GAO 

United States Government Accountability Office

Report to the Chairwoman, 

Subcommittee on Insular Affairs, 

Oceans and Wildlife, Committee on 

Natural Resources, House of 

Representatives 

DEFENSE 

INFRASTRUCTURE 

DOD Needs to Provide 

Updated Labor 

Requirements to Help 

Guam Adequately 

Develop Its Labor 

Force for the Military 

Buildup 

October 2009 

GAO-10-72 
What GAO Found

United States Government Accountability Office

Why GAO Did This Study

Highlights

Accountability Integrity Reliability

October 2009

DEFENSE INFRASTRUCTURE 

DOD Needs to Provide Updated Labor Requirements

to Help Guam Adequately Develop Its Labor Force for 

Highlights of GAO-10-72, a report to the the Military Buildup 

Chairwoman, Subcommittee on Insular 

Affairs, Oceans and Wildlife, Committee 

on Natural Resources, House of 

Representatives 

The Department of Defense (DOD) 

plans to increase its military 

presence on Guam from about 

15,000 in 2009 to more than 39,000 

by 2020 at a cost of more than $13 

billion. The growth will create 

temporary construction jobs and 

permanent civilian jobs with the 

military, with contractors, and in 

the Guam community. GAO was 

asked to examine the extent to 

which DOD and the government of 

Guam have (1) planned for 

temporary construction labor 

requirements and the means to 

meet the requirements for building 

military infrastructure to support 

the force in Guam and (2) 

identified permanent federal and 

non-federal civilian jobs and shared 

this information so that Guam can 

develop its workforce to better 

compete for job opportunities. 

To address these objectives, GAO 

obtained documents and 

interviewed officials from DOD, the 

Services, government of Guam 

offices, and the Guam higher 

educational community. 

What GAO Recommends

GAO recommends that DOD 

develop a process for projecting 

and sharing federal civilian and 

DOD contractor support positions 

likely to be available—by 

specialties when feasible—and to 

routinely update this information 

until the buildup is complete. 

In commenting on a draft of this 

report, DOD partially concurred 

stating that it intends to provide the 

maximum advance information to 

Guam and to meet with officials at 

least on a semi-annual basis. 

DOD and the government of Guam have both started planning for temporary 

defense construction labor requirements; however, these plans are still 

preliminary until DOD’s Master Plan has been finalized. The Master Plan is to 

incorporate the results of the environmental impact statement containing an 

analysis of various socioeconomic impacts of the realignment related to 

specific proposed actions and is targeted to be finalized with a record of 

decision in January 2010. DOD officials expect that this socioeconomic 

analysis will estimate the impact of the expanded military presence on Guam’s 

employment. Nonetheless, DOD and the government of Guam have done some 

preliminary labor planning. For example, the Navy determined the range of 

the number of workers needed based on infrastructure costs, using a standard 

planning factor to estimate the size of the temporary construction workforce. 

Specifically, the Navy estimated that annual construction spending of $1 

billion would require about 5,000 to 10,000 workers and that at its maximum 

the workforce could consist of 20,000 construction workers. However, since 

the Navy expects its contractors to be responsible for hiring and maintaining 

their labor force to construct the DOD facilities, the actual temporary 

construction workforce will not be known until contracts are awarded and the 

contractors begin to hire local residents and transfer other workers to Guam 

from other locales. The government of Guam is also trying to prepare island 

residents to be part of the temporary construction work force. The 

government plans to train island residents with the construction and related 

skills needed to effectively compete for temporary construction employment 

and also plans to focus on training residents to compete for more permanent 

jobs after the construction phase is over. 

DOD has started identifying permanent federal and non-federal civilian 

positions that will accompany the Marines moving to Guam. Although DOD 

has estimated more than 1,600 civilian jobs will be needed, DOD has shared its 

preliminary estimates with only two organizations within the government of 

Guam and not with Guam’s educational community. Without this information, 

the Guam educational community would find it difficult to know the extent to 

which it should provide higher education and training for their students to 

better compete for these potential civilian positions. While efforts have been 

made to develop degreed programs of study, University of Guam officials 

estimated that it can take up to 3 years to develop new degree programs and 

recruit the faculty and then another 4 to 6 years to have students complete the 

undergraduate or graduate courses of study. DOD Directive 5410.12 requires 

the military departments to provide maximum advanced information and 

support to local governments impacted by DOD basing and personnel actions 

to allow planning for necessary adjustments in workforce training programs. 

Without DOD’s clarification of the types and numbers of needed positions, 

Guam university officials say they are at risk of developing programs that 

might not be large enough or focused on the right courses of study to 

effectively produce graduates in the fields that DOD and other potential 

employers would require. 

View GAO-10-72 or key components.

For more information, contact Brian J. Lepore 

at (202) 512-4523 or leporeb@gao.gov. 
Page i GAO-10-72 

Contents 

Letter 1

Results in Brief 3 

Background 6 

DOD and the Government of Guam Are Planning for Construction 

Labor Requirements, but These Requirements Are Preliminary 10 

DOD Has Shared Only Some Limited Preliminary Civilian 

Employment Estimates within the Government of Guam, a 

Factor That Limits Guam’s Ability to Develop Its Civilian 

Workforce 15 

Conclusions 18 

Recommendation for Executive Action 18 

Agency Comments and Our Evaluation 18 

Appendix I Scope and Methodology 20 

Appendix II Comments from the Department of Defense 22 

Appendix III GAO Contact and Staff Acknowledgments 24 

Related GAO Products 25 

Table 

Table 1: Total Number of Civilian Jobs Currently Being Estimated 

by the Services as of September 3, 2009 16 

Figure 

Figure 1: Map of the Territory of Guam and Location of Current 

and Projected U.S. Military Installations 7

 Defense Infrastructure 
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Page ii GAO-10-72 Defense Infrastructure
Page 1 GAO-10-72 

United States Government Accountability Office

Washington, DC 20548 

 

October 14, 2009 

The Honorable Madeleine Z. Bordallo 

Chairwoman 

Subcommittee on Insular Affairs, Oceans and Wildlife 

Committee on Natural Resources 

House of Representatives 

Dear Madam Chairwoman: 

The Department of Defense plans to transfer Marine Corps troops from 

Japan to Guam and to increase the other military services’ presence there 

as well, which will increase the overall military and dependent population 

from about 15,000 in 2009 to more than 39,000 by 2020. The largest portion 

of the military buildup is related to the relocation of about 8,000 Marines 

and their 9,000 dependents from Okinawa, Japan, to Guam as part of an 

agreement between the United States and the government of Japan to 

reduce forces in Japan while maintaining a continuing presence of U.S. 

forces in the region. DOD estimates that the total military buildup on 

Guam will cost more than $13 billion—$10 billion for the Marine Corps 

move alone—excluding any federal assistance that may be provided to the 

government of Guam to assist with the non-defense infrastructure that 

may be needed. 

