Defense Primer: Personnel Tempo (PERSTEMPO)
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https://crsreports.congress.gov
Updated December 6, 2024
Defense Primer: Personnel Tempo (PERSTEMPO)
As a result of the nation’s extended involvement in contingency operations around the globe, some U.S. servicemembers have experienced prolonged, recurrent, and stressful deploymentsDefense Primer: Personnel Tempo (PERSTEMPO)
for members and their families.
Congress oversees the Department of Defense’s (DOD’s).
Congress oversees PERSTEMPO management, policies and programs. In addition, congressional actions to authorize force size (i.e., end-strength) can affect the number of personnel available for deployment. Appropriated funds for military pay and benefits (including leaveleave and morale programs) may compensate troops for time spent away.
Background and Definitions
During the mid-1990s, though the nation was not engaged in major conflict, a combination of force drawdowns and increased deployments in support of peacetime missions (e.g., peacekeeping and humanitarian operations) put stress on some servicemembers, particularly those in high-deploying specialty units. A 1996 Government Accountability Office report (GAO/NSIAD-NSIAD-96-105) found that DODthe Department of Defense (DOD) did not have consistent goals or policies for managing personnel tempo. (Note that DOD is currently "using a secondary Department of War designation," and the Secretary of Defense is using "Secretary of War" as a "secondary title" under Executive Order 14347, dated September 5, 2025.) Congress responded by taking steps to require tracking and reporting of PERSTEMPO data and to provide for compensating servicemembers who exceeded thresholds (see Table 1).
Establishing Deployment Thresholds
To (see Table 2).
Recognizing a need to more accurately measure the pace of operations and its impacts on military personnel, in the National Defense Authorization Act for 2000 (FY2000 NDAA, P.L. 106-65), Congress first added aadded statutory definitions for deploymentdeployment and high-deployment thresholds, and also authorized additional compensation for exceeding thresholds (10 U.S.C. §991 and 37 U.S.C. §436). This law also required the Under Secretary of Defense for Personnel and Readiness to develop standardized terminology and policies for PERSTEMPO and operating tempo (OPTEMPO), and to track and report on these categories (10 U.S.C. §136(d)).
Threshold Waiver Authority
Under ).
10 U.S.C. §991, the Secretaries of the military departments may waive thresholds for " Term Definition PERSTEMPO, as amended, includes a waiver authority for “national security”" reasons. Shortly after the September 11, 2001, terrorist attacks, a a Deputy Secretary of Defense memorandum memorandum invoked this waiver authority to indefinitely suspend high-deployment thresholds.
Table 1. Statutory Definitions and Thresholds
The amount of time servicemembers invoked this waiver authority to indefinitely suspend high-deployment thresholds. As operations in Afghanistan and Iraq intensified, many raised concerns that individuals within certain military occupational specialties were experiencing both lengthy and frequent deployments. While the PERSTEMPO measures captured deployment duration, they did not adequately capture the down time, or dwell time, servicemembers had between deployments.
In 2007, DOD established deploy-to-dwell (D2D) and mobilization-to-dwell (M2D) planning objectives for the active and reserve components, respectively. In the FY2012 NDAA (P.L. 112-81), Congress established a statutory definition of dwell time and provided the authority for the SECDEF to modify this definition with congressional notification. DOD has periodically issued policy updates to change this definition and to provide separate definitions for the active and reserve components (see Table 2 for a timeline of selected events).
Definitions take into account a broad range of activities that keep servicemembers away from home (Table 1). Activities not included as deployment events, include, for example, military duties extending beyond normal working hours but conducted at the member’s home duty station, also known as the permanent duty station.
Table 1. Statutory Definitions and Thresholds
Term Definition
PERSTEMPO The amount of time servicemembers are engaged in their official duties at a location or under circumstances that make it infeasible for a member to spend off-duty time in the housing in which the member resides.
OPTEMPOOPTEMPO
The rate at which units are involved in all military activities, including contingency operations, exercises, and training deployments.
