U.S. Involvement at Major International Air Shows Principally
Depends on Agencies' Missions and Aerospace Companies' Resources
(21-SEP-07, GAO-07-1165R).
For years, the U.S. government has participated at international
air shows, such as those in Paris, France, and Farnborough,
United Kingdom, with federal agencies renting exhibit space to
present program information, displaying aircraft, or providing
assistance to U.S. aerospace companies seeking to showcase their
businesses. Hosted by aerospace industry associations and foreign
governments, these shows present opportunities for business
networking and often serve as forums for announcing billions of
dollars in contract awards. While large U.S. aerospace companies
are generally well represented at these shows, the ability of
small and medium-sized companies to participate is unclear. On
the basis of your interest in understanding U.S. government and
company involvement at major international air shows, we (1)
identified federal agencies' participation as well as their
support to U.S. companies at these shows since 2000 and (2)
determined what factors affect small and medium-sized U.S.
companies' decisions to participate.
-------------------------Indexing Terms-------------------------
REPORTNUM: GAO-07-1165R
ACCNO: A77487
TITLE: U.S. Involvement at Major International Air Shows
Principally Depends on Agencies' Missions and Aerospace
Companies' Resources
DATE: 09/21/2007
SUBJECT: Aerospace industry
Agency missions
Aircraft
Aircraft industry
Commercial aviation
Federal agencies
Fighter aircraft
Foreign governments
Government information dissemination
International cooperation
International relations
International trade
Small business
Small business assistance
Trade fairs
******************************************************************
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******************************************************************
GAO-07-1165R
September 21, 2007
The Honorable Tom Davis
Ranking Member
Committee on Oversight and Government Reform
House of Representatives
The Honorable Michael Turner
Ranking Member, Subcommittee on
Information Policy, Census and National Archives
Committee on Oversight and Government Reform
House of Representatives
Subject: U.S. Involvement at Major International Air Shows Principally
Depends on Agencies' Missions and Aerospace Companies' Resources
For years, the U.S. government has participated at international air
shows, such as those in Paris, France, and Farnborough, United Kingdom,
with federal agencies renting exhibit space to present program
information, displaying aircraft, or providing assistance to U.S.
aerospace companies seeking to showcase their businesses. Hosted by
aerospace industry associations and foreign governments, these shows
present opportunities for business networking and often serve as forums
for announcing billions of dollars in contract awards. While large U.S.
aerospace companies are generally well represented at these shows, the
ability of small and medium-sized companies to participate is unclear. On
the basis of your interest in understanding U.S. government and company
involvement at major international air shows, we (1) identified federal
agencies' participation as well as their support to U.S. companies at
these shows since 2000 and (2) determined what factors affect small and
medium-sized U.S. companies' decisions to participate.
Scope and Methodology
To identify federal agency participation and support since 2000, we met
with officials at the Departments of Defense (DOD), Commerce, and State;
the Federal Aviation Administration (FAA); and the National Aeronautics
and Space Administration (NASA)--the five federal agencies that are
involved at major international air shows. We reviewed laws, policies,
guidance, and other documentation pertaining to these agencies'
participation and support at international air shows. We defined federal
agency participation as activities that include transporting, displaying,
staffing, or demonstrating exhibits and equipment, as well as agency
officials sitting on panels or conducting meetings with company
representatives and foreign officials. We defined agency support as
providing resources or other assistance to U.S. aerospace companies to
enable them to participate at air shows. However, we did not review
general attendance at air shows that was not related to participation or
support activities. To determine what factors led aerospace companies to
participate, we interviewed 20 small and medium-sized companies--which we
defined as those having fewer than 500 employees--based on their recent
participation at major international air shows and their use of federal
agencies' assistance. These companies represented a range of aerospace
industry sectors, including components manufacturing; simulation and
training; and maintenance, repair, and overhaul. The views of company
representatives included in this report do not represent those of the
entirety of small and medium-sized aerospace companies. We conducted our
review from February 2007 through September 2007 in accordance with
generally accepted government auditing standards.
