United States General Accounting Office

GAO 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

G O A

years

1921 - 1996

GAO/NSIAD-96-141

GAO United States

General Accounting Office

Washington, D.C. 20548

National Security and

International Affairs Division

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 obligated1

 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.

Results in Brief 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

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.

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.

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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.

Background 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

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.

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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 Army Air Force

Dollars in millions

Fiscal

year Requested Receiveda Obligated Requested Receiveda Obligated

1993 $16,905.1 $18,896.6 $19,250.0 $18,029.0 $18,628.4 $18,563.9

1994 16,019.2 17,860.9 17,942.5 19,808.4 20,556.8 20,518.9

1995 17,821.0 19,564.0 19,533.5 19,077.0 20,345.8 20,296.0

aThe 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.

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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 support Combat development

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

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,

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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

Army Air Force

Dollars in millions

Fiscal year Requested Obligated

Total O&M

obligated

Obligated

as a

percent of

total O&M

obligated Requested Obligated

Total O&M

obligated

Obligated

as a

percent of

total O&M

obligated

1993 $3,787.0 $3,651.3 $19,250.0 19.0 $4,668.0 $4,971.6 $18,563.9 26.8

1994 3,645.5 3,163.7 17,942.5 17.6 4,974.4 5,338.1 20,518.9 26.0

1995 4,502.5 4,190.7 19,533.5 21.5 5,129.8 5,165.3 20,296.0 25.5

Total $11,935.0 $11,005.7 $56,726.0 19.4 $14,772.2 $15,475.0 $59,378.8 26.1

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.

Funding for Training

and Recruiting

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.

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.

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Table 4: Funds Requested and Obligated for Training and Recruiting for Fiscal Years 1993 Through 1995

Army Air Force

Dollars in millions

Fiscal year Requested Obligated

Total O&M

obligated

Obligated

as a

percent of

total O&M

obligated Requested Obligated

Total O&M

obligated

Obligated

as a

percent of

total O&M

obligated

1993 $1,951.1 $1,999.7 $19,250.0 10.4 $1,473.6 $1,443.3 $18,563.9 7.8

1994 2,176.7 1,892.2 17,942.5 10.5 1,828.5 1,658.2 20,518.9 8.1

1995 2,247.7 2,104.0 19,533.5 10.8 1,855.2 1,842.4 20,296.0 9.1

Total $6,375.5 $5,995.9 $56,726.0 10.6 $5,157.3 $4,943.9 $59,378.8 8.3

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 Army Air Force

Dollars in millions

Training and recruiting activities Requested Obligated Requested Obligated

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 $2,247.6 $2,104.1 $1,855.2 $1,842.5

aTotals may not agree with 1995 totals shown in previous table due to rounding.

Funding for Base

Support

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

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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

Army Air Force

Dollars in millions

Fiscal year Requested Obligated

Total O&M

obligated

Obligated

as a

percent of

total O&M

obligated Requested Obligated

Total O&M

obligated

Obligated

as a

percent of

total O&M

obligated

1993 $4,848.7 $6,415.5 $19,250.0 33.3 $4,522.4 $5,316.1 $18,563.9 28.6

1994 4,701.0 6,075.3 17,942.5 33.9 5,350.1 6,670.1 20,518.9 32.5

1995 4,997.1 6,177.3 19,533.5 31.6 4,765.8 6,070.2 20,296.0 29.9

Total $14,546.8 $18,668.1 $56,726.0 32.9 $14,638.3 $18,056.4 $59,378.8 30.4

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 Army Air Force

Dollars in millions

Base support activities Request Obligated Request Obligated

Base communications $166.7 $267.0 $201.4 $238.6

Audio-visual activities 36.9 58.5 43.7 46.5

Base operations 3,345.7 3,505.3 2,555.6 2,277.9

Child and family services 134.5 139.3 97.2 110.6

Environmental activities 465.1 1,123.3 404.0 773.8

Base maintenance and repair 792.6 973.9 1,267.6 2,442.8

Minor construction 55.6 110.0 104.0 89.0

Engineering installation support 0 0 92.3 91.0

Total $4,997.1 $6,177.3 $4,765.8 $6,070.2

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

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$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

