The federal government provides a variety of benefits to its 4.4 million civilian and military employees and 4.7 million civilian and military retirees. Among these benefits are health insurance; enhanced dental and vision benefits; survivor benefits; retirement and disability benefits; family, medical, and emergency leave; and reimbursement of relocation costs. Pursuant to Title 5 U.S.C. Chapters 89, 89A, 89B, and other statutes, federal employees may extend these benefits to eligible spouses and children. In 1996, Congress passed the Defense of Marriage Act (DOMA, P.L. 104-199; 1 U.S.C §7) “[t]o define and protect the institution of marriage.” DOMA contains two provisions. The first provision allows all states, territories, possessions, and Indian tribes to refuse to recognize an act of any other jurisdiction that designates a relationship between individuals of the same sex as a marriage. The second provision prohibits federal recognition of these unions for purposes of federal enactments. Pursuant to DOMA, the same-sex partners of federal employees are not eligible to receive federal benefits that are extended to the spouses of federal employees. An estimated 34,000 federal employees are in same-sex relationships—including state-recognized marriages, civil unions, or domestic partnerships. The Obama Administration has extended certain benefits to the same-sex partners of federal employees and annuitants—and argued that it has done so within the parameters of existing federal statutes. On June 2, 2010, President Obama released a memorandum that extended specific benefits to the same-sex partners of federal employees, including coverage of travel, relocation, and subsistence payments. Some Members of Congress argue that same-sex partners of federal employees should have access to benefits afforded married, opposite-sex couples in order to attract the most efficient and effective employees to federal service. Other Members of Congress argue that the law prohibits the extension of such benefits, and, therefore, actions to distribute any spousal benefits to same sex couples is contrary to both the text and spirit of DOMA. Congress has had a long-standing interest in overseeing the benefits provided to federal employees. When DOMA was enacted, the House report that accompanied the legislation stated that a primary goal of the law was to “preserve scarce government resources.” The Congressional Budget Office (CBO) estimated that extending benefits to the partners of employees in same-sex relationships pursuant to S. 1910 would cost the federal government $144 million in discretionary spending between 2013 and 2022. CBO also estimated, however, that extending the benefits could “limit future rate increases” in federal health care costs because health care providers would be required to recover certain health care costs that previously went unrecovered. These recovered costs could lower the federal government's health care premiums. In the 112th Congress, two bills have been introduced that, if enacted, would permit federal employees to extend insurance, long-term care, and other benefits to same-sex partners. On November 18, 2011, Senator Joseph Lieberman introduced S. 1910, the Domestic Partnership Benefits and Obligations Act of 2011. That same day, Representative Tammy Baldwin introduced a companion bill, H.R. 3485, also called the Domestic Partnership Benefits and Obligations Act of 2011, in the House. On May 16, 2012, S. 1910 was ordered to be reported favorably from the Committee on Homeland Security and Governmental Affairs. H.R. 3485 was referred to multiple committees, but no further action has been taken on the bill. This publication examines current policies on the application of benefits to the same-sex partners of federal employees and reviews certain policy debates about the extension or removal of these benefits; it also presents data on the prevalence of same-sex partner benefits in the private and public sector.

Domestic partner benefits for federal employees: fair policy and good business

Domestic partner benefits for federal employees : fair policy and good business : hearing before the Committee on Homeland Security and Governmental Affairs, United States Senate, One Hundred Tenth Congress, second session, September 24, 2008.