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Updated June 24, 2024
Defense Primer: Personnel Tempo (PERSTEMPO)
As a result of the nation’s extended involvement in
In 2007, DOD established deploy-to-dwell (D2D) and
contingency operations around the globe, some U.S.
mobilization-to-dwell (M2D) planning objectives for the
servicemembers have experienced prolonged, recurrent, and
active and reserve components, respectively. In the FY2012
stressful deployments. In addition, preparation for
NDAA (P.L. 112-81), Congress established a statutory
deployments (e.g., training, exercises, temporary duty
definition of dwell time and provided the authority for the
assignments) can incur extended working hours or frequent
SECDEF to modify this definition with congressional
travel away from home station. The pace of operations for
notification. DOD has periodically issued policy updates to
individuals is commonly referred to as personnel tempo
change this definition and to provide separate definitions
(PERSTEMPO) and can affect quality of life, work
for the active and reserve components (see Table 2 for a
satisfaction, and overall morale for members and their
timeline of selected events).
families.
Definitions take into account a broad range of activities that
Congress oversees the Department of Defense’s (DOD’s)
keep servicemembers away from home (Table 1).
PERSTEMPO management, policies and programs. In
Activities not included as deployment events, include, for
addition, congressional actions to authorize force size (i.e.,
example, military duties extending beyond normal working
end-strength) can affect the number of personnel available
hours but conducted at the member’s home duty station,
for deployment. Appropriated funds for military pay and
also known as the permanent duty station.
benefits (including leave and morale programs) may
Table 1. Statutory Definitions and Thresholds
compensate troops for time spent away.
Background and Definitions
Term
Definition
During the mid-1990s, though the nation was not engaged
PERSTEMPO
The amount of time servicemembers are
in major conflict, a combination of force drawdowns and
engaged in their official duties at a
increased deployments in support of peacetime missions
location or under circumstances that
(e.g., peacekeeping and humanitarian operations) put stress
make it infeasible for a member to
on servicemembers, particularly those in high-deploying
spend off-duty time in the housing in
specialty units. A 1996 Government Accountability Office
which the member resides.
report (GAO/NSIAD-96-105) found that DOD did not have
consistent goals or policies for managing personnel tempo
OPTEMPO
The rate at which units are involved in
(see Table 2).
all military activities, including
contingency operations, exercises, and
Recognizing a need to more accurately measure the pace of
training deployments.
operations on military personnel, in the National Defense
Authorization Act for 2000 (FY2000 NDAA, P.L. 106-65),
Deployed or in a Any day on which, pursuant to orders,
Congress first added a statutory definitions for deployment
deployment*
the member is performing service in a
and high-deployment thresholds, and authorized additional
training exercise or operation at a
compensation for exceeding thresholds (10 U.S.C. §991 and
location or under circumstances that
37 U.S.C. §436). This law also required the Under
make it impossible or infeasible for the
Secretary of Defense for Personnel and Readiness to
member to spend off-duty time in the
develop standardized terminology and policies for
housing in which the member resides
PERSTEMPO and operating tempo (OPTEMPO), and to
when on garrison duty at the member’s
track and report on these categories (10 U.S.C. §136(d)).
permanent duty station or homeport.
High
One-year: 220 days deployed out of the
10 U.S.C. §991, as amended, includes a waiver authority
deployment
previous 365 days. Two-year: 400 days
for “national security” reasons. Shortly after the September
threshold
deployed out of the previous 730.
11, 2001, attacks, a Deputy Secretary of Defense
memorandum invoked this waiver authority to indefinitely
Dwell time*
The time a regular member of the
suspend high-deployment thresholds. As operations in
armed forces or unit spends at the
Afghanistan and Iraq intensified, many raised concerns that
permanent duty station or home port
individuals within certain military occupational specialties
after returning from deployment.
were experiencing both lengthy and frequent deployments.
Sources: 10 U.S.C. §991 and 10 U.S.C. §136(d).
While the PERSTEMPO measures captured deployment
Notes: Contingency operations are as defined in 10 U.S.C.
duration, they did not adequately capture the down time, or
§101(a)(13)(B). *DOD policy (DODI 1336.07, Table 1) further
dwell time, servicemembers had between deployments.
defines PERSTEMPO events. DOD has also defined dwell time
differently in policy documents for certain time periods or purposes.
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Defense Primer: Personnel Tempo (PERSTEMPO)
Deployed servicemembers may also receive other
compensation while deployed (e.g., hostile fire and
Table 2. Timeline of Selected PERSTEMPO Actions
imminent danger, sea duty pay). These special and
1995-2023
incentive pays largely depend on the geographic location of
the operation and the nature of servicemember’s
Year
Selected Actions
assignment.
