Military Personnel: Armed Forces Should Clarify Tattoo Policies' Waiver Guidance
The armed forces have policies on the content, size, and location of allowable tattoos. As tattoos have become more common, policies have become less restrictive on size and location. Current policies allow tattoos almost anywhere except the head.
Armed forces recruitment and retention data doesn’t include information that would allow us to assess whether tattoo policies have an effect on recruitment and retention.
Most services allow waivers for certain unauthorized tattoos for recruits and current service members. However, policies aren't clear about when waivers are available or how to request them. Our recommendations address these issues.
Current Tattoo Policies
What GAO Found
The armed forces' policies for tattoo permissions and restrictions all focus on the content, size, and location of allowable tattoos. While the armed forces have content prohibitions for tattoos, the policies have evolved and become less restrictive regarding size and location. The current policies permit tattoos almost anywhere on the body except for on the head and face.
Navy Service Member with Allowable Tattoos
Armed forces officials GAO interviewed stated that recruiting and retention data do not include tattoo-specific data or other information that would allow an assessment of whether tattoo policies have a direct effect on recruitment and retention. Officials stated that tattoo policy updates are based on general discussions and on limited assessments of tattoo-related information, such as studies on tattoo prevalence among youth.
Most armed forces allow waivers (i.e., exceptions) for certain unauthorized tattoos, usually related to their size or location, for recruits and service members. Although each of the armed forces allows waivers for certain tattoo restrictions for recruits, the policies do not always mention or provide clear guidance on the requirements for these waivers. In addition, each armed force, except for the Navy, allows waivers for certain tattoo restrictions for service members, but their respective policies generally do not document this possibility clearly. Clear guidance on waivers for unauthorized tattoos would provide consistent information about requirements for waiver requests and conditions for approval. This could clarify whether tattoo prevalence affects future or continued military service.
Why GAO Did This Study
The House Committee on Armed Services and the military services have acknowledged recent challenges in recruiting, which they have attributed to a number of social and economic factors. Tattoo prevalence among American youth has increased, and Congress has expressed interest in the effect the armed forces' tattoo policies have on recruitment and retention.
The National Defense Authorization Act for Fiscal Year 2022 includes a provision for GAO to review the armed forces' tattoo policies. GAO examined the extent to which (1) tattoo policies exist for potential and current members of the armed forces, (2) the armed forces assess any effects of their tattoo policies on recruitment and retention of members, and (3) the armed forces have waiver processes for unauthorized tattoos.
GAO included the Army, Marine Corps, Navy, Air Force, and Space Force within the Department of Defense (DOD), and the Coast Guard within the Department of Homeland Security (DHS). GAO analyzed their tattoo policies for potential recruits and current service members, including enlisted personnel and officers.
Recommendations
GAO recommends that each of the six armed forces updates its tattoo policy, as appropriate, to better ensure that it clearly documents whether waivers are available for recruits and service members; and provides clear guidance on eligible tattoos and requirements for requesting a waiver, among other things. DOD and the military services generally agreed, and DHS agreed, with the recommendations.
Recommendations for Executive Action
| Agency Affected | Recommendation | Status |
|---|---|---|
| Department of the Army | The Secretary of the Army, in coordination with the Chief of Staff of the Army, should update the Army's tattoo policy, as appropriate, to better ensure that it clearly documents whether waivers to the tattoo policy are available for both recruits and service members; and provides clear guidance on tattoos eligible for waivers, the waiver approval authority, requirements for requesting a waiver, and on any other conditions required for waiver consideration or approval. (Recommendation 1) |
DOD concurred with this recommendation. According to DOD, the Army has updated interim policy concerning eligible tattoos and waiver approval authority. In addition, DOD stated that, as of September 2022, the Army was drafting a revised regulation with guidance established from the interim policies as well as with waiver conditions and requirements. The Army plans to issue revised policy by the end of September 2023. When the Army takes further action, we will update the status accordingly.
