DEPARTMENT OF 

DEFENSE

Medical Conditions 

and Care for End-ofService Military 

Working Dogs

Report to the Committee on Armed 

Services, House of Representatives

March 2017

GAO-17-358

United States Government Accountability Office
United States Government Accountability Office

Highlights of GAO-17-358, a report to the 

Committee on Armed Services, House of 

Representatives

March 2017

DEPARTMENT OF DEFENSE

Medical Conditions and Care for End-of-Service 

Military Working Dogs

What GAO Found

The Department of Defense (DOD) uses three systems to track information 

about Military Working Dogs (MWDs), including information related to their

removal from service at which time they can be put up for adoption, transferred 

to a law enforcement agency, or euthanized for health or behavioral reasons.

According to an Air Force official, the number of MWDs adopted or transferred 

over the past 5 years (2011 through 2015) varied based on changes in 

deployment needs. The number of euthanized MWDs varied to a lesser extent. 

Number of Military Working Dogs (MWDs) Adopted, Transferred, or Euthanized from 2011 

through 2015

Based on medical data available for 421 of 772 MWDs adopted during 2014 and 

2015, GAO found that the most prevalent medical conditions included skin and 

dental issues. An Army veterinarian told GAO that these medical conditions are 

unlikely to result in MWDs’ removal from service as these conditions generally 

can be treated or resolved. Other prevalent medical conditions, such as arthritis,

are associated with musculoskeletal issues, which are more likely to result in 

MWDs’ removal from service. The veterinarian told us these types of 

musculoskeletal issues are common in breeds maintained by the MWD program, 

which include Labrador Retrievers, Belgian Malinois, and German Shepherd 

dogs. 

While owners of adopted MWDs are responsible for the costs of veterinary care, 

some assistance with these costs is available through nonprofit organizations, 

such as the U.S. War Dogs Association. Individuals with access to DOD medical 

care—such as active-duty servicemembers and their dependents—may also 

purchase care for their adopted MWDs at veterinary clinics located at military 

installations. However, the types of veterinary services vary by installation, and 

some installations do not offer any veterinary services.

View GAO-17-358. For more information, 

contact Debra A. Draper at (202) 512-7114 or 

draperd@gao.gov.

Why GAO Did This Study

DOD has used MWDs since World 

War II to assist and protect 

servicemembers at installations within 

the United States and at deployment 

sites worldwide. As of October 2016, 

about 1,800 MWDs were in service. 

The Air Force is responsible for 

procuring and assigning all MWDs for 

the military. The Army is responsible 

for the medical care of all military

animals, including MWDs. Questions 

have been raised as to whether 

MWDs’ experiences during deployment 

may result in conditions that pose 

future health challenges. Based on 

those questions, a House Report 

accompanying the proposed version of

the National Defense Authorization Act 

for Fiscal Year 2017 included a 

provision for GAO to assess end-ofservice veterinary care for MWDs. 

This report examines (1) how DOD 

tracks information about MWDs, and 

how many MWDs were adopted, 

transferred, or euthanized over the 

past 5 years (2011-2015); (2) prevalent 

medical conditions of adopted MWDs 

for 2014 and 2015; and (3) what 

assistance is available for individuals 

who adopt MWDs. 

GAO obtained and analyzed data from 

the three systems used to track 

information on MWDs, observed

system demonstrations, interviewed Air 

Force and Army officials, and reviewed 

related documentation. GAO also

interviewed relevant nonprofit

organizations that provide assistance 

to individuals who adopt MWDs.

DOD concurred with the report and

provided technical comments, which 

GAO incorporated as appropriate.
Page i GAO-17-358 Military Working Dogs

Letter 1

Background 4

DOD Uses Three Systems to Track Information on MWDs; the 

Number of Adopted, Transferred, or Euthanized MWDs Has 

Varied over Time 9

Available Data Indicate That Prevalent Medical Conditions for 

MWDs Adopted in 2014 and 2015 Included Skin, Dental, and 

Musculoskeletal Issues 13

Some Assistance with Private Veterinary Care for Adopted MWDs 

Is Available from Nonprofit Organizations; Some Owners May 

Purchase Care Offered at Certain Military Installations 17

Agency Comments 20

Appendix GAO Contact and Staff Acknowledgments 21

Tables

Table 1: U.S. Air Force and Army Systems Used to Track 

Information on Military Working Dogs (MWDs) 10

Table 2: Adopted Dogs That May Not Have Deployed 12

Table 3: Prevalent Medical Conditions and Potential Courses of 

Treatment Based on Available Data for Military Working 

Dogs (MWDs) Adopted in 2014 and 2015 14

Table 4: Procedures, Estimated Costs, and Recommended 

Frequency of Preventative Care for 9-Year-Old Labrador 

Retrievers, Belgian Malinois, and German Shepherd 

Dogs, as of December 2016 16

Table 5: Types of Veterinary Services Offered at Some Military 

Installations 19

Figures

Figure 1: Process of Removing a Military Working Dog (MWD) 

from Service 7

Figure 2: Number of Military Working Dogs (MWDs) Adopted, 

Transferred, or Euthanized from 2011 through 2015 11

Contents
Page ii GAO-17-358 Military Working Dogs

Abbreviations

DOD Department of Defense

FY fiscal year

MRI magnetic resonance imaging

MWD Military Working Dog

NDAA National Defense Authorization Act

ROVR Remote Online Veterinary Record

VCO Veterinary Corps Officer

WDMS Working Dog Management System

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Page 1 GAO-17-358 Military Working Dogs

441 G St. N.W.

Washington, DC 20548

March 10, 2017

The Honorable Mac Thornberry

Chairman

The Honorable Adam Smith

Ranking Member

Committee on Armed Services

House of Representatives

The Department of Defense (DOD) has used Military Working Dogs 

(MWDs) since World War II to assist and protect servicemembers at 

installations within the United States, and at deployment sites worldwide. 

