Operation and Maintenance Funding: Trends in Army and Air Force Use of
Funds for Combat Forces and Infrastructure (Letter Report, 06/04/96,
GAO/NSIAD-96-141).
GAO examined trends in the Army's and Air Force's use of operation and
maintenance (O&M) funds, focusing on how they obligate O&M for combat
forces, base support, and management activities.
GAO found that: (1) the services have some flexibility in how they use
their O&M funds, but in some cases they must obtain congressional
approval or advise congressional committees of their activities; (2) the
Army and Air Force obligate one-third of their O&M funds for combat
activities and use the remainder to support infrastructure-type
activities; (3) in fiscal years 1993 through 1995, the Army obligated
less than 20 percent of its O&M funds for combat and support forces, and
the Air Force obligated 26 percent of its O&M funds for such purposes;
(4) from 1993 to 1995, the Army obligated 33 percent of its O&M funds
for base support and 37 percent for management activities, and the Air
Force obligated 30 percent of its O&M funds for base support and 35
percent for management activities; (5) the Army historically requests
more funds than it obligates because Congress usually appropriates more
funds than the Army requests; (6) it could not make a direct comparison
between the amount of O&M requested, the amount received, and the amount
of O&M obligated, by program element; and (7) the Air Force obligated
more than it requested for base support and slightly less than it
requested for management activities.
--------------------------- Indexing Terms -----------------------------
REPORTNUM: NSIAD-96-141
TITLE: Operation and Maintenance Funding: Trends in Army and Air
Force Use of Funds for Combat Forces and
Infrastructure
DATE: 06/04/96
SUBJECT: Military training
Budget obligations
Congressional/executive relations
Combat readiness
Military forces
Military cost control
Budget administration
Military budgets
Military bases
IDENTIFIER: DOD Future Years Defense Program
Army Flying Hour Program
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Cover
================================================================ COVER
Report to the Honorable
C.W. Bill Young, Chairman, Subcommittee on National Security,
Committee on Appropriations, House of Representatives
June 1996
OPERATION AND MAINTENANCE FUNDING
- TRENDS IN ARMY AND
AIR FORCE USE OF FUNDS FOR COMBAT
FORCES AND INFRASTRUCTURE
GAO/NSIAD-96-141
Operation and Maintenance
(703110)
Abbreviations
=============================================================== ABBREV
DOD - Department of Defense
IDA - Institute for Defense Analyses
JCS - Joint Chiefs of Staff
O&M - operation and maintenance
Letter
=============================================================== LETTER
B-271646
June 4, 1996
The Honorable C. W. Bill Young
Chairman, Subcommittee on National Security
Committee on Appropriations
House of Representatives
Dear Mr. Chairman:
The Secretary of Defense has stated that the Department of Defense
(DOD) must begin to increase procurement funding if it is to have a
modern future force. The Secretary wants to reform the acquisition
process and streamline the infrastructure to pay, in part, for force
modernization. In this regard, DOD has projected decreases in the
operation and maintenance (O&M) account and increases in the
procurement account beginning in fiscal year 1998 as reflected in the
Future Years Defense Program submissions to Congress.
We reviewed how the Army and the Air Force obligated\1 their annual
O&M funds and compared their obligations to what was requested in the
President's budgets. We determined what portion of total obligations
was used for infrastructure activities as opposed to combat forces.
The Navy was not included in our review because, at the headquarters
level, it does not maintain the level of budget request and
obligation data we needed for our analysis.
Our review was performed under our basic legislative
responsibilities. However, because of your expressed interest in O&M
and infrastructure issues, we are addressing the report to you.
--------------------
\1 In this report, we focused on the amount obligated--not expended.
The amount expended reflects the cost incurred when the obligation is
liquidated. Liquidation of the obligation may not occur for some
length of time after the obligation is recorded.
RESULTS IN BRIEF
------------------------------------------------------------ Letter :1
The services have a great deal of flexibility as to how they use
their O&M funds.\2
This flexibility is evident in the O&M obligation trends, which
illustrate that the proposed uses of O&M identified in the budget
request may not always reflect how the funds are obligated. This is
particularly true for the Army, which historically obligates less
funds for its combat forces than it requests even when Congress
appropriates more than was requested.
The Army and the Air Force obligate about one-third of their O&M
funds for activities directly related to combat forces, including
training and recruitment. The remainder goes to support
infrastructure-type activities such as base support and management
activities.
From fiscal years 1993 through 1995, the Army obligated less than 20
percent of its O&M funds for combat forces and support of the forces
and the Air Force obligated about 26 percent of its O&M funds for
such purposes. When training and recruiting funds are added, the
Army's and the Air Force's obligations are about 30 and 34 percent,
respectively. The balance of the O&M funds was obligated for
infrastructure-type functions such as base support and management
activities. During the 3-year period, the Army obligated 33 percent
of its O&M funds for base support and 37 percent for management
activities. The Air Force obligated 30 percent of its O&M funds for
base support and 35 percent for management activities for that same
period. The fastest growing accounts were minor construction,
maintenance and repair, administrative activities, and international
activities.
When the amounts obligated for combat forces and support of the
forces and training and recruitment are compared to the amounts
requested for these categories, the Army historically requested more
than it obligated. Conversely, it often obligates more than
requested for infrastructure and management activities. In part,
this may be due to Congress appropriating more than requested.\3
However, it can also be the result of O&M funds requested for one
purpose being obligated for another purpose.
Our comparison of the amounts obligated and budgeted by the Air Force
for these same functions showed that the Air Force obligated slightly
more than it requested for combat forces. With regard to training
and recruiting, the Air Force obligated less than the amounts
requested. It obligated more than it requested for base support and
slightly less than it requested for management activities.
--------------------
\2 Congress has put some limitations on this flexibility. If a
service moves more than $20 million from one budget activity to
another, it is required to obtain congressional approval to reprogram
the funds. If a service moves $20 million or more from certain
subactivity groups to other subactivity groups within the Operating
Forces budget activity, it is required to advise the congressional
defense committees.
\3 Because the services do not allot the amounts appropriated to the
program element level, we could not make a direct comparison between
the amount requested, amount received, and amount obligated by
program element.
BACKGROUND
------------------------------------------------------------ Letter :2
The services' O&M appropriation gives them the funds to carry out
day-to-day activities, such as recruiting and fielding a trained and
ready force, equipment maintenance and repair, child care and family
centers, transportation services, civilian personnel management and
pay, and maintaining the infrastructure to support the forces.
Table 1 shows the Army's and the Air Force's O&M budget requests,
amounts received, and amounts obligated for fiscal years 1993 through
1995.
Table 1
O&M Funds Requested, Received, and
Obligated for Fiscal Years 1993 Through
1995
(Dollars in millions)
Reques Receiv Obliga Reques Receiv Obliga
Fiscal year ted ed\a ted ted ed\a ted
---------------------- ------ ------ ------ ------ ------ ------
1993 $16,90 $18,89 $19,25 $18,02 $18,62 $18,56
5.1 6.6 0.0 9.0 8.4 3.9
1994 16,019 17,860 17,942 19,808 20,556 20,518
.2 .9 .5 .4 .8 .9
1995 17,821 19,564 19,533 19,077 20,345 20,296
.0 .0 .5 .0 .8 .0
----------------------------------------------------------------------
\a The received amount includes funds appropriated, funds transferred
into and out of the O&M appropriation, and supplemental
appropriations. Therefore, the amount received exceeds the amount in
the budget request.
The services' annual O&M budget requests to Congress are presented in
four broad categories referred to as budget activities: operating
forces, mobilization, training and recruiting, and administrative and
servicewide activities. Each budget activity is further broken down
into activity groups which, in turn, are further broken down into
subactivity groups. For example, the Army's operating forces budget
activity is divided into two activity groups (land forces and land
operations support), and each of the activity groups is made up of
various subactivity groups. To illustrate, the land forces activity
group consists of eight subactivity groups: combat units, tactical
support, theater defense forces, forces related training, force
communications, depot maintenance, Joint Chiefs of Staff (JCS)
exercises, and base support.
Table 2 is an example of the budget presentation document for the
Army's operating forces budget activity, activity groups, and
subactivity groups for fiscal year 1995.
Table 2
Army's Fiscal Year 1995 Operating Forces
Budget Presentation
Budget activity Activity group Subactivity group
---------------------- ---------------------- ----------------------
Operating forces Land forces Combat units
Tactical support
Theater defense
Force-related
training/special
activities
Force communication
Depot maintenance
JCS exercises
Base support
Land operations Combat development
support
Unified commands
----------------------------------------------------------------------
The budget subactivity groups are further broken down into program
element codes. Although the codes are not part of the budget
presentation to Congress, they are maintained as part of the
services' funds control process and provide more details about how
the services plan to spend the funds received. For example, within
the Army's subactivity group--combat units--there are three program
element codes that show how the Army plans to use the funds
designated for combat units. There are similar program elements in
the four budget activities. For example, base operations is a
program element that is in most budget activities. Therefore, by
grouping similar program elements, it can be determined how much was
budgeted and obligated for a particular function.