Results in Brief
Agencies' participation in and support to companies at major international
air shows largely depend on the agencies' missions, with such activities
funded by operations accounts or fees charged to companies. While DOD is
the predominant U.S. agency participant at air shows, its presence is
based on whether participation will contribute to its mission of advancing
security cooperation, promoting interoperability of weapon systems, and
demonstrating commitment to alliances or regions. Typically, DOD displays
or demonstrates weapon systems, such as fighter aircraft, or meets with
foreign military officials. DOD also provides support to U.S. companies by
leasing military aircraft to them for use at these shows on a limited
basis. Commerce is a key provider of support to U.S. companies
participating at air shows because of its mission to open new markets and
promote U.S. companies' products and services overseas. Commerce's support
includes a range of fee-for-service programs, including product literature
displays and business-to-business introductions, as well as business
counseling services available at no charge. While FAA and NASA do not
provide support to companies, they occasionally participate at air shows
when it may advance a specific agency mission. The State Department
provides diplomatic support to federal agencies and facilitates meetings
between U.S. companies and foreign officials--activities that the agency
normally performs as part of its overseas mission. Because show
participation and support are an integral part of agencies' missions,
their costs are not budgeted separately from other mission activities.
While only DOD and Commerce track direct participation costs, other
agencies were able to estimate how much they spend for show participation.
All five agencies pay for their costs from operations accounts or from
fees charged for company support. For example, in 2005 and 2006, DOD spent
approximately $2.4 million from its operations accounts to participate at
air shows in Paris, France; Farnborough, United Kingdom; Singapore; Dubai,
United Arab Emirates; and Santiago, Chile.
Officials we interviewed from small and medium-sized companies identified
a number of factors, including cost and sales opportunities, that
influence their participation at air shows. One major factor is the high
cost of sending employees and materials to international locations.
Company officials indicated that their participation, which includes such
activities as setting up information booths or establishing business
contacts, generally does not result in a direct return on investment.
While officials noted that their costs are typically greater than any
sales that can be directly tracked to their show participation, they
indicated that it is a business decision based on opportunities for
promoting name recognition and fostering business relationships. Some
companies paid fees to obtain Commerce's assistance at air shows, while
others were unaware of Commerce's programs to assist small and
medium-sized companies.
Background
The air shows at Paris and Farnborough are preeminent and are held in
alternating years. Other major air shows include those at Singapore,
Dubai, and Santiago. Table 1 provides an overview of these five shows.
Table 1: Overview of Five Major International Air Shows
Paris Farnborough Singapore^a Dubai Santiago
First show 1909 1932 1981 1989 1980
Show frequency 7-day show 7-day show 6-day show 5-day show 6-day show
held every held every held every held every held every
other year other year other year other year other year
Most recent 2007 2006 2006 2005 2006
show
Number of 2,000 1,480 940 726 379
exhibitors exhibitors exhibitors exhibitors exhibitors exhibitors
from 42 from 35 from 43 from 46 from 40
countries countries countries countries countries
Number of 153,920 140,000 34,300 35,000 40,000
trade visitors trade trade trade trade trade
visitors visitors visitors visitors visitors
Foreign 150 defense 83 defense 153 60 military 143
delegations^b delegations delegations delegations and 44 delegations
from 60 from 43 from 44 civil from 21
countries countries countries delegations countries
and 40 and 40
civil civil
delegations delegations
from 20 from15
countries countries
Aircraft on 140 Over 100 n/a^c 101 121
display
Dollar amount n/a Over $40 $15 billion Over $21 n/a
of orders billion billion
announced at
shows
Source: Data obtained from air show organizers and U.S. federal agencies.
^a Following the 2006 Asian Aerospace show at Singapore, the organizer
relocated the show to Hong Kong. A new show is planned to be launched in
Singapore in 2008.
^b Information on delegations varies for these shows and is included as
available.
^cn/a indicates official information not available.
These shows serve as an opportunity for industry and government
participants to display products and services to potential buyers and
demonstrate aircraft to increase the public's awareness and understanding
of aerospace technologies.
Agencies' Participation and Support at International Air Shows Is Mission
Driven, with Costs Funded by Operations Accounts or User Fees
U.S. agencies participate to varying degrees at international air shows
based on their missions, and the cost of their activities is funded by
operations accounts or user fees for certain support services. DOD and
Commerce are the two key agencies that usually participate and provide
support to companies at air shows, while FAA, NASA, and State participate
to a lesser extent. Table 2 highlights these agencies' participation,
support, and missions.
