[Budget of the United States Government]
[V. Preparing For the 21st Century]
[11. Supporting the World’s Strongest Military Force]
[From the U.S. Government Publishing Office, www.gpo.gov]
11. SUPPORTING THE WORLD'S STRONGEST MILITARY FORCE
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Still, this remains a dangerous world and peace can never be a time for rest, for maintaining it requires
constant vigilance.... When we give our Armed Forces a mission, there is a principle we must keep in mind. We
should never ask them to do what they are not equipped to do, but always equip them to do what we ask them to
do.... As Commander in Chief, I have no higher duty than this: to make certain our troops can do their job while
maintaining their readiness to defend our country and defeat any adversary; to ensure they can deploy far from
home, knowing their loved ones have the quality of life they deserve.
President Clinton
November 1998
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The U.S. military is the backbone of the Nation's national security
strategy. In this post-Cold War era, the military's responsibilities
have changed, but not diminished. If anything, they have become more
complex and diverse. As the global leader of the post-Cold War era, the
U.S. must maintain its military readiness and technological advantage to
ensure that this leadership role continues. We, as a Nation, must
provide our forces with the necessary support to carry out such a
critical role.
To ensure that America's Armed Forces are fully prepared to meet the
challenges of the next century, the President is proposing in the budget
a long-term, sustained increase in defense spending. In keeping with his
pledge to work with military leaders to address the Nation's defense
needs, the President has determined that additional resources are
necessary to maintain military readiness; procure modern and effective
weapons systems; and provide appropriate pay, benefits and quality of
life improvements for our service men and women. This multiple-year plan
provides robust funding for such readiness components as unit operations
and training, spare parts, recruiting and retention programs, joint
exercises, equipment maintenance, and base operations.
The Department of Defense's (DOD's) Quadrennial Defense Review (QDR)
embraces a defense strategy which includes shaping the international
strategic environment and responding to near-term events, crises and
threats while also preparing for future threats. The QDR is the
strategic plan to ensure that our forces remain capable of executing the
full range of global military operations into the next century. It
identifies four major threats to U.S. security:
regional dangers, such as cross-border aggression, as well as
military challenges created by failed states, as in the case
of Yugoslavia;
the proliferation of the technology of weapons of mass
destruction (WMD);
transnational dangers, such as the spread of illegal drugs,
organized crime, terrorism, uncontrolled refugee migration,
and threats to the environment; and
direct attacks on the U.S. homeland from intercontinental
ballistic missiles or other weapons of mass destruction.
The budget fully supports the force levels, readiness, and weapons
modernization goals of the QDR, thus enabling DOD to meet these
demanding challenges (see Table 11-1). In particular, it provides
additional resources for three priority areas: enhancing the military's
abilities to respond to crises; building for the future with weapons
modernization programs; and taking care of military personnel and their
families by enhancing their quality of life.
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Table 11-1. MILITARY FORCE TRENDS
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Cold War
(1990) 2000 QDR Target
------------------------------------------------------------------------
Army:
Divisions (active/National
Guard)..................... 18/10 10 \1\/ 8
\2\ 10 \1\/ 8
\2\
Air Force:
Fighter wings (active/
reserve)................... 24/12 13/7 12+/8
Navy:
Aircraft carriers (active/
reserve)................... 15/1 11/1 11/1
Air wings (active/reserve). 13/2 10/1 10/1
Total battle force ships
\3\........................ 546 314 306
Marine Corps:
Divisions (active/reserve). 3/1 3/1 3/1
Wings (active/reserve)..... 3/1 3/1 3/1
Strategic nuclear forces:
Intercontinental ballistic
missiles/warheads.......... 1,000/2,450 550/2,000 500/500 \4\
Ballistic missile
submarines................. 31 18 14 \4\
Sea-launched ballistic
missiles/warheads.......... 568/4,864 432/3,456 336/not over
1,750 \4\
Heavy bombers.............. 324 90 \5\ 92 \5\
Military personnel:
Active..................... 2,069,000 1,384,806 1,363,000
Selected reserve........... 1,128,000 865,298 835,000
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\1\ Plus two armored cavalry regiments.