In performing our analysis, we placed all the program element codes
into the following four categories: combat forces and support of the
forces, training and recruitment, management and command activities,
and base support. For each of these four categories, we listed the
budgeted and obligated amounts. See appendixes II and III for a
complete listing of the program element codes that comprise each of
these four major categories.
FUNDING FOR COMBAT FORCES
------------------------------------------------------------ Letter :3
For fiscal years 1993 through 1995, funds requested for combat forces
and support of the forces ranged from $3.6 billion to $4.5 billion
for the Army. During the same period, the amount of O&M funds the
Army obligated for these program element codes ranged from $3.2
billion to $4.2 billion. For the Air Force, funds requested for
combat forces and support of the forces ranged from $4.7 billion to
$5.1 billion and the amount obligated ranged from $5 billion to $5.3
billion. As shown in table 3, the amounts obligated have increased
slightly during the 3-year period, but, at their highest level, still
only represent 21.5 percent of the Army's and 26.8 percent of the Air
Force's total O&M obligations.
Table 3
Funds Requested and Obligated for Combat
Forces and Support of the Forces for
Fiscal Years 1993 Through 1995
(Dollars in millions)
Obliga Obliga
ted as ted as
a a
percen percen
t of t of
Total total Total total
O&M O&M O&M O&M
Reques Obliga obliga obliga Reques Obliga obliga obliga
Fiscal year ted ted ted ted ted ted ted ted
---------------- ------ ------ ------ ------ ------ ------ ------ ------
1993 $3,787 $3,651 $19,25 19.0 $4,668 $4,971 $18,56 26.8
.0 .3 0.0 .0 .6 3.9
1994 3,645. 3,163. 17,942 17.6 4,974. 5,338. 20,518 26.0
5 7 .5 4 1 .9
1995 4,502. 4,190. 19,533 21.5 5,129. 5,165. 20,296 25.5
5 7 .5 8 3 .0
================================================================================
Total $11,93 $11,00 $56,72 19.4 $14,77 $15,47 $59,37 26.1
5.0 5.7 6.0 2.2 5.0 8.8
--------------------------------------------------------------------------------
As shown above, over the past 3 years, the Air Force obligated about
$700 million more for its combat forces than was requested. In
contrast, the Army obligated about $900 million less than the amounts
requested.\4 The fact that the Army did not obligate all the funds
that it requested for its combat forces means that the amount
initially requested for combat forces was probably used to fund other
O&M programs.
--------------------
\4 Because the services do not allocate appropriated funds down to
the program element level, we could not compare amounts obligated to
amounts appropriated. However, in the case of Army combat forces,
the amounts obligated were less than the amounts requested
irrespective of any increases Congress may have appropriated.
FUNDING FOR TRAINING AND
RECRUITING
------------------------------------------------------------ Letter :4
Training and recruiting are essential elements in maintaining a ready
force. Our analysis showed that the amounts obligated for these
purposes were routinely less than the amounts the services requested.
As shown in
table 4, the Army's and the Air Force's requests for the program
elements related to training and recruiting in fiscal years 1993
through 1995 ranged from $2 billion to $2.2 billion and from $1.5
billion to $1.9 billion, respectively. Although the amounts
obligated have increased slightly during the 3-year period, at their
highest level they still only represented about 10.8 percent of the
Army's and 9.1 percent of the Air Force's O&M budgets.
Table 4
Funds Requested and Obligated for
Training and Recruiting for Fiscal Years
1993 Through 1995
(Dollars in millions)
Obliga Obliga
ted as ted as
a a
percen percen
t of t of
Total total Total total
O&M O&M O&M O&M
Reques Obliga obliga obliga Reques Obliga obliga obliga
Fiscal year ted ted ted ted ted ted ted ted
---------------- ------ ------ ------ ------ ------ ------ ------ ------
1993 $1,951 $1,999 $19,25 10.4 $1,473 $1,443 $18,56 7.8
.1 .7 0.0 .6 .3 3.9
1994 2,176. 1,892. 17,942 10.5 1,828. 1,658. 20,518 8.1
7 2 .5 5 2 .9
1995 2,247. 2,104. 19,533 10.8 1,855. 1,842. 20,296 9.1
7 0 .5 2 4 .0
================================================================================
Total $6,375 $5,995 $56,72 10.6 $5,157 $4,943 $59,37 8.3
.5 .9 6.0 .3 .9 8.8
--------------------------------------------------------------------------------
Table 5 shows the types of training and recruiting activities the
Army and the Air Force obligated their O&M funds for in fiscal year
1995. In most cases, the amounts requested and obligated were fairly
close. However, overall, the Army and the Air Force obligated less
than they requested for their training and recruiting activities.
Table 5
Funds Requested and Obligated for
Training and Recruiting Program Elements
in Fiscal Year 1995
(Dollars in millions)
Reques Obliga Reques Obliga
Training and recruiting activities ted ted ted ted
-------------------------------------- ------ ------ ------ ------
Officer acquisition $157.4 $160.2 $84.1 $85.6
Skill training 500.6 449.7 536.5 473.6
Other training 570.1 508.5 849.5 881.1
Professional education 262.3 234.9 233.2 240.4
Training support 308.9 285.7 82.9 87.5
Recruiting 222.0 248.1 45.3 51.3
Recruiting leases 133.3 130.2 0 0
Other 93.0 86.8 23.7 23.0
======================================================================
Total \a $2,247 $2,104 $1,855 $1,842
.6 .1 .2 .5
----------------------------------------------------------------------
\a Totals may not agree with 1995 totals shown in previous table due
to rounding.
FUNDING FOR BASE SUPPORT
------------------------------------------------------------ Letter :5
For fiscal years 1993 through 1995, the Army obligated about 33
percent of its total O&M funds for base support and the Air Force
about 30 percent. Table 6 shows the amounts requested and obligated
for base support program elements during the 3-year period under
review. Although the amounts have decreased slightly from the high
point during the period under review, the services continue to devote
a substantial portion of their O&M budgets to maintaining the
infrastructure.
Table 6
Funds Requested and Obligated for Base
Support for Fiscal Years 1993 Through
1995
(Dollars in millions)
Obliga Obliga
ted as ted as
a a
percen percen
t of t of
Total total Total total
O&M O&M O&M O&M
Reques Obliga obliga obliga Reques Obliga obliga obliga
Fiscal year ted ted ted ted ted ted ted ted
---------------- ------ ------ ------ ------ ------ ------ ------ ------
1993 $4,848 $6,415 $19,25 33.3 $4,522 $5,316 $18,56 28.6
.7 .5 0.0 .4 .1 3.9
1994 4,701. 6,075. 17,942 33.9 5,350. 6,670. 20,518 32.5
0 3 .5 1 1 .9
1995 4,997. 6,177. 19,533 31.6 4,765. 6,070. 20,296 29.9
1 3 .5 8 2 .0
================================================================================
Total $14,54 $18,66 $56,72 32.9 $14,63 $18,05 $59,37 30.4
6.8 8.1 6.0 8.3 6.4 8.8
--------------------------------------------------------------------------------
Program elements in the base support category include base
communications, environmental compliance, real property maintenance
and real property services activities, child and family services,
leases, maintenance of nontactical equipment, food service programs,
and community and morale support activities. Table 7 shows the
amount requested and obligated for the above base operations program
elements in fiscal year 1995.
Table 7
Amounts Requested and Obligated for Base
Support Program Elements in Fiscal Year
1995
(Dollars in millions)
Reques Obliga Reques Obliga
Base support activities t ted t ted
-------------------------------------- ------ ------ ------ ------
Base communications $166.7 $267.0 $201.4 $238.6
Audio-visual activities 36.9 58.5 43.7 46.5
Base operations 3,345. 3,505. 2,555. 2,277.
7 3 6 9
Child and family services 134.5 139.3 97.2 110.6
Environmental activities 465.1 1,123. 404.0 773.8
3
Base maintenance and repair 792.6 973.9 1,267. 2,442.
6 8
Minor construction 55.6 110.0 104.0 89.0
Engineering installation support 0 0 92.3 91.0
======================================================================
Total $4,997 $6,177 $4,765 $6,070
.1 .3 .8 .2
----------------------------------------------------------------------
Of particular interest is the amount the services obligated for base
maintenance and repair--about $974 million obligated versus about
$793 million requested for the Army and about $2.4 billion obligated
versus $1.3 billion requested for the Air Force. In fiscal year
1995, Congress reduced the Army's and the Air Force's requests by
$100 million, respectively. Therefore, the fact that the services
obligated more than requested cannot be explained by Congress
appropriating more than was requested. The more likely answer is
that O&M funds from other programs were reprogrammed to the base
maintenance and repair accounts. Another area where the services
obligated more than was requested was for environmental activities.
Whereas the Army requested about $465 million for these activities,
it obligated over $1.1 billion. The Air Force also obligated
significantly more of its O&M funds for environmental activities than
it requested--about $774 million versus $404 million. The reason for
this is that the requested amounts do not include funds transferred
from DOD to the services under DOD's environmental account.
