Military Personnel: More Guidance Could Help Address Service Member Gambling Problems
Fast Facts
Gambling is widely available to military members, who may be more likely than the general population to have gambling problems due to being younger and more risk-taking.
In 2025 the Defense Department updated its guidance to require additional actions for preventing and treating service member gambling problems. However, it did not fully define all the new responsibilities for tasks such as assigning staff trained to diagnose and treat service members with gambling problems. Also, the military services' have not updated their own policies to meet the new requirements in the department's guidance.
Our recommendations address this issue.
Highlights
What GAO Found
Problem gambling, according to the National Council on Problem Gambling, is gambling behavior that is damaging to a person or their family, often disrupting their daily life or careers. The Department of Defense (DOD) and the military services generally do not use the term problem gambling and instead more commonly use the term gambling disorder, which generally refers to a clinical diagnosis. DOD collects data related to gambling disorder from health surveys it administers to service members, and the Defense Health Agency (DHA) maintains records of encounters with service members diagnosed with gambling disorder. For example, there were 185 active-duty service members with a gambling-related diagnosis in fiscal year 2024.
In January 2025, DOD revised its instruction on substance use to include gambling disorder. This guidance outlines the steps the department and the military services should take to help prevent and treat gambling disorder among service members. However, the instruction does not identify a party responsible for implementation of certain tasks such as designating staff who will be trained to prevent, assess, diagnose, and treat gambling disorders, and DHA has not established a time frame for issuing implementing guidance that would do so. In addition, each military service has substance use policies and procedures that include gambling disorder. However, these policies do not fully reflect all the changes made to the DOD instruction because according to officials, the services have not updated their guidance to meet the new requirements for gambling disorder. By defining all roles and responsibilities for gambling disorder prevention and treatment, and by ensuring that subsequent updates are made to service-specific guidance to meet the new requirements for gambling disorder, DOD can increase its ability to address issues related to gambling among service members.
The military services operate recreational gaming machines (i.e., slot machines) at certain installations overseas to provide recreational opportunities to service members, their adult family members, and other members of the community. According to DOD officials, revenues generated from these machines are reinvested in Morale, Welfare, and Recreation (MWR) quality of life programs such as childcare and fitness programs. However, the military services' instructions relating to MWR activities, which include these gaming operations, do not consistently include guidance with clear requirements for responsible gaming practices. Such guidance may include requirements for posting signage identifying the signs of gambling addiction and who to contact if help is needed. By issuing guidance with clear requirements for responsible gaming practices at overseas installations, the military services could help prevent or respond to problem gambling by users of their recreational gaming machines.
Why GAO Did This Study
Many forms of gambling have become increasingly available to service members in the United States, including sports betting and privately owned casinos located near major DOD installations. According to a 2021 academic study, service members may be more likely to have problem gambling issues than the general population due to demographic risk factors such as being younger and having a higher propensity for risk-taking.
Senate Report 118-58, which accompanied a bill for the National Defense Authorization Act for Fiscal Year 2024, includes a provision for GAO to review what is known about the degree to which service members are struggling with problem gambling and about the support provided to these individuals. This report examines the information DOD collects about problem gambling, the guidance in place to prevent and respond to problem gambling, and DOD's recreational gaming machines overseas.
GAO analyzed data on the number of active-duty service members with gambling-related diagnoses. GAO met virtually or in-person with officials at four installations and interviewed unit leadership, health care providers, financial counselors, and chaplains to discuss the prevalence of problem gambling and what services are provided to service members struggling with problem gambling. GAO reviewed gaming policies and procedures in the military services' MWR guidance and interviewed MWR officials to determine what guidance is in place to facilitate responsible gaming at overseas installations with recreational gaming machines.
Recommendations
GAO is making nine recommendations to DOD, including for DHA to issue implementation guidance that defines all roles and responsibilities for gambling disorder that are not explicitly assigned in DOD guidance; for each of the military services to subsequently establish a time frame to review and update their guidance to implement requirements for gambling disorder outlined in DOD's guidance; and for each of the military services to update their MWR guidance to be consistent with and implement DOD's revision to their MWR guidance, once completed, for responsible gaming. DOD concurred with 8 of our recommendations and partially concurred with one recommendation and outlined plans to implement it.
Recommendations for Executive Action
| Agency Affected | Recommendation | Status |
|---|---|---|
| Department of Defense | The Secretary of Defense should ensure that the Director of the Defense Health Agency (DHA) establishes a time frame for issuing the implementation guidance for DOD Instruction 1010.04 that defines all roles and responsibilities for gambling disorder prevention, identification, diagnosis, and treatment that are not explicitly assigned. (Recommendation 1) |
In its response to our report, DOD partially concurred with this recommendation. DOD stated that the recommendation should be directed to the Assistant Secretary of Defense for Health Affairs instead of the Secretary of Defense. GAO generally addresses recommendations to the head of the agency, which in this case is the Secretary of Defense. However, DOD said that it will implement this recommendation by updating DHA Administrative Instruction 6025.15, Management of Problematic Substance Abuse by DOD Personnel. The estimated completion date for this update is June 1, 2026. We will continue to monitor DOD's actions to address this recommendation.
