region. The combatant commander appoints a single-service postal
manager to direct, implement, and manage all postal operations in the
joint theater. Since the Gulf War in 1991, the single-service manager
for postal operations in the U.S. Central Command area of
responsibility has been the Air Force's 82nd Computer Support Squadron,
currently assigned to the Air Force's Air Combat Command. However, U.S.
Central Command has the overriding responsibility for all operations in
theater, including postal operations.
The movement of mail from the Unites States to troops in the Iraqi
theater follows several complex logistical steps. Letters and parcels
with military addresses destined to Iraq, Kuwait, and Bahrain are sent
to one of four International Mail Gateways--New York, San Francisco,
Chicago and Miami--for processing. According to Military Postal Service
Agency data, 90 percent of all letters and parcels for Operation Iraqi
Freedom were processed through New York. The U.S. Postal Service
delivers letters to the International Service Center at John F. Kennedy
Airport, in New York; parcels are delivered to the Postal Service's
International and Bulk Mail Center in New Jersey. After the letters and
parcels are sorted, they are then packaged, placed into containers, and
then transferred to Newark International Airport in New Jersey where
they are loaded onto airplanes for transport to the Iraqi
theater.[Footnote 4] Unlike during Operations Desert Shield/Storm,
where military planes operated by the Military Airlift Command
transported much of the mail, a dedicated contractor aircraft carried
mail during Operation Iraqi Freedom.
During the next stage of mail movement, the mail planes fly to aerial
mail terminals colocated at the international airports in Kuwait and
Bahrain. Once landed, local airport ground handlers offload the mail
containers from the planes and take them to an Air Force Mail Control
Activity located at the airport, where the mail is staged for ground
transportation. In Bahrain, mail for service members stationed in Iraq
is processed at the U.S. Air Force Mail Control Activity; mail for
service members located in Bahrain or aboard ships is processed at the
U.S. Fleet Mail Center. For troops stationed in Iraq, mail is
transferred onto a contracted cargo plane and flown directly into
Iraq.[Footnote 5] In Kuwait, all mail is processed at the Joint
Military Mail Terminal. Figure 1 illustrates two different examples of
how military mail flows from the Newark International Airport into the
Iraqi theater.
Figure 1: Mail Flow into Iraqi Theater:
[See PDF for image]
[End of figure]
The Joint Military Mail Terminal, which handles the bulk of the letters
and parcels entering the Iraqi theater, sorts the mail and arranges for
its transportation--either by land or by air--to the various regions
occupied by U.S. troops. Mail must be delivered to the unit level,
designated by ZIP codes provided by the Military Postal Service Agency,
before it can be distributed to individual service members. Figure 2
illustrates postal operations and a backlog of mail in February 2003 at
the Joint Military Mail Terminal in Kuwait.
Figure 2: Mail Handlers at the Joint Military Mail Terminal in Kuwait:
[See PDF for image]
[End of figure]
According to the Military Postal Service Agency, more than 65 million
pounds of letters and parcels were delivered to U.S. Central Command's
contingency area of responsibility during calendar year 2003 at a cost
of nearly $150 million. The largest amount moved in a single month was
April 2003, when over 11 million pounds of mail were delivered. This
represents an average of just over 377,000 pounds per day--the
equivalent of about forty 40-foot-long trailers full of mail. Figure 3
illustrates a convoy of trucks carrying 40-foot trailers of mail
leaving the Kuwait Joint Military Mail Terminal.
Figure 3: Truck Convoy Carrying Mail outside of Kuwait City:
[See PDF for image]
[End of figure]
Timeliness of Mail Delivery Cannot Be Accurately Determined:
The timeliness of mail delivery to troops serving in Operation Iraqi
Freedom cannot be accurately determined because DOD does not have a
reliable, accurate system in place to measure timeliness. Data
collected by military postal units using the Transit Time Information
Standard System for Military Mail indicate that average delivery times
met the Army wartime standard of 12 to 18 days.[Footnote 6] However,
the methodology used to calculate and report these times consistently
masks the actual time it takes for service members to receive mail,
thus significantly understating actual delivery times. Test letters
sent to individuals at military post offices also have produced
unreliable data because many test letters were never returned, and
letters were sent only to individuals located at military post offices.
Military postal officials acknowledge that mail delivery to troops
serving in Operation Iraqi Freedom was not timely. In addition, more
than half of the 127 soldiers and marines we talked with during
informal meetings at their home bases in the United States said they
were dissatisfied with the timeliness of mail delivery while they were
deployed. Morale suffered, as mail from home was many service members'
only link with friends and families.
DOD Reported That Average Postal Transit Times Met Wartime Standard,
but Methodology to Calculate It Is Flawed:
The Army's wartime standard for first class mail delivery is 12 to 18
days from the point of origin to the individual service member.
According to our analysis of data reported by the Transit Time
Information Standard System for Military Mail[Footnote 7], average
postal transit times for letters and parcels sent to the Iraqi theater
ranged from 11 to 14 days from February through September 2003. (See
fig. 4.) These times represent the time it takes for a letter or parcel
to go from its point of origin (a stateside post office) to a service
member's designated military post office, where he or she picks up
mail.
Figure 4: Average Transit Times for Parcels and Letters, as Reported by
the Transit Time Information Standard System for Military Mail, from
February through September 2003:
[See PDF for image]
[End of figure]
However, on the basis of our analysis, we found that the methodology
used to calculate and report transit times significantly understates
the actual time it takes for a service member to receive mail.
According to Transit Time Information Standard System for Military Mail
guidance, transit times should be reported by postal units in theater
on the basis of a random sample of all incoming letters and all
incoming packages arriving at military post offices in the Iraqi
theater. The samples are then divided into three categories according
to the date of the U.S. postmark: postmark less than 10 days old,
postmark 11 to 15 days old, and postmark over 16 days old. Each of
these three categories is given a weight value of 10, 15, and 16,
respectively, which represent the break points of each category. The
sample size (number of letters or packages sampled) in each category is
then multiplied by the weight value and averaged to get the reported
transit time. Consequently, regardless of the sample size or the actual
number of days the items spent in transit, the resulting average will
always be from 10 to 16 days. For example, a piece of mail that spent
100 days in transit would be counted in the same category and weighted
the same as one that only took 16 days. Similarly, a piece of mail that
spent 4 days in transit would be counted in the same category as one
that took 10, and again weighted the same. (See table 1 for an example
of how this methodology is used to calculate transit times.):
Table 1: Example of How Methodology Is Used:
Category: 10 days or less;
Number in sample: 100;
Weight value: 10;
(sample size) x (weight): 1,000.