\2\ Plus 18 separate brigades (15 of which are at enhanced readiness
levels).
\3\ Includes active and reserve ships of the following types: aircraft
carriers, surface combatants, submarines, amphibious warfare ships,
mine warfare ships, combat logistics force, and other support ships.
\4\ Upon entry-into-force of START II.
\5\ Does not include 95 B-1 bombers dedicated to conventional missions.
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Enhancing Military Readiness and Operations: American forces must be
ready and able to respond and deploy rapidly to the full spectrum of
crises. They must prevail when committed--whether in a major theater
war, smaller-scale contingency mission, or counterterrorism operation.
Specifically, the budget increases funding for readiness programs to
ensure that the military sustains a high level of preparedness to carry
out all of its missions and that flying-hour programs, recruiting
efforts, manning levels, and unit training programs are fully funded.
Building for the Future With Weapons Systems Modernization: The U.S.
military must be the best equipped in the world--it must have leading
edge technologies and well-maintained equipment in sufficient numbers to
meet mission goals. The budget increases funding to accelerate weapon
systems modernization programs. It supports procurement of new warships,
tactical fighter aircraft, and Army and Marine Corps helicopters as well
as upgrades to Army ground combat vehicles. The budget also provides
funding for research and development efforts that will lead to
procurement of next generation weapon systems incorporating the most
advanced technologies.
Taking Care of Military Personnel and Their Families: If the military
is to attract and keep the best and the brightest, it must offer pay,
retirement, and other quality of life benefits that compare favorably
with the private sector and Government civil service, and that also
recognize the often stressful circumstances of military life, such as
long separations from family and dangerous missions. The budget enhances
quality of life for military personnel through significant across-the-
board pay increases, targeted pay raises with greater
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rewards for performance, and retirement benefit improvements. Housing
and educational benefits are also improved.
Nevertheless, we do not have unlimited resources with which to
achieve these objectives. Rather, we must pursue them carefully within
the constraints of available resources by utilizing efficient management
and business practices to do more with less. The budget fully supports
legislative and organizational management proposals, initiated under
Secretary Cohen's Defense Reform Initiative (DRI), including proposals
for additional base closures and competitive sourcing efforts.
Providing the Necessary Funding
For DOD, the budget proposes discretionary funding of $268.2 billion
in budget authority and $261.8 billion in outlays for 2000 (see Table
11-2). This represents an increase of $4 billion over the 2000 level
assumed in the 1999 Budget. After accounting for lower inflation and
other budgetary savings, a total of $12 billion in additional program
funding is provided for DOD, compared to the level assumed in last
year's request.
Over the five-year period 2000-2004, funding for the Defense
Department will total $1,453 billion, an increase of $64 billion above
the levels assumed for these years in the 1999 Budget. Combined with
savings from lower inflation and other budgetary and technical
adjustments, a total of $83 billion in additional program funding will
be made available to the Department to meet critical readiness,
personnel, and modernization needs. This figure grows to an increase of
about $110 billion over the six-year Future Years Defense Program. To
reach these program levels, the Administration proposes to increase the
allocation for defense when Social Security reform is enacted.
Enhancing Military Readiness and Operations
Ensuring Adequate Resources: Maintaining high levels of readiness is
our top defense priority. To allow U.S. forces to accomplish a wide
range of missions, the budget provides robust funding for key operations
and support programs, including unit operations and training activities,
spare parts, recruiting and retention programs, joint exercises,
equipment maintenance, and base operations. In addition, DOD continues
to monitor its current and future military readiness through the Senior
Readiness Oversight Council, the Joint Monthly Readiness Review process,
and the Expanded Quarterly Readiness Report to Congress. The budget
provides a $4 billion increase in 2000 and more than $20 billion over
the next five years for selected readiness programs, including
readiness-related procurement. This funding will ensure that the
Services attain their traditional high standard of readiness by enabling
them to meet their required training standards, maintain their equipment
in top condition, recruit and retain quality personnel, and procure
sufficient spare parts and other equipment.
