UNITED STATES AIR FORCE

ADMINISTRATIVE RECORD

FY 2013 FURLOUGH APPEALS 

TABLE OF CONTENTS

Part 1: Tabs 1-17

Tab Date Description

1. 25 Sep 12 DEPSECDEF “Guidance on Fiscal Year 2013 Joint Committee Sequestration”

2. 7 Jan 13 SECAF – CSAF “FY13 Near Term Action to Mitigate Sequestration Impacts”

3. 10 Jan 13 DEPSECDEF “Handling Budgetary Uncertainty in Fiscal Year 2013”

4. 14 Jan 13 OMB “Planning for Uncertainty with Respect to FY13 Budgetary Resources”

5. 14 Jan 13 SAF/US – AF/CV “FY13 Near Term Actions to Handle Budgetary Uncertainty”

6. 16 Jan 13 AF/A1 “immediate Civilian Workforce Actions – Hiring Freeze and

Management of Temporary and Term Employees”

7. 18 Jan 13 SAF/AA-CVA “FY13 HAF Near Term Actions to Handle Budgetary 

Uncertainty”

8. 1 Feb 13 SAF/US – AF/CV “Impacts of FY13 Near-term actions the Air Force has taken

to mitigate the impacts of Sequestration”

9. 13 Feb 13 SAF/AA “Suspension of Top Secret Periodic Reinvestigations”

10. 15 Feb 13 SAF/CIO “Near-Term Guidance on FY13 Information Technology Spending”

11. 20 Feb 13 SECDEF letters (9) to Congress – report on potential civilian furloughs

12. 20 Feb 13 SAF/US-AF/CV “Planning for a Civilian Furlough”

13. 20 Feb 13 SECDEF memorandum for DoD civilian employees “Preparations for Potential

Sequestration on March 1 and Furlough Notifications”

14. 21 Feb 13 ASD (R&FM) “Total Force Management and Budgetary Uncertainty”

15. 25 Feb 13 SECAF-CSAF “A Difficult Time for Civilian Airmen”

16. 27 Feb 13 OMB “Agency Responsibilities for Implementation of Potential Joint Committee

Sequestration”

17. 28 Feb 13 SAF/US – AF/CV “FY13 Sequestration Guidance”
DEPUTY SECRETARY OF DEFENSE 

1010 DEFENSE PENTAGON 

. WASHINGTON, DC 20301·1010 

MEMORANDUM FOR: SEE DISTRIBUTION 

SUBJECT: Guidance on Fiscal Year 2013 Joint Committee Sequestration 

SEP 2 5 2012 

The Budget Control Act of2011 (BCA) established the Joint Select Committee on 

Deficit Reduction (Joint Committee) and charged it with developing a proposal that would 

achieve at least $1.2 trillion in deficit reduction. Last November, the Joint Committee 

announced that it could not reach agreement on a deficit reduction plan. This failure triggered an 

enforcement mechanism of automatic funding cuts in Fiscal Year (FY) 2013, known as 

sequestration, above and beyond the reductions already reflected in the FY 2013 budget the 

Department submitted in February. The law requires the President to issue a sequestration order 

on January 2, 2013, to implement the required cuts unless Congress acts to avoid it. 

The additional funding cuts required under the BCA are very large. A recent report by 

the Office of Management and Budget (OMB) estimates that the cuts in the Department of 

Defense (DoD) budget would exceed $50 billion in FY 2013 alone. The law further requires that 

the FY 2013 cuts be implemented in an indiscriminate, across-the-board manner that will greatly 

exacerbate their adverse effects. These large cuts would lead to devastating effects on the 

Department and virtually every other Federal agency. For this reason, the Administration 

strongly believes that Congress needs to act to avoid sequestration by passing a balanced deficit 

reduction package that the President can sign. 

If Congress fails to enact balanced deficit reduction and avoid sequestration, DoD and 

other affected agencies must be prepared, under the BCA, to implement sequestration on January 

2, 2013. On July 31, 2012, OMB issued the attached guidance informing agencies that OMB 

will be consulting with them on matters related to the issuance of the sequestration order. Over 

the longer term, in the absence of congressional action on a balanced deficit reduction plan in 

advance of January 2, 2013, OMB will undertake additional activities related to the 

implementation ofthe sequestration. Within DoD, the Under Secretary of Defense (Comptroller) 

will take the lead in these efforts and, working with OMB as necessary, will ensure that the 

Department is ready to implement sequestration in January if it occurs. 

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In the meantime, consistent with OMB guidance, DoD needs to continue normal 

spending and operations. We do not want our programs, personnel, and activities to begin to 

suffer the harmful effects of sequestration while there is still a chance it can be avoided. I am 

therefore directing that all commanders and managers in the Department of Defense continue the 

defense mission under current laws and policies, without taking any steps that assume 

sequestration will occur. Commanders should not, for example, curtail planned training, 

maintenance, healthcare or family programs. Commanders and managers should not alarm our 

employees and their families by announcing personnel actions related to sequestration or by 

suggesting that these actions are likely. Nor should commanders and managers hold back on the 

obligation of funds - either for investments or for operating programs - if those funds would 

have been obligated in the absence ofthe sequester threat. 

If you have questions about this guidance, please consult your chain of command. 

Addressees on this memo who have questions should direct them to the Under Secretary of 

Defense (Comptroller). 

Attachment: 

As stated 

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Air Force Administrative Record for FY 2013 Furlough Appeals 002
DISTRIBUTION: 

SECRETARIES OF THE MILITARY DEPARTMENTS 

CHAIRMAN OF THE JOINT CHIEFS OF STAFF 

UNDER SECRETARIES OF DEFENSE 

DEPUTY CHIEF MANAGEMENT OFFICER 

COMMANDERSOFTHECOMBATANTCOMMANDS 

DIRECTOR, COST ASSESSMENT AND PROGRAM EVALUATION 

DIRECTOR, OPERATIONAL TEST AND EVALUATION 

GENERAL COUNSEL OF THE DEPARTMENT OF DEFENSE 

INSPECTOR GENERAL OF THE DEPARTMENT OF DEFENSE 

ASSISTANT SECRETARIES OF DEFENSE 

DEPARTMENT OF DEFENSE CHIEF INFORMATION OFFICER 

ASSISTANTS TO THE SECRETARY OF DEFENSE 

DIRECTOR, ADMINISTRATION AND MANAGEMENT 

DIRECTOR, NET ASSESSMENT 

DIRECTORS OF THE DEFENSE AGENCIES 

DIRECTORS OF THE DOD FIELD ACTIVITIES 

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Air Force Administrative Record for FY 2013 Furlough Appeals 003
M-12-17 

EXECUTIVE OFFICE OF THE PRESIDENT 

OFFICE OF MANAGEMENT AND BUDGET 

WASHINGTON, D.C. 20503 

July 31,2012 

MEMORANDUM FOR THE HEADS OF EXECUTIVE DEPARTMENTS AND AGENCIES 

FROM: Jeffrey D. Zie~IS)V' Acting Directct} 

SUBJECT: Issues Raised by Potential Sequestration Pursuant To Section 251A of the 

Balanced Budget and Emergency Deficit Control Act of 1985 

Passed by bipartisan majorities in both houses of the Congress, the Budget Control Act of 

2011 (BCA; Public Law 112-25) amended the Balanced Budget and Emergency Deficit Control 

Act of 1985 (BBEDCA) to put into place an automatic process of across-the-board reductions in 

budgetary resources, known as a sequestration, specified in an order to be issued on January 2, 

2013, if the Joint Select Committee on Deficit Reduction failed to propose, and the Congress 

failed to enact, a bill containing at least $1.2 trillion in deficit reduction. 

The President has made clear that the Congress should act to avoid such a sequestration. 

If allowed to occur, the sequestration would be highly destructive to national security and 

domestic priorities, as well as to core government functions. To avoid this, the President 

submitted a budget for 2013 that includes a comprehensive and balanced set of proposals that 

contain greater deficit reduction than the Congress was charged with achieving. The 

Administration believes the Congress should redouble its efforts to reduce the deficit in a 

bipartisan, balanced, and fiscally responsible manner and avoid the sequestration. 

If Congress were to enact the requisite deficit reduction measures and avoid the 

sequestration, there would be no need to take steps to issue the sequestration order, and then to 

develop plans for agency operations for the remainder ofFY 2013 within the constraints of that 

order. These sequestration planning and implementation activities, once undertaken, will 

necessarily divert scarce resources from other important agency activities and priorities. The 

President remains confident that Congress will act, but because it has not yet made progress 

towards enacting sufficient deficit reduction, the Office of Management and Budget (OMB) will 

work with agencies, as necessary, on issues raised by a sequestration of this magnitude. 

To that end, OMB will be holding discussions on these issues with you and your staff 

over the coming months. In the near term, OMB will consult with you on such topics as the 

application to your agency's accounts and programs of the exemptions from sequestration 

contained in section 255 ofBBEDCA and the applicable sequestration rules specified in section 

256 of BBEDCA. These discussions should be informed by your General Counsel's analysis of 

how the requirements of BBEDCA, as amended by the BCA, and other statutory authorities 

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Air Force Administrative Record for FY 2013 Furlough Appeals 004
apply to a particular issue involving your agency. OMB will also engage with agencies on 

anticipated reporting requirements established by Congress that are related to, but separate from, 

planning for or implementing a sequestration order under the BCA. 

Over the longer term, in the absence of Congressional action on a balanced deficit 

reduction plan in advance of January 2, 2013, OMB will undertake additional activities related to 

the implementation of the BCA. OMB will work with agencies, as necessary, on issues 

surrounding the sequestration order and its implementation. For example, sequestrable amounts 

can only be calculated once FY 2013 funding levels are known; therefore, shortly before any 

sequestration order is issued, OMB will collect information from agencies on sequestrable 

amounts and, where applicable, unobligated balances, and calculate the percentage reductions 

necessary to implement the sequestration. In the meantime, agencies should continue normal 

spending and operations since more than 5 months remain for Congress to act. 

The steps described above are necessary to prepare for the contingency of having to issue 

a sequestration order, but they do not change the fact that sequestration is bad policy, was never 

meant to be implemented, and should be avoided through the enactment of bipartisan, balanced 

deficit legislation. The Administration urges the Congress to take this course. 

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THE SECRETARY OF THE AIR FORCE 

CHIEF OF STAFF, UNITED STATES AIR FORCE 

WASHINGTON DC 

MEMORANDUM FOR THE DEPUTY SECRETARY OF DEFENSE 

JAN 7 2013 

SUBJECT: Fiscal Year 2013 (FY13) Near-Term Actions to Mitigate Sequestration Impacts 

This memorandum is provided in response· to your January 4th, 2013 Deputy's 

Management Action Group (DMA.G) request for the Services to identify near-term actions we 

are taking to accommodate possible reductions to the FY13 budget. We can no longer live under 

the uncertainty of sequestration and the continuing resolution without taking action now. Given 

this uncertainty in the second quarter ofFY13, prudent planning for the third and fourth quarters 

· is required even though we are not presuming sequestration will occur. Our proposed near term 

actions will begin to introduce significant inefficiencies and delays in normal program execution, 

but they do not immediately impact core readiness and are reversible or recoverable. They 

include: 

• Notify civilians of furlough as early as possible to preserve options in the future 

• Implement civilian hiring restrictions within the Department of Defense rule set to 

include implementing a hiring freeze and reducing temps/terms 

• Review Overseas Contingency Operation requirements and identify potential deferments 

• Cancel all non-mission critical temporary duties, conferences, and symposia 

• Curtail non-readiness/mission related flying such as air show support, flyovers, and 

familiarization rides 

• Proactively curtail or cancel non-Congressionally directed/non-mission critical studies 

• Curtail supply purchases to essential FY13 consumption and stop minor purchases such 

as furniture, information technology refresh, and unit equipment 

• Defer non-emergency Facilities Sustainment, Restoration, and Modernization (FSRM) 

projects, resulting in a reduction of roughly 50% in FSRM spending 

• Where practical, de-obligate/incrementally fund contracts to encompass only FY13 

• For investment accounts, we are establishing a review process to proactively monitor · 

proposed obligations and halt or delay contracts to reduce expenditures 

These near term actions only achieve a small share of the total sequestration reduction. 

Therefore, if we do not h~ve resolution by March, immediate actions negatively impacting core 

readiness programs will be required. These actions include: 

• Reducing Weapons System Sustainment (aircraft depot maintenance and engine 

overhauls) by as much as 17%, pushing aircraft availability and mission capable rates 

much further below standards 

• Reducing flying hours by as much as 18% (~203K hours across the enterprise), leading to 

a potential flying stand-down from late July through September and driving nearly all 

flying. units to unacceptable readiness levels by the end ofFY13 

• Implementing civilian furloughs to the maximum level possible without initiating 

reduction-in-force procedures across the total force (Active, Guard and Reserve) 

Air Force Administrative Record for FY 2013 Furlough Appeals 006
· • Prioritizing and curtailing operational training exercises and international partnership 

exercises, cancelling them where sensible 

The post-sequestration actions outlined will have immediate and devastating impacts to 

readiness. · The disproportionate effect on core readiness .is due to the limited amount of 

reductions we can apply to programs such as civilian pay as well as. the limited time and 

flexibility remaining after covering must-pays. Impacts include: 

• The defense strategy requires the Air Force to maintain a high state of readiness across 

the total force. We cannot execute the strategy from a tiered readiness posture. The 

flying hour reductions will compel us to focus almost exclusively on current missions 

such as training pipelines, Operation Enduring Freedom spin-up and other deployments 

while sacrificing preparedness for contingencies and OPLANS. Thus the 18% cut will be 

disproportionately applied across the force; deployed and next-to-deploy units will be 

minimally cut, leaving remaining units to take the brunt of the cuts and stand down for 

extended periods. These units will likely fall to the lowest readiness levels and will 

require extensive time and funding to recover 

• Aircraft depot maintenance and engine overhauls will backlog and the 50/50 

organic/contractor depot ratio will be at risk 

• Civilian personnel actions will drive nearly immediate capability gaps in all critical skill 

sets and have a direct impact on unit readiness, military productivity, morale, and quality 

of life 

• Potential delays or deferrals of critical facility projects will impact new mission 

beddowns, range upgrades, runway repairs, energy initiatives, and drive substantial costs 

in the future 

With respect to acquisition program accounts, a year-long continuing resolution coupled with 

sequestration would impact weapon system program schedules; thus, creating a protracted · 

disruptive effect to our modernization programs. This will result in cancelled or delayed 

delivery of modernization capability which is already under-capitalized to meet the new defense 

strategy. We will provide you with additional details in the weeks to come; 

· From a policy standpoint, the Air Force is standing by for further guidance regarding civilian 

furlough notifications and will work with you to implement any forthcoming direction. 

~D~ · Michael B. Donley 

Secretary of the Air Force 

-

;tfa:t;;f2d~JFL General, USAF 

Chief of Staff 

Air Force Administrative Record for FY 2013 Furlough Appeals 007
DEPUTY SECRETARY OF DEFENSE 

1010 DEFENSE PENTAGON 

WASHINGTON, DC 20301 · 1010 JAN 1 0 2013 

MEMORANDUM FOR SECRETARIES OF THE MILITARY DEPARTMENTS 

CHAIRMAN OF THE JOINT CHIEFS OF STAFF 

UNDER SECRET ARIES OF DEFENSE 

DEPUTY CHIEF MANAGEMENT OFFICER 

DIRECTOR, COST ASSESSMENT AND PROGRAM EVALUATION 

DIRECTOR, OPERATIONAL TEST AND EVALUATION 

GENERAL COUNSEL OF THE DEPARTMENT OF DEFENSE 

INSPECTOR GENERAL OF THE DEPARTMENT OF DEFENSE 

ASSIST ANT SECRETARIES OF DEFENSE 

DEPARTMENT OF DEFENSE CHIEF INFORMATION OFFICER 

ASSISTANTS TO THE SECRETARY OF DEFENSE 

DIRECTOR, ADMINISTRATION AND MANAGEMENT 

DIRECTOR, NET ASSESSMENT 

DIRECTORS OF THE DEFENSE AGENCIES 

DIRECTORS OF THE DOD FIELD ACTIVITIES 

SUBJECT: Handling Budgetary Uncertainty in Fiscal Year 2013 

Two sources of uncertainty are creating budgetary challenges for the Department of Defense 

(DoD) in 2013. The first is the fact that the Department is operating under a Continuing Resolution 

(CR) through at least March 27, 2013. Because most operating funding was planned to increase 

from Fiscal Year (FY) 2012 to FY 2013, but is instead being held at FY 2012levels under the CR, 

funds will run short at current rates of expenditure if the CR continues through the· end of the fiscal 

year in its current form. The Secretary will continue to urge the Congress to enact appropriations 

bills for FY 2013. But if the CR were to be extended through the end of the fiscal year, it would 

hinder our ability to maintain a ready force. 

The second source of uncertainty is the potential sequestration recently deferred from 

January 2, 2013 to March 1, 2013 by the American Taxpayer Relief Act of2012. The possibility of 

sequestration occurring as late as the beginning of the sixth month of the fiscal year creates 

significant additional uncertainty for the management of the Department. 

Either of these problems, in isolation, would present serious budget execution challenges to 

the Department, negatively impacting readiness and resulting in other undesirable outcomes. This 

situation would be made even more challenging by the need to protect funds for wartime operations. 

Air Force Administrative Record for FY 2013 Furlough Appeals 008
Near-Term Actions 

Given the overall budgetary uncertainty faced by the Department, and in particular the 

immediate operational issues presented by the CR, it is prudent to take certain steps now in order to 

help avoid serious future problems. I therefore authorize all Defense Components to begin 

implementing measures that will help mitigate our budget execution risks. For now, and to the 

extent possible, any actions taken must be reversible at a later date in the event that Congress acts to 

remove the risks I have described. The actions should be structured to minimize harmful effects on 

our people and on operations and unit readiness. 

Categories of approved actions are identified in Table 1. The authority to implement these 

actions shall remain in effect until they are revoked in a subsequent memorandum from my office. 