Category: 11 to 15 days;
Number in sample: 100;
Weight value: 15;
(sample size) x (weight): 1,500.
Category: 16 days or greater;
Number in sample: 100;
Weight value: 16;
(sample size) x (weight): 1,600.
Category: Total;
Number in sample: 300;
(sample size) x (weight): 4,100.
Category: Average;
Number in sample: (4,100)/(300) = (sample size) x (weight): 13.67 days.
Source: GAO.
[End of table]
This methodology is even less viable when one considers that during the
peak of wartime operations, all mail destined for Iraq was held at the
joint military mail terminal in Kuwait for 23 days (late March through
mid-April) because of the rapid pace of troop movements.[Footnote 8]
However, this 23-day hold on mail is not reflected in the transit time
data, as the "weighted average" methodology masks the calculation, thus
significantly understating actual transit time.
Officials at the Military Postal Service Agency and at the Army's 3rd
Personnel Command--the Army entity providing in-theater postal support
during Operation Iraqi Freedom--could not provide documentation that
described this methodology. We reviewed the Transit Time Information
Standard System for Military Mail guidance, the standard that explains
and prescribes how military postal activities collect mail transit time
data, and could not find any mention of this particular methodology.
Only 3rd Personnel Command, the source of the transit time data, was
aware that the transit times were being reported in this manner.
According to a 3rd Personnel Command official, it had always been done
this way. We discussed the methodology with Military Postal Service
Agency officials. While they acknowledge that the Transit Time
Information Standard System is the official tracking system, they were
not aware that this particular methodology was being employed, and
moreover could not tell us why it was being used.
Test Letter Data Showed Mail Delivery Met Standard, but Information Is
Incomplete:
In order to collect transit times on retrograde mail (which the Transit
Time Information Standard System for Military Mail does not collect) as
well as prograde mail,[Footnote 9] the Military Postal Service Agency
sent test letters to individuals located at military post offices
within the contingency area of responsibility. The letters contained
instructions asking the recipient to mark the date received and then
return them through the military postal system. The test letter data--
derived from letters sent by the Military Postal Service Agency from
February through September 2003--indicate that, on average, prograde
transit times met the Army standard of 12 to 18 days during all but 1
month. The only exception was April 2003, when average transit time
peaked at 19 days. (See fig. 5.) However, this average obscures the
fact that nearly 25 percent of the test letters took more than 18 days
to be delivered to the Iraqi theater. Retrograde test letters were not
as timely, failing to meet the 12-to 18-day standard during 2 months.
Figure 5: Test Letter Average Monthly Transit Times:
[See PDF for image]
[End of figure]
In addition, the Military Postal Service Agency initially only sent
test letters to individuals at military post offices in Kuwait and
Bahrain. It was not until August 2003 that test letters were sent to
locations in Iraq as well. Therefore, the aforementioned 23-day hold on
mail bound for units in Iraq would not have affected transit time data
as reported by test letters.
Information based on test letters sent to individuals located at
military post offices is not a complete measure of transit times
because many letters were never returned. Between February and
September 2003, the Military Postal Service Agency sent more than 1,700
test letters to service members at military post offices in various
locations in Kuwait, Bahrain, and Iraq. Based on our analysis of the
agency's data, we found that only 59 percent (1,028) of the letters
were returned. In addition, of the more than 700 letters that failed to
return, we determined that 25 percent had been sent to individuals
located at post offices in or near the northern Iraqi cities of Kirkuk
and Mosul. However, only one letter from each of these locations was
ever returned out of about 180 letters mailed. Unfortunately, there is
no way of telling whether or not these or any of the other unreturned
test letters were ever actually received.
There are other drawbacks with this test letters approach. For example,
it does not accurately measure the transit time from point of origin to
the individual service member. Test letters were addressed only to
individuals located at military post offices, and not to service
members located in forward-deployed combat units. It could take several
additional days for service members deployed elsewhere to receive mail
from such locations. Also, this approach used only letters, not
parcels, and parcels comprised the bulk of mail sent into the theater.
Service Members Express Dissatisfaction with Mail Service:
In the absence of reliable data to describe timeliness, we held
discussions with a non-representative sample of 127 soldiers and
marines who served in theater, and who were selected prior to our
visits to Fort Stewart, Georgia, and Camp Pendleton, California. Almost
60 percent of these service members indicated that they were
dissatisfied with the timeliness of mail delivery. Nearly half said
that, after arriving in theater, they waited more than 4 weeks to get
their mail, and many commented that some mail took as long as 4 months
to work its way through the system. When asked, about half the troops
we interviewed also indicated that they were not aware of command
decisions to purposefully halt mail service. In addition, nearly 80
percent said that they were aware of mail that was sent to them but
that they did not receive while they were deployed. In many cases, this
mail was finally received after the service members returned to their
home stations. Clearly, the non-receipt of mail became a concern for
friends and family back home.
Many service members told us that they did not receive certain pieces
of mail until they returned to their stateside home installations. For
example, starting in June 2003, Camp Pendleton, California, received
about 100,000 pounds of military mail that had been returned
undelivered and unopened to the U.S. Postal Service gateway in New
York--at a cost of about $93,000. Upon receipt in New York, the mail was
sent by rail to the U.S. Postal Service gateway in San Francisco and
then put in trailers and trucked to Camp Pendleton. Extra space
considerations were needed in order to accommodate the returned mail,
including two tents staged outside of the main post office for
overflow. Many of the returned packages were damaged and rewrap
procedures had to be established in order to try and control packages
that were all but destroyed from being mishandled or handled too often.
(See fig. 6.) Postal officials at Camp Pendleton did not clear out and
deliver all of this returned mail for the better part of 3 months, or
until the latter part of August 2003.