1995
Congress calls for improved DOD management of
Beginning with the Uniformed Services Pay Act of 1963
PERSTEMPO. (P.L. 104-106 §565)
(P.L. 88-132), Congress has authorized a Family Separation
Allowance (FSA) to compensate for added expenses that
1999
Congress requires enhanced management of deployed
result from family separation. This law entitles uniformed
personnel through the establishment of PERSTEMPO
servicemembers who are separated from their families due
definitions, policies, thresholds, data col ection, and
to certain duty assignments for a period of 30 days or more
compensation. (P.L. 106-65 §§586 & 923)
to an FSA not less than $250 per month and not more than
2001
On October 8, 2001, DOD invokes national security
$400 per month (37 U.S.C. §427).
waiver and indefinitely suspends high-deployment per
PERSTEMPO Tracking and Reporting
diem thresholds in response to 9/11 attacks.
The Defense Manpower Data Center (DMDC) maintains a
2003
Congress amends high-deployment thresholds,
centralized database of all PERSTEMPO events. The
authorizes a high-deployment monthly allowance in
Secretaries of the Military Departments and the
place of per diem (P.L. 108-136 §541) and increases
Commandant of the Coast Guard are responsible for
minimum Family Separation Al owance. (P.L. 108-11
reporting PERSTEMPO events to DMDC. A 2018 GAO
§1316)
study (GAO-18-253) found DOD did not have complete or
reliable PERSTEMPO data, and has recommended better
2007
DOD establishes D2D and M2D planning objectives.
quality control processes. GAO has documented that DOD
(SECDEF memorandum, “Utilization of the Total
implemented these recommendations by issuing revised
Force”, Jan.19, 2007)
policy guidance.
2011
Congress establishes dwell definition, and repeals
High-PERSTEMPO Impacts
annual PERSTEMPO reporting requirements, but
In general, research has found associations between
requires PERSTERMPO data col ection and
deployment frequency and duration, and decreased military
recordkeeping. (P.L. 112-81 §522)
spouse well-being (e.g., depression and anxiety), increased
2013
DOD issues policy restating D2D goals and
child problematic behaviors, and negative effects on parent-
thresholds. (“Under Secretary of Defense (Personnel
child and member-spouse relationships. On the other hand,
& Readiness) Deployment-to-Dwell, Mobilization-to-
while many members express dissatisfaction with increased
Dwell Policy Revision”, Nov. 1, 2013)
deployments, there is not a preponderance of evidence to
suggest that has a significant effect on
2019
Congress requires the Secretary concerned establish
continuation/retention rates. There is some evidence that
specific and measurable thresholds to monitor
deployments increase military family savings, potentially
PERSTEMPO for affected members when waivers are
reflecting their eligibility for additional compensation.
revoked. (P.L. 116-92 §507)
2021
DOD issues updated policy lengthening the D2D
Relevant Statute
goals and thresholds. (DTM-21-005, Aug. 16, 2021,
with update on Oct. 13, 2022)
10 U.S.C. §§136 & 991
Source: CRS derived from multiple sources.
37 U.S.C. §§427 & 436
High-PERSTEMPO Compensation
Other Resources
Congress has sought to incentivize better DOD
Department of Defense Instructions:
management of PERSTEMPO and to compensate affected
•
DODI 1336.07, Management of Personnel Tempo
troops by authorizing certain allowances. The FY2000
•
DODI 1235.12, Accessing the Reserve Components
NDAA (P.L. 106-65), as amended, authorized a high-
deployment monthly allowance of up to $1,000 (at the
Reports
discretion of the Secretary concerned) for each month that
RAND Corporation, Assessment of Deployment- and
an active component servicemember is deployed for (1) 191
Mobilization-to-Dwell Policies for Active and Reserve Component
or more consecutive days, or (2) 401 or more days out of
Forces, July 20, 2023.
the preceding 730 days. Reserve component members are
eligible for the allowance when (1) under a call to active
GAO, Military Readiness: Clear Policy and Reliable Data Would
duty for more than 30 days that is the second (or later) such
Help DOD Better Manage Service Members' Time Away from
call for the same contingency operation; or (2) for a period
Home, GAO-18-253, April 25, 2018
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 (37
Kristy N. Kamarck, Analyst in Military Manpower
U.S.C. §436).
IF11007
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Defense Primer: Personnel Tempo (PERSTEMPO)
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https://crsreports.congress.gov | IF11007 · VERSION 12 · UPDATED