If Components believe they must take actions that go beyond the categories listed in Table 1, they 

should present the options for my review and approval prior to their implementation. 

Intensified Planning for Longer-Term Budgetary Uncertainty 

Given the added challenge of a potential sequestration in March, we must also intensify 

efforts to plan future actions that might be required should that happen. This planning does not 

assume these unfortunate events will occur, only that we must be ready. 

As they formulate draft plans, Components should follow the guidance that directs the 

Department to take all possible steps to mitigate harmful effects associated with this budgetary 

uncertainty and to maintain a strong defense. The details of the guidance are summarized below: 

• For the operating portions of the DoD budget: 

o Exempt all military personnel funding from sequestration reductions, in accordance 

with the decision made by the President in July 2012. 

o Fully protect funding for wartime operations. 

o Fully protect Wounded Warrior programs. 

o To the extent feasible, protect programs most closely associated with the new 

defense strategy. 

o Reduce civilian workforce costs using the following actions (all subject to missioncritical exemptions, and appropriate consultation with union representatives 

consistent with Executive Order 13522): 

• Release temporary employees and do not renew term hires. 

• Impose hiring freezes. 

• Authorize voluntary separation incentives and voluntary early retirements to the 

extent feasible. 

• Consider the possibility of furloughs of up to 30 calendar days or 22 

discontinuous workdays. 

o To the extent feasible, protect family programs. 

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Air Force Administrative Record for FY 2013 Furlough Appeals 009
o To the extent feasible, protect fi.mding most directly associated with readiness; focus 

the necessary cuts on later deploying units. 

• For the investment portions of the DoD budget (procurement, RDT&E, construction): 

o Protect investments fi.mded in Overseas Contingency Operations if associated with 

urgent operational needs. 

o To the extent feasible, protect programs mostly closely associated with the new 

defense strategy. 

o Take prudent steps to minimize disruption and added costs (e.g., avoid penalties 

associated with potential contract cancellations where feasible; prudently manage 

construction projects fi.mded with prior-year monies). 

While we are hopeful of avoiding budgetary problems, draft Component plans should reflect 

the possibility that we may have to operate under a year-long CR and that sequestration takes place. 

Table 2 shows the types of information that should be included in the plans. Components should 

submit these draft plans to the Under Secretary of Defense (Comptroller) by February 1, 2013. The 

Under Secretary of Defense (Comptroller) will work with the Components to adjust this schedule if 

changes are required due to the deadlines for the preparation of the FY 2014 President's Budget 

submission. 

I appreciate your patience as we work through these difficult budgetary times. The 

Department will continue to do its best to resolve these budgetary uncertainties in a manner that 

permits us to support our current defense strategy and maintain a strong defense. 

If addressees have questions about this memorandum, they should direct them to the Under 

Secretary of Defense (Comptroller). 

Attachments: 

As stated 

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Air Force Administrative Record for FY 2013 Furlough Appeals 010
Table 1. Categories of Approved Near-Term Actions 

• Freeze civilian hiring (with exceptions for mission-critical activities*). 

• Provide authority to terminate employment of temporary hires and to notify term employees 

that their contracts will not be renewed (with exceptions for mission-critical activities and 

when appropriate in terms of personnel timing*). 

• Reduce base operating funding. 

• Curtail travel, training, and conferences (all with exceptions for mission-critical activities* 

including those required to maintain professional licensure or equivalent certifications). 

• Curtail facilities maintenance or Facilities Sustainment, Restoration, and Modernization 

(FSRM) (with exceptions for mission-critical activities*). 

o If necessary, services/agencies are authorized to fund FSRM at levels below current 

guidance. 

• Curtail administrative expenses such as supply purchases, business IT, ceremonies, etc. 

(with exceptions for mission-critical activities*). 

• Review contracts and studies for possible cost-savings. 

• Cancel3rd and 4th quarter ship maintenance availabilities and aviation and ground depotlevel maintenance activities. Take this action no earlier than February 15, 2013. 

• Clear all R&D and production contracts and contract modifications that obligate more than 

$500 million with the USD(AT &L) prior to award. 

• For Science and Technology accounts, provide the USD(AT&L) and the Assistant Secretary 

of Defense (Research & Engineering) with an assessment of the impact that budgetary 

uncertainty may have on meeting Departmental research priorities. 

*Approvals will be granted by Component heads or by senior officials designated by the 

Component head. 

Components with personnel serving Combatant Commanders (COCOMs) must consult with the 

COCOMs before implementing actions that affect them. Disputes will be brought to the attention 

of the Chairman of the Joint Chiefs of Staff for further resolution. 

Components receiving reimbursements should coordinate with customer before taking actions that 

would affect the customer's mission. 

Air Force Administrative Record for FY 2013 Furlough Appeals 011
Table 2. Information to Be Included in Draft Implementation Plans 

The following information should be provided at the Component level. Information by commands 

and bases/installations is not required. 

• For operating accounts, identify major actions to include, at a minimum: 

o Extent of civilian hiring freezes; expected number of temps/terms released; expected 

number, duration, and nature of furloughs. 

o Reductions in flying hours, steaming days, vehicle miles, and other 

operations/training/support activities that affect force readiness. 

o Areas of budgets experiencing disproportionate cuts. 

• For investment accounts: 

o Plans for large programs (ACAT ID and IC, and MAIS programs). 

• Include major changes in unit buys, delays, etc. 

o Significant changes in all joint programs. 

• Identify and prioritize any essential reprogramming actions with offsets. 

Air Force Administrative Record for FY 2013 Furlough Appeals 012
M-13-03 

EXECUTIVE OFFICE OF THE PRESIDENT 

OFFICE OF MANAGEMENT AND BUDGET 

WASHINGTON, D.C. 20503 

January 14, 2013 

MEMORANDUM FOR THE HEADS OF EXECUTIVE DEPARTMENTS AND AGENCIES 

Jeffrey D. Zients (,91tf Deputy Director fO'r·Management 

FROM: 

SUBJECT: Planning for Uncertainty with Respect to Fiscal Year 2013 Budgetary Resources 

In the coming months, executive departments and agencies (agencies) will confront 

significant uncertainty regarding the amount of budgetary resources available for the remainder 

of the fiscal year. In particular, unless Congress acts to amend current law, the President is 

required to issue a sequestration order on March 1, 2013, canceling approximately $85 billion in 

budgetary resources across the Federal Government. Further uncertainty is created by the 

expiration of the Continuing Appropriations Resoluti9n, 2013 (CR) on March 27, 2013. This 

memorandum directs agencies to take certain steps to plan for and manage this budgetary 

uncertainty. 

The Administration continues to urge Congress to take prompt action to address the 

current budg~tary uncertainty, including through the enactment of balanced deficit reduction to 

avoid sequestration. Should Congress fail to act to avoid sequestration, there will be significant 

and harmful impacts on a wide variety of Government services and operations. For example, 

should sequestration remain in place for an extended period of time, hundreds of thousands of 

families will lose critical education and wellness services through Head Start and nutrition 

assistance programs. The Department of Defense will face deep cuts that will reduce readiness 

of non-deployed units, delay needed investments in equipment and facilities, and cut services for 

military families. And Federal agencies will likely need to furlough hundreds ofthoU:sands of 

employees and reduce essential services such as food inspections, air travel safety, prison 

security, border patrols, and other mission~critical activities. 

At this time, agencies do not have clarity regarding the manner in which Congress will 

address.these issues or the amount ofbudgetary resources that will be available through the 

remainder of the fiscal year. Until Congress acts, agencies must continue to prepare for the 

possibility t~at they will need to operate with reduced budget~y resotirces. 

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Air Force Administrative Record for FY 2013 Furlough Appeals 013
Prior to passage of the American Taxpayer Relief Act of2012 (ATRA), the President 

was required to issue a sequestration order on January 2, 2013. Although the ATRA postponed 

this date by two months, agencies had already engaged in extensive planning for operations 

under post-sequestration funding levels before this poStponement was effected. In light of 

persistent budgetary uncertainty, all agencies should continue these planning activities, in 

coordination with the Office of Management and Budget (OMB), and should intensify efforts to 

identify actions ·that may be required should sequestration occur. 

Agencies sJ:!.ould generally adhere to the following guiding principles, to the extent 

practicable and appropriate, in preparing plans to operate with reduced budgetary resources in 

the event that sequestration occurs: 

• use any available flexibility to reduce operational risks and minimize impacts on the 

agency's core mission in service of the American people; 

• identify and address operational challenges that could potentially have a significant 

deleterious effect on the agency's mission or otherwise raise life, safety, or health 

concerns; 

• identify the most appropriate means to reduce civilian workforce costs where necessary -

this may include imposing hiring freezes, releasing temporary employees or not renewing 

term or contract hires, authorizing voluntary separation incentives and voluntary early 

retirements, or implementing administrative furloughs (appropriate guidance for 

administrative furloughs can be found on the OPM website [here]); consistent with 

Section 3(a)(ii) of Executive Order 13522, allow employees' exclusive representatives to 

have pre-decisional involvement in these matters to the fullest extent practicable; 

• review grants and contracts to determine where cost savings may be achieved in a manner 

that is consistent with the applicable terms and conditions, remaining mindful of the 

manner in which individual contracts or grants advance the core mission of the agency; 

• take into account funding flexibilities, including the availability of reprogramming and 

transfer authority; and, 

• be cognizant of the requirements of the Worker Adjustment and Retraining Notification 

(WARN) Act, 29 U.S.C. §§ 2101-2109. 

While agency plans should reflect intensified efforts to prepare for operations under a 

potential sequestration, actions that would implement reductions specifically designed as a 

response to sequestration should generally not be taken at this time. In some cases, however, the 

overall budgetary uncertainty and operational constraints may require that certain actions be 

taken in the immediate- or near-term. Agencies presented with these circumstances should 

continue to act in a prudent manner to ensure that operational risks are avoided and adequate 

funding is available for the remainder of the fiscal year to meet the agency's core requirements 

and mission. Should circumstances require an agency to take actions that would constitute a 

change from normal practice and result in a reduction of normal spending and operations in the 

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... 

immediate- or near-term, the agency must coordinate closely with its OMB Resource 

Management Office (RMO) before taking any such actions. 

All agencies should work with their OMB RMO on the appropriate timing to submit draft 

contingency plans for operating under sequestration for review. Furthermore, should Congress 

take action that affects the cun·ent budgetary uncertainty, OMB will provide agencies with 

additional guidance as appropriate. 

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UNDER SECRETARY OF THE AIR FORCE 

WASHINGTON 

MEMORANDUM FOR ALMAJCOM/CC 

JAN 14 2013 

SUBJECT: Fiscal Year 201 3 (FY13) Near-Term Actions to Handle Budgetary Uncertainty 

The combined impact of two sources of budgetary uncertainty necessitate that the Air 

Force take immediate action to reduce our expenditure rate, especially in our operations and 

maintenance account. First, the Department continues to operate under a Continuing Resolution 

that currently runs thorugh March 27, 2013 but could potentially be extended to cover the full 

fiscal year. Second, the potential sequestration under the Budget Control Act was delayed but 

not eliminated by the American Taxpayer Relief Act, and that same Act made additional topline 

reductions to the defense budget. 

Near Term Actions 

Given these sources of budgetary uncertainty and a projected FY13 $1.8B shmtfall in Air 

Force funding for overseas contingency operations, it is prudent to implement immediate actions 

to reduce our expenditure rate and mitigate budget execution risks. Our intent with these initial 

actions is to pursue reversible or recoverable steps and avoid impacts to core readiness. If we did 

not act now, the scale of reductions required should sequestration be triggered on March l or if 

the Department were left under a year-long Continuing Resolution would be even more 

devastating for readiness. We direct the following actions now, to slow spending across the Total 

Force and all appropriations. Your implementation of these near-term actions should be 

structured to minimize hrumful effects on our people and on unit readiness: 

• Implement civilian hiring restrictions to include a hiring freeze, immediate elimination of 

temporary employees and not renewing tem1 hire employees with exceptions for missioncritical activities and when appropriate in terms of personnel timing 

• Review OCO requirements and identify potential reductions which will not impair 

wa1time operations such as delaying asset reconstitution and incrementally funding OCO 

contracts 

• Cancel all temporary duties that are not mission-critical,such as attendance at or hosting 

of conferences and symposia (such as functional conferences), staff assistance visits and 

training seminars 

• Curtail flying not directly related to readiness, such as air shows, flyovers, and 

fruniliarization rides 

• Curtail or cancel ongoing and scheduled studies that ru·e not Congressionally-directed or 

mission critical 

• Limit supply purchases to essential FY13 consumption (e.g., flying hour bench stock) 

and stop minor purchases that are not mission-critical, such as furniture, IT refresh, and 

unit equipment 

• Defer non-emergency Facility Sustainment, Restoration and Modernization (FSRM) 

projects (examples include but not limited to painting, carpeting, remodeling, etc; 

continue to carry out compliance/life/safety projects) 

Air Force Administrative Record for FY 2013 Furlough Appeals 016
• Where practicaL de-obligate/incrementally-fund contracts to encompass only FY13 

(examples include but are not limited to base maintenance contracts, advisory and 

assistance services contracts, custodial contracts. etc.). Review contracts for possible 

longer term cost savings as well. 

• For investment accounts we are establishing a review process to proactively monitor 

proposed program obligations and as prudent, halt or delay contracts to reduce 

expenditures. Further guidance has been provided through acquisition channels. 

Exceptions may be made as noted above for mission critical activities and civilian 

positions as determined by appropriate senior officials. Requests for exceptions shall be 

approved by MAJCOM Vice Commanders. the Deputy Director of the Air National Guard, DRU 

Commanders. and by SAF/AA for the HAF portfolio. MAJCOM Vice Commanders and the 

Deputy Director of the Air National Guard are authorized to further delegate to General 

Officer/SES NAF/Center/Wing Commanders but should also provide appropriate guidance on 

implementing delegated authority and should exercise great discretion in approving exceptions, 

exemptions, and determining the definition of mission critical. 

To assist you in making mission criticality determinations. you should be aware that OSD 

has directed protection of the following programs throughout the year: 

• Fully protect funding for wartime operations 

• Fully protect Wounded Warrior programs 

• To the extent feasible, protect programs most closely associated with the new defense 

strategy 

• To the extent feasible, protect family programs 

Planning.for Longer-Term BudgetCIIy Uncertainty 

These near term actions only achieve a small p01tion of the funding decrement required 

in the event of sequestration or a significant topline reduction. Therefore, if we do not have 

resolution by March. immediate actions with serious negative impacts to core readiness 

progran1s will be required. We have been directed by the Deputy Secretat)' of Defense to 

intensify our planning for longer-term budgetary uncertainty, including a potential sequestration 

in March. This planning effort is underway. When appropriate additional information on other 

necessary actions will be provided. We will closely monitor your FY 13 budget execution and 

provide feedback throughout this fiscal year. We encourage you to plan for additional actions to 

meet adjusted funding levels. 

Civilian pay makes up a large share of our operating budget and we have been directed to 

consider the possibility of civilian furloughs of up to 30 calendar days or 22 discontinuous 

workdays. However, we very much hope that the Congress will address the cunent budgetary 

uncertainty and allow us to avoid these actions. If needed, further guidance regarding furloughs 

will be forthcoming. For now please do not take any actions regarding furloughs. As required 

by Executive Order (EO) 13522, management should continue to allow employees and their 

union representatives to engage pre-decisionally in all workplace matters. to the fullest extent 

practicable. 

We recognize you are already implementing many of the actions outlined above and have 

done a great deal to increase the efficiency and mission effectiveness of the Air Force over the 

Air Force Administrative Record for FY 2013 Furlough Appeals 017
last few years. Above all, we greatl y appreciate your leadership and irmovative support during 

this challenging period. If you have questions regarding tl1is guidance, please call Ms. Marilyn 

Thomas. SAF/FM. at (703) 697-4464. 

&ls*-- General, USAF 

amie M. Morin 

Acting Under Secretary of the Air Force 

Vice Chief of Staff 

cc: 

SAF/FM 

Air Force Administrative Record for FY 2013 Furlough Appeals 018
l 

I 

. DEPARTMENT OF THE AJR.FORCE 

HEADQUARTERS UNITED STATES AIR FORCE 

WASHINGTON, DC 

MEMORANDUM FOR ALMAJCOM /CV 

USCENTCOM/CV 

FROM: HQ USAF/AI 

NORAD USNORTHCOM/CV 

USSOCOM/CV 

USSTRA TCOM/CV 

USTRANSCOM/CV 

DRU/CC 

1 040 Air Force Pentagon 

Washington, DC 20330-1040 

1 6 JAN 2013 

SUBJECT: Immediate Civilian Workforce Actions- Hiring Freeze and Management of 

Temporary and Term Employees. · 

This memo provides the implementation guidance referenced in the attached 7 Jan 13 

memo signed by the Secretary of the Air Force and the Chief of Staff and the attached 14 Jan 13 

memo signed by the Acting Undersecretary of the Air Force and the Vice Chief of Staff, 

regarding immediate near-term actions the Air Force is taking to manage budgetary uncertainty. 

Effective immediately, we are implementing a temporary hiring freeze for permanent, temporary, 

and term vacancies in all appropriations. Actions in progress will continue where an entry on 

duty (EOD) date has been established or a selection has been made and a job offer has been 

extended to the individual. External hiring actions, where a job offer has not been made, will be 

. withdrawn. ·Reassignment and promotions, for the current work force, will continue as it does 

not grow the force. Exemptions from previous hiring controls do not carry over to the current 

environment. 

The Air Force Personnel Center (AFPC) will hold all Requests for Personnel Actions 

(RPAs) currently in the system. If an exception is approved by the appropriate authority 

(specifically addressed in the attached 14 Jan 13 memo), RPA processing will continue. AFPC 

will provide additional operational guidance regarding all RP A processing to your servicing 

Civilian Personnel Sections. 