FUNDING FOR MANAGEMENT,
COMMAND, AND SERVICEWIDE
ACTIVITIES
------------------------------------------------------------ Letter :6
Between fiscal years 1993 through 1995, the Army obligated
approximately 37 percent of its O&M funds for management, command,
and servicewide activities. The Air Force obligated about 35 percent
of its O&M funds for the same purposes.
Table 8 shows the amounts requested and obligated for management,
command, and servicewide program elements during the 3-year period
under review. Although the amounts obligated by the Army decreased
from fiscal years 1993 to 1994, fiscal year 1995 obligations show a
reversal of that trend. Air Force obligations rose steadily over
this same time period.
Table 8
Funds Requested and Obligated for
Management, Command, and Servicewide
Activities for Fiscal Years 1993 Through
1995
(Dollars in millions)
Obliga Obliga
ted as ted as
a a
percen percen
t of t of
Total total Total total
O&M O&M O&M O&M
Reques Obliga obliga obliga Reques Obliga obliga obliga
Fiscal year ted ted ted ted ted ted ted ted
---------------- ------ ------ ------ ------ ------ ------ ------ ------
1993 $6,318 $7,183 $19,25 37.3 $7,365 $6,832 $18,56 36.8
.3 .5 0.0 .1 .9 3.9
1994 5,495. 6,811. 17,942 38.0 7,655. 6,852. 20,518 33.4
9 2 .5 3 4 .9
1995 6,073. 7,061. 19,533 36.2 7,326. 7,218. 20,296 35.6
8 6 .5 3 1 .0
================================================================================
Total $17,88 $21,05 $56,72 37.1 $22,34 $20,90 $59,37 35.2
8.0 6.3 6.0 6.7 3.4 8.8
--------------------------------------------------------------------------------
As shown in table 9, Army headquarters and command management
activities accounted for $770 million, or 11 percent, of the total
obligations in the management, command, and servicewide activities
grouping. The $770 million included obligations to operate the
headquarters activities of the Army's specified commands as well as
the operations of the departmental headquarters located in
Washington, D.C., and other headquarters activities, such as the
Corps of Engineers, public affairs, and space activities. The Air
Force obligated about $654 million, or about 9 percent, of its
management, command, and servicewide activities funds for similar
programs.
Table 9
Amounts Requested and Obligated for
Management, Command, and Servicewide
Program Elements in Fiscal Year 1995
(Dollars in millions)
Management, command, and servicewide Reques Obliga Reques Obliga
activities ted ted ted ted
-------------------------------------- ------ ------ ------ ------
Information management $693.4 $672.7 $134.4 $113.6
Headquarters and command activities 693.5 769.9 480.4 654.3
International activities 305.6 315.3 38.3 45.6
Security and intelligence programs 369.6 356.5 1,413. 1,383.
4 0
Project management and testing 160.0 204.0 349.5 362.9
Logistics activities 1,767. 1,756. 2,566. 2,398.
4 4 4 9
Drug activities 31.8 97.3 0 89.8
Personnel and family activities 908.4 1,653. 113.3 108.7
6
Administrative 734.7 909.7 464.4 444.4
Space and satellite 77.7 66.9 1,139. 1,029.
0 3
Communications and command 331.6 259.2 627.2 587.6
======================================================================
Total\a $6,073 $7,061 $7,326 $7,218
.7 .5 .3 .1
----------------------------------------------------------------------
\a Totals may not agree with 1995 totals shown in previous table due
to rounding.
CONCLUSIONS
------------------------------------------------------------ Letter :7
Athough it would not be expected that the amounts obligated would
necessarily agree with the amounts requested, there are certain
obligation trends that seem to emerge. This is particularly true for
the Army, which historically obligates less funds for its combat
forces than it requests even when appropriated more than requested.
Conversely, the opposite trend emerges for the infrastructure and
management accounts. The reason why obligations exceed the amounts
requested may be because Congress appropriated more than requested.
However, another reason could also be that funds initially requested
for other O&M accounts were reprogrammed to the infrastructure and
management accounts. We believe that this report will assist
congressional decisionmakers by showing how obligation patterns
differ from the budget estimates submitted to Congress.
AGENCY COMMENTS AND OUR
EVALUATION
------------------------------------------------------------ Letter :8
In commenting on a draft of this report, DOD said that all of the
Army's special activities programs (see app.II) should not have been
included in the management, command, and servicewide activities
category. DOD said that special activities include items such as the
Army battle simulation center, Louisiana maneuvers, Army flying hour
program, combat training centers, training range operations, soldier
modernization, and contingency operations and that these items should
have been included in the combat forces category. DOD further stated
that the only portion of special activities that was properly
included in the management, command, and servicewide activities
category was subsistence-in-kind, which has been about $250 million
to $300 million a year. DOD contended that including all of these
programs in the management, command, and servicewide activities
category led us to conclude that this category was too large in
comparison to the combat forces budget.
DOD's response included a level of detail beyond the program element
level that was not available to us during our review of the
activities included in the special activities category or other O&M
subaccounts. For that reason, our analysis was based on the program
element level that was available for all O&M subaccounts. We
categorized special activities as management, command, and
servicewide activities because of the Army's definition of the
special activities program element. The Army defines special
activities as units with a predominantly peacetime mission.
After analyzing obligation data and the description of the type of
activities DOD said are included in the special activities program
element, with minor exceptions, we do not agree with DOD's assertion
that these activities should have been categorized as combat forces
activities. If we had had the detailed information during our
review, we would have listed the Louisiana maneuvers, battle
simulation center, and combat training center as training activities
in the training and recruiting category. We would also have listed
the cost of training range operations and soldier modernization in
the base support category. The above activities accounted for about
$181.3 million of the $1.5 billion of fiscal year 1995 obligations
incurred in the special activities category.
The Army flying hour program in the special activities program
element accounted for $13.3 million out of a total Army flying hour
program of $848.6 million in fiscal year 1995. Furthermore, the type
of flying hour program activities included in the special activities
program element included aircraft operating costs associated with (1)
transporting headquarters command personnel, (2) the multinational
force observers in Egypt, and (3) training Army pilots in newly
fielded aircraft. The only portion of the $13.3 million that
possibly should be included in the combat forces category is the
costs associated with the multinational force observers in Egypt. In
our opinion, the flying hour program costs for transporting
headquarters command personnel should remain in the management,
command, and servicewide activities category and the costs for
training Army pilots in newly fielded aircraft should be shown in the
training and recruiting category.
The contingency operations that DOD said were in the special
activities program element, and which they believe should be
categorized as a combat force activity, incurred obligations totaling
$633.2 million in fiscal year 1995. Of this total, $456.1 million
was for operations to restore democracy in Haiti. In our opinion,
such operations do not contribute to the day-to-day training of the
combat forces to prepare them to carry out their national security
mission. Therefore, we believe that these obligations were properly
categorized as a management, command, and servicewide activity.
There were other obligations, totaling about $177.1 million, for
contingency operations that probably should be listed in the combat
forces category. However, including these obligations in the combat
forces category would not have a significant effect on the percentage
of total obligations incurred for combat forces in fiscal year
1995--an increase from 21.5 percent to 22.4 percent.
Finally, it should be noted that the report does not conclude, as
suggested by DOD, that the Army budget for management, command, and
servicewide activities was too large in comparison to the combat
forces budget. The report reaches no conclusions about the relative
significance of the combat forces budget as compared to the budget
for management, command, and servicewide activities.
DOD also commented that it disagreed with our statement that only
one-third of Army's and Air Force's O&M funds are obligated for
combat forces, including training and recruitment. DOD said that
some noteworthy examples that we considered to be support activities,
but that they believe contribute directly to combat readiness,
include the national foreign intelligence program, national space
assets, early warning systems, significant airlift costs, warfighting
logistics, and command and control systems.
We agree that the activities cited by DOD contribute to readiness as
do many other O&M funded activities. The point of our report was not
that certain O&M funded activities do or do not contribute to
readiness. Instead, the report was intended to identify those
expenditures that could be directly related to combat forces as
opposed to infrastructure activities. In categorizing the various
costs, we used the Institute for Defense Analyses, the JCS, and the
Office of Program Analysis and Evaluation criteria for defining
defense missions and infrastructure. In essence, the criteria
provide that, if the activity deploys with the combat force, it is
defense mission related. If, on the other hand, it operates from a
fixed location, it is infrastructure. Based on this criteria, we
believe that our categorizations of what is combat force related and
what is infrastructure related are appropriate.
DOD further commented that it did not agree with the report's
categorization of noncombat activities. DOD said that many of these
activities enhance combat capability and are not merely "nice to
have" programs that are funded at the expense of combat elements.
The use of the term noncombat was to distinguish the "other than
combat" activities from the category labeled "combat forces"
activities. The purpose of this delineation was to illustrate what
portion of the O&M funds were used for those O&M activities that
could be directly related to the combat forces as opposed to those
O&M activities that were infrastructure related. This categorization
was not, in any way, intended to imply that the infrastructure
related activities do not contribute to combat capability. To avoid
confusion, we deleted the word "noncombat" from the report section.
DOD also provided suggested clarification to other issues cited in
the report. We considered the clarifying information and made
changes where deemed appropriate. DOD comments are presented in
their entirety in appendix IV.
