Defense Logistics
Army and Marine Corps' Body Armor Requirements, Controls, and Other Issues Gao ID: GAO-07-911T June 6, 2007In recent years, a number of reports and newspaper articles have cited concerns regarding the level of protection and the available amounts of body armor to protect deployed service members. As part of GAO's efforts to monitor the Department of Defense's (DOD) and the services' action to protect ground forces, GAO reviewed the Army and Marine Corps's actions to address these concerns. On April 26, 2007, GAO issued a report regarding the Army and the Marine Corps's individual body armor systems. Today's testimony summarizes the report's findings regarding the extent to which the Army and Marine Corps (1) have met the theater requirements for body armor, (2) have the controls in place to assure that the manufacturing and fielding of body armor meet requirements, and (3) have shared information regarding their efforts on body armor ballistic requirements and testing. The report also included additional information concerning whether contractors or non-DOD civilians obtain body armor in the same way as U.S. forces and DOD civilians given the number of contractors and non-DOD civilians in Central Command's (CENTCOM) area of operation. GAO did not make recommendations in the report. DOD officials did not provide written comments on the report but technical comments were incorporated as appropriate.
Army and Marine Corps body armor currently meets theater ballistic requirements and the required amount needed for personnel in theater, including the amounts needed for the surge of troops into Iraq. The Interceptor Body Armor (IBA) consists of an outer tactical vest with ballistic inserts or plates that cover the front, back, and sides. The vest and inserts currently meet the theater ballistic requirements. The vest provides protection from 9mm rounds, while the inserts provide protection against 7.62mm armor-piercing rounds. CENTCOM requires that all U.S. military forces and all DOD civilians in the area of operations receive the body armor system. Currently, service members receive all service-specific standard components of the body armor system prior to deploying. The Army and the Marine Corps provide the DOD civilians with components of the armor system. The Army and Marine Corps have controls in place during manufacturing and after fielding to assure that body armor meets requirements. Both services conduct quality and ballistic testing prior to fielding, and lots (a grouping of items varying in number) are rejected if the standards are not met. They also conduct formal testing on every lot of body armor (vests and protective inserts) prior to acceptance and issuance to troops. During production, which is done at several sites, the lots of body armor are sent to a National Institute of Justice-certified laboratory for ballistic testing and to the Defense Contract Management Agency for quality testing (size, weight, stitching) prior to issuance to troops. Although not required to do so, after the systems have been used in the field, the Army does limited ballistic and environmental testing to determine future improvements. The Army and Marine Corps share information regarding ballistic requirements and testing although they are not required to do so. Title 10 of the U.S. Code allows each service to have separate programs, according to Army and Marine Corps officials. Nevertheless, the services are sharing information regarding ongoing research and development for the next generation of body armor. DOD Instruction 3020.41 allows DOD to provide body armor to contractors and non-DOD civilians where permitted by applicable DOD instructions and military department regulations and where specified under the terms of the contract. It is CENTCOM's position that body armor will be provided to contractors if it is part of the terms and conditions of the contract. However, the officials indicated that commanders, at their discretion, can provide body armor to any personnel within their area of operation.
GAO-07-911T, Defense Logistics: Army and Marine Corps' Body Armor Requirements, Controls, and Other Issues
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Testimony:
Before the Committee on Armed Services,
House of Representatives:
United States Government Accountability Office:
GAO:
For Release on Delivery Expected at 10:00 a.m. EST:
Wednesday, June 6, 2007:
Defense Logistics:
Army and Marine Corps' Body Armor Requirements, Controls, and Other
Issues:
Statement of William M. Solis, Director:
Defense Capabilities and Management Issues:
GAO-07-911T:
GAO Highlights:
Highlights of GAO-07-911T, a testimony before the Committee on Armed
Services, House of Representatives
Why GAO Did This Study:
In recent years, a number of reports and newspaper articles have cited
concerns regarding the level of protection and the available amounts of
body armor to protect deployed service members. As part of GAO‘s
efforts to monitor the Department of Defense‘s (DOD) and the services‘
action to protect ground forces, GAO reviewed the Army and Marine
Corps‘s actions to address these concerns. On April 26, 2007, GAO
issued a report regarding the Army and the Marine Corps‘s individual
body armor systems. Today‘s testimony summarizes the report‘s findings
regarding the extent to which the Army and Marine Corps (1) have met
the theater requirements for body armor, (2) have the controls in place
to assure that the manufacturing and fielding of body armor meet
requirements, and (3) have shared information regarding their efforts
on body armor ballistic requirements and testing. The report also
included additional information concerning whether contractors or non-
DOD civilians obtain body armor in the same way as U.S. forces and DOD
civilians given the number of contractors and non-DOD civilians in
CENTCOM‘s area of operation. GAO did not make recommendations in the
report. DOD officials did not provide written comments on the report
but technical comments were incorporated as appropriate.