Given the current and projected fiscal environment, hiring exceptions must be carefully 

scrutinized. In accordance with the Acting Undersecretary and the Vice Chief of Staffs 

direction, temporary employees should be released and term employees should not be renewed. 

All temporary and term employees (including reemployed annuitants), .not considered mission 

critical, should be. separated in accordance with established procedures. 

Air Force Administrative Record for FY 2013 Furlough Appeals 019
These are uncharted waters concerning the federal budget and the effect it will have on 

the Air Force. It is imperative we work closely together to balance mission needs and minimize 

impacts to our dedicated civilian employees and their families. Please don't hesitate to contact 

nie with any questions or concerns or have your staff contact Brig Gen Gina Grosso (AF/A1P, 

DSN 227-1228), Ms. Dana Crowe (AF/A1PC, DSN 612-4022), or Mr. Dave Nuchols 

(SAF/FMBO~ DSN 224-3805), with questions. 

Atch: 

7 Jan 13 SecAF/CSAF Memo · 

14 Jan 13 USECAF/AF/CV Memo 

~MAJiJ. ,o. a . DARRELL D. JON~ Lieutenant General, USAF 

.. DCS, Manpower, Personnel and Services 

2 

Air Force Administrative Record for FY 2013 Furlough Appeals 020
OFFICE OF THE SECRETARY 

DEPARTMENT OF THE AIR FORCE 

WASHINGTON DC 20330 

MEMORANDUM FOR DISTRIBUTION C 

JAN 18 2013 

SUBJECT: FY13 HAF Near-Term Actions to Handle Budgetary Uncertainty 

Due to the Department's current budgetary uncertainty, the Headquarters Air Force 

(HAF) (Secretariat, Air Staff and their Field Operating Agencies (FOAs)) initiated detailed 

planning and actions to mitigate a potential Operations and Maintenance (O&M) top-line 

reduction. This memo provides HAF specific guidance in support of and in addition to the Air 

Force-wide guidance issued 14 Jan 2013 and 16 Jan 2013. 

Given the magnitude of our budgetary uncertainty, HAP 2-letters must take immediate 

action to slow spending across all appropriations. Should sequestration occur, HAF programs 

could face a 16 percent O&M reduction; a cut of over 32 percent in Overseas Contingency 

Operations (OCO); and an 18 percent Weapon System Sustainment (WSS) reduction. Guidance 

on National Intelligence Program (NIP) and other appropriation funding is forthcoming. Our 

goal is to structure near-term actions that are reversible and minllnize harmful effects on our 

people and unit readiness. 

a. Civilian hiring is frozen immediately. SAF/ AA will approve exceptions for mission 

critical fills (includes Intergovernmental Personnel Act (IP A), Schedule C, Highly 

Qualified Experts (HQE), and summer hires). The Secretary of the Air Force will 

approve Senior Executive Service (SES) hiring actions. 

(1) All positions, regardless of funding source are part of the freeze (includes 

reimbursables ). Hiring for centrally funded new-entrant programs, such as 

Palace Acquire, Pathways intern program or Section 852, which are 

centrally managed by AFPC will continue based on currently approved 

plans. 

(2) Release non-mission critical temporary employees and reemployed 

annuitants. Submit exception requests to retain mission critical temporary 

employees or reemployed annuitants to SAFIAA no later than 28 Jan 2013. 

Term employees should not be renewed unless an exception is approved. 

Use the attached exceptions guidance for submission. 

(3) We do not anticipate offering Voluntary Early Retirement Authority 

(VERA) and/or Voluntary Separation Incentive Payments (VSIP) at this 

time. 

( 4) Actions with established entry on duty dates or where a selection is made 

and a job offer has been extended may continue; this includes external and 

internal hires. 

Air Force Administrative Record for FY 2013 Furlough Appeals 021
(5) Internal actions, which cause no growth to the force, such as promotions, or 

management directed reassignments may continue. 

(6) Out-placement ofPAQ interns, career-broadeners, and long-term trainees 

may continue upon successful completion of their defined programs. 

(7) Request approval for mission critical hiring exceptions, by submitting 

information contained in the attached Exception Guidance. Please include 

all requested data elements to ensure rapid processing. 

b. Civilian pay is centrally managed by SAF/AAR. HAP 2-letters must deploy 

measures to ensure overtime and compensatory time is mission critical and 

minimized. Both must be properly requested and monitored with all compensatory 

time used so it does not convert to payroll dollars. SAF/AAR will provide monthly 

overtime and compensatory time report to assist tracking dollars and hours. If 

civilian pay is further reduced, overtime and compensatory time may be curtailed. 

c. Baseline funds may be required to cover OCO mission critical requirements. Review 

OCO requirements and take action to defer actions such as asset reconstitution and 

restructure contracts to be incremental! y funded .. 

d. Cancel all non-mission critical temporary duties (TDY), conferences, staff assistance 

visits, training, seminars and symposia. Each HAP 2-letter is charged with 

determining mission criticality for these expenses. 

(1) Mission critical TDY must remain within existing travel limitations. 

(2) Continue mission critical training such as certification of flight-line 

maintenance. 

(3) Cancel non-mission critical training such as fmancial certifications. 

(4) Conferences, both DoD and Non-Federal Entity-hosted continue to require 

SAF/AA approval. Even if a conference is approved, HAP 2-letters must 

determine mission criticality for each attendee, including travel for those 

events previously approved but not yet complete. Ibis includes individual 

speaker travel. At this time, no additional conference approval authority is 

delegated. SAF/AA will continue to process all conference requests to 

include those that require SAF IUS approval. 

e. Deobligate and/or incrementally fund contracts to encompass only FY13 where 

practicable; review contracts for possible longer-term cost savings and plan ahead for 

reduced O&M funding. Take prudent steps to minimize disruption and added costs 

working within contract limitations (e.g., avoid penalties associated with potential 

contract cancellations where feasible). 

f. Proactively curtail supply purchases to essential FY13 consumption and stop minor 

purchases such as furniture, information technology refresh, and unit equipment. 

Air Force Administrative Record for FY 2013 Furlough Appeals 022
(1) Check the HAP Supply Depot to obtain supply items and provide items 

available for use by other AF organizations at 

https://haf.afncr.af.miVcom/HAF/supplydepot/default.aspx. 

(2) Submit facility (space requirements, moves, reconfiguration, alternations) 

and furniture requests, signed by the HAF 2-letter, at 

htto://hafap071/fminteract/ for validation by SAF/AAO, then for SAF/AA 

and/or the ~xecutive Oversight Board (EOB) approval. 

(3) Submit Information Technology (IT) refresh or Video Teleconferencing 

(VTC) requirements through SAF/AAI for validations, then for SAF/AA 

and/or the EOB approval. 

( 4) If available, print to Ricoh multi-function devices to reduce toner cartridge 

purchases for other printers. 

(5) Turn in excess IT equipment to reduce maintenance costs and to fulfill new 

or pending requirements, and avoid new purchases. 

(6) Additional supply, facility and IT guidance is attached. 

g. Review studies to curtail or cancel ongoing and scheduled studies that are not 

congressionally directed or mission critical. A study is defined as any organized 

analysis, assessment or evaluation in support of policy development, strategy review, 

decision-making, cost or effectiveness review, or management/administrative 

functions. Organically performed studies are excluded. Submit results from your 

review to the Air Force Studies Governance Board (SGB) in a provided standard 

format. The SGB will provide feedback to the Corporate Structure. 

We appreciate your patience as we work through this time of budgetary uncertainty and 

will keep you informed as additional guidance is issued and/or needed. If you have questions, 

please contact Ms. Anne Graham, SAF/AAR, 703-692-9516 or Ms. Lydia Newsom, SAF/AAR, 

703-695-3148. 

·-:r-~d~ FRANK GORENC 

Lieutenant General, USAF 

Assistant Vice Chief of Staff 

Director of Staff 

Attachment: 

1. 14 Jan 2013 USECAF/AF/CV Memo 

2. 16 Jan 2013 AF/A1 Memo 

3. HAP Hiring Freeze Exception Guidance 

4. HAP Supply/Facility/lT Guidance 

~~/'"'-~ TIMBEYLA 

Administrative Assistant to the 

Secretary of the Air Force 

Air Force Administrative Record for FY 2013 Furlough Appeals 023
UNDER SECRETARY OF THE AIR FORCE 

WASHINGTON 

MEMORANDUM FOR ALMAJCOM/CC 

JAN 14 2013 

SUBJECT: Fiscal Year 2013 (FYI3) Near-Term Actions to Handle Budgetary Unce1tainty 

The combined impact of two sources of budgetary uncertainty necessitate that the Air 

Force take immediate action to reduce our expenditure rate, especially in our operations and 

maintenance account. First, the Department continues to operate under a Continuing Resolution 

that currently runs thorugh March 27,2013 but could potentially be extended to cover the full 

fiscal year. Second, the potential sequestration under the Budget Control Act was delayed but 

not eliminated by the American Taxpayer Relief Act, and that same Act made additional topline 

reductions to the defense budget. 

Near Term Actions 

Given these sources of budgetary uncertainty and a projected FY13 $1.8B sh01tfall in Air 

Force funding for overseas contingency operations, it is prudent to implement immediate actions 

to reduce our expenditure rate and mitigate budget execution risks. Our intent with these initial 

actions is to pursue reversible or recoverable steps and avoid impacts to core readiness. If we did 

not act now, the scale of reductions required should sequestration be triggered on Min·ch 1 or if 

the Department were left under a year-long Continuing Resolution would be even more 

devastating for readiness. We direct the following actions now, to slow spending across the Total 

Force and all appropriations. Your implementation of these near-term actions should be 

structured to minimize harmful effects on our people and on unit readiness: 

• Implement civilian hiring restrictions to include a hiring freeze, immediate elimination of 

temporary employees and not renewing term hire employees with exceptions for missioncritical activities and when appropriate in terms of personnel timing 

• Review OCO requirements and identify potential reductions which will not impair 

wartime operations such as delaying asset reconstitution and incrementally funding OCO 

contracts 

• Cancel all temporary duties that are not mission-critical,such as attendance at or hosting 

of conferences and symposia (such as functional conferences), staff assistance visits and 

training seminars 

• Cmtail flying not directly related to readiness, such as air shows, flyovers, and 

familiarization rides 

• Curtail or cancel ongoing and scheduled studies that are not Congressionally-directed or 

mission critical 

• Limit supply purchases to essential FY13 consumption (e.g., flying hour bench stock) 

and stop minor purchases that are not mission-critical, such as fumiture, IT refresh, and 

unit equipment 

• Defer non-emergency Facility Sustainment, Restoration and Modernization (FSRM) 

projects (examples include but not limited to painting, carpeting, remodeling, etc; 

continue to carry out compliance/life/safety projects) 

Air Force Administrative Record for FY 2013 Furlough Appeals 024
• Where practical, de-obligate/incrementally-fund contracts to encompass only FY 13 

(examples include but are not limited to base maintenance contracts, advisory and 

assistance services contracts, custodial contracts, etc.). Review contracts for possible 

longer term cost savings as well. 

• For investment accounts we are establishing a review process to proactively monitor 

proposed program obligations and as prudent, halt or delay contracts to reduce 

expenditures. Fmther guidance has been provided through acquisition channels. 

Exceptions may be made as noted above for mission critical activities and civilian 

positions as determined by appropriate senior officials. Requests for exceptions shall be 

approved by MAJCOM Vice Commanders, the Deputy Director of the Air National Guard, DRU 

Conunanders, and by SAF/AA for the HAF pm1folio. MAJCOM Vice Commanders and the 

Deputy Director of the Air National Guard are authorized to further delegate to General 

Officer/SES NAF/Center/Wing Commanders but should also provide appropriate guidance on 

implementing delegated authority and should exercise great discretion in approving exceptions, 

exemptions, and determining the definition of mission critical. 

To assist you in making mission criticality determinations, you should be aware that OSD 

has directed protection of the following programs throughout the year: 

• Fully protect funding for wartime operations 

• Fully protect Wounded Warrior programs 

• To the extent feasible, protect programs most closely associated with the new defense 

strategy 

• To the extent feasible, protect family programs 

Planning for Longer-Term BudgelaiJ' Uncertainty 

These near te1m actions only achieve a small portion of the funding decrement required 

in the event of sequestration or a significant topline reduction. Therefore, if we do not have 

resolution by March, immediate actions with serious negative impacts to core readiness 

programs will be required. We have been directed by the Deputy Secretary of Defense to 

intensify our planning for longer-term budgetary unce11ainty, including a potential sequestration 

in March. This planning effort is underway. When appropriate, additional information on other 

necessary actions will be provided. We will closely monitor your FYJ3 budget execution and 

provide feedback throughout this fiscal year. We encourage you to plan for additional actions to 

meet adjusted funding levels. 

Civilian pay makes up a large share of our operating budget and we have been directed to 

consider the possibility of civilian furloughs of up to 30 calendar days or 22 discontinuous 

workdays. However, we very much hope that the Congress will address the cun-ent budgetary 

unce11ainty and allow us to avoid these actions. If needed, fu11her guidance regarding furloughs 

will be forthcoming. For now please do not take any actions regarding furloughs. As required 

by Executive Order (EO) 13522, management should continue to allow employees and their 

union representatives to engage pre-decisionally in all workplace matters, to the fullest extent 

practicable. 

We recognize you are already implementing many of the actions outlined above and have 

done a great deal to increase the efficiency and mission effectiveness of the Air Force over the 

Air Force Administrative Record for FY 2013 Furlough Appeals 025
last few years. Above all, we greatly appreciate your leadership and innovative suppmt during 

this challenging period. If you have questions regarding this guidance, please call Ms. Marilyn 

Thomas, SAF/FM, at (703) 697-4464. 

~s~ General, USAF 

Vice Chief of Staff 

flfl~---~ ~Acting Under Secretary of the Air Force 

cc: 

SAF/FM 

Air Force Administrative Record for FY 2013 Furlough Appeals 026
. DEPARTMENT OF THE AIR.FORCE 

HEADQUARTERS UNITED STATES AIR FORCE 

WASHINGTON, DC 

MEMORANDUM FOR ALMAJCOM /CV 

USC~NTCOM/CV 

FROM: HQ USAF/AI 

NORAD USNORTHCOM/CV 

USSOCOM/CV 

USSTRA TCOM/CV 

USTRANSCOM/CV 

DRU/CC 

· 1040 Air Force Pentagon 

Washington, DC 20330-1040 

1 6 .JAN 2013 

SUBJECT: Innnediate Civilian Workforce Actions- Hiring· Freeze and Management of 

Temporary and Term Employees. · 

This memo provides the implementation guidance ref~renced in the attached 7 Jan 13 

meip.o signed by the Secretary of the Air Force and the Chiefof Staff and. the attached 14 Jan 13 

memo signed by the Acting Undersecretary of the Air Force and the Vice Chief of Staff, 

regarding immediate near-term actions the Air Force is taking to manage budgetary uncertairity. 

Effective immediately, we are implementing a temporary hiring freeze for permanent, temporary,· 

·anci term vacancies in all appropriations. Actions in progress will contjnue where an entry on 

duty (EO D) date has been established or a selection has been made and a job offer has been . 

extended to the individual. External hiring actions, where a job offer has not been made, will be 

. withdrawn. ·Reassignment and promotions, for the current work force, will continue as it cl,oes 

. not grow the force. Exemptions from previous hiring controls do not carry over to the CjllTent 

environment. 

The Air Force Personnel Center (AFPC) will hold all Requests for Personnel Actions 

(RP As) currently in the system. If an exception is approved by the appropriate authority 

(specifically. addressed in the attached 14 Jan 13 memo), RP A processing will continue. AFPC 

will provide addltional operational guidance regarding all RP A proeessing to your servicing 

· Civilian Personnel Sections, · 

Given the current and projected fiscal environment, hiring exceptions must be carefully 

scrutinized. In accordance with the Acting Undersecretary and the Vice Chief of Staffs 

direction, temporary employees· should be released a.lld term employees should not be renewed: 

All temporary and term employees (includil;tg reemployed annuitants), .not considered mission 

critical, should be. separated in accordance with established procedures. . 

Air Force Administrative Record for FY 2013 Furlough Appeals 027
2 

These are uncharted waters concerning the federal budget and the effect it will have on 

the Air Foree. It is imperative we work closely together to balance mission needs and minimize 

impacts to our dedicated civilian employees and their families. Please don't hesitate to contact 

nie with any questions or concerns or have your staff contact Brig Gen Gina Grosso (AF/AlP,. 

DSN 227-1228), Ms. Dana Crowe (AF/AlPC, DSN 612-4022), or Mr .. Dave Nuchols 

(SAF/FMBO; DSN 224-3805), with questions. . 

Atch: 

7 Jan 13 SecAF/CSAF Memo · 

14 Jan 13 USECAF/AF/CVMemo 

~j;o. DARRELL D. JO 

Lieutenant General, USAF 

.. DCS, ~anpower,'Personnel and Services 

·I I 

I 

I 

I 

I 

I 

I 

I 

I 

I 

Air Force Administrative Record for FY 2013 Furlough Appeals 028
Attachment 3 - HAF Hiring Freeze Exception Guidance and Template 

• Requests for exception packages must include: 

o HAF 2-Ltr signature using the memo template provided 

o Position spreadsheet (attachment 3a) 

o Wiring diagram in attachment 3b format (position numbers, highlight supervisors) 

o Memorandum of Agreement and reimbursing organization point of contact for 

Reimbursable positions 

o Data synchronization spreadsheet in attached format (attachment 3c) 

• Justification and rationale must include: 

o Verification that the Unit Manpower Document, Defense Civilian Personnel Data 

System and Defense Civilian Pay System are synchronized (i.e. employees are 

assigned to the correct position number and Program Element Code) 

o Review/revise current organizational structure to ensure streamlined operations (i.e. 

limited use of deputies, acceptable supervisory ratio, etc.). 

o Verified there are no Surplus Employees (employees on positions identified for 

reduction that have not yet been matched to a valid vacancy) or permanent overhires 

(not assigned against funded authorizations) available for placement in this vacancy 

• Request must be submit via TMT to SAF/AAR Workflow. SAF/AAR batch process 

packages every 30 days with the first batch received into SAF/AAR by 1 February 2013. 