The Navy is responsible for preparing for DOD’s increased military 

presence on Guam and is developing a master plan to address all aspects 

of the buildup. DOD has tasked the Joint Guam Program Office, which 

reports to the Assistant Secretary of the Navy (Installations and 

Environment), with the primary responsibility for developing and 

implementing the military buildup plans, and the Naval Facilities 

Engineering Command for contracting for the construction of the 

infrastructure for the buildup. The master plan will incorporate the results 

of an environmental impact statement, which will contain an analysis of 

various socioeconomic impacts of the realignment related to specific 

proposed actions, as appropriate, and DOD officials also indicated that a 

technical study of the socioeconomic impact of the realignment will be 

included as an appendix to the environmental impact statement. Office of 

the Secretary of Defense (OSD) officials expect that these socioeconomic 

analyses will estimate the impact of the expanded military presence on 

Guam’s employment in major industry sectors and on the ability of labor 

supply sources to fill available positions. According to Service officials, 

the actual construction of the military facilities needed to support the 

 Defense Infrastructure 
 

force and its dependents is likely to lead to significant temporary 

employment opportunities in the construction and related trades and 

additional significant permanent federal civilian, contractor support, and 

other public sector employment once the force has arrived. 

This is one in a series of GAO reports on DOD’s plans for increasing its 

presence on Guam.1

 In response to your request regarding temporary 

defense construction and permanent federal civilian and Guam community 

labor requirements, this report examines the extent to which DOD and the 

government of Guam have (1) planned for temporary defense construction 

labor requirements and the means to meet the requirements for building 

military infrastructure to support the force in Guam and (2) identified 

permanent federal and non-federal civilian workforce requirements and 

communicated this information so that the government of Guam can 

develop its civilian workforce to better compete for potential employment 

opportunities. 

To determine the extent that DOD and the government of Guam have 

planned temporary defense construction labor requirements and the 

means to meet these requirements, we obtained documents and 

interviewed officials from DOD’s Office of Economic Adjustment, the 

Navy’s Joint Guam Program Office, Pacific Command, Naval Facilities 

Engineering Command-Pacific, Naval Facilities Engineering CommandMarianas, Marine Forces Pacific, the Department of Labor’s Education and 

Training Administration, the Department of the Interior’s Office of Insular 

Affairs, the government of Guam’s Guam Buildup Office, and Guam’s 

Departments of Labor and Public Works. We also obtained documents and 

met with the Guam Contractors Association. We obtained and reviewed 

studies and assessments, briefings, annual reports, congressional 

testimony, and other pertinent documentation prepared by DOD, 

 

1

 Prior reports include GAO, Defense Infrastructure: Overseas Master Plans Are 

Improving, but DOD Needs to Provide Congress Additional Information about the 

Military Buildup on Guam, GAO-07-1015 (Washington, D.C.: Sept. 12, 2007); Defense 

Infrastructure: Planning Efforts for the Proposed Military Buildup on Guam Are in 

Their Initial Stages, with Many Challenges Yet to Be Addressed, GAO-08-722T 

(Washington, D.C.: May 1, 2008); Defense Infrastructure: Opportunity to Improve the 

Timeliness of Future Overseas Planning Reports and Factors Affecting the Master 

Planning Effort for the Military Buildup on Guam, GAO-08-1005 (Washington, D.C.: Sept. 

17, 2008); High-Level Leadership Needed to Help Guam Address Challenges Caused by 

DOD-Related Growth, GAO-09-500R (Washington, D.C.: April 9, 2009); and Defense 

Infrastructure: Planning Challenges Could Increase Risks for DOD in Providing Utility 

Services When needed to Support the Military Buildup on Guam, GAO-09-653

(Washington, D.C.: June 30, 2009). 

Page 2 GAO-10-72 Defense Infrastructure
 

government of Guam, and certain U.S. federal departments and agencies 

such as the Department of Labor and the Congressional Budget office. To 

determine the extent that permanent non-defense civilian employment 

requirements have been identified and the means taken by the government 

of Guam to develop its civilian workforce to better qualify for potential job 

opportunities, we obtained documents from and met with officials from 

Marine Forces Pacific, the University of Guam, and the Guam Community 

College. We also analyzed the government of Guam’s Civilian-Military Task 

Force fiscal year 2010 budget request that specifically addressed labor 

needs related to the buildup and spoke with members of the Task Force’s 

Labor and Infrastructure subcommittees. In addition, we also discussed 

key requirements and challenges associated with Guam’s civilian 

workforce with those organizations identified as contacted for the 

construction labor requirements objective above including DOD’s Office of 

Economic Adjustment; the Navy’s Joint Guam Program Office, Pacific 

Command; Naval Facilities Engineering Command-Pacific; Naval Facilities 

Engineering Command-Marianas; the Department of Labor’s Education 

and Training Administration; the Department of the Interior’s Office of 

Insular Affairs; the government of Guam’s Guam Buildup Office; and 

Guam’s Departments of Labor and Public Works. We did not review the 

potential for temporary construction labor to construct any needed 

government of Guam-owned non-defense infrastructure such as offinstallation roads or utilities systems because such an assessment was 

outside of the scope of our review, although such construction and 

associated construction employment could be necessary at the same time 

that DOD is constructing its facilities. 

We conducted this performance audit from March 2009 through October 

2009 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. See appendix I for more 

information on our scope and methodology. 

DOD and the government of Guam have both started planning for 

temporary defense construction labor requirements; however, these plans 

are still preliminary until DOD’s facilities master plan has been finalized. 

The master plan is to incorporate the results of the environmental impact 

statement and its analysis of various socioeconomic impacts of the 

realignment related to specific proposed actions. The environmental 

Results in Brief 

Page 3 GAO-10-72 Defense Infrastructure
 

impact statement is targeted to be finalized with a record of decision in 

January 2010. In the meantime, DOD and the government of Guam have 

done some preliminary planning that focuses on labor issues in support of 

the military buildup. For example, the Navy determined the range of 

workers needed temporarily by using a standard planning factor to 

estimate the size of the construction labor force. Specifically, the Navy’s 

Joint Guam Program Office estimated that annual construction spending 

of $1 billion would require about 5,000 to 10,000 workers and that at the 

maximum the workforce would consist of about 20,000 workers. As the 

construction work progresses, the number of construction workers 

needed will likely increase or decrease commensurate with the level of 

annual construction funding. The Navy expects the winning contractors to 

secure and maintain their own labor force to construct the DOD facilities. 

Therefore, the actual number of temporary construction workers needed 

to construct the DOD facilities will become clear as the contracts are 

awarded and the contractors begin to hire local residents and transfer 

workers to Guam from other locales. The government of Guam is also 

trying to prepare island residents to be part of the temporary construction 

work force. The government plans to train island residents with the 

construction and related skills needed to effectively compete for 

temporary construction employment and also to focus on training these 

workers to compete for more permanent jobs after the construction phase 

is over. 