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

Army Air Force

Dollars in millions

Fiscal year Requested Obligated

Total O&M

obligated

Obligated

as a

percent of

total O&M

obligated Requested Obligated

Total O&M

obligated

Obligated

as a

percent of

total O&M

obligated

1993 $6,318.3 $7,183.5 $19,250.0 37.3 $7,365.1 $6,832.9 $18,563.9 36.8

1994 5,495.9 6,811.2 17,942.5 38.0 7,655.3 6,852.4 20,518.9 33.4

1995 6,073.8 7,061.6 19,533.5 36.2 7,326.3 7,218.1 20,296.0 35.6

Total $17,888.0 $21,056.3 $56,726.0 37.1 $22,346.7 $20,903.4 $59,378.8 35.2

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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 Army Air Force

Dollars in millions

Management, command, and

servicewide activities Requested Obligated Requested Obligated

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 1,413.4 1,383.0

Project management and testing 160.0 204.0 349.5 362.9

Logistics activities 1,767.4 1,756.4 2,566.4 2,398.9

Drug activities 31.8 97.3 0 89.8

Personnel and family activities 908.4 1,653.6 113.3 108.7

Administrative 734.7 909.7 464.4 444.4

Space and satellite 77.7 66.9 1,139.0 1,029.3

Communications and command 331.6 259.2 627.2 587.6

Totala $6,073.7 $7,061.5 $7,326.3 $7,218.1

aTotals may not agree with 1995 totals shown in previous table due to rounding.

Conclusions 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

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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

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.

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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

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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.

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

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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

Page 13 GAO/NSIAD-96-141 Operation and Maintenance
Contents

Letter 1

Appendix I 

Scope and

Methodology

16

Appendix II 

Army Fiscal Year 1995

18

Appendix III 

Air Force Fiscal Year

1995

28

Appendix IV 

Comments From the

Department of

Defense

45

Appendix V 

Major Contributors to

This Report

49

Tables Table 1: O&M Funds Requested, Received, and Obligated for

Fiscal Years 1993 Through 1995

3

Table 2: Army’s Fiscal Year 1995 Operating Forces Budget

Presentation

4

Table 3: Funds Requested and Obligated for Combat Forces and

Support of the Forces for Fiscal Years 1993 Through 1995

5

Table 4: Funds Requested and Obligated for Training and

Recruiting for Fiscal Years 1993 Through 1995

6

Table 5: Funds Requested and Obligated for Training and

Recruiting Program Elements in Fiscal Year 1995

6

Table 6: Funds Requested and Obligated for Base Support for

Fiscal Years 1993 Through 1995

7

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Contents

Table 7: Amounts Requested and Obligated for Base Support

Program Elements in Fiscal Year 1995

7

Table 8: Funds Requested and Obligated for Management,

Command, and Servicewide Activities for Fiscal Years 1993

Through 1995

8

Table 9: Amounts Requested and Obligated for Management,

Command, and Servicewide Program Elements in Fiscal Year

1995

9

Abbreviations

DOD Department of Defense

IDA Institute for Defense Analyses

JCS Joint Chiefs of Staff

O&M operation and maintenance

Page 15 GAO/NSIAD-96-141 Operation and Maintenance
Appendix I 

Scope and Methodology

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

Page 16 GAO/NSIAD-96-141 Operation and Maintenance
Appendix I 

Scope and Methodology

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.