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| Department of the Army | The Secretary of the Army should establish a time frame to review and update guidance as needed to implement requirements for gambling disorder prevention and identification outlined in DOD Instruction 1010.04, once DHA's implementation guidance is issued. (Recommendation 2) |
In its response to our report, DOD concurred with this recommendation. The Army said that it will revise its Substance Use Readiness Guide as needed once DHA issues the revised DHA Administrative Instruction 6025.15. The estimated completion date is October 1, 2027. We will continue to monitor DOD's actions to address this recommendation.
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| Department of the Navy | The Secretary of the Navy should establish a time frame to review and update guidance as needed for the Navy and Marine Corps to implement requirements for gambling disorder prevention and identification outlined in DOD Instruction 1010.04, once DHA's implementation guidance is issued. (Recommendation 3) |
In its response to our report, DOD concurred with this recommendation. The Navy said that it will revise its guidance based on the information in DHA's Administrative Instruction 6025.15. The estimated completion date is March 31, 2027. We will continue to monitor DOD's actions to address this recommendation.
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| Department of the Air Force | The Secretary of the Air Force should establish a time frame to review and update guidance as needed to implement requirements for gambling disorder prevention and identification as outlined in DOD Instruction 1010.04, once DHA's implementation guidance is issued. (Recommendation 4) |
In its response to our report, DOD concurred with this recommendation. On September 16, 2025, the Air Force revised Department of the Air Force Instruction 44-121: Alcohol and Drug Abuse, in response to the January 2025 update of DOD Instruction 1010.04. This revised Air Force Instruction 44-121 contains information on substance use training, including the target audience and learning objectives for gambling disorder. However, our recommendation was for the Air Force to update its guidance as needed to implement requirements related to gambling disorder once DHA issues its implementation guidance for the DOD Instruction 1010.04. We are therefore keeping this recommendation open. Once DHA issues its implementation guidance, we will review the Air Force instruction to determine if the Air Force Instruction meets the requirements found in the DHA implementation guidance.
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| Department of Defense | The Secretary of Defense should ensure the Under Secretary of Defense for Personnel and Readiness includes in the next revision of DOD Instruction 1015.10 a requirement for the military services to have consistent responsible gaming guidance for their recreational machine programs. (Recommendation 5) |
In its response to our report, DOD concurred with this recommendation and said that it is in the process of revising DOD Instruction 1015.10. The estimated completion date is December 31, 2027. We will continue to monitor DOD's actions to address this recommendation.
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| Department of the Army | The Secretary of the Army should update the Army's MWR guidance to be consistent with and implement DOD's revision to DOD Instruction 1015.10, once completed, for responsible gaming. (Recommendation 6) |
In its response to our report, DOD concurred with this recommendation. The Army said that it is in the process of revising its MWR guidance based on language in our report. The Army said that it will also make any needed edits based on DOD Instruction 1015.10. The estimated completion date for this is December 31, 2028. We will continue to monitor DOD's actions to address this recommendation.
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| Department of the Navy | The Secretary of the Navy should update the Navy's MWR guidance to be consistent with and implement DOD's revision to DOD Instruction 1015.10, once completed, for responsible gaming. (Recommendation 7) |
In its response to our report, DOD concurred with this recommendation. The Navy said that it will update its MWR guidance and the estimated completion date is December 31, 2026. We will continue to monitor DOD's actions to address this recommendation.
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| Department of the Navy | The Secretary of the Navy should ensure that the Commandant of the Marine Corps updates the Marine Corps's MWR guidance to be consistent with and implement DOD's revision to DOD Instruction 1015.10, once completed, for responsible gaming. (Recommendation 8) |
DOD concurred with this recommendation. The department stated that when guidance is received from the Office of the Secretary of Defense and Secretary of the Navy, the U.S. Marine Corps will forward the guidance to the commands which have recreational gaming programs and update the gaming policy in Marine Corps Order 1700.30, Marine Corps Community Services Business Operations Policy Manual and Marine Corps Order P1700.27B W/CH 1, Marine Corps Community Services Policy Manual. The Marine Corps expects that this update will be published by the end of Fiscal Year 2027. We will continue to monitor DOD's actions to address this recommendation.
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| Department of the Air Force | The Secretary of the Air Force should update the Department of the Air Force's MWR guidance to be consistent with and implement DOD's revision to DOD Instruction 1015.10, once completed, for responsible gaming. (Recommendation 9) |
In its response to our report, DOD concurred with this recommendation. The Air Force said that it will revise its MWR guidance once the revision of DOD Instruction 1015.10 is complete. The estimated completion date is December 31, 2027. We will continue to monitor DOD's actions to address this recommendation.
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