DOD has started identifying permanent federal and non-federal civilian 

positions that will be associated with the realignment of Marines Corps 

forces from Okinawa to Guam, but has only shared some of this 

information with certain organizations within the government of Guam. 

The latter needs more such information to prepare its civilian workforce 

to compete for these positions. The Marine Corps estimates that it will 

need to fill more than 1,450 civilian positions. The Joint Guam Program 

Office also said that this number could increase to a total of more than 

1,600 jobs in order to meet the needs of the other services. However, 

according to DOD officials, they have only shared some jobs information 

with Guam waterworks and power authority officials, but not with the 

Guam Buildup Office, which has overall responsibility for the buildup 

within the government of Guam. Moreover, DOD officials have not shared 

jobs information, including the type and number of jobs, with the 

educational community on Guam. DOD officials said the reason is that 

such information is preliminary, incomplete, and subject to change. 

Without even such preliminary information as that which DOD officials 

told us they shared with the Guam water and power authorities, the 

University of Guam does not know the extent to which it should provide 

Page 4 GAO-10-72 Defense Infrastructure
 

additional higher education and training for its students to better compete 

for these potential civilian positions. In addition, DOD is unlikely to 

identify all the positions that will be required to support the realignment of 

Marine Corps forces until the environmental impact statement, with its 

analysis of various socioeconomic impacts of the realignment related to 

specific proposed actions, is completed in January 2010. However, DOD’s 

Office of Economic Adjustment is working with the government of Guam 

so that Guam can respond to buildup requirements, including those 

contained in the draft environmental impact statement, as they are 

released. While the government of Guam does not have DOD’s estimation 

of the number or types of positions, the Guam government attempted to 

identify potential federal-civilian, DOD support-contractor, and publicsector and other civilian labor needs in order to support development of 

educational programs that will prepare residents for these positions. For 

example, the University of Guam is considering developing degreed 

courses of study in engineering. At the time of our review, the University 

of Guam only had a 2- year pre-engineering program that requires students 

to finish their final 2 years of study elsewhere to obtain an engineering 

degree. University of Guam officials estimated that it can take up to 3 

years to develop new degree programs and recruit the faculty and then 

another 4 to 6 years to have students complete the undergraduate or 

graduate courses of study. DOD Directive 5410.12 requires the military 

departments to provide maximum advance information and support to 

local governments impacted by certain DOD basing and personnel actions 

to allow planning for necessary adjustments in workforce training 

programs. University officials said that they are at risk of developing 

programs that might not be large enough or focused on the right courses 

of study to effectively produce graduates in the fields that DOD and other 

potential employers would require if the university officials proceed to 

develop courses of study without current projected employment 

information. Furthermore, a mismatch may develop between the number 

of qualified applicants and the positions available. Without DOD’s 

clarification of the types and numbers of needed positions, University 

officials and Guam Community College officials said it will be difficult to 

develop programs that will prepare Guam’s residents for civilian 

employment opportunities. We are therefore recommending that DOD 

provide Guam with routinely updated federal civilian and support 

contractor employment information, including the latest projected 

numbers of positions needed in key specialties, and to routinely update 

this information until the buildup is complete. 

Initially, our draft report recommended quarterly updating. In commenting 

on a this draft, DOD partially concurred with our initial recommendation 

Page 5 GAO-10-72 Defense Infrastructure
 

that DOD provide updates quarterly because DOD officials believe that 

updating the jobs information quarterly is too frequent and suggested 

semi-annual updates. We believe that semi-annual updating meets the 

intent of our recommendation, so we have modified our recommendation 

to delete the reference to quarterly updates. In its response, DOD officials 

said they intend to provide the maximum advanced information to the 

government of Guam as soon as possible. They also said they shared some 

of their federal civilian and support contractor jobs information with 

officials from the Guam waterworks and power authorities. While this may 

be the case, they did not share the jobs information with the Guam 

Buildup Office, which has primary responsibility for the buildup within the 

government of Guam, nor did they share any information with the 

University of Guam and the Guam Community College, which will be the 

source of trained individuals who may qualify for many of the federal 

civilian and support contractor positions needed to support the military 

buildup on Guam. 

Because of Guam’s unique strategic location, the United States has long 

maintained a significant military presence on the island to support and 

defend U.S. interests in the western Pacific Ocean region. The small 

remote U.S. territory is located about 1,600 miles east of Manila in the 

Philippines, 1,560 miles south of Tokyo, Japan, and 3,810 miles west of 

Honolulu, Hawaii (see fig. 1). Guam’s July 2009 population is estimated at 

178,430. DOD currently controls about 29 percent of the land, which is 

about 62 square miles of the island’s total 212 square miles. The U.S. 

military presently operates two major installations on Guam: the U.S. 

Naval Base-Guam, located on the southwestern side of the island at Apra 

Harbor, and Andersen Air Force Base in the north. 

Background 

Page 6 GAO-10-72 Defense Infrastructure
 

Figure 1: Map of the Territory of Guam and Location of Current and Projected U.S. Military Installations 

Guam

PACIFIC

OCEAN

Japan

Hawaii

Fiji

Australia

Taiwan

Phillipines

Papua

New Guinea

Indonesia

China

Russia

Seattle

San Francisco

Los Angeles

San Diego U.S. Naval Computer and Telecommunications Station Finegayan

South Finegayan Housing

Housing

Andersen Air Force Base

Apra Harbor

Naval Complex

Andersen South

Naval

Ordnance Annex

Apra Heights

Tenjo VIsta Tank Farm

Sasa Valley Tank Farm

Nimitz Hill

Naval Hospital

U.S. Naval Computer and Telecommunications Station Barrigada

Main encampment and family housing

Aviation operations

Embarkation and

amphibious training

Intelligence, surveillance,

and reconnaissance Strike Force initiative

U.S. Marine Corps

U.S. Navy

U.S. Air Force

Aircraft carrier transit

berth and other

waterfront work

0

0

5 Kilometers

5 Miles

Sources: U.S. Marine Corps, U.S. Navy, U.S. Air Force, U.S. Army, GAO; and Map Resources (base map).

Note: The location of the Army’s air and missile defense task force on Guam has not yet been 

determined. 

Page 7 GAO-10-72 Defense Infrastructure
 

To reduce the burden of the U.S. military presence on Japanese 

communities while maintaining a continuing presence of U.S. forces in the 

region, the U.S.-Japan Defense Policy Review Initiative2

 established a 

framework for the future of U.S. force structure in Japan, including the 

relocation of American military units in Japan to other areas, including 

Guam. As a part of this initiative, DOD plans to move 8,000 Marines and 

their estimated 9,000 dependents from Okinawa, Japan, to Guam. Separate 

from the initiative, the United States also plans to expand the capabilities 

and presence of the military services on Guam over the next several years. 