Page 17 GAO/NSIAD-96-141 Operation and Maintenance
Appendix II 

Army Fiscal Year 1995

COMBAT FORCES AND SUPPORT

OF FORCES

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

COMBAT FORCES

111011 Divisions $1,555,737 $1,134,725

111012 Nondivisional Combat

Brigades/Regiments 46,202 97,596

111013 Other Nondivision Combat Units 181,535 189,891

Subtotal $1,783,474 $1,422,212

SUPPORT OF FORCES

112013 Special Ammunition Control $224 $0

112014 Tactical Support Other Units 81,916 80,928

112015 Tactical Support Communications

Units 21,932 26,451

112016 Tactical Support Intelligence Units 26,430 62,091

112017 Tactical Support Medical Units 87,222 108,409

112018 Tactical Support Logistics Units 438,033 374,428

112019 Tactical Support Administration Units 10,273 10,270

112020 Tactical Support Maintenance of

Tactical Equipment 275,529 363,044

112021 Tactical Support Defense Airborne

Reconnaissance 21,400 16,229

112025 Tactical Support DCS Network 27,351 30,726

112086 Special Mission Support Centam

Activity 0 5

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 1,037,338 1,002,071

211029 Army Strategic Mobility Program 284,647 281,386

212030 War Reserve Material-Ammunition 0 19,698

212031 War Reserve Material-Nonammunition 54,718 82,782

214037 POMCUS 142,299 116,412

Subtotal $2,719,017 $2,768,471

Total $4,502,491 $4,190,683

Page 18 GAO/NSIAD-96-141 Operation and Maintenance
Appendix II 

Army Fiscal Year 1995

TRAINING AND RECRUITING

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

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 Training 9,592 10,262

321734 Cryptologic/Signal

Intelligence-Related Skills Training 10,834 3,029

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

Exercises 66,412 52,203

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) Management $5,511 $4,523

324020 Tactical Support-Maintenance of

Tactical Equipment 120,650 48,072

324771 Support of the Training Establishment 102,313 135,004

(continued)

Page 19 GAO/NSIAD-96-141 Operation and Maintenance
Appendix II 

Army Fiscal Year 1995

TRAINING AND RECRUITING

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

324772 Training Developments 58,011 71,626

324773 ATC/Ground Support/Range

Operations 22,402 26,430

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

Processing Activities 24,355 20,866

332713 Personnel Procurement Examining

Activities 54,080 51,218

332716 Examining Data Processing Activities 0 13,793

Subtotal $222,011 $248,068

RECRUITING LEASES

336896 Military Entrance Processing Stations

Leases $31,457 $29,691

336996 Recruiting Leases 101,865 100,534

Subtotal $133,322 $130,225

OTHER

335721 JROTC $67,714 $67,781

333733 Veterans Education Assistance

Program 25,326 19,007

Subtotal $93,040 $86,788

Total $2,247,653 $2,103,979

Page 20 GAO/NSIAD-96-141 Operation and Maintenance
Appendix II 

Army Fiscal Year 1995

BASE SUPPORT

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

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 Administration 22,077 25,550

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 Production 2,470 2,709

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 $2,175,343 $2,266,462

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

Development 0 558

438396 Real Estate Leases 123,849 150,777

Subtotal $3,345,672 $3,505,289

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

(continued)

Page 21 GAO/NSIAD-96-141 Operation and Maintenance
Appendix II 

Army Fiscal Year 1995

BASE SUPPORT

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

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 $1,123,264

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 $4,997,070 $6,177,261

Page 22 GAO/NSIAD-96-141 Operation and Maintenance
Appendix II 

Army Fiscal Year 1995

MANAGEMENT, COMMAND, AND

SERVICEWIDE ACTIVITIES

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

INFORMATION MANAGEMENT

115152 WIS $48,319 $46,203

432614 Info Systems Selection Acquisition 4,649 5,819

2610 Information Management 0 0

311612 Information Management-Auto

Support USMA 6,733 6,354

434612 Information Management Automation

Support 44,791 46,005

324612 Information Management Automation

Support 16,285 5,133

432612 Information Management Automation

Support 212,012 192,618

112612 Information Management Automation

Support 28,138 44,103

435612 Information Management Automation

Support 43,134 47,747

423612 Information Management Automation

Support 102,851 114,897

432616 Information Management Central

Software 56,972 52,426

423616 Information Management Central

Software Design Activities 26,758 10,438

432100 Information Management

Reimbursable Nonautomation

Programs 0 0

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

Headquarters(Crypotologic) 13,874 13,375

411298 Management Headquarters(FCI) 678 669

441098 Management Headquarters 19,432 18,436

(continued)

