Federal Budget: Agency Obligations by Budget Function and Object 
Classification for Fiscal Year 2003 (25-JUN-04, GAO-04-834).	 
                                                                 
Members of the Congress and governmental experts have expressed  
repeated interest in examining the overlapping and fragmented	 
functions and activities of the federal government. As a	 
first-level look at potential overlap and fragmentation, the	 
Chairwoman, Subcommittee on Civil Service and Agency		 
Organization, House Committee on Government Reform, asked GAO to 
present information on which federal agencies spend funds in	 
which federal mission areas. This report examines federal	 
spending through two commonly used analytical approaches--budget 
functions and object classifications.				 
-------------------------Indexing Terms------------------------- 
REPORTNUM:   GAO-04-834 					        
    ACCNO:   A10660						        
  TITLE:     Federal Budget: Agency Obligations by Budget Function and
Object Classification for Fiscal Year 2003			 
     DATE:   06/25/2004 
  SUBJECT:   Audits						 
	     Budget functions					 
	     Budget obligations 				 
	     Budget outlays					 
	     Data collection					 
	     Federal agencies					 
	     Agency missions					 

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GAO-04-834

United States General Accounting Office 

                                      GAO
	Report to the Chairwoman, Subcommittee on Civil Service and Agency Organization, Committee on Government Reform, House of Representatives 

June 2004 

FEDERAL BUDGET 

Agency Obligations by Budget Function and Object Classification for Fiscal Year 2003 

                                       a

GAO-04-834

Highlights of GAO-04-834, a report to the Chairwoman, Subcommittee on
Civil Service and Agency Organization, Committee on Government Reform,
House of Representatives

Members of the Congress and governmental experts have expressed repeated
interest in examining the overlapping and fragmented functions and
activities of the federal government. As a first-level look at potential
overlap and fragmentation, the Chairwoman, Subcommittee on Civil Service
and Agency Organization, House Committee on Government Reform, asked GAO
to present information on which federal agencies spend funds in which
federal mission areas. This report examines federal spending through two
commonly used analytical approaches-budget functions and object
classifications.

June 2004

FEDERAL BUDGET

Agency Obligations by Budget Function and Object Classification for Fiscal Year
2003

This report, and its accompanying e-supplement-available on GAO's Web
site-present quantitative data on fiscal year 2003 obligations from
several perspectives and levels of detail that can be used to examine
spending patterns reported against federal mission areas (budget
functions). The federal budget is divided into 20 functions, that
combined, provide a comprehensive basis for analysis, offer a window into
potential areas of overlap and fragmentation, and serve as a starting
point for discussions about government restructuring.

Most executive branch agencies address more than one mission area; in
fact, most made obligations in 2003 to three or more budget functions.
Focusing on the missions of government, rather than federal organizations,
produces a similarly intricate picture. Excluding Social Security,
Medicare, Net Interest, and two functions with no data (allowances and
undistributed offsetting receipts), 12 of the remaining 15 budget
functions are addressed by five or more executive branch departments and
major agencies. Sometimes there is a "match" between a function and a
department-for example, the Department of Transportation is associated
almost exclusively with the Transportation function (400) and over 80
percent of spending within the Transportation function (400) is by the
Department of Transportation. Sometimes, however, there is an imbalance
between the importance of an agency in a mission area and the importance
of the mission area within the department. For example, while almost all
obligations in the Agriculture function (350) are by the USDA, that
function represents only about 41 percent of the spending by the
department. Over 40 percent of USDA's obligations are for the Income
Security function (600).

In addition, this report provides object classification information as a
resource for helping to shape and consider options once there is evidence
to suggest that restructuring is warranted. Organized by major types of
expenditure, an object class analysis shows how agencies spend funds to
deliver federal programs and is a shorthand way of identifying whether
these services are provided primarily through grants and direct payments
to qualified beneficiaries, contracts, or directly by federal employees.

The e-supplement contains tabular data that provide additional layers of
information by budget subfunctions. This allows a user to "drill down" as
needed to inquire into any particular spending pattern of interest within
a function, subfunction, object class, or agency. These tables are not
available in a hard copy version. If you would like to view the tables,
please click on the following link (GAO-04-884SP) or access on the
Internet at www.gao.gov and enter the report number.

www.gao.gov/cgi-bin/getrpt?GAO-04-834.

To view the full product, including the scope and methodology, click on
the link above. For more information, contact Susan J. Irving at (202)
512-9142 or [email protected].

Contents

Letter 1 Scope and Methodology 6 Background 7 

Appendixes 

                                      Appendix I: Appendix II: Appendix III: 

Appendix IV: 

Budget Function Classification System 12 

Object Classification System 16 

Budget Functions by Agency and Object Class 18 National Defense (050) 18 International Affairs (150) 19 General Science, Space, and Technology (250) 20 Energy (270) 21 Natural Resources and Environment (300) 22 Agriculture (350) 23 Commerce and Housing Credit (370) 24 Transportation (400) 25 Community and Regional Development (450) 26 Education, Training, Employment, and Social Services (500) 27 Health (550) 28 Medicare (570) 29 Income Security (600) 30 Income Support: Retirement and Disability 

* A subcomponent of Income Security (600) 31 Other Income Support 

* A subcomponent of Income Security (600) 32 Social Security (650) 33 Veterans Benefits and Services (700) 34 Administration of Justice (750) 35 General Government (800) 36 Net Interest (900) 37 

Agencies by Budget Subfunction and Object Class 38 

Department of Agriculture Department of Commerce Department of Defense Department of Education Department of Energy Department of Health and Human Services Department of Homeland Security Department of Housing and Urban Development 38 39 40 41 42 43 44 45 

                                    Contents

Department of the Interior
Department of Justice 
Department of Labor
Department of State 
Department of Transportation
Department of the Treasury
Department of Veterans Affairs
Environmental Protection Agency
Executive Office of the President
General Services Administration 
National Aeronautics and Space Administration 
National Science Foundation 
Nuclear Regulatory Commission 
Office of Personnel Management 
Postal Service 
Small Business Administration 
Social Security Administration 
Independent Agencies 

Legislative Branch 
Judicial Branch 

46 47 48 49 50 51 52 53 54 55 56 57 58 59 60 61 62 63 64 65 

Appendix V:
   	Agencies and Bureaus Obligating $2 Billion or More in Fiscal Year 2003 in Selected Object Classes 66 

Appendix VI: Glossary of Key Terms 71 

  Tables Table 1: 

Table 2: Table 3: 

Table 4: 

Table 5: Table 6: 

Description of the Budget Function Classification 
System 12
Description of the Object Classification System 16
Personnel-Agencies and Bureaus Obligating $2 Billion or
More in the Personal Compensation and Benefits Object
Class 66
Travel, Rent, Printing and Supplies-Agencies and 
Bureaus Obligating 
$2 Billion or More in the Travel, Rent, Printing, and 
Supplies Object Class 67
Other Contractual Services-Agencies and Bureaus
Obligating $2 Billion or More in the Other Contractual
Services Object Class 67
Acquisition of Assets-Agencies and Bureaus Obligating 
$2 Billion or More in the Acquisition of Assets Object
Class 68

                                    Contents

Table 7:
   	Grants, Insurance Claims and Indemnities, Interest and Dividends-Agencies and Bureaus Obligating $2 Billion or More in the Grants, Insurance Claims and Indemnities, Interest and Dividends Object Class 

  Figures Figure 1: 

Figure 2: 

Figure 3: 

Figure 4: 

Figure 5: 

Figure 6: 

Figure 7: 

Figure 8: Figure 9: Fiscal Year 2003 Spending Patterns by Agency and Function Fiscal Year 2003 National Defense (050) Obligations by Agency Fiscal Year 2003 National Defense (050) Obligations by Object Class Fiscal Year 2003 International Affairs (150) Obligations by Agency Fiscal Year 2003 International Affairs (150) Obligations by Object Class Fiscal Year 2003 General Science, Space, and Technology (250) Obligations by Agency Fiscal Year 2003 General Science, Space, and Technology (250) Obligations by Object Class Fiscal Year 2003 Energy (270) Obligations by Agency Fiscal Year 2003 Energy (270) Obligations by Object Class 

Figure 10: Fiscal Year 2003 Natural Resources and Environment (300) Obligations by Agency 

Figure 11: Fiscal Year 2003 Natural Resources and Environment (300) Obligations by Object Class 

Figure 12: Fiscal Year 2003 Agriculture (350) Obligations by Agency 

Figure 13: Fiscal Year 2003 Agriculture (350) Obligations by Object Class 

Figure 14: Fiscal Year 2003 Commerce and Housing Credit (370) Obligations by Agency 