Table 2: Federal Agencies' Participation, Support, and Missions for the
Five Major International Air Shows
Participation and/or support Agency mission for air
Federal agency since 2000 shows
DOD Displays or demonstrates weapon Advances security
systems and sets up information cooperation and
booths at most of the shows; technological
leases weapon systems, such as interoperability with
fighter aircraft, on limited friendly nations
basis, to U.S. companies
Commerce Offers several programs for U.S. Supports U.S. companies'
aerospace companies, for a fee, sales of goods and
to assist companies in marketing services abroad
goods and services at most of the
shows
FAA Sends official delegations to Promotes aviation safety
many shows and sets up and harmonization of
information booths international aviation
standards
NASA Sends official delegations to Advances international
some shows and has set up an cooperation and
exhibit on one occasion disseminates results of
U.S. space exploration to
the public
State Assists agencies with show Ensures U.S. government
activities by facilitating entry activities are consistent
into foreign countries and with foreign policy goals
coordination with foreign
officials; cohosts receptions at
some shows for companies to build
business relationships
Source: GAO analysis of agency statements and data.
DOD
Since 2000, DOD has participated at most of the five major air shows based
on its mission of advancing security cooperation, promoting
interoperability of weapon systems, and demonstrating commitment to
alliances or regions. Officials stated that to foster coalition building
with international partners, DOD has displayed weapon systems,
disseminated information about systems' capabilities, and performed live
demonstrations. Air show participation also provides U.S. military
officials with opportunities to network with foreign counterparts. For
example, U.S. military officials may attend numerous bilateral meetings,
as many as 20, at a single air show.
DOD determines which weapons to exhibit at upcoming shows, based on a
multitiered process, which begins with U.S. embassy and combatant command
officials providing DOD with a list of weapon systems, such as military
aircraft, to be displayed. The combatant command charged with
responsibility for the particular geographic region provides input on
whether the display of such systems advances the political-military agenda
for that region. These commands are responsible for providing the required
resources to support the event and paying the cost to exhibit the system
at the air show. As such, current military operational needs may restrict
certain equipment from being exhibited at air shows. The Defense Security
Cooperation Agency (DSCA) and the military services also assess the
political-military situation of the country in which an embassy and a
combatant command are seeking direct show participation. Finally, DSCA
obtains approval for participation from DOD's Undersecretary of Defense
for Policy. Since 2000, DOD has exhibited a range of aircraft at these
shows, including the C-130J Hercules transport aircraft, UH-60A Blackhawk
helicopter, and F-16 Falcon fighter aircraft. While DOD focuses on
participating at major shows, such as Paris and Farnborough, the agency
also considers the importance of smaller shows. For example, an Air Force
official told us that participation at an air show in South Africa is
gaining in importance for DOD's goal of providing regional support now
that the agency has established the U.S. Africa Command.
Also, DOD supports U.S. business by leasing equipment to defense companies
that seek to demonstrate particular weapon systems and initiate sales to
foreign nations. When a company requests an equipment lease for an air
show, DOD officials review the political-military situation of the region,
as well as equipment availability, to determine whether to grant approval.
All costs associated with leasing the equipment are to be borne by the
company, including transporting, fueling, and potential damage during
use.^1 For the 2006 show in Farnborough, the Air Force approved a lease to
Lockheed Martin for the F-16 Falcon fighter aircraft, and for the 2005
Paris show, the Navy approved a lease of the F/A-18F Super Hornet strike
fighter to Boeing. Army officials say they have approved very few leases
because equipment is needed for ongoing military operations. On a limited
basis, DOD supports U.S. businesses at international air shows by sending
high-level officials to meet with potential buyers of U.S. equipment,
provided such contracts promote technological interoperability for U.S.
and foreign military equipment and strengthen the capabilities of
coalition partnerships.^2
Commerce
According to Commerce officials, the agency's participation at air shows
is driven by its mission to promote the interests of U.S. businesses
abroad by providing support to U.S. aerospace companies through a number
of assistance programs. The agency's U.S. Commercial Service, within the
International Trade Administration, offers these programs and activities
to help U.S. companies, particularly small and medium-sized companies,
increase international exposure at air shows, according to officials.