Deployed or in a deployment*
Any day on which, pursuant to orders, the member is performing service in a training exercise or operation at a location or under circumstances that make it impossible or infeasible for the member to spend off-duty time in the housing in which the member resides when on garrison duty at the member’'s permanent duty station or homeport.
High deployment threshold
High deployment threshold*
One-year: 220 days deployed out of the previous 365 days. (not in effect per national security waiver).
Two-year: 400 days deployed out of the previous 730.
Dwell time*
*
The time a regular member of the armed forcesArmed Forces or unit spends at the permanent duty station or home port after returning from deployment.
Sources
Sources: 10 U.S.C. §991 and 10 U.S.C. §136(d). (d). Notes: Contingency operations are as defined in 10 U.S.C. §101(a)(13)(B). *DOD policy (DODI 1336.07, Table 11) further defines PERSTEMPO events.
Notes: *DODI 1336.07 notes that statutory thresholds have been waived since October 8, 2001 and establishes a force-wide threshold of 400 days deployed out of the preceding 730 days. DOD has also defined dwell time differently in policy documents for certain time periods or purposes.
Defense Primer: Personnel Tempo (PERSTEMPO)
https://crsreports.congress.gov
Table 2. Timeline of Selected PERSTEMPO Actions 1995-2023
Year Selected Actions
1995 Congress calls for improved DOD management of PERSTEMPO. (P.L. 104-106 §565)
1999 Congress requires enhanced management of deployed personnel through the establishment of PERSTEMPO definitions, policies, thresholds, data collection, and compensation. (P.L. 106-65 §§586 & 923)
2001 On October 8, 2001, DOD invokes national security waiver and indefinitely suspends high-deployment per diem thresholds in response to 9/11 attacks.
2003 Congress amends high-deployment thresholds, authorizes a high-deployment monthly allowance in place of per diem (P.L. 108-136 §541) and increases minimum Family Separation Allowance. (P.L. 108-11 §1316)
2007 DOD establishes D2D and M2D planning objectives. (SECDEF memorandum, “Utilization of the Total Force”, Jan. 19, 2007)
2011 Congress establishes dwell definition, and repeals annual PERSTEMPO reporting requirements, but requires PERSTERMPO data collection and recordkeeping. (P.L. 112-81 §522)
2013 DOD issues policy restating D2D goals and thresholds. (“Under Secretary of Defense (Personnel & Readiness) Deployment-to-Dwell, Mobilization-to- Dwell Policy Revision”, Nov. 1, 2013)
2019 Congress requires the Secretary concerned establish specific and measurable thresholds to monitor PERSTEMPO for affected members when waivers are revoked. (P.L. 116-92 §507)
2021 DOD issues updated policy lengthening the D2D goals and thresholds. (DTM-21-005, Aug. 16, 2021, with update on Oct. 13, 2022)
Source: CRS derived from multiple sources.
As operations in Afghanistan and Iraq intensified in the early 2000s, many observers raised concerns that individuals within certain military occupational specialties were experiencing both lengthy and frequent deployments. While the PERSTEMPO measures captured deployment duration, they did not adequately capture the down time, or dwell time, servicemembers had between deployments. DOD policy requires Secretary approval to deploy a unit, detachment, or individual at ratios below the threshold.High-PERSTEMPO Compensation
Establishing "Dwell" Times
High-PERSTEMPO Compensation
Congress has sought to incentivize better DOD management of PERSTEMPO and to compensate affected troops by authorizing certain allowances. The FY2000 NDAA (P.L. 106-65), as amended, authorized a high- deployment monthly allowance of up to $1,000 (at the discretion of the Secretary concerned) for each month that an active component servicemember is deployed for (1) 191 or more consecutive days, or (2) 401 or more days out of the preceding 730 days. Reserve componentRC members are eligible for the allowance when (1) under a call to active duty for more than 30 days that is the second (or later) such call for the same contingency operation; or (2) for a period of more than 30 days, if such period begins within one year after the date on which the member was released from previous service of more than 30 days on active duty (codified under 37 U.S.C. §436).).
