FY2024 NDAA: Junior Reserve Officers’ Training Corps (JROTC) Matters
INSIGHTi
FY2024 NDAA: Junior Reserve Officers’
Training Corps (JROTC) Matters
Updated December 29, 2023
Background
The Junior Reserve Officers’ Training Corps (JROTC) is a congressionally mandated and funded
Department of Defense (DOD) program of instruction with participation of approximately 500,000
students in more than 3,400 secondary schools. It is administered by the military departments (Army,
Navy, and Air Force) and instruction is provided primarily by retired military servicemembers. The
military services exercise oversight for the program in coordination with local educational agencies
(LEAs).
The program has garnered attention in the 117th and 118th Congresses following reporting on instructor
misconduct, curriculum standards, and allegations of coerced enrollment, among other matters. While
program oversight has raised concerns, a 2023 study by the RAND Corporation of JROTC outcomes has
linked high school participation in the program with increased likelihood for graduation, higher
attendance rates, and lower disciplinary actions. It also found that JROTC participants are more likely
than other high school students to enlist, complete their first term of enlistment, and to pursue science,
technology, engineering, and mathematics (STEM)-related occupational specialties than other enlistees in
the Army. In 2020, the National Commission on Military, National, and Public Service pointed to JROTC
as a catalyst for increasing civic education and sparking interest in military service, and recommended
expanding and strengthening JROTC programs. Some observers have suggested that expanding the
JROTC program could help to mitigate recruiting shortfalls by increasing youth propensity to serve.
For additional background, see CRS In Focus IF11313, Defense Primer: Junior Reserve Officers’
Training Corps, by Kristy N. Kamarck.
Legislation
During consideration of the National Defense Authorization Act for Fiscal Year 2024 (NDAA; H.R. 2670;
S. 2226), the House and Senate proposed several amendments to JROTC authorities related to program
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structure and accountability. The enacted FY2024 NDAA (P.L. 118-31) adopted nearly all of provisions.
See Table 1 and discussion of provisions below.
Table 1. Selected JROTC Provisions in the FY2024 NDAA
House-passed (H.R. 2670)
Senate-passed (S. 2226)
Enacted (P.L. 118-31)
Program Structure
No similar provision.
Section 571 would mandate at least
Section 551 adopted the Senate
3,400 JROTC units and no more than
provision.
4,000, and would strike statutory
language about “fair and equitable
distribution” of units.
Section 553 would prohibit the
No similar provision.
Section 554 adopted the House
establishment or maintenance of a
provision.
JROTC unit at an educational
institution owned, operated, or
control ed by the Chinese Communist
Party.
Section 552 would clarify eligibility
Section 574 is similar to the House
Section 553 adopted the Senate
requirements for JROTC instructors
provision but includes language
provision with an amendment that
and modify how instructor salaries
indicating that individual’s eligible
prohibits DOD from reducing the pay
are determined.
“request such employment.”
of any JROTC instructor employed as
of the date of enactment.
Program Accountability
No similar provision.
Section 572 would codify the authority
Section 555 adopted the Senate
to suspend or place on probation
provision with a technical amendment.
JROTC units and would require reports
to Congress on suspended and
probationary units.
No similar provision.
Section 573 would require DOD to
Section 552 adopted the Senate
establish a standard memorandum of
provision with a technical amendment.
understanding (MOU) for institutions
hosting JROTC units with processes for
reporting conduct violations.
No similar provision.
Section 575 would require an annual
Section 556 adopted the Senate
report to Congress on allegations of
provision with a technical amendment.
sexual misconduct in JROTC units.
No similar provision.
Section 576 would require a
Not adopted; conferees directed a
Government Accountability Office
GAO report on topics related to
(GAO) report on DOD efforts to
JROTC and sexual misconduct.
increase transparency and reporting on
sexual violence in JROTC.
Source: CRS analysis of legislation on Congress.gov.
Program Structure
Section 551 of the FY2024 NDAA set mandatory parameters for the number of JROTC units (between
3,400 and 4,000). The military departments reported 3,499 total units in FY2023 (see Table 2) with a
planned increase of 15 units in FY2024. Section 551 also removed language under 10 U.S.C. §2031(a)
that mandates “fair and equitable distribution” of units throughout the Nation.
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Section 554 of final bill adopted a House provision that prohibits the establishment or maintenance of a
JROTC unit at an educational institution owned, operated, or controlled by an individual or entity with
connections to the Chinese Communist Party. Some observers have raised concerns about China’s
influence and investment in elementary and secondary education in the United States.
Table 2. Number of Funded JROTC Units
Military Service Branch
FY2023
FY2024 (request)
Army
1,729
1,734
Navy
658
658
Marine Corps
254
252
Air Force
848
853
Space Force
10
17
Total
3,499
3,514
Source: Military Department budget justification books. Navy and Marine Corps figures include Navy National Defense
Cadet Corps (NNDCC) units.
Section 553 of the enacted FY2024 NDAA adopted similar provisions from the House and Senate bills
(Sections 552 and 574, respectively) that clarify the authority to employ certain non-retirement eligible
veterans and reserve component members as JROTC instructors. This follows an expansion of instructor
eligibility in the FY2023 NDAA (P.L. 117-263, §512).
Section 553 also directs a new pay structure for instructors. Under the existing system, military
departments subsidize JROTC instructors by reimbursing the host LEA for a portion of the salary. The
services fund these subsidies through military personnel (MILPERS) appropriations. The Minimum
Instructor Pay (MIP) required to be paid by the LEA is the difference between the (1) active duty pay the
instructor would receive if recalled to active duty and (2) instructor’s retired pay entitlement. The military
service is required by 10 U.S.C. §2031(e) to reimburse the LEA for up to one-half of the MIP. Changes to
the military retirement system in the FY2016 NDAA (P.L. 114-92) that reduced the retired pay multiplier
(thereby increasing the MIP) would likely increase DOD’s costs for instructor salaries under this legacy
system.
Section 553 of the enacted FY2024 NDAA requires a new “joint service instructor pay scale” (JSIPS)
system. Under the scale, DOD is to subsidize a minimum of half of the JSIPS salary and the host LEA is
responsible for the remaining salary. The legislation did not define parameters for the JSIPS, thus
providing discretionary authority to DOD to establish such parameters under its financial management
regulations for JROTC instructor pay. The final bill also included an amendment that prohibits DOD from
reducing the total compensation of any JROTC instructors or administrators who were employed as of the
data of enactment.
Program Accountability
The enacted FY2024 NDAA adopted several Senate-proposed provisions designed to improve JROTC
oversight and accountability, in particular with respect to sexual misconduct by JROTC instructors.
Section 552 requires DOD to establish a standard memorandum of understanding (MOU) for JROTC
units and LEAs specifying requirements and processes for reporting allegations of misconduct, certifying
instructors, inspecting units, and training students. Section 555 codified authorities to suspend or place
units on probation for violating the established standards, and requires DOD to report annually on
violations. Section 556 requires annual reporting for a period of five years starting in March 2024 on
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allegations of sexual misconduct and harassment in JROTC units and actions that DOD is taking to
mitigate these activities.
Section 576 of the Senate bill would have required the U.S. Government Accountability Office (GAO) to
report on DOD’s implementation of these mandated activities. This provision was not adopted; conferees
directed GAO to conduct a review of DOD efforts to increase transparency and reporting on sexual
violence and to submit a report within one year of enactment of the FY2024 NDAA.
Author Information
Kristy N. Kamarck
Specialist in Military Manpower
Disclaimer
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