Figure 15: Fiscal Year 2003 Commerce and Housing Credit (370) Obligations by Object Class 

Figure 16: Fiscal Year 2003 Transportation (400) Obligations by Agency 

Figure 17: Fiscal Year 2003 Transportation (400) Obligations by Object Class 

Figure 18: Fiscal Year 2003 Community and Regional Development (450) Obligations by Agency 

Figure 19: Fiscal Year 2003 Community and Regional Development (450) Obligations by Object Class 

                                       3 

                                      18 

                                      18 

                                      19 

                                      19 

                                      20 

                                     20 21 

                                      21 

                                      22 

                                      22 

                                      23 

                                      23 

                                      24 

                                      24 

                                      25 

                                      25 

                                      26 

                                      26 

Contents

Figure 20: Fiscal Year 2003 Education, Training, Employment, and 
Social Services (500) Obligations by Agency 27
Figure 21: Fiscal Year 2003 Education, Training, Employment, and 

Social Services (500) Obligations by Object Class 27
Figure 22: Fiscal Year 2003 Health (550) Obligations by Agency 28
Figure 23: Fiscal Year 2003 Health (550) Obligations by Object 

Class 28
Figure 24: Fiscal Year 2003 Medicare (570) Obligations by 
Agency 29
Figure 25: Fiscal Year 2003 Medicare (570) Obligations by Object 
Class 29
Figure 26: Fiscal Year 2003 Income Security (600) Obligations by 
Agency 30
Figure 27: Fiscal Year 2003 Income Security (600) Obligations by 
Object Class 30
Figure 28: Fiscal Year 2003 Income Support: Retirement and 
Disability Obligations by Agency 31
Figure 29: Fiscal Year 2003 Income Support: Retirement and 
Disability Obligations by Object Class 31
Figure 30: Fiscal Year 2003 Other Income Support Obligations by 
Agency 32
Figure 31: Fiscal Year 2003 Other Income Support Obligations by 
Object Class 32
Figure 32: Fiscal Year 2003 Social Security (650) Obligations by 
Agency 33
Figure 33: Fiscal Year 2003 Social Security (650) Obligations by 
Object Class 33
Figure 34: Fiscal Year 2003 Veterans Benefits and Services (700) 
Obligations by Agency 34
Figure 35: Fiscal Year 2003 Veterans Benefits and Services (700) 
Obligations by Object Class 34
Figure 36: Fiscal Year 2003 Administration of Justice (750) 
Obligations by Agency 35
Figure 37: Fiscal Year 2003 Administration of Justice (750) 
Obligations by Object Class 35
Figure 38: Fiscal Year 2003 General Government (800) Obligations
by Agency 36
Figure 39: Fiscal Year 2003 General Government (800) Obligations
by Object Class 36
Figure 40: Fiscal Year 2003 Net Interest (900) Obligations by
Agency 37

Contents

Figure 41: Fiscal Year 2003 Net Interest (900) Obligations by Object
Class 37
Figure 42: Fiscal Year 2003 Department of Agriculture Obligations 
by Subfunction 38
Figure 43: Fiscal Year 2003 Department of Agriculture Obligations 
by Object Class 38
Figure 44: Fiscal Year 2003 Department of Commerce Obligations by
Subfunction 39
Figure 45: Fiscal Year 2003 Department of Commerce Obligations by
Object Class 39
Figure 46: Fiscal Year 2003 Department of Defense Obligations by 
Subfunction 40
Figure 47: Fiscal Year 2003 Department of Defense Obligations by 
Object Class 40
Figure 48: Fiscal Year 2003 Department of Education Obligations by 
Subfunction 41
Figure 49: Fiscal Year 2003 Department of Education Obligations by 
Object Class 41
Figure 50: Fiscal Year 2003 Department of Energy Obligations by 
Subfunction 42
Figure 51: Fiscal Year 2003 Department of Energy Obligations by 
Object Class 42
Figure 52: Fiscal Year 2003 Department of Health and Human 
Services Obligations by Subfunction 43
Figure 53: Fiscal Year 2003 Department of Health and Human 
Services Obligations by Object Class 43
Figure 54: Fiscal Year 2003 Department of Homeland Security
Obligations by Subfunction 44
Figure 55: Fiscal Year 2003 Department of Homeland Security
Obligations by Object Class 44
Figure 56: Fiscal Year 2003 Department of Housing and Urban 
Development Obligations by Subfunction 45
Figure 57: Fiscal Year 2003 Department of Housing and Urban 
Development Obligations by Object Class 45
Figure 58: Fiscal Year 2003 Department of the Interior Obligations
by Subfunction 46
Figure 59: Fiscal Year 2003 Department of the Interior Obligations
by Object Class 46
Figure 60: Fiscal Year 2003 Department of Justice Obligations by
Subfunction 47
Figure 61: Fiscal Year 2003 Department of Justice Obligations by
Object Class 47

Contents

Figure 62: Fiscal Year 2003 Department of Labor Obligations by 
Subfunction 48
Figure 63: Fiscal Year 2003 Department of Labor Obligations by 
Object Class 48
Figure 64: Fiscal Year 2003 Department of State Obligations by 
Subfunction 49
Figure 65: Fiscal Year 2003 Department of State Obligations by 
Object Class 49
Figure 66: Fiscal Year 2003 Department of Transportation 
Obligations by Subfunction 50
Figure 67: Fiscal Year 2003 Department of Transportation 
Obligations by Object Class 50
Figure 68: Fiscal Year 2003 Department of the Treasury Obligations
by Subfunction 51
Figure 69: Fiscal Year 2003 Department of the Treasury Obligations
by Object Class 51
Figure 70: Fiscal Year 2003 Department of Veterans Affairs 
Obligations by Subfunction 52
Figure 71: Fiscal Year 2003 Department of Veterans Affairs 
Obligations by Object Class 52
Figure 72: Fiscal Year 2003 Environmental Protection Agency
Obligations by Subfunction 53
Figure 73: Fiscal Year 2003 Environmental Protection Agency
Obligations by Object Class 53
Figure 74: Fiscal Year 2003 Executive Office of the President 
Obligations by Subfunction 54
Figure 75: Fiscal Year 2003 Executive Office of the President 
Obligations by Object Class 54
Figure 76: Fiscal Year 2003 General Services Administration 
Obligations by Subfunction 55
Figure 77: Fiscal Year 2003 General Services Administration 
Obligations by Object Class 55
Figure 78: Fiscal Year 2003 National Aeronautics and Space 
Administration Obligations by Subfunction 56
Figure 79: Fiscal Year 2003 National Aeronautics and Space 
Administration Obligations by Object Class 56
Figure 80: Fiscal Year 2003 National Science Foundation Obligations 
by Subfunction 57
Figure 81: Fiscal Year 2003 National Science Foundation Obligations 
by Object Class 57
Figure 82: Fiscal Year 2003 Nuclear Regulatory Commission 
Obligations by Subfunction 58

Contents

Figure 83: Fiscal Year 2003 Nuclear Regulatory Commission 
Obligations by Object Class 58
Figure 84: Fiscal Year 2003 Office of Personnel Management 
Obligations by Subfunction 59
Figure 85: Fiscal Year 2003 Office of Personnel Management 
Obligations by Object Class 59
Figure 86: Fiscal Year 2003 Postal Service Obligations by 
Subfunction 60
Figure 87: Fiscal Year 2003 Postal Service Obligations by Object
Class 60
Figure 88: Fiscal Year 2003 Small Business Administration 
Obligations by Subfunction 61
Figure 89: Fiscal Year 2003 Small Business Administration 
Obligations by Object Class 61
Figure 90: Fiscal Year 2003 Social Security Administration 
Obligations by Subfunction 62
Figure 91: Fiscal Year 2003 Social Security Administration 
Obligations by Object Class 62
Figure 92: Fiscal Year 2003 Independent Agencies Obligations by 
Subfunction 63
Figure 93: Fiscal Year 2003 Independent Agencies Obligations by 
Object Class 63
Figure 94: Fiscal Year 2003 Legislative Branch Obligations by 
Subfunction 64
Figure 95: Fiscal Year 2003 Legislative Branch Obligations by Object
Class 64
Figure 96: Fiscal Year 2003 Judicial Branch Obligations by 
Subfunction 65
Figure 97: Fiscal Year 2003 Judicial Branch Obligations by Object
Class 65

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A

United States General Accounting Office 

Washington, D.C. 20548 

June 25, 2004

The Honorable Jo Ann Davis
Chairwoman, Subcommittee on Civil Service and Agency Organization
Committee on Government Reform
House of Representatives

Dear Madam Chairwoman:

If the federal government is to examine and rationalize overlap or 
fragmentation in its functions and activities, mapping which federal 
agencies spend funds in which federal mission areas provides a first-level
look at potential overlap and fragmentation. Although this type of analysis
cannot answer the question of whether there is inappropriate overlap or
fragmentation-nor indicate whether the overlap shown is duplicative, it
can help in the selection of areas for further investigation. Similarly,
knowing how agencies spend funds to implement their programs can also
provide an indication of the types of mechanism or means federal agencies 
use to deliver services, which is an important consideration in any 
restructuring proposal. 