---------------------------------------------------------- Letter :8.1
The scope and methodology of our review are discussed in appendix I.
We are sending copies of this report to the Secretaries of the Army,
the Navy, and the Air Force; the Director, Office of Management and
Budget; and the Chairmen, House Committee on Government Reform and
Oversight, Senate Committee on Governmental Affairs, the House and
Senate Committees on Appropriations, House Committee on National
Security, Senate Committee on Armed Services, and Senate Committee on
the Budget.
Please contact me on (202) 512-5140 if you have any questions
concerning this report. Major contributors to this report are listed
in appendix V.
Sincerely yours,
Mark E. Gebicke
Director, Military Operations
and Capabilities Issues
SCOPE AND METHODOLOGY
=========================================================== Appendix I
To obtain the budget and obligation data and an explanation of
program elements and how they are used in the budget process, we held
discussions with Army, Navy, and Air Force financial management
officials. We also reviewed the Army's manual on financial
management, which provided a definition of the program elements
associated with the operation and maintenance (O&M) appropriation.
The Air Force did not have a similar manual but did provide us with
some program element definitions. We also reviewed the Institute for
Defense Analyses' (IDA) recent paper, A Reference Manual for Defense
Mission Categories, Infrastructure Categories, and Program Elements,
to help us categorize the program element codes.
To evaluate how the services are using their O&M funds, we asked them
to provide us with their budget requests, appropriations, and
obligations by program element code for fiscal years 1993 through
1995. The Navy was unable to provide any information at the program
element level because that type of data is not maintained at the
headquarters level. As a result, we did not include the Navy in our
analysis. Also, the Army and the Air Force were unable to provide
appropriation data by program element code because neither service
allots the appropriation below the subactivity level.
Using the Army and the Air Force databases, we divided the program
element codes into four broad categories: combat forces and support
of combat forces, training and recruiting, base support, and
management, command, and servicewide activities. The rationale for
these categorizations was the services' program element definitions
as well as definitions developed by IDA, the Office of Program
Analysis and Evaluation, and the Joint Chiefs of Staff (JCS). The
IDA and Office of Program Analysis and Evaluation divided the
services' program elements into two broad classes--defense missions
and infrastructure. Defense missions were defined as those
activities that produced the expected outputs of the Department of
Defense as well as activities that directly support the mission by
deploying with combat forces. Both the IDA and the JCS defined
infrastructure as those activities that are operated from a fixed
location.
All program elements were then placed in the appropriate category
even though the program element may have been categorized differently
in the service's budget document. For example, all program elements
related to environmental activities were included in the base support
category. Similarly, all program elements for management of
headquarters activities were included in the management, command, and
servicewide activities category. We then calculated the percentage
of both budgeted and obligated funds by category to determine the
funding levels for the various O&M activities. Our review was
performed between October 1995 and February 1996 at the Army, the Air
Force, and the DOD headquarters level in accordance with generally
accepted government auditing standards.
ARMY FISCAL YEAR 1995
========================================================== Appendix II
(Dollars in thousands)
Program Element Requeste Obligate
Code Program Element Title d d
--------------- --------------------------------- -------- --------
COMBAT FORCES
111011 Divisions $1,555,7 $1,134,7
37 25
111012 Nondivisional Combat Brigades/ 46,202 97,596
Regiments
111013 Other Nondivision Combat Units 181,535 189,891
======================================================================
Subtotal $1,783,4 $1,422,2
74 12
SUPPORT OF FORCES
112013 Special Ammunition Control $224 $0
112014 Tactical Support Other Units 81,916 80,928
112015 Tactical Support Communications 21,932 26,451
Units
112016 Tactical Support Intelligence 26,430 62,091
Units
112017 Tactical Support Medical Units 87,222 108,409
112018 Tactical Support Logistics Units 438,033 374,428
112019 Tactical Support Administration 10,273 10,270
Units
112020 Tactical Support Maintenance of 275,529 363,044
Tactical Equipment
112021 Tactical Support Defense Airborne 21,400 16,229
Reconnaissance
112025 Tactical Support DCS Network 27,351 30,726
112086 Special Mission Support Centam 0 5
Activity
112089 Communications Support 30,966 30,209
114114 Air Traffic Control Tactical 5,284 6,265
112091 Intelligence Support Activities 96,105 90,808
113081 Theater Air Defense Forces 5,983 13,660
113085 Theater Defense Forces 71,367 52,599
118207 Depot Maintenance 1,037,33 1,002,07
8 1
211029 Army Strategic Mobility Program 284,647 281,386
212030 War Reserve Material-Ammunition 0 19,698
212031 War Reserve Material- 54,718 82,782
Nonammunition
214037 POMCUS 142,299 116,412
======================================================================
Subtotal $2,719,0 $2,768,4
17 71
======================================================================
Total $4,502,4 $4,190,6
91 83
----------------------------------------------------------------------
(Dollars in thousands)
Program Element Requeste Obligate
Code Program Element Title d d
--------------- --------------------------------- -------- --------
OFFICER ACQUISITION
311721 Service Academy $47,603 $47,475
311722 Officer Candidate School 135 113
314723 ROTC 109,642 112,649
======================================================================
Subtotal $157,380 $160,237
SKILL TRAINING
312711 Recruit Training $3,622 $4,319
313761 One Station Unit Training 15,453 12,595
321731 General Skills Training 202,930 202,148
321733 General Intelligence Skills 9,592 10,262
Training
321734 Cryptologic/Signal Intelligence- 10,834 3,029
Related Skills Training
322741 Undergraduate Pilot Training 107,485 85,066
322743 Other Flight Training 150,682 132,242
======================================================================
Subtotal $500,598 $449,661
OTHER TRAINING
114093 Force Related Training $457,331 $371,232
116011 JCS Directed and Coordinated 66,412 52,203
Exercises
324731 Training Support to Units 46,396 85,052
======================================================================
Subtotal $570,139 $508,487
PROESSIONAL EDUCATION
434761 Education/Training Counterdrug $0 $292
334751 Army Civilian Training 84,274 78,048
323751 Professional Military Education 72,528 57,463
323752 Other Professional Education 14,768 13,176
334753 Acquisition Corps 5,072 5,196
333732 Army Continuing Education System 85,634 80,683
======================================================================
Subtotal $262,276 $234,858
TRAINING SUPPORT
324774 Air Traffic Control (ATC) $5,511 $4,523
Management
324020 Tactical Support-Maintenance of 120,650 48,072
Tactical Equipment
324771 Support of the Training 102,313 135,004
Establishment
324772 Training Developments 58,011 71,626
324773 ATC/Ground Support/Range 22,402 26,430
Operations
======================================================================
Subtotal $308,887 $285,655
RECRUITING
312714 Personnel Processing Activities $5,544 $6,528
331711 Personnel Procurement 86,254 92,169
331712 Advertising Activities 51,778 63,494
331715 Recruiting and Examining Data 24,355 20,866
Processing Activities
332713 Personnel Procurement Examining 54,080 51,218
Activities
332716 Examining Data Processing 0 13,793
Activities
======================================================================
Subtotal $222,011 $248,068
RECRUITING LEASES
336896 Military Entrance Processing $31,457 $29,691
Stations Leases
336996 Recruiting Leases 101,865 100,534
======================================================================
Subtotal $133,322 $130,225
OTHER
335721 JROTC $67,714 $67,781
333733 Veterans Education Assistance 25,326 19,007
Program
======================================================================
Subtotal $93,040 $86,788
======================================================================
Total $2,247,6 $2,103,9
53 79
----------------------------------------------------------------------
(Dollars in thousands)
Program Element Requeste Obligate
Code Program Element Title d d
--------------- --------------------------------- -------- --------
BASE COMMUNICATIONS
336795 Base Communications $18,969 $19,719