Currently, MWDs serve as extensions of military law enforcement, and 

assist with the detection and tracking of drugs, explosives, and physical 

threats to servicemembers. The Air Force’s 341st Training Squadron at 

Joint Base San Antonio, Texas is responsible for procuring and assigning 

all MWDs for the military and transporting them to military installations. 

The Air Force also trains a majority of the MWDs, although the other 

military services—Army, Navy, and Marine Corps—may also provide 

training for the MWDs assigned to them. The U.S. Army Medical 

Command’s Public Health Command Regions and subordinate Public 

Health Activities are responsible for the veterinary care of all militaryowned animals, including MWDs.1 As of October 2016, about 1,800 

MWDs were in service.2

MWDs may be removed from service when they can no longer perform 

their duties due to medical or behavior problems, are no longer needed 

by the military, or under other circumstances.3 When MWDs are removed

from service, they can be placed for adoption, either to a private party, 

such as a former handler, or by transfer to a law enforcement agency, or 

euthanized for health or behavior reasons.4 Once MWDs have been 

 1

The Army is responsible for providing veterinary service personnel in support of all DOD 

components. The Army fulfills that responsibility through the Army Surgeon General, 

Commanding General, U.S. Army Medical Command. 

2

This number of MWDs does not include approximately 500 dogs located at the Air Force 

341st Training Squadron for training or medical purposes, as of January 2017. 

3

In unusual or extraordinary circumstances, MWDs can be removed from service before 

the end of their useful life, such as when the handler dies in action. 

4

In this report, we use the term “transfer” to refer to MWDs adopted by law enforcement 

agencies as opposed to private parties.

Letter
Page 2 GAO-17-358 Military Working Dogs

adopted or transferred, DOD is no longer responsible for them, including 

their medical care. 

Questions have been raised as to whether the environments or situations 

that MWDs are exposed to during deployment may result in conditions 

that pose future health challenges once the MWD is removed from

service. Based on those questions, House Report 114-537,

accompanying the proposed version of the National Defense 

Authorization Act (NDAA) for Fiscal Year (FY) 2017, included a provision 

for us to assess end-of-service veterinary care for MWDs. This report

examines (1) how DOD tracks information about MWDs, and how many

MWDs were adopted, transferred, or euthanized over the past 5 years

(2011-2015); (2) prevalent medical conditions of adopted MWDs for 2014

and 2015; and (3) what assistance is available for individuals who adopt

MWDs.

To determine how DOD tracks information about MWDs, and how many 

were adopted, transferred, or euthanized over the past 5 years (2011-

2015), we interviewed relevant Air Force and Army officials, reviewed 

data from the systems used to track information about MWDs, and 

reviewed relevant documentation related to these systems. Additionally, 

we visited Joint Base San Antonio, Texas and observed demonstrations 

of the following three systems: 1) the Working Dog Management System 

(WDMS)—the computer system used to manage the full life cycle of 

MWDs, 2) the Central Repository—paper copies of records for MWDs 

that have been removed from service, and 3) the Remote Online 

Veterinary Record (ROVR)—the electronic medical record system for all 

military animals that have been treated by a military veterinarian.5 We 

also reviewed data on the number of MWDs that were adopted, 

transferred, or euthanized over the past 5 years and interviewed Air Force 

officials about how reports with these data for 2011 and 2012 were 

compiled for Congress, and how data for 2013-2015 were obtained from 

WDMS and verified.6 Based on our review of the data, relevant 

5

ROVR is also the electronic medical record system for privately owned animals seen by 

military veterinarians. 

6

From 2001 through 2011, the Secretary of Defense was required to submit annual 

reports to Congress with MWD disposition data based on a compilation of the disposition 

records received by the Air Force. A 2012 report to Congress with MWD data was 

prepared, but was not submitted because Congress repealed the requirement to submit 

these reports. 
Page 3 GAO-17-358 Military Working Dogs

documentation, and interviews with relevant officials, we determined the 

data to be sufficiently reliable for the purposes of our reporting objective.

To describe prevalent medical conditions of adopted MWDs for 2014 and 

2015, we obtained and analyzed available medical information for these 

MWDs from ROVR.7 To do this, we obtained identification numbers for 

the MWDs that were adopted during this time from WDMS and used this 

information to identify electronic medical records in ROVR. We 

specifically focused on electronic medical records that had “master 

problem lists,” which are lists of diagnosed medical conditions. We 

obtained electronic medical records with master problem lists as available 

for MWDs that were adopted in 2014 and 2015.8 According to Army 

officials who maintain the database, while all MWDs had hard-copy 

medical records with master problem lists prior to the implementation of 

ROVR, some MWDs adopted in 2014 and 2015 may not have had 

electronic medical records or master problem lists for the following 

reasons:

1. According to Army officials, only active MWDs had their hard copy 

medical records scanned into ROVR when it was initially 

implemented. As a result, MWDs that had been designated for 

adoption at that time do not have electronic medical records.

2. When hard-copy medical records were scanned into ROVR, certain 

types of information, such as master problem lists, had to be manually 

transcribed. However, according to Army officials, this did not always 

occur, and as a result, some of the MWDs that were adopted in 2014 

and 2015 had electronic medical records that did not include master 

problem lists.

