Defense Primer: Active Component Enlisted Retention

https://crsreports.congress.gov

Updated November 15, 2024

Defense Primer: Active Component Enlisted Retention

Retention

Defense Primer: Active Component Enlisted Retention

Retention

The term retention refers to the rate at which military personnel voluntarily choose to stay in the military after their obligated term of service has ended as determined by their enlistment contract (typically less than six years for an initial contract). Imbalances in the retention rate can cause problems within the military personnel system. A common retention concern is that too few people will stay in, thereby creating a shortage of experienced leaders and operators, decreasing military efficiency, and lowering job satisfaction. This was a particular concern from 2004 to 2009, as the stress of major combat deployments to Iraq and Afghanistan raised concerns about the willingness of military personnel to continue serving. The opposite concern may also occur at times, particularly during force drawdowns: that too many people will stay in, thereby decreasing promotion opportunities and possibly requiring involuntarilyinvoluntary separations to prevent the organization from becoming “"top heavy”" with middle- and upper-level leaders or to comply with end-strength limitations. Each of theseThese imbalances can also have a negative impact on recruiting by making the military a less-attractive career option.

Congressional Role

The Constitution provides Congress with broad powers over the Armed Forces, including the power “"To raise and support Armies”" and “"To provide and maintain a Navy.”" In the exercise of this authority, Congress has historically shown great interest in maintaining military retention rates sufficient to sustain a fully manned and capable military workforce. Through its oversight powers, Congress monitors the performance of the Executive Branchexecutive branch in managing the size and quality of the military workforce.

Congress influences retention rates in a variety of ways, including authorizing and funding

• overall compensation levels, particularly in light of their

competitiveness with private-sector compensation;

• quality-of-life initiatives thatto enhance servicemember

and family member satisfaction with a military career;

• retention programs that provide for dedicated career

counselors; and

• retention incentives, such as reenlistment bonuses.

More broadly, congressionally established personnel end- strength levels can influence each armed service’'s retention

goals. For example, if Congress were to substantially increase the end-strength for an armed service, that service would generally require a greater number of new recruits, higher rates of retention among current servicemembers, or some combination of the two. Congress also establishes criteria that affect eligibility for continued service, such as disability separation and retirement (Title 10 U.S. Code, Chapter 61) and punitive discharge for criminal activity (Title 10 U.S. Code, Chapter 45).

Retention Goals and Results

Table 1 lists active component enlisted retention goals and results for FY2022-FY2024FY2023-FY2025. The data are broken out by armed service and retention zoneszones, which are established by each armed service to reflect important phases in the military career lifecycle. The armed services define their primary retention zones as follows:

For Navy, Air Force, and Space Force:

• Zone A (Initial TermTerm): serving in first enlistment with

less than 6six years of service.

• Zone B (MidcareerMidcareer): second or subsequent enlistment

with less than 10 years of service.

• Zone C (CareerCareer): second or subsequent enlistment with

10-14 years of service.

The Navy and Air Force also have a Zone D and Zone E, which are not shown in Table 1. Navy Zone D is 14 to 20 years of service, and Zone E is more than 20 years of service. Air Force Zone D is 14 years to under 18 years of service, and Zone E is 18 years to under 20 years of service.

The Army uses the same definitions for Zones A and B as the other three services above; however, for Zone C, the Army includes all enlisted personnel over 10 years of service.

The Marine Corps uses slightly different categories:

• First term: serving in first enlistment with more than 17

months and less than 6six years of service.

• Subsequent: second or subsequent enlistment, with less

than 18 years of service.

• Other: Those with more than 18 years of service.