Ensuring Successful Contingency Operations: The budget proposes
funding for ongoing contingency operations--limited military operations
in conjunction with our allies--in Southwest Asia and Bosnia in the
Overseas Contingency Operations Transfer Fund and military personnel
accounts. For 2000, this amount is $2.9 billion. Congressional approval
will allow DOD to avoid redirecting funds from standard operations and
maintenance pro
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Table 11-2. DEPARTMENT OF DEFENSE FUNDING LEVELS
(In billions of dollars)
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Proposed
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2000 2001 2002 2003 2004
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Defense Discretionary Program Level:
Budget authority................................................. 268.2 287.4 289.3 299.7 308.5
Outlays.......................................................... 261.8 269.4 279.3 291.2 300.9
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grams to contingency operations, thereby helping to maintain the
readiness of our force.
Shaping the Strategic Landscape Through Arms Control and Cooperative
Threat Reduction: The President remains strongly committed to reducing
the threat from weapons of mass destruction by implementing verifiable
arms control agreements. To that end, the Strategic Arms Reduction
Treaty (START) process remains a high priority objective of U.S.
foreign, security, and non-proliferation policy. As START I
implementation continues, the Administration continues to work hard to
bring the START II treaty into force and, pending Russian ratification
of START II, is preparing to discuss further arms reductions. In
addition, implementation of the Chemical Weapons Convention is underway
and the Administration will work with the Senate to ratify the
Comprehensive Test Ban Treaty (CTBT).
Furthermore, the Administration proposes significant increases to
threat reduction assistance programs in Russia and other states of the
former Soviet Union that mitigate the danger posed by WMD, the
proliferation of their loosely guarded fissile material components, and
the scientific expertise behind them. These increases will strengthen
the ongoing threat reduction effort by supplementing DOD's Cooperative
Threat Reduction program (also called the Nunn-Lugar Program) and
programs managed by the Departments of Energy and State. The budget
proposes $1.0 billion--$285 million more than 1999--for this
comprehensive and aggressive program in 2000. The DOD portion of this
effort totals $476 million.
Countering Asymmetric Threats: The President's request increases
funding to enhance the Department's capability to counter asymmetric
threats such as terrorism, proliferation and use of WMD, and threats to
our critical infrastructure. Adversaries will increasingly rely on these
unconventional strategies to offset U.S. military superiority. The
budget provides over $5 billion for programs to combat terrorism.
Enhancements include improved awareness and training programs, worldwide
vulnerability assessments, implementation of prescriptive standards for
force protection, and increased resources for offensive means to deter,
defeat, and respond to terrorist attacks wherever they may occur.
Funding of $900 million for counterproliferation and defense against WMD
programs improves our ability to locate and destroy chemical and
biological weapons before they can be used and to defend against and
manage the consequences of a WMD attack. The budget also proposes
increased resources to protect critical infrastructures that support
national security requirements, bringing this funding to over $1
billion.
Executing Counter-drug Programs: DOD participates fully in the
National Drug Control Strategy to stem the flow of illegal drugs into
the country and reduce demand. DOD conducts its primary missions--to
eliminate drug supply sources and prevent drugs from entering the
country--by detecting and monitoring drugs moving to the United States,
supporting domestic and foreign law enforcement, collecting and
analyzing foreign intelligence, and supporting the activities of the
National Guard under State counter-drug programs. DOD continues to fight
illegal drug use in the military through prevention, education, and
testing. The budget proposes $788 million for DOD's counter-drug
efforts.
Providing Humanitarian and Disaster Assistance: Given its global
presence and unique capabilities, America's military is often asked to
respond to international disasters and human tragedies. Such responses
may come at the direction of U.S. commanders, who can respond quickly to
regional problems, or at the President's direction when he determines
that DOD is the appropriate agency to provide U.S. support. The proposed
$55.8 million for the Overseas Humanitarian, Disaster, and Civic Aid
account will allow DOD to provide critical humanitarian and disaster
assistance to support U.S. interests without cutting into the resources
available for readiness. Also, $34.4 million will be available in 2000
to support the President's Humanitarian Demining Program.
Maintaining the Nation's Nuclear Deterrent: Strategic forces remain
an essential component of our military capability. Within treaty-imposed
limits, their primary mission is to deter nuclear attack against the
United States and its allies, and to convince potential adver
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saries that they will never gain a nuclear advantage against our Nation.