Figure 6: Damaged Parcels at Camp Pendleton, California:
[See PDF for image]
[End of figure]
According to soldiers we interviewed, one of the issues that hampered
mail delivery was changing deployment information. Mail delivery to the
Army's 3rd Infantry Division was stopped when word was received that
the division was about to redeploy. When this plan changed and the
division did not redeploy, mail started to flow again. The division was
told several times that it would be redeployed and then it did not;
each time, when deployment was thought to be imminent, mail delivery
was stopped. This created a backlog. When the 3rd Infantry Division
finally did redeploy, the 1st Brigade of the 3rd Infantry Division
stayed behind and was assigned to the 1st Armored Division. But this
information was not disseminated, and the 1st Brigade received no more
mail while in theater.
Many Problems Identified in Operations Desert Shield/Storm Continued to
Hamper Mail Delivery in Operation Iraqi Freedom:
Despite differences in operational theaters and an effort by postal
planners to consider experiences from Operations Desert Shield/Storm in
planning for Operation Iraqi Freedom, many of the same problems
continued to hamper postal operations during Operation Iraqi Freedom.
These problems include (1) difficulty with implementing joint-service
postal operations, (2) postal personnel who were inadequately trained
and initially scarce because of late deployments, and (3) inadequate
postal facilities, material-handling equipment, and transportation
assets to handle mail surge.
During January 1991, at the height of Operations Desert Shield/Storm,
more than 500,000 U.S. troops supported a ground war that lasted a
little more than 4 days. These troops were concentrated in camps
located in Kuwait and Saudi Arabia near the borders of Kuwait and Iraq.
In contrast, Operation Iraqi Freedom involved about half the number of
troops (about 250,000), dispersed over a larger geographical area (all
of Kuwait and Iraq), and involved a ground war that lasted about 42
days. This greater dispersion of troops for a longer period of time
increased the logistical requirements for delivering the mail.
Additionally, although the ground war for Operation Iraqi Freedom is
officially over, there is an ongoing requirement to provide timely and
efficient postal support for a large number of personnel still in
theater, fighting the global war on terrorism.
Implementation of Joint Postal Operations Fell Short:
Several key planning assumptions used in the creation of U.S. Central
Command's postal plan for Operation Iraqi Freedom proved problematic.
The embargo on Any Service Member mail[Footnote 10] produced unintended
negative results; mail restrictions for the first 30 days in theater
were never enacted; and the volume of mail was grossly underestimated.
Table 2 summarizes these key assumptions, the actions taken, and the
consequences of those actions.
Table 2: Planning Assumptions, Actions and Their Effects:
Assumption: Any Service Member mail would be discontinued;
Action: Any Service Member mail was discontinued;
Effect: Persons and organizations sent multiple packages to individual
service members to work around the restriction. Parcel volume increased
as a result.
Assumption: Mail into theater would be restricted to letters for at
least the first 30 days of the operation or until the proper
infrastructure was in place to handle increased volumes;
however, even letters would be stopped if conditions (lack of
facilities, transportation, or personnel) warranted;
Action: Mail was never restricted;
Effect: The mail flowed into theater unrestricted, overtaxing the
limited mail handlers and facilities in place and creating huge
backlogs of mail.
Assumption: Mail volume would amount to about 0.5 pounds of mail per
service member per day if restrictions were in place, or 1.5 pounds per
service member per day if they were not;
Action: Early mail surges reached about 5 pounds per service member per
day;
Effect: Only limited facilities were in place;
huge backlogs of mail were created owing to lack of manpower,
facilities, and equipment.
Source: GAO.
[End of table]
Because Any Service Member mail caused delays in the delivery of other
personal mail and stressed the logistical system during Operations
Desert Shield/Storm, postal plans for Operation Iraqi Freedom placed an
embargo on this type of mail. Defense officials also discontinued Any
Service Member mail for security reasons following the Anthrax scares
of 2001. During Operations Desert Shield/Storm, Any Service Member mail
acted as a morale booster because it provided mail to troops who might
not have received mail otherwise. From an operations standpoint, this
mail could be separated and set aside until individually addressed mail
had been processed. However, the volume of Any Service Member mail
taxed transportation and storage capabilities. In order to prevent
similar problems during Operation Iraqi Freedom, planners placed an
embargo on Any Service Member mail. Despite this, individuals and
organizations sending mail developed "workarounds" that overwhelmed the
postal system and contributed to a slowdown in service. Instead of
addressing mail to "Any Service Member," senders addressed their
letters and parcels to specific individuals, enclosing a request that
they share the mail with other troops. Because this mail was addressed
to specific individuals, postal personnel had to treat it as regular
mail and could not separate it and set it aside for later processing.
These "workarounds" added to the workload at every stage in the mail
delivery process. For example, when we visited the Joint Military
Postal Activity in San Francisco, California, we observed one of these
"workaround" shipments. It consisted of approximately 40 boxes, each
weighing about 8 to10 pounds. They were all addressed to the same
recipient and came from a charitable service organization. This one
shipment required its own handcart and almost one-quarter of an
airline-shipping container.
A second key assumption that did not have the intended result involved
mail restrictions. Drawing from the lessons learned from Operations
Desert Shield/Storm, postal planners for Operation Iraqi Freedom
assumed that mail would be restricted to personal first-class letters
or sound/video recordings that weighed 13 ounces or less for the first
30 days of operations. At the beginning of Operation Iraqi Freedom,
Military Postal Service Agency and Army postal officials in theater
asked that these restrictions be imposed. However, U.S. Central Command
officials did not approve the request because, according the U.S.
Central Command postal planner, they believed that a sufficient
appropriate postal infrastructure was in place to handle the mail. As a
result, the mail continued to flow into theater, overtaxing the limited
mail handlers and facilities in place and creating huge backlogs of
mail.
Underestimating the volume of mail was the third planning assumption
that created problems for the mail system. Postal planners in Operation
Iraqi Freedom assumed that the volume of mail per person would be less
than it actually was. They estimated that there would be from 0.5 and
1.5 pounds of first class mail per person per day based on data from
previous contingency operations. Instead, military officials estimate
that the initial surge of mail averaged closer to 5 pounds per day,
overburdening the developing mail system. According to the Military
Postal Service Agency and Air Force Postal Policy and Operations
officials we interviewed, of the total volume of mail shipped, more
than 80 percent consisted of parcels and the rest consisted of flat
mail. The mail volume per soldier was much higher than that seen in
Operations Desert Shield/Storm. For example, mail volume reached a
monthly peak of 10 million pounds in Operations Desert Shield/Storm for
about 500,000 troops compared with a monthly peak of 11 million pounds
in Operation Iraqi Freedom for half as many troops. Consequently,
during Operation Iraqi Freedom, the necessary facilities and manpower
needed to move this higher volume of mail were not initially available
in theater.