Page 23 GAO/NSIAD-96-141 Operation and Maintenance
Appendix II 

Army Fiscal Year 1995

MANAGEMENT, COMMAND, AND

SERVICEWIDE ACTIVITIES

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

431A98 Management Headquarters US Army

Acquisition Executive Support Agency 8,747 3,595

122398 Management Headquarters

USEUCOM 15,412 11,859

431398 Management Headquarters

Departmental 105,535 127,001

431498 Management Headquarters

Departmental Headquarters Support 22,457 17,239

431998 Management Headquarters

Information 37,270 47,790

431898 Management Headquarters Logistics 108,226 123,014

431D98 Management Headquarters PEO

Information 2,274 3,627

431698 Management Headquarters PEOs 23,577 22,385

431298 Management Headquarters Public

Affairs 2,692 3,177

431C98 Management Headquarters Space

Activities 208 49

324798 Management Headquarters TRADOC 25,592 36,734

431598 Management Headquarters USACIDC 2,998 3,690

122598 Management Headquarters

USSOUTHCOM 5,109 6,601

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

Activities 1 0

331798 Management Headquarters USAREC 9,625 12,616

431098 Management Headquarters Traffic 492 0

121198 Management Headquarters Concept

Analysis Agency 850 917

411998 Security and Intelligence Activities

Management Headquarters 1,528 3,312

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

(continued)

Page 24 GAO/NSIAD-96-141 Operation and Maintenance
Appendix II 

Army Fiscal Year 1995

MANAGEMENT, COMMAND, AND

SERVICEWIDE ACTIVITIES

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

INTERNATIONAL ACTIVITIES

411145 Arms Control Implementation $39,237 $31,624

441004 International Activities 246,093 256,701

442010 Miscellaneous Support to Other

Nations 18,177 24,836

442002 Foreign Military Sales Program

Personnel 0 40

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 Activities 23,914 23,820

411128 Security and Investigation Activities 52,990 38,490

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

Surveillance 9,394 9,248

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

Support 29,400 25,462

411339 Intelligence, Telecommunications,

and Defense Special Security System 3,256 2,825

112119 Tactical Cryptologic Activities 28,065 25,359

Subtotal $369,602 $356,504

PROJECT MANAGEMENT AND

TESTING

423806 Acquisition Support to Project

Managers $0 $2

423808 Acquisition Support to PEO 0 80

432615 Product/Project/Program Managers 24,112 43,112

423829 System/Program/Project/Product

Management 42,549 52,289

(continued)

Page 25 GAO/NSIAD-96-141 Operation and Maintenance
Appendix II 

Army Fiscal Year 1995

MANAGEMENT, COMMAND, AND

SERVICEWIDE ACTIVITIES

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

121015 Combat Development Test,

Experimentation, and Instrumentation 93,351 108,506

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 Activities 44,316 52,119

421010 Second Destination Transportation 500,516 422,283

213045 Industrial Preparedness 89,728 91,203

422121 End Item Integrated Material

Management 385,524 383,363

424041 Ammunition Commodity Management 388,599 396,952

437018 Construction and Real Estate

Administration 98,209 92,924

422120 End Item Supply Depot Support 93,000 66,921

Subtotal $1,767,427 $1,756,445

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

Activities $39,558 $33,843

434716 Other Personnel Activities 43,879 27,309

433709 Army Personnel Management and

Support Activities 81,413 73,803

434734 Army Career Alumni Program 19,750 18,681

114092 Special Activities 723,829 1,499,964

Subtotal $908,429 $1,653,600

ADMINISTRATIVE

434707 Correctional Facilities $10,197 $9,461

432617 Publications,Printing, and

Reproductions 21,972 20,325

(continued)

Page 26 GAO/NSIAD-96-141 Operation and Maintenance
Appendix II 

Army Fiscal Year 1995

MANAGEMENT, COMMAND, AND

SERVICEWIDE ACTIVITIES

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

432618 Records Management and Mailroom

Operations 9,992 8,454

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

Facilities 13,177 12,410

432111 Strategic Army Communications

(STARCOM) 149,126 0

432168 National Center for Communication

and Electronics 3,679 3,724

432126 DCS Long-Haul Communication 148,860 224,708

432140 Information Security 16,675 18,301

Subtotal $331,585 $259,240

Total $6,073,780 $7,061,624

Total Army O&M $17,820,99 $19,533,54

Page 27 GAO/NSIAD-96-141 Operation and Maintenance
Appendix III 

Air Force Fiscal Year 1995

COMBAT FORCES AND SUPPORT

OF FORCES

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

COMBAT FORCES

11113F B-52 Squadron $288,213 $321,306

11118F Short Range Attack Missile (AGM-69) 1,508 1,283

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

USSTRATCOM 48,796 43,413

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

(Procurement) 28 0

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 $3,611,483 $3,503,044

(continued)