Our analysis is not generalizable to all MWDs that were adopted during 

this time because we did not have electronic medical records with master 

problem lists for all of the MWDs adopted in 2014 and 2015.9 However, 

based on our review of ROVR, verification of the data, and interviews with 

 7

We examined medical conditions for 2014 and 2015 because the military implemented 

electronic medical records with ROVR in 2014, and these two years of data were the most 

recently available at the time of our review. The use of electronic medical records 

facilitated our ability to obtain these data more systematically and efficiently. 

8

Electronic health records with master problem lists were available for 421 of 772 MWDs 

that were adopted in 2014 and 2015. 

9

Army officials told us that their veterinarians are required to review ROVR records 

monthly.
Page 4 GAO-17-358 Military Working Dogs

Army officials, we determined that the data on medical conditions that we 

obtained from the electronic medical files with master problem lists were

sufficiently reliable for the purposes of our reporting objective. We also 

interviewed the chief of staff of a network of private veterinary hospitals in 

New Jersey, as well as representatives from a national network of private 

veterinary hospitals to discuss the potential costs for treating MWDs for 

the prevalent medical conditions we identified.10 The chief of staff from 

the network of private veterinary hospitals in New Jersey also provided us 

with estimated costs of preventative care needed for older MWDs.

In order to determine what assistance is available for individuals who 

adopt MWDs, we interviewed relevant nonprofit organizations that provide 

assistance for adopted MWDs. To identify what types of veterinary 

services are available through the military, we interviewed officials with 

the Army’s Public Health Center and the DOD MWD Veterinary Services 

Office at Joint Base San Antonio, Texas and reviewed relevant 

documentation about the availability of veterinary services for privately 

owned animals, including adopted MWDs.

We conducted this performance audit from July 2016 to March 2017 in 

accordance with generally accepted government auditing standards. 

Those standards require that we plan and perform the audit to obtain 

sufficient, appropriate evidence to provide a reasonable basis for our 

findings and conclusions based on our audit objectives. We believe that 

the evidence obtained provides a reasonable basis for our findings and 

conclusions based on our audit objectives.

DOD defines an MWD as any canine bred, procured, or acquired to meet 

DOD’s requirements to support operations in the protection of 

installations, resources, and personnel. These requirements include 

explosive and illegal narcotic detection capabilities, patrol, tracking, and 

other requirements. As part of their duties, MWDs can be deployed to 

assist in operations outside of their assigned military installation. MWDs 

are removed from service when they can no longer perform their duties 

due to medical or behavior problems, when they are no longer needed by 

 10The network of private veterinary hospitals is the Red Bank Veterinary Hospital in New 

Jersey, and the national network of private veterinary hospitals is Banfield Pet Hospital. 

Both entities work with nonprofit organizations to help provide medical care to adopted 

MWDs.

Background 
Page 5 GAO-17-358 Military Working Dogs

the military, or in other circumstances, such as when a handler dies in 

action.

In 2000, a law commonly known as “Robby’s Law” was enacted to 

promote the adoption of MWDs after their military service.11 According to 

this law, the military shall make an MWD that is suitable for adoption 

available for adoption at the end of the dog’s “useful life” or when the dog 

is no longer needed by the department.12

Robby’s Law has been amended a number of times since first enacted. 

Most recently, the NDAA for FY 2016 established priorities among the 

authorized recipients of MWDs that are removed from service. The 

amendment generally requires that MWDs be made available first to 

former handlers, who care for and train the MWDs.13 The amendment 

gives second priority to others capable of humanely caring for the MWD, 

and, finally, it gives the lowest priority to law enforcement agencies.14

After an MWD is adopted, Robby’s Law provides that “the United States 

shall not be liable for any veterinary expense associated with (an adopted 

MWD) for a condition of the military animal before transfer” regardless of 

whether the condition is known at the time of adoption.15 While DOD is 

 11Act of Nov. 6, 2000, Pub. L. No. 106-446, 114 Stat. 1932 (2000) (codified as amended 

at 10 U.S.C. § 2583).

1210 U.S.C. § 2583(a)(1), (a)(3). In unusual or extraordinary circumstances, Robby’s Law 

permits the military to place an MWD for adoption before the end of its useful life, such as 

when the dog’s handler is wounded or killed in action. In such cases, the MWD may only 

be made available for adoption to the wounded handler or to certain members of the 

deceased handler’s family, respectively. See 10 U.S.C. § 2583(a)(2), (c)(2).

13National Defense Authorization Act for Fiscal Year 2016, Pub. L. No. 114-92, Division A, 

Title III, Subtitle E, § 342, 129 Stat. 726, 793 (2015) (codified at 10 U.S.C. § 2583(c), (g)). 

A military service may override the former handler’s preference if it determines that such 

an adoption would not be in the dog’s best interest. 10 U.S.C. § 2583(g)(1). In the event a 

dog had multiple former handlers, the military service shall consider the best interests of 

the dog and its former handlers, in consultation with the kennel master of the unit, in 

determining which former handler shall adopt the dog. 10 U.S.C. § 2583(g)(2).

14Air Force Instruction 31-126, dated June 1, 2015, which includes the policies and 

procedures for the MWD program, does not reflect the amended priority list enacted in 

November 2015 by the National Defense Authorization Act for Fiscal Year 2016. Cf.10 

U.S.C. § 2583(c)(1). Air Force officials told us they expect to issue an update to the Air 

Force Instruction to reflect the updated statutory requirement in the spring of 2017.