For example, the Navy plans to enhance its infrastructure, logistic 

capabilities, and waterfront facilities, including capabilities to support a 

transient nuclear aircraft carrier; the Air Force plans to develop a global 

intelligence, surveillance, and reconnaissance strike hub at Andersen Air 

Force Base; and the Army plans to place an Army air and missile defense 

task force on Guam. As a result of this planned realignment of U.S. forces, 

the military population on Guam is expected to grow by over 160 percent, 

from its current island population of 15,000 to over 39,000 by 2020. Most of 

the extensive population growth and development resulting from the 

buildup will occur in the northern half of the island, primarily in the 

northwestern portion where DOD currently plans to construct a new 

Marine Corps base at Finegayan. Joint Guam Program Office officials, 

however, told us that the currently projected schedules and levels of 

population growth and force structure could change as buildup plans are 

further refined and approved. 

The Navy is responsible for overseeing the military buildup on Guam and 

is developing a master plan to address all aspects of the buildup. DOD has 

tasked the Joint Guam Program Office, which reports to the Assistant 

Secretary of the Navy (Installations and Environment), with primary 

responsibility for developing and implementing the military buildup plans 

and the Naval Facilities Engineering Command for contracting for the 

construction of the infrastructure for the buildup. The master plan will 

form the baseline for military construction budget planning and facility 

 

2

 DOD officials refer to the process through which the United States and Japan negotiated 

the initiatives that realign U.S. forces in Japan as the Defense Policy Review Initiative. The 

realignment initiatives were the result of Security Consultative Committee meetings in 2005 

and 2006 between U.S. and Japan officials. The Security Consultative Committee is made 

up of the U.S. Secretaries of State and Defense and Japan’s Minister of Foreign Affairs and 

Minister of State for Defense. The committee sets overall bilateral policy regarding the 

security relationship between the United States and Japan. The results of these meetings 

established a framework for the future U.S. force structure in Japan, including the Marine 

Corps move from Okinawa, Japan, to Guam. 

Page 8 GAO-10-72 Defense Infrastructure
 

and utility designs and provide a top-level view of the size and type of 

facility requirements, candidate and preferred land sites, and proposed use 

of the land to meet the requirements for new personnel and forces planned 

for Guam. The master plan is expected to be completed shortly after the 

environmental impact statement and its associated Record of Decision are 

issued. These documents are currently targeted to be completed and 

submitted to the Congress in January 2010. 

In accordance with the National Environmental Policy Act of 1969, which 

establishes environmental policies and procedures that are followed by 

federal agencies to the fullest extent possible, DOD is preparing an 

environmental impact statement, the results of which will be included in 

its master plan.3

 In addition, according to National Environmental Policy 

Act and the corresponding regulations established by the Council on 

Environmental Quality, when an environmental impact statement is 

prepared and economic or social and natural or physical environmental 

effects are interrelated, then the environmental impact statement will 

discuss all of these effects on the human environment. Therefore, the 

environmental impact statement will include an analysis of various 

socioeconomic impacts of the realignment related to specific proposed 

actions, as appropriate. Further, OSD officials also indicated that a 

technical study of the socioeconomic impact of the realignment will be 

included as an appendix to the EIS. The environmental impact statement 

is targeted to be finalized in January 2010. 

DOD Directive 5410.12 Economic Adjustment Assistance to Defense 

Related Communities, July 5, 2006, establishes policies and guidance of an 

Economic Adjustment Program to minimize economic impacts on 

communities resulting from changes in defense programs, such as base 

closures, realignments, consolidations, transfer of functions, and /or 

reductions in force. According to the directive, it is DOD policy that every 

practical consideration shall be given to implementing DOD actions that 

seriously affect the economy of a community in a manner that minimizes 

local economic impact and that DOD shall take the leadership role in 

assisting substantially and seriously affected communities. Specifically, 

the secretaries of the military departments will, among other 

 

3

 The National Environmental Policy Act of 1969, codified as amended at 42 U.S.C. § 4321-

4347, and the regulations established by the Council on Environmental Quality require, in 

part, that an environmental impact statement be prepared if a proposed project constitutes 

a major federal action significantly affecting the quality of the human environment. See 40 

C.F.R. Part 1500. 

Page 9 GAO-10-72 Defense Infrastructure
 

requirements, provide maximum advance information and support to local 

governments to allow planning for necessary adjustments in local facilities 

and public services, workforce training programs, and local economic 

development activities. 

The Office of Economic Adjustment is a DOD field activity that reports to 

the Deputy Under Secretary of Defense (Installations and Environment), 

under the Under Secretary of Defense (Acquisition, Technology, and 

Logistics). The office is responsible for providing technical and financial 

assistance to state and local governments, and the Territory of Guam when 

affected by significant DOD actions. The assistance enables the affected 

jurisdictions to respond to the impacts of DOD’s actions. The Office of 

Economic Adjustment’s financial assistance is in the form of grants and 

enables local jurisdictions to staff a local adjustment effort and undertake 

assessments, studies, and/or initial planning, while the technical assistance 

is focused on facilitating contact with the appropriate federal agencies and 

departments for a coordinated and responsive federal program of 

assistance. 

DOD and the government of Guam have both started planning for 

temporary defense construction labor requirements; however, these 

requirements are still preliminary until DOD’s facilities master plan has 

been finalized. The master plan is to include the results of the 

environmental impact statement, which will contain an analysis of various 

socioeconomic impacts of the realignment related to specific proposed 

actions and an appendix with a technical study of the socioeconomic 

impact of the realignment. The environmental impact statement is targeted 

to be finalized with a record of decision in January 2010. In the meantime, 

DOD and the government of Guam have done some preliminary planning 

that focuses on labor issues in support of the military buildup. 

DOD and the 

Government of Guam 

Are Planning for 

Construction Labor 

Requirements, but 

These Requirements 

Are Preliminary 

DOD’s Efforts in Planning 

for Defense Construction 

Labor Requirements 

Following the record of decision on the environmental impact statement 

—currently targeted to be finalized in January 2010—DOD is expected to 

complete a Guam Joint Military Master Plan, which will provide 

requirements, including the number, location and size of facilities as well 

as the time frame for when these facilities are to be completed. The 

information contained in the master plan should provide a better estimate 

of overall labor requirements than what currently exists. At the time of our 

review, the Naval Facilities Engineering Command, which has 

responsibility over all of the military buildup construction on the island, 

does not have definitive estimates of the number of construction workers 

Page 10 GAO-10-72 Defense Infrastructure
 

needed to complete buildup-related infrastructure construction. Thus, to 

compensate for now, the Navy is using a simple planning factor that 

determines the range of the number of workers needed based on the 

amount of annual funding for infrastructure. Specifically, the Navy 

estimates that for every $1 billion spent annually on construction, it will 

likely require between 5,000 and 10,000 workers. As construction work 

progresses, the number of construction workers needed will likely 

increase or decrease commensurate with the level of annual construction 

funding. For instance, if the Navy estimates that $2.5 billion will be spent 

in a given year on buildup construction, then between 12,500 and 25,000 

workers would be required. The Navy’s planning data currently show that 

the construction labor force will likely peak in fiscal year 2013 at about 

20,000 construction workers, and then drop to about 7,500 workers by 

2016. 