Coordination of Joint Postal Operations Fell Short:
In addition to problematic postal planning assumptions, the single
service manager concept was not enacted to ensure the management of
joint postal operations. In both Operation Iraqi Freedom and Operations
Desert Shield/Storm, the single-service manager concept did not perform
as planned. The single-service manager is assigned by the combatant
commander to be the manager and point of contact on all postal issues
in the area of responsibility.[Footnote 11] The single-service manager
is normally appointed from one of the military components, generally
the component with the most postal resources in theater. During
Operations Desert Shield/Storm, the single-service manager was the same
for both the peacetime and the contingency areas of responsibility.
According to lessons learned from Operations Desert Shield/Storm, the
use of the peacetime single-service manager was unsuccessful because of
a lack of coordination and cooperation between the components.
To overcome this problem, U.S. Central Command, through its operations
plan, directed the establishment of a Joint Postal Center-to be manned
by representatives from all components-to oversee all mail operations
in the contingency area and assume the duties and responsibilities of
the single-service manager. The operations plan states that a Joint
Postal Center be established and that the peacetime single-service
manager for the area of responsibility:
* provide postal personnel, resources, and equipment to support the
Joint Postal Center as required;
* continue to oversee military postal operations in the area of
responsibility not in the contingency area; and:
* relinquish policy and oversight responsibilities of postal operations
in the contingency area of responsibility to the Joint Postal Center
once it is operational.
U.S. Central Command postal officials told us that neither the Joint
Postal Center nor the single-service manager performed according to the
approved plan or as expected. The Joint Postal Center did not fully
assume the role of the in-theater single-service manager, as it arrived
late in theater, was not supported by all of the components, and was
undermanned. In the interim, the peacetime single-service manager for
U.S. Central Command did not have adequate personnel to assume the role
for the contingency area of responsibility. According to
representatives from the designated single-service manager, they were
unable to provide full-time staff in theater and could not adequately
manage operations from their home station in the United
States.[Footnote 12] By the time the Joint Postal Center's personnel
began arriving in theater in February 2003, the different components
had already been receiving large quantities of mail and had established
their own postal operations. In January 2003 the Commander of the
Army's 3rd Personnel Command assumed responsibility for postal
operations supporting the combined land forces (Army and Marines) and
was making decisions that affected the flow of mail for the theater, a
responsibility the Army was not resourced to assume.
Postal Personnel Inadequately Trained and Initially Scarce Owing to
Late Deployments:
In both Operations Desert Shield/Storm and Operation Iraqi Freedom,
postal units lacked sufficient training. According to lessons learned
from Operations Desert Shield/Storm military postal operations need to
be staffed with trained personnel who are familiar with postal
operations and the movement of mail. Similar problems surfaced during
Operation Iraqi Freedom. Military postal officials told us that Army
postal personnel arriving in theater were largely untrained in
establishing and managing military postal operations, as they are
traditionally not tasked for this type of duty. Usually, Army postal
personnel are tasked to support the daily operations of military post
offices.
However, even this type of training was lacking. Officials attributed
this lack of training to a number of different factors. One factor is
that most of the Army's postal units are made up of Army Reserve
soldiers, who do not have an opportunity to train in postal facilities
during peacetime. This is because there are no military post offices in
the United States. Subsequently, if a reserve unit wants to train in a
military post office they have to deploy overseas for their annual
training. The second factor is that active duty Army postal personnel
do not have an opportunity to conduct realistic postal operations
during routine training exercises. The third factor is that, unlike the
other services, the active duty Army does not have a postal career
track. This means that, even if active duty soldiers have attended
postal training, they may never work in a postal position.
Moreover, during both Operations Desert Shield/Storm and Operation
Iraqi Freedom, postal units were initially scarce because of late
deployments. Units should have deployed early enough to establish an
adequate postal infrastructure in advance of the mail. During Operation
Iraqi Freedom, despite plans to deploy Army postal units early, they
arrived in theater after most combat troops. Military postal officials
told us that other units had a higher priority for airlift into the
Iraqi theater. The Operations Plan specified that postal personnel
needed to handle mail would deploy within the first 10 days of the
build-up for the contingency. Even though some troops mobilized
according to the original plan, our analysis of data received from the
Army's 3rd Personnel Command shows that some of these troops were
delayed at their mobilization stations up to 130 days (with the average
delay being 69 days) before deploying. (See fig. 7.) Postal units did
not begin arriving into theater until March 2003. Consequently, early
mail operations were conducted with insufficient postal troops to carry
out the mission. This decision ultimately affected the timely
establishment of postal operations.
Figure 7: Number of Days Army Reserve Postal Units Spent at
Mobilization Stations:
[See PDF for image]
[End of figure]
Postal Operations Hampered by Inadequate Facilities, Equipment, and
Transportation:
Inadequate postal facilities hampered postal operations in theater
during both Operations Desert Shield/Storm and Operation Iraqi Freedom.
As the theater grew during Operations Desert Shield/Storm, the
facilities proved to be inadequate, and additional aerial mail
terminals had to be established in various parts of Saudi Arabia to
handle the increasing volume of mail. Although some military postal
facilities set up to serve troops during and after Operations Desert
Shield/Storm were still in operation in Kuwait and Bahrain, these
facilities were inadequate to service the influx of 250,000 troops,
which began arriving in January 2003. Key postal infrastructure
elements were needed to receive the increased volume of mail and
establish a joint mail terminal in Kuwait.
At the beginning of Operation Iraqi Freedom, the Fleet Mail Center in
Bahrain processed mail for all the services even though it did not have
the staff or equipment to handle the surge in volume. Because of the
increased workload, it took about 5 to 7 extra days for the mail to be
delivered. As the theater matured, a joint military mail terminal had
to be established in Kuwait to relieve the Fleet Mail Center of Army
and Air Force mail and to augment existing postal facilities at Camp
Doha in Kuwait. Postal officials told us that even with this additional
facility, the biggest hindrance to processing mail was a lack of
sufficient workspace. In addition, as troops began to occupy parts of
Iraq in the spring of 2003, additional mail facilities and
transportation assets were set up to handle incoming and outgoing mail
in Baghdad and other cities and towns in Iraq.