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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' tattoo policy, as appropriate, to better ensure that it clearly documents whether waivers to the tattoo policy are available for both recruits and service members; and provides clear guidance on tattoos eligible for waivers, the waiver approval authority, requirements for requesting a waiver, and on any other conditions required for waiver consideration or approval. (Recommendation 2) |
DOD concurred with this recommendation. According to DOD, as of November 2022, the Marine Corps was taking action to update its uniform regulations to address this recommendation. The Marine Corps anticipates completing these efforts by the end of September 2023. When the Marine Corps takes further action, we will update the status accordingly.
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| Department of the Navy | The Secretary of the Navy should ensure that the Chief of Naval Operations updates the Navy's tattoo policy, as appropriate, to better ensure that it clearly documents whether waivers to the tattoo policy are available for recruits and, if applicable, for service members; and provides clear guidance on tattoos eligible for waivers, the waiver approval authority, requirements for requesting a waiver, and on any other conditions required for waiver consideration or approval. (Recommendation 3) |
DOD concurred with this recommendation. According to DOD, as of December 2022, the Navy has updated policy concerning allowable and restricted tattoos, and the authority and process to grant waivers. When DOD provides a copy of the updated policy addressing this recommendation, we will update the status accordingly.
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| Department of the Air Force | The Secretary of the Air Force, in coordination with the Chief of Staff of the Air Force, should update the Air Force's tattoo policy, as appropriate, to better ensure that it clearly documents whether waivers to the tattoo policy are available for both recruits and service members; and provides clear guidance on tattoos eligible for waivers, the waiver approval authority, requirements for requesting a waiver, and on any other conditions required for waiver consideration or approval. (Recommendation 4) |
DOD concurred with this recommendation. According to DOD, as of September 2022, the Air Force was drafting an Air Force Guidance Memorandum (AFGM) that will provide clear guidance on tattoos eligible for waivers, the waiver approval authority, and the requirements and process for pursuing a waiver for service members. The Air Force anticipated publication of the AFGM in March 2023. When DOD provides a copy of the updated policy addressing this recommendation, we will update the status accordingly.
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| Department of the Air Force | The Secretary of the Air Force, in coordination with the Chief of Space Operations, U.S. Space Force, should update the Space Force's tattoo policy, as appropriate, to better ensure that it clearly documents whether waivers to the tattoo policy are available for both recruits and service members; and provides clear guidance on tattoos eligible for waivers, the waiver approval authority, requirements for requesting a waiver, and on any other conditions required for waiver consideration or approval. (Recommendation 5) |
DOD concurred with this recommendation. According to DOD, as of September 2022, the Air Force, together with the Space Force, was drafting an Air Force Guidance Memorandum (AFGM) that will provide clear guidance on tattoos eligible for waivers, the waiver approval authority, and the requirements and process for pursuing a waiver for service members. The Air Force anticipated publication of the AFGM in March 2023. When DOD provides a copy of the updated policy addressing this recommendation, we will update the status accordingly.
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| Department of Homeland Security | The Secretary of Homeland Security should ensure that the Commandant of the Coast Guard updates the Coast Guard's tattoo policy, as appropriate, to better ensure that it clearly documents whether waivers to the tattoo policy are available for both recruits and service members; and provides clear guidance on tattoos eligible for waivers, the waiver approval authority, requirements for requesting a waiver, and on any other conditions required for waiver consideration or approval. (Recommendation 6) |
The Department of Homeland Security concurred with this recommendation. According to the department, in July 2022, the Coast Guard's Office of Military Personnel Policy created an interim update to the Coast Guard's tattoo policy, ALCOAST 265/22, "UPDATE TO TATTOO, BODY MARKING, BODY PIERCING, AND MUTILATION STANDARDS," with guidance on eligible tattoos, the waiver approval authority, and the requirements for requesting a waiver. The Coast Guard plans to update the associated Commandant Instruction by the end of the summer of 2023. When the department takes further action, we will update the status accordingly.
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