He did give draft resisters unconditional amnesty. My bad. He did not give military resisters (those already in the military who at one point resisted orders in the illegal,immoral, Vietnam War) unconditional amnesty.
From
http://www.afsc.org/youthmil/conscientious-objection/Vietnam-war-resisters.htm (also info on that page regarding the Ford Program)
Carter Program (1977)
In 1977, President Carter established two programs to assist war resisters. In January of 1977 he declared an unconditional amnesty for draft resisters, both accused and those who could face possible prosecution. Later that year, he set up the two stage "pardon" process for military absentees.
Once again, draft evaders and military absentees were treated differently.
Draft evaders were granted unconditional amnesty automatically if there were no other legal charges pending. They would not have a criminal record. Young men who were Unfortunately, universal and unconditional amnesty was never granted to military resisters.considered draft evaders did not have to apply (in any formal sense) to get amnesty. It was a blanket amnesty granted to all draft evaders whether they had been engaged in a legal process or not. This is why no figure exists for the real number of draft evaders who benefited from the Carter program. This includes people who were never prosecuted, people who were investigated and not prosecuted, people who were indicted, people for whom charges had been brought, etc. The only restriction is that the person not have other (non-draft evasion) charges pending against them. So a draft evader who had criminal charges pending for participating in a protest would not have those protest-related charges dropped, only the draft evasion charges.
Similarly, military deserters and AWOL's could apply for a limited pardon if there were no other charges pending. Under the Carter program deserters would automatically receive a less than honorable discharge ("Undesirable"), but could apply for an upgrade later. The upgrade would not be automatic and few veterans received them. They were barred from receiving veterans benefits, unlike many other vets with less than honorable discharges. Military resisters had to apply for relief within a certain time frame, about 5-6 months, during 1977. Only 4,200 of them were considered eligible for the program; less than 25% of them were processed and received the less-than-honorable discharge. The program allowed for a case-by-case review of potentially another 430,000 cases of veterans with bad discharges; yet only 16,277 benefited from this procedure.
The Carter program was more successful than the Ford program despite its serious limitations. Many of the resisters (especially military absentees) had trouble surviving in other countries. Exile groups urged people to take advantage of the Carter program and work from within the US for a full amnesty.
One factor leading resisters to remain in exile was the poor advertising of the details of the Carter relief program (1977) in the aftermath of what was regarded as a highly discriminatory and defective Ford Clemency program (1974).
Congress refused to fund the Carter program fully. Both relief programs had conditions many exiles found hard to accept. Finally, the period of time under which one could apply for relief was sharply limited.
Unfortunately, universal and unconditional amnesty was never granted to military resisters. It is estimated that only 28,420 Vietnam Era military resisters received any form of legal relief – many of them received bad discharges – while another 550,000 never received any form of relief. To place this figure in perspective, the number of ex-GI's who never received legal relief roughly equals the number of soldiers who participated in the Gulf War of 1990 and 1991. This is another way in which our country has yet to fully come to terms with the legacy of the war in Southeast Asia. 
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