325795 Base Communications 31,892 35,148
315895 Base Communications 1,240 1,359
117095 Base Communications 63,691 93,246
438295 Base Communications 22,077 25,550
Administration
438895 Base Communications Logistics 28,782 91,961
======================================================================
Subtotal $166,651 $266,983
AUDIO VISUAL ACTIVITIES
336790 Audio Visual Support $2,784 $2,809
315890 Audio Visual Information 2,470 2,709
Production
438890 Audio Visual Support 3,600 5,128
438490 Audio Visual Support 557 676
325790 Audio Visual Support 15,529 25,681
117090 Audio Visual Support 11,976 21,466
======================================================================
Subtotal $36,916 $58,469
BASE OPERATIONS
117096 Base Operations $2,175,3 $2,266,4
43 62
325796 Base Operations 701,614 743,524
438896 Base Operations 283,856 279,789
315896 Base Operations 61,010 64,179
438796 Base Operations Medical-HSC Youth 0 558
Development
438396 Real Estate Leases 123,849 150,777
======================================================================
Subtotal $3,345,6 $3,505,2
72 89
CHILD AND FAMILY SERVICES
117719 Child Development $57,832 $67,180
325719 Child Development Services 18,662 17,466
438719 Child Development Services 12,720 14,608
315819 Child Development Services USMA 1,212 1,303
325720 Family Centers 7,990 5,979
438720 Family Centers 9,864 7,864
117720 Family Centers 25,801 24,605
315820 Family Centers 390 301
======================================================================
Subtotal $134,471 $139,306
ENVIRONMENTAL ACTIVITIES
439008 DERA $0 $669,196
325756 Environmental Compliance 103,058 82,600
117056 Environmental Compliance 294,326 283,490
438856 Environmental Compliance 65,129 81,982
315856 Environmental Compliance USMA 2,625 5,996
======================================================================
Subtotal $465,138 $1,123,2
64
MAINTENANCE AND REPAIR
325778 Maintenance and Repair $169,857 $171,487
117078 Maintenance and Repair 532,109 709,371
438878 Maintenance and Repair 45,400 54,868
315878 Maintenance and Repair USMA 45,223 38,125
======================================================================
Subtotal $792,589 $973,851
MINOR CONSTRUCTION
325776 Minor Construction $13,601 $14,978
117076 Minor Construction 36,456 88,194
315876 Minor Construction USMA 1,130 1,255
438876 Minor Construction 4,446 5,672
======================================================================
Subtotal $55,633 $110,099
======================================================================
Total $4,997,0 $6,177,2
70 61
----------------------------------------------------------------------
(Dollars in thousands)
Program Element Requeste Obligate
Code Program Element Title d d
--------------- --------------------------------- -------- --------
INFORMATION MANAGEMENT
115152 WIS $48,319 $46,203
432614 Info Systems Selection 4,649 5,819
Acquisition
2610 Information Management 0 0
311612 Information Management-Auto 6,733 6,354
Support USMA
434612 Information Management Automation 44,791 46,005
Support
324612 Information Management Automation 16,285 5,133
Support
432612 Information Management Automation 212,012 192,618
Support
112612 Information Management Automation 28,138 44,103
Support
435612 Information Management Automation 43,134 47,747
Support
423612 Information Management Automation 102,851 114,897
Support
432616 Information Management Central 56,972 52,426
Software
423616 Information Management Central 26,758 10,438
Software Design Activities
432100 Information Management 0 0
Reimbursable Nonautomation
Programs
435611 Information Program Management 636 549
423611 Information Program Management 3,058 2,477
432611 Information Program Management 79,749 87,151
112611 Information Program Management 4,713 8,964
324611 Information Program Management 14,618 1,772
======================================================================
Subtotal $693,416 $672,656
HEADQUARTERS AND COMMAND
ACTIVITIES
411398 Management Headquarters GDIP $3,842 $4,375
411198 Management 13,874 13,375
Headquarters(Crypotologic)
411298 Management Headquarters(FCI) 678 669
441098 Management Headquarters 19,432 18,436
431A98 Management Headquarters US Army 8,747 3,595
Acquisition Executive Support
Agency
122398 Management Headquarters USEUCOM 15,412 11,859
431398 Management Headquarters 105,535 127,001
Departmental
431498 Management Headquarters 22,457 17,239
Departmental Headquarters
Support
431998 Management Headquarters 37,270 47,790
Information
431898 Management Headquarters Logistics 108,226 123,014
431D98 Management Headquarters PEO 2,274 3,627
Information
431698 Management Headquarters PEOs 23,577 22,385
431298 Management Headquarters Public 2,692 3,177
Affairs
431C98 Management Headquarters Space 208 49
Activities
324798 Management Headquarters TRADOC 25,592 36,734
431598 Management Headquarters USACIDC 2,998 3,690
122598 Management Headquarters 5,109 6,601
USSOUTHCOM
431B98 Management Headquarters WWMCCS 2,274 6,103
122498 Management Headquarters PACOM 1,092 3,258
113098 Management Headquarters 130,791 132,061
431798 Management Headquarters OCE 1 0
Activities
331798 Management Headquarters USAREC 9,625 12,616
431098 Management Headquarters Traffic 492 0
121198 Management Headquarters Concept 850 917
Analysis Agency
411998 Security and Intelligence 1,528 3,312
Activities Management
Headquarters
122113 USEUCOM Activities 16,844 5,284
122114 USPACOM Activities 61 0
122115 USSOUTHCOM Activities 3,812 33,058
121018 Combat Development Activities 128,204 129,710
======================================================================
Subtotal $693,497 $769,935
INTERNATIONAL ACTIVITIES
411145 Arms Control Implementation $39,237 $31,624
441004 International Activities 246,093 256,701
442010 Miscellaneous Support to Other 18,177 24,836
Nations
442002 Foreign Military Sales Program 0 40
Personnel
442015 Technology Transfer 2,090 2,115
======================================================================
Subtotal $305,597 $315,316
SECURITY AND INTELLIGENCE
PROGRAMS
411011 Cryptologic Activities $70,281 $75,977
411055 Cryptologic Communications 6,085 4,575
411127 Foreign Counterintelligence 23,914 23,820
Activities
411128 Security and Investigation 52,990 38,490
Activities
411302 Army Intelligence Agency 55,397 58,561
411318 HUMINT 33,064 32,720
411321 HUMINT Overt 23,247 21,402
411327 Technical Reconnaissance and 9,394 9,248
Surveillance
411329 European Command GDIP Activities 25,492 31,129
411330 Pacific Command GDIP Activities 723 410
411334 Other Command GDIP Activities 8,294 6,526
411335 Automated Data Processing GDIP 29,400 25,462
Support
411339 Intelligence, Telecommunications, 3,256 2,825
and Defense Special Security
System
112119 Tactical Cryptologic Activities 28,065 25,359
======================================================================
Subtotal $369,602 $356,504
PROJECT MANAGEMENT AND TESTING
423806 Acquisition Support to Project $0 $2
Managers
423808 Acquisition Support to PEO 0 80
432615 Product/Project/Program Managers 24,112 43,112
423829 System/Program/Project/Product 42,549 52,289
Management
121015 Combat Development Test, 93,351 108,506
Experimentation, and
Instrumentation
======================================================================
Subtotal $160,012 $203,989
LOGISTICS ACTIVITIES
423005 Disposal of Radioactive Material $2,978 $6,828
423012 Logistic Support Activity 137,293 213,669
423892 Troop Issue Subsistence Activity 27,264 30,183
421028 Other Transportation Related 44,316 52,119
Activities
421010 Second Destination Transportation 500,516 422,283
213045 Industrial Preparedness 89,728 91,203
422121 End Item Integrated Material 385,524 383,363
Management
424041 Ammunition Commodity Management 388,599 396,952
437018 Construction and Real Estate 98,209 92,924
Administration
422120 End Item Supply Depot Support 93,000 66,921
======================================================================
Subtotal $1,767,4 $1,756,4
27 45
DRUG ACTIVITIES
434779 Drug Abuse Treatment Activities $0 $1,563
434711 Drug Abuse Residential Treatment 0 594
434789 Drug Abuse Prevention (OSD) 0 21,479
434714 Other Counterdrug Activities 0 11,440
122189 Counterdrug Activities 31,848 62,201
======================================================================
Subtotal $31,848 $97,277
PERSONNEL AND FAMILY ACTIVITIES
434710 Community and Family Support $39,558 $33,843
Activities
434716 Other Personnel Activities 43,879 27,309
433709 Army Personnel Management and 81,413 73,803
Support Activities
434734 Army Career Alumni Program 19,750 18,681
114092 Special Activities 723,829 1,499,96
4
======================================================================
Subtotal $908,429 $1,653,6
00
ADMINISTRATIVE
434707 Correctional Facilities $10,197 $9,461
432617 Publications,Printing, and 21,972 20,325
Reproductions
432618 Records Management and Mailroom 9,992 8,454
Operations
434771 Armed Forces Radio and TV Service 16,759 16,156