Page 28 GAO/NSIAD-96-141 Operation and Maintenance
Appendix III 

Air Force Fiscal Year 1995

COMBAT FORCES AND SUPPORT

OF FORCES

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

SUPPORT OF FORCES

21121F USSOCOM Command & Control

Platform $1,749 $1,216

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 System 8,985 5,794

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

System 13,759 17,134

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

Activities 50,562 48,814

27432F Aircraft Delivery 703 560

27433F Advanced Program Technology 33,293 37,820

27434F JTIDS Class 2/2H Terminal Supt Act 2 137

27442F Common Electronic Countermeasures

EQ 3,422 6,534

27587F Special Recon Systems 5,029 1,564

27591F Advanced Program Evaluation 35,643 32,589

27593F Chemical/Biological Defense Program 7,909 7,224

28006F Mission Planning Systems 19,618 21,000

28007F Tactical Deception 2,667 2,426

28010F JT Tactical Command Program

(TRI-TAC) 1,930 0

35116F Aerial Targets 768 350

35155F Theater Nuclear Weapon Storage &

Sec System 286 113

41115F C-130 Airlift Squadrons 50,376 208,097

41218F KC-135S 327,718 259,186

41219F KC-10S 166,698 165,819

(continued)

Page 29 GAO/NSIAD-96-141 Operation and Maintenance
Appendix III 

Air Force Fiscal Year 1995

COMBAT FORCES AND SUPPORT

OF FORCES

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

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 $1,518,297 $1,662,274

Total $5,129,780 $5,165,318

Page 30 GAO/NSIAD-96-141 Operation and Maintenance
Appendix III 

Air Force Fiscal Year 1995

TRAINING AND RECRUITING

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

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

Programs 356 348

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 Training 9,219 5,096

84734F Crypto/Sigint Related Skill Training 14,471 10,912

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 Training 20,031 30,554

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

Exercises 29,265 36,891

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

(continued)

Page 31 GAO/NSIAD-96-141 Operation and Maintenance
Appendix III 

Air Force Fiscal Year 1995

TRAINING AND RECRUITING

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

89732F Off-Duty/Voluntary Education Program 75,280 82,419

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

Program 2,806 2,500

Subtotal $23,714 $22,956

Total $1,855,222 $1,842,366

Page 32 GAO/NSIAD-96-141 Operation and Maintenance
Appendix III 

Air Force Fiscal Year 1995

BASE SUPPORT

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

BASE COMMUNICATIONS

91295F Base Communications (Administrative) $11,858 $12,831

72895F Base Communications (Logistics) 41,014 33,784

85795F Base Communications (Training) 17,321 16,703

27595F Base Communications-Tactical Air

Forces 57,339 101,272

35895F Base Communications 17,510 29,296

11895F Base Communications (Offensive) 21,834 17,611

85895F Base Communications-Service

Academy 3,627 3,537

12895F Command and Base

Communications-Air Defense 582 211

41895F Command and Base

Communications-AMC 30,336 23,387

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 Program 3 4,217 6,494

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 $2,555,568 $2,277,931

(continued)

Page 33 GAO/NSIAD-96-141 Operation and Maintenance
Appendix III 

Air Force Fiscal Year 1995

BASE SUPPORT

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

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

Program $47 $367,684

85856F Environmental Compliance Service

Academy 2,320 1,756

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-Training 30,170 17,328

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

(continued)

