The NDAA for fiscal year 2009 initially authorized CIPP as a pilot program through December 31, 2012, establishing basic eligibility criteria for participants, providing guidelines for implementing the program, and establishing congressional reporting requirements. Specifically: For each calendar year from 2009 through 2012, up to 20 officers and 20 enlisted servicemembers per military service are authorized to leave active duty for a period not to exceed 3 years. For each month of sabbatical taken, servicemembers must complete two months of obligated service upon their return to active duty. Servicemembers who have completed their initial active duty service agreement and are not currently receiving a critical skills retention bonus are eligible to participate. During their sabbatical, all servicemembers are required to serve in the Individual Ready Reserve and are required to undergo such inactive duty training as shall be required by the Secretary involved in order to ensure that the servicemember retains sufficient proficiency in the military skills, professional qualifications and physical readiness. During sabbaticals, servicemembers receive two-thirtieths of their salary (i.e. 2-days pay per month) and maintain full health benefits for themselves and their dependents. In addition, DOD provides participants and their dependents with a paid relocation within the United States. For example, if servicemembers are taking a sabbatical to attend school, DOD will pay for them to move to the location of their educational program. At the end of the servicemember’s sabbatical, DOD will pay the costs to relocate the servicemember to his or her next assignment. The NDAA for fiscal year 2015 kept these NDAA fiscal year 2009 guidelines and extended the program, allowing for servicemembers to start sabbaticals through December 31, 2019, returning to active duty no later than December 31, 2022. Appendix I shows when each military service implemented CIPP and the number of participants approved by each service as of July 2015.The fiscal year 2015 NDAA also extended the date for DOD to provide a final report to Congress—from March 1, 2016, to March 1, 2023, and it added additional reporting elements. DOD is now required to report the following: A description of the number of applicants for the pilot program and the criteria used to select individuals for participation in the pilot program. An evaluation of whether the authorities of the pilot programs provided an effective means to enhance the retention of members of the armed forces possessing critical skills, talents, and leadership abilities. An evaluation of whether the career progression in the armed forces of individuals who participate in the pilot program has been or will be adversely affected; and the usefulness of the pilot program in responding to the personal and professional needs of individual members of the armed forces. A description of reasons why servicemembers choose to participate in the pilot. A description of the servicemembers, if any, who did not return to active duty at the conclusion of their sabbatical, and a statement of the reasons why these servicemembers did not return. A statement about whether servicemembers were required to perform training as part of their participation in the pilot program, and if so, a description of the servicemembers who were required to perform training, the reasons they were required to perform training, and how often they were required to perform training. A description of the costs to each military department of each pilot program. Recommendations for legislative or administrative action as the Secretary concerned considers appropriate for the modification or continuation of the pilot programs. Participation in CIPP has remained below statutorily authorized limits, and officials have identified factors that could be affecting CIPP participation, but DOD has not established a plan for evaluating whether CIPP is an effective means to retain servicemembers. The rate of DOD-wide participation in CIPP has been at less than half the authorized limit of 160 participants per calendar year, and officials from each of the services stated that factors including statutory requirements, service-specific limitations, military culture, and personal financial constraints could be affecting participation. Additionally, although DOD officials stated that they would like to make CIPP a permanent program, and the services are required to provide a final report to Congress on its effectiveness, costs, and retention not later than March 1, 2023, DOD has not established a plan for evaluating the effect of the pilot program on retention of servicemembers. Since Congress authorized CIPP in fiscal year 2009, participation has remained below authorized limits. As shown in figure 1, DOD is authorized to enroll up to 160 servicemembers per year in the program (up to 40 participants for each of the four services); but DOD-wide, the highest number of participants approved for CIPP was 76, in calendar year 2014. From 2009 through 2012, only Navy personnel were participating in CIPP, but in 2013, the Marine Corps approved its first applicant, and in 2014, personnel from all four services were participating in the pilot. Some of the services have had participation levels closer to the authorized limits. For example, in 2014, of the 76 participants approved, 30 were Navy and 35 were Air Force. However, the Army and Marine Corps were below authorized limits, with 9 servicemembers approved from the Army and 2 from the Marine Corps. Service officials identified four factors that may affect participation in CIPP—statutory requirements, service-specific limitations, military culture, and financial constraints. Statutory Requirements—According to the CIPP authorizing statute, servicemembers are not eligible to participate in the program during the period of their initial active duty service agreement or if they are currently receiving a critical skills retention bonus. These eligibility criteria reduce the population eligible to apply for CIPP. For example, according to Navy officials, as of July 2015, almost 134,000 Navy servicemembers were ineligible to participate in CIPP because they were in their initial active duty service agreement period. According to a DOD budget analysis document, the initial service agreement for a Navy sailor typically occurs from 18 to 33 years of age, when professional goals compete most strongly with personal goals such as family planning. For example, one participant who responded to our questionnaire stated that she used CIPP after completing her initial service obligation to start her family. However, she would have preferred to take a sabbatical during her initial service obligation period when she was younger. According to a DOD budget analysis document, for the Navy, retention at a servicemember’s first career reenlistment point is the most difficult to achieve. However, if servicemembers elected to participate in CIPP during their first service obligation period, they in effect would be electing retention during this critical timeframe. According to Navy officials, if these servicemembers were able to participate in CIPP, the CIPP-obligated service requirement would extend each servicemember’s existing period of obligated service, which could enhance retention. Another statutory requirement caps the annual number of participants at 40 (20 officers and 20 enlisted) servicemembers per service. An Army official and some Navy officials were of the opinion that the limitations on the number of participants may reduce participation, stating that servicemembers may be hesitant to apply since so few people were selected annually. Proposed language in the fiscal year 2016 NDAA, if enacted, would repeal the prohibition on participation in CIPP by servicemembers who are in their initial obligated service period or who are receiving a critical military skills retention bonus, and it would eliminate program participation caps. Service-specific limitations—Each military service has established selection processes and eligibility requirements that supplement the statutory requirements established by the NDAA for fiscal year 2009. For example, the Air Force rates applicants in various categories— such as job performance, leadership, experience, job responsibility, and education. As a result, according to Air Force officials, the most competitive applicants were prioritized for participation in CIPP, and less competitive applicants were disapproved for participation in the program. Further, service-specific guidance includes limitations on participation by servicemembers in certain career fields, such as Army medical personnel and some officers in the Navy Chaplain Corps and Judge Advocate General’s (JAG) Corps, as well as certain enlisted nuclear personnel. According to Navy and Air Force officials, additional career fields that require sustained proficiency (such as operating weapons systems or piloting aircraft), while not restricted from participation in CIPP, may have restrictions on breaks in service. For example, Navy officials stated that officers in the submarine community must receive a waiver to go longer than 3 years without a sea tour, and if officers exceed 5 years without a sea tour they can no longer work in the submarine community—this could occur if an officer took a 3-year sabbatical followed by a 3-year shore tour. According to Navy officials, if individuals in these communities participate in CIPP, measures are taken to ensure that they do not exceed timeframes that would result in the loss of their ability to serve in their community. Additionally, Navy and Air Force officials stated that pilots who do not have a minimum number of flight hours within a certain time period are no longer certified to operate their aircraft, and are required to complete additional training to be recertified. A Navy official stated that pilots are not disqualified from their position; however, additional training further extends the officer’s time out of operational service, which may affect the officer’s promotion potential. Military culture—Officials from each service also stated that participation may be influenced by military culture, and that servicemembers have the perception that a break in service may have a negative effect on upward advancement.