The lack of heavy material-handling equipment during the early stages
of both conflicts also hampered the processing of mail. Lessons learned
from Operations Desert Shield/Storm recommended that modern material-
handling equipment be provided to postal units. Operation Iraqi Freedom
postal officials also underscored the need to have modern and varied
types of material-handling equipment, such as fork lifts and rough
terrain cargo handlers available to support postal facilities. (See
fig. 8.) Postal workers did not have such equipment in the early days
of Operation Iraqi Freedom, so they had to manually break down the
containers and sort thousands of pounds of mail per day by hand, adding
to the time it took to process the mail for delivery. According to
military postal officials, units did not have these types of heavy
equipment because either their tables of organization and equipment
were not updated to reflect the need, or if updated, were not properly
resourced.
Figure 8: Rough Terrain Container Handler (left) and Rough Terrain Fork
Lift (right) at the Joint Military Mail Terminal in Kuwait, December
2003:
[See PDF for image]
[End of figure]
In addition to a lack of heavy material-handling equipment, postal
units did not have the appropriate postal equipment and supplies to
perform routine operations. In lessons learned from Operations Desert
Shield/Storm, postal officials recommended that postal units regularly
review their equipment and supply needs and assemble prepackaged "kits"
for contingency postal operations. They also recommended that, at the
earliest indication of a contingency, an advance team of postal experts
deploy into theater to determine what postal equipment and supplies are
required. Despite these recommendations, postal units continued to
arrive in theater inadequately equipped to conduct postal operations
during Operation Iraqi Freedom. Postal officials at all levels told us
that the lists of authorized postal equipment, such as meters and
scales, were outdated and did not reflect the correct types or
quantities of equipment needed for modern postal operations. In
addition, many deployed units did not have access to the full suite of
communications equipment, such as secure radios, cellular and satellite
telephones, and "landlines" for their facilities. As a result, postal
units were unable to coordinate mail pick-up and truck mail convoys,
and communicate with other units.
Moving mail once it got into theater was a challenge because postal
units were not equipped with vehicles to transport the mail. The
operations plan for Operation Iraqi Freedom made no special provisions
for ground transportation of mail. It assumed that mail would use
existing commercial trucks supplemented by military trucks as needed.
Postal units at all levels of command (e.g., company through corps) had
to compete with other units for vehicles or contract for trucks through
local sources. Military postal officials stated that, during Operation
Iraqi Freedom, trucks were scarce in theater and carrying mostly
ammunition, water, and food. In order to minimize delays in mail
delivery, postal officials in January 2003 arranged with a U.S.
government contractor to provide 72 trucks and drivers to deliver the
mail from the Joint Military Mail Terminal to military post offices in
Kuwait and Iraq. Although it took the contractor several more months to
obtain all the trucks, this action was a great help, according to U.S.
Central Command postal units serving in theater at that time.
Air Transportation Was Improved Based on Lessons Learned:
As a result of lessons learned from the first Gulf conflict, the
Military Postal Service Agency did implement one strategy during
Operation Iraqi Freedom that proved to be successful. At the beginning
of Operations Desert Shield/Storm, mail was initially transported
overseas by commercial airlines. Because commercial U.S. carriers
reduced the number of flights into Saudi Arabia, postal officials
decided to switch exclusively to dedicated military flights to
transport mail from the United States to the theater. Similarly, at the
beginning of Operation Iraqi Freedom, mail backlogs occurred with
existing commercial air service. However, in contrast to Operations
Desert Shield/Storm, military postal officials decided to continue
using commercial airlines but arranged with the U.S. Postal Service to
contract for dedicated postal flights from the United States to Bahrain
and Kuwait. According to Military Postal Service Agency officials, this
resulted in much more reliable air delivery of mail to the theater.
Various Military Postal Units Have Identified Solutions to Postal
Problems, but No Mechanism Is in Place to Ensure Their Consolidation
and Resolution:
Although military postal officials and others have begun to identify
solutions to some of the long-standing postal problems seen again
during Operation Iraqi Freedom, no single entity has been officially
tasked to resolve these issues. Despite early efforts made by the
Military Postal Service Agency in this regard, this agency does not
have the authority to ensure that these problems are jointly addressed
and resolved prior to the next military contingency.
The identification of solutions to long-standing postal problems has
begun in a piecemeal fashion. At this time, no single entity has
officially been designated to collect and consolidate solutions to
long-standing mail delivery problems. After past contingencies, the
Joint Staff's Joint Center for Lessons Learned gathered and
consolidated the lessons learned and made them available to the field.
We spoke to representatives of the military Joint Center for
Operational Analysis, formerly the Joint Center for Lessons Learned, to
determine if this process would apply to Operation Iraqi Freedom and
they informed us that military postal operations have not been
identified as an issue area for lessons learned and they do not
anticipate that postal operations will become one. Several individual
members of entities such as the U.S. Army Reserve Command, U.S. Central
Command, and the Coalition Forces Land Component Command have prepared
memoranda outlining issues and lessons learned for postal operations
during Operation Iraqi Freedom.
We summarized the memoranda, after action reports and comments
regarding solutions to postal problems that we collected during our
meetings with dozens of key military postal officials. Key military
postal officials emphasized that these postal issues must be addressed
to avoid a repetition of the same postal problems in future
contingencies. These issues represent many long-standing problems that
can be directly traced back to Operations Desert Shield/Storm. The
issues identified include the following:
* improve joint postal planning and ensure the execution of the postal
operations plan;
* anticipate the levels of support and types of activities needed, and
deploy postal units early to reduce or eliminate backlogs during the
build-up;
* update tables of organization and equipment for postal units to
reflect what they actually need in terms of people and equipment to
conduct postal operations;
* develop peacetime training programs to prepare postal units for the
missions they will be required to perform during contingency
operations; and:
* review the command and control of postal units to determine if the
postal function is in the right place and whether one organization
should be responsible to both develop and execute policy.