Officials also noted that before approving the use of company assistance
programs for an air show, Commerce uses its Trade Fair Certification
Program to endorse an international air show organizer that will recruit
U.S. exhibitors and manage an official U.S. pavilion. The certification
program is a cooperative partnership among Commerce, industry
associations, international trade show organizers, and foreign trade fair
authorities. Commerce then initiates a range of show-related services,
such as oversight and coordination of events and in-country site
assistance to the show organizer. Show organizers are required to recruit
small and medium-sized businesses and provide Commerce officials with a
show floor booth to run operations, display materials, and conduct
business counseling. Since 2000, Commerce has certified and supported
eight trade show organizers.^3 To encourage companies to participate at
shows and use available assistance programs, Commerce utilizes
International Trade Administration staff that identify and contact
companies, including those that are new to the market, and distributes
information through domestic and international trade events, news
releases, and Web sites. In addition to the Trade Fair Certification
Program, Commerce uses the following company assistance programs:
Aerospace Product Literature Center aids small and medium-sized companies
by disseminating company literature at an information booth staffed by
Commerce personnel at air shows. This program typically serves 50 to 65
small and medium-sized U.S. companies at a single air show and is the most
frequently provided program. The user fee charged to companies generally
ranges from $600 to $650 per show.
^1We did not assess whether DOD incurred any leasing costs that were not
paid for by companies.
^2DOD guidance specifies when agency officials may support U.S. companies
competing for foreign contracts.
^3While the official U.S. pavilion at the Paris Air Show is not part of
the Trade Fair Certification Program, it is operated under the authority
of the Department of Commerce and organized and managed by a contractor.
Nevertheless, Commerce offers its complete range of business services at
the Paris show.
Aerospace Executive Service facilitates introductions and sets up meetings
between U.S. companies and potential foreign customers. Commerce has
provided this service to between 5 and 34 U.S. companies per show,
charging fees ranging from $2,500 to $4,700. Companies have utilized this
program at the Farnborough, Dubai, and Singapore air shows in recent
years.
Pathfinder Program is modeled after the Aerospace Executive Service and
assists U.S. companies by providing customized program catalogues and a
list of suggested foreign companies to meet with. This program has been
used in lieu of the Aerospace Executive Service but does not set up
meetings for participants. Since 2000, Commerce has offered the Pathfinder
Program only once at the 2005 Paris air show for a charge of $2,950 per
company plus $700 for each additional company participant.
Showtime Program provides market analysis and counseling services to U.S.
companies at major shows through a team of in-country market and industry
specialists. There is no user fee for this service.
Table 3 indicates Commerce assistance programs provided at the major shows
since 2000.
Table 3: Commerce Assistance Programs Provided Since 2000
Aerospace
Product Aerospace
Trade Fair Literature Executive Pathfinder Showtime
Year Air show Certification Center Service Program Program
2000 Farnborough
Singapore
Santiago
2001 Paris
Dubai
2002 Farnborough
Singapore
Santiago
2003 Paris
Dubai
2004 Farnborough
Singapore
Santiago
2005 Paris
Dubai
2006 Farnborough
Singapore
Santiago
2007 Paris
Source: GAO analysis of Commerce data.
On a limited basis, Commerce also arranges for officials to advocate on
behalf of U.S. businesses competing for foreign contracts, including those
participating at international air shows. Although not specific to air
shows, this advocacy can include U.S. embassy and consulate assistance, as
well as communications from senior-level U.S. government officials to
foreign government officials.
FAA
FAA participates at many air shows as part of its mission to promote
aviation safety and the harmonization of international aviation standards
by conducting bilateral and multilateral meetings with foreign aviation
counterparts. Sometimes, FAA will send an employee to distribute agency
information at its own exhibition space or at Commerce's booth. In other
cases, FAA pays Commerce a fee to display and distribute materials at a
show. Since 2000, the agency has regularly participated at the Paris show
because it is the largest and at the Singapore show because it is in the
fast-growing Asia-Pacific region. The agency has also participated at
Santiago and Dubai. According to agency officials, FAA does not provide
support to companies seeking to participate at international air shows.