(Exceptions for Terms and Temps must be received NLT 25 Jan 2013) 

• Should you have any questions regarding Hiring Freeze Exceptions and/or request 

preparation please the following: 

o SAF/AARC: CarlaDunwell at 703-697-6Il6 

o SAF/AARC Workflow at SAFAARC.Workflow@pentagon.af.mil 

o SAF/AARX: Dolores Ives at 703-697-6018 

o SAF/AARX Workflow at SAFAARX.Workflow@pentagon.af.mil 

Air Force Administrative Record for FY 2013 Furlough Appeals 029
Hiring Freeze Request for Exception Memo Template (Attachment 3) 

TO: SAF/AA 

FROM: 

SUBJECT: Civilian Hiring Exception Request 

The purpose of this letter is to formally request an exception to the SAF I AA Memo, 

FY13 HAF Near-Term Actions to Handle Budgetary Uncertainty, dated XX Man 13. Details 

regarding the vacant position are attached. 

Impact if not approved: 

a. What part( s) of the mission will fail without approval of this exception? 

b. What actions will be taken to mitigate mission failure, if this request is not 

approved? 

c. Provide any additional information identifying secondary and tertiary impacts 

of exception disapproval. 

I have reviewed and verified that the Unit Manpower Document (UMD), Defense 

Civilian Personnel Data System (DCPDS) and Defense Civilian Pay System (DCPS) are 

synchronized, employees are assigned to the correct position number and Program Element Code 

(PEC), and the my organizational structure is streamlined (i.e. limited use of deputies, higher 

supervisory ratio, etc). 

I have reviewed and verified my current organizational structure to ensure streamlined 

operations we are operating in an efficient and streamlined manner. (i.e. limited use of deputies, 

acceptable supervisory ratio, etc.) 

I have reviewed and determined that no Surplus Employees (employees on positions 

identified for reduction that have not yet been matched to a valid vacancy) or permanent 

overhires (not assigned against funded authorizations) can be placed in this vacancy. 

I have attached the MOA and POC as it relates to this reimbursable position. (use if 

position is reimbursable. 

My POC for this request is XXXX at DSN XXX-XXXX (email is: XX) 

2-Letter Signature 

Attachment: 

1. Position Spreadsheet 

2. Wiring Diagram 

3. Data Synchronization Spreadsheet 

4. MOA (if applicable) 

Air Force Administrative Record for FY 2013 Furlough Appeals 030
Air Force Administrative Record for FY 2013 Furlough Appeals 

031
Notes: 

Attachment 3b- Wiring Diagram 

. 

• 

. 

provide name, pay plan-series-grade or 

rank/AFSC, position description number (if 

applicable), and position number 

Identify vacancies 

Highlight supervisory positions in red 

Streamline organization to limit use of 

XV Organization 

Org Office symbol 

Org Name 

deputies; use acceptable supervisory ratios Employee Name, G5..0000-15, Director 

(PO#) Position Number 

XYZ Division XYZ Division XVZ Division 

Name, GS..0000-14 (Supv) . Name, GS..0000-14 (Supv) Name, G5-000Q-14 (Supv) 

(56465)0000151213 (56465)0000151213 (56465)0000151213 

• MSgt Name, 30071, Position • Name, GS-0000-14 • Name, GS-0000-14 

Number (PD#) Position Number (PD#) Position Number 

• SSgt Name, 3D051Position • Name, GS-0000-13 • Name, GS-0000-13 

Number (PD#) Position Number (PD#) Position Number 

• SSgt Name, 30051, Position • Name, GS-0000-13 • Name, GS-0000-13 

Number (PD#) Position Number (PO#) Position Number 

• SRA Name, 3D051Position • Name, GS-0000-13 . Name, GS-0000-13 

Number (PD#) Position Number (PD#) Position Number 

• Name, GS-0000-13 • Name, GS-0000-13 (SUPV) • Name, GS-0000-12 

(PD#) Position Number (PO#) Position Number (PD#) Position Number 

• VACANT, GS-0000-13 • Name, GS-0000-13 • Name, GS-0000-12 

(PO#) Position Number (PD#) Position Number (PO#) Position .Number 

• Name, GS-0000-12 • Name, GS-0000-12 • Name, GS-0000-11 

(PD#) Position Number (PD#) Position Number (PD#) Position Number 

• Name, GS-0000-11 • Name, GS-0000- 12 • VACANT, GS-0000-09 

(PD#) Position Number (PD#) Position Number (PO#) Position Number 

• Name, GS-0000-11 . Name, GS-0000-09 

(PO#) Position Number (PD#) Position Number 

• Name, GS-0000-11 

(PD#) Position Number 

• Name, 

(PD#) 

GS-0000-09 

Position Number 

As of: dd/mm/year 

Title 

Name,GS-000

(PO#) Position N

N

• Name

. Name

. Name

• VACA

• Name

(6025

• Name

• Name

• Name

Au

vac

Air Force Administrative Record for FY 2013 Furlough Appeals 
. Attachment 3c- Data Synchronization Spreadsheet . . 

Current Data Corrective Action 

. 

(DCPS) Execution If reimbursable, #of UMD Pos # of DCPDS Pos #of 

Organization UMD (DCPDS) Review (ends submit MOA to Realigned (+ Realigned (+ Reali

(HAFIFOA) PEC Review R,eview in F). SAFIAARX I-) I-) 

. 

. 

--

The above 2-letter has met the requirements and is prov"1ded a exception to fill IThe above 2-letter has the requirements and is provided a 

subject position(s). exception to fill subject position(s). 

The above 2-letter has met the requirements and is provided a exception to fill subject position(s). 

Air Force Administrative Record for FY 2013 Furlough Appeals 
Attachment 4- Supply/Facility/Information Technology Guidance 

Supplies 

Limit supply purchases to essential consumption. Supplies should be purchased on a monthly basis for 

items such as toner cartridges, paper, and administrative supplies, as they are readily available at the 

AbilityOne Base Supply Stores located at Ft Belvoir, Joint Base Andrews, Mark Center, Pentagon, 

Hoffinan Building, Jefferson Plaza and Presidential Towers as well as Office Eagle at Joint Base 

Anacostia-Bolling. 

Many supply items area available free of charge from the HAF Supply Depot, 

https://haf.afncr.af.mil/corn!HAF/supplydepot/default.aspx. This site is to be checked for the items 

needed prior to ordering ANY items. If you have any excess items, they are to be put on this site so that 

the items can be utilized by other AF organizations. All National Capital Region Contracting Command 

(NCRCC) government purchase card holders should have access to this site. 

All furniture requests will be submitted via work order, signed by the HAF 2-letter, at 

http://hafap071/frninteract/ for validation by SAF/AAO, then approval by The Office of the 

Administrative Assistant to the Secretary of the Air Force (SAF/AA) and/or the Executive Oversight 

Board (EOB). 

For disposition of items that are no longer serviceable tum them in by completing a Department of the 

Almy (DA) Form 3161, Request for Issue or Turn-In via the eOAA Web Page 

(http://eoaa.hqda.pentagon.mil/). Pentagon Building tenants may call (703) 693-4323 for tmn-in 

information. For locations outside the Pentagon Reservation but within the NCR, tenants may call (703) 

428-1211 for further information. For refrigerators, call the Building Operations Control Center (BOCC), 

(703) 614-1597, to tum-in a refrigerator. The Air Force Locksmith, (703) 695-3364, must sign-off on all 

tmn-in requests for safes. Tum in the safe by submitting an electronic request to DOL-W at 

https://secureweb.hqda.pentagon.mil/pti/. 

Facilities 

Limit facility sustainment to life/safety projects. Some projects, such as those that save AF dollars by 

reducing leased space, may be entertained. All space requirements, moves, reconfiguration or alterations 

of any kind will be submitted via work order at http://hafap071/fminteract/ for validation by SAF/ AAO, 

then approval by SAF/AA and/or the EOB. 

IT 

Any IT refresh or VTC requirements should be requested through The Office of the Administrative 

Assistant to the Secretary of the Air Force, Infmmation Directorate (SAF/AAI) for validation, then 

approval by SAF/AA and/or the EOB. 

Print to Ricoh Multi-Function Devices (MFD). Users with access to Ricoh MFDs should print to these 

devices instead of other networked or side-by printers. MFD lease includes toner cartridges, and will 

reduce the need to purchase crutridges for other printers. 

Turn in excess IT equipment. These devices can fulfill new or pending requirements, and avoid 

continuing maintenance costs. IT customers requiring removal of excess, obsolete and/or unserviceable 

material will need to complete a copy ofExcess (ADPE) Tum-In-FRM-10291-LAM-PNT, which can be 

accessed at https://afdw.afucr.af.millorg/844CGILMKN/Forms/Forms/Al1Items.aspx. E-mail completed 

forms to 844CS.Warehouse@pentagon.af.mil or fax them to 202-767-4038. 

Air Force Administrative Record for FY 2013 Furlough Appeals 034
I 

I 

UNDER SECRETARY OF THE AIR FORCE 

WASHINGTON 

FEB 1 2013 

MEMORANDUM FOR UNDER SECRETARY OF DEFENSE (COMPTROLLER) 

SUBJECT: Impacts of Fiscal Year 2013 (FY13) Near-term actions the Air Force has taken to 

mitigate the impacts of sequestration 

This memorandum is provided in response to the DepSecDefs 10 January 2013 

Memorandum, Handling Budgetary Uncertainty in Fiscal Year 2013. While immediate nearterm actions are absolutely necessary to limit the catastrophic impacts on Air Force mission 

readiness should sequestration or a substantial topline reduction occur, these actions, by 

themselves, are by no means sufficient to address the full magnitude of the potential reduction. 

As such, in addition to providing an update on our near-term actions, we are including initial 

details outlining the longer-term actions and impacts associated with a year-long CR and full 

sequestration. 

Near Term Actions and Impacts 

The following is an update on our near term actions and their impacts. Major Commands 

(MAJCOM) and Combatant Commands (COCOMs) have already been issued guidance to: 

a. Implement civilian hiring restrictions: The Air Force implemented a civilian hiring freeze 

16 January 2013 for permanent, temporary, and term vacancies in all appropriations. The 

Air Force is also beginning to release temporary employees and not renewing the 

appointments of term employees unless their positions are deemed mission critical. This 

will impact up to 990 temporary employees and 2,160 term employees, as well as 260 reemployed annuitants. Exceptions for mission critical activities are made by MAJCOM 

Vice Commander (which can be delegated, with further guidance, to a subordinate 

GO/SES NAP/Center/Wing Commander). The combination of these near-term actions 

will drive capability gaps across many units. For example, the freeze will slow the AF's 

ability to provide trained employees for managing the nuclear enterprise, impair the 

intelligence community's ability to sustain investments in new data collection and analysis 

programs, impede the 2017 goal of meeting generally accepted government auditing 

standards, and will further degrade our ability to maintain base operating and facility 

sustainment at our joint and AF-only bases. We anticipate having to use military 

manpower to cover for some civilian vacancies, such as for installation gate guards. 

b. Cancel non-mission critical temporary duties (TDY s): Commanders are reviewing TDY s, 

such as attendance at or hosting of conferences and symposia (including functional 

conferences), staff assistance visits and training seminars. Non-mission critical TDYs are 

being canceled. Some eliminated TDYs (such as operational and compliance inspections) 

translate into increased risk immediately to unit readiness that will compound over time. 

For example, reducing professional military education and mission readiness training 

TDY s by $53M would delay promotions for over 8,000 Airmen and drive loss of 

certification for Airmen in technical AFSC such as firefighters and EOD specialists. In 

1 

Air Force Administrative Record for FY 2013 Furlough Appeals 035
addition to these impacts, a further reduction of$74M in travel funds leads to direct 

operational impacts as well. For example, TDYAir Force support to COCOMs would be 

reduced; leading to SOUTHCOM's inability to provide maritime monitoring for 

counterdrug detection and interdiction. To the extent feasible, we will seek to protect 

combat mission critical training TDY such as crew deployments to RED FLAG, however 

we are already seeing indicators of strain on even these activities due to multiple 

reductions to travel budgets. 

c. Reduce MAJCOM and COCOMs' topline O&M budgets by approximately 10%: To 

implement these near-te~m reductions, the commands are focusing their attention on 

several areas. · 

1. All flying not directly related to readiness, such as air shows, flyovers, and 

, familiarization rides are being reviewed for necessity, for example, we are 

reviewing planning and participation in high profile events such as the Paris Air 

Show and Fairford Royal International Air Tattoo. These reductions could 

potentially impact allies' and partners' future systems acquisition deCisions. 

2. Studies that are not Congressionally-directed or mission critical are under review 

for cancelation. Results and recommendations from studies are generally longerterm in nature and the real impact of their loss will not be seen immediately but 

will show up in lost capabilities for corporate-level strategic decision support in 

the near future. 

3. Commands are also reviewing IT refresh and network support contracts; we expect 

to see large scale reductions and purchase delays that may extend indefinitely. 

4. MAJCOMs and COCOMs are limiting supply purchases to essential FY13 

consumption (such as flying hour bench stock) and stopping minor purchases and 

unit equipment not deemed mission-critical. The bowwave of supply requirements 

impacts all mission sets in the long term. These actions will be particularly 

disruptive at remote northern-tier locations such as Alaska, and for Operation 

NOBLE EAGLE alert missions. 

5. We are also descoping contracts or incrementally funding for only FY13 

requirements where practical. While this helps address near-term cash flow 

issues, it also creates FY14 bowwaves. 

· 6. Note that many of these reductions will contribute to a serious decline in our small 

business prim,e contract awards, as the areas of maximum spending flexibility for 

bases and commands are the four most small business friendly markets in the Air 

Force- construction, facilities support, information technology and knowledge 

based services. We have already seen an almost 3% ($100M) decline in small 

business contract awards in FY13. Sequestration cuts will make this situation even 

worse and the impact to our small business prime contractor base will be dire. 

d. Defer non-emergency Facility Sustainment, Restoration and Modernization (FSRM) 

projects: We project this will yield a reduction of roughly 50% in spending, which will 

magnify already substantial risk in infrastructure. Facilities and infrastructure will 

degrade, as even mission critical Restoration & Modernization projects are delayed across 

the Air Force. Additionally, these actions interrupt significant sustainment projects 

including six runway/taxi projects, risking more costly repairs ~n the future. Deferrals in 

the energy program directly result in slowing energy consumption reduction efforts. Due 

to the magnitude of the projects deferred, the secondary and tertiary effects of reduced 

Air Force Administrative Record for FY 2013 Furlough Appeals 036
\. 

economic impacts are being felt across many states and adds to the current bow-wave of 

over $12B in requirements. We will provide you with a spreadsheet including further 

detail on the impacted infrastructure investments, which include: 

1. Restoration & Modernization: Defer 133 projects at 55 installations (AL, AK, AZ, 

AR, CA, CO, FL, HI, IL, LA, MD, MS, MT, NE, NV, NJ, NM, NC, ND, OK, SC, 

TX, UT; VA, WA, WY and Overseas) 

2. Sustainment: Defer 15 projects at 13 installations (AL, CO, FL, LA, MS, MO, 

NE, OK, TX, WYand Overseas) 

3. Demolition: Defer 73 projects at 32 installations (AK, AL, CA, CO, FL, GA, IL, 

MO, MS, MT, NC, ND, NE, OH, OK, SC, TX, WA, WY, and Overseas) 

4. Dormitory Focus Fund: Defer 12 projects at 10 installations (CA, ID, TX and six 

overseas locations); program repairs 1,195 dormitory rooms 

5. Energy Focus Fund: Defer 218 projects at 68 installations (AL, AK, AZ, CA, CO, 

DE, FL, GA, ID, IL, KS, LA, MA, MS, MO, NE, NV, NJ, NM, NC,ND, OH, OK, 

SC, SD, TX, UT, VA, WA, WYand Overseas) 

· Post Sequestration Actions and Impacts 

These near term actions achieve only a small share of the total sequestration or top line 

reduction. Therefore, if we do not have resolution by 1 March 2013, we would immediately 

carry out additional actions that will have unavoidable impacts on core Air Force readiness, our 

ability to meet the operational expectations of national and COCOM leadership, as well as 

programs that support our Airmen and their families. These longer-term actions include: 

a. Reducing Flying Hours by as much as 18% (~203K hours across the enterprise): 

The Air Force will prioritize ongoing named operations, inCluding OEF, and will protect 

nuClear deterrence preparedness, POTUS support, and initial qualification training 

pipelines. We are able to continue these missions with some exceptions, but as early as 1 

March 2013, the remaining operational and training missions are impacted as follows: 

1. Non-support of multiple non-OEF COCOM requirements, such as Theater 

Security Packages and Continuous Bomber Presence missions at Guam. 

2. Non-support of many joint and COCOM exercises, and cancellation of Air Force 

exercises (except where required for OEF deployment spin-up), to include but not 

limited to: 

1. Bright Star, Talisman Saber, Commando Sling, Eager Tiger, Cope Tiger, 

Cope West Northern Edge, and Vigilant Eagle. 

11. Red Flag Nellis and Alaska, Green Flag East and West. 

111. In addition to the lost training, we lose essential elements of COCOM 

engagement plans and partnership building efforts, impacting coalition 

partners as well. 

3. Cancellation of some advanced training and weapons instructor courses 

Cancellation of most flying participation in airshows, installation open 

houses, tradeshows, and flyovers, to include the Thunderbirds and other 

demonstration teams (we are working with sister services to synchronize 

timing demonstration team stand-down). Cancelling these key outreach 

· events impacts recruiting, and our opportunity to educate and inform the 

public and other key stakeholders, to include partner nations. Over the 

mid-to-long term, we risk relationship building with partners and losing 

public support and advocacy. 