Page 34 GAO/NSIAD-96-141 Operation and Maintenance
Appendix III 

Air Force Fiscal Year 1995

BASE SUPPORT

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

85853F Environmental Conservation-Service

Academy 0 158

85753F Environmental Conservation-Training 0 875

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 Academy 0 407

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-Cryptologic 6,447 5,533

72878F Maintenance and Repair-Logistics 233,763 233,298

35878F Maintenance and Repair-Other

Program 98,657 102,905

85878F Maintenance and Repair-Service

Academy 31,851 34,709

85778F Maintenance and Repair-Training 126,363 157,869

27578F Maintenance and Repair-Tactical 493,239 667,407

91278F Maintenance and

Repair-Administrative 5,742 24,903

91279F Real Property Services-Administrative 0 6,552

31179F Real Property Services-Cryptologic 0 1,879

12879F Real Property Services-Defensive 0 1,600

72879F Real Property Services-Logistics 0 144,627

41879F Real Property Services-Mobility Forces 0 97,548

11879F Real Property Services-Offensive 0 101,181

35879F Real Property Services-Other

Programs 0 119,807

85879F Real Property Services-Service

Academy 0 18,082

27479F Real Property Services-Tactical Air

Force 0 365,618

85779F Real Property Services-Training 0 70,422

Subtotal $1,267,606 $2,442,838

(continued)

Page 35 GAO/NSIAD-96-141 Operation and Maintenance
Appendix III 

Air Force Fiscal Year 1995

BASE SUPPORT

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

MINOR CONSTRUCTION

12876F Minor Construction (RPM) (Defensive)

(H) $0 $2

31176F Minor Construction (RPM)-Cryptologic 1,529 4,280

35876F Minor Construction (RPM)-Other

Program 8,705 9,034

85876F Minor Construction (RPM)-Service

Academies 3,244 1,818

27576F Minor Construction (RPM)-TAC Air

Forces 51,337 26,766

91276F Minor Construction

(RPM)-Administrative 1,055 1,932

11876F Minor Construction (RPM) (Offensive) 11,061 8,283

72876F Minor Construction (RPM)-Logistics 9,946 13,678

41876F Minor Construction (RPM)-Airlift 8,864 8,024

85776F Minor Construction (RPM)-Training 8,296 15,165

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-Administrative 525 493

27436F Engineering Installation Support-CAF 10,271 16,682

78029F Engineering Installation Support-AFM 1,923 2,365

41842F Engineering Installation Support-AMC 1,806 2,163

85760F Engineering Installation Support-AETC 692 969

Subtotal $92,278 $90,991

Total $4,765,772 $6,070,191

Page 36 GAO/NSIAD-96-141 Operation and Maintenance
Appendix III 

Air Force Fiscal Year 1995

MANAGEMENT, COMMAND, AND

SERVICEWIDE ACTIVITIES

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

INFORMATION MANAGEMENT

33151F WWMCCS-ADP $0 $8,320

33152F Automated Data Processing EQ 11,664 5,133

38610F Information Management Automation

Program 108,545 93,046

38611F CMN AF Improvement & Insert

Program 14,203 7,086

Subtotal $134,412 $113,585

HEADQUARTERS AND COMMAND

ACTIVITIES

11830F Operational Headquarters (Offensive) $2,399 $1,447

11898F Management Headquarters

(USSTRATCOM) 23,653 24,847

12816F Operational Headquarters (Defensive) 6,471 6,112

12898F Management Headquarters (Strategic

DEF FOR) (H) 381 0

13121F US Space Command (SPACECOM)

Activities 2,589 6,053

13122F US Element (NORAD Activities) 434 1,026

13198F Management Headquarters (US

Element NORAD) 2,109 1,883

13298F Management Headquarters (US

Space Command) 4,095 7,139

21138F US Central Command (CENTCOM)

Activity 7,517 7,865

21898F Management Headquarters (US

CENTCOM) 2,083 2,082

27236F Operational Headquarters (TAF) 10,495 23,427

27242F Special Program Applications 2,651 2,650

27438F Theater Battle Management (TBM) C4I 20,254 22,634

27598F Management Headquarters (TAC Air

Forces) 46,956 92,440

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

(Electronic Security) 3,919 4,041

31398F Management Headquarters GDIP 601 3,717

(continued)

Page 37 GAO/NSIAD-96-141 Operation and Maintenance
Appendix III 

Air Force Fiscal Year 1995

MANAGEMENT, COMMAND, AND

SERVICEWIDE ACTIVITIES

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

35998F Management Headquarters-Space

Command 14,888 19,577

41898F Management Headquarters (Airlift)