NASA
NASA officials stated that the agency participates at air shows to support
the agency's mission of advancing international cooperation and
disseminating the results of U.S. space exploration to the public. Since
2000, NASA has taken part in two international shows--Farnborough and
Paris--to disseminate information on the completion of the International
Space Station and future exploration efforts as directed by a 2004
presidential policy statement that introduced a new vision and priorities
for the agency. At the 2004 Farnborough show, NASA had an exhibit to
describe this new vision, and at the subsequent Paris Air Show in 2005,
NASA officials said they met with foreign international space program
officials but did not set up an exhibit. In addition, these officials told
us that NASA does not provide support to companies seeking to participate
at international air shows.
State
According to State officials, as part of the agency's mission to ensure
that international air show participation is consistent with overall
foreign policy objectives, agency and embassy staff facilitate
coordination of Commerce and DOD participation and provide support to U.S.
government officials to these shows. These activities are coordinated
through State's International Cooperative Administrative Support Services.
For example, State provided country clearances and logistical support for
a NASA official participating at the 2006 Farnborough air show. At some
air shows, State cohosts an ambassador's reception with U.S. industry
associations, such as the Aerospace Industry Association, to build
business relationships. In addition, officials noted that when approved
through a Commerce, DOD, and State interagency process, State officials
attend the shows to advocate on behalf of U.S. companies competing for
foreign contracts.
Cost of Agency Participation and Support
We found that the five agencies in our review do not receive separate
budget line item appropriations for international air show participation,
as participation and support are integral parts of agencies' missions.
While DOD and Commerce track costs associated with their direct
participation, other agencies were able to estimate some of their air show
costs, even though they do not track these separately from other mission
activities.
DOD collects data on expenditures from combatant commands based on
estimates of air show participation and support. These costs include
travel for agency personnel, exhibition expenses, and transportation costs
for military aircraft exhibited at the show and are paid out of existing
operations and maintenance or other budget accounts. Table 4 shows that
combatant commands reported a total of $7.1 million between 2000 and 2007
for air show participation and support.^4
4These costs include participation as identified by the combatant commands
and military services, but do not include other defense agencies'
participation, such as the Missile Defense Agency or the National
Geospatial-Intelligence Agency. These agencies separately reported that
they spent $168,639 and $22,564.17, respectively, for their participation
at major international air shows since 2000.
Table 4: DOD Combatant Command Reported Costs for Major Air Shows
Year Air show Cost (U.S. dollars)^a
2000 Farnborough Singapore Santiago $336,873 $501,000 $531,182
2001 Paris Dubai $443,911 $21,500
2002 Farnborough Singapore Santiago $394,237 Data not available $193,709
2003 Paris Dubai $356,069 $403,631
2004 Farnborough Singapore Santiago $663,747 $415,930 $194,910
2005 Paris Dubai $395,484 $1.1 million
2006 Farnborough Singapore Santiago $372,184 $327,147 $253,120
2007 Paris $239,925
Total of available data: $7.1 million
Source: GAO analysis of DSCA and DOD combatant command data.
^aNot adjusted for inflation.
Commerce tracks the cost of its direct air show participation and support
and tracks the fees charged to each company for programs offered at
certified shows. According to Commerce officials, these fees generally
offset the agency's direct cost. Officials stated that they require a
minimum level of company participation to ensure that fees charged cover
their expenses. However, officials noted that such fees would not include
the cost of many show activities related to participation, such as agency
and personnel resources expended in preparation for the show. For the
three fee-based company assistance programs Commerce provided at the five
major air shows from 2001 through 2006, agency officials identified total
costs of $399,598 for which the agency collected $583,043 in fees from
companies.^5
Although FAA and NASA officials said their agencies do not routinely track
air show participation separately from other mission activities, they
provided estimates on their total cost, where available. FAA officials
estimated that the agency has spent approximately $107,000 at over half of
the major air shows it has participated at since 2001 for travel and
registration fees for FAA delegations to the show, but were unable to
estimate costs for the remaining shows. NASA officials estimated $729,350
for participation costs at the 2004 Farnborough air show. This estimate
included costs for booth space, exhibit design and construction, and
literature distribution. The State Department did not provide any cost
figures because its participation is integrated into its overall mission
activities and is not separately tracked.
^5Fees collected in excess of costs are retained in a Commerce trust fund
to be used for International Trade Administration activities.