Air Force Administrative Record for FY 2013 Furlough Appeals 037
4. Combat Air Forces (CAF) units supporting the prioritized missions listed above 

(e.g. OEF, nuclear deterrence) will be kept mission ready; the remaining CAF 

units, which represent the majority, will continue to execute unit level home 

station training until depletion of flying hour funds, which could occur as early as 

31 May 2013 in some units. 

1. The stand-down will produce severe, rapid and long-term unit combat 

readiness degradation 

n. Beginning 1 October 2013 (FY14), it is estimated to take six months for 

many units to regain the current, sub-optimal readiness level, which will 

require additional funding above the level that would be available in a 

sequestered FY14 budget. If no additional funding is made available, we 

do not currently have a solution for regaining readiness. 

5. Mobility Air Forces (MAF) units will experience degradation in key capabilities I 

such as air drop and aerial refueling, which will be most evident in primarily 

O&M funded units such as tankers and intra-theater airlift. Lack of hours to 

perform Joint Airborne/Air Transportability Training (JA/ATT) adversely impacts 

critical Army rapid response capabilities. 

6. Air Education and Training Command (AETC) will stand down advanced training 

courses on 1 April in order to protect initial flying training, but we project that 

even initial flying training will have to stand-down in early September. 

The Air Force continues to refine planning for this unprecedented flying hour reduction, 

focusing on minimizing readiness impact while supporting current operations and defense 

strategic guidance. Regardless of continued planning efforts and potential changes to the 

details, we are looking at relative degrees ofunacceptability, caused by a strategyresource mismatch. We look forward to the opportunity to fully communicate projected 

readiness impacts in a classified message. 

b. Reducing Weapons System Sustainment by as much as 18%: Pushes aircraft availability 

and mission capable rates significantly below standards. The reductions impact over 30 

types of aircraft and other Weapon Systems across the Total Force, resulting in 146 

postponed depot inductions (some of which will lead to grounded aircraft) and 8 5 . engines 

pulled from service: The C-17, A-10, C-130, KC-135, F-15, F-16, B-52, and E-8 

JST ARS fleets will all be affected. The overall near term impacts of these actions is 

equivalent to an approximate 1/3 reduction in depot workload for the remainder of FY 13. 

The missile warning and space surveillance tracking performed at radar sites at Cavalier 

AFS, the AF Space Surveillance System, and Eareckson AFB AK will be reduced from 

24 to only 8 hours per day operation, significantly impacting national missile defense, 

space situational awareness, and the intelligence community. Sustaining engineering and 

technical order support is reduced across all weapon systems. Our experience in depot 

operations shows that large fluctuations in workload can have severe and negative effects 

on the productivity of the workforce. 

c. Air Force Working Capital Funds (AFWCF): The AFWCF will experience immediate, 

severe impacts caused by cuts in the Depot Maintenance and Flying Hour programs. As 

ofthe end of December, the AFWCF cash balance was already critically low at just 2 

days of cash. Cost control measures within the AFWCF activities over the remainder of 

the FY13 will not sufficiently off-set projected revenue losses. Even minimal cutbacks in 

Air Force Administrative Record for FY 2013 Furlough Appeals 038
planned depot orders and supply chain demand could push the cash balance below zero 

and cause an Anti-Deficiency Act violation. 

d. Implementing civilian furloughs: Furloughs will be implemented to the maximum level 

possible without initiating reduction in force procedures for Title 5 employees across the 

total force (Active, Guard and Reserve). While still in the planning stages, the fiscal 

constraints under sequestration could force the Air Force to :fuilough up to 180,000 

civilian employees for up to 22 working days before 30 September 2013. This 

unprecedented action would risk mission accomplishment, limit access to civilian 

expertise and. institutional knowledge, and decimate morale across the department. A 

furlough will break faith with civilian Airmen who are critical to the Total Force success 

of the Air Force and cause long term work force issues. Its consequences would 

immediately be felt through a loss of 31.5 million man-hours, and civilian employees will 

suffer a 20% loss in pay over a six month period. The Air Force is awaiting specific 

direction from OSD on furloughs. Furlough of Title 32 Air National Guard dual status 

technicians can only be directed by state Adjutants General, but we expect that states may 

find Guard technician furloughs necessary to live within reduced civilian pay O&M 

budgets. 

, 

e. Reduced MAJCOM/COCOM budgets: Below are additional MAJCOM actions in the 

longer-term if sequestration or topline reduction cannot be avoided: 

1. Reduce Professional Military Education and Mission Readiness Training quotas. 

This action has a direct and continuing impact on Airmen by denying them the 

ability to meet promotion requirements. This also affects future promotion cycles 

as backlogged Airmen cycle through training. 

2. Reduce sustainment of the Defense Satellite Communications System by 75%, 

potentially impacting military communications worldwide. 

3. Terminate support for 43 Global Combat Support System-hosted IT applications 

As a result, the Air Force will lose significant capability and will be in violation 

of numerous DOD directives. 

4. Reduce operational testing for RDT&E programs and systems impacting many 

agencies and installations (such as. NASA Dryden Research Center at Edwards 

AFB, and Department of Energy and Sandia Labs at Kirtland AFB). 

5. In addition to the reduction in FSRM contracts already underway, contracts 

. supporting training ranges, base maintenance and dining facilities contracts will 

be incrementally funded; contractors will be notified on a case by case basis. 

6. Suspend Air Force wide Engineering and Installation workplans to include the 

new control tower at Vance AFB, the instrument landing system at Dover AFB, 

the SATCOM facility at Ramstein AB and Giant Voice upgrades for multiple 

commands. 

f. Acquisition programs: With respect to acquisition program accounts, a year-long 

continuing resolution coupled with sequestration negatively impacts weapon system 

program strategies, cost, and schedules; thus, creating a protracted disruptive effect to our 

modernization programs. Continued budget reductions ultimately result irt delayed 

delivery and/or cancellation ofwarfighter capabilities, and increased cost required to 

modernize our aging fleet. This impedes our ability to fully support the new defense 

strategy. We continue to work with USD (AT&L) to assess future program obligations 

Air Force Administrative Record for FY 2013 Furlough Appeals 039
and continue to evaluate the prioritization of our modernization programs in the event 

that reprogramming between programs is allowed. 

The post-sequestration actions outlined above will have devastating impacts to readiness and 

operational capability. The disproportionate effect on core readiness is due to the limited amount 

of reductions we can apply to programs given the limited time and flexibility remaining after 

covering must-pays. This summary of sequestration impacts reflects our initial evaluation, and 

we will continue to further refine our estimates of the impacts and work to mitigate them as 

much as possible. We are still assessing the longer-term operational impacts and will provide 

those updates by 8 February 2013 with an assessment of impacts to our acquisition programs. 

From a policy standpoint, the Air Force is standing by for further guidance regarding civilian 

furloughs and will work with you to implement any forthcoming direction. We also take this 

opportunity to highlight a need for clear guidance on how our post-sequestration baseline will be 

established. As sequestration is based on an annualized CR rate, and not the FY13 President's 

Budget, we need clarity on program baselines and specifics on tools available to mitigate impacts 

and avoid Anti-Deficiency Act violations. A waiver to increase Below Threshold 

Reprogramming amounts would enhance our ability to mitigate sequestration impacts. In the 

case of a year-long Continuing Resolution, new start and quantity increase approval is needed to 

curb additional impacts. In addition, relief from the 80/20 obligation rule and limitations such as 

depot maintenance floor and 50/50 rule will provide us with essential flexibility to manage in 

this turbulent environment. 

If you have questions regarding this response, please contact Ms. Marilyn Thomas at 

(703) 697-4464. 

~.~ General, USAF 

Vice Chief of Staff 

cc: 

SAF/FM 

Under Secretary of the Air Force 

(Acting) 

Air Force Administrative Record for FY 2013 Furlough Appeals 040
Office Of The Secretary 

DEPARTMENT OF THE AIR FORCE 

WASHINGTON, DC 

MEMORANDUM FOR ALMAJCOM-FOA-DRU/CV 

DISTRIBUTION C 

FROM: SAF/AA 

1720 Air Force Pentagon 

Washington DC 20330-1720 

SUBJECT: Suspension of Top Secret Periodic Reinvestigations 

Reference: (a) SAF/AA Memo, 26 Jul 12 

(b) SAF/AA Memo, 13Apr 12 

FEB 13 2013 

As noted in the above references, the Air Force experienced fiscal challenges in Fiscal 

Year (FY) 12 and suspended Top Secret Periodic Reinvestigations from 13 April to 30 

September 2012. Due to an estimated $50 million shortfall in the FY13 Personnel Security 

Investigation budget, we are suspending the submission of all Top Secret Periodic 

Reinvestigations until further notice. Effective immediately, all Single Scope Periodic 

Reinvestigations (SSBI-PR) and Phased Periodic Reinvestigations (PPRs) are suspended with 

exceptions noted below. This suspension includes the mandatory Air Force Specialty Codes 

requiring in-scope Top Secret investigations as found in Air Force Officer and Air Force Enlisted 

Classification Directories. 

Reinvestigations for personnel assigned to Personnel Reliability Programs, Presidential 

Support Programs, Special Access Programs and personnel with access to Sensitive 

Compartmented Information who are in positions directly supporting the Intelligence 

Community will not be suspended. Additional exceptions must be approved by SAF/AAZ. 

If you have any questions please contact Mr. Herman Mitchell, SAF/AAZ at 703-693 

0644, Herman.Mitchell@pentagon.af.rnil, Ms Jennifer Aquinas, SAF/AAZ at 703-693-0 158, 

Jennifer.Aguinas@pentagon.af.mil. 

~/A'~ 

TIMBE~~- Administrative Assistant 

Air Force Administrative Record for FY 2013 Furlough Appeals 041
OFFICE OF THE SECRETARY 

DEPARTMENT OF THE AIR FORCE 

WASHINGTON, DC 

MEMORANDUM FOR DISTRIBUTION C 

ALMAJCOM-FOA-DRU/CV 

SUBJECT: Near-Term Guidance on FY13 Information Technology (IT) Spending 

References: 

FEB 1 5 2013 

(a) USECAFNCSAF Memo, "Fiscal Year 2013 (FY13) Near-Term Actions to Handle 

Budgetary Uncertainty," 14 Jan 2013 

(b) Executive Order 13589, "Promote Efficient Spending," 9 Nov 2011 

(c) SAF/CIO A6 Memo, "Implementing Executive Order 13589," 26 Nov 2012 

1. Given the current budget uncertainty and the resulting Under Secretary and Vice Chief of 

Staff of the Air Force guidance (Reference A), I further direct the following immediate actions 

be taken to minimize IT expenditures to only mission-critical capabilities. 

a) Limit IT hardware and software purchases via 3400 funds to mission-critical 

requirements. Eliminate/defer planned IT refresh and "new start" IT projects. Where 

purchases need to made, consider consolidating organizational requirements to larger 

purchases to try to obtain pricing consideration. 

b) Re-validate IT procurements using 3600/3080 dollars to confirm priority and immediate 

mission need. Although budget authorizations up to the congressionally appropriated 

amount remain, look for every opportunity to reduce or curtail spending. Defer what can 

wait without causing critical mission impacts. 

c) Evaluate current IT contracts and incrementally fund/defer where practical. Ensure use of 

mandated, available NETCENTS-1 and NETCENTS-2 contracts for IT requirements to 

support enterprise-wide long-term cost savings. 

2. Ensure that planned mission-critical purchases are aligned and directly support the transition 

to enterprise IT services where available to increase capabilities and save dollars. We are 

working several enterprise initiatives with DISA, Cyberspace Superiority Core Function Lead 

Integrator, MAJCOMs, and PEO C3 I&N. While many of the initiatives below are in their early 

stages, these opportunities can reduce IT expenditures across the Air Force. We will provide 

specific details on the initiatives in a separate memo, and work closely with your representatives 

to implement them, The initiatives include: 

Air Force Administrative Record for FY 2013 Furlough Appeals 042
a) Enterprise License Agreements (already established cost-saving AF-wide agreements for 

Microsoft and Adobe), 

b) Data Center Consolidation 

c) Unified Capabilities (voice/video services over IP, increased collaboration, and DoD 

integration) 

d) Network Security 

e) Cloud Computing Services 

f) DoD Enterprise Email 

3. Exceptions to this direction may be made for mission-critical activities as determined by 

appropriate senior officials as outlined in Reference A. Continue to report your total quarterly 

FY13 IT expenditures in accordance with Reference C. 

4. Nothing in this memorandum is intended to conflict with existing public law or published 

DoD and AF guidance on IT Asset Management. 

5. We stand ready to support your IT cost saving initiatives. Please share any initiatives that you 

think may be good candidates to implement across the Air Force enterprise and we will work as 

appropriate. 

6. Thank you in advance for your rapid action and support. My point of contact is Mr Greg 

Parker, Chief, Resources Division, DSN 225-4442. The NETCENTS-2 POC is Mr. Robert 

Smothers, AFLCMC/HICI, (334) 416-5593. 

MICHAEL J. BAS LA, Lt Gen, USAF 

Chief, Information Dominance and 

Chief Information Officer 

Air Force Administrative Record for FY 2013 Furlough Appeals 043
SECRETARY OF DEFENSE 

1 000 DEFENSE PENTAGON 

WASHINGTON, DC 20301-1000 

The Honorable Joseph R. Biden, Jr. 

President of the Senate 

United States Senate 

S-212 Capitol Building 

Washington, DC 20510 

Dear Mr. President: 

FEB 2 0 2013 

In accordance with statute, I am providing a report on potential civilian furloughs within 

the Department of Defense. Specifically, title 10, U.S.C., section 1597(e), provides that the 

Secretary of Defense "may not implement any involuntary reduction or furlough of civilian 

positions ... until the expiration of the 45-day period beginning on the date on which the 

Secretary submits to Congress a report setting forth the reasons why such reduction or furloughs 

are required and a description of any change in workload or positions requirements that will 

result from such reductions or furloughs." This letter provides the report and information 

required by this section. 

We remain hopeful that the Administration and Congress will reach an agreement to 

avoid the across-the-board reductions in Federal spending required by the Budget Control Act of 

2011, commonly known as "sequestration." The Department must, however, continue to plan 

for such reductions should Congress not take action prior to sequestration taking effect on March 

1, 2013. If sequestration is not avoided, the magnitude of the potential reductions will damage 

force readiness, slow major acquisition programs, and necessitate civilian furlough actions that 

will negatively affect our Federal civilian workforce. Overall, sequestration will put us on a path 

toward a hollow force and inflict serious damage on our national security. 

If faced with sequestration, the Defense Department will be forced to forego critical 

objectives. As we make the difficult decisions about how to maintain our national security to the 

greatest extent we can in light of these destructive cuts, the Department will have to consider 

furloughs across the entire defense civilian workforce in order to meet the fiscal target mandated 

by sequestration. Because there will be no change in the requirements for work to be performed 

by the Department's workforce to maintain our national security, the workload on each employee 

and the requirements for each position that will result from such furloughs will be increased 

beyond what can reasonably be achieved. The furloughs contemplated by this notice will do real 

harm to our national security. Moreover, we understand that furloughs would have serious 

adverse effects on the livelihood, morale, and productivity of our workforce, and where possible 

we will take steps to minimize those effects. 

Air Force Administrative Record for FY 2013 Furlough Appeals 044
Nevertheless, if required, it is my goal to apply furlough actions in a consistent and 

equitable manner across the Department, though variations may occur because of the mission 

and budgetary requirements of each military department and agency. Each military department 

and agency within the Department will prepare detailed sequestration plans, and the Department 

will submit an updated plan for operations under a sequestration to Congress, as required by 

section 116(b) ofthe Continuing Appropriations Resolution, 2013, Public. Law 112-175. 

Finally, if furlough actions prove to be necessary, every affected employee would be 

subject to furlough for up to 22 discontinuous work days (176 total hours), the maximum number 

of furlough days allowed without triggering additional notification requirements that follow 

reduction-in-force procedures (though such an extended furlough action would still constitute a 

temporary placement on non-pay/non-duty status, rather than a permanent separation from 

service). We will provide affected employees the requisite advance notice before a furlough 

occurs. The Department is also engaged in the necessary and appropriate discussions with 

employee unions, and will discharge any applicable collective bargaining obligations that may 

arise. In the event an agreement is reached that averts sequestration and restores needed funding, 

we will immediately cancel any furloughs that have resulted and cease furlough planning. 

While furloughs would be disruptive and damaging to our ability to carry out the defense 

mission, there are no viable alternatives for the Department if sequestration actually occurs. We 

will continue to work with Congress in an effort to avoid sequestration and furloughs. A similar 

letter is being sent to the Speaker of the House and the defense oversight committees. 

Sincerely, 

2 

Air Force Administrative Record for FY 2013 Furlough Appeals 045
The Honorable Harry Reid 

Majority Leader 

United States Senate 

Washington, DC 20510 

Dear Mr. Majority Leader: 

SECRETARY OF DEFENSE 

1 000 DEFENSE PENTAGON 

WASHINGTON, DC 20301-1000 

FEB 2 0 2013 

In accordance with statute, I am providing a report on potential civilian furloughs within 

the Department of Defense. Specifically, title 10, U.S.C., section 1597(e), provides that the 

Secretary of Defense "may not implement any involuntary reduction or furlough of civilian 

positions ... until the expiration of the 45-day period beginning on the date on which the 

Secretary submits to Congress a report setting forth the reasons why such reduction or furloughs 

are required and a description of any change in workload or positions requirements that will 

result from such reductions or furloughs." This letter provides the report and information 

required by this section. 

We remain hopeful that the Administration and Congress will reach an agreement to 

avoid the across-the-board reductions in Federal spending required by the Budget Control Act of 

2011, commonly known as "sequestration." The Department must, however, continue to plan 

for such reductions should Congress not take action prior to sequestration taking effect on March 

1, 2013. If sequestration is not avoided, the magnitude of the potential reductions will damage 

force readiness, slow major acquisition programs, and necessitate civilian furlough actions that 

will negatively affect our Federal civilian workforce. Overall, sequestration will put us on a path 

toward a hollow force and inflict serious damage on our national security. 

