https://www.gao.gov/products/gao-21-168
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Title page
Contents
Highlights 2
Letter 9
Background 14
2017 Mishaps at Sea 14
U.S. Navy Surface Warfare Officers (SWOs) 16
Prior GAO Work on SWO Training 17
SWOs Separate Earlier and at Higher Rates Compared with Officers in Similar U.S. Navy Communities, and Female SWOs Separate at Higher Rates than Males 18
SWOs Separate from Their Community Earlier and at Higher Rates than Officers in Similar U.S. Navy Communities 18
Female SWOs Separate at Higher Rates than Male SWOs 23
The U.S. Navy's Commissioning Practices Limit Surface Warfare Officer Training Opportunities aboard Ships 27
The U.S. Navy Commissions Nearly Double the Number of SWOs Needed to Meet Personnel Needs, Limiting Training Opportunities aboard Ships 28
The U.S. Navy Commissions and Trains Junior Officers as SWOs Who Are Guaranteed the Option to Transfer to Other U.S. Navy Career Fields 32
The U.S. Navy Commissions Nuclear-Trained SWOs That Spend Half as Much Time on Ships than Their Peers 33
The Career Path for U.S. Navy SWOs Differs from Officers in Selected Foreign Navies and Other U.S. Navy and U.S. Maritime Communities 36
U.S. Navy SWOs Have a Generalist Career Path, but Others Specialize Duties 36
Other Key Differences Exist in Training and Proficiency Development and Retention Practices 40
The U.S. Navy Has Recently Made Incremental Career Path Changes for SWOs, but Has Not Regularly Evaluated Alternative Career Path and Proficiency Models 45
U.S. Navy Has Made Incremental Changes to SWO Career Path and Proficiency Models 45
A Majority of SWOs Believe That Specialized Career Paths Would Be Best for the U.S. Navy 46
A Substantial Number of SWOs Do Not Want to Become Ship Commanding Officers 48
A Majority of SWOs Believe the U.S. Navy Could Improve Proficiency Requirements for Commanding Officers and Other SWOs 51
Other Career Path and Proficiency Policies Present Advantages and Disadvantages 53
U.S. Navy Has Not Taken Key Strategic Workforce Planning Actions for SWOs That Evaluates the Navy's Current Approaches or Alternative Career Path and Proficiency... 54
Conclusions 56
Recommendations for Executive Action 57
Agency Comments and Our Evaluation 59
Appendix I: Data Sources and Methods Used for Retention Analyses 62
Appendix II: Nominal Cost of the U.S. Navy Surface Warfare, Aviation, and Submarine Officer Career Paths 81
Appendix III: Foreign Navy and U.S. Maritime Organization Profiles 86
Appendix IV: Surface Warfare Officer Survey Questionnaire, Demographic Information, and Weighted Responses 121
Appendix V: Objectives, Scope, and Methodology 146
Appendix VI: Comments from the Department of the Navy 159
Appendix VII: GAO Contact and Staff Acknowledgments 178
Figure 1. Overview of Significant Mishaps at Sea for U.S. Navy Surface Ships, January-August 2017 15
Figure 2. Type and Number of U.S. Navy Surface Ships, as of April 2021 16
Figure 3. Career Progression and Key Duties U.S. Navy Surface Warfare Officers (SWOs) Perform Aboard Ships 17
Figure 4. Retention Rates for Officers in Select U.S. Navy Communities, by Years of Service, Fiscal Year 2004 through March 2020 19
Figure 5. Nominal Personnel, Training, Retention, and Moving Costs of the U.S. Navy Surface Warfare Officer Career Path through 23 Years of Commissioned Service 22
Figure 6. Retention Rates for U.S. Navy Surface Warfare Officers, by Gender and Years of Service, Fiscal Years 2004 through March 2020 24
Figure 7. Female Representation in U.S. Navy Surface Warfare Officer Community, Calendar Years 2004 through 2020 26
Figure 8. U.S. Navy Surface Warfare Officer (SWO) Requirements for Ensigns aboard Ships and Ensign Over Execution, Fiscal Years 2017 through 2021 28
Figure 9. Average Years of Experience on Surface Ships for Nuclear-Trained and Non-Nuclear Trained Surface Warfare Officers 34
Figure 10. Selected Foreign Navies and U.S. Maritime Communities That Specialize Officer Career Paths by Ship Department Duties 39