(Non-DBOF) 29,044 46,096

72898F Management Headquarters (Logistics) 64,887 69,033

84775F Operational Headquarters (Technical

Training) 1,178 1,634

84777F Operational Headquarters (FT) 331 3,393

84779F Air University Headquarters 0 3,786

85798F Management Headquarters (Training) 26,587 34,216

91225F Air Force Combat Operations Staff 685 1,025

91298F Management Headquarters (Public

Affairs) 647 649

92398F Management Headquarters

(Departmental) 64,165 69,976

92498F Management Headquarters

(Administrative) 19,805 19,366

92898F Management Headquarters-ADP

Support (OSD) 0 69

92998F Management Headquarters-ADP

Support (AF) 25,379 41,320

A1098F Management Headquarters

(International) 565 964

A1198F Management Headquarters

Technology Transfer Functions 847 802

31198F Management Headquarters

(Cryptologic) 8,871 11,668

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-REIMBUR 0 1

A1010F Misc Support to Other Nations 2,249 2,143

A1012F NATO AEW+C Program 2,347 17,762

Subtotal $38,328 $45,599

(continued)

Page 38 GAO/NSIAD-96-141 Operation and Maintenance
Appendix III 

Air Force Fiscal Year 1995

MANAGEMENT, COMMAND, AND

SERVICEWIDE ACTIVITIES

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

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

Communication 0 48

27217F Podded Reconnaissance System

(PRS) 752 0

27435F Tactical Recon Imagery Exploitation 2,612 2,536

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 Activities 10,581 6,399

31310F Foreign Technology Divison 89,157 82,433

31313F Defense Dissemination Program 11,366 10,632

31314F Infrared/EO/DEW Processing/Exploit 0 41

31315F Missile and Space Technology

Collection 32,730 37,242

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 SPT 41,883 48,604

31336F Central Command GPID Activities 16,177 15,729

31339F Intel Comm & Def Spec Security

System 16,426 13,629

(continued)

Page 39 GAO/NSIAD-96-141 Operation and Maintenance
Appendix III 

Air Force Fiscal Year 1995

MANAGEMENT, COMMAND, AND

SERVICEWIDE ACTIVITIES

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

33140F Information Systems Security Program 22,739 24,146

35124F Special Applications Program 4,298 3,455

35127F Foreign Counterintelligence Activities 11,033 12,065

35128F Security/Investigative Activities 42,793 42,152

35142F Applied Technology & Integration 32,724 27,241

35154F Defense Airborne Reconnaissance

Office 454,458 499,936

35172F Combined Advanced Application 55,381 56,650

35887F Electronic Combat Intelligence

Support 1,990 609

35892F Special Analysis Activities 1,342 1,851

35902F Ballistic Missile Tactical

Warning/Attack Asses System 4,400 4,136

35908F TW/AA Interface Network 13,195 7,621

35909F Ballistic Missile Early Warning Systems 69,182 70,645

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 Activities 162 154

91222F Defense Courier Service 14,210 13,701

Subtotal $1,413,370 $1,382,995

PROJECT MANAGEMENT AND

TESTING

27426F Air Force Operational Test and

Evaluation Center $23,660 $24,386

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 1,364,200 1,272,304

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/Disposal 7,223 4,392

78050F Subsistence-in-Kind 53,717 53,798

(continued)

Page 40 GAO/NSIAD-96-141 Operation and Maintenance
Appendix III 

Air Force Fiscal Year 1995

MANAGEMENT, COMMAND, AND

SERVICEWIDE ACTIVITIES

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

78070F Logistics Operations (Non-DBOF) 533,247 410,147

78201F Distribution Depots 0 –42

78202F Supply Management 0 280

Subtotal $2,566,429 $2,398,943

DRUG ACTIVITIES

12445F Counterdrug Aerostats $0 $35,864

12446F Counterdrug Caribbean Basin

Radarnet 0 15,295

27440F Tactical Air Control System for

Counternarcotics 0 24,075

27575F Counternarcotics Operations Support 0 787

28889F Counterdrug Support 0 4,628

88789F Counterdrug Demand Reduction 0 7,682

91224F Military Drug Dogs Counternarcotics

Support 0 1,488

Subtotal $0 $89,819

PERSONNEL AND FAMILY

ACTIVITIES

88711F American Forces Info Service Field

Activities $9,092 $5,835

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 (Offensive) 2,022 2,205

27430F Civil Engineer Squadrons (HV Repair) 5,467 9,791

28021F Electronic Combat Support 39,505 43,253

28022F Foreign Currency Fluctuations

Defense 0 –1,861

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

Assessment 1,076 2,315

(continued)