In October 2003 the Military Postal Service Agency hosted a joint
postal conference to discuss postal problems with dozens of key postal
participants in Operation Iraqi Freedom. It is currently in the process
of developing a final report that will outline plans to resolve issues
in the areas of organization, supplies, planning, training,
transportation, "Any Service Member" mail, routing and labeling, and
transit time data collection. Although the agency has taken this
initiative, it has limited authority and cannot direct the services to
jointly address the problems, according to the Executive Director of
the Military Postal Service Agency. Military Postal Service Agency
officials describe their role as primarily the single point of contact
between the military and the U.S. Postal Service.
Service components and the Military Postal Service Agency have taken
some initial steps in employing alternative mail delivery and tracking
systems. For example, the Marine Corps is currently testing an
electronic mail system for getting mail delivered to forward deployed
troops. In addition, the Military Postal Service Agency has taken steps
to solve a long-standing problem regarding transit time data. The
agency has developed a mail bar-coding system that could be used to
more accurately track the transit time, but it has not yet been
successfully deployed for use by ground troops because of connectivity
problems. The Military Origin Destination Information System, modeled
after the system that the U.S. Postal Service employs, can be used to
track transit times of bags of letters and small packages as well as
larger parcels. By bar coding these items and scanning them prior to
mailing, and then scanning them once they reach their destination,
transit times can be easily calculated. According to officials from the
Military Postal Service Agency, the Navy is currently using this system
with some success. However, the system requires a certain level of
connectivity with the Internet, which troops in the field lacked during
Operation Iraqi Freedom. Wireless networks may be necessary in order to
connect all military post offices to the Internet, which has not been
practical on the battlefield. In addition, this system shares a
shortcoming with the test letters in that transit times are not tracked
to the level of the individual service member.
Conclusions:
The timely delivery of mail to troops overseas involved in contingency
operations is an important mechanism to boost morale among service
members and their families and friends. Without taking action to
resolve the identified issues in planning, building, and operating a
joint postal system, mail delivery will continue to suffer in future
contingency operations as witnessed by the repetition of delayed mail
delivery from one Gulf war to the next. Emphasis needs to be placed on
establishing joint postal responsibilities and the subsequent execution
of those duties. Past experience has shown that postal operations have
not received command attention or been designated a priority.
Establishing the needs for postal operations early in the process and
dedicating the appropriate resources is crucial for providing the
timely and efficient delivery of mail. While our work focused only on
Operation Iraqi Freedom, we believe many of these same lessons apply to
other combatant commands and theaters of operation as well.
Recommendations for Executive Action:
Without clear and accurate data to measure the timeliness of mail to
U.S. troops overseas during contingency operations, no meaningful
assessment can be made on the quality of mail service. Therefore, we
recommend that the Secretary of Defense direct the Under Secretary of
Defense (Acquisition, Technology, and Logistics) to work with the Army
Adjutant General to improve the quality of transit time data for postal
operations by implementing a system that will accurately track,
calculate, and report postal transit times.
In the absence of a clear plan for resolving recurring postal problems
during contingency operations, we recommend that the Under Secretary of
Defense (Acquisition, Technology, and Logistics) designate, direct, and
authorize an appropriate DOD agency, unit, or command to determine what
long-standing postal issues need to be resolved, and to develop a
specific course of action and timetable for their resolution, including
appropriate follow-up to ensure that the problems have been fixed.
Specifically, these actions should address the issues highlighted in
this report, such as the following:
* strengthen the joint postal planning function and specify a body to
ensure the implementation of postal operations in theater;
* deploy properly trained and equipped postal troops into theater prior
to the mail build-up; and:
* dedicate adequate postal facilities, heavy equipment, and
transportation assets for postal operations.
An important part of addressing these long-standing problems is to
share the results of these lessons learned from Operation Iraqi Freedom
with all of the combatant commands to ensure that future contingencies
do not repeat these problems.
Agency Comments and Our Evaluation:
In written comments on a draft of this report, DOD stated that it fully
concurred with our recommendations and has already initiated certain
actions. In response to our first recommendation, DOD has directed the
Military Postal Service Agency to implement an automated system that
will accurately track, calculate, and report postal transit times all
the way to troop delivery. In addition, the Military Postal Service
Agency is also reviewing manual transit time collection and reporting
methods for use when automated collection is not possible. In response
to our second recommendation, the Military Postal Service Agency will
facilitate and track the corrective actions taken by the Unified
Commands, services, service components, and the Military Postal Service
Agency, itself, in response to the recommendations developed in the
Joint Services After Action Report produced at the Joint Service Postal
Conference held in October 2003. DOD's comments are reprinted in their
entirety in appendix II. DOD also provided a number of technical and
clarifying comments, which we have incorporated where appropriate.
We are sending copies of this report to interested congressional
committees; the Secretary of Defense; the Executive Director of the
Military Postal Service Agency; and the Director, Office of Management
and Budget. We will make copies available to others upon request. In
addition, the report will be available at no charge on the GAO Web site
at http://www.gao.gov.
If you or your staff have any questions, please call me at (757) 552-
8100. Key contributors to this report were Laura Durland, Karen Kemper,
David Keefer, Timothy Burke, Ann Borseth, Madelon Savaides, and Nancy
Benco.
Signed by:
Neal P. Curtin:
Director, Defense Capabilities and Management:
Congressional Committees:
The Honorable John W. Warner:
Chairman:
The Honorable Carl Levin:
Ranking Minority Member:
Committee on Armed Services:
United States Senate:
The Honorable Duncan Hunter:
Chairman:
The Honorable Ike Skelton:
Ranking Minority Member:
Committee on Armed Services:
House of Representatives:
The Honorable Ted Stevens:
Chairman:
The Honorable Daniel K. Inouye:
Ranking Minority Member:
Subcommittee on Defense:
Committee on Appropriations:
United States Senate:
The Honorable Jerry Lewis:
Chairman:
The Honorable John P. Murtha:
Ranking Minority Member:
Subcommittee on Defense:
Committee on Appropriations:
House of Representatives:
[End of section]
Appendix I: Scope and Methodology:
To address overall issues of military mail delivery to and from the
Gulf region and determine responsibilities for mail service, we
obtained and reviewed Department of Defense (DOD) guidance and
operations plans for mail delivery to troops serving in a contingency
area, and specifically during Operation Iraqi Freedom. We then met with
officials from the Office of the Under Secretary of Defense
(Acquisition, Technology, and Logistics); Joint Staff for Manpower and
Personnel; and U.S. Central Command to discuss these policies. Our
review focused on postal operations as they applied to U.S. troops
deployed to the countries of Bahrain, Kuwait, and Iraq during the
buildup for Operation Iraqi Freedom, the operation itself, and the
ongoing military operations in Iraq (January through December 2003).