As you requested, this letter examines federal spending through two
commonly used analytical approaches-budget functions and object
classifications. Budget functions provide a comprehensive way to examine 
federal spending by purpose-the "national need" the activity seeks to 
address-and broad mission areas. As such, budget functions are used in 
the Budget Resolution to set initial budget priorities.1 The basic purpose of
the budget functions-to summarize federal spending governmentwide-
has remained constant. The fact that the basic structure of the budget
functions has remained relatively stable allows us to examine the changing
priorities of federal spending over time. Alternatively, the object
classification system provides a comprehensive overview of how agencies
have obligated their funds based on the goods, services, or items 
purchased. It also is a shorthand way of understanding how agencies 
deliver services, which can help in considering restructuring options if

1 The resolution establishes, for the fiscal year beginning on October 1 of the year of the resolution, planning levels for the two following fiscal years and appropriate levels for the following: total federal revenues; the surplus or deficit in the budget; new budget authority, outlays, direct loan obligations, and primary loan guarantee commitments in total, and for each major functional category; the public debt; and Social Security outlays and revenues (2 U.S.C. S: 632). 

further analysis suggests that there is unnecessary overlap and fragmentation in an area. We have included object class information in this report primarily as an additional resource. 

Information on federal spending by budget function is summarized in figure 1 using end of fiscal year 2003 gross obligations.2 This figure shows that nearly all budget functions (mission areas) are spread across multiple agencies or departments.3 While only one executive branch agency, Social Security Administration, obligates funds to the Social Security function (650) (see also fig. 32), and almost all of the Agriculture function (350) (fig. 

12) consists of USDA obligations, 10 executive branch agencies obligate funds to the Income Security function (600) as well as several independent agencies. We see a similar pattern in that, most federal departments and agencies obligate funds in more than one budget function; they had programs and activities that addressed more than one mission area or area of "national need." There is variation, however, in the range of mission areas within a single department. For example, the Department of Veterans Affairs (VA), Postal Service, and the Nuclear Regulatory Commission (NRC), each obligated funds in only one budget function while the Department of Agriculture (USDA) obligated funds in nine functions. Sixteen executive departments (not including independent agencies) show obligations in three or more functions. 

2 Obligations reflect orders placed, contracts awarded, and other similar transactions during a fiscal year. As an expression of an agency's total financial commitments for a given period, gross obligations portray the relative size of an organization, without regard to the type of underlying budgetary resource or when resulting outlays may occur. When aggregated, however, gross obligations may overstate both department and governmentwide totals. For example, an agency's obligations may include services provided to another agency for which they will be reimbursed. When reimbursement is received, these funds can be used to incur new obligations as long as the budget authority has not expired. 

3 Eleven executive branch agencies (excluding independent agencies) obligate funds to the General Government function (800) which is not surprising since that function covers the general overhead cost of the federal government including activities such as central fiscal operations, personnel, property, and other services that cannot be reasonably classified in any other major function. 

      Figure 1: Fiscal Year 2003 Spending Patterns by Agency and Function

                                Executive Branch

            Judicial Branch                                                 2 
          Legislative Branch                                                7 
Number of agencies charging this      1        1     1   1 2      2 1    
               function                                                     
                  All                8 8 3 4 9 2 10 5 8 8 9 2 13 1 5 8 13 1 

                             Source: GAO analysis.

aTwo budget functions are not shown above, Allowances, because there are
no 2003 actual obligations, and Undistributed Offsetting Receipts, because
no obligations are charged to agencies.

Note: To view a complete listing of the independent agencies used for this
figure, please click on the following link (GAO-04-884SP) to GAO's
accompanying e-supplement or access on the Internet at www.gao.gov and
enter the report number.

When we compared agency obligations shown by budget function in fiscal
year 1995 to what is shown in table 1 we found that the pattern overall had changed little. However, while the table displays the number of departments charging obligations in each mission area and the number of
mission areas in which each department spends funds, the pie charts
shown in appendixes III and IV provide a richer story. It is in these pie charts that the relative importance of a mission area to an agency-and of
an agency to a mission area-can be seen. It also shows the different
delivery approaches used (grants and cash payments, federal personnel,
contracts). Some of the patterns disclosed by arraying spending by budget
function include:

o 	Most executive departments and agencies address more than one
mission area; in fact, most made obligations in 2003 to three or more budget functions. The next level of analysis-which can be seen in an accompanying e-supplement-would be to look below the department at agencies within departments and below the function to subfunctions. The picture would then show the many different subfunctions
addressed by a single federal department or agency. 

o
   	Focusing on the missions of government, rather than federal organizations, produces a similarly intricate picture. Excluding Social
Security, Medicare, and Net Interest, 12 of the remaining 15 budget
functions are addressed by five or more executive branch departments and
major agencies. Again,
a second level of analysis can be seen in the accompanying e-supplement.

o
   	Sometimes there is a "match" between a function and a department. For example, spending within the Department of Transportation is associated almost exclusively with the Transportation function (400)
(fig. 66) and over 80 percent of spending within the Transportation function (400) (fig. 16) is by the Department of Transportation. Sometimes, however, there is an imbalance between the importance of an agency in a mission area and the importance of the mission area within the department. For example, while almost all obligations in the
Agriculture function (350) (fig. 12) are by the USDA, that function represents only about 41 percent of the spending by the department.

o
   	Approximately the same percentage of USDA's obligations is for the Income Security function (600) (fig. 42).4

o 	Agency obligations by budget function reflect the federal government's
response to changing priorities and "national needs" for a given fiscal
year. The creation of the Department of Homeland Security in the aftermath of September 11, 2001 provides a prime example of this. The new department was tasked with preventing and deterring terrorist attacks by unifying the vast network of organizations and institutions involved in efforts to secure our nation. In fiscal year 2003, the Department of Homeland Security had obligations in eight budget
functions, ranging from the National Defense function (050) to the Community and Regional Development function (450) to the Health
function (550).5

o
   	Compared to fiscal year 1995, the number of budget functions charged increased for the Department of Defense, the Department of Labor, the Executive Office of the President, and the Social Security Administration; whereas, the number decreased for the Department of
Housing and Urban Development, the Department of Justice, and the
Department of Transportation. Similarly, the number of agencies charging funds to a particular budget function was about the same in fiscal year 1995 as in fiscal year 2003. The biggest change occurred in
the Health function (550). In fiscal year 1995, excluding independent
agencies, four executive branch agencies charged funds
to this function compared to eight agencies in fiscal year 2003.6

This report is organized as follows:

o
   	Appendixes I and II provide descriptive and definitional information about the budget functions and object classification system. 

4 Over 40
percent of USDA's obligations are associated with the Income Security
function (600) and the Food and Nutrition Assistance subfunction (605).

5 Only the Department of Agriculture and the Department of
the Treasury had obligations in more budget functions.

6 The increases in the number of agencies obligating funds to
the Health function (550) are attributable to the addition of new
health accounts in the Department of Defense, the
Department of Homeland Security, and the Department of the Treasury
as well as the recoding of an account in the Department of the Interior.

o 	Appendix I provides a table describing the budget function
classification system. 

o 	Appendix II provides a table displaying the major and sub-object
classes for the fiscal year 2003 budget.

o
   	Appendix III contains pie charts organized by budget function. The pie charts graphically depict fiscal year 2003 obligations by agency and
object class. These show which agencies charged funds to each budget
function and which methods and approaches for delivering services are found in that function.7

o 	Appendix IV contains pie charts organized by agency. These pie charts
graphically depict fiscal year 2003 agency obligations by budget subfunction and object class. This provides a first-level view
of how an agency spends its funds by mission areas and what
it spends funds on by one or more broad expenditure categories, such as
for personnel, grants or contracts.8

o
   	Appendix V provides tables displaying fiscal year 2003 object class data
for those agencies and bureaus reporting $2 billion in one or more
of the major object classes (except for major object class All
Other, which we have not included). 

o  Appendix VI provides a glossary of key terms.