Figure 11. Selected Foreign Navy and U.S. Maritime Community That Specialize Officer Career Paths by Ship Type 40
Figure 12. Survey-Based Estimates on What Career Path Would Best Prepare U.S. Navy Surface Warfare Officers for Duty 47
Figure 13. Survey-Based Estimates of U.S. Navy Surface Warfare Officers Who Have Not Held Command on Whether They Would Like to Become Commanding Officers 49
Figure 14. Survey-Based Estimates of U.S. Navy Surface Warfare Officer Personal Preference of Career Path 50
Figure 15. O-1 to O-3 Grade U.S. Navy Surface Warfare Officers' Survey-Based Estimates of Likelihood of Retention if Placed in Various Career Paths 51
Figure 16. Survey-Based Estimates of Observed Effectiveness of Current U.S. Navy Surface Warfare Officer Career Path in Developing Experienced Commanding Officers 52
Figure 17. Nominal Officer Costs for U.S. Navy Surface Warfare, Aviation, and Submarine Officer Community through 23 Years of Commissioned Service 82
Figure 18. Nominal Training Costs for U.S. Navy Surface Warfare, Aviation, and Submarine Officer Community through 23 Years of Commissioned Service 84
Figure 19. Nominal Retention Costs for U.S. Navy Surface Warfare, Aviation, and Submarine Officer Community through 23 Years of Commissioned Service 85
Figure 20. French Navy Surface Warfare Officer Career Paths and Ships 87
Figure 21. Nominal French Navy Surface Warfare Officer (Operations) Career Path 88
Figure 22. Nominal French Navy Surface Warfare Officer (Engineering) Career Path 88
Figure 23. French Navy Junior Surface Warfare Officer (Operations) Training Programs 89
Figure 24. Italian Navy Surface Warfare Officer Career Paths and Ships 91
Figure 25. Nominal Italian Navy General Staff Officer Surface Fleet Career Path 92
Figure 26. Nominal Italian Navy Naval and Mechanical Engineering Officer Career Path 93
Figure 27. Nominal Italian Navy Weapons Engineering Officer Career Path 94
Figure 28. Nominal Italian Navy Supply Officer Career Path 95
Figure 29. Italian Navy Junior General Staff Officer Surface Training Programs 95
Figure 30. Japan Maritime Self-Defense Force-Category 1 Surface Warfare Officer Career Paths and Ships 98
Figure 31. Nominal Japan Maritime Self-Defense Force Surface Warfare Officer Career Path 99
Figure 32. Japan Maritime Self-Defense Force Junior Category 1 Surface Warfare Officer Training Programs 100
Figure 33. Republic of Korea Navy Surface Warfare Officer Career Paths and Ships 101
Figure 34. Nominal Republic of Korea Navy Surface Warfare Officer Career Path 102
Figure 35. Republic of Korea Navy Junior Surface Warfare Officer Training Programs 103
Figure 36. United Kingdom Royal Navy Surface Warfare Career Paths and Ships 104
Figure 37. Nominal United Kingdom Royal Navy Warfare Officer Surface Fleet Career Path 105
Figure 38. Nominal United Kingdom Royal Navy Engineer Officer Career Path 106
Figure 39. UK Royal Navy Junior Warfare Officer Surface Training Programs 107
Figure 40. U.S. Navy Surface Warfare Officer Career Path and Ships 108
Figure 41. Nominal U.S. Navy Surface Warfare Officer Career Path 109
Figure 42. U.S. Navy Junior Surface Warfare Officer Ship-Driving Training Programs 110
Figure 43. U.S. Naval Aviation Officer Career Path and Ships 111
Figure 44. Nominal U.S. Naval Aviation Officers Career Path 112
Figure 45. Ship-Driving Training for U.S. Naval Aviation Officers 112
Figure 46. U.S. Navy Submarine Officer Career Path and Submarines 114
Figure 47. Nominal U.S. Navy Submarine Officer Career Path 115
Figure 48. U.S. Navy Junior Submarine Officer Training Programs 115
Figure 49. Nominal U.S. Coast Guard Officer Career Paths and Ships 117
Figure 50. Nominal U.S. Coast Guard Deck Watch Officer to Operations Afloat Career Path 118
Figure 51. Nominal U.S. Coast Guard Student Engineer to Naval Engineer Career Path 119
Figure 52. U.S. Coast Guard Deck Watch Officer Ship-driving Training Programs 119
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