1510 U.S.C. § 2583(e)(2).

Legislation Related to 

Adoption of MWDs
Page 6 GAO-17-358 Military Working Dogs

authorized to establish and maintain a veterinary care system for adopted 

MWDs, no federal funds may be used for this purpose.16

DOD uses the term “disposition” to describe the process of removing 

MWDs from service. Disposition of MWDs can be initiated at any military 

location that has an MWD program. All the military services follow the 

same process outlined in Air Force Instruction 31-126, which includes the 

policies and procedures for the MWD program.17 (See fig. 1.)

 1610 U.S.C. § 994.

17Air Force Instruction 31-126 is also Army Regulation 700-81, OPNAVINST 5585.2C, and 

MCO 5585.6. 

Process for Removing 

MWDs from Service
Page 7 GAO-17-358 Military Working Dogs

Figure 1: Process of Removing a Military Working Dog (MWD) from Service

a

The MWD program manager is the individual within each military service—Army, Navy, Air Force, 

and Marine Corps—who is responsible for the logistics of that military service’s MWD program.

b

Officials on the Review Board include the Commander of the Air Force 341st Training Squadron (the 

entity responsible for the MWD program), a representative of the 341st Training Squadron or 

designee, a Veterinary Corps Officer (Army veterinarian), and a Veterinary Corps Officer behavioral 

representative (an Army veterinarian who is trained in animal behavior).

c

Air Force Instruction 31-126, dated June 1, 2015, which includes the policies and procedures for the 

MWD program, does not reflect the amended priority list enacted in November 2015 by the National 

Defense Authorization Act for Fiscal Year 2016. Cf.10 U.S.C. § 2583(c)(1). Air Force officials told us 

they expect to issue an update to the Air Force Instruction to reflect the updated statutory requirement 

in the spring of 2017.
Page 8 GAO-17-358 Military Working Dogs

All decisions regarding the removal of MWDs from service are made by a 

review board, which includes the Commander of the Air Force’s 341st 

Training Squadron, a representative of the 341st Training Squadron or 

designee, a Veterinary Corps Officer (Army veterinarian), and a 

Veterinary Corps Officer behavioral representative (an Army veterinarian 

who is trained in animal behavior).18 Air Force officials told us that the 

review board may also consult with the Kennel Master, who manages the 

kennel at the military installation where the MWD is located, as well as 

the veterinary staff at Joint Base San Antonio, Texas, when making 

decisions about removing an MWD from service.

Air Force officials told us that handlers who are interested in adopting an 

MWD must communicate their interest to the Kennel Master where the 

MWD is located. The Kennel Master is responsible for annotating WDMS 

to show the handler’s interest in adoption, including adding the handler’s 

name and contact information. The handler is responsible for maintaining 

contact with the Kennel Master and updating this contact information, if 

needed. In the event that multiple handlers are interested in adopting the 

MWD, the Unit Commander of the entity that owns the MWD is 

responsible for determining which handler is in the best interest of the 

MWD. Air Force officials told us that in these cases, the most recent 

handler would typically adopt the MWD.

Air Force officials told us that they are in the process of updating their 

adoption policy. For example, the new policy outlines a method for 

recording whether or not the MWD was adopted by a former handler. 

They also told us they plan to update the MWD service record to include 

a checkbox to indicate whether the MWD was adopted by a handler, and 

that these service records will be scanned into WDMS. Officials have told 

us that these procedures will be implemented when the updated Air Force 

Instruction becomes effective, likely in the spring of 2017.

The Army Veterinary Service has the lead responsibility for the medical 

care of all DOD-owned animals, including MWDs. Specifically, the Army 

provides medical care for MWDs through its Public Health Command 

Regions and Activities and the DOD MWD Veterinary Service at Joint 

Base San Antonio, Texas. During the MWD disposition process, Army 

 18The Veterinary Corps Officer behavioral representative has remained the same for the 

past 15 years, which has helped ensure consistency with the Review Board’s decisions.

Medical Care for MWDs
Page 9 GAO-17-358 Military Working Dogs

Veterinary Corps Officers are responsible for providing a recommendation 

letter and a consultation/referral form that describes each MWD’s medical 

condition and suitability for adoption.

The Army also maintains a veterinary care system that provides medical 

care to privately owned animals of individuals with access to medical 

services at a military installation, including adopted MWDs.19 The Army 

charges individuals with privately owned animals for the medical care of 

their pets. According to Army officials, the charges for veterinary care 

were developed based on a review of supply costs, estimated manpower 

costs, historical costs for services, and recommended guidance on cost 

considerations established by the American Animal Hospital Association.

DOD uses three systems to track different types of information about 

MWDs, including information related to their removal from service. The 

number of MWDs that have been adopted, transferred, or euthanized has 

varied over the past 5 years.

Officials from the Air Force and Army use three separate systems to track 

information on MWDs. Two of the systems—WDMS and the Central 

Repository—are maintained by the Air Force, while ROVR, the electronic 

medical record system, is maintained by the Army. (See table 1.) Each of 

these systems has a different role in documenting information related to 

an MWD’s removal from service. WDMS documents the MWD’s status 

 19According to an Army policy, medical care for privately owned animals is authorized for 

animals owned by individuals who are eligible to receive DOD medical care. Specifically, 

the individual must be enrolled in the Defense Enrollment Eligibility Reporting System, 

which is a database of individuals who are entitled to DOD medical benefits. According to 

an Army official, this would generally include active duty servicemembers, their 

dependents, retirees and their dependents, as well as reservists on active orders. This 

would generally not include civilians, DOD-employed civilians, or former active duty 

(unless retirement eligible) unless they are also dependents of authorized beneficiaries.

