Department of Defense: Medical Conditions and Care for End-of-Service Military Working Dogs
Published: 2017-03-10T00:00:00

Fast Facts:
DOD has used military working dogs at home and abroad to assist and protect servicemembers by helping to detect explosives or other threats. After completing their service, the dogs can be adopted, transferred to a law enforcement agency, or euthanized.
Based on available data, we found that the most prevalent medical conditions for dogs adopted during 2014 and 2015 included skin conditions, dental disease or dental injury, and musculoskeletal issues. The owners of adopted military working dogs are responsible for the costs of their veterinary care, although some assistance is available through non-profit organizations.

Highlights:
section_title: Why GAO Did This Study
paragraphs: 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-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.
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.
section_title: What GAO Found
paragraphs: 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.
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.

section_title: Letter
paragraphs: 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 military- owned animals, including MWDs. As of October 2016, about 1,800  MWDs were in service.
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. 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. Once MWDs have been 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. 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. Based on our review of the data, relevant  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. 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. 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. However,  based on our review of ROVR, verification of the data, and interviews with  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. 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.
subsections: section_title: Background
paragraphs: 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  the military, or in other circumstances, such as when a handler dies in  action.
subsections: section_title: Legislation Related to Adoption of MWDs
paragraphs: In 2000, a law commonly known as “Robby’s Law” was enacted to  promote the adoption of MWDs after their military service. 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.
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. 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.
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. While DOD is  authorized to establish and maintain a veterinary care system for adopted  MWDs, no federal funds may be used for this purpose.
section_title: Process for Removing MWDs from Service
paragraphs: 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. (See fig. 1.)
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). 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.
section_title: Medical Care for MWDs
paragraphs: 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  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. 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.
section_title: DOD Uses Three Systems to Track Information on MWDs; the Number of Adopted, Transferred, or Euthanized MWDs Has Varied over Time
paragraphs: 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.
subsections: section_title: Systems to Track MWD Information
paragraphs: 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  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.
section_title: Number of MWDs Adopted, Transferred, or Euthanized
paragraphs: 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. 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.)
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.)
section_title: Available Data Indicate That Prevalent Medical Conditions for MWDs Adopted in 2014 and 2015 Included Skin, Dental, and Musculoskeletal Issues
paragraphs: 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.
subsections: section_title: Prevalent Medical Conditions
paragraphs: 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, 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.)
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. (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.
section_title: Potential Costs for Treating Prevalent Medical Conditions
paragraphs: 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  different root causes, so it would be difficult to estimate treatment costs  for this condition without knowing the contributing factors.
section_title: Potential Costs for Preventative Care
paragraphs: 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. 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.
section_title: Some Assistance with Private Veterinary Care for Adopted MWDs Is Available from Nonprofit Organizations; Some Owners May Purchase Care Offered at Certain Military Installations
paragraphs: 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. However, the types of available veterinary services vary by  military installation, and some installations do not offer veterinary  services.
subsections: section_title: Assistance with Privately Provided Veterinary Care
paragraphs: 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  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.  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.
section_title: Veterinary Services at Military Installations
paragraphs: 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.)
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. 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.
section_title: Agency Comments
paragraphs: 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.
section_title: Appendix: GAO Contact and Staff Acknowledgments
subsections: section_title: GAO Contact
section_title: Staff Acknowledgments
paragraphs: 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.