THE MILITARY COMMANDER AND THE LAW UDGE A D VOCATE GENERAL’S SC E J HO H O T L E U C NITED STATES AI R F O R The Military Commander and the Law is a publication of The Judge Advocate General’s School. This publication is used as a deskbook for instruction at various commander courses at Air University. It also serves as a helpful reference guide for commanders in the field, providing general guidance and helping commanders to clarify issues and identify potential problem areas. As with any publication of secondary authority, this desk- book should not be used as the basis for action on specific cases. Primary authority, much of which is cited in this edition, should first be carefully reviewed. Finally, this deskbook does not serve as a substitute for advice from the staff judge advocate. Readers with questions or comments concerning this publication should contacts the Editors, The Military Commander and the Law, at the following address: The Judge Advocate General’s School 150 Chennault Circle (Bldg 694) Maxwell Air Force Base, Alabama 36112-6418 (334) 953-2802 or DSN 493-2802 This publication is available at: http://milcom.jag.af.mil On the cover: Runner (U.S. Air Force photo by Abner Guzman), Military Working Dog (U.S. Air Force photo by Senior Airman Kenny Holston), Honor Guard (U.S. Air Force photo by Airman First Class Jonathan Stefanko), and the rest are iStockphoto™ images THE MILITARY COMMANDER AND THE LAW Eleventh Edition 2012 COLONEL HOLLY M. STONE, USAF Commandant, the Judge advoCate general’s sChool MAJOR KENNETH A. ARTZ MAJOR LISA M. RICHARD CAPTAIN SIMONE V. DAVIS MS. THOMASA T. PAUL editors EDITORIAL BOARD Colonel Theresa A. Negron Major Jason F. Keen Lieutenant Colonel Mark D. Stoup Major Scott A. Hodges Lieutenant Colonel Richard L. Dashiell Major Peter T. Beaudette Mr. Thomas G. Becker Major Brett A. Landry Major Lynn Schmidt Major Monica E. Nussbaum Major Mark B. Mckiernan Captain Velma C. Gay Major Clayton D. Richter Captain William D. Toronto Major Deanna Daly Captain Shad R. Kidd Major Mechel A. Campbell Captain Alex J. Rose MAJOR Christian L. Deichert Captain Andrew R. Norton Major Cynthia T. Kearley Master Sergeant (Ret) Tracy J. Bailey Major R. Davis Younts PUBLICATION LAYOUT and COVER DESIGN MS. THOMASA T. PAUL SPECIAL THANKS TO The Secretary of the Air Force Office of the General Counsel (SAF/GC), Headquarters U.S. Air Force Administrative Law Directorate (AF/JAA), Headquarters U.S. Air Force Operations and International Law Directorate (AF/JAO), The Environmental Law Field Support Center, the Labor Law Field Center, and the Contract Law Field Support Field Support Center PREFACE The United States is founded upon the Constitution, the rule of law that stems from the Constitution, and the institutions designed to preserve and protect the law—including the armed forces. Our respect for the law is a reflection of our values as a nation. Military commanders hold a special position of authority under the law. Today’s commanders must make decisions in an environment of increasingly complex laws, rules, and regulations both nationally and internationally. The Military Commander and the Law is widely-recognized as a valued resource for leaders at every level and as a first-stop for commanders who need insight into the challenging legal issues that confront them. After reviewing the materials in this publication, a commander’s next stop is the local staff judge advocate, who will provide personal assistance resolving specific issues. Together, commanders and judge advocates are partners in safeguarding good order and protecting our Nation’s most-cherished freedoms. Please refer to this book early and often, and I trust it will become one of your most useful resources. RICHARD C. HARDING Lieutenant General, USAF The Judge Advocate General T M C l he iliTary oMMander and The aw T C able of onTenTs CHAPTER ONE: LEGAL ISSUES SPECIFIC TO THE COMMANDER ..........................1 Sources of Command Authority .....................................................................................2 Command Succession ........................................................................................................4 Functions of the Staff Judge Advocate ........................................................................7 Personal Liability of Commanders and Supervisors ................................................9 Article 138 Complaints .....................................................................................................12 Special Court-Martial Convening Authority Duties ...............................................15 Unlawful Command Influence ......................................................................................17 Serving as a Court Member ............................................................................................19 Testifying as a Witness ......................................................................................................22 Tips to Witnesses in Preparation for a Hearing or Trial .........................................23 CHAPTER TWO: QUALITY FORCE MANAGEMENT ....................................................25 Administrative Counselings, Admonitions, and Reprimands ............................26 Unfavorable Information Files (UIF) ............................................................................33 Control Rosters ....................................................................................................................36 Administrative Demotions ..............................................................................................38 Selective Reenlistment .....................................................................................................41 Reserve Reenlistments .....................................................................................................43 Officer and Enlisted Performance Reports ................................................................45 Officer Promotion Propriety Actions ...........................................................................48 Enlisted Promotion Propriety Actions ........................................................................51 CHAPTER THREE: NONJUDICIAL PUNISHMENT UNDER ARTICLE 15, UCMJ ..................................................................................................55 Nonjudicial Punishment Overview and Procedures..............................................56 Supplementary Nonjudicial Punishment Actions ..................................................65 Vacating Suspended Nonjudicial Punishment ........................................................68 The Remotivation Program ............................................................................................70 Quality Force Management Effects of Nonjudicial Punishment .......................72 i CHAPTER FOUR: ADMINISTRATIVE SEPARATION FROM THE AIR FORCE .....75 Involuntary Separation of Enlisted Members: General Considerations .........76 Involuntary Separation of Enlisted Members: Reasons for Discharge ............79 Involuntary Separation of Enlisted Members: Procedures .................................86 Involuntary Separation of Enlisted Members: Probation and Rehabilitation ...............................................................................................................89 Voluntary Separation of Enlisted Members Prior to Expiration of Term of Service .......................................................................................................................94 Officer Separations ............................................................................................................96 Administrative Separation of Reservists ..................................................................102 Loss of Veterans’ Benefits...............................................................................................104 CHAPTER FIVE: CRIMINAL AND MILITARY JUSTICE ..............................................107 Installation Jurisdiction ..................................................................................................109 Federal Magistrate Program .........................................................................................112 Court-Martial Jurisdiction Under the UCMJ ...........................................................114 A Commander’s Guide to the AFOSI .........................................................................119 Functions of the Area Defense Counsel ...................................................................127 Military Magistrate Program ........................................................................................129 National Security Cases ..................................................................................................130 Sexual Assault Response and Prevention ................................................................133 Air Force Victim and Witness Assistance Program................................................141 Transitional Compensation for Victims of Abuse .................................................144 Media Relations in Military Justice Matters ............................................................146 Arrest by Civil Authorities .............................................................................................151 Advising Suspects of Rights .........................................................................................154 Inspections and Searches .............................................................................................159 Preliminary Inquiry into Reported Offenses ...........................................................167 Military Justice Actions and the Inspector General .............................................169 Preparation, Preferral, and Processing of Charges ...............................................171 Pretrial Confinement .......................................................................................................173 Pretrial Restraint ...............................................................................................................177 Immunity .............................................................................................................................180 Pretrial Agreements ........................................................................................................183 ii Trial Format ........................................................................................................................186 Confidentiality and Privileged Communication ...................................................188 Use of Information in the PIF and Rehabilitation Testimony at Trial ..............192 Post-Trial Matters, Convening Authority Action, and Appeals ........................193 Air Force Return to Duty Program ..............................................................................196 CHAPTER SIX: PERSONNEL ISSUES FOR THE COMMANDER—GENERALLY ..................................................................................197 Total Force: Reserve and National Guard Forces ..................................................198 Reassignment to the Individual Ready Reserve ....................................................201 Active Guard/Reserve Curtailments ..........................................................................203 Mobilization Authority ...................................................................................................204 Return of Military Personnel, Employees, and Family Members from Overseas for Trial .......................................................................................................206 Drug Abuse ........................................................................................................................209 Alcohol Abuse ...................................................................................................................215 Freedom of Information Act (FOIA) ...........................................................................224 Privacy Act ..........................................................................................................................228 Army and Air Force Exchange Service and Commissary Benefits ..................232 Driving Privileges .............................................................................................................235 Debarment .........................................................................................................................238 Free Speech, Demonstrations, Open Houses and Hate Groups ......................240 Private Organizations .....................................................................................................243 Religious Issues in the Air Force ..................................................................................246 Citizenship for Military Members ...............................................................................254 CHAPTER SEVEN: PERSONNEL ISSUES FOR THE COMMANDER—MILITARY MEMBERS .......................................................257 Humanitarian Reassignments/Deferments ............................................................259 The Air Force Urinalysis Program ................................................................................261 Urinalysis Checklist for Unit Commanders ..............................................................266 Fraternization and Unprofessional Relationships ................................................269 Hazing ..................................................................................................................................272 Personal Bankruptcy .......................................................................................................274 iii Financial Responsibility .................................................................................................275 Bad Checks .........................................................................................................................278 Child Abuse, Child Neglect, and Spousal Abuse ...................................................279 Adoption Reimbursement ............................................................................................282 Paternity Claims ................................................................................................................284 Civilian Jury Service by Military Members ..............................................................285 Acquired Immune Deficiency Syndrome (AIDS) ...................................................287 Anthrax Immunizations .................................................................................................291 Commander Directed Mental Health Evaluations ...............................................294 Limited Privilege Suicide Prevention Program ......................................................298 Health Insurance Portability and Accountability Act (HIPAA) ..........................302 Personnel Reliability Program .....................................................................................307 Lautenberg Amendment ..............................................................................................311 Conscientious Objection to Military Service ..........................................................314 Fitness Program ................................................................................................................317 Administrative and Personnel Actions for Failing to Attain Physical Fitness Standards .....................................................................................320 The Air Reserve Component (ARC) Fitness Program ...........................................321 Unauthorized Absence ..................................................................................................325 Unauthorized Absence for an Air Reserve Component (ARC) Member .......328 Line of Duty Determinations .......................................................................................333 Disability Evaluation System ........................................................................................336 Officer Grade Determinations .....................................................................................339 Tattoos/Brands, Body Piercing, and Body Alteration ..........................................341 CHAPTER EIGHT: PERSONNEL ISSUES FOR THE COMMANDER—FAMILY AND NEXT OF KIN..................................................................................................................345 Family Member Misconduct ........................................................................................346 Removal from Base Housing ........................................................................................348 Family Day Care Homes .................................................................................................349 Child Development Programs .....................................................................................353 Summary Court Officers ................................................................................................355 Disposal of Personal Property .....................................................................................357 iv CHAPTER NINE: THE AIR FORCE LEGAL ASSISTANCE PROGRAM ...................359 Overview of Legal Assistance Program ....................................................................360 Notaries ...............................................................................................................................364 Preventive Law Program ................................................................................................367 Wills and Powers of Attorney .......................................................................................369 CHAPTER TEN: CIVIL LAW RIGHTS AND PROTECTIONS OF MILITARY PERSONNEL .................................................................................................373 Equal Opportunity and Treatment .............................................................................374 The Inspector General Complaints Resolution Process......................................380 Prohibition on Sexual Harassment ............................................................................386 Political Activities by Air Force Members ................................................................394 Membership and Participation in Hate Groups ....................................................398 Extremist Activities ..........................................................................................................399 Servicemembers Civil Relief Act .................................................................................403 Uniformed Services Employment and Reemployment Rights Act (USERRA) ......................................................................................................................406 Uniformed Services Former Spouses’ Protection Act ..........................................410 Right to Financial Privacy Act (RFPA).........................................................................414 CHAPTER ELEVEN: CIVIL LAW ISSUES FOR THE COMMANDER ........................417 Media Relations During Aircraft Accidents .............................................................418 National Defense Areas ..................................................................................................421 Posse Comitatus ...............................................................................................................425 Air Force Safety and Accident Investigations .........................................................428 Administrative Inquiries and Investigations ..........................................................434 Allegations Against Senior Officials and Colonels (or Equivalents) ...............438 Flying Evaluation Boards ...............................................................................................440 Commercial Activities .....................................................................................................444 MWR and Nonappropriated Fund Instrumentalities ...........................................449 Off-Limits Establishments .............................................................................................451 Unofficial Activities/Squadron Snack Bars ..............................................................453 Acceptance of Volunteer Services ..............................................................................455 v CHAPTER TWELVE: THE AIR FORCE CLAIMS PROGRAM ......................................457 Introduction to Claims ...................................................................................................458 Personal Property Claims ..............................................................................................459 Tort Claims ..........................................................................................................................464 Aviation Claims .................................................................................................................469 Foreign and International Claims ...............................................................................473 Carrier Recovery Claims .................................................................................................478 Reports of Survey (ROS) .................................................................................................480 Property Damage Tort Claims in Favor of the United States ............................487 Medical Cost Reimbursement Claims .......................................................................490 Article 139 Claims ............................................................................................................492 Liability for Damage to Rental Vehicles....................................................................494 CHAPTER THIRTEEN: CONTRACTING ISSUES FOR THE COMMANDER .........501 Procurement Integrity ....................................................................................................502 Minor Military Construction Funding .......................................................................505 Unauthorized Procurement .........................................................................................508 Bankruptcy: Government Contractors .....................................................................510 Contractor Personnel Authorized to Accompany the U.S. Armed Forces ...512 CHAPTER FOURTEEN: ETHICS ISSUES .........................................................................519 Standards of Ethical Conduct ......................................................................................520 Financial Disclosure Forms ...........................................................................................522 Gifts to Superiors ..............................................................................................................525 Foreign Gifts .......................................................................................................................526 Use of Government Resources for Mementos and Gifts ....................................528 Participation in Frequent Flyer Programs ................................................................530 Use of Government Communications Systems ....................................................532 Honoraria ............................................................................................................................536 Honorary Memberships .................................................................................................537 Off Duty Employment ....................................................................................................538 vi