DOD Uses Three 

Systems to Track 

Information on 

MWDs; the Number 

of Adopted, 

Transferred, or 

Euthanized MWDs 

Has Varied over Time

Systems to Track MWD 

Information 
Page 10 GAO-17-358 Military Working Dogs

when it is removed from service, including whether the MWD is adopted, 

transferred, or euthanized. This status of the MWD can be verified using 

documents maintained in the Central Repository, which is used to store 

copies of records for MWDs that have been removed from service—most 

of which are not contained in WDMS. Lastly, ROVR is used to provide 

medical information for consideration of an MWD’s removal from service 

and to document an MWD’s euthanization, if needed.

Table 1: U.S. Air Force and Army Systems Used to Track Information on Military Working Dogs (MWDs)

Working Dog Management 

System (WDMS)

Central Repository Remote Online Veterinary 

Record (ROVR)

Responsible 

service

Air Force Air Force Armya

Type of system Web-based Hard-copy or electronic files Web-based

Purpose Used for full life-cycle management 

of MWDs (acquisition, training, 

assignments, status when removed 

from service)

Used to store copies of records for 

MWDs that have been removed from 

service, including the MWDs’ service 

records,

b indemnity agreements,c and 

death certificates, if needed.

Used to document veterinary 

appointments, diagnoses, service 

price plans, and medical records.

Animals 

supported

MWDs MWDs All animals owned by DOD and 

privately owned animals treated by 

a military veterinarian.

Source: GAO analysis of U.S. Air Force and Army information. l GAO-17-358

a

DOD allocates funding for ROVR and is responsible for the development and sustainment of its 

information technology.

b

The MWD service record is a record of each MWD’s training and assignments.

c

The individual adopting an MWD signs and receives a copy of the indemnity form stating that the 

United States shall not be subject to any suit, claim, demand or action, liability, judgment, cost, or 

other fee arising out of any claim for personal injury or property damage (including death, illness, or 

loss of or damage to property or other economic loss) that results from, or is in any manner 

predicated upon, the act or omission of a former military animal adopted or transferred, including any

training provided to the animal while a military animal.
Page 11 GAO-17-358 Military Working Dogs

Based on our review of data from these systems and related 

documentation, the number of MWDs adopted or transferred during 2011 

through 2015 varied, with the highest numbers in 2012 and 2013.20 An Air 

Force official explained that these higher numbers of adoptions and 

transfers in 2012 and 2013 were due to a decreased need for MWDs 

during deployments. The number of euthanized MWDs varied to a lesser 

extent. (See figure 2.)

Figure 2: Number of Military Working Dogs (MWDs) Adopted, Transferred, or 

Euthanized from 2011 through 2015

 20Air Force officials told us that they have recently updated their disposition procedures to 

ensure that MWD status data is current in WDMS. Previously, officials at the location of an 

MWD being removed from service were responsible for changing the MWD’s status in 

WDMS. Air Force officials at Joint Base San Antonio, Texas told us that this process is 

being centralized, and they will now sign the required adoption, transfer, or euthanization 

forms and change the status within WDMS even if the MWD is located elsewhere. Air 

Force officials will then ensure that the appropriate forms are submitted to the Central 

Repository. 

Number of MWDs 

Adopted, Transferred, or 

Euthanized 
Page 12 GAO-17-358 Military Working Dogs

Note: Air Force officials verified the accuracy of the status of all MWDs in WDMS with records from 

the Central Repository for 2013 through 2015. From 2001 through 2011, the Secretary of Defense 

was required to submit annual reports to Congress with MWD disposition data based on a 

compilation of the disposition records received by the Air Force. A 2012 report to Congress with MWD 

data was prepared, but was not submitted because Congress repealed the requirement to submit 

these reports.

a

An Air Force official told us that the higher numbers of adopted and transferred MWDs in 2012 and 

2013 are related to a decreased need for MWDs during deployments.

b

In this report, we use the term “transfer” to refer to MWDs adopted by law enforcement agencies.

Some of the adopted MWDs included in these data were likely never 

deployed outside of their assigned military installations. According to Air 

Force officials, some MWDs may have been acquired by the military but 

then did not qualify for enrollment in the MWD program due to 

performance or medical reasons. Other MWDs were enrolled in the 

program but were removed from service for similar reasons before they 

were 3 years old. According to Air Force officials, these dogs were also

likely never deployed into service. (See table 2.)

Table 2: Adopted Dogs That May Not Have Deployed

2011 2012 2013 2014 2015

Never enrolled in the

Military Working Dog 

(MWD) Program

32 50 49 8a 51

Removed from MWD 

Program for training or 

medical reasons up to 3 

years old 

26 50 24 32 23

Total 58 100 73 40 74

Source: 2011 and 2012 Military Working Dog Disposition Report and the Working Dog Management System. l GAO-17-358

Note: These dogs were either never enrolled in the MWD program, or were removed from service for 

performance or medical reasons before they were 3 years old. According to Air Force officials, these 

dogs were likely never deployed. In addition, the total number of dogs listed in this table for each year 

are a subset of total MWDs adopted during that same year. For example, 365 MWDs were adopted in 

2015, and 74 of them may not have been deployed.

a

An Air Force official told us that this number is low because the military acquired fewer puppies in 

2013 due to budget limitations.
Page 13 GAO-17-358 Military Working Dogs

Available data for 55 percent of the MWDs adopted in 2014 and 2015 

indicate that prevalent medical conditions included skin, dental, and 

musculoskeletal issues. The potential costs for treating these prevalent 

medical conditions are difficult to determine due to variations in potential 

courses of treatment and other factors. However, we did obtain 

information on recommended preventative care and estimated costs for 

older breeds used by the MWD program from the chief of staff of a 

network of private veterinary hospitals.