  Scope and Methodology

GAO was asked to provide a high-level analysis of spending patterns against broad federal mission areas (or purpose) as well as information on
the types of expenditures agencies incur in delivering federal programs. To
provide this information, we relied on information from the Office of Management and Budget (OMB) on end of fiscal year gross obligations
used to develop the President's fiscal year
2005 budget. All of these data are reported as part of the annual executive budget formulation process.
Although budget data are not audited, we reviewed the data reliability of the automated information and found it
to be sufficiently reliable for reporting purposes. We also reviewed OMB guidance contained in OMB 

           7 These pie charts are also available in the e-supplement.
           8 These pie charts are also available in the e-supplement.

Circular A-11, Preparation, Submission, and Execution of the
Budget. This circular is revised annually and provides agencies with general information on the budget process, guidance on preparing and submitting budget estimates, instructions on budget execution, and information on budget accounts, budget functions, and object classifications. In addition, we relied on GAO's
previously issued work that examined the origins,
trends, and implications of the budget function and object classification systems. We group object classifications into the following six categories: (1)
Personal Compensation and Benefits; (referred to in tables, pie charts,
and the e-supp as "personnel") (2) Travel, Rent, Printing, and
Supplies; (3) Other Contractual Services; (4) Acquisition of Assets; (5)
Grants and Fixed Charges; and (6) All Other. We conducted our
review from April 2004 through June 2004 in accordance with generally accepted government auditing standards.

Background 	The following provides additional information on understanding the
variation in budget functions and subfunctions as well as object classes.

Budget Functions	The budget function classification system provides a comprehensive and consistent means
to capture federal activity and
group budgetary resources according to mission area or "national need."
9 These "national needs" are
grouped into 17 broad areas for analyzing and understanding the budget.
Three additional categories-Net Interest, Allowances, and Undistributed
Offsetting Receipts-do not address specific "national needs" but are included so that the total of all functions sum to the budget totals. A function may be divided into two or more subfunctions, depending upon
the complexity of the "national need" addressed by that function. Each functional and subfunctional category is represented by a three-digit code.

To the extent feasible, budget functions are assigned without regard to
agency or organizational distinctions. Although many activities serve more
than one purpose, each federal activity is placed in a functional classification that best defines the activity's most important purpose. This is necessary so that the sum of the functional categories equals the budget

9 The functional classification system
is used primarily by the Budget Committees for the
congressional budget process. Although tax expenditures are also
classified by budget function, for
purposes of this report only spending information (that is, obligations that commit the federal government to make
payments now or in the future) is included.

totals. The functional classifications are also the categories that the Congress uses in the concurrent resolutions on the budget, pursuant to the Congressional Budget and Impoundment Control Act of 1974.10 Different
programs within a single function may fall under the jurisdiction of
different committees.

While the tables and graphics provide a view of how responsibility for
federal mission areas is spread over multiple agencies, this data cannot answer the question of whether there
is duplication. Rather,
it can provide hints about where further exploration of the issues of fragmentation, overlap and duplication might be warranted. In interpreting the data it
is important to note that:

o
   	The function classifications may be broad enough in some cases to aggregate very different activities. For example, table 1 shows 10 executive branch organizations (excluding independent agencies) involved in the Income Security function (600); 3 are for retirement and
disability programs (including federal employee retirement), 6 are in
the area of income security for the low-income population and 1 has
activities in both areas.

o
   	Since a specific function or subfunction may not fully encompass a set of logically related activities, it may be necessary to look at more than one function or subfunction to get a full picture of a set of related activities. For example, the Commerce and Housing Credit function (370) does not include the Housing Assistance subfunction (604), which is in the Income Security function
(600). Similarly, the Income Security
function (600) does not include either Social Security (650) or various payments to veterans (700)-all of which might be considered a form of
income security. 

o
   	Subfunctions are based on a variety of organizing themes. Some are based on divisible segments of broad mission areas (such as, Water
Transportation), some on a set of related activities (such as, Health Care
Services), and some on common functions (such as, Central Fiscal
Operations).

10 Pub. L. No. 93-344, 88 Stat. 297 (1974), as amended. See 2
U.S.C. S: 632.

Object Classification	The budget object classification system is one of several ways to array financial data in budgetary presentations. This classification approach emphasizes the goods, services, or items purchased and how they are delivered. 

The major object classes are

o  Personal Compensation and Benefits ("Personnel"),

o  Contractual Services and Supplies,

o  Acquisition of Assets,

o  Grants and Fixed Charges, and

o Other.

For purposes of our report, we break out Contractual Services and Supplies into two categories: (1) Travel,
Rent, Printing, and Supplies, and (2) Other Contractual
Services. This separation distinguishes those contractual services that directly support federal agencies from other
contractual services, which may serve as a proxy for products or services
provided by contractors or consultants. The Other
object class is used by agencies for a number of reasons, including unvouchered and undistributed expenses.

Obligations are recorded when the federal government places an order for an item or a service, awards a contract, or enters into similar transactions
that will require payments in the same or a future period.11 Object class data are easily misunderstood-in part because their apparent precision
can be misleading-since more than one object class may be used for the same service depending on how it is delivered. For example, the salary of a federal employee who constructs a building would be found under
Personal Compensation and Benefits12 whereas the labor costs involved in
the purchase of a building constructed by others would be found under Acquisition
of Assets. As this example shows, it can be difficult to rely

11 See 31 U.S.C. S: 1501.

12 This would not include the cost of materials, which would
be shown under Acquisition of Assets.

solely on object class data for information about the costs of federal
buildings. This is because object classes present obligations by items of
expense (that is, the types of goods or services purchased) without regard to the purpose of the programs for which they are used. 

The e-supplement provides additional detail on obligations at lower levels
of information-by bureau and subfunction. For each of the 18 functions
shown (excluding Allowances and Undistributed Offsetting Receipts)- such as, National Defense function (050)-we provide four types of
information: (1) a pie chart showing which agencies obligated money in each function along with their relative share of obligations in the function, similar to the pie charts in appendix III of the report; (2) a table showing which agencies obligated money in each function, with additional detail
on obligations by bureau and subfunction; (3) a pie chart showing obligations by object class, which shows the relative importance of each type of expense (such as, personnel, grants) to the function, similar to the pie charts in appendix III of the report; and (4) a table showing the object class
data by bureau and subfunction. 

By agency we show four types of information: (1) a pie chart showing the subfunctions in which agencies obligated money, similar to the pie charts
in appendix IV of the report; (2) a table presenting this subfunction information by bureau within the agency; (3) a pie chart showing the different object class items used by the agency, similar to the pie charts in
appendix IV of the report; and (4) a table providing the object class data by the bureau level within the agency. 

These tables and figures are not available in a hard copy version. If you would like to view the e-supplement, please click on the following link (GAO-04-884SP) or access on the Internet at www.gao.gov and enter the
report number.

As agreed with your office, unless you publicly announce the contents of
this report earlier, we plan no further distribution until 30 days from its
date. At that time, we will send copies of this report to the Ranking Minority Member of the Subcommittee on Civil Service and Agency Organization, House Committee on Government Reform, and to others
upon request. This report and an e-supplement will also be available at no charge on the GAO Web site at http://www.gao.gov.

This report and the corresponding e-supplement were prepared under the 
direction of Susan J. Irving, Director, Federal Budget Analysis, Strategic 
Issues, who can be reached at (202) 512-9142 ([email protected]) and of
Nancy Kingsbury, Managing Director, Applied Research and Methods. 
Questions may also be directed to Denise Fantone, Assistant Director, 
Strategic Issues, at (202) 512-4997 ([email protected]). Alison Bonebrake 
and John Mingus made key contributions to the report. John Mingus and 
Alice Feldesman made key contributions to the e-supplement available on 
GAO's Web site at http://www.gao.gov. 

Sincerely yours,

Susan J. Irving
Director, Federal Budget Analysis
Strategic Issues

Nancy Kingsbury
Managing Director
Applied Research and Methods

Appendix I

                     Budget Function Classification System

Table 1: Description of the Budget Function Classification System

Function Description Subfunction

National Defense (050)	Common defense and security of the United States,
Department of Defense-Military (051) including raising, equipping, and
maintaining of armed forces; development and utilization of Atomic energy
defense activities (053) weapons systems; direct compensation and benefits
paid to active military and civilian Defense-related activities (054)
personnel; defense research, development, testing, and evaluation; and
procurement, construction, stockpiling, and other activities undertaken to
directly foster national security.