Defense Primer: Active Component Enlisted Retention

https://crsreports.congress.gov

Table 1.Retention Goals and Results

Active Component Enlisted Personnel, FY2022-FY2024

FY2023-FY2025

Armed Service/

Retention

Category

FY2023

FY2024

FY2025

Goal

Achieved

Percent of Goal

Goal

Achieved

Percent of Goal

Goal

Achieved

Percent of Goal

Army

Zone A

24,351

24,729

102%

26,811

29,154

109%

22,442

26,556

118%

Zone B

18,771

19,149

102%

18,098

22,330

123%

18,162

21,169

117%

Zone C

11,985

12,363

103%

9,791

11,052

113%

11,286

13,415

119%

Navy

Zone A

18,210

21,371

117%

18,941

22,413

118%

20,472

20,290

99%

Zone B

8,107

7,890

97%

7,763

8,163

105%

7,924

7,889

100%

Zone C

5,506

5,914

107%

5,705

6,511

114%

5,951

5,918

99%

Category

FY2022 FY2023 FY2024

Goal Achieved

Percent

of Goal Goal Achieved

Percent

of Goal Goal Achieved

Percent

of Goal

Army

Zone A 26,321 27,111 103% 24,351 24,729 102% 26,811 29,154 109%

Zone B 19,506 20,296 104% 18,771 19,149 102% 18,098 22,330 123%

Zone C 10,107 10,897 108% 11,985 12,363 103% 9,791 11,052 113%

Navy

Zone A 17,523 18,886 108% 18,210 21,371 117% 18,941 22,413 118%

Zone B 7,751 8,271 107% 8,107 7,890 97% 7,763 8,163 105%

Zone C 5,247 5,724 109% 5,506 5,914 107% 5,705 6,511 114%

Marine Corps

First 5,820 5,918 102% 6,225 7,070 114% 6,950 7,953 114%

Subsequent 5,417 5,794 107% 5,632 5,942 106% 5,962 5,799 97%

Air Force

Zone A 19,109 22,627 118% 18,185 23,102 127% 19,094 25,166 132%

Zone B 10,852 11,426 105% 12,117 12,170 100% 12,888 13,125 102%

Zone C 7,900 9,010 114% 7,874 9,189 117% 8,012 9,929 124%

Marine Corps

First

6,225

7,070

114%

6,950

7,953

114%

7,674

8,228

107%

Subsequent

5,632

5,942

106%

5,962

5,799

97%

6,296

7,201

114%

Air Force

Zone A

18,185

23,102

127%

19,094

25,166

132%

16,874

24,136

143%

Zone B

12,117

12,170

100%

12,888

13,125

102%

13,206

14,001

106%

Zone C

7,874

9,189

117%

8,012

9,929

124%

7,648

9,199

120%

Space Force

Zone A

-

-

-

276

338

122%

264

369

140%

Zone B

-

-

-

204

257

126%

132

209

158%

Zone C

-

-

-

132

195

148%

77

151

196%

Space Force

Zone A - - - - - - 276 338 122%

Zone B - - - - - - 204 257 126%

Zone C - - - - - - 132 195 148%

Source: Department of Defense data provided to CRS as of October 29, 2024. November 6, 2025. Note: Space Force data were included with the Air Force for FY2022 and FY2023.

FY2023.

Issues for Congress

Congressional interest in retention typically increases when an armed service fails to meet its goal for one or more retention zones by about 10% or more, and particularly if the shortfall continues over several years. Additionally, even if an armed service is meeting its goals by retention zones, Congress may nonetheless focus on retention shortfalls within specific occupational specialties (for examplee.g., health care professions or special operations) or for certain demographics.

The perceived cause of any such shortfalls is often of interest to Congress as well. For example, was the shortfall related to congressionally directed end-strength increases, which necessitated higher retention goals? Was it due to more attractive compensation packages in the private sector? Was it due to decreased job satisfaction? The perceived cause can affect interpretations of the shortfalls’' significance and the options for remedying them.

Relevant Statutes

Title 10 U.S. Code, Chapter 31

Title 10 U.S. Code, Section 115

Other Resources

DOD Instruction 1332.45, Retention Determinations for Non-Deployable Service Members

DOD Instruction 1308.3, DOD Physical Fitness and Body Fat ProgramsPrograms Procedures

DOD Instruction 1304.29, , Administration of Enlistment Bonuses, Accession Bonuses for New Officers in Critical Skills, Selective Reenlistment Bonuses, and Critical Skills Retention Bonuses for Active Members

Kristy N. Kamarck, Specialist in Military Personnel Carly A. Miller, Research Librarian

IF11274

Defense Primer: Active Component Enlisted Retention

https://crsreports.congress.gov | IF11274 · VERSION 7 · UPDATED

Disclaimer

This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff to congressional committees and Members of Congress. It operates solely at the behest of and under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other than public understanding of information that has been provided by CRS to Members of Congress in connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not subject to copyright protection in the United States. Any CRS Report may be reproduced and distributed in its entirety without permission from CRS. However, as a CRS Report may include copyrighted images or material from a third party, you may need to obtain the permission of the copyright holder if you wish to copy or otherwise use copyrighted material.