To address the issue of the timeliness of mail service to and from
troops serving in Operation Iraqi Freedom, we collected, analyzed, and
assessed the reliability of transit time data from the Army's 3rd
Personnel Command and the Military Postal Service Agency. We discussed
the data with military postal officials to ensure that we were
interpreting it correctly, especially the methodology used to report
transit times from the Transit Time Information Standard System for
Military Mail. Within our analysis, we determined that the majority of
transit time data we received was for Army mail. Some data were from
the Air Force and Marine Corps, but they were not separated out. We did
not collect transit time data from the Navy, as their postal operations
run separate from and independent of the others.[Footnote 13] Some data
required sorting in order to eliminate irrelevant data elements and to
be able to display them on a monthly basis. To determine the effect
that the timeliness of mail service had on troops serving in the
contingency area, we designed a data collection instrument and then
conducted discussion groups with and collected data from a non-
representative sample of 127 officers and enlisted personnel--91 from
the Army's 3rd Infantry Division (stationed at Fort Stewart, Georgia)
and 36 from the 1st Marine Expeditionary Force (stationed at Camp
Pendleton, California). The data collected from this non-representative
sample cannot be projected for the entire universe of troops deployed.
At each location, the GAO "point of contact" selected a non-
representative sample of military personnel who had recently returned
from a deployment in support of Operation Iraqi Freedom. The sample
size (127) is simply the total number of the soldiers and marines who
were available to meet with us during our visits. We summarized the
data we collected from the soldiers and marines, determined percentages
of individual responses for each question, and gathered their personal
accounts regarding mail delivery problems.
To address how mail issues and problems experienced during Operation
Iraqi Freedom compare with those experienced during Operations Desert
Shield/Storm, we obtained and analyzed lessons learned from the first
Persian Gulf War and compared these with any available reports prepared
by the various offices and commands we visited regarding the postal
problems experienced during Operation Iraqi Freedom. We met with
numerous officials and personnel from the U.S. Army Reserve Command,
the Military Postal Service Agency, the U.S. Postal Service, U.S.
Central Command, the Army's 3rd Personnel Command, U.S. Army Central
Command, Air Force Air Combat Command, U.S. Marine Corps, Joint
Military Mail Terminal in Kuwait, Fleet Mail Center in Bahrain, and
Joint Military Mail Terminal in Iraq to discuss the similarities and
differences of the postal problems still being encountered and what
actions had been taken to resolve any previously identified problems.
To assess efforts to resolve military postal problems for future
contingencies, we collected any available after action reports and
plans for addressing military postal problems. We attended the Joint
Postal Conference--hosted by the Military Postal Service Agency in
October 2003--which addressed postal problems encountered during
Operation Iraqi Freedom. During the conference, we spoke with military
postal officials who had direct responsibility for various aspects of
mail delivery to and from the Iraqi theater, and collected pertinent
documentation. We summarized information regarding key postal issues
that must be addressed to avoid their repetition in the future. We
spoke with officials at the Joint Forces Command who are in charge of
collecting lessons learned for Operation Iraqi Freedom. We also spoke
with the Army Adjutant General in charge of the Military Postal Service
Agency to assess the agency's plans for taking actions to mitigate
those problems. We then met with a key official from the Office of the
Under Secretary of Defense (Acquisition, Technology, and Logistics)--the
responsible body for military postal policy and oversight--to discuss
our findings and to determine what entity is accountable for resolving
these issues.
We conducted our review from August 2003 through March 2004 in
accordance with generally accepted government auditing standards.
[End of section]
Appendix II: Comments from the Department of Defense:
REPLY TO ATTENTION OF:
DEPARTMENT OF DEFENSE
MILITARY POSTAL SERVICE AGENCY
2461 EISENHOWER AVENUE
ALEXANDRIA VA 22331-0006:
March 23, 2004:
Office of the Executive Director:
Mr. Neal P. Curtin:
Director, Defense Capabilities and Management:
U.S. General Accounting Office
Washington, D.C. 20548:
Dear Mr. Curtin:
This is the Department of Defense (DOD) response to the GAO draft
report GAO-040484, "OPERATION IRAQI FREEDOM: Long-standing Problems
Hampering Mail Delivery Need to Be Resolved," dated March 8, 2004 (GAO
Code 350429).
The Military Postal Service Agency (MPSA) has been working closely with
the Services, Components, and Unified Commands (specifically, U.S.
Central Command) on lessons learned and after action reviews. MPSA has
already initiated actions with U.S. Central Command to put better
processes in place to fix short falls experienced during the build up
and conduct of combat operations, as well as current operations. This
GAO draft report has reemphasized the importance of mail delivery to
the senior leadership in DoD, the Services, Unified Commands, and MPSA.
MPSA, in conjunction with the Services, Components, and Unified
Commands, continues to work diligently to shorten the timeline and
efficiency of processing mail to our troops overseas.
Detailed comments to the recommendations are enclosed. As directed,
technical comments were forwarded directly to the GAO staff for
consideration.
Sincerely,
Signed by:
Gina S. Farrisee:
Brigadier General, U.S. Army
Executive Director:
Enclosure:
GAO DRAFT REPORT - DATED MARCH 8, 2004 GAO CODE 350429/GAO-04-484:
"OPERATION IRAQI FREEDOM: Long-standing Problems Hampering Mail
Delivery Need to Be Resolved":
DEPARTMENT OF DEFENSE COMMENTS TO THE RECOMMENDATIONS:
RECOMMENDATION 1: Without a clear and accurate data to measure the
timeliness of mail to U.S. troops overseas during contingency
operations, no meaningful assessment can be made on the quality of mail
service. Therefore, the GAO recommended that the Secretary of Defense
direct the Under Secretary of Defense (Acquisition, Technology and
Logistics) to work with the Army Adjutant General to improve the
quality of transit time data for postal operations by implementing a
system that will accurately track, calculate, and report postal transit
times. (p. 30/GAO Draft Report):
DOD RESPONSE: Concur. The Military Postal Service Agency (MPSA) has
been directed to work on a system to implement the GAO recommendations.