What GAO Found:
Army and Marine Corps body armor currently meets theater ballistic
requirements and the required amount needed for personnel in theater,
including the amounts needed for the surge of troops into Iraq. The
Interceptor Body Armor (IBA) consists of an outer tactical vest with
ballistic inserts or plates that cover the front, back, and sides. The
vest and inserts currently meet the theater ballistic requirements. The
vest provides protection from 9mm rounds, while the inserts provide
protection against 7.62mm armor-piercing rounds. CENTCOM requires that
all U.S. military forces and all DOD civilians in the area of
operations receive the body armor system. Currently, service members
receive all service-specific standard components of the body armor
system prior to deploying. The Army and the Marine Corps provide the
DOD civilians with components of the armor system.
The Army and Marine Corps have controls in place during manufacturing
and after fielding to assure that body armor meets requirements. Both
services conduct quality and ballistic testing prior to fielding, and
lots (a grouping of items varying in number) are rejected if the
standards are not met. They also conduct formal testing on every lot of
body armor (vests and protective inserts) prior to acceptance and
issuance to troops. During production, which is done at several sites,
the lots of body armor are sent to a National Institute of Justice-
certified laboratory for ballistic testing and to the Defense Contract
Management Agency for quality testing (size, weight, stitching) prior
to issuance to troops. Although not required to do so, after the
systems have been used in the field, the Army does limited ballistic
and environmental testing to determine future improvements.
The Army and Marine Corps share information regarding ballistic
requirements and testing although they are not required to do so. Title
10 of the U.S. Code allows each service to have separate programs,
according to Army and Marine Corps officials. Nevertheless, the
services are sharing information regarding ongoing research and
development for the next generation of body armor.
DOD Instruction 3020.41 allows DOD to provide body armor to contractors
and non-DOD civilians where permitted by applicable DOD instructions
and military department regulations and where specified under the terms
of the contract. It is CENTCOM‘s position that body armor will be
provided to contractors if it is part of the terms and conditions of
the contract. However, the officials indicated that commanders, at
their discretion, can provide body armor to any personnel within their
area of operation.
[Hyperlink, http://www.gao.gov/cgi-bin/getrpt?GAO-07-911T].
To view the full product, including the scope and methodology, click on
the link above. For more information, contact William M.Solis at (202)
512-8365 or solisw@gao.gov.
[End of section]
Mr. Chairman and Members of the Committee:
I am pleased to be here today to discuss our findings regarding Army
and Marine Corps's individual body armor systems. As you know, since
combat operations began in Iraq and Afghanistan, U.S. forces have been
subjected to frequent and deadly attacks from insurgents using various
weapons such as improvised explosive devices (IED), mortars, rocket
launchers, and increasingly lethal ballistic threats. Since 2003, to
provide protection from ballistic threats, U.S. Central Command
(CENTCOM), which is responsible for operations in Iraq and Afghanistan
and other areas, has required service members and Department of Defense
(DOD) civilians in its area of operations to be issued the Interceptor
Body Armor (IBA) system.[Footnote 1]
Congress has expressed strong interest in the quality of our ground
force's body armor protection, especially since combat operations began
in Iraq and Afghanistan and news reports citing concerns regarding body
armor shortages and quality issues. In response to these concerns, we
reviewed the Army and Marine Corps's actions regarding individual body
armor systems, and on April 26, 2007, issued a report.[Footnote 2] My
testimony today summarizes the findings in this report. Specifically, I
will discuss the extent to which the Army and Marine Corps (1) have met
the theater requirements for body armor, (2) have the controls in place
to assure that the manufacturing and fielding of body armor meet
requirements, and (3) have shared information regarding their efforts
on body armor ballistic requirements and testing. I will also include
additional information concerning whether contractors or non-DOD
civilians obtain body armor in the same way as U.S. forces and DOD
civilians given the number of contractors and non-DOD civilians in
CENTCOM's area of operation.
To assess these issues we focused on Army and Marine Corps body armor
systems for U.S. service members and DOD and non-DOD civilian personnel
deployed within CENTCOM's area of operations, including Iraq and
Afghanistan. To determine whether the Army and Marine Corps are meeting
the theater ballistic and inventory requirements for body armor, we
reviewed documentation and interviewed officials from key DOD, Army,
and Marine Corps organizations, such as the Office of the Under
Secretary of Defense, Acquisition, Technology, and Logistics, the
Defense Logistics Agency, and CENTCOM, which are responsible for
managing theater ballistic and inventory requirements. We analyzed the
ballistic requirements and compared these requirements to the body
armor systems provided to personnel. Moreover, we concentrated on the
body armor system currently being used in CENTCOM's area of operation.