Because Guam cannot provide all of the labor required, the Navy also has 

developed estimates on where it will draw its construction workforce. 

Navy estimates show that Guam currently has about 5,600 construction 

workers on island, which is comprised of about 4,200 citizens of Guam and 

about 1,400 workers in the Foreign Alien Labor Program who are on Guam 

temporarily on H-2B work visas.4

 The Navy also estimates that Guam will 

eventually be capable of providing approximately 7,000 workers in 

addition to potentially 6,000 workers from the Hawaiian Islands. The Navy 

estimates that the remaining construction workforce could consist of as 

many as 8,000 H-2B visa workers. Federal law provides no more than 

66,000 H-2B visas may be issued to qualified foreign workers each fiscal 

year.5

 However, under the Consolidated Natural Resources Act of 2008, 

during an initial period that ends December 31, 2014, qualified 

nonimmigrant workers may be admitted to Guam or the Commonwealth of 

the Northern Mariana Islands under the H-2B visa process established in 

accordance with the Immigration and Nationality Act6

 without counting 

against the 66,000 numerical limitations referenced above.7

 After the initial 

 

4

 The H2B visas category applies to residents of foreign countries who are coming to the 

United States (the term “United States” includes Guam in this context) temporarily to 

perform nonagricultural temporary labor or service if unemployed persons capable of 

performing such labor or service are unable to be found in the United States (8 U.S.C. § 

1101(a)(15)(H)(ii)(B)). For additional regulations pertinent to the issuance of H-2B visas, 

see also 8 C.F.R. § 214(h). 

5

 8 U.S.C. § 1184(g)(1)(B). 

6

 8 U.S.C. § 1101 et. seq. 

7

 Pub. L. No. 110-229, § 702(a) (2008) (codified at 48 U.S.C. § 1806(b)). 

Page 11 GAO-10-72 Defense Infrastructure
 

period ends on December 31, 2014, this temporary exemption from the 

overall numerical limitation expires.8

 Additionally, the conference report 

on H.R. 2647, the National Defense Authorization Act for Fiscal Year 2010, 

contained several provisions that, if enacted, may impact workforce issues 

related to the realignment.9 According to government of Guam officials, 

Guam’s government agencies have partnered with their federal 

counterparts such as Immigration and Customs Enforcement and the 

Department of Homeland Security, to address compliance and 

enforcement of alien labor laws and regulations. 

The Naval Facilities Engineering Command, which has responsibility for 

contracting for infrastructure construction, has proposed contract 

selection criteria that it believes will reduce the socioeconomic impact on 

Guam. For example, contractors will be required to hire some foreign 

construction laborers and also to provide logistical support for the 

workforce, such as housing, feeding, and transport, and to provide safety, 

security, and medical care. Additionally, the proposed criteria will require 

contractors to certify the workers’ medical condition based on 

government of Guam requirements prior to bringing them to the island, 

and contractors must provide medical care for the duration of their 

workers’ stay on Guam. For example, under this proposed criteria, all 

prospective employees are to be given pre-employment physical exams 

that meet Guam Department of Public Health medical requirements. 

Because the existing medical capacity on Guam cannot accommodate the 

expected construction workforce increase, contractors will be responsible 

for the following types of medical care: first aid, primary, trauma, medical 

evacuation, and rehabilitation. The Naval Facilities Engineering Command 

will also have overall responsibility for ensuring compliance and 

conformance with contract requirements. According to Navy officials, the 

Naval Facilities Engineering Command will encourage contractors to act 

together to develop solutions to any logistical issues presented by the 

 

8

 See GAO, Commonwealth of the Northern Mariana Islands: Pending Legislation Would 

Apply U.S. Immigration Law to the CNMI with a Transition Period, GAO-08-466 

(Washington, D.C.: Mar. 28, 2008). 

9

 H.R. Conf. Rep. No. 111-288, at 485-488 and 889-890 (2009). For example, one section 

specifies a number of measures aimed at ensuring the maximum number of U.S. workers 

are solicited before H2B visa waivers are issued, and would further require the Secretary of 

Labor to approve a recruitment plan. Another section would require that military 

construction projects carried out on Guam and related to the realignment comply with the 

requirements of subchapter IV of chapter 31 of title 40, U.S. Code, and would require that 

the Secretary of Labor issue wage rate determinations annually until 90% of the funds for 

the project are expended. 

Page 12 GAO-10-72 Defense Infrastructure
 

buildup. For example, DOD has held three industry forums, for potential 

contractors, to discuss and share information on the Marine Corps’ 

relocation-and-associated business opportunities with the government of 

Guam to ensure that the contractors are prepared to meet all life and 

safety requirements. 

The Government of 

Guam’s Steps in Preparing 

to Meet Workforce Labor 

Requirements Resulting 

from the Military Buildup 

In an effort to meet the needs of the military buildup, the government of 

Guam has taken some steps in preparing to meet potential workforce 

labor requirements before DOD has issued its master plan. Once DOD has 

issued the master plan, the government of Guam will be able to make more 

refined workforce decisions. In the meantime, according to government 

officials, they are focusing on building workforce skill sets that will likely 

sustain Guam’s workforce through the different phases of the buildup. 

Although the initial phase would involve training residents to qualify for 

jobs in the construction trades, the government of Guam recognizes that 

the majority of these jobs are temporary and so its efforts are also 

focusing on jobs that will likely be needed after the construction phase 

ends. For example, the Guam Department of Labor has established an 

apprenticeship program, with support from the U.S. Department of Labor’s 

Employment and Training Administration in the form of Workforce 

Investment Act10 funding, for Guam workers to apprentice with the Guam 

Power Authority and the Guam Shipyard. The Guam Department of Labor 

has also expanded the apprenticeship programs through partnerships with 

the Guam Hotel and Restaurant Association and the Guam Contractors 

Association. According to the Department of Labor’s Employment and 

Training Administration, nearly $1.4 million in Workforce Investment Act 

funding has been invested in participant salaries, benefits, and educational 

assistance on Guam to support registered apprenticeship. In 2006, the 

Guam Department of Labor established the Guam Registered Apprentice 

Program to contract with businesses to accept apprentices and to provide 

these businesses with incentives to help develop a skilled workforce. 