Small and Medium-Sized Companies Consider Cost and Sales Opportunities
When Participating at Major International Air Shows
According to officials at the small and medium-sized companies we
interviewed, their decision to participate at air shows is based on a
number of factors, including cost and potential sales. However, these
officials generally could not identify a direct return on investment
resulting from their participation. For these companies, participation
included such activities as renting space and setting up information
booths, displaying sample products, and prearranging meetings with
potential customers at shows. Company officials told us that they may have
a booth at some shows and at others they may opt just to meet with
potential customers. One company leased a large booth space and sent a
significant number of its employees to share information about their
company's products.
More than half of the company officials we spoke with noted that the high
cost of sending employees and materials to international air shows is a
major factor for determining whether and to what extent they participate.
Several companies indicated that their average cost of participating
ranged from $5,000 to $15,000 per employee. Generally, this cost included
travel, hotel, meals, and entertainment but did not include booth rental
and assembly and shipping of materials to international locations. Some
companies said additional expenses that are not captured include the time
employees are away from other work activities that is spent preparing for,
traveling to, and participating at shows.
Another major factor companies consider is the potential that
participation will generate sales. Although most companies were unable to
identify specific sales of goods or services resulting from show
participation, they made a business decision to participate in an effort
to generate sales by promoting name recognition and goodwill of the
company. Even companies that subsequently sell to contacts made at shows
are uncertain about attributing those sales to show participation.
Nevertheless, some companies view participation at major international air
shows as necessary for being recognized as an active player in the
aerospace industry. Some stated that nonparticipation puts them at a
disadvantage with competitors that do participate. While at shows, some
companies split their time between maintaining relationships with current
clients and building relationships with potential customers. For example,
officials at one small company we met with said that they recently
participated at an air show to maintain the company's relationship as a
supplier to a larger exhibiting company, even though the company did not
expect to generate any direct sales from participating.
Companies also considered other factors when participating at air shows.
Some companies were more likely to participate at air shows if others from
the same aerospace industry sector were also present. For example,
companies that provide interiors for private and corporate jets may not be
interested in shows that are dominated by military and large commercial
manufacturing companies.
Most of the companies we interviewed attend the Paris and Farnborough
shows. Fewer companies attend the Singapore, Dubai, and Santiago shows and
either already have a company presence in the region or have a desire to
move into the region. Figure 1 shows the frequency and type of
participation by these companies at the major air shows.
Figure 1: Overview of 20 Small and Medium-Sized Companies' Participation
at Major International Air Shows, 2000-July 2007
The majority of the companies we interviewed were aware of Commerce's air
show support programs and activities and often paid the applicable fees to
use these programs. For these companies, the programs frequently
supplemented other forms of participation. For example, instead of sending
employees to both conduct meetings and distribute literature, one
company's employees were free to conduct meetings and make new contacts
while also having the company's literature distributed through Commerce's
Aerospace Products Literature Center. Some companies utilized Commerce's
Aerospace Executive Service to facilitate foreign business contacts and
arrange meetings at the shows. Company officials that use these services
told us that they were generally satisfied. None of the company officials
we spoke with leased DOD equipment, which has generally been leased to
larger companies, according to DOD data.
Agency Comments
We provided a draft of this letter to DOD, Commerce, State, the Department
of Transportation, and NASA for comment. Commerce and State provided
technical comments, which we have incorporated as appropriate.
* * * * * *
As requested by your office, unless you publicly disclose the contents of
this report, we plan no further distribution of it until 30 days from the
date of this letter. At that time, we will send copies to the Secretaries
of Defense, Commerce, State, and Transportation; the Administrator of
NASA; and interested congressional committees. We will also make copies
available to others upon request. In addition, this report will be
available at no charge on GAO's Web site at http://www.gao.gov.
Should you or your staff have any questions concerning this report, please
contact me at (202) 512-4841 or at [email protected]. Contact points
for our Offices of Congressional Relations and Public Affairs may be found
on the last page of this report. Key contributors to this report were John
Neumann, Assistant Director; Angela D. Thomas; Najeema Davis Washington;
Brent Helt; Lily J. Chin; and Alyssa Weir.
Ann Calvaresi Barr
Director, Acquisition and Sourcing Management
(120605)
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