We also obtained and reviewed the amount of body armor systems
available worldwide for the Army and Marine Corps to determine if the
available amount met the quantity needed in theater. We analyzed the
distribution practices to assure that personnel were receiving body
armor systems that met ballistic theater requirements and that these
systems were available for those preparing to deploy. We did not
independently verify that deployed personnel wore the body armor
systems as recommended by their commanders.
To assess the extent to which the services have controls in place
during manufacturing and after fielding to assure that body armor meets
requirements, we reviewed documentation and discussed the services'
ballistic test processes and procedures with their program and
technical officials. We analyzed these test processes and procedures to
determine if controls are in place that assure body armor meets
ballistic requirements during manufacturing and after fielding. Our
analysis included ballistic test methods for the tactical vests and the
protective plate inserts; however, we did not independently verify test
results. In addition, we reviewed the services' past experiences where
the services concluded that fielded body armor systems failed to meet
contract specifications and ballistic testing requirements. We analyzed
the services' actions to determine if their actions corrected the
failures. We also reviewed documentation and interviewed Army and
Marine Corps body armor program officials who provided manufacturer
production quality and ballistic testing lot failures for early 2006
through early 2007.
To identify the extent to which the Army and Marine Corps share
information regarding their efforts on body armor ballistic
requirements and testing, we analyzed the services' body armor programs
and policies and discussed with service officials whether there is a
requirement to share information between the services regarding their
separate programs. We also discussed with officials and reviewed
documentation to determine whether the services do share information
and if shared, what specific actions they take. To determine whether
contractors or non-DOD civilians obtain body armor in the same way as
U.S. forces and DOD civilians in CENTCOM's area of operations, we
obtained and analyzed DOD and CENTCOM policy regarding personal
protection for contractors and non-DOD civilians. We also interviewed
Army, Marine Corps, and CENTCOM officials on this issue.
We did not make recommendations in our report. DOD officials did not
provide written comments on the report but technical comments were
incorporated as appropriate. We conducted our review from November 2006
to March 2007 in accordance with generally accepted government auditing
standards.[Footnote 3]
Summary:
The Army and Marine Corps have taken several actions to meet theater
requirements, assure testing, and share information on body armor.
Contractors and non-DOD civilians receive body armor if this provision
is included in a negotiated contract. Specifically, we reported that
the Army and Marine Corps:
* are currently meeting theater ballistic requirements and the required
amount needed for personnel in theater, including the amounts needed
for the surge of troops into Iraq;
* have controls in place during manufacturing and after fielding to
assure that body armor meets requirements; and:
* share information regarding ballistic requirements and testing, and
the development of future body armor systems, although they are not
required to do so.
Regarding contractors or non-DOD civilians, we found that DOD
Instruction 3020.41 allows DOD to provide body armor to contractors
where permitted by applicable DOD instructions and military department
regulations and where specified under the terms of the contract.
CENTCOM's position is that body armor will be provided to contractors
if it is part of a negotiated contract.
Background:
Used by all U.S. military service members and DOD civilians in the area
of operations, the IBA consists of an outer tactical vest with
ballistic inserts or plates that cover the front, back, and sides. As
the ballistic threat has evolved, ballistic requirements have also
changed. The vest currently provides protection from 9mm rounds, while
the inserts provide protection against 7.62mm armor-piercing rounds.
Additional protection can also be provided for the shoulder, throat,
and groin areas. Figure 1 details the body armor components.
Figure 1: Interceptor Body Armor System:
[See PDF for image]
Source: PEO soldier.
Note: The figure depicts the Army Basic System. The Marine Corps Basic
System excludes the deltoid protector.
[End of figure]
Concerns regarding the level of protection and amount of IBA needed to
protect U.S. forces have been raised in recent years, prompted by a
number of reports, newspaper articles, and recalls of issued body armor
by both the Army and the Marine Corps. In May 2005, the Marine Corps
recalled fielded body armor because it concluded that the body armor
failed to meet contract specifications, and in November 2005, the Army
and Marine Corps recalled 14 lots of body armor that failed original
ballistic testing.[Footnote 4] Additionally, in April 2005,[Footnote 5]
we reported on shortages of critical force protection items, including
individual body armor. Specifically, we found that the shortages in
body armor were due to material shortages, production limitations, and
in-theater distribution problems. In the report, we did not make
specific recommendations regarding body armor, but we did make several
recommendations to improve the effectiveness of DOD's supply system in
supporting deployed forces for contingencies. DOD agreed with the
intent of the recommendations and cited actions it had or was taking to
eliminate supply chain deficiencies.
