The cost report excludes bases in U.S. territories lacking full voting representation.

Evidence

At Congress’s direction, the Overseas Cost Summary omits the costs of bases in the oft-forgotten parts of the United States lacking full democratic representation—places such as Puerto Rico, Guam, American Samoa, the Northern Mariana Islands, and the U.S. Virgin Islands. This is strange because these areas are, of course, literally overseas, and because the Pentagon considers them “overseas” for accounting and other purposes. — David Vine, Base Nation_ How U.S. Military Bases…, 613