Page 41 GAO/NSIAD-96-141 Operation and Maintenance
Appendix III 

Air Force Fiscal Year 1995

MANAGEMENT, COMMAND, AND

SERVICEWIDE ACTIVITIES

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

91515F Other Support Activities 1,795 2,496

91518F Service Support to Non-DOD

Activities Non-REIMB 779 452

91519F Service Support to Non-DOD

Activities-REIMB 0 14

28038F Medical Contingency Hospitals 3,900 3,817

91219F Joint Health Care Management

Engineering Team (JLMET) 251 238

Subtotal $464,359 $444,424

SPACE AND SATELLITE

ACTIVITIES

12310F NCMC-TW/AA Systems (H) $0 $53

12820F Mission Evaluation Activity (Defensive) 3,324 3,198

12823F Strat Aerospace Intel System Activities 1,078 326

33601F Milstar Satellite Communications

System (AF Terminals) 5,679 4,475

33603F Milstar Satellite Communications

System 0 35

33605F Satellite Communications Terminals 48,259 40,946

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-Communications 22,906 16,099

35158F Constant Source 3,725 6,450

35160F Defense Meteorological Satellite

Program 12,097 9,154

35162F Defense Meteorological Satellite

Program Communucations 1,639 1,757

35164F NAVSTAR Global Positioning System

(USER EQ) 1,180 949

35165F NAVSTAR GPS (Space/Grd

Segments) 22,230 19,126

35171F Space Shuttle Operations 1,580 1,483

35173F Space Test Ctr/Range Consolidation 48,946 43,862

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

(continued)

Page 42 GAO/NSIAD-96-141 Operation and Maintenance
Appendix III 

Air Force Fiscal Year 1995

MANAGEMENT, COMMAND, AND

SERVICEWIDE ACTIVITIES

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

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 $1,138,988 $1,029,300

COMMUNICATIONS AND

COMMAND

11310F SAC Automated Command and

Control System-ADP $0 $202

11312F PACCS/WWABNCP System EC-135

CL V MODS 27,363 19,926

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 CommandCommunications 10,127 11,124

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

Post-Communications 12,996 11,791

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

Center 5,927 6,431

33150F WWMCCS/Global Command &

Control System 26,550 40,860

35114F Traffic Control/Approach/ Landing

System 43,582 34,995

35126F R-2508 Air Traffic Control

Enhancement 2,400 2,780

(continued)

Page 43 GAO/NSIAD-96-141 Operation and Maintenance
Appendix III 

Air Force Fiscal Year 1995

MANAGEMENT, COMMAND, AND

SERVICEWIDE ACTIVITIES

Dollars in thousands

Program Element

Code Program Element Title Requested Obligated

41840F AMC Command & Control System 15,621 16,925

Subtotal $627,241 $587,626

Total $7,326,267 $7,218,138

Total Air Force O&M $19,077,04 $20,296,01

Page 44 GAO/NSIAD-96-141 Operation and Maintenance
Appendix IV 

Comments From the Department of Defense

Now on p. 26.

See comment 1.

Page 45 GAO/NSIAD-96-141 Operation and Maintenance
Appendix IV 

Comments From the Department of Defense

Now on p. 2.

See comment 2.

Now on p. 5.

See comment 3.

Now on p. 8.

See comment 4.

Page 46 GAO/NSIAD-96-141 Operation and Maintenance
Appendix IV 

Comments From the Department of Defense

Page 47 GAO/NSIAD-96-141 Operation and Maintenance
Appendix IV 

Comments From the Department of Defense

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.

Page 48 GAO/NSIAD-96-141 Operation and Maintenance
Appendix V 

Major Contributors to This Report

National Security and

International Affairs

Division, Washington,

D.C.

Sharon A. Cekala

Robert J. Lane

Carole F. Coffey

Donna M. Rogers

(703110) Page 49 GAO/NSIAD-96-141 Operation and Maintenance
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