International Affairs (150)	Maintaining peaceful relations, commerce, and
International development and travel between the United States and the
rest of the humanitarian assistance (151) world and promoting
international security and economic development abroad. International
security assistance (152)

Conduct of foreign affairs (153)

Foreign information and exchange activities (154)

International financial programs (155)

General Science, Space, and Resources allocated to science and research
General science and basic research (251)

Technology (250)	activities of the federal government that are not an
integral part of the programs conducted under any Space flight, research,
and supporting activities other function. (252)

Energy (270) Promoting an adequate supply and appropriate use Energy
supply (271) of energy to serve the needs of the economy. Energy
conservation (272)

Emergency energy preparedness (274)

Energy information, policy, and regulation (276)

Natural Resources and Developing, managing, and maintaining the nation's
Water resources (301)

Environment (300) natural resources and environment. Conservation and land
management (302)

Recreational resources (303)

Pollution control and abatement (304)

Other natural resources (306)

Agriculture (350)	Promoting the economic stability of agriculture and Farm
income stabilization (351) the nation's capability to maintain and
increase agricultural production. Agricultural research and services (352)

                Appendix I Budget Function Classification System

                         (Continued From Previous Page)

Function Description Subfunction

Commerce and  Promotion and regulation of commerce  Mortgage credit (371)  
      Housing    and the                              
Credit (370)  housing credit and deposit insurance 
                 industries,                          
                 which pertain to collection and       Postal Service (372)   
                 dissemination of                     
                 social and economic data (unless     
                 they are an                          
                 integral part of another function,   Deposit insurance (373) 
                 such as health);                     
                 general purpose subsidies to         
                 business, including                  
                 credit subsidies to the housing         Other advancement of 
                 industry; and the                             commerce (376) 
                 postal service fund and general fund 
                 subsidies of                         
                              that fund.              

Transportation (400)	Providing for the transportation of the general
public Ground transportation (401) and/or its property, whether local or
national and regardless of the particular mode of transportation. Air
transportation (402) Included are construction of facilities; purchase of
equipment; research, testing, and evaluation; Water transportation (403)
provision of communications related to transportation; operating subsidies
for Other transportation (407) transportation facilities and industries;
and regulatory activities directed specifically toward the transportation
industry rather than toward business.

     Community and    Development of physical           Community development 
        Regional      facilities or financial                   (451)         
Development (450)     infrastructures designed to    
                               promote viable           
                            community economies.            Area and regional 
                                                            development (452) 
                                                        Disaster relief and   
                                                        insurance (453)       

Education, Training, Promoting the extension of knowledge and skills,
Employment, and Social enhancing employment and employment Services (500)
opportunities, protecting workplace standards, and

providing services to the needy.

Elementary, secondary, and vocational education (501)

Higher education (502)

Research and general education aids (503)

Training and employment (504)

Other labor services (505)

Social services (506)

Health (550)   Programs other than Medicare    Health care services (551)  
                          whose basic            
                  purpose is to promote physical 
                              and mental health, 
                     including the prevention of Health research and training 
                          illness and accidents.            (552)             
                                                    Consumer and occupational 
                                                            health and safety 
                                                            (554)             

Medicare (570)    Federal hospital insurance and federal    Medicare (571) 
                   supplementary medical insurance, along with 
                    general fund subsidies of these funds and  
                   associated offsetting receipts.             

                Appendix I Budget Function Classification System

                         (Continued From Previous Page)

                        Function Description Subfunction

Income Security (600)	Support payments (including associated
administrative expenses) to persons for whom no current service is
rendered. Included are retirement, disability, unemployment, welfare, and
similar programs, except for social security and income security for
veterans, which are in other functions.

General retirement and disability insurance (excluding Social Security)
(601)

Federal employee retirement and disability (602)

Unemployment compensation (603)

Housing assistance (604)

Food and nutrition assistance (605)

Other income security (609) Veterans Benefits and Programs providing
benefits and services, the Income security for veterans (701)

Social Security Federal old age and survivors and          Social Security 
(650)           disability                                           (651) 
                   insurance trust funds, along with general  
                   fund                                       
                      subsidies of these funds and associated 
                                                   offsetting 
                   collections.                               

Services (700)	eligibility for which is related to prior military service,
but the financing of which is not an integral part of Veterans education,
training, and rehabilitation the costs of national defense. (702)

Hospital and medical care for veterans (703)

Veterans housing (704)

Other veterans benefits and services (705)

Administration of Justice Programs to provide judicial services, police
Federal law enforcement activities (751)

(750) protection, law enforcement (including civil rights), rehabilitation
and incarceration of criminals, and the Federal litigative and judicial
activities (752) general maintenance of domestic order. Federal
correctional activities (753)

Criminal justice assistance (754)

General Government (800)	General overhead cost of the federal government,
including legislative and executive activities; provision of central
fiscal, personnel, and property activities; and provision of services that
cannot reasonably be classified in any other major function.

Legislative functions (801)

Executive direction and management (802)

Central fiscal operations (803)

General property and records management (804)

Central personnel management (805)

General purpose fiscal assistance (806)

Other general government (808)

Deductions for offsetting receipts (809)

                Appendix I Budget Function Classification System

                         (Continued From Previous Page)

Function Description Subfunction

Net Interest (900)	Transactions which directly give rise to interest
Interest on Treasury debt securities (gross) (901) payments or income
(lending) and the general shortfall or excess of outgo over income arising
out Interest received by on-budget trust funds (902) of fiscal, monetary,
and other policy considerations and leading to the creation of
interest-bearing debt Interest received by off-budget trust funds (903)
instruments (normally the public debt).

Other interest (908)

Other investment income (909)

Allowances (920) Assigned by OMB Allowances (921-929)

Undistributed Offsetting Offsetting receipts that are not included as

Receipts (950)	deductions from outlays in the applicable function or
subfunction, above, and are thus "undistributed."

Employer share, employee retirement (on-budget) (951)

Employer share, employee retirement (off-budget) (952)

Rents and royalties on the Outer Continental Shelf (953)

Sale of major assets (954)

Other undistributed offsetting receipts (959)

Multifunction Account (999)	Used for accounts that involve two or more
major functions.

           Sources: OMB Circular No. A-11 (2003) and GAO/AIMD-97-95.

Appendix II

                          Object Classification System

Table 2: Description of the Object Classification System

Major Object
Classes Description Smaller Object Classes

Personal Compensation directly related to duties performed for the
Personnel Compensation (11.0)
Compensation and government by federal civilian employees, military
personnel,
Benefits (10) and non-federal personnel. Benefits for currently employed
Personnel Benefits (12.0)

federal civilian, military, and certain non-federal personnel.
Benefits for former officers and employees or their supervisors Benefits
for Former Personnel (13.0)
that are based (at least in part) on the length of service to the
federal government.

Contractual Services and Supplies (20)

Purchases of contractual services and supplies, such as travel and
transportation costs of government employees and other persons.
Transportation of things (including animals). Payments for the use of
land, structures, or equipment owned by others and charges for
communication and utility services. Printing and reproduction obtained
from the private sector or from other federal entities. Other contractual
services for advisory and assistance, other services, purchases of goods
and services from government accounts, operation and maintenance of
facilities, research and development contracts, medical care payments to
contractors, operation and maintenance of equipment, subsistence and
support of persons. In addition, includes purchase of supplies and
materials.

Travel and Transportation of Persons (21.0)
Transportation of Things (22.0)
Rent, Communications, and Utilities (23.0)
Printing and Reproduction (24.0)
Other Contractual Services (25.0)
Supplies and Materials (26.0)

Acquisition of Assets Purchases of personal property of a durable nature
and the Equipment (31.0)

(30)	initial installation of equipment when performed under contract.
Purchase and improvement of land and interest in lands, Land and
Structures (32.0) buildings and other structures, nonstructural
improvements of land, and fixed equipment when acquired under contract.
Also Investments and Loans (33.0) includes purchases of: (1) stocks,
bonds, debentures, and other securities that are neither U.S. government
securities nor securities of wholly-owned federal government enterprises,
(2) temporary or permanent investments, and (3) interest accrued at the
time of purchase and premiums paid on all investments.

Grants and Fixed Charges (40) Cash payments to states, other political
subdivisions, corporations, associations, and individuals for grants,
subsidies, gratuities and other aid. Contributions to foreign countries,
international societies, commissions, proceedings or projects. Taxes
imposed by state and local taxing authorities where the federal government
has consented to taxation and payments in lieu of taxes. Benefit payments
from the social insurance and federal retirement trust funds and payments
for losses and claims including those under the Equal Access to Justice
Act. Payments to creditors, distribution of earnings, and interest
payments under lease-purchase contracts for construction of buildings.
Payments of amounts previously collected by the government.