Deployed servicemembers may also receive other compensation while deployed (e.g., hostile fire and imminent danger, sea duty pay). These special and incentive pays largely dependhazardous duty and special duty compensation while deployed. Congress has authorized these pays under sections 351 and 352 of Title 37, U.S. Code. Eligibility largely depends on the geographic location of the operation and the nature of servicemember’s assignment.
Beginning with the Uniformed Services Pay Act of 1963 (P.L. 88-132), Congress has authorized a Family Separation Allowance (FSA) to compensate for added expenses that result from family separation. This law entitles uniformed servicemembers who are separated from their families due to certain duty assignments for a period of 30 days or more to an FSA not less than $250300 per month and not more than $400 per month (37 U.S.C. §427).).
PERSTEMPO Tracking and Reporting The
Per DOD policy, the Defense Manpower Data Center (DMDC) maintainsis to maintain a centralized database of all PERSTEMPO events. The Secretaries of the Military Departments and the Commandant of the Coast Guard are responsible for reporting PERSTEMPO events to DMDC. A 2018 GAO study (GAO-18-253) found DOD did not have complete or reliable PERSTEMPO data, and has recommended better quality control processes. GAO has since documented that DOD implemented these recommendations by issuing revised policy guidance.
High-PERSTEMPO Impacts
In general, research has found associations between deployment frequency and duration, and decreased military spouse well-being (e.g., depression and anxiety), increased child problematic behaviors, and negative effects on parent- child and member-spouse relationships. On the other hand, while many membersseveral servicemembers express dissatisfaction with increased deployments, there is not a preponderance of evidence to suggest thatincreased deployment has a significant effect on continuation/ and retention rates. There is some evidence that deployments increase military family savings, potentially reflectingdue to their eligibility for additional compensation.
Relevant Statutes
10 U.S.C. §§136 & 991
37 U.S.C. §§427 & 436
Other Resources
Department of Defense Instructions: • DODI 1336.07, Management of Personnel Tempo
• DODI 1235.12, Accessing the Reserve Components
Reports RAND Corporation, Assessment of Deployment- and Mobilization-to-Dwell Policies for Active and Reserve Component Forces, July 20, 2023
GAO, Military Readiness: Clear Policy and Reliable Data Would Help DOD Better Manage Service Members’ Time Away from Home, GAO-18-253, April 25, 2018
Kristy N. Kamarck, Specialist in Military Personnel
IF11007
Defense Primer: Personnel Tempo (PERSTEMPO)
https://crsreports.congress.gov | IF11007 · VERSION 14 · 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.
Issues for Congress
During the 119th Congress, the Trump Administration has initiated military operations overseas, including Operations Absolute Resolve in Venezuela and Epic Fury in Iran. There have been reports of extended deployments for certain units beyond initial planning parameters, particularly for Naval forces. For example, according to the U.S. Naval Institute, the USS Gerald R. Ford aircraft carrier, which was extended at sea in support of these operations, has seen the longest carrier deployment since the Vietnam War era. According to Vice Chief of Naval Operations testimony, the Ford's deployment is expected to be 11 months – above the one-year high-deployment threshold specified in law. According to DOD policy (DODI 1336.07), this threshold has been suspended since October 8, 2001. A 2004 GAO report found that at the time, the Department viewed the high-deployment allowance as a "peacetime" authority and that it would seek its elimination. Congress has provided DOD with other flexible pay authorities to compensate servicemembers in deployed environments and might consider whether these pays—individually, or in combination—adequately compensate servicemembers for high PERSTEMPO.
Congress could request more information from the services to assess whether they are adequately tracking and managing PERSTEMPO across services, components and occupational specialties. For example, whether certain operators are consistently or more frequently exceeding deployment and dwell thresholds, and if there are any associated impacts on recruitment, retention, or personnel readiness. These factors could contribute to congressional consideration of end-strength figures for the services and components during the defense authorization and appropriation cycle.
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Relevant Statutes and Resources 10 U.S.C. §§136 & 991, 37 U.S.C. §§427 & 436 Department of Defense Instructions:
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