The budget proposes $4.5 billion for DOE to maintain confidence in
the safety, reliability, and performance of the nuclear weapons
stockpile. DOE will perform this mission without underground nuclear
testing in compliance with the proposed CTBT. To make up for the loss of
testing, DOE plans to build new non-nuclear test facilities while
upgrading the computer models it uses to predict the performance of
nuclear weapons. The budget includes: $248 million to continue
construction of the National Ignition Facility at the Lawrence Livermore
National Laboratory; $543 million, for the Advanced Strategic Computing
Initiative; and $170 million for a new source of tritium to maintain our
nuclear weapons stockpile.
Building for the Future With Weapons Systems Modernization
Addressing the Modernization Imperative: Modernizing weapons systems
is critical to the future readiness of U.S. military forces. In the
1970s and 1980s, the Nation invested heavily in a wide range of
equipment--including fighter aircraft, attack submarines, surface ships,
helicopters, and armored vehicles--which enabled us to reduce weapons
purchases and total defense spending in the early 1990s as we cut the
size of U.S. forces after the Cold War. But the equipment bought in
those prior two decades, the backbone of today's forces, is aging and
must be replaced. When complex military equipment ages, it becomes more
costly and more difficult to maintain and operate. More importantly, the
decisive military advantage that new, superior equipment provides may
help reduce casualties and facilitate a quick, successful resolution of
conflict. For these reasons, weapons system modernization continues to
be a high Administration priority.
The QDR determined that the Nation needs roughly $60 billion per year
in weapons procurement funding, beginning in 2001, to modernize U.S.
forces and maintain the effectiveness of equipment already in the force.
The budget provides $53 billion for the 2000 procurement program, $4
billion more than the 1999 level, and achieves the $60 billion goal in
2001. In addition, the budget provides $7 billion to fund basic and
applied research and development of advanced technologies that will lay
the groundwork for procuring next-generation systems. These R&D
activities and the educational activities they support are also vital to
the Nation's strength in engineering, mathematics, and computer science.
Modernizing Ground Forces: In the near term, Army modernization
emphasizes digitization of battlefield systems (discussed later in this
chapter) and upgrades to existing combat equipment so that our ground
forces will have a clear advantage over potential opponents. The Army
will extend the useful life and improve battlefield performance of
primary combat systems by integrating new navigation and data transfer
technology, improving weapons and targeting systems, and augmenting
vehicle protection systems. For example, the budget proposes $652
million to upgrade the Abrams tank, $352 million to improve the Bradley
Fighting Vehicle, and $787 million to procure Apache Longbow
helicopters.
The centerpiece of the Marine Corps modernization program is the V-22
tilt-rotor aircraft that will replace the CH-46 and CH-53A/D helicopters
now used to transport troops and equipment. The budget provides $951
million to procure 10 V-22s which will have increased range, payload,
and speed to significantly enhance Marine Corps tactical operations.
A sometimes overlooked, but no less important, part of ground force
modernization is the replacement of aging combat support systems such as
trucks. Both the Army and the Marine Corps are replacing their fleets of
medium trucks by procuring new models.
In the long term, R&D programs aim to take advantage of leaps in
technology to enhance mission-essential equipment. The budget funds
critical development programs which will lead to procurement in the
middle of the next decade, including $433 million for the Army's
Comanche helicopter for armed reconnaissance, $286 million for the
Crusader self-propelled artillery howitzer, and $93 million for the
Marines' Advanced Amphibious Assault Vehicle.
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Modernizing Naval Forces: The budget continues procurement of several
ship classes, including $2.7 billion for three DDG-51 Aegis destroyers,
and $1.5 billion for two LPD-17 Amphibious Transport Dock Ships. The
budget also provides $440 million to procure the first ADC-X, a new
class of combat logistics ships. The Navy budget continues advance
funding for the major refueling overhaul of the second Nimitz-class
nuclear aircraft carrier to enable the ship to stay in service another
25 years. The Navy also will procure long-lead material to construct the
tenth Nimitz-class nuclear aircraft carrier as well as material for the
next Virginia-class submarine. In addition, the Navy is undertaking
long-term development efforts to design next generation destroyers and
aircraft carriers, to be procured in the middle of the next decade. Both
of these new ship classes will operate at lower costs than their
predecessors by taking advantage of innovative technologies.