Based on our analysis of electronic medical records with master problem 

lists—available for approximately 55 percent (421 of 772) of the MWDs 

adopted in 2014 and 2015—we found that the most prevalent medical 

conditions were as follows:

• skin conditions or ear infections,

• dental disease or injury,

• arthritis or degenerative joint disease,

• lameness, and

• degenerative lumbo-sacral stenosis.

Some MWDs had more than one medical condition, and as a result, they 

may have been included in more than one category. (See table 3.)

Available Data 

Indicate That 

Prevalent Medical 

Conditions for MWDs 

Adopted in 2014 and 

2015 Included Skin, 

Dental, and 

Musculoskeletal 

Issues

Prevalent Medical 

Conditions
Page 14 GAO-17-358 Military Working Dogs

Table 3: Prevalent Medical Conditions and Potential Courses of Treatment Based on Available Data for Military Working Dogs 

(MWDs) Adopted in 2014 and 2015

Prevalent

medical conditions

Number of MWDs Potential courses of treatmenta

1. Skin conditions or ear infections 

(conditions of allergic/environmental 

skin disease, bacterial skin infection, or 

external ear canal infections) 

386 Course of treatment may include

• 1-2 veterinary visits per year,

• diagnostic testing (skin scraping, ear swab, culture), 

and

• continual or intermittent medical management with 

shampoos, rinses, various topical medications and 

various medications injected directly into the body. 

2. Dental disease or injury (disease or 

injury with teeth or oral health)

211 Course of treatment may include

• anesthesia/exam/cleaning,

• dental x-rays if required,

• pre-anesthesia blood work if required,

• tooth extraction if required, and/or

• root canal if required.

3. Arthritis or degenerative joint disease 

(conditions that have progressive and 

permanent long-term deterioration of 

the cartilage surrounding the joints or 

inflammation of the cartilage) 

155 Course of treatment may include

• 2 veterinary visits per year,

• annual x-rays or other diagnostic imaging (such as an 

MRI),

b

• medications,

• annual blood work to ensure medications are not 

causing problems, and

• potential surgery.

c

4. Lameness (a condition that may be a 

clinical sign of a more severe disorder 

that results in difficulties with 

movement, typically in response to 

pain, injury, or growth abnormalities)

132 Course of treatment is similar to arthritis or degenerative 

joint disease.

d

5. Degenerative lumbo-sacral stenosis 

(condition of the lower back that causes 

pinching of nerves and associated 

pain/weakness in the rear legs)

132 Course of treatment is similar to arthritis or degenerative 

joint disease.

d

Source: GAO Analysis of Army Medical Command Information and Information Reported by Army Officials. l GAO-17-358

Notes: This table contains available information for the 421 of the 772 adopted MWDs from 2014 and 

2015 with electronic medical records that have master problem lists—lists of diagnosed medical 

conditions—from the Remote Online Veterinary Record (ROVR) system, which was implemented in 

2014. As a result, the information presented in this table is not generalizable to all of the 772 MWDs 

that were adopted during this time. The total number of MWDs in the table is greater than 421 

because each MWD may have more than one diagnosed medical condition in its master problem list.

Some MWDs adopted during this time may not have electronic medical records with master problem 

lists for the following reasons: (1) according to officials, only active MWDs had their hard-copy 

medical records scanned into ROVR when it was initially implemented and as a result MWDs that 

were designated for adoption at that time do not have electronic medical records or (2) when hardcopy medical records were scanned into ROVR, master problem lists had to be manually transcribed,
Page 15 GAO-17-358 Military Working Dogs

and according to Army officials, this did not always occur. As a result, some of the MWDs had 

electronic medical records that did not include master problem lists.

a

Potential courses of treatment were obtained from two Army officials, who are licensed veterinarians 

and have served various roles in caring for MWDs. One of these officials is the Director of the DOD 

MWD Veterinary Hospital at Joint Base San Antonio, Texas.

b

Magnetic resonance imaging (MRI) is a technique that uses a magnetic field and radio waves to 

create detailed images of the organs and tissues within the body.

c

An Army veterinarian told us that the decision to conduct surgery for an MWD would be dependent 

on age and chances for rehabilitation.

d

The chief of staff of a network of private veterinary hospitals in New Jersey that provides free 

specialty care to adopted MWDs in its area stated that the course of treatment for lameness and 

degenerative lumbo-sacral stenosis may require more testing and potential surgery.

An Army veterinarian told us that “skin conditions or ear infections” and 

“dental disease or injury”—the two most prevalent medical conditions we 

identified—are unlikely to result in removal from service as these 

conditions generally can be treated or resolved.21 (See prevalent medical 

conditions 1 and 2 in table 3.) The remaining three prevalent medical 

conditions we identified are associated with musculoskeletal issues and 

are more likely to result in MWDs’ removal from service. (See prevalent 

medical conditions 3, 4, and 5 in table 3.) According to an Army 

veterinarian, these conditions are common in breeds maintained by the 

MWD program. For example, degenerative lumbo-sacral stenosis is 

common in German Shepherd dogs, one of the preferred breeds for the 

MWD program.