If faced with sequestration, the Defense Department will be forced to forego critical 

objectives. As we make the difficult decisions about how to maintain our national security to the 

greatest extent we can in light of these destructive cuts, the Department will have to consider 

furloughs across the entire defense civilian workforce in order to meet the fiscal target mandated 

by sequestration. Because there will be no change in the requirements for work to be performed 

by the Department's workforce to maintain our national security, the workload on each employee 

and the requirements for each position that will result from such furloughs will be increased 

beyond what can reasonably be achieved. The furloughs contemplated by this notice will do real 

harm to our national security. Moreover, we understand that furloughs would have serious 

adverse effects on the livelihood, morale, and productivity of our workforce, and where possible 

we will take steps to minimize those effects. 

Air Force Administrative Record for FY 2013 Furlough Appeals 046
Nevertheless, if required, it is my goal to apply furlough actions in a consistent and 

equitable manner across the Department, though variations may occur because of the mission 

and budgetary requirements of each military department and agency. Each military department 

and agency within the Department will prepare detailed sequestration plans, and the Department 

will submit an updated plan for operations under a sequestration to Congress, as required by 

section 116(b) ofthe Continuing Appropriations Resolution, 2013, Public. Law 112-175. 

Finally, if furlough actions prove to be necessary, every affected employee would be 

subject to furlough for up to 22 discontinuous work days (176 total hours), the maximum number 

of furlough days allowed without triggering additional notification requirements that follow 

reduction-in-force procedures (though such an extended furlough action would still constitute a 

temporary placement on non-pay/non-duty status, rather than a permanent separation from 

service). We will provide affected employees the requisite advance notice before a furlough 

occurs. The Department is also engaged in the necessary and appropriate discussions with 

employee unions, and will discharge any applicable collective bargaining obligations that may 

arise. In the event an agreement is reached that averts sequestration and restores needed funding, 

we will immediately cancel any furloughs that have resulted and cease furlough planning. 

While furloughs would be disruptive and damaging to our ability to carry out the defense 

mission, there are no viable alternatives for the Department if sequestration actually occurs. We 

will continue to work with Congress in an effort to avoid sequestration and furloughs. A similar 

letter is being sent to the President of the Senate, the Speaker of the House, and the defense 

oversight committees. 

cc: 

The Honorable Mitch McConnell 

Minority Leader 

2 

Air Force Administrative Record for FY 2013 Furlough Appeals 047
SECRETARY OF DEFENSE 

1000 DEFENSE PENTAGON 

WASHINGTON, DC 20301 -1 000 

The Honorable John A. Boehner 

Speaker of the House 

U.S. House ofRepresentatives 

Washington, DC 20515 

Dear Mr. Speaker: 

FEB 2 0 2013 

In accordance with statute, I am providing a report on potential civilian furloughs within 

the Department of Defense. Specifically, title 10, U.S.C., section 1597(e), provides that the 

Secretary of Defense "may not implement any involuntary reduction or furlough of civilian 

positions ... until the expiration of the 45-day period beginning on the date on which the 

Secretary submits to Congress a report setting forth the reasons why such reduction or furloughs 

are required and a description of any change in workload or positions requirements that will 

result from such reductions or furloughs." This letter provides the report and information 

required by this section. 

We remain hopeful that the Administration and Congress will reach an agreement to 

avoid the across-the-board reductions in Federal spending required by the Budget Control Act of 

2011, commonly known as "sequestration." The Department must, however, continue to plan 

for such reductions should Congress not take action prior to sequestration taking effect on March 

1, 2013. If sequestration is not avoided, the magnitude of the potential reductions will damage 

force readiness, slow major acquisition programs, and necessitate civilian furlough actions that 

will negatively affect our Federal civilian workforce. Overall, sequestration will put us on a path 

toward a hollow force and inflict serious damage on our national security. 

If faced with sequestration, the Defense Department will be forced to forego critical 

objectives. As we make the difficult decisions about how to maintain our national security to the 

greatest extent we can in light of these destructive cuts, the Department will have to consider 

furloughs across the entire defense civilian workforce in order to meet the fiscal target mandated 

by sequestration. Because there will be no change in the requirements for work to be performed 

by the Department's workforce to maintain our national security, the workload on each employee 

and the requirements for each position that will result from such furloughs will be increased 

beyond what can reasonably be achieved. The furloughs contemplated by this notice will do real 

harm to our national security. Moreover, we understand that furloughs would have serious 

adverse effects on the livelihood, morale, and productivity of our workforce, and where possible 

we will take steps to minimize those effects. 

Air Force Administrative Record for FY 2013 Furlough Appeals 048
Nevertheless, if required, it is my goal to apply furlough actions in a consistent and 

equitable manner across the Department, though variations may occur because of the mission 

and budgetary requirements of each military department and agency. Each military department 

and agency within the Department will prepare detailed sequestration plans, and the Department 

will submit an updated plan for operations under a sequestration to Congress, as required by 

section 116(b) ofthe Continuing Appropriations Resolution, 2013, Public. Law 112-175. 

Finally, if furlough actions prove to be necessary, every affected employee would be 

subject to furlough for up to 22 discontinuous work days (176 total hours), the maximum number 

of furlough days allowed without triggering additional notification requirements that follow 

reduction-in-force procedures (though such an extended furlough action would still constitute a 

temporary placement on non-pay/non-duty status, rather than a permanent separation from 

service). We will provide affected employees the requisite advance notice before a furlough 

occurs. The Department is also engaged in the necessary and appropriate discussions with 

employee unions, and will discharge any applicable collective bargaining obligations that may 

arise. In the event an agreement is reached that averts sequestration and restores needed funding, 

we will immediately cancel any furloughs that have resulted and cease furlough planning. 

While furloughs would be disruptive and damaging to our ability to carry out the defense 

mission, there are no viable alternatives for the Department if sequestration actually occurs. We 

will continue to work with Congress in an effort to avoid sequestration and furloughs. A similar 

letter is being sent to the President of the Senate and the defense oversight committees. 

cc: 

The Honorable Nancy Pelosi 

Minority Leader 

Sincerely, 

2 

Air Force Administrative Record for FY 2013 Furlough Appeals 049
The Honorable Carl Levin 

Chairman 

SECRETARY OF DEFENSE 

1000 DEFENSE PENTAGON 

WASHINGTON. DC 20301·1000 

Committee on Armed Services 

United States Senate 

Washington, DC 20510 

Dear Mr. Chairman: 

FEB 2 0 2013 

In accordance with statute, I am providing a report on potential civilian furloughs within 

the Department ofDefense. Specifically, title 10, U.S.C., section 1597(e), provides that the 

Secretary of Defense "may not implement any involuntary reduction or furlough of civilian 

positions ... until the expiration of the 45-day period beginning on the date on which the 

Secretary submits to Congress a report setting forth the reasons why such reduction or furloughs 

are required and a description of any change in workload or positions requirements that will 

result from such reductions or furloughs." This letter provides the report and information 

required by this section. 

We remain hopeful that the Administration and Congress will reach an agreement to 

avoid the across-the-board reductions in Federal spending required by the Budget Control Act of 

2011, commonly known as "sequestration." The Department must, however, continue to plan 

for such reductions should Congress not take action prior to sequestration taking effect on March 

1, 2013. If sequestration is not avoided, the magnitude of the potential reductions will damage 

force readiness, slow major acquisition programs, and necessitate civilian furlough actions that 

will negatively affect our Federal civilian workforce. Overall, sequestration will put us on a path 

toward a hollow force and inflict serious damage on our national security. 

If faced with sequestration, the Defense Department will be forced to forego critical 

objectives. As we make the difficult decisions about how to maintain our national security to the 

greatest extent we can in light of these destructive cuts, the Department will have to consider 

furloughs across the entire defense civilian workforce in order to meet the fiscal target mandated 

by sequestration. Because there will be no change in the requirements for work to be performed 

by the Department's workforce to maintain our national security, the workload on each employee 

and the requirements for each position that will result from such furloughs will be increased 

beyond what can reasonably be achieved. The furloughs contemplated by this notice will do real 

harm to our national security. Moreover, we understand that furloughs would have serious 

adverse effects on the livelihood, morale, and productivity of our workforce, and where possible 

we will take steps to minimize those effects. 

Air Force Administrative Record for FY 2013 Furlough Appeals 050
Nevertheless, if required, it is my goal to apply furlough actions in a consistent and 

equitable manner across the Department, though variations may occur because of the mission 

and budgetary requirements of each military department and agency. Each military department 

and agency within the Department will prepare detailed sequestration plans, and the Department 

will submit an updated plan for operations under a sequestration to Congress, as required by 

section 116(b) ofthe Continuing Appropriations Resolution, 2013, Public. Law 112-175. 

Finally, if furlough actions prove to be necessary, every affected employee would be 

subject to furlough for up to 22 discontinuous work days (176 total hours), the maximum number 

of furlough days allowed without triggering additional notification requirements that follow 

reduction-in-force procedures (though such an extended furlough action would still constitute a 

temporary placement on non-pay/non-duty status, rather than a permanent separation from 

service). We will provide affected employees the requisite advance notice before a furlough 

occurs. The Department is also engaged in the necessary and appropriate discussions with 

employee unions, and will discharge any applicable collective bargaining obligations that may 

arise. In the event an agreement is reached that averts sequestration and restores needed funding, 

we will immediately cancel any furloughs that have resulted and cease furlough planning. 

While furloughs would be disruptive and damaging to our ability to carry out the defense 

mission, there are no viable alternatives for the Department if sequestration actually occurs. We 

will continue to work with Congress in an effort to avoid sequestration and furloughs. A similar 

letter is being sent to the President of the Senate, the Speaker of the House, and the other defense 

oversight committees. 

cc: 

The Honorable James M. Inhofe 

Ranking Member 

Sincerely, 

2 

Air Force Administrative Record for FY 2013 Furlough Appeals 051
SECRETARY OF DEFENSE 

1000 DEFENSE PENTAGON 

WASHINGTON, DC 20301-1000 

The Honorable Barbara A. Mikulski 

Chairwoman 

Committee on Appropriations 

United States Senate 

Washington, DC 20510 

Dear Madam Chairwoman: 

FEB 2 0 2013 

In accordance with statute, I am providing a report on potential civilian furloughs within 

the Department ofDefense. Specifically, title 10, U.S.C., section 1597(e), provides that the 

Secretary of Defense "may not implement any involuntary reduction or furlough of civilian 

positions ... until the expiration of the 45-day period beginning on the date on which the 

Secretary submits to Congress a report setting forth the reasons why such reduction or furloughs 

are required and a description of any change in workload or positions requirements that will 

result from such reductions or furloughs." This letter provides the report and information 

required by this section. 

We remain hopeful that the Administration and Congress will reach an agreement to 

avoid the across-the-board reductions in Federal spending required by the Budget Control Act of 

2011, commonly known as "sequestration." The Department must, however, continue to plan 

for such reductions should Congress not take action prior to sequestration taking effect on March 

1, 2013. If sequestration is not avoided, the magnitude of the potential reductions will damage 

force readiness, slow major acquisition programs, and necessitate civilian furlough actions that 

will negatively affect our Federal civilian workforce. Overall, sequestration will put us on a path 

toward a hollow force and inflict serious damage on our national security. 

If faced with sequestration, the Defense Department will be forced to forego critical 

objectives. As we make the difficult decisions about how to maintain our national security to the 

greatest extent we can in light of these destructive cuts, the Department will have to consider 

furloughs across the entire defense civilian workforce in order to meet the fiscal target mandated 

by sequestration. Because there will be no change in the requirements for work to be performed 

by the Department's workforce to maintain our national security, the workload on each employee 

and the requirements for each position that will result from such furloughs will be increased 

beyond what can reasonably be achieved. The furloughs contemplated by this notice will do real 

harm to our national security. Moreover, we understand that furloughs would have serious 

adverse effects on the livelihood, morale, and productivity of our workforce, and where possible 

we will take steps to minimize those effects. 

Air Force Administrative Record for FY 2013 Furlough Appeals 052
Nevertheless, if required, it is my goal to apply furlough actions in a consistent and 

equitable manner across the Department, though variations may occur because of the mission 

and budgetary requirements of each military department and agency. Each military department 

and agency within the Department will prepare detailed sequestration plans, and the Department 

will submit an updated plan for operations under a sequestration to Congress, as required by 

section 116(b) ofthe Continuing Appropriations Resolution, 2013, Public. Law 112-175. 

Finally, if furlough actions prove to be necessary, every affected employee would be 

subject to furlough for up to 22 discontinuous work days (176 total hours), the maximum number 

of furlough days allowed without triggering additional notification requirements that follow 

reduction-in-force procedures (though such an extended furlough action would still constitute a 

temporary placement on non-pay/non-duty status, rather than a permanent separation from 

service). We will provide affected employees the requisite advance notice before a furlough 

occurs. The Department is also engaged in the necessary and appropriate discussions with 

employee unions, and will discharge any applicable collective bargaining obligations that may 

arise. In the event an agreement is reached that averts sequestration and restores needed funding, 

we will immediately cancel any furloughs that have resulted and cease furlough planning. 

While furloughs would be disruptive and damaging to our ability to carry out the defense 

mission, there are no viable alternatives for the Department if sequestration actually occurs. We 

will continue to work with Congress in an effort to avoid sequestration and furloughs. A similar 

letter is being sent to the President of the Senate, the Speaker of the House, and the other defense 

oversight committees. 

cc: 

The Honorable Richard C. Shelby 

Vice Chairman 

Sincerely, 

2 

Air Force Administrative Record for FY 2013 Furlough Appeals 053
SECRETARY OF DEFENSE 

1 000 DEFENSE PENTAGON 

WASHINGTON. DC 20301-1000 

The Honorable Richard J. Durbin 

Chairman 

Subcommittee on Defense 

Committee on Appropriations 

United States Senate 

Washington, DC 20510 

Dear Mr. Chairman: 

FEB 2 0 2013 

In accordance with statute, I am providing a report on potential civilian furloughs within 

the Department of Defense. Specifically, title 10, U.S.C., section 1597(e), provides that the 

Secretary of Defense "may not implement any involuntary reduction or furlough of civilian 

positions ... until the expiration of the 45-day period beginning on the date on which the 

Secretary submits to Congress a report setting forth the reasons why such reduction or furloughs 

are required and a description of any change in workload or positions requirements that will 

result from such reductions or furloughs." This letter provides the report and information 

required by this section. 

We remain hopeful that the Administration and Congress will reach an agreement to 

avoid the across-the-board reductions in Federal spending required by the Budget Control Act of 

2011, commonly known as "sequestration." The Department must, however, continue to plan 

for such reductions should Congress not take action prior to sequestration taking effect on March 

1, 2013. If sequestration is not avoided, the magnitude of the potential reductions will damage 

force readiness, slow major acquisition programs, and necessitate civilian furlough actions that 

will negatively affect our Federal civilian workforce. Overall, sequestration will put us on a path 

toward a hollow force and inflict serious damage on our national security. 

If faced with sequestration, the Defense Department will be forced to forego critical 

objectives. As we make the difficult decisions about how to maintain our national security to the 

greatest extent we can in light of these destructive cuts, the Department will have to consider 

furloughs across the entire defense civilian workforce in order to meet the fiscal target mandated 

by sequestration. Because there will be no change in the requirements for work to be performed 

by the Department's workforce to maintain our national security, the workload on each employee 

and the requirements for each position that will result from such furloughs will be increased 

beyond what can reasonably be achieved. The furloughs contemplated by this notice will do real 

harm to our national security. Moreover, we understand that furloughs would have serious 

adverse effects on the livelihood, morale, and productivity of our workforce, and where possible 

we will take steps to minimize those effects. 

Air Force Administrative Record for FY 2013 Furlough Appeals 054
Nevertheless, if required, it is my goal to apply furlough actions in a consistent and 

equitable manner across the Department, though variations may occur because of the mission 

and budgetary requirements of each military department and agency. Each military department 

and agency within the Department will prepare detailed sequestration plans, and the Department 

will submit an updated plan for operations under a sequestration to Congress, as required by 

section 116(b) ofthe Continuing Appropriations Resolution, 2013, Public. Law 112-175. 

Finally, if furlough actions prove to be necessary, every affected employee would be 

subject to furlough for up to 22 discontinuous work days (176 total hours), the maximum number 

of furlough days allowed without triggering additional notification requirements that follow 

reduction-in-force procedures (though such an extended furlough action would still constitute a 

temporary placement on non-pay/non-duty status, rather than a permanent separation from 

service). We will provide affected employees the requisite advance notice before a furlough 

occurs. The Department is also engaged in the necessary and appropriate discussions with 

employee unions, and will discharge any applicable collective bargaining obligations that may 

arise. In the event an agreement is reached that averts sequestration and restores needed funding, 

we will immediately cancel any furloughs that have resulted and cease furlough planning. 

While furloughs would be disruptive and damaging to our ability to carry out the defense 

mission, there are no viable alternatives for the Department if sequestration actually occurs. We 

will continue to work with Congress in an effort to avoid sequestration and furloughs. A similar 

letter is being sent to the President of the Senate, the Speaker of the House, and the other defense 

oversight committees. 

cc: 

The Honorable Thad Cochran 

Vice Chairman 

Sincerely, 

2 

Air Force Administrative Record for FY 2013 Furlough Appeals 055
SECRETARY OF DEFENSE 

1 000 DEFENSE PENTAGON 

WASHINGTON. DC 20301-1000 

The Honorable Harold Rogers 

Chairman 

Committee on Appropriations 

U.S. House ofRepresentatives 

Washington, DC 20515 

Dear Mr. Chairman: 

FEB 2 0 2013 

In accordance with statute, I am providing a report on potential civilian furloughs within 

the Department ofDefense. Specifically, title 10, U.S.C., section 1597(e), provides that the 

Secretary of Defense "may not implement any involuntary reduction or furlough of civilian 

positions ... until the expiration of the 45-day period beginning on the date on which the 

Secretary submits to Congress a report setting forth the reasons why such reduction or furloughs 

are required and a description of any change in workload or positions requirements that will 

result from such reductions or furloughs." This letter provides the report and information 

required by this section. 