Along with new ships, the Navy will continue to develop and procure
highly-capable weapons for a number of missions. For defense against
missiles and aircraft, the budget continues procurement of Standard
Missiles. The budget also supports the development of the Tactical
Tomahawk missile, an improvement to the current Block III version of
this ship-launched land attack weapon. The budget supports investments
in ship self-defense to provide close anti-air defense for surface
ships, and in gun and missile technologies to improve the Navy's
delivery of fire support for Marines and soldiers ashore.
Modernizing Air Forces: For the United States to maintain its ability
to dominate battles in the next century, substantial investment in new
tactical combat aircraft is necessary. The budget supports three new
aircraft programs. First, it provides $2.9 billion to start full-rate
production of 36 F/A-18E/F Super Hornets, which will become the Navy's
principal fighter/attack aircraft in the next decade. Second, it funds
the procurement of the first production lot of six F-22 Raptors, the Air
Force's new air superiority fighter, at a cost of $1.9 billion. Full-
rate production of the F-22 should be achieved early in the next
century. Third, $477 million is provided to continue R&D of new
materials and manufacturing processes for the Joint Strike Fighter
(JSF). The JSF is DOD's largest, most ambitious tactical aircraft
program and is designed to produce a family of aircraft for the Air
Force, Navy, and Marine Corps. It is scheduled to start replacing about
3,000 aging aircraft (F-16s, F/A-18C/Ds and AV-8Bs) in 2005.
Joint missile procurement programs include the Advanced Medium Range
Air-to-Air Missile and the Joint Standoff Weapon. Procurement continues
for the Joint Direct Attack Munition--an inexpensive guidance kit which
transforms unguided bombs into precision guided munitions. In addition,
the Navy's program to upgrade existing Harpoon missiles into Standoff
Land Attack Missiles--Expanded Response continues. The budget also funds
R&D into various munitions programs of the future, such as the AIM-9X
Sidewinder missile and the Joint Air-to-Surface Standoff Missile.
DOD and its industry partners are developing Evolved Expendable
Launch Vehicles to provide our military more efficient, economical
access to space and ensure a competitive U.S. space launch industry able
to provide continued access to space well into the 21st Century.
Developing Technologies to Defend Against Strategic Ballistic
Missiles: The budget proposes $837 million in 2000 to continue
developing a National Missile Defense system to protect the United
States from a limited ballistic missile attack. This is a very ambitious
and technically challenging program, but if the United States decides in
2000 to pursue deployment, the budget will enable the Administration to
deploy an effective system in 2005. The Administration's long-range
defense plan includes about $9.0 billion in 2000-2005 to cover
development, procurement, and construction costs.
Developing and Deploying Defenses Against Theater Ballistic Missiles:
The budget proposes $2.9 billion to develop and deploy systems to defend
against missiles that directly threaten U.S. and allied forces deployed
to specific theaters. While the funding is primarily for research and
development of advanced systems to meet future threats, it includes $301
million to procure an advanced version of the Patriot missile and $55
million for the Navy's Area Theater Ballistic Missile
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Defense system which will be deployed in the near term.
Establishing Information Dominance: America's preeminence in using
information on the battlefield has helped us establish the world's
strongest military. The commander who can better observe and analyze the
battle while disseminating highly accurate information to his forces has
a powerful advantage over the adversary. Joint Vision 2010, DOD's vision
for the future, focuses on the continued development of command,
control, communications, computers, intelligence, surveillance, and
reconnaissance capabilities. This effort will enhance the accuracy of
weapons and allow more effective use of forces. The Army plans to
``digitize'' a division by the year 2000--that is, equip it so that
accurate, timely information about the battle can be transferred rapidly
among U.S. forces. The budget includes funding for Navy and Air Force
automated command and control systems and land and space-based
communications networks. It also includes funds for battlefield
surveillance assets, such as unmanned aerial vehicles for all military
departments. DOD, with the Department of Transportation, is also funding
upgrades to the Global Positioning System navigation satellites to allow
the United States to maintain a military advantage while providing
enhanced navigation capabilities to civilian users worldwide. The budget
provides funds to purchase national sensors (e.g., satellites) to help
our leaders better anticipate, monitor, and respond to crises. These
assets will play a key role in both military operations and national
security decision-making, and will enable commanders to direct the
battle and respond to threats more effectively.