Since it was established, the participating businesses have requested $2.1 

million in tax credits from the government of Guam. In addition, in the 

fiscal year 2010 budget request that the government of Guam submitted to 

the Office of Management and Budget in July 2008, the Guam Department 

of Labor requested nearly $23 million for additional apprenticeship and 

talent-development training programs in anticipation of workforce needs 

of the buildup. This request however was not ultimately provided to the 

 

10 The Workforce Investment Act, Pub. L. No. 105-220 (1998). 

Page 13 GAO-10-72 Defense Infrastructure
 

U.S. Department of Labor and therefore was not included in Labor’s 

budget request for fiscal year 2010. Labor officials also acknowledged that 

they lacked the necessary information to effectively provide assistance. 

For example, according to Labor officials, DOD has not provided the 

department with buildup data or guidance related to the role of federal 

agencies in providing buildup assistance to Guam. 

U.S. Department of Labor and the Guam Department of Labor have also 

partnered in other workforce areas. For example in February 2009, U.S. 

Department of Labor and Guam Department of Labor representatives 

worked together to re-design services and training strategies, and devised 

new ways to address skill needs in preparation for the buildup. The 

representatives developed a plan to identify occupational competencies 

and gaps in Guam’s workforce associated with these competencies. 

Moreover, the Guam Department of Labor, in partnership with the Guam 

Public Schools System, has developed a program to expose high school 

students to both public sector and private sector businesses in 

construction, information technology, health, education, and other fields. 

From the summer of 2005 to the winter of 2008, 1,813 students have 

participated in the program. When the students return to school, after 

working in area businesses, they are encouraged to continue their 

vocational education career path. 

Guam Community College is also involved in developing workforce skills 

of the local residents for the buildup. In partnership with the U.S. 

Department of Labor, the college has secured grant funding of $383,000 in 

order to train 100 post secondary individuals for skilled construction, 

advanced electrical, and information technology jobs. According to 

officials with the community college, the college has also received an 

additional $470,000 in grant funding for secondary career and technical 

training. The officials also told us that they requested but did not receive 

information from DOD on the number and type of permanent federal 

civilian jobs the military services would need when they begin to move 

their forces there. The Community College entered into a memorandum of 

understanding in November 2008 with the Guam Contractors Association 

and the Guam Contractors Association Trade Academy to cooperate to 

attain their common goal to prepare local residents for permanent 

employment in construction and related fields to replace tradesmen who 

are leaving employment by attrition, to improve the quality of skills and 

knowledge within the existing workforce, and to increase the number of 

qualified skilled workers for an expanding workforce while reducing the 

need for nonimmigrant alien workers. In addition, the Guam Contractors 

Association—which represents more than 440 firms in the engineering, 

Page 14 GAO-10-72 Defense Infrastructure
 

construction, and supporting industries—has backed the need for workers 

for the buildup by establishing the Guam Contractors Association Trades 

Academy. The academy conducted its first classes in October 2006 and, 

according to the academy’s officials, more than 400 students have 

participated in its programs. At the time of our review, more than 160 

students on Guam, with another 100 students on Saipan and 60 on 

Pohnpei, both islands in the region, were participating in the program. 

Association officials said they believe that qualified individuals from these 

islands as well as other islands in the area will likely seek construction 

jobs on Guam during the construction phase of the buildup. 

DOD has developed some limited preliminary information about the 

number of permanent civilian jobs that will likely be available when the 

military has started to arrive on the island, but only some of this 

information has been shared with certain elements of the government of 

Guam, but not at all with Guam’s higher education community. DOD 

Directive 5410.12 requires the military departments to provide maximum 

advance information and support to local governments impacted by 

certain DOD actions to allow planning for necessary adjustments in 

workforce training programs. Without this information, the government of 

Guam may be challenged to plan for potential jobs that support the 

buildup, including the ability to train and prepare individuals so they 

qualify for these jobs. 

DOD Has Shared Only 

Some Limited 

Preliminary Civilian 

Employment 

Estimates within the 

Government of Guam, 

a Factor That Limits 

Guam’s Ability to 

Develop Its Civilian 

Workforce 

DOD Has Started to 

Identify Civilian Job 

Opportunities with the 

Military 

DOD has started to identify permanent federal civilian positions that will 

accompany the 8,000 Marines moving to Guam. According to the Marine 

Corps, its estimates, at the time of this review, identify more than 1,450 

civilian positions that will need to be filled after it moves to Guam. Marine 

Corps officials expect that most of these jobs will need to be filled by 

residents of Guam because the officials do not think that many current 

employees will move from Okinawa. The other services have also begun to 

identify their permanent federal civilian positions as well. Table 1 below 

shows the total number of civilian jobs estimated by the services as of 

September 3, 2009. 

Page 15 GAO-10-72 Defense Infrastructure
 

Table 1: Total Number of Civilian Jobs Currently Being Estimated by the Services 

as of September 3, 2009 

Service Estimated number of civilian jobs

Marine Corps 1,467

Air Force 125

Navy 9

Army TBD

Total 1,601

 Source: Joint Guam Program Office. 

According to DOD officials, they have only shared some jobs information 

with Guam waterworks and power authority officials and not with the 

Guam Buildup Office, which has overall responsibility for the buildup 

within the government of Guam. Moreover, DOD has not shared this 

information, including the type and number of potential jobs with the 

educational community on Guam because DOD officials have noted that 

such information is preliminary, incomplete, and subject to change. 

Furthermore, DOD is likely to refine these estimates when the 

environmental impact statement, which will include an analysis of various 

socioeconomic impacts of the realignment related to specific proposed 

actions, is finalized in January 2010. OSD officials expect that these 

socioeconomic analyses will include information on Guam’s labor force 

including expected employment by industry, civilian labor force demand, 

and the federal government’s share of employment. According to Office of 

Economic Adjustment officials, they will continue to assist the 

government of Guam to respond to impacts from DOD actions, as 

information is released and requirements are identified, including those 

contained in the draft environmental impact statement. The Office of 

Economic Adjustment awarded an initial $2.5 million grant to the 

government of Guam to hire an advisory consultant team, which possesses 

expertise in planning, environmental, and fiscal/financial services. As 

specific labor information is released and requirements are identified, the 

government of Guam may utilize the consultant team or other resources to 

further frame its workforce adjustment efforts. 

Guam Has Attempted to 

Develop Workers for 

Civilian Jobs but Needs 

Updated DOD Information 

As It Becomes Available 

The government of Guam has attempted to identify potential federal 

civilian, DOD support-contractor, and public-sector and other civilian 

labor needs created by the increased military presence in order to support 

development of educational programs that will prepare residents for these 

civilian jobs. For example, officials at the University of Guam have already 

begun to develop courses of study leading to appropriate professional 

Page 16 GAO-10-72 Defense Infrastructure
 

degrees that would help qualify its graduates to compete for permanent 

civilian positions with the military. For example, university officials said 

that they are aware that the military will need qualified engineers to help 

staff its organizations once they have moved to Guam. However, the 

officials do not know how many engineers will be needed or which 

engineering fields officials should put their educational emphasis upon. 