We remain hopeful that the Administration and Congress will reach an agreement to 

avoid the across-the-board reductions in Federal spending required by the Budget Control Act of 

2011, commonly known as "sequestration." The Department must, however, continue to plan 

for such reductions should Congress not take action prior to sequestration taking effect on March 

1, 2013. If sequestration is not avoided, the magnitude of the potential reductions will damage 

force readiness, slow major acquisition programs, and necessitate civilian furlough actions that 

will negatively affect our Federal civilian workforce. Overall, sequestration will put us on a path 

toward a hollow force and inflict serious damage on our national security. 

If faced with sequestration, the Defense Department will be forced to forego critical 

objectives. As we make the difficult decisions about how to maintain our national security to the 

greatest extent we can in light of these destructive cuts, the Department will have to consider 

furloughs across the entire defense civilian workforce in order to meet the fiscal target mandated 

by sequestration. Because there will be no change in the requirements for work to be performed 

by the Department's workforce to maintain our national security, the workload on each employee 

and the requirements for each position that will result from such furloughs will be increased 

beyond what can reasonably be achieved. The furloughs contemplated by this notice will do real 

harm to our national security. Moreover, we understand that furloughs would have serious 

adverse effects on the livelihood, morale, and productivity of our workforce, and where possible 

we will take steps to minimize those effects. 

Air Force Administrative Record for FY 2013 Furlough Appeals 056
Nevertheless, if required, it is my goal to apply furlough actions in a consistent and 

equitable manner across the Department, though variations may occur because of the mission 

and budgetary requirements of each military department and agency. Each military department 

and agency within the Department will prepare detailed sequestration plans, and the Department 

will submit an updated plan for operations under a sequestration to Congress, as required by 

section 116(b) ofthe Continuing Appropriations Resolution, 2013, Public. Law 112-175. 

Finally, if furlough actions prove to be necessary, every affected employee would be 

subject to furlough for up to 22 discontinuous work days (176 total hours), the maximum number 

of furlough days allowed without triggering additional notification requirements that follow 

reduction-in-force procedures (though such an extended furlough action would still constitute a 

temporary placement on non-pay/non-duty status, rather than a permanent separation from 

service). We will provide affected employees the requisite advance notice before a furlough 

occurs. The Department is also engaged in the necessary and appropriate discussions with 

employee unions, and will discharge any applicable collective bargaining obligations that may 

arise. In the event an agreement is reached that averts sequestration and restores needed funding, 

we will immediately cancel any furloughs that have resulted and cease furlough planning. 

While furloughs would be disruptive and damaging to our ability to carry out the defense 

mission, there are no viable alternatives for the Department if sequestration actually occurs. We 

will continue to work with Congress in an effort to avoid sequestration and furloughs. A similar 

letter is being sent to the President of the Senate, the Speaker of the House, and the other defense 

oversight committees. 

cc: 

The Honorable Nita M. Lowey 

Ranking Member 

Sincerely, 

2 

Air Force Administrative Record for FY 2013 Furlough Appeals 057
SECRETARY OF DEFENSE 

1000 DEFENSE PENTAGON 

WASHINGTON. DC 20301-1000 

The Honorable Howard P. "Buck" McKeon 

Chairman 

Committee on Armed Services 

U.S. House ofRepresentatives 

Washington, DC 20515 

Dear Mr. Chairman: 

FEB 2 0 2013 

In accordance with statute, I am providing a report on potential civilian furloughs within 

the Department of Defense. Specifically, title 10, U.S.C., section 1597(e), provides that the 

Secretary of Defense "may not implement any involuntary reduction or furlough of civilian 

positions ... until the expiration of the 45-day period beginning on the date on which the 

Secretary submits to Congress a report setting forth the reasons why such reduction or furloughs 

are required and a description of any change in workload or positions requirements that will 

result from such reductions or furloughs." This letter provides the report and information 

required by this section. 

We remain hopeful that the Administration and Congress will reach an agreement to 

avoid the across-the-board reductions in Federal spending required by the Budget Control Act of 

2011, commonly known as "sequestration." The Department must, however, continue to plan 

for such reductions should Congress not take action prior to sequestration taking effect on March 

1, 2013. If sequestration is not avoided, the magnitude of the potential reductions will damage 

force readiness, slow major acquisition programs, and necessitate civilian furlough actions that 

will negatively affect our Federal civilian workforce. Overall, sequestration will put us on a path 

toward a hollow force and inflict serious damage on our national security. 

If faced with sequestration, the Defense Department will be forced to forego critical 

objectives. As we make the difficult decisions about how to maintain our national security to the 

greatest extent we can in light of these destructive cuts, the Department will have to consider 

furloughs across the entire defense civilian workforce in order to meet the fiscal target mandated 

by sequestration. Because there will be no change in the requirements for work to be performed 

by the Department's workforce to maintain our national security, the workload on each employee 

and the requirements for each position that will result from such furloughs will be increased 

beyond what can reasonably be achieved. The furloughs contemplated by this notice will do real 

harm to our national security. Moreover, we understand that furloughs would have serious 

adverse effects on the livelihood, morale, and productivity of our workforce, and where possible 

we will take steps to minimize those effects. 

Air Force Administrative Record for FY 2013 Furlough Appeals 058
Nevertheless, if required, it is my goal to apply furlough actions in a consistent and 

equitable manner across the Department, though variations may occur because of the mission 

and budgetary requirements of each military department and agency. Each military department 

and agency within the Department will prepare detailed sequestration plans, and the Department 

will submit an updated plan for operations under a sequestration to Congress, as required by 

section 116(b) ofthe Continuing Appropriations Resolution, 2013, Public. Law 112-175. 

Finally, if furlough actions prove to be necessary, every affected employee would be 

subject to furlough for up to 22 discontinuous work days (176 total hours), the maximum number 

of furlough days allowed without triggering additional notification requirements that follow 

reduction-in-force procedures (though such an extended furlough action would still constitute a 

temporary placement on non-pay/non-duty status, rather than a permanent separation from 

service). We will provide affected employees the requisite advance notice before a furlough 

occurs. The Department is also engaged in the necessary and appropriate discussions with 

employee unions, and will discharge any applicable collective bargaining obligations that may 

arise. In the event an agreement is reached that averts sequestration and restores needed funding, 

we will immediately cancel any furloughs that have resulted and cease furlough planning. · 

While furloughs would be disruptive and damaging to our ability to carry out the defense 

mission, there are no viable alternatives for the Department if sequestration actually occurs. We 

will continue to work with Congress in an effort to avoid sequestration and furloughs. A similar 

letter is being sent to the President of the Senate, the Speaker of the House, and the other defense 

oversight committees. 

cc: 

The Honorable Adam Smith 

Ranking Member 

Sincerely, 

2 

Air Force Administrative Record for FY 2013 Furlough Appeals 059
SECRETARY OF DEFENSE 

1 000 DEFENSE PENTAGON 

WASHINGTON. DC 20301-1000 

The Honorable C.W. Bill Young 

Chairman 

Subcommittee on Defense 

Committee on Appropriations 

U.S. House of Representatives 

Washington, DC 20515 

Dear Mr. Chairman: 

FEB 2 0 2013 

In accordance with statute, I am providing a report on potential civilian furloughs within 

the Department of Defense. Specifically, title 10, U.S.C., section 1597(e), provides that the 

Secretary of Defense "may not implement any involuntary reduction or furlough of civilian 

positions ... until the expiration of the 45-day period beginning on the date on which the 

Secretary submits to Congress a report setting forth the reasons why such reduction or furloughs 

are required and a description of any change in workload or positions requirements that will 

result from such reductions or furloughs." This letter provides the report and information 

required by this section. 

We remain hopeful that the Administration and Congress will reach an agreement to 

avoid the across-the-board reductions in Federal spending required by the Budget Control Act of 

2011, commonly known as "sequestration." The Department must, however, continue to plan 

for such reductions should Congress not take action prior to sequestration taking effect on March 

1, 2013. If sequestration is not avoided, the magnitude of the potential reductions will damage 

force readiness, slow major acquisition programs, and necessitate civilian furlough actions that 

will negatively affect our Federal civilian workforce. Overall, sequestration will put us on a path 

toward a hollow force and inflict serious damage on our national security. 

If faced with sequestration, the Defense Department will be forced to forego critical 

objectives. As we make the difficult decisions about how to maintain our national security to the 

greatest extent we can in light of these destructive cuts, the Department will have to consider 

furloughs across the entire defense civilian workforce in order to meet the fiscal target mandated 

by sequestration. Because there will be no change in the requirements for work to be performed 

by the Department's workforce to maintain our national security, the workload on each employee 

and the requirements for each position that will result from such furloughs will be increased 

beyond what can reasonably be achieved. The furloughs contemplated by this notice will do real 

harm to our national security. Moreover, we understand that furloughs would have serious 

adverse effects on the livelihood, morale, and productivity of our workforce, and where possible 

we will take steps to minimize those effects. 

Air Force Administrative Record for FY 2013 Furlough Appeals 060
Nevertheless, if required, it is my goal to apply furlough actions in a consistent and 

equitable manner across the Department, though variations may occur because of the mission 

and budgetary requirements of each military department and agency. Each military department 

and agency within the Department will prepare detailed sequestration plans, and the Department 

will submit an updated plan for operations under a sequestration to Congress, as required by 

section 116(b) of the Continuing Appropriations Resolution, 2013, Public. Law 112-17 5. 

Finally, if furlough actions prove to be necessary, every affected employee would be 

subject to furlough for up to 22 discontinuous work days (176 total hours), the maximum number 

of furlough days allowed without triggering additional notification requirements that follow 

reduction-in-force procedures (though such an extended furlough action would still constitute a 

temporary placement on non-pay/non-duty status, rather than a permanent separation from 

service). We will provide affected employees the requisite advance notice before a furlough 

occurs. The Department is also engaged in the necessary and appropriate discussions with 

employee unions, and will discharge any applicable collective bargaining obligations that may 

arise. In the event an agreement is reached that averts sequestration and restores needed funding, 

we will immediately cancel any furloughs that have resulted and cease furlough planning. 

While furloughs would be disruptive and damaging to our ability to carry out the defense 

mission, there are no viable alternatives for the Department if sequestration actually occurs. We 

will continue to work with Congress in an effort to avoid sequestration and furloughs. A similar 

letter is being sent to the President of the Senate, the Speaker of the House, and the other defense 

oversight committees. 

cc: 

The Honorable Peter J. Visclosky 

Ranking Member 

Sincerely, 

2 

Air Force Administrative Record for FY 2013 Furlough Appeals 061
UNDER SECRETARY OF THE AIR FORCE 

WASHINGTON 

FEB 2 0 2013 

MEMORANDUM FOR MAJCOMICVs, Relevant COCOM/CVs, ANG Deputy Director, and 

DRU/CCs 

SUBJECT: Planning for a Potential Civilian Furlough 

This memorandum makes you aware of the possibility of a civilian force furlough if 

sequestration is implemented in March. Department of Defense and Air Force leadership 

recognize the critical contributions made by our civilian workforce and continue to work to avoid 

the need for a furlough. The impacts a potential furlough would impose on the Air Force mission 

and on our valued civilian Airmen would be among the many serious negative effects of 

sequestration. However, the Air Force continues to evaluate actions necessary to deal with the 

impact of a furlough, should it become necessary, and today the Department of Defense began 

the process of notifying the Congress of the intent to carry out a furlough, should sequestration 

occur. 

The Deputy Secretary of Defense's Management Action Group (DMAG) has developed 

planning guidance, which will be implemented across the Services in a consistent manner if a 

furlough becomes necessary. This guidance will lead to furloughing appropriated fund 

employees with very few, if any, exceptions. Please note, even in cases where an exception may 

be granted, it may not mean employees will avoid furlough completely, but instead may result in 

them being furloughed for fewer days than the rest ofthe workforce. Again, if we are directed to 

implement furloughs, we expect the impact to be felt by all appropriated fund employees and all 

activities supported by our civilian workforce. The President exempted military personnel 

appropriations from sequester, so this furlough does not apply to military personnel. 

DoD Guidance 

Furloughs will be limited to 22 discontinuous days (or 30 continuous days) - to avoid 

triggering lengthy reduction-in-force procedures that cannot practically be implemented in 

FY 13. Furlough days will be spread over a maximum number of pay periods with no more than 

16 hours per pay period - two days over two weeks for regular work schedule employees. At 

this time, the covered pay periods run from Apr 13 through Sep 13. Only USecAF, VCSAF, or 

high-level designees (MAJCOM Vice Commanders, the Deputy Director of the Air National 

Guard, DRU Commanders, and SAF/AA for the HAF portfolio) can approve mission-driven 

exceptions. Local commanders can determine scheduling of furlough days for their employees 

subject to local bargaining requirements. Again, this guidance is all predicated on the condition 

that a furlough becomes unavoidable due to sequestration. 

DoD guidance allows for exceptions in the following broad categories: 

• Civilians deployed to combat zones 

Air Force Administrative Record for FY 2013 Furlough Appeals 062
• Civilians necessary to provide safety of life or property, but only to the minimum extent 

needed to protect life or property 

• Non-appropriated fund employees 

• Employees excepted by law (none within the purview of MAJCOMs, ANG, or DRUs) 

• Foreign nationals 

Air Force Guidance 

Air Force guidance is consistent with DoD guidance. (For the purposes of this guidance, 

the term "Air Force civilian" includes COCOM civilians managed by the Air Force.) Air Force 

civilians required to provide a minimum level of life and property safety are defined as: 

• Health professionals and technicians who provide 24-hour in-patient care or emergency 

services, where civilian furloughs cannot be managed in a manner to meet minimum 

manning levels. 

• Civilian police, security guards, and flight leads at installations where civilians comprise 

25% or more of the flight level first responders. 

• Civilian firefighters where required to meet minimum manning for the Critical Level of 

Service (CLS) defined in AFI 32-2001. 

Please see attached for additional details. Exceptions will be minimal. We do not 

anticipate all employees in any occupational series will be excepted from furlough, and most 

excepted employees will still be subject to furlough even if only for a portion of the hours 

required for most employees. 

Very Limited MAJCOM/COCOMIDRU Exceptions 

A furlough will inevitably degrade readiness and mission capability. This is 

unfortunately unavoidable and to be expected. We recognize your command may need very 

limited furlough exceptions in specific areas unique to your mission. You may also need other 

very limited exceptions-so limited they defy broad categorization in Air Force-level 

guidance- to comply with statutory standards or requirements, or to avoid irreversible damage 

to the long-term health of the Air Force and its mission. Please provide these proposed 

exceptions to AF/Al (Alfurloughexceptions@pentagon.af.mil) by COB 26 Feb 13. The submission 

must meet the standards provided below. Approved exceptions will be sent to the Under 

Secretary of Defense (Personnel and Readiness) and the Under Secretary ofDefense 

(Comptroller) for their review of consistency across the Department of Defense. 

The standard for an exception is not the "mission-critical employee" standard used for a 

government shutdown. Mission-critical employees generally will be furloughed. Exceptions 

should only be considered if (1) the loss of man hours will result in mission degradation to the 

point of fai lure, and (2) in a mission that is deemed critical. If an office is properly manned, 

furlough should be manageable through proper scheduling-just like leave or an alternate work 

schedule. Only where staggering absence is not possible- such as for deployed civilians-is an 

exception truly essential. Thus, if an individual can take leave or participate in a compressed 

work schedule, they can be furloughed. All requests for exceptions must make it clear why 

staggered scheduling and other accommodations cannot be implemented. Exception requests 

must include the alternative lower furlough hours per pay period. 

Air Force Administrative Record for FY 2013 Furlough Appeals 063
Furlough Mitigation 

In the event of furlough, we expect you to mitigate mission and readiness impacts, to the 

greatest extent possible, by controlling leave and absences for all Airmen, military and civilian. 

You may not use contract funding or premium pay (compensatory time or overtime) to offset 

furloughs. Also, in the rare cases where employees are excepted from furlough, you may also 

not allow them to take paid personal leave. If employees can be spared to take paid leave, they 

can be furloughed. We understand that mission degradation is unavoidable in this circumstance; 

we do not expect uniformed Airmen to replace the full capability of an approximate 20 percent 

reduction in availability of the civilian workforce. Additionally. we must ensure our furloughed 

civilians do not work from home or on-site. officiall y or unoffici ally, on their furlough days. 

Such action may result in Anti-Deficiency Act violations for which employees and supervisors 

will be held responsible (and may result in disciplinary action for both). 

Please also note that it is illegal to transfer inherently governmental work to the 

contractor workfo rce. Moreover. funding available for contractor services is reduced for FY 13, 

so we also expect to see a reduction in the contractor workforce through the remainder of the 

fiscal year. To take any other action may present grounds for legal action against the Air Force. 

Moreover, as all appropriations (except MILPERS) are impacted by sequestt·ation, shifting costs 

may create Anti-Deficiency Act violations in other accounts and thus must be avoided. 

A final important note: While the Department of Defense has begun the congressional 

notification process, there are multiple steps to be followed before a furlough can actually be 

implemented. It is important to note that, like with any other changes in conditions of 

employment, it is in1proper to engage employees in discussions during town hall meetings, 

commanders' calls, etc., about executing a furlough without first notifying local union officials. 

Commanders may have these discussions, but they must give union officials the opportunity to 

par1icipate in them. Our bargaining responsibilities address not whether there will be a furlough. 

but rather the procedural implementation of a furlough. Bargaining must come first before 

wholesale notification. Commanders should begin local Impact and Implementation bargaining 

with unions immediately. 

We stand ready to assist with clarification of the above guidance or to answer any other 

questions y,ou may have. Please direct any questions to appropriate functional staffs (Lt Gen 

Darrell Jones. AF/A l , or Ms. Marilyn Thomas, SAF/FM). 