MPSA, in conjunction with the U.S. Postal Service, developed and
deployed the Military Origin Destination Information System (MODIS)
after Desert Shield/Desert Storm. This system consists of a USPS Remote
Data Scanner (RDS) capable of scanning barcodes from USPS MIDAS labels
placed on mailbags and oversized parcels. USPS does not have any
barcode date information on individual letters; only on the MIDAS
labels on sacks and trays of mail. The scanned information from
Military Post Offices (MPOs) is transmitted electronically to USPS, and
populates a USPS database that provides transit times on the units
using MIDAS equipment.
This system could not be used during OIF due the lack of connectivity
to the Internet required to transmit the scanned data. Alternative
manual methods of collecting transit times will again be required. MPSA
is currently developing the next generation of equipment for MODIS to
be more widely deployed than the original equipment. It will capture
the transit time data and then transmit the data via internet into
MPSA's Automated Military Postal System (AMPS). AMPS will provide a
daily report, broken down by zip code, of transit times from all
locations scanning.
Even the RDS devices are limited to capturing data only to the MPO
level, not to individual troops, since delivery is often affected by
unit mail clerks. However, tracking the transit data will allow MPSA to
monitor the progress of mail to ensure it is within the range of
acceptable service standards to destination MPOs. MPSA will work with
USPS on a system to track all the way to troop delivery.
MPSA is also reviewing manual transit time collection and reporting
methods for MPOs that do not have connectivity, like most in OIF during
the first months of the deployment. MPSA will publish new, manual
procedures to all field activities for use when automated transit time
collection is not possible.
RECOMMENDATION 2: In the absence of a clear plan for resolving
recurring postal problems during contingency operations, the GAO
recommended that the Secretary of Defense direct the Under Secretary of
Defense (Acquisition, Technology, and Logistics) designate, direct, and
authorize an appropriate DoD agency, unit, or command to determine what
long-standing postal issues need to be resolved, and to develop a
specific course of action and timetable for their resolution, including
appropriate follow-up to ensure that the problems have been fixed.
Specifically, these actions should address the issues highlighted in
this report, such as the following;
strengthen the joint postal planning function and specify a body to
ensure the implementation of postal operations in-theater;
deploy properly trained and equipped postal troops into theater prior
to the mail build-up; and:
dedicate adequate postal facilities, heavy equipment, and
transportation assets for postal operations.
An important part of addressing these long-standing problems is to
share the results of these lessons learned from Operation Iraqi Freedom
with all of the combatant commands to ensure that future contingencies
do not repeat these problems. (p. 31 /GAO Draft Report):
DOD RESPONSE: Concur. A Joint Services After Action Report (AAR) was
produced at a Joint Service Postal Conference hosted by MPSA in October
2003. The report was developed by over 100 members of all Services and
components to cover every experience possible. The AARs include all of
the issues above and recommendations from the postal experts that
attended the conference for corrective actions. All improvements must
take mail bio-terrorism into consideration. MPSA will facilitate and
track the corrective actions taken by the Unified Commanders, Services/
Components, and those that MPSA can implement itself. MPSA shared its
OIF after action findings with all combatant commands in other
theaters. It will continue to share corrective actions as they take
place to preclude similar situations in future contingencies anywhere
in the world. Fixing logistical and personnel issues, as identified by
GAO, will be key to future postal success during contingencies.
Although MPSA will be implementing new joint guidance for postal
operations, the Services, Components, Unified Commands, and MPSA will
have to be adequately resourced to implement the identified solutions.
[End of section]
FOOTNOTES
[1] Pub. L. No. 108-87, 117 Stat. 1054 (2003); Sen. Rep. No. 108-46, at
308 (2003).
[2] Pub. L. 91-375, 84 Stat. 719, 724 (1970), codified at title 39 of
the U.S. Code.
[3] See Single Manager for Military Postal Service, DOD Directive
4525.6 (May 5, 1980) enclosure 2, section E 3.1.1.
[4] Military mail also flies out of John F. Kennedy Airport. However,
most mail to ground troops serving in the Operation Iraqi Freedom
theater flew on the dedicated contract carrier out of Newark
International Airport.
[5] DOD contracted with DHL to provide planes to fly cargo and mail
into Iraq beginning in May 2003, when the Joint Military Mail Terminal
was established there. Before then, all mail was flown to Kuwait and
taken by mail truck convoys into Iraq.
[6] Army Field Manual 12-6 states, "the standard of service for first
class mail is 12 to 18 days from the point of origin to individual
soldiers worldwide."
[7] The Transit Time Information Standard System for Military Mail is
the official DOD measurement system used to collect, compute, analyze,
and report mail transit time performance data. The Military Postal
Service Agency selects the activities to provide mail statistics into
the system. For Operation Iraqi Freedom, the Army's 3rd Personnel
Command is collecting the data in theater and in turn providing the
statistics to the Military Postal Service Agency.
[8] This 23-day hold was not specifically a part of the operating plan.
[9] Those articles mailed from the continental United States to service
members in the Iraqi theater are referred to as "prograde." Letters and
parcels mailed from the Iraqi theater to the continental United States
are referred to as "retrograde."
[10] "Any Service Member" mail refers to mail that can be sent to any
service member serving in a contingency operation overseas. This mail
can be held and delivered when deemed appropriate by ground commanders
to boost the morale of soldiers.
[11] Department of Defense Postal Manual 4525.6-M (Aug. 15, 2002)
provides planners with guidance on what needs to be included in the
postal appendix to all contingency plans, including a requirement to
appoint a single-service manager. Joint Publication 1-0 states that one
component command will normally be appointed as single-service manager
and serve as point of contact on all postal issues in the area of
responsibility.
[12] The postal flight of the Air Force's 82nd Computer Support
Squadron under the Air Combat Command, Langley Air Force Base,
Virginia, is currently the designated single-service manager for all
military operations for U.S. Central Command, U.S. Northern Command,
and U.S. Southern Command.
[13] The Navy postal system operates separate from the Army system
since most of the Navy's mail follows established procedures for
delivery of mail to sailors aboard ships. By contrast, the Army must
establish and use ground-based transportation networks and routing
systems. In addition, Navy postal operations had long been established
for the Gulf region and did not need the level of build up required for
the Army during Operation Iraqi Freedom.
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