435212 Servicewide Support 461,606 440,292
435520 Criminal Investigations 28,831 29,639
435214 Public Affairs 7,750 9,151
436099 Claims and Admin Support 177,564 123,673
435027 DBOF Support 0 1,614
439900 Reimbursable Sale of Supplies 0 -59
451020 Closed Accounts Adjustments 0 5,472
431022 Foreign Currency Fluctuation 0 245,549
======================================================================
Subtotal $734,671 $909,727
SPACE AND SATELLITE ACTIVITIES
432169 Army Space Activities $24,229 $26,877
432142 SATCOM 53,467 40,058
======================================================================
Subtotal $77,696 $66,935
COMMUNICATIONS AND COMMAND
122117 Airborne Command Post $68 $97
115145 Strategic Command and Control 13,177 12,410
Facilities
432111 Strategic Army Communications 149,126 0
(STARCOM)
432168 National Center for Communication 3,679 3,724
and Electronics
432126 DCS Long-Haul Communication 148,860 224,708
432140 Information Security 16,675 18,301
======================================================================
Subtotal $331,585 $259,240
======================================================================
Total $6,073,7 $7,061,6
80 24
Total Army O&M $17,820, $19,533,
99 54
----------------------------------------------------------------------
AIR FORCE FISCAL YEAR 1995
========================================================= Appendix III
(Dollars in thousands)
Program Element Requeste Obligate
Code Program Element Title d d
--------------- --------------------------------- -------- --------
COMBAT FORCES
11113F B-52 Squadron $288,213 $321,306
11118F Short Range Attack Missile (AGM- 1,508 1,283
69)
11120F Advanced Cruise Missile 32,460 18,244
11122F Air Launched Cruise Missile 22,357 20,067
11124F Harpoon 1,188 1,361
11126F B-1B Squadrons 482,062 482,173
11127F B-2 Squadrons 205,673 86,410
11128F B-52 Conventional Squadrons 202 1,088
11213F Minuteman Squadrons 385,640 297,821
11215F Peacekeeper Squadrons 86,258 140,928
11235F ICBM Helicopter Support 5,901 12,530
11313F STRAT War Planning System 48,796 43,413
USSTRATCOM
12120F F-16AD Interceptor Squadron 0 7
27128F F-4 Squadrons 64,816 35,644
27129F F-111 Squadrons 73,029 151,895
27130F F-15 A/B/C/D Squadrons 516,705 606,455
27131F A-10 Squadrons 73,878 93,790
27133F F-16 Squadrons 510,878 461,102
27134F F-15E Squadrons 258,895 271,802
27136F Manned Destructive Supression 1,747 715
27141F F-117A Squadrons 222,773 219,833
27161F Tactical Aim Missile 2,072 946
27162F Tactical AGM Missiles 2,134 207
27163F Advance Medium Range A/A Missile 28 0
(Procurement)
27165F Standoff Attack Weapon 616 514
27222F KC-10A 15,986 7,556
27223F KC-135S 49,138 76,268
27249F Lantirn Procurement 3,508 5,399
27252F EF-111 Squadrons 193,353 77,983
27313F Maverick 1,092 4,235
27581F Joint Stars 5,664 5,408
44011F Special Operations Forces 54,913 56,661
======================================================================
Subtotal $3,611,4 $3,503,0
83 44
SUPPORT OF FORCES
21121F USSOCOM Command & Control $1,749 $1,216
Platform
27247F Air Force Tencap 20,195 14,360
27248F Special Evaluation Program 15,169 18,490
27253F Compass Call 88,616 87,446
27411F Overseas Air Weapon Control 8,985 5,794
System
27412F Theater Air Control System 63,997 52,429
27414F Combat Intelligence System 924 1,526
27415F TBM Core C2 System 613 4,296
27416F Tactical Command/Control System 205 146
27417F Airborne Warning & Control System 162,792 168,885
27418F Tactical Airborne Control System 50,680 48,963
27419F Tactical Airborne CMD & Control 13,759 17,134
System
27422F Deployable C3 Systems 23,722 27,874
27423F Advanced Communications Systems 0 56
27425F Command Communications (TAC) 10,605 17,736
27431F Combat Air Intelligence System 50,562 48,814
Activities
27432F Aircraft Delivery 703 560
27433F Advanced Program Technology 33,293 37,820
27434F JTIDS Class 2/2H Terminal Supt 2 137
Act
27442F Common Electronic Countermeasures 3,422 6,534
EQ
27587F Special Recon Systems 5,029 1,564
27591F Advanced Program Evaluation 35,643 32,589
27593F Chemical/Biological Defense 7,909 7,224
Program
28006F Mission Planning Systems 19,618 21,000
28007F Tactical Deception 2,667 2,426
28010F JT Tactical Command Program (TRI- 1,930 0
TAC)
35116F Aerial Targets 768 350
35155F Theater Nuclear Weapon Storage & 286 113
Sec System
41115F C-130 Airlift Squadrons 50,376 208,097
41218F KC-135S 327,718 259,186
41219F KC-10S 166,698 165,819
41315F SOUTHCOM Stol Aircraft 22,856 24,200
44102F Aerospace Rescue and Recovery 27,732 44,547
72207F Depot Maintenance (NON-IF) 145,950 132,569
28030F WRM--Ammunition 18,775 16,472
28031F WRM--Equipment/Secondary Items 134,349 185,902
======================================================================
Subtotal $1,518,2 $1,662,2
97 74
======================================================================
Total $5,129,7 $5,165,3
80 18
----------------------------------------------------------------------
(Dollars in thousands)
Program Element Requeste Obligate
Code Program Element Title d d
--------------- --------------------------------- -------- --------
OFFICER ACQUISITION
84721F Service Academy $44,438 $47,451
84722F Officer Candidate Schools 1,767 1,523
84723F Reserve Officer Training Corps 37,529 36,306
84724F Other College Commissioning 356 348
Programs
======================================================================
Subtotal $84,090 $85,628
SKILL TRAINING
84711F Recruit Training Units $4,398 $4,539
84731F General Skill Training 174,813 152,312
84733F General Intelligence Skill 9,219 5,096
Training
84734F Crypto/Sigint Related Skill 14,471 10,912
Training
84735F Undergraduate Space Training 684 4,834
84741F Undergraduate Pilot Training 274,034 219,574
84742F Undergraduate Navigator Training 25,243 19,493
84743F Other Flight Training 5,145 14,498
84744F EURO-NATO Joint Jet Pilot 20,031 30,554
Training
84748F Flight Screening 7,676 10,437
84749F Instrument Flight Center 768 0
86761F Education & Training-Health Care 0 8
86861F Education & Training-Health Care 0 1,296
======================================================================
Subtotal $536,482 $473,553
OTHER TRAINING
11897F Training (Offensive) $61,288 $23,392
12897F Training (Defensive) 13,633 85
27218F TAC FTR TNG (Aggressor) Sq 7,619 8,250
27597F Training-Tactical Air Forces 445,367 530,305
28011F JCS Directed and Coordinated 29,265 36,891
Exercises
41897F Training 292,327 282,131
======================================================================
Subtotal $849,499 $881,054
PROFESSIONAL EDUCATION
84751F Professional Military Education $37,130 $40,256
84752F Other Professional Education 42,912 42,745
88751F Civilian Training/Education/Dev 77,856 74,971
89732F Off-Duty/Voluntary Education 75,280 82,419
Program
======================================================================
Subtotal $233,178 $240,391
TRAINING SUPPORT
27428F TAC Fighter Weapons Center Range $32,594 $34,275
27429F Combat Training Range Equipment 9,323 11,953
27580F Ground Training Munitions 8 6
84771F Support of Training Establishment 12,845 23,416
84772F Training Developments 14,767 13,621
89731F Training Support to Units 13,402 4,203
======================================================================
Subtotal $82,939 $87,474
RECRUITING
81711F Recruiting Activities $34,679 $35,454
81712F Advertising Activities 7,206 13,052
81713F Examining Activities 1,575 1,631
81714F Personnel Processing Activities 1,860 1,173
======================================================================
Subtotal $45,320 $51,310
OTHER
89721F Junior ROTC $20,908 $20,456
89733F Veterans Educational Assistance 2,806 2,500
Program
======================================================================
Subtotal $23,714 $22,956
======================================================================
Total $1,855,2 $1,842,3
22 66
----------------------------------------------------------------------
(Dollars in thousands)
Program Element Requeste Obligate
Code Program Element Title d d
--------------- --------------------------------- -------- --------
BASE COMMUNICATIONS
91295F Base Communications $11,858 $12,831
(Administrative)
72895F Base Communications (Logistics) 41,014 33,784
85795F Base Communications (Training) 17,321 16,703
27595F Base Communications-Tactical Air 57,339 101,272
Forces
35895F Base Communications 17,510 29,296
11895F Base Communications (Offensive) 21,834 17,611
85895F Base Communications-Service 3,627 3,537
Academy
12895F Command and Base Communications- 582 211
Air Defense
41895F Command and Base Communications- 30,336 23,387
AMC
======================================================================
Subtotal $201,421 $238,632
AUDIO VISUAL ACTIVITIES
12890F Visual Info Activities-Strategic $1,530 $2,506
28090F Visual Info Activities-Tactical 4,068 8,489
35890F Visual Info Activities-OTH 4,217 6,494
Program 3
41890F Visual Info Activities-Airlift 3,106 2,837
72890F Visual Info Activities-Logistics 8,480 7,728
85790F Visual Info Activities-Training 5,502 6,090