Grants, Subsidies, and Contributions (41.0)
Insurance Claims and Indemnities (42.0)
Interest and Dividends (43.0)
Refunds (44.0)

                                  Appendix II
                          Object Classification System

                         (Continued From Previous Page)

Major Object
Classes Description Smaller Object Classes

Other (90)	Charges that may be incurred lawfully for confidential purposes
Unvouchered (91.0) and are not subject to detailed vouchering or
reporting. Charges that cannot be distributed. Annual limitation on
Undistributed (92.0) administrative or other expenses for revolving and
trust funds. Financial interchanges between federal government accounts
Limitation on Expenses (93.0) that are not in exchange for goods and
services. Includes the sum for an object class entry below the reporting
threshold of Financial Transfers (94.0) $500 thousand and the sum of all
the below thresholds rounds to $1 million or more. Below Reporting
Threshold (99.5)

                     Source: OMB Circular No. A-11 (2003).

Appendix III

                  Budget Functions by Agency and Object Class

The following pie charts (figures
2-41) show the percent of fiscal year 2003 obligations charged.

National Defense (050)

Figure 2: Fiscal Year 2003 National Defense (050) Obligations by Agency

0.4 All other

                                    Defense

                             Source: GAO analysis.

Figure 3: Fiscal Year 2003 National Defense (050) Obligations by Object
Class

  0.3 All other

Acquisition of assets

Other contractual services

                             Source: GAO analysis.

Appendix III Budget Functions by Agency and Object Class

International Affairs (150)

  Figure 4: Fiscal Year 2003 International Affairs (150) Obligations by Agency

                                      0.9

agencies

Figure 5: Fiscal Year 2003 International Affairs (150) Obligations by
Object Class

  2.2 All other

Travel, rent, printing and supplies Personnel

Grants, insurance

Source: GAO analysis.

Appendix III Budget Functions by Agency and Object Class

General Science, Space, and Technology (250)

Figure 6: Fiscal Year 2003 General Science, Space, and Technology (250)
Obligations by Agency

Figure 7: Fiscal Year 2003 General Science, Space, and Technology (250)
Obligations by Object Class

Travel, rent, printing and supplies

services

Source: GAO analysis.

Appendix III Budget Functions by Agency and Object Class

Energy (270)

         Figure 8: Fiscal Year 2003 Energy (270) Obligations by Agency

Source: GAO analysis.

Figure 9: Fiscal Year 2003 Energy (270) Obligations by Object Class

Acquisition of assets

services

Source: GAO analysis.

Appendix III Budget Functions by Agency and Object Class

                    Natural Resources and Environment (300)

                                      0.5

Source: GAO analysis.

Figure 11: Fiscal Year 2003 Natural Resources and Environment (300)
Obligations by Object Class

                                 0.5 All other

Acquisition of assets

Travel, rent, printing and supplies

Other contractual services

Source: GAO analysis.

Appendix III Budget Functions by Agency and Object Class

                               Agriculture (350)

                                0.3 Agriculture

Source: GAO analysis.

Figure 13: Fiscal Year 2003 Agriculture (350) Obligations by Object Class

Personnel

Travel, rent, printing and supplies

Grants, insurance

claims and indemnities, interest and dividends

Source: GAO analysis.

Appendix III Budget Functions by Agency and Object Class

                       Commerce and Housing Credit (370)

                         All other Independent agencies

Source: GAO analysis.

Figure 15: Fiscal Year 2003 Commerce and Housing Credit (370) Obligations
by Object Class

                             Acquisition of assets

Source: GAO analysis.

Appendix III Budget Functions by Agency and Object Class

                              Transportation (400)

                                      1.6

Source: GAO analysis.

Figure 17: Fiscal Year 2003 Transportation (400) Obligations by Object
Class

Travel, rent, printing and supplies

Personnel services

interest and dividends

Source: GAO analysis.

Appendix III Budget Functions by Agency and Object Class

Community and Regional Development (450)

                                      2.6

Source: GAO analysis.

Figure 19: Fiscal Year 2003 Community and Regional Development (450)
Obligations by Object Class

  2.0 All other

Other contractual

services Grants, insurance

claims and indemnities,

interest and dividends

Source: GAO analysis.

Appendix III Budget Functions by Agency and Object Class

Education, Training, Employment, and Social Services (500)

                         1.4 Health and Human Services

Education

Source: GAO analysis.

Figure 21: Fiscal Year 2003 Education, Training, Employment, and Social
Services (500) Obligations by Object Class

1.4 All other

Other contractual services

Grants, insurance claims
and indemnities,
interest and dividends

Source: GAO analysis.

Appendix III Budget Functions by Agency and Object Class

Health (550)

                                      2.5

Health and

Figure 23: Fiscal Year 2003 Health (550) Obligations by Object Class

1.0 All other

Other
contractual services

Grants, insurance claims and indemnities, interest and dividends

Source: GAO analysis.

Appendix III Budget Functions by Agency and Object Class

                                 Medicare (570)

                           Health and Human Services

Source: GAO analysis.

Figure 25: Fiscal Year 2003 Medicare (570) Obligations by Object Class

1.4

Grants, insurance claims
and indemnities,
interest and dividends

Source: GAO analysis.

Appendix III Budget Functions by Agency and Object Class

Income Security (600)

Office of Personnel Management

                                      0.2

Health and Human Services

                     Defense Social Security Administration

Source: GAO analysis.

and indemnities, interest and dividends

Source: GAO analysis.

Appendix III Budget Functions by Agency and Object Class

Income Support: Retirement and Disability

* A subcomponent of Income Security (600)

                                      0.6

Management

Source: GAO analysis.

Figure 29: Fiscal Year 2003 Income Support: Retirement and Disability
Obligations by Object Class

Grants, insurance claims and indemnities, interest and dividends

Source: GAO analysis.

Appendix III Budget Functions by Agency and Object Class

Other Income Support

* A subcomponent of Income Security (600)

          0.1 Health and Human Services Social Security Administration

Source: GAO analysis.

Figure 31: Fiscal Year 2003 Other Income Support Obligations by Object
Class

                                   All other

and indemnities, interest and dividends

Source: GAO analysis.

Appendix III Budget Functions by Agency and Object Class

                             Social Security (650)

                         Social Security Administration

Source: GAO analysis.

Figure 33: Fiscal Year 2003 Social Security (650) Obligations by Object
Class

3.2 All other

Appendix III Budget Functions by Agency and Object Class

                      Veterans Benefits and Services (700)

                              0.9 Veterans Affairs

Source: GAO analysis.

Figure 35: Fiscal Year 2003 Veterans Benefits and Services (700)
Obligations by Object Class

Acquisition of assets Other contractual services

Travel, rent,
printing and supplies

Grants, insurance claims and indemnities, interest and dividends

Source: GAO analysis.

Appendix III Budget Functions by Agency and Object Class

                        Administration of Justice (750)

                                      2.3

Source: GAO analysis.

Figure 37: Fiscal Year 2003 Administration of Justice (750) Obligations by
Object Class

                                 0.1 All other

Appendix III Budget Functions by Agency and Object Class

General Government (800)

                                      2.2

Source: GAO analysis.

Figure 39: Fiscal Year 2003 General Government (800) Obligations by Object
Class

  2.2 Acquisition of assets

Travel, rent, printing and supplies

Personnel	Grants, insurance claims and indemnities, interest and dividends

Source: GAO analysis.

Appendix III Budget Functions by Agency and Object Class

                               Net Interest (900)

Treasury

                             Source: GAO analysis.

Figure 41: Fiscal Year 2003 Net Interest (900) Obligations by Object Class

Grants, insurance claims
and indemnities,
interest and dividends

Source: GAO analysis.

Appendix IV

Agencies by Budget Subfunction and Object Class

The following pie charts (figures
42-97) show the percent of fiscal year 2003 obligations charged. 

Department of Agriculture

                             Source: GAO analysis.

Figure 43: Fiscal Year 2003 Department of Agriculture Obligations by
Object Class

claims and Acquisition of and dividends assets

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

Department of Commerce

                      Other advancement of commerce (376)

Source: GAO analysis.

                                      0.7

 Figure 45: Fiscal Year 2003 Department of Commerce Obligations by Object Class

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

Department of Defense

                                   All other

Source: GAO analysis.

Figure 47: Fiscal Year 2003 Department of Defense Obligations by Object
Class

Grants, insurance claims and indemnities, interest and dividends

services

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

Department of Education

                                      1.4

Elementary,

                              and education (501)

Source: GAO analysis.

Figure 49: Fiscal Year 2003 Department of Education Obligations by Object
Class

                                   All other

and indemnities, interest and dividends

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

Department of Energy

                                      2.5

Atomic energy (053)

Source: GAO analysis.

Figure 51: Fiscal Year 2003 Department of Energy Obligations by Object
Class

                                      1.7

Acquisition of assets

Other contractual services

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

                    Department of Health and Human Services

                                 2.2 All other

Figure 53: Fiscal Year 2003 Department of Health and Human Services
Obligations by Object Class

  2.0 All other

Other contractual

Grants, insurance claims
and indemnities,
interest and dividends

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

                        Department of Homeland Security

                                   All other

Source: GAO analysis.