For now, University officials are considering setting up a new engineering 

degree program because currently they only offer a 2-year pre-engineering 

program that requires students to finish their final 2 years of study at the 

University of Iowa to obtain the engineering degree.11 The university had 

six students enrolled in the pre-engineering course in the fall of 2007 and, 

according to university officials, they now have 24 students enrolled in the 

program. University of Guam officials estimated that the university can 

take up to 3 years to develop new degree programs and recruit the faculty 

and then another 4 to 6 years to have students complete the undergraduate 

or graduate courses of study. At the time of our review, the Marine Corps 

move to Guam was planned to be completed in 2014. 

University officials said they have requested information regarding the 

number and types of positions that DOD plans to move to Guam and are 

aware of the preliminary nature of the information. However, they said 

that they are at risk of developing programs that might not be large enough 

or focused on the right courses of study to effectively produce graduates 

in the fields that DOD and other potential employers would require, 

because DOD has not communicated to the government of Guam (other 

than the power and water authorities) or the university any details about 

DOD’s preliminary estimates regarding the information. Nonetheless, DOD 

is required to assist communities seriously impacted by major defense 

closures and realignments. Specifically, DOD Directive 5410.12 requires 

the military departments to provide maximum advance information and 

support to local governments impacted by certain DOD basing and 

personnel actions to allow planning for necessary adjustments in 

workforce training programs. However, without DOD’s clarification of the 

types and numbers of needed positions, university officials said it is 

difficult to develop a university degree program that would effectively 

prepare its labor force. As a result, university officials said a mismatch 

may develop between the number of qualified applicants and the positions 

 

11 Students may attend other engineering schools, but the University of Guam has an 

agreement with the University of Iowa whereby the latter will honor the students’ credits 

earned at the University of Guam. 

Page 17 GAO-10-72 Defense Infrastructure
 

available since the university needs to know what disciplines its graduates 

need skills in to compete for available jobs and enough time to develop 

appropriate programs. Likewise, Guam Community College officials also 

said they need additional information about civilian employment 

opportunities to develop their programs, although its courses of study 

generally take less time to complete than a 4-year university’s courses of 

study. 

In anticipation of the DOD buildup, Guam is positioning its citizens to 

compete for employment during the temporary defense construction 

phase and for permanent civilian jobs with the military and those in the 

community. However, the government of Guam and the educational 

community on Guam do not have the latest and most accurate and detailed 

information from DOD on what jobs Guam will need to fill and 

approximately when these jobs will be available. While these estimates are 

subject to change, DOD does possess preliminary employment estimates 

based on existing positions with the Marines in Okinawa. Without this 

information, the government of Guam may be challenged to effectively 

plan for potential jobs that support the buildup and future continuing 

military presence, including the ability to train and prepare individuals so 

they qualify for these jobs. Finally, DOD may have difficulty filling critical 

civilian positions if qualified applicants are unavailable on Guam when 

needed. 

To assist the government of Guam to properly train and prepare its future 

workforce to effectively compete for permanent federal civilian and DOD 

contractor support positions that will be available once the force has 

arrived in Guam, we recommend that the Secretary of Defense direct the 

Under Secretary of Defense (Acquisition, Technology, and Logistics) to 

develop a process for projecting and sharing updated information 

describing federal civilian and DOD contractor support positions likely to 

be available—by specialties when feasible—and to routinely update this 

information until the buildup is complete. 

Initially, our draft report recommended quarterly updating. In commenting 

on a this draft, DOD partially concurred with our recommendation to 

provide updates on a quarterly basis because DOD officials believe that 

updating the jobs information quarterly is too frequent and suggested 

semi-annual updates. We believe that semi-annual updating meets the 

intent of our recommendation, so we modified our recommendation to 

delete the reference to quarterly updates. In DOD’s response, its officials 

Conclusions 

Recommendation for 

Executive Action 

Agency Comments 

and Our Evaluation 

Page 18 GAO-10-72 Defense Infrastructure
 

said they intend to provide the maximum advanced information to the 

government of Guam as soon as possible. They also said they shared some 

of their federal civilian and support contractor jobs information with 

officials from the Guam waterworks and power authorities. While this may 

be the case, DOD did not explain how those organizations will prepare 

Guam’s civilian workforce to compete for civilian positions with DOD. 

Moreover, DOD did not share the jobs information with the Guam Buildup 

Office, which has primary responsibility for the buildup within the 

government of Guam, nor did DOD share any information with the 

University of Guam and the Guam Community College, which will be the 

source of trained individuals who may qualify for many of the federal 

civilian and support contractor positions needed to support the military 

buildup on Guam. 

We are sending copies of this report to interested congressional 

committees, the Secretary of Defense, the Secretary of the Navy, and the 

Governor of Guam. In addition, the report will be available at no charge on 

GAO’s Web site at http://www.gao.gov. 

If you or your staff have any questions about this report, please call me at 

(202) 512-4523 or leporeb@gao.gov. Contact points for our Offices of 

Congressional Relations and Public Affairs may be found on the last page 

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

appendix III. 

Sincerely yours, 

rian J. Lepore, Director 

Defense Capabilities and Management 

B

Page 19 GAO-10-72 Defense Infrastructure
Appendix I: Scope and Methodology Appendix I: Scope and Methodology 

To determine the extent that DOD and the government of Guam have 

planned temporary defense construction labor requirements and the 

means to meet these requirements, we obtained and reviewed studies and 

assessments, briefings, annual reports, congressional testimony, and other 

pertinent documentation prepared by DOD, government of Guam, and 

certain U.S. federal departments and agencies such as the Department of 

the Interior and the Congressional Budget Office. We obtained and 

analyzed construction labor projections and preliminary construction 

schedules provided by the Navy’s Joint Guam Program Office. We also 

obtained and reviewed the Joint Guam Program Office’s draft master plan, 

which provides general information on preliminary buildup requirements 

including potential facility requirements and candidate sites for the 

location of these facilities. We discussed currently estimated construction 

requirements and DOD plans to address these requirements with officials 

from DOD’s Office of Economic Adjustment, the Navy’s Joint Guam 

Program Office, Pacific Command, Naval Facilities Engineering 

Command-Pacific, Naval Facilities Engineering Command-Marianas, and 

Marine Forces Pacific. We also interviewed officials from the Department 

of the Interior’s Office of Insular Affairs, the government of Guam’s Guam 

Buildup Office, and Guam’s Departments of Labor and Public Works. We 

obtained documents from the Guam Community College and the Guam 

Contractor’s Association regarding training opportunities in construction 

trades. We also interviewed officials from these organizations to determine 

how they are planning for Guam’s workforce to develop sustainable 

employment skills following the construction phase of the buildup. In 

addition, we obtained documentation and met with officials from the U.S. 