Taking Care of Military Personnel and Their Families
Enhancing Pay and Compensation: The Administration is strongly
committed to enhancing the quality of life of troops and their families,
which is essential for retaining and recruiting high-quality personnel.
The budget proposes a 4.4 percent pay raise, effective January 2000, and
targeted pay raises for selected grades, to help ensure that military
compensation remains competitive with private sector wages. In addition,
the budget contains a proposal to enhance military retirement benefits.
Improving Other Quality of Life Programs: The budget includes
substantial funding to improve the quality of health care, military
housing, and child care programs. Enhancements to such family support
programs can help reduce the stresses associated with military life,
such as frequent family separations. The budget also increases funding
for educational initiatives that will enhance learning opportunities for
military and eligible civilian dependents worldwide by providing a full-
day kindergarten program, reducing the pupil-teacher ratio to 18:1 in
grades 1-3, and piloting a summer school program. These initiatives are
commensurate with the President's educational programs designed to
enhance learning opportunities in the early years.
Supporting Our Nation's Youth: The National Guard's Youth ChalleNGe
program, authorized under U.S.C. Title 32, is a civilian youth
opportunity program that provides military-based training, including
supervised work experience in community service and conservation
projects, to young people who have left secondary school prior to
graduation. This activity provides life skills and experiences that
enhance the employment potential of those participating in the program.
For 2000, the budget sustains funding for this program at last year's
level of $62 million.
Managing Our Defense Resources More Efficiently
Pursuing Competitive Sourcing: DOD is implementing an aggressive
competitive sourcing program for its infrastructure and support
activities, including base utility services, general base operations,
family housing, logistics support, training, property maintenance, and
distribution depots. Competitive sourcing will produce estimated savings
of $6 billion from 1998 to 2003, with savings thereafter of at least $2
billion annually.
Eliminating Excess Infrastructure: DOD has facilities that it no
longer needs because infrastructure reductions have lagged behind force
reductions. Excess facilities drain resources that could otherwise go to
modernization, readiness, and quality of life. To address the problem,
DOD will send legislation to Congress to seek two more rounds of base
closures and realignments in 2001 and 2005. In addi
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tion, the budget supports an aggressive program to demolish unneeded
infrastructure located on remaining bases.
Improving Financial Management: DOD is continuing to implement the
most comprehensive reform of financial systems in its history. Both
finance and accounting systems are being consolidated and overhauled.
Internal controls are being strengthened to reduce and then eliminate
``problem disbursements,'' reform the contractor payment process,
improve computer security and fraud detection, and transform its
financial statements. For example, DOD has cut the category known as
problem disbursements from a total of $34.3 billion in June 1993 to $8.1
billion in August 1998. Such steps will provide managers with more
accurate and timely financial information.
Streamlining the Civilian Work Force: Since 1993, DOD has cut its
work force by nearly 29 percent, or about 269,000 positions, and it will
continue to streamline its civilian work force while maintaining
quality. As the QDR and DRI recommended, DOD plans to implement further
reductions of 60,000 full-time-equivalent civilian positions. During
this drawdown, DOD will provide transition assistance for affected
employees.
Implementing the Information Technology Management Reform Act
(ITMRA): Also known as the Clinger-Cohen Act, ITMRA is designed to help
agencies improve mission performance by effectively using information
technology. One example is the Global Command and Control System, which
supports U.S. forces by improving their ability to process and transfer
critical military information quickly and accurately. The Secretary of
Defense has established a DOD Chief Information Officer Council to
manage DOD's annual $26 billion information technology and command,
control, and communication budget and provide advice on ITMRA-related
issues. In addition, DOD is continuing to restructure its work processes
while applying modern technologies to maximize the performance of
information systems, achieve a significant return on investments, cut
costs, and produce measurable results.