92490F Visual Info Activities-Admin 16,765 12,329
======================================================================
Subtotal $43,668 $46,473
BASE OPERATIONS
11896F Base Operations-Offensive $210,145 $154,119
91296F Base Operations-Admin 108,882 104,923
41896F Base Operations-Airlift 345,068 362,293
12896F Base Operations-Defensive 7,456 912
72896F Base Operations-Logistics 349,234 415,393
85896F Base Operations-Service Academy 48,520 24,031
85796F Base Operations-Training 330,342 209,660
31196F Base Operations-Crypto 7,638 2,243
35896F Base Operations-Other Programs 187,005 117,844
27596F Base Operations-Tactical 961,278 886,513
======================================================================
Subtotal $2,555,5 $2,277,9
68 31
CHILD AND FAMILY SERVICES
78719F Child Development $8,709 $12,527
48719F Child Development 10,502 12,631
98719F Child Development 1,481 1,393
88719F Child Development 6,532 7,148
35919F Child Development 2,699 4,308
28719F Child Development 29,667 43,286
41719F Child Development 0 3
85719F Child Development-Service Academy 763 762
78720F Family Center 3,933 3,845
88720F Family Centers 4,651 3,771
35920F Family Centers 1,460 1,656
98720F Family Centers 1,579 503
48720F Family Centers 4,335 3,662
28720F Family Centers 20,709 14,873
85720F Family Centers-Service Academy 153 203
======================================================================
Subtotal $97,173 $110,571
ENVIRONMENTAL ACTIVITIES
78008F Defense Environmental Restoration $47 $367,684
Program
85856F Environmental Compliance Service 2,320 1,756
Academy
35856F Environmental Compliance 28,132 23,857
41856F Environmental Compliance 33,753 26,556
31156F Environmental Compliance 0 155
91256F Environmental Compliance 2,070 5,181
78056F Environmental Compliance 86,853 78,979
11856F Environmental Compliance 41,468 31,199
27456F Environmental Compliance 93,249 115,202
12856F Environmental Compliance 2,862 2,230
85756F Environmental Compliance- 30,170 17,328
Training
78053F Environmental Conservation 0 1,856
28853F Environmental Conservation 0 13,209
11853F Environmental Conservation 0 2,710
35853F Environmental Conservation 0 3,559
41853F Environmental Conservation 0 734
85853F Environmental Conservation- 0 158
Service Academy
85753F Environmental Conservation- 0 875
Training
35854F Pollution Prevention 0 1,917
28854F Pollution Prevention 0 12,501
11854F Pollution Prevention 0 2,244
78054F Pollution Prevention 83,097 53,940
41854F Pollution Prevention 0 5,968
85854F Pollution Prevention-Service 0 407
Academy
85754F Pollution Prevention-Training 0 3,568
======================================================================
Subtotal $404,021 $773,773
MAINTENANCE AND REPAIR
12878F Maintenance and Repair-Defensive $1,703 $1,516
11878F Maintenance and Repair-Offensive 126,569 143,529
41878F Maintenance and Repair-Airlift 133,272 143,853
31178F Maintenance and Repair- 6,447 5,533
Cryptologic
72878F Maintenance and Repair-Logistics 233,763 233,298
35878F Maintenance and Repair-Other 98,657 102,905
Program
85878F Maintenance and Repair-Service 31,851 34,709
Academy
85778F Maintenance and Repair-Training 126,363 157,869
27578F Maintenance and Repair-Tactical 493,239 667,407
91278F Maintenance and Repair- 5,742 24,903
Administrative
91279F Real Property Services- 0 6,552
Administrative
31179F Real Property Services- 0 1,879
Cryptologic
12879F Real Property Services-Defensive 0 1,600
72879F Real Property Services-Logistics 0 144,627
41879F Real Property Services-Mobility 0 97,548
Forces
11879F Real Property Services-Offensive 0 101,181
35879F Real Property Services-Other 0 119,807
Programs
85879F Real Property Services-Service 0 18,082
Academy
27479F Real Property Services-Tactical 0 365,618
Air Force
85779F Real Property Services-Training 0 70,422
======================================================================
Subtotal $1,267,6 $2,442,8
06 38
MINOR CONSTRUCTION
12876F Minor Construction (RPM) $0 $2
(Defensive) (H)
31176F Minor Construction (RPM)- 1,529 4,280
Cryptologic
35876F Minor Construction (RPM)-Other 8,705 9,034
Program
85876F Minor Construction (RPM)-Service 3,244 1,818
Academies
27576F Minor Construction (RPM)-TAC Air 51,337 26,766
Forces
91276F Minor Construction (RPM)- 1,055 1,932
Administrative
11876F Minor Construction (RPM) 11,061 8,283
(Offensive)
72876F Minor Construction (RPM)- 9,946 13,678
Logistics
41876F Minor Construction (RPM)-Airlift 8,864 8,024
85776F Minor Construction (RPM)- 8,296 15,165
Training
======================================================================
Subtotal $104,037 $88,982
ENGINEERING INSTALLATION SUPPORT
35123F AFCC Engineering and Installation $76,305 $67,504
35914F Engineering Inst Supt-SPACECOM 756 815
91240F Engineering Installation- 525 493
Administrative
27436F Engineering Installation Support- 10,271 16,682
CAF
78029F Engineering Installation Support- 1,923 2,365
AFM
41842F Engineering Installation Support- 1,806 2,163
AMC
85760F Engineering Installation Support- 692 969
AETC
======================================================================
Subtotal $92,278 $90,991
======================================================================
Total $4,765,7 $6,070,1
72 91
----------------------------------------------------------------------
(Dollars in thousands)
Program Element Requeste Obligate
Code Program Element Title d d
--------------- --------------------------------- -------- --------
INFORMATION MANAGEMENT
33151F WWMCCS-ADP $0 $8,320
33152F Automated Data Processing EQ 11,664 5,133
38610F Information Management Automation 108,545 93,046
Program
38611F CMN AF Improvement & Insert 14,203 7,086
Program
======================================================================
Subtotal $134,412 $113,585
HEADQUARTERS AND COMMAND
ACTIVITIES
11830F Operational Headquarters $2,399 $1,447
(Offensive)
11898F Management Headquarters 23,653 24,847
(USSTRATCOM)
12816F Operational Headquarters 6,471 6,112
(Defensive)
12898F Management Headquarters 381 0
(Strategic DEF FOR) (H)
13121F US Space Command (SPACECOM) 2,589 6,053
Activities
13122F US Element (NORAD Activities) 434 1,026
13198F Management Headquarters (US 2,109 1,883
Element NORAD)
13298F Management Headquarters (US Space 4,095 7,139
Command)
21138F US Central Command (CENTCOM) 7,517 7,865
Activity
21898F Management Headquarters (US 2,083 2,082
CENTCOM)
27236F Operational Headquarters (TAF) 10,495 23,427
27242F Special Program Applications 2,651 2,650
27438F Theater Battle Management (TBM) 20,254 22,634
C4I
27598F Management Headquarters (TAC Air 46,956 92,440
Forces)
27601F USAF Wargaming and Simulation 11,352 18,783
28015F Combat Developments 74,452 104,538
28044F Objectives & Program Evaluation 63 0
28098F Management Headquarters 3,919 4,041
(Electronic Security)
31398F Management Headquarters GDIP 601 3,717
35998F Management Headquarters-Space 14,888 19,577
Command
41898F Management Headquarters (Airlift) 29,044 46,096
(Non-DBOF)
72898F Management Headquarters 64,887 69,033
(Logistics)
84775F Operational Headquarters 1,178 1,634
(Technical Training)
84777F Operational Headquarters (FT) 331 3,393
84779F Air University Headquarters 0 3,786
85798F Management Headquarters 26,587 34,216
(Training)
91225F Air Force Combat Operations Staff 685 1,025
91298F Management Headquarters (Public 647 649
Affairs)
92398F Management Headquarters 64,165 69,976
(Departmental)
92498F Management Headquarters 19,805 19,366
(Administrative)
92898F Management Headquarters-ADP 0 69
Support (OSD)
92998F Management Headquarters-ADP 25,379 41,320
Support (AF)
A1098F Management Headquarters 565 964
(International)
A1198F Management Headquarters 847 802
Technology Transfer Functions
31198F Management Headquarters 8,871 11,668
(Cryptologic)
======================================================================
Subtotal $480,353 $654,258
INTERNATIONAL ACTIVITIES
27216F US Aircraft Cross-Servicing $49 $85
35145F Arms Control Implementation 32,620 24,368
A1004F International Activities 1,063 1,240
A1009F Service Support to OSD/DSAA- 0 1
REIMBUR
A1010F Misc Support to Other Nations 2,249 2,143
A1012F NATO AEW+C Program 2,347 17,762
======================================================================
Subtotal $38,328 $45,599
SECURITY AND INTELLIGENCE
PROGRAMS
11133F SR-71 Squadrons (H) $0 $159
12325F Joint Surveillance System 46,888 46,950
12331F Communications (416-L) 19,300 28,579
12411F North Atlantic Defense System 19,747 12,778
12412F North Warning System 105,251 53,140
12417F Over-the-Horizon Radar 6,254 10,668
12444F Over-the-Horizon Radar System 0 48
Communication
27217F Podded Reconnaissance System 752 0
(PRS)
27435F Tactical Recon Imagery 2,612 2,536
Exploitation
27579F Advanced Systems Improvement 0 928
27589F Base Physical Security Systems 4,214 4,341
28019F Tactical Information Program 4,247 6,314
28040F Project Elegant Lady 0 -197
28047F Anti-Terrorism 1,868 1,719
31011F Cryptologic Activities 43,419 43,217
