https://crsreports.congress.gov
March 12, 2019
Defense Primer: DOD Appropriated Fund Civilians
Background and History
The Department of Defense (DOD) workforce consists of
military personnel, civilian employees, and contractors. A
DOD civilian does not serve in the military but is instead
appointed to the federal civil service. DOD civilians work
for the military departments (i.e., Army, Navy, and Air
Force) as well as other defense agencies and field activities
(e.g., Defense Health Agency). Federal civilians have
supported the armed forces as far back as the American
Revolution. For example, in World War II, civilians
provided medical and logistics support to military
personnel. The DOD civilian workforce has evolved over
time to meet the growing needs of the department and the
changing landscape of national defense.
Appropriated fund white-collar employees comprise a large
portion of the DOD civilian workforce. They are distinct
from other categories of DOD civilians, such as
nonappropriated fund civilians and those covered by the
Federal Wage System (e.g., blue-collar employees).
Roles and Responsibilities
DOD civilians contribute to the defense and protection of
the nation. They provide direct and indirect support to the
warfighter across numerous disciplines, such as
engineering, supply management, information technology,
cybersecurity, intelligence, financial management, and law.
For example, some civilians directly support military
operations by training, advising, and assisting military
personnel from other nations to build defense capacity in
areas such as ground logistics, cybersecurity, and combat
readiness. Other civilians help procure, build, test, or
maintain major weapons systems used by military
personnel in operations.
Workforce Statistics
DOD employs one of the largest civilian workforces in the
federal government. As shown in Figure 1, DOD employed
744,005 appropriated fund civilians as of December 31,
2018. The Army housed the largest portion (33%) of all
appropriated fund civilians, whereas the Marine Corps
housed the smallest portion (2%).
Distinguishing Characteristics
In many cases, DOD civilians possess the same or similar
characteristics as other federal employees. In some cases,
however, DOD civilians possess characteristics that
distinguish them from certain federal civilians and military
personnel. Examples are described below.
Figure 1. DOD Civilian and Active Duty Personnel
As of December 31, 2018
Source: CRS analysis of Defense Manpower Data Center data.
Notes: The figure depicts permanent, appropriated fund civilians
(which may include blue-collar employees paid under the Federal
Wage System). It does not include nonappropriated fund civilians,
U.S. Coast Guard employees, reserve components, or contractors.
They can provide continuity. Civilians provide continuity
within DOD, which may be unique at the department due to
the rotational nature of military personnel assignments.
Many civilians remain in the same positions and duty
locations for their entire careers, which enables them to
build and retain institutional knowledge of programs and
operations that are critical to the success of DOD’s mission.
Military personnel, by contrast, often rotate to different
duty locations every few years throughout their careers and
possibly to different positions within their respective career
fields.
They can deploy. Some DOD civilians deploy—either
voluntarily or as a condition of their employment—to
overseas locations such as Iraq or Afghanistan. They work
alongside deployed military personnel to ensure the success
of combat, post-combat, or humanitarian operations.
They have longer probationary periods. Many DOD
civilians must complete a probationary period of at least
two years, compared to a one-year period for other
permanent civilian employees in the competitive service.
For example, DOD cybersecurity positions operating under
Title 10, Section 1599f, of the United States Code require a
three-year probationary period.
They must obtain DOD-specific certifications. In some
cases, statutes require DOD civilians in certain career fields
to meet special, DOD-specific credentialing and
certification standards. For example, pursuant to Title 10,
Section 1599d, of the United States Code, DOD financial