Figure 55: Fiscal Year 2003 Department of Homeland Security Obligations by
Object Class

                                 0.2 All other

Acquisition of assets

Travel, rent, printing and supplies

Other contractual services

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

Department of Housing and Urban Development 

                                      0.3

Housing

Figure 57: Fiscal Year 2003 Department of Housing and Urban Development
Obligations by Object Class

                                 0.5 All other

Acquisition of assets Other contractual services

Grants, insurance claims
and indemnities,
interest and dividends

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

Department of the Interior

                    0.4 Area and regional development (452)

Source: GAO analysis.

Figure 59: Fiscal Year 2003 Department of the Interior Obligations by
Object Class

                                 0.9 All other

Acquisition of assets

Travel, rent, printing and supplies

Other contractual services

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

Department of Justice

                        Defense-related activities (054)

Federal law enforcement

Source: GAO analysis.

Figure 61: Fiscal Year 2003 Department of Justice Obligations by Object
Class

                             Acquisition of assets

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

                              Department of Labor

Unemployment

Source: GAO analysis.

Figure 63: Fiscal Year 2003 Department of Labor Obligations by Object
Class

All other

and indemnities, interest and dividends

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

                              Department of State

                                      0.6

Conduct of

Source: GAO analysis.

Figure 65: Fiscal Year 2003 Department of State Obligations by Object
Class

0.5 All otherAcquisition of assets

Travel, rent, printing and supplies

Other contractual services

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

                          Department of Transportation

                                   All other

Ground

Source: GAO analysis.

Figure 67: Fiscal Year 2003 Department of Transportation Obligations by
Object Class

services

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

Department of the Treasury

2.2 All other

Figure 69: Fiscal Year 2003 Department of the Treasury Obligations by
Object Class

1.7 All other

Grants, insurance claims
and indemnities,
interest and dividends

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

                         Department of Veterans Affairs

                                      2.4

Income security

Source: GAO analysis.

Figure 71: Fiscal Year 2003 Department of Veterans Affairs Obligations by
Object Class

Acquisition of assets

Other contractual services

Travel, rent, printing and supplies

Grants, insurance claims and indemnities, interest and dividends

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

                        Environmental Protection Agency

                     Pollution control and abatement (304)

Source: GAO analysis.

Figure 73: Fiscal Year 2003 Environmental Protection Agency Obligations by
Object Class

    0.9 All other Travel, rent, printing and supplies

Personnel

Grants, insurance claims and indemnities, interest and dividends

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

                       Executive Office of the President

                     0.1 and humanitarian assistance (151)

Source: GAO analysis.

Figure 75: Fiscal Year 2003 Executive Office of the President Obligations
by Object Class

                                 1.2 All other

Travel, rent, printing and supplies

Other contractual services

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

                        General Services Administration

                                      0.1

General property and records

Source: GAO analysis.

Figure 77: Fiscal Year 2003 General Services Administration Obligations by
Object Class

0.2All other

Acquisition of assets

Grants, insurance claims and

indemnities, interest and dividends

Personnel

Other contractual Travel, rent, printing services and supplies

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

National Aeronautics and Space Administration

and supporting activities (252)

Source: GAO analysis.

Figure 79: Fiscal Year 2003 National Aeronautics and Space Administration
Obligations by Object Class

                             Acquisition of assets

Travel, rent, printing and supplies

Grants, insurance claims and indemnities, interest and dividends

Personnel Other contractual services

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

National Science Foundation

                  1.2 General science and basic research (251)

Source: GAO analysis.

Figure 81: Fiscal Year 2003 National Science Foundation Obligations by
Object Class

    0.9 All other Other contractual services

Grants, insurance

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

                         Nuclear Regulatory Commission

Energy information, policy, and regulation (276)

Source: GAO analysis.

Figure 83: Fiscal Year 2003 Nuclear Regulatory Commission Obligations by
Object Class

                                 1.8 All other

Appendix IV
Agencies by Budget Subfunction and Object
Class

                         Office of Personnel Management

Federal employee retirement and disability (602)

Source: GAO analysis.

Figure 85: Fiscal Year 2003 Office of Personnel Management Obligations by
Object Class

                                      0.1

and indemnities, interest and dividends

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

                                 Postal Service

                              Postal Service (372)

Source: GAO analysis.

Figure 87: Fiscal Year 2003 Postal Service Obligations by Object Class

1.5

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

                         Small Business Administration

Source: GAO analysis.

Figure 89: Fiscal Year 2003 Small Business Administration Obligations by
Object Class

                                      2.2

Grants, insurance

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

                         Social Security Administration

Source: GAO analysis.

Figure 91: Fiscal Year 2003 Social Security Administration Obligations by
Object Class

                                   All other

and indemnities, interest and dividends

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

Independent Agencies 

                   Deposit insurance (373) General retirement

(excluding

                      Other advancement of commerce (376)

Source: GAO analysis.

Figure 93: Fiscal Year 2003 Independent Agencies Obligations by Object
Class

and indemnities, interest and dividends

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

                               Legislative Branch

                                      1.4

Legislative

Figure 95: Fiscal Year 2003 Legislative Branch Obligations by Object Class

Source: GAO analysis.

Appendix IV
Agencies by Budget Subfunction and Object
Class

                                Judicial Branch

Federal litigative and judicial activities (752)

                                      0.7

Source: GAO analysis.

Figure 97: Fiscal Year 2003 Judicial Branch Obligations by Object Class

1.9

Source: GAO analysis.

Appendix V

Agencies and Bureaus Obligating $2 Billion or More in Fiscal Year 2003 in Selected Object Classes

Table 3: Personnel-Agencies and Bureaus Obligating $2 Billion or More in
the Personal Compensation and Benefits Object Class

 Dollars in millions Department of the Treasury Internal Revenue Service 6,941

                           Agency                          Bureau Obligations 
        Department of Agriculture                  Forest Service       2,507 
            Department of Defense              Military Personnel     103,293 
                                              Military Retirement      17,928 
                                        Operation and Maintenance      34,459 
                                     Research, Development, Test, 
                                                              and 
                                                       Evaluation       2,543 
                                              Retiree Health Care      18,952 
                                   Revolving and Management Funds      14,643 
                                        Border and Transportation       7,733 
           Department of Homeland                        Security 
                         Security       United States Coast Guard       3,380 
            Department of Justice Federal Bureau of Investigation       2,623 
                                            Federal Prison System       2,847 
                                        Legal Activities and U.S.       2,385 
                                                         Marshals 
              Department of State       Administration of Foreign       2,882 
                                                          Affairs 
                    Department of Federal Aviation Administration 
                   Transportation                                       5,912 
           Department of Veterans                Medical Programs 
                          Affairs                                      13,649 
                                  Courts of Appeals, District     
                  Judicial Branch Courts, and other               
                                                Judicial Services       2,827 
              Office of Personnel  Office of Personnel Management 
                       Management                                      28,744 
                   Postal Service                  Postal Service      50,428 
                  Social Security  Social Security Administration 
                   Administration                                       4,521 

                       Source: GAO analysis of OMB data.

Appendix V
Agencies and Bureaus Obligating $2 Billion
or More in Fiscal Year 2003 in Selected 
Object Classes

Table 4: Travel, Rent, Printing and Supplies-Agencies and Bureaus
Obligating $2 Billion or More in the Travel, Rent, Printing, and Supplies
Object Class

Dollars in millions

                         Agency                            Bureau Obligations 
          Department of Defense                Military Personnel       6,179 
                                        Operation and Maintenance      59,332 
                                   Revolving and Management Funds      57,226 
                                                      Procurement       3,462 
         Department of Veterans                  Medical Programs 
                        Affairs                                         6,498 
                 Postal Service                    Postal Service       9,355 
               General Services          Real Property Activities       3,809 
                 Administration  Supply and Technology Activities       2,873 

              Department of Agriculture Farm Service Agency 5,555

                       Source: GAO analysis of OMB data.