Army and Marine Corps Body Army Meets Current Theater Requirements:
Army and Marine Corps body armor currently meets theater ballistic
requirements and the required amount needed for personnel in theater,
including the amounts needed for the surge of troops into Iraq. Used by
all U.S. military service members and DOD civilians in the area of
operations, the IBA consists of an outer tactical vest with ballistic
inserts or plates that cover the front, back, and sides. The vest and
inserts currently meet the theater ballistic requirements. The vest
provides protection from 9mm rounds, while the inserts provide
protection against 7.62mm armor-piercing rounds. Additional protection
can also be provided for the shoulder, throat, and groin areas. The
Army and Marine Corps body armor meets the required amounts needed for
personnel in theater as well. Table 1 details Army and Marine Corps
theater requirements and worldwide inventory quantities of the body
armor as of February 2007.
Table 1: Army and Marine Corps Body Armor Requirement as of February
2007:
Body Armor Systems: Outer tactical vest;
Army: Amount needed in theater: 154,000;
Army: Current worldwide available inventory: 991,580;
Marine Corps: Amount needed in theater: 23,000;
Marine Corps: Current worldwide available inventory: 198,088.
Body Armor Systems: Enhanced small arms inserts;
Army: Amount needed in theater: 154,000;
Army: Current worldwide available inventory: 402,369;
Marine Corps: Amount needed in theater: 23,000;
Marine Corps: Current worldwide available inventory: 56,970.
Body Armor Systems: Side protection;
Army: Amount needed in theater: 154,000;
Army: Current worldwide available inventory: 244,192;
Marine Corps: Amount needed in theater: 23,000;
Marine Corps: Current worldwide available inventory: 50,500.
Body Armor Systems: Shoulder protection;
Army: Amount needed in theater: 154,000;
Army: Current worldwide available inventory: 243,229;
Marine Corps: Amount needed in theater: 4,600;
Marine Corps: Current worldwide available inventory: 4,600.
Sources: Army Operations, PEO Soldier, and Marine Corps Systems
Command.
Note: Army and Marine Corps amounts include service personnel, DOD
civilians, and contractors embedded with units. For the Army, shoulder
protection is issued, but its use is optional. For the Marine Corps,
shoulder protection is only issued to specialized personnel such as
turret gunners.
[End of table]
CENTCOM requires that all U.S. military forces and all DOD civilians in
the area of operations receive the body armor system. Currently,
service members receive all service-specific standard components of the
body armor system prior to deploying. For example, the Army issues the
shoulder protection equipment to all its forces; however, Marine Corps
personnel receive this equipment item in theater on an as-needed basis.
The Army and the Marine Corps provide the DOD civilians with components
of the armor system. However, the time frame for receipt of these items
varies as some receive the body armor prior to deploying and others
upon arrival in theater. Army unit commanders only reported one body
armor issue in their December 2006 to February 2007 classified
readiness reports. This one issue did not raise a significant concern
regarding the body armor. Moreover, Marine Corps commanders' comments
contained in the December 2006 and January 2007 readiness reports did
not identify any body armor issues affecting their units' readiness. In
December 2006 and January 2007, the Army, in its critical equipment
list did not identify body armor as a critical equipment item affecting
its unit readiness.
Controls in Place to Assure Body Armor Meets Requirements:
The Army and Marine Corps have controls in place during manufacturing
and after fielding to assure that body armor meets requirements. Both
services conduct quality and ballistic testing prior to fielding and
lots are rejected if the standards are not met. They both also conduct
formal testing on every lot of body armor (vests and protective
inserts) prior to acceptance and issuance to troops. During production,
which is done at several sites, the lots of body armor are sent to a
National Institute of Justice-certified laboratory for ballistic
testing and to the Defense Contract Management Agency for quality
testing (size, weight, stitching) prior to issuance to troops. Figure 2
illustrates the lot acceptance process.
Figure 2: Lot Acceptance Process for Army and Marine Corps Body Armor:
[See PDF for image]
Sources: GAO and Art Explosion.
[End of figure]
Once approved, the body armor is issued to operating forces. Currently,
both Army and Marine Corps personnel are issued body armor prior to
deployment. The Army lot failure rate from January 2006 to January 2007
was 3.32 percent for the enhanced small arms inserts, and there were no
failures for the outer tactical vests.[Footnote 6] From February 2006
to February 2007, the Marine Corps lot failure rate was 4.70 percent
for the outer tactical vests.