31055F Cryptologic Communications 7,005 4,684
31305F Intelligence Production 10,581 6,399
Activities
31310F Foreign Technology Divison 89,157 82,433
31313F Defense Dissemination Program 11,366 10,632
31314F Infrared/EO/DEW Processing/ 0 41
Exploit
31315F Missile and Space Technology 32,730 37,242
Collection
31317F Senior Year Operations 404 114
31318F HUMINT (Controlled) 1,812 1,765
31321F HUMINT (Overt) 11,332 8,956
31324F Forest Green 49,196 47,377
31328F Strategic Air CMD GDIP Activities 21,314 20,683
31329F European Command GDIP Activities 580 0
31334F Other Commands GDIP Activities 22,546 22,771
31335F Automated Data Processing GDIP 41,883 48,604
SPT
31336F Central Command GPID Activities 16,177 15,729
31339F Intel Comm & Def Spec Security 16,426 13,629
System
33140F Information Systems Security 22,739 24,146
Program
35124F Special Applications Program 4,298 3,455
35127F Foreign Counterintelligence 11,033 12,065
Activities
35128F Security/Investigative Activities 42,793 42,152
35142F Applied Technology & Integration 32,724 27,241
35154F Defense Airborne Reconnaissance 454,458 499,936
Office
35172F Combined Advanced Application 55,381 56,650
35887F Electronic Combat Intelligence 1,990 609
Support
35892F Special Analysis Activities 1,342 1,851
35902F Ballistic Missile Tactical 4,400 4,136
Warning/Attack Asses System
35908F TW/AA Interface Network 13,195 7,621
35909F Ballistic Missile Early Warning 69,182 70,645
Systems
35911F Defense Support Program 80,996 62,073
35912F SLBM Radar Warning Systems 15,189 22,318
35913F NUDET Detection System 2,217 2,003
41300F Mobility Air Intel System 162 154
Activities
91222F Defense Courier Service 14,210 13,701
======================================================================
Subtotal $1,413,3 $1,382,9
70 95
PROJECT MANAGEMENT AND TESTING
27426F Air Force Operational Test and $23,660 $24,386
Evaluation Center
72806F Acquisition and Command Support 325,852 338,489
======================================================================
Subtotal $349,512 $362,875
LOGISTICS ACTIVITIES
41122F Airlift Support Services (IF)(H) $0 $221
41216F Airlift Mission Activities 1,364,20 1,272,30
0 4
41314F Operational Support Airlift 226,682 228,155
72829F Logistics Administration Support 18,101 18,114
78010F Second Destination Transportation 231,874 243,732
78011F Industrial Preparedness 11,338 10,981
78012F Logistic Support Activities 120,047 156,861
78016F Inactive Aircraft Storage/ 7,223 4,392
Disposal
78050F Subsistence-in-Kind 53,717 53,798
78070F Logistics Operations (Non-DBOF) 533,247 410,147
78201F Distribution Depots 0 -42
78202F Supply Management 0 280
======================================================================
Subtotal $2,566,4 $2,398,9
29 43
DRUG ACTIVITIES
12445F Counterdrug Aerostats $0 $35,864
12446F Counterdrug Caribbean Basin 0 15,295
Radarnet
27440F Tactical Air Control System for 0 24,075
Counternarcotics
27575F Counternarcotics Operations 0 787
Support
28889F Counterdrug Support 0 4,628
88789F Counterdrug Demand Reduction 0 7,682
91224F Military Drug Dogs 0 1,488
Counternarcotics Support
======================================================================
Subtotal $0 $89,819
PERSONNEL AND FAMILY ACTIVITIES
88711F American Forces Info Service $9,092 $5,835
Field Activities
88716F Other Personnel Activities 29,068 24,723
91218F Civilian Compensation Program 23,084 19,467
91220F Personnel Administration 52,031 58,689
======================================================================
Subtotal $113,275 $108,714
ADMINISTRATIVE
35109F DOD Civil Search/Rescue $1,013 $950
91213F USAF Civil Air Patrol Support 3,701 3,285
91223F Civil Air Patrol Corporation 4,481 11,334
11820F Mission Evaluation Activity 2,022 2,205
(Offensive)
27430F Civil Engineer Squadrons (HV 5,467 9,791
Repair)
28021F Electronic Combat Support 39,505 43,253
28022F Foreign Currency Fluctuations 0 -1,861
Defense
91212F Servicewide Support 387,582 355,383
91214F Public Affairs 2,745 2,609
91215F Productivity Investments 10,042 8,143
91216F Operational Capability-Air Power 1,076 2,315
Assessment
91515F Other Support Activities 1,795 2,496
91518F Service Support to Non-DOD 779 452
Activities Non-REIMB
91519F Service Support to Non-DOD 0 14
Activities-REIMB
28038F Medical Contingency Hospitals 3,900 3,817
91219F Joint Health Care Management 251 238
Engineering Team (JLMET)
======================================================================
Subtotal $464,359 $444,424
SPACE AND SATELLITE ACTIVITIES
12310F NCMC-TW/AA Systems (H) $0 $53
12820F Mission Evaluation Activity 3,324 3,198
(Defensive)
12823F Strat Aerospace Intel System 1,078 326
Activities
33601F Milstar Satellite Communications 5,679 4,475
System (AF Terminals)
33603F Milstar Satellite Communications 0 35
System
33605F Satellite Communications 48,259 40,946
Terminals
35110F Satellite Control Network 144,719 123,818
35119F Medium Launch Vehicles 23,042 35,889
35130F AFSCN Operations 180,455 176,059
35138F Upper Stage Space Vehicles 8,363 5,938
35144F Titan Space Launch Vehicles 78,218 63,151
35151F Satellite Control Net- 22,906 16,099
Communications
35158F Constant Source 3,725 6,450
35160F Defense Meteorological Satellite 12,097 9,154
Program
35162F Defense Meteorological Satellite 1,639 1,757
Program Communucations
35164F NAVSTAR Global Positioning System 1,180 949
(USER EQ)
35165F NAVSTAR GPS (Space/Grd Segments) 22,230 19,126
35171F Space Shuttle Operations 1,580 1,483
35173F Space Test Ctr/Range 48,946 43,862
Consolidation
35174F Space Warfare Center 0 8,807
35181F Western Space Launch Facillity 107,981 73,330
35182F Eastern Space Launch Facility 167,365 169,518
35904F Space Defense Interface Network 1,960 607
35906F NCMC-TW/AA Systems 86,836 59,940
35907F NCMC-Space Defense Systems 11,475 11,996
35910F Spacetrack 63,412 57,363
35111F Weather Service 72,219 71,801
35117F Weather/NOTAM Communications 20,300 23,170
======================================================================
Subtotal $1,138,9 $1,029,3
88 00
COMMUNICATIONS AND COMMAND
11310F SAC Automated Command and Control $0 $202
System-ADP
11312F PACCS/WWABNCP System EC-135 CL V 27,363 19,926
MODS
11316F USSTRATCOM Command and Control 54,189 39,761
11317F PACCS Communications 3,288 2,512
11321F Special Purpose Communications 346 104
11323F Minuteman Communications 2,580 10,264
21117F Airborne Command Post (CINCEUR) 0 32
21131F US Central Command- 10,127 11,124
Communications
21135F CINC C2 Initiatives 905 977
27588F Air Base Ground Defense 12,956 17,754
32011F National Military Command Center 6,569 7,260
32015F NEACP/E-4B CL V MODS 58,565 56,790
32052F National Emergency ABN Command 12,996 11,791
Post-Communications
32053F NMCS-Wide Support-Communications 8,900 9,384
33112F Air Force Communications 127,645 90,415
33126F Long-Haul Communications (DCS) 197,062 203,863
33129F Defense Message System-AF 9,670 3,476
33144F Electromag Compatibility ANAL 5,927 6,431
Center
33150F WWMCCS/Global Command & Control 26,550 40,860
System
35114F Traffic Control/Approach/Landing 43,582 34,995
System
35126F R-2508 Air Traffic Control 2,400 2,780
Enhancement
41840F AMC Command & Control System 15,621 16,925
======================================================================
Subtotal $627,241 $587,626
======================================================================
Total $7,326,2 $7,218,1
67 38
======================================================================
Total Air Force O&M $19,077, $20,296,
04 01
----------------------------------------------------------------------
(See figure in printed edition.)Appendix IV
COMMENTS FROM THE DEPARTMENT OF
DEFENSE
========================================================= Appendix III
(See figure in printed edition.)
(See figure in printed edition.)
GAO COMMENTS
1. The report was modified to reflect the fact that DOD has
projected further decreases in the O&M account and increases in the
procurement account as part of its force modernization efforts.
2. The report was modified to recognize that DOD is required to
notify Congress when it reprograms $20 million or more among budget
activities and if $20 million or more is moved from the predominant
combat-related subactivity groups.
3. The report was clarified to point out that the Army obligated
less than requested for combat forces and support of forces and that
the Air Force obligated more than requested for combat forces and
support of the forces.
4. The report was clarified to point out that the reason for the
Army and the Air Force obligating more than requested for
environmental actiities was because the requested amounts do not
include funds transferred to the services from the Defense-wide
environmental account.
MAJOR CONTRIBUTORS TO THIS REPORT
=========================================================== Appendix V
NATIONAL SECURITY AND
INTERNATIONAL AFFAIRS DIVISION,
WASHINGTON, D.C.
Sharon A. Cekala
Robert J. Lane
Carole F. Coffey
Donna M. Rogers
*** End of document. ***