Task Force Report on Care for Victims of Sexual Assault April 2004 Task Force Composition and Acknowledgments Task Force Members Ms. Ellen P. Embrey, Director Lieutenant Colonel Kenneth A. Arnold Ms. Cynthia Bingham Lieutenant Colonel James Cockerill Lieutenant Colonel Susan G. Dunlow Dr. Terri J. Rau Ms. Jenice Staniford Major Jayme M. Sutton Task Force Administrative Staff Colonel Ray Cunningham Ms. Barbara Goodno Ms. Tracy Sutton Ms. Elizabeth Welton Ms. Jennifer Barchok Ms. Sarah Fanning Task Force Support The Task Force would like to thank the following organizations for their support and advice: Combatant Commanders Joint Staff Department of the Army Department of the Navy Department of the Air Force Department of Defense, General Counsel Department of Defense, Inspector General The Department of Justice The Department of Veterans Affairs Office of the Secretary of Defense, Reserve Affairs Office of the Secretary of Defense, Legislative Affairs Office of the Under Secretary of Defense, Personnel and Readiness Deployment Health Support Directorate Florida State University, School of Social Work, The Honorable Kathleen A. Kearney Center for Military Readiness, Ms. Elaine Donnelly The American Prosecutors’ Research Institute The Miles Foundation Rape, Abuse, and Incest National Network ii DoD Care for Victims of Sexual Assault Task Force Report Table of Contents Task Force Composition and Acknowledgments............................................... ii Preface ........................................................................................................ v Executive Summary .....................................................................................vii Task Force Charter...............................................................................................................vii Review Methodology ...........................................................................................................vii Findings and Recommendations.......................................................................................viii Care for Victims of Sexual Assault .....................................................................................ix Sexual Assault Investigation and Prosecution....................................................................x Recommendations.................................................................................................................xi Summary ................................................................................................................................xii 1. Introduction ............................................................................................. 1 Reviewing Sexual Assault in the Military ............................................................................1 Review Plan.............................................................................................................................1 Task Force Approach ............................................................................................................2 2. The Military Environment ........................................................................... 4 Mission of the Armed Forces...............................................................................................4 Military Values and Leadership ............................................................................................4 Military Justice System...........................................................................................................5 Options available under the UCMJ......................................................................................6 3. Where We Are Today—Current Policies and Procedures ............................... 9 Prevention ...............................................................................................................................9 Reporting ...............................................................................................................................10 Response................................................................................................................................13 System Accountability..........................................................................................................16 4. Task Force Findings ................................................................................ 18 Sexual Assault Data and Definition...................................................................................18 Prevention .............................................................................................................................23 Reporting ...............................................................................................................................28 Response—Safety and Protection......................................................................................32 Response—Care for Victims..............................................................................................34 Response—Investigation and Prosecution.......................................................................38 System Accountability for Sexual Assault.........................................................................44 5. Task Force Recommendations.................................................................. 46 Recommendations for Immediate Action ........................................................................46 Recommendations for Near-Term Action .......................................................................50 Recommendations for Longer-Term Action ...................................................................55 DoD Care for Victims of Sexual Assault Task Force Report iii 6. Literature Review.................................................................................... 56 Definition...............................................................................................................................56 Prevalence..............................................................................................................................56 Risk Factors for Sexual Assault..........................................................................................59 Prevention .............................................................................................................................62 Reporting ...............................................................................................................................63 Response................................................................................................................................65 Bibliography ............................................................................................... 70 Acronyms................................................................................................... 74 List of Appendices A. Data Call: Services and Combatant Commands.......................................... 77 B. Focus Group Questions............................................................................ 82 C. Chronology of Surveys, Reports, and Hearings 1988–2004 ......................... 92 D. A Matrix of DoD and Service Guidance for Response to Sexual Assault........ 97 iv DoD Care for Victims of Sexual Assault Task Force Report Preface DoD Care for Victims of Sexual Assault Task Force Report v vi DoD Care for Victims of Sexual Assault Task Force Report Executive Summary The Department of Defense is unequivocal in its commitment to ensure that victims of sexual assault be protected, treated with dignity and respect, provided proper medical and psychological care, and that the perpetrators of such assaults be held accountable. Task Force Charter On February 5, 2004, Secretary of Defense Donald Rumsfeld directed the Under Secretary of Defense for Personnel and Readiness, Dr. David S.C. Chu, to undertake a 90-day review of all sexual assault policies and programs among the Services and DoD, and recommend changes necessary to increase prevention, promote reporting, enhance the quality and support provided to victims, especially within combat theaters, and improve accountability for offender actions. Review Methodology On February 13, 2004, the Under Secretary of Defense for Personnel and Readiness established an eight member Department of Defense Care for Victims of Sexual Assaults Task Force. The Task Force formulated a review plan, which included the following: Request and analyze sexual assault incidence and demographic data from the Services. Request and assess current DoD-wide, Service-wide and Combatant Command-wide sexual assault policies and programs. Perform literature review on sexual assault, including review of prior studies and reports on DoD sexual assault and related programs. Discuss sexual assault prevention, reporting, response, and disposition issues with commanders, non-commissioned officers, junior enlisted personnel, service providers (medical, mental health, victim advocate, victim witness advocate, chaplains, law enforcement, investigative agencies, and legal personnel), and victims. Consult with subject matter experts within the Department of Defense, other federal agencies, civilian experts, and sexual assault support organizations about matters that should inform our review with respect to prevention, reporting, response, and disposition of sexual assault cases. For the purposes of the Task Force review, sexual assault was defined as including the alleged offenses