Department of Labor’s Office of Education and Training Administration to 

determine what activities the office has been involved in to support Guam 

with the military buildup. We did not review the potential for temporary 

construction labor to construct any needed government of Guam-owned 

non-defense infrastructure such as off-installation roads or utilities 

systems because it was outside of the scope of our review, although such 

construction and associated labor could be necessary at the same time 

that DOD is constructing its facilities. 

To determine the extent that permanent non-defense civilian employment 

requirements have been identified and the means taken by the government 

of Guam to develop its civilian workforce to better qualify for potential job 

opportunities, we obtained and reviewed studies and assessments 

provided by DOD, government of Guam, and certain U.S. federal 

departments and agencies such as Marine Forces Pacific and the 

Department of Labor. We obtained and reviewed documentation of 

financial and technical assistance, including grant amounts, provided to 

Page 20 GAO-10-72 Defense Infrastructure 
Appendix I: Scope and Methodology 

Guam by DOD’s Office of Economic Adjustment. We obtained and 

reviewed documents from the University of Guam and Guam Community 

College including the types and numbers of degree programs and 

graduates as well as studies on Guam’s educational effectiveness and 

income distribution. We also obtained and analyzed the government of 

Guam’s Civilian-Military Task Force fiscal year 2010 budget request that 

specifically addressed labor needs related to the buildup and spoke with 

members of the Task Force’s Labor and Infrastructure committees. In 

addition we met with and interviewed officials from DOD’s Office of 

Economic Adjustment, the Navy’s Joint Guam Program Office, Pacific 

Command, Naval Facilities Engineering Command-Pacific, Naval Facilities 

Engineering Command-Marianas, Marine Forces Pacific, the Department 

of Labor’s Education and Training Administration, the Department of the 

Interior’s Office of Insular Affairs, the government of Guam’s Guam 

Buildup Office, and Guam’s Departments of Labor and Public Works. 

Page 21 GAO-10-72 Defense Infrastructure
Appendix II: Comments from the Department Appendix II: Comments from the Department of Defense 

of Defense 

Page 22 GAO-10-72 Defense Infrastructure 
Appendix II: Comments from the Department 

of Defense 

Page 23 GAO-10-72 Defense Infrastructure
Appendix III: GAO

A

 Contact and Staff 

cknowledgments 

Page 24 GAO-10-72 

Appendix III: GAO Contact and Staff 

Acknowledgments 

Brian J. Lepore, (202) 512-4523 or leporeb@gao.gov GAO Contact 

In addition to the contact named above, Harold Reich, Assistant Director; 

Josh Margraf; Richard Meeks; Amy Frazier; Grace A. Coleman; Renee 

Brown; Richard Powelson; and Katherine S. Lenane made major 

contributions to this report. 

Acknowledgments 

 Defense Infrastructure 
Related GAO Products Related GAO Products 

Defense Infrastructure: Planning Challenges Could Increase Risks for 

DOD in Providing Utility Services When Needed to Support the Military 

Buildup on Guam, GAO-09-653. Washington, D.C.: June 30, 2009. 

High-Level Leadership Needed to Help Guam Address Challenges Caused 

by DOD-Related Growth, GAO-09-500R. Washington, D.C.: April 9, 2009. 

Defense Infrastructure: Opportunity to Improve the Timeliness of Future 

Overseas Planning Reports and Factors Affecting the Master Planning 

Effort for the Military Buildup on Guam. GAO-08-1005. Washington, D.C.: 

September 17, 2008. 

Defense Infrastructure: High-Level Leadership Needed to Help 

Communities Address Challenges Caused by DOD-Related Growth. 

GAO-08-665. Washington, D.C.: June 17, 2008. 

Defense Logistics: Navy Needs to Develop and Implement a Plan to 

Ensure That Voyage Repairs Are Available to Ships Operating near 

Guam when Needed. GAO-08-427. Washington, D.C.: May 12, 2008. 

Defense Infrastructure: Planning Efforts for the Proposed Military 

Buildup on Guam Are in Their Initial Stages, with Many Challenges Yet 

to Be Addressed. GAO-08-722T. Washington, D.C.: May 1, 2008. 

Defense Infrastructure: Challenges Increase Risks for Providing Timely 

Infrastructure Support for Army Installations Expecting Substantial 

Personnel Growth. GAO-07-1007. Washington, D.C.: September 13, 2007. 

Defense Infrastructure: Overseas Master Plans Are Improving, but DOD 

Needs to Provide Congress Additional Information about the Military 

Buildup on Guam. GAO-07-1015. Washington, D.C.: September 12, 2007. 

U.S. Insular Areas: Economic, Fiscal, and Financial Accountability 

Challenges. GAO-07-119.Washington, D.C.: December 12, 2006. 

DOD’s Overseas Infrastructure Master Plans Continue to Evolve. 

GAO-06-913R. Washington, D.C.: August 22, 2006. 

Results-Oriented Government: Practices That Can Help Enhance and 

Sustain Collaboration among Federal Agencies. GAO-06-15. Washington, 

D.C.: October 21, 2005. 

Page 25 GAO-10-72 Defense Infrastructure
Related GAO Products 

U.S. Insular Areas: Multiple Factors Affect Federal Health Care Funding. 

GAO-06-75. Washington, D.C.: October 14, 2005. 

Opportunities Exist to Improve Future Comprehensive Master Plans for 

Changing U.S. Defense Infrastructure Overseas. GAO-05-680R. 

Washington, D.C.: June 27, 2005. 

Results-Oriented Government: GPRA Has Established a Solid 

Foundation for Achieving Greater Results. GAO-04-38. Washington, D.C.: 

March 10, 2004. 

Environmental Cleanup: Better Communication Needed for Dealing 

with Formerly Used Defense Sites in Guam. GAO-02-423. Washington, 

D.C.: April 11, 2002. 

Compact of Free Association: Negotiations Should Address Aid 

Effectiveness and Accountability and Migrants’ Impact on U.S. Areas. 

GAO-02-270T. Washington, D.C.: December 6, 2001. 

Foreign Relations: Migration From Micronesian Nations Has Had 

Significant Impact on Guam, Hawaii, and the Commonwealth of the 

Northern Mariana Islands. GAO-02-40. Washington, D.C.: October 5, 2001. 

Overseas Presence: Issues Involved in Reducing the Impact of the U.S. 

Military Presence on Okinawa. GAO/NSIAD-98-66. Washington, D.C.: 

March 2, 1998. 

U.S Insular Areas: Development Strategy and Better Coordination 

Among U.S. Agencies Are Needed. GAO/NSIAD-94-62. Washington, D.C.: 

February 7, 1994. 

(351319) Page 26 GAO-10-72 Defense Infrastructure
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