Libertas et Veritas

Illustration symbolizing the Family Advocacy Program and abuse prevention

Family Advocacy Program & Abuse Prevention

Inconsistent Notification Practices

The Department of Defense’s Family Advocacy Program (FAP) is charged with preventing and responding to domestic and child abuse in military families. When an Incident Determination Committee (IDC) reviews a report of abuse, it must decide whether the incident meets DoD criteria and notify commanders, victims and alleged abusers in writing. These decisions are administrative and are not intended for use in legal or disciplinary proceedings. However, a 2024 Government Accountability Office (GAO) review found that notification practices vary widely across the services: while the Navy and Marine Corps provide written notifications, the Army and Air Force sometimes deliver them verbally. The content of notifications also differs, with some including an explanation of the process and others omitting it. GAO recommended that the DoD clarify its guidance and expectations to ensure consistent communication and prevent misuse of IDC decisions.

The GAO report emphasised the importance of these decisions. Commanders use IDC findings to inform a range of responses, including mandating treatment through the Family Advocacy Program, issuing or removing protective orders, consulting legal advisors, pursuing administrative separation, or relocating family members. Without clear and consistent notification, victims and alleged abusers may misunderstand the purpose of these decisions, and commanders may lack the documentation needed to act appropriately.

Scale of the Problem

Domestic and child abuse has serious consequences for service members and their families. In fiscal year 2023 the DoD recorded 26,978 reports of domestic and child abuse, with 14,110 meeting the department’s definition of abuse. These numbers underscore the importance of a robust prevention and response program.

Undercounted Incidents and Data Inconsistencies

A 2023 Army audit obtained by the Project On Government Oversight revealed that thousands of domestic abuse incidents were missing from the Army’s official tracking systems. The audit found that 1,962 incidents from fiscal years 2019–2021 were absent from one of the Army’s two databases and that 2,294 incidents were absent from the other. The two systems—the Family Advocacy System of Records (FASOR) and the Army Law Enforcement Reporting and Tracking System (ALERTS)—should have contained identical information, yet auditors found that 70 percent of incidents recorded in FASOR were not in ALERTS and 56 percent of incidents in ALERTS were not in FASOR. Auditors noted that their review covered only 10 installations and that the true scale of undercounting across the roughly 60 Army installations may be far greater.

Army officials told auditors that maintaining two databases was necessary because of different requirements for law enforcement and prevention programs. Nonetheless, the Army began revising its regulations to address inconsistencies. Analysts and advocates argue that accurate data is critical: without reliable information, criminal incidents may go uninvestigated, perpetrators may not be held accountable and victims may not receive the services they need.

Barriers to Reporting and Repeat Offenses

The audit must also be viewed against the backdrop of widespread underreporting. Experts noted that survivors often hesitate to report abuse because a substantiated incident can jeopardize the service member’s career and the family’s financial stability. Economic dependence, frequent relocations and isolation within military communities can further discourage reporting. As a result, many cases never enter the system at all.

Undercounting and inconsistent response processes can contribute to repeat offenses. The audit noted that between 12 percent and 13 percent of domestic abuse incidents were perpetrated by repeat offenders, yet the enforcement of related training and safety procedures was inconsistent. Improving data quality, standardizing the investigative process and ensuring timely safety assessments are essential steps toward reducing recidivism.

Conclusion and Reform Efforts

The Family Advocacy Program plays a critical role in safeguarding military families. The GAO and Army audit findings make clear that the program needs clearer guidance, more consistent notification practices and integrated data systems. Standardized communication can prevent IDC decisions from being misused in divorce or custody cases, while reliable data tracking can ensure that all incidents are investigated and victims receive appropriate support. The DoD has agreed to clarify its guidance and is working on a standardized approach to incident notifications, with implementation expected by 2027. Continued transparency and oversight are necessary to hold leaders accountable and to protect those most vulnerable in military communities.

Sources

  1. GAO report on incident determination notifications – details how notification practices vary across the services and calls for clearer guidance to ensure consistent communication.
  2. GAO report: scale of domestic and child abuse – notes that in fiscal year 2023 the DoD recorded 26,978 reports of domestic and child abuse, with 14,110 meeting the department’s definition of abuse.
  3. POGO investigation on undercounted domestic abuse incidents – explains that auditors found thousands of cases missing from Army databases and major inconsistencies between the FASOR and ALERTS systems.
  4. POGO investigation: barriers to reporting – discusses why survivors may hesitate to report abuse and highlights vulnerabilities such as economic dependence, relocation and isolation within military communities.
  5. POGO investigation: importance of data quality – emphasizes that accurate data is essential for accountability and preventing repeat offenses.