Table 5: Other Contractual Services-Agencies and Bureaus Obligating $2
Billion or More in the Other Contractual Services Object Class

Dollars in millions

                        Agency                            Bureau  Obligations 
         Department of Defense         Operation and Maintenance       90,700 
                               Research, Development, Test, and  
                                                      Evaluation       60,516 
                               Revolving and Management Funds          30,547 

Procurement 9,437

                                 Corps of Engineers-Civil Works      7,279 
      Department of Homeland   Border and Transportation Security    6,089 
             Security               United States Coast Guard        2,113 
                               Emergency Preparedness and Response   4,494 
      Department of Justice    Legal Activities and U.S. Marshals    2,249 
       Department of State      Administration of Foreign Affairs    3,883 

       Department of Transportation Federal Aviation Administration 2,894

                                Federal Highway Administration      30,989 
      Department of Veterans           Medical Programs          
              Affairs                                                4,504 
        Office of Personnel     Office of Personnel Management   
            Management                                              27,968 

Appendix V
Agencies and Bureaus Obligating $2 Billion
or More in Fiscal Year 2003 in Selected 
Object Classes

(Continued From Previous Page)

Dollars in millions National Aeronautics and Space Administration

                            Agency                         Bureau Obligations 
                    Postal Service                 Postal Service       2,871 
                   Social Security Social Security Administration 
                    Administration                                      9,440 
                  General Services       Real Property Activities       3,210 
                    Administration          Supply and Technology      10,123 
                                                       Activities 
              Department of Energy                Energy Programs       4,779 
                                          Environmental and Other 
                                                          Defense 
                                                       Activities       6,190 
                                   National Nuclear Security            8,761 
                                   Administration                 
                                   Power Marketing Administration       2,605 
                                         Centers for Medicare and 
          Department of Health and                       Medicaid 
                    Human Services                       Services       2,975 
                                    National Institutes of Health       6,308 
        Department of the Interior    Minerals Management Service       2,019 
          Environmental Protection       Environmental Protection 
                                                           Agency 
                            Agency                                      2,179 
           Executive Office of the        Executive Office of the 
                                                        President 
                         President                                      2,041 
              Independent Agencies         Military Sales Program      11,751 
                                       Tennessee Valley Authority       3,912 

National Aeronautics and Space
Administration 10,919

                       Source: GAO analysis of OMB data.

Table 6: Acquisition of Assets-Agencies and Bureaus Obligating $2 Billion
or More in the Acquisition of Assets Object Class

Dollars in millions

Agency Bureau Obligations

              Department of Agriculture Farm Service Agency 10,741

       Department of Defense       Operation and Maintenance        11,523 
                                Revolving and Management Funds       3,430 
                                          Procurement               62,978 
                                     Military Construction           7,961 
          Postal Service                Postal Service               2,124 

                       Source: GAO analysis of OMB data.

Appendix V
Agencies and Bureaus Obligating $2 Billion
or More in Fiscal Year 2003 in Selected 
Object Classes

Table 7: Grants, Insurance Claims and Indemnities, Interest and Dividends-
Agencies and Bureaus Obligating $2 Billion or More in the Grants,
Insurance Claims and Indemnities, Interest and Dividends Object Class

Dollars in millions

                           Agency                          Bureau Obligations 
        Department of Agriculture             Farm Service Agency      19,647 
                                       Food and Nutrition Service      40,652 
                                     Foreign Agricultural Service       2,008 
                                           Risk Management Agency       2,110 
            Department of Defense             Military Retirement      35,396 
                                        Border and Transportation       2,616 
           Department of Homeland                        Security 
                         Security Emergency Preparedness and            7,507 
                                  Response                        
                                          Departmental Management       3,415 
            Department of Justice      Office of Justice Programs       4,273 

Department of Transportation Federal Aviation Administration 3,472 Federal
  Transit Administration 7,904 Social Security Administration Social Security
                             Administration 518,485

              Department of Veterans               Benefits Programs 
                             Affairs                                   34,709 
          Department of the Treasury        Internal Revenue Service   41,728 
                                              Federal Financing Bank    4,093 
                                        Financial Management Service   12,346 
                                         Interest on the Public Debt  318,148 
                 Office of Personnel  Office of Personnel Management 
                          Management                                   50,393 

     Department of Health and  Centers for Medicare and Medicaid   
          Human Services                    Services               537,724 
                                 National Institutes of Health      19,825 
                                Administration for Children and     45,274 
                                            Families               
                                Centers for Disease Control and    
                                           Prevention                2,591 
                                 Health Resources and Services     
                                         Administration              6,231 
                               Substance Abuse and Mental Health   
                                    Services Administration          2,833 
     Environmental Protection   Environmental Protection Agency    
              Agency                                                 4,997 

Appendix V
Agencies and Bureaus Obligating $2 Billion
or More in Fiscal Year 2003 in Selected 
Object Classes

(Continued From Previous Page)

Dollars in millions

                           Agency                          Bureau Obligations 
             Independent Agencies        Agency for International       4,236 
                                                      Development 
                                           Federal Communications       6,535 
                                                       Commission 
                                           International Security      10,744 
                                                       Assistance 
                                        Railroad Retirement Board       9,394 
          Department of Education             Federal Student Aid      30,317 
                                         Office of Elementary and 
                                                        Secondary 
                                                        Education      21,681 
                                          Office of Postsecondary       2,319 
                                                        Education 
                                  Office of Special Education and 
                                          Rehabilitative Services      12,536 
                                           Community Planning and             
        Department of Housing and                     Development       8,888
                Urban Development                Housing Programs       5,448 
                                        Public and Indian Housing      23,674 
                                                         Programs 
              Department of Labor            Employment Standards       4,216 
                                                   Administration 
                                  Employment and Training              65,014 
                                  Administration                  
                                         Pension Benefit Guaranty             
                                                      Corporation       2,273

         National Science Foundation National Science Foundation 5,052

                       Source: GAO analysis of OMB data.

Appendix VI

Glossary of Key Terms

Account	A separate financial reporting unit for budget, management, and/or accounting purposes. All budgetary transactions are recorded in accounts, but not all accounts are budgetary in nature (that is, some accounts do not directly affect the budget but are used purely for accounting purposes).
Budget (and off-budget) accounts are used to record all transactions within
the budget (or off-budget), whereas other accounts (such as deposit fund,
credit financing, and foreign currency accounts) are used for accounting purposes connected with funds that are nonbudgetary in nature. The Budget Enforcement Act defines "account" as an item for which appropriations are made in any appropriation act; for items not provided
for in appropriation acts, "account" means an item for which there is a designated budget account identification code number in the President's budget.

Agency Mission	Responsibility assigned to a specific agency for meeting national needs.
An agency mission expresses the purpose of the programs of that agency and its
component organizations. National needs are generally described in the
context of the budget functional classification system as major functions, while agency missions are generally described in the context of subfunctions.

Fiscal Year	Any yearly accounting period, regardless of its relationship to a calendar
year. The fiscal year for the federal government begins on October 1 of each year and ends on September 30 of the following year; it is designated by the calendar
year in which it ends. For example, fiscal
year 1990 began October 1,1989, and ended September 30,1990. (Prior to fiscal year 1977, the federal fiscal year began on July 1 and ended on June 30.)

  Functional Classification (Budget Functions)

A system of classifying budget resources so that budget authority, outlays, receipts, and tax expenditures can be related to the national needs being addressed. Each concurrent resolution on the budget allocates these
budgetary resources-except receipts and tax expenditures-among the various functions in the budget.

Each budget account is generally placed in the single budget function (for
example, National Defense or Health) that best reflects its major purpose, an important national need. A function may be divided into two or more

                       Appendix VI Glossary of Key Terms

subfunctions, depending upon the complexity of the national need
addressed. 

National Needs	Broad areas providing a coherent and comprehensive basis for analyzing
and understanding the budget in terms of the end purposes being served without regard to the means that may be chosen to meet those purposes. The budget resources devoted to meeting national needs are classified according to budget functions. In this way, budget authority and outlays of on-budget and off-budget federal entities, loan guarantees, and tax
expenditures can be grouped in terms of the national needs being addressed. 

Object Classification	A uniform classification identifying the obligations of the federal
government by the types of goods or services purchased (such as personnel
compensation, supplies and materials, and equipment) without regard to the agency involved or the purpose of the programs for which they are used. If the obligations are in a single object classification category, the
classification is identified in the Program and Financing Schedule in the
Budget of the United States Government. For the activities distributed among two or more object classification categories, the budget has a
separate object classification schedule to show
the distribution of the obligations by object classification. 

Obligations Incurred	Amounts of orders placed, contracts awarded, and similar transactions
during a given period that will require payments during the same or
a future
period. Such amounts will include outlays for which obligations have not been previously recorded and will reflect adjustments for differences
between obligations previously recorded and actual outlays to liquidate those obligations.

Gross Obligations	An expression of an agency's total financial commitments for a given period. Gross obligations portray the relative size of an organization, without regard to the type of underlying budgetary resource or when
resulting outlays may occur. When aggregated, gross obligations may overstate both
department and governmentwide totals because an agency's obligations may include services provided to another agency for which they
will be reimbursed. When reimbursement is received, these funds can be

Appendix VI Glossary of Key Terms

used to incur new obligations as long as the budget authority has not
expired.

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