The potential costs for treating these prevalent medical conditions may 

vary based on a number of factors, including the course of treatment, the 

underlying cause for the condition, and geographic location. According to 

an Army official and representatives from a national network of private 

veterinary hospitals, there are no standardized medical treatment 

protocols for animals that would dictate particular courses of treatment for 

specific medical conditions. Therefore, costs for these conditions would 

vary. Furthermore, the chief of staff of a network of private veterinary 

hospitals in New Jersey, which provides free specialty care to adopted 

MWDs in its area, told us that it would be difficult to estimate treatment 

costs because some of the prevalent health conditions we identified for 

MWDs could have different underlying causes, which would serve as the 

basis for treatment options and costs. For example, lameness could have 

 21According to an Army veterinarian, some skin conditions may be chronic but can be 

treated and stabilized with creams or medications. 

Potential Costs for 

Treating Prevalent Medical 

Conditions 
Page 16 GAO-17-358 Military Working Dogs

different root causes, so it would be difficult to estimate treatment costs 

for this condition without knowing the contributing factors.

Adopted MWDs need preventative care regardless of their medical 

conditions. Based on our analysis, the average age of most MWDs that 

had electronic medical records with master problem lists in ROVR and 

were adopted during 2014 and 2015 was about 9 years old, with a range 

from 1 to 14 years.22 The chief of staff of a private network of veterinary 

hospitals in New Jersey provided us with the types of preventative care 

they recommend for 9-year old Labrador Retrievers, Belgian Malinois, 

and German Shepherd dogs—the most common breeds used by the 

MWD program. The chief of staff also provided estimated costs for these 

procedures, which are specific to this private network of veterinary 

hospitals. (See table 4.) An Army veterinarian reviewed the information 

provided by the chief of staff and concurred that the identified procedures 

and costs were reasonable.

Table 4: Procedures, Estimated Costs, and Recommended Frequency of Preventative Care for 9-Year-Old Labrador 

Retrievers, Belgian Malinois, and German Shepherd Dogs, as of December 2016 

Procedures Estimated costs Recommended frequency of procedure

Every 6 months Every 1 year Every 3 years

Routine exam $82 √

Heartworm testa $47 √

Fecal exam $41 √

Kennel cough vaccineb $35 √

Rabies vaccine $33 √

Vaccination for 3 canine virusesc $42 √

Leptospirosis/Lyme vaccined $58 √

Blood and urine testing $280 √

Heartworm preventative medicinee $139 √

Flea and tick preventative medicinef $113 √

Source: GAO analysis of cost estimates from a private network of animal hospitals. l GAO-17-358

Note: These procedures, costs, and recommended frequency were provided by the chief of staff and 

a general practice veterinarian from a network of private veterinary hospitals in New Jersey. Costs for 

these preventative care procedures may differ based on geographic location and other factors. An 

 22Based on available data, we calculated the average age for 78 percent of the 421 

MWDs with electronic medical records with master problem lists from ROVR. 

Potential Costs for 

Preventative Care 
Page 17 GAO-17-358 Military Working Dogs

Army veterinarian reviewed the information provided by the chief of staff and concurred that the 

identified procedures and costs were reasonable.

a

A heartworm test is a blood test to ensure that the dog does not have heartworm disease. 

Heartworm disease is caused by worms (heartworms) that live in the heart, lungs, and associated 

blood vessels. This disease can cause lung disease, heart failure, and damage to other organs in the 

body.

b

Kennel cough is a viral and bacterial respiratory infection that causes inflammation of a dog’s voice 

box and windpipe. According to the chief of staff of a private veterinary hospital, the kennel cough 

vaccine may be required every 6 months if a dog is frequently in a day-care facility.

c

The three viruses included in this vaccination are Distemper, Adenovirus type 2 (Hepatitis), and 

Canine Parvovirus. Distemper is a contagious disease caused by a virus that attacks the respiratory, 

gastrointestinal and nervous system of dogs. Adenovirus type 2 (Hepatitis) is a respiratory disease. 

Canine Parvovirus is a virus that affects dogs’ gastrointestinal tracts and is spread by direct dog-todog contact and contact with infected fecal matter, environment, or people.

d

Leptospirosis and Lyme are two bacterial diseases that are transmitted to dogs through infected 

organisms. For example, raccoons can spread Leptospirosis and ticks can spread Lyme. These 

diseases can cause leg lameness, lethargy, and liver or kidney failure.

e

Heartworm preventative medicine is used to prevent heartworm disease.

f

Flea and tick preventative medicine is used to repel fleas and ticks.

Although owners of adopted MWDs are responsible for the costs of their 

care, some assistance with privately provided veterinary care is available 

through nonprofit organizations. Individuals with access to DOD medical

care may also purchase care for their adopted MWDs at military 

installations.23 However, the types of available veterinary services vary by 

military installation, and some installations do not offer veterinary 

services.

Owners of adopted MWDs may obtain assistance with privately provided 

veterinary care through nonprofit organizations. Assistance for adopted 

MWDs is primarily available through the U.S. War Dogs Association, an 

 23By law, federal financial assistance is not available for the costs of such veterinary care, 

see 10 U.S.C. §§ 994, 2583(e)(2). 