Although not required to do so, after the systems have been used in the
field, the Army does limited ballistic testing of outer tactical vests
and environmental testing of the outer tactical vests and the inserts.
The Marine Corps visually inspects the vest and the plates for damage.
According to Army officials, there has been no degradation of body
armor based on ballistic and environmental testing results.
Additionally, to determine future improvements, the Army and the Marine
Corps body armor program offices monitor and assess the use of body
armor in the field, including the review of medical reports from the
Armed Forces Medical Examiner. For example, the Army and Marine Corps
added side plates and throat protection based on body armor usage in
the field.
DOD has a standard methodology for ballistic testing of the hard body
armor plates, but not for the soft body armor vest. Currently, DOD's
Director, Operational Test and Evaluation Office is developing a
standard methodology for ballistic testing of the soft body armor to
eliminate discrepancies in testing methodologies. The new standard is
expected to be issued sometime in 2007.
Army and Marine Corps Share Body Armor Information:
The Army and Marine Corps share information regarding ballistic
requirements and testing, and the development of future body armor
systems, although they are not required to do so. For example, in
August 2006, the Marine Corps attended the Army's test of next
generation body armor types at Fort Benning, Georgia. Similarly, the
Army sent representatives to attend the Marine Corps's operational
assessment of the new Modular Tactical Vest. DOD officials indicate
that there is no requirement to share information. Title 10 of the U.S.
Code allows each service to have separate programs, according to Army
and Marine Corps officials. Nevertheless, the services are sharing
information regarding ongoing research and development for the next
generation of body armor.
Contractors and Non-DOD Civilians Are Provided Body Armor Where
Permitted:
Regarding contractors or non-DOD civilians, DOD Instruction 3020.41
allows DOD to provide body armor to contractors where permitted by
applicable DOD instructions and military department regulations and
where specified under the terms of the contract. It is CENTCOM's
position that body armor will be provided to contractors if it is part
of the terms and conditions of the contract. According to CENTCOM
officials, non-DOD government civilians such as State Department
civilians are expected to make their own arrangements to obtain this
protection. However, the officials said that commanders, at their
discretion, can provide body armor to any personnel within their area
of operation.
Conclusion:
In conclusion, Mr. Chairman, the Army and Marine Corps have taken
several actions to address concerns, including assuring that the body
armor systems meet the current theater requirements and that the
amounts needed in theater are available. However, ballistic theater
threats can change, and the services will need to continue to monitor
and evaluate the theater ballistic threats in order to develop and
provide individual body armor that can counter these changing threats.
The services also will need to monitor and evaluate new technologies
that may counter emerging theater ballistic threats. Moreover, they
will need to continue to assure that controls are in place during
manufacturing and after fielding to assure that existing and future
body armor systems meet theater ballistic requirements.
Mr. Chairman, this concludes my statement. I would be pleased to
respond to any questions you or other Members of the Committee may
have.
Contacts and Staff Acknowledgments:
For more information regarding this testimony, please call me at (202)
512-8365. Individuals making key contributions to the testimony
include: Grace Coleman, Alfonso Garcia, Lonnie McAllister, Lorelei St.
James, and Leo Sullivan.
FOOTNOTES
[1] U.S. Central Command (CENTCOM) is one of DOD's five geographic
combatant commands, whose area of responsibilities encompasses 27
countries, including Iraq and Afghanistan, in Southwest Asia, South and
Central Asia, and the Horn of Africa. Combatant commanders are
responsible for overseeing U.S. military operations that take place in
their geographic area.
[2] GAO, Defense Logistics: Army and Marine Corps's Individual Body
Armor System Issues, GAO-07-662R (Washington, D.C.: Apr. 26, 2007).
[3] More detailed information regarding our scope and methodology can
be found in GAO, Defense Logistics: Army and Marine Corps's Individual
Body Army System Issues, GAO-07-662R (Washington, D.C.: Apr. 26, 2007).
[4] Army and Marine Corps officials told us they took actions to
address the causes of lot failures.
[5] GAO, Actions Needed to Improve the Availability of Critical Items
during Current and Future Operations, GAO-05-275 (Washington, D.C.:
Apr. 8, 2005).
[6] The lot failure rate is calculated by dividing the total lots
rejected by the total lots tested. A lot is a pallet or grouping of
manufactured items varying in number per lot. For example, the Army's
outer vest lots range from 1,100 to 1,200. A lot is manufactured within
a specific period of time, at a common location.
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