Some Assistance with 

Private Veterinary 

Care for Adopted 

MWDs Is Available 

from Nonprofit 

Organizations; Some 

Owners May 

Purchase Care 

Offered at Certain 

Military Installations

Assistance with Privately 

Provided Veterinary Care 
Page 18 GAO-17-358 Military Working Dogs

organization that offers (1) a prescription drug program (free prescription 

drugs for registered MWDs), (2) free specialty care through Red Bank 

Veterinary Hospital in New Jersey, and (3) financial assistance of up to 

$500 for emergency care and up to $100 for euthanasia. About 400 

former MWDs were registered with the association as of August 2016, 

according to the association’s president. In addition to assistance with 

medical care, the association also finds new homes for adopted MWDs 

when the owners are no longer able to take care of them.

According to Air Force officials, individuals who adopt MWDs receive 

information about the U.S. War Dogs Association at the time of adoption. 

These officials told us that this is the only nonprofit organization’s

information they provide to individuals adopting MWDs. Other nonprofit 

organizations that inquire about adopted MWDs are directed to contact 

the U.S. War Dogs Association. Some assistance with privately provided 

medical care is also available through other organizations, such as the 

American Humane organization, which helps cover some medical costs 

for adopted MWDs when their owners are unable to pay for their care.24

Officials from this organization told us they currently cover medical care 

costs for about 21 former MWDs. Information about potential services 

provided by the American Humane organization is available on its 

website.25

Owners of adopted MWDs may purchase veterinary services through 

DOD if they have access to medical services at military installations. 

According to an Army official, access to medical care is generally 

available for active duty servicemembers, their dependents, retirees and 

their dependents, as well as reservists on active orders. However, the 

types of veterinary services offered vary by military installation, and some 

installations do not offer any veterinary services. (See table 5.)

 24American Humane organization officials told us that coverage of medical cost is 

dependent on both the needs of the MWD as well as their budget. 

25Further information about the American Humane organization’s medical assistance for 

adopted MWDs can be found at http://www.americanhumane.org/program/military/.

Veterinary Services at 

Military Installations 
Page 19 GAO-17-358 Military Working Dogs

Table 5: Types of Veterinary Services Offered at Some Military Installations

Veterinary Centersa Veterinary Activities 

(located overseas)

Veterinary Treatment 

Facilities 

Veterinary Clinics 

Types of veterinary 

staff 

General practice Veterinary 

Corps Officers (VCO) and 

one clinical specialist VCO 

General practice VCOs 

and one clinical 

specialist VCO

General practice VCOs VCOs make 

predetermined visits but 

not permanently assigned

Types of services Preventative medical care, 

sick call diagnostics and 

treatment, laboratory 

services, dentistry, 

endoscopy, ultrasonography, 

and limited surgical and 

hospitalization services

Same capabilities as a 

Veterinary Center 

Preventative medical 

care, sick call 

diagnostics and 

treatment, laboratory 

services, dentistry, and 

minor elective surgical 

procedures

Preventative medical 

care and minor sickcall capabilities

Number of locationsb 7 3 112 22

Source: GAO analysis of information as reported by Army Officials. l GAO-17-358

Note: Individuals with access to DOD medical care may purchase care for their adopted MWDs at 

military installations. Specifically, the individual must be enrolled in the Defense Enrollment Eligibility 

Reporting System, which is a database of individuals who are entitled to DOD medical benefits. 

According to an Army official, this would generally include active duty servicemembers, their 

dependents, retirees and their dependents, as well as reservists on active orders. DOD provides 

veterinary services through the Army Public Health Center.

a

Veterinary Centers are also used as training facilities for first year veterinary graduates within the 

Army Medical Command.

b

The number of locations was reported in October 2016.

The Army’s Public Health Center maintains an interactive map on its 

website that provides information about the types of veterinary services 

that are available at military installations.26 According to an Army official, 

the link for this interactive map is listed on all veterinary service 

newsletters, brochures, and posters. This website has also been 

publicized in an Army newsletter for retired soldiers, surviving spouses, 

and family.27

 26https://phc.amedd.army.mil/TOPICS/ANIMED/VTFO/Pages/VTFMap.aspx.

27This website was published in the October 2016/January 2017 issue of the newsletter. 

See 

https://soldierforlife.army.mil/sites/default/files/echoes_issues/Army_Echoes_2016_Octob

er.pdf , page 11.
Page 20 GAO-17-358 Military Working Dogs

We provided a draft of this report to DOD for comment. DOD concurred 

with the report and provided technical comments, which we incorporated 

as appropriate.

We are sending copies of this report to the appropriate congressional 

committee, and the Secretaries of Defense, the Air Force, and the Army. 

In addition, the report is available at no charge on the GAO website at 

http://www.gao.gov. 

If you or your staff has any questions about this report, please contact me 

at (202) 512-7114 or at draperd@gao.gov. Contact points for our Office of 

Congressional Relations and Office of Public Affairs can be found on the 

last page of this report. Other major contributors to this report are listed in

the appendix.

Debra A. Draper

Director, Health Care

Agency Comments
Appendix: GAO Contact and Staff 

Acknowledgments

Page 21 GAO-17-358 Military Working Dogs

Debra A. Draper, (202) 512-7114 or draperd@gao.gov

In addition to the contact named above, Bonnie Anderson, Assistant 

Director; Danielle Bernstein, Analyst-in-Charge; Jennie Apter; and 

Kenisha Cantrell made key contributions to this report. Also contributing 

were Jennifer Rudisill and Mary Denigan-Macauley.

Appendix: GAO Contact and Staff 

Acknowledgments

GAO Contact

Staff 

Acknowledgments

(100980)
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