~::::~.±;; General, USAF 

Vice Chiefof Staff 

Attachment 

AF Supplemental Guidance on Furlough Exceptions 

Acting Under Secretary of the Air Force 

Air Force Administrative Record for FY 2013 Furlough Appeals 064
AIR FORCE SUPPLEMENTAL GUIDANCE 

ON 

CRITERIA FOR IDENTIFYING EXCEPTED POSITIONS 

FOR ADMINISTRATIVE FURLOUGH 

In preparation for sequestration and possible civilian furlough, it is necessary to identify 

positions that are excepted from furlough and the criteria used to make that determination. 

The categories of positions listed below are approved as excepted positions. Foreign Military 

Sales employees are NOT excepted from furlough. Requests for additional exceptions must be 

submitted to AF/Alat Alfurloughexceptions@pentagon.af.mil no later than Tuesday, 26 Feb 13, 

for review and approval. 

• Civilians deployed to a combat zone. This includes pre- and post-deployment duty 

requirements. 

• Non-US civilians (local nationals). All are excepted from furlough. 

For the following three categories, most excepted employees will still be subject to furlough, but 

only for a portion of the hours required for most employees. 

• Civilian Police/Security Guards - Occupational Series 0083 and 0085: All Air Force 

Civilian Police/Security Guard personnel are subj ect to furlough except at installations where 

the positions comprise 25% or more of the funded Security Forces unit authorizations and are 

performing flight-level first responder duties. These exceptions are for GS-0083 civilian 

police officers and GS-0085 security guards, assigned to Security Forces squadrons, 

generally servicing in grades GS-09 and below (the only exception being GS- 11 fl ight leader 

positions) aligned under FAC code 43S3. Only the following units should be exempt from 

furlough as they are under the 25% manning rule set: 

• 45 SFS 

• 61 SFS 

• 87 SFS 

• 301 SFS 

• 434 SFS 

• 502 SFS 

• 628 SFS 

• 733 SFS 

• 910 SFS 

• 914 SFS 

Cape Canaveral 

Los Angeles, AFB, CA 

Joint AFB McGuire-Dix-Lakehurst, NJ 

Ft Worth NAS, TX 

Grissom AFB, IN 

Joint Base San Antonio (Ft Sam Houston only) 

Joint Base, Charleston, SC 

Joint Base Langley-Eustis (Ft Eustis only) 

Youngstown Warren ARS, OH 

Niagara Falls ARS, NY 

• Civilian Firefighters, Occupational Series 0081: All Air Force fuefighters will be subject 

to furlough except at installations where doing so would drop installation firefighter manning 

level below the Critical Level of Service (CLS) defined in AFI 32-2001, paragraph 2.7 and 

Figure A4.2. FES Capabilities. If an installation drops below CLS and must except 

Air Force Administrative Record for FY 2013 Furlough Appeals 065
firefighters from full furlough. MAJCOMs will be directed to do so equally among all 

firefighters at that installation. HAF functional experts have determined that even though 

firefighters work a 24-hour shift MAJCOM leaders can direct furlough hours which will still 

allow them to cover the higher risk periods. Initial assessments do not indicate there are any 

installations cunently manned at levels ' here they will be unable to meet CLS standards 

even with a furlough. 

• Civilian Health Care Personnel: All Air Force Medical Service civilians are subj ect to 

furl ough except those that provide 24-hour inpatient care or emergency service, and 

personnel providing ancillary services directly supporting the 24-hour inpatient care and 

emergency services. 

Employees who suppor1 24-hour inpatient operations or emergency services at the following 

locations and occupational series who are excepted are: 

Air Force Administrative Record for FY 2013 Furlough Appeals 066
AIR FORCE MEDICAL SERVICE (AFMS) 2013 FURLOUGH EXCEPTION LIST 130207v3 

Occ Series Positions 

602 

610 

645 

661 

1603 

Occ Series Positions 

610 15 

620 3 

610 19 640 3 

640 1 642 

644 2 

645 5 

661 4 

Total: 399 661 5 

Air Force Administrative Record for FY 2013 Furlough Appeals 067
SECRETARY OF DEFENSE 

I 000 DEFENSE PENTAGON 

WASH INGTON , DC 20301 -1000 

FEB 2 0 2013 

MEMORANDUM FOR DEPARTMENT OF DEfENSE CIVILIAN EMPLOYEES 

SUBJECT: Preparations tor P01emial Sequestration on March I and Furlough Notifications 

For more than a year and a half, the President. tJ1e Joint Chiefs of Staff, and I have 

repeatedly voiced our deep concerns over the half a trillion dollars in automatic across-the-board 

cuts that would be imposed under sequestration and the severe damage that it would do to both 

this Department and our national defense. 

The Administration continues to work with Congress to reach agreement on a balanced 

deficit reduction plan to avoid these cuts. Meanwhile, because another trigger for sequestration 

is approaching on March 1

51

, the Department's leadership has begun extensive planning on how 

to implement the required spending reductions. These cuts will be magnified because the 

Department has been forced to operate under a six-month continuing resolution that has already 

compelled us to take steps to reduce spending. 

Jn the event of sequestration, we will do everything we can to continue to perform our 

core mission of providing for the security of the United States, but there is no mistaking that the 

rigid nature and scale or the cuts forced upon this Department wi ll result in n setious erosion of 

readiness across the force. 

1 have also been deeply concemed about the potential direct impact of sequestration on 

you and your families. We are doing everything possible to limit the worst effects on DoD 

personnel- but I regret that our fiexibility within the law is extremely limi ted. The President has 

used his legal authority to exempt military personnel funding from sequestration, but we have no 

legal authority to exempt civilian personnel funding from reductions. As a result, should 

sequestration occur and continue for a substantial p<:riod, DoD wi ll be forced to place the vast 

majority of its civilian workforce on administrative furlough. 

Today, l notified Congress that furloughs could occur under sequestration. 1 can assure 

yo u that, if we have to implement furloughs, nil affected employees will be provided at least 30 

days' notice prior to executing a furlough and your benefits will be protected to the ma-.:imum 

extent possible. We will work to ensure that fu rloughs are executed in a consistent and 

appropriate manner. and we will also continue to engRge in discussions with employee unions as 

appropriate. More information ancl answers to frequently asked questions regarding furloughs 

can be found at www.opm.gov/furlough. under the "ndministrative furlough" section. 

0 

Air Force Administrative Record for FY 2013 Furlough Appeals 068
Working with your component heads and supervisors, the Department's leaders will 

continue to keep you informed. As we deal with these difficult issues, I want to thank you for 

your patience, hard work, and continued dedication to our mission of protecting the country. 

Our most important asset in the Department is our world-class personnel. You are 

fighting every day to keep our country strong and secure, and rest assured that the leaders of this 

Department will continue to fight with you and for you. 

2 

Air Force Administrative Record for FY 2013 Furlough Appeals 069
-

READINESS AND 

FORCE MANAGEMENT 

OFFICE OF THE ASSISTANT SECRETARY OF DEFENSE 

4000 DEFENSE PENTAGON 

WASHINGTON, D.C. 20301-4000 

MEMORANDUM FOR: SEE DISTRIBUTION FE8 2 1 2013 

SUBJECT: Total Force Management and Budgetary Uncertainty 

Reference: (a) Deputy Secretary of Defense Memorandum, "Handling Budget Uncertainty in Fiscal 

Year 2013", dated 10 January 2013 

(b) Under Secretary of Defense ofPersonnel & Readiness Memorandum, "Prohibition on 

Converting Certain Functions to Contract Performance", dated 1 December 2011 

(c) Deputy Secretary of Defense Memorandum, "Guidance for Limitation on Aggregate 

Annual Amount Available for Contracted Services", dated 3 June 2012 

(d) Under Secretary ofDefense of Personnel & Readiness Memorandum, "Guidance 

Related to the Utilization of Military Manpower to Perform Certain Functions", dated 

2 March2012 

(e) DoD Instruction 1100.22, "Guidance for Determining Workforce Mix" , dated 12 

Apri12010 

This memorandum provides guidance for the management of the Total Force (active and 

reserve military, government civilians, and contracted support) during this time of continued budget 

uncertainty. The Department must maintain the viability of the All-Volunteer Force and sustain its 

operational readiness in the most cost-conscious manner. To do so, the Department must also maintain 

a properly sized, highly capable civilian workforce that is aligned to mission and workload; 

complements and delivers support to the military; supports the well-being of the warfighters and their 

families; and recognizes evolving critical demands while guarding against an erosion of organic skills 

and an overreliance on contracted services. Finally, the use of contracted services must continue to be 

reviewed to ensure the most appropriate, cost effective, and efficient support aligned to mission. 

As DoD Components begin to take actions consistent with reference (a)- including the 

implementation of civilian hiring freezes, the release of term or temporary civilian employees, and 

other personnel related actions - they must be mindful of the Department's obligations to manage the 

Total Force consistent with Title 10 statutory requirements and references (b) through (e). These 

considerations are required in planning for the potential reduction or unavailability of fiscal year 2013 

funds (with the exception of funds for military personnel) associated with sequester or the continuing 

resolution. 

Consistent with section 2461 oftitle 10, United States Code, and reference (b), the conversion 

of functions or work performed by, or designated for performance by, civilian employees to contract 

perfonnance without a public-private competition is expressly prohibited. Currently such competitions 

are prohibited under section 325 of the National Defense Authorization Act for Fiscal Year 2010 

(Public Law 111-84). Workload currently performed by, or designated for performance by, civilian 

employees may not be transferred or assumed by contractors performing against prior year obligations. 

Most importantly, contractors may not perform inherently governmental work, and section 2464 of 

title 10, United States Code expressly prohibits contracting of certain functions (enclosure 1 ). DoD 

Air Force Administrative Record for FY 2013 Furlough Appeals 070
Component heads, as well as field commanders and line managers, are urged to be particularly vigilant 

to prevent the inappropriate conversion of work to contract performance. 

Additionally, limits on contracted support spending enacted in section 808 of the National 

Defense Authorization Act for Fiscal Year 2012, Public Law 112-81, and implemented via reference 

(c) still apply. The statutory obligations in section 2330a oftitle 10, United States Code, to minimize 

reliance on contract performance of work closely associated with inherently governmental functions 

(see illustrative examples at enclosure 2) remain in force. Moreover, the guidance in reference (c) to 

achieve reductions of such reliance, as well as in staff augmentation contract support, remains in effect. 

Planning for budgetary uncertainty does not relieve DoD Components from compliance with these 

mandates. 

As we continue planning during this period of budgetary uncertainty, the Department must also 

ensure military personnel are not inappropriately utilized, particularly in a manner that may degrade 

readiness or result in unnecessary costs to the Department. Consistent with references (d) and (e), 

except in extraordinary, and typically temporary, circumstances, individual military personnel or units 

should not perform functions or work that is not military essential (see illustrative examples in 

enclosure 3). The use of"borrowed" or ''repurposed" military can harm readiness and operational 

capabilities by diverting service members from training or performance of military essential functions, 

particularly when military members are required to work outside of their occupational specialties. In 

addition to the risk of hollowing the force, this practice could adversely impact the All-Volunteer 

Force and have negative effects on the recruitment, retention, and career progression of individual 

members. During this period of budgetary uncertainty, military units may perform work previously 

performed by civilian employees or contracted support as part of a rotation base for an operational 

capability (if this has been reflected in Operational Orders), provided this is done on a limited and 

temporary basis. In the event of sequestration, where military personnel accounts are exempted, there 

may be instances where military personnel can be used on a short-term, emergency basis to satisfy a 

demand that is of mission critical importance. 

Please ensure maximum distribution of this memorandum throughout your organization, 

particularly to your manpower, personnel, and resourcing communities. Questions regarding 

application and implementation of this memorandum should be addressed to the following points of 

contact within the Office of Total Force Planning & Requirements: Mr. Thomas Hessel 

(thomas.hessel@osd.mil or 703-697-3402), and Ms. Amy Parker (amy.parker@osd.mil or 703-697-

1735). Thank you for your support in the mitigating risks from budgetary uncertainty that could 

adversely affect the sustainability and readiness of the All Volunteer Force. 

Enclosures: As stated 

q-;fJ~ Frederick Vollrath 

Principal Deputy Assistant Secretary of Defense for 

Readiness and Force Management 

Performing the Duties of the Assistant Secretary of 

Defense for Readiness and Force Management 

Air Force Administrative Record for FY 2013 Furlough Appeals 071
DISTRIBUTION: 

SECRET ARIES OF THE MILITARY DEPARTMENTS 

CHAIRMAN OF THE JOINT CHIEFS OF STAFF 

UNDER SECRET ARIES OF DEFENSE 

DEPUTY CHIEF MANAGEMENT OFFICER 

COMMANDERSOFTHECOMBATANTCO~S 

DIRECTOR, COST ASSESSMENT AND PROGRAM EVALUATION 

DIRECTOR, OPERATIONAL TEST AND EVALUATION 

GENERAL COUNSEL OF THE DEPARTMENT OF DEFENSE 

INSPECTOR GENERAL OF THE DEPARTMENT OF DEFENSE 

ASSIST ANT SECRETARIES OF DEFENSE 

DEPARTMENT OF DEFENSE CHIEF INFORMATION OFFICER 

ASSISTANTS TO THE SECRETARY OF DEFENSE 

DIRECTOR, ADMINISTRATION AND MANAGEMENT 

DIRECTOR, NET ASSESSMENT 

DIRECTORS OF THE DEFENSE AGENCIES 

DIRECTORS OF THE DOD FIELD ACTIVITIES 

Air Force Administrative Record for FY 2013 Furlough Appeals 072
Enclosure 1 

Non-Exhaustive Examples of Inherently Governmental Functions 

(Extract from Office of Federal Procurement Policy Letter 11-1 (September 12, 2011) 

 

1. The direct conduct of criminal investigation. 

2. The control of prosecutions and performance of adjudicatory functions (other than those 

relating to arbitration or other methods of alternative dispute resolution). 

3. The command of military forces. 

4. Combat. 

5. Security provided under any of the circumstances set out below. This provision should 

not be interpreted to preclude contractors taking action in self-defense or defense of 

others against the imminent threat of death or serious injury. (a) Security operations 

performed in direct support of combat as part of a larger integrated armed force. (b) 

Security operations performed in environments where, in the judgment of the responsible 

Federal official, there is significant potential for the security operations to evolve into 

combat. (c) Security that entails augmenting or reinforcing others (whether private 

security contractors, civilians, or military units) that have become engaged in combat. 

6. The conduct of foreign relations and the determination of foreign policy. 

7. The determination of agency policy, such as determining the content and application of 

regulations. 

8. The determination of budget policy, guidance, and strategy. 

9. The determination of Federal program priorities or budget requests. 

10. The selection or non-selection of individuals for Federal Government employment, 

including the interviewing of individuals for employment. 

11. The direction and control of Federal employees. 

12. The direction and control of intelligence and counter-intelligence operations. 

13. The approval of position descriptions and performance standards for Federal employees. 

14. The determination of what government property is to be disposed of and on what terms 

(although an agency may give contractors authority to dispose of property at prices with 

specified ranges and subject to other reasonable conditions deemed appropriate by the 

agency). 

15. In Federal procurement activities with respect to prime contracts: 

(a) determining what supplies or services are to be acquired by the government 

(b) participating as a voting member on any source selection boards; 

(c) approving of any contractual documents, including documents defining requirements, 

incentive plans and evaluation criteria; 

(d) determining that prices are fair and reasonable; 

(e) awarding contracts; 

(f) administering contracts (including ordering changers in contact performance or 

contact quantities, making final determinations about a contractor’s performance, 

including approving award fee determinations or past performance evaluations and 

taking action based on those evaluations, and accepting or rejecting contractor 

products or services); 

(g) terminating contracts 

(h) determining whether contact costs are reasonable, allocable, and allowable; 

(i) And participating as a voting member on performance evaluation boards. 

Air Force Administrative Record for FY 2013 Furlough Appeals 073
Enclosure 1 

16. The selection of grant and cooperative agreement recipients including: (a) approval of 

agreement activities; (b) negotiating the scope of work to be conducted under 

grants/cooperative agreements; (c) approval of modifications to grant/cooperative 

agreement budgets and activities; and (d) performance monitoring. 

17. The approval of agency responses to Freedom of Information Act requests (other than 

routine responses that, because of statute, regulation, or agency policy, do not require the 

exercise of judgment in determining whether documents are to be released or withheld), 

and the approval of agency response to the administrative appeals of denials of Freedom 

of Information Act requests. 

18. The conduct of administrative hearings to determine the eligibility of any person for a 

security clearance, or involving actions that affect matters of personal reputation or 

eligibility to participate in government programs. 

19. The approval of Federal licensing actions and inspections. 

20. The collection, control, and disbursement of fees, royalties, duties, fines, taxes and other 

public funds, unless authorized by statute, such as title 31 Untied States Code section 952 

(relating to private collection contractors) and title 31 United States Code section 3718 

(Relating to private attorney collection services), but not including (a) collection of fees, 

fines, penalties, costs or other charges form visitors to or patrons of mess halls, post or 

base exchange concessions, national parks, and similar entities or activities, or from other 

persons, where the amount to be collected is predetermined or can be readily calculated 

and the funds collected can be readily controlled using standard cash management 

techniques; and (b) routine voucher and invoice examination. 

21. The control of the Treasury accounts. 

22. The administration of public trusts. 

23. The drafting of official agency proposals for legislation, Congressional testimony 

responses to Congressional correspondence, or responses to audit reports from an 

inspector general, the Government Accountability Office, or other Federal audit entity. 

24. Representation of the government before administrative and judicial tribunals, unless 

statute expressly authorizes the use of attorney whose services are procured through 

contract. 

Statutory Restrictions on Contracting 

(Title 10 United States Code Section 2465) 

(a) Except as provided in subsection (b), funds appropriated to Department of Defense may 

not be obligated or expended for the purpose of entering into a contract for the 

performance of fire-fighting or security-guard functions at any military installation or 

facility. 

(b) The prohibition in subsection (a) does not apply to the following contracts: 

(1) A contract to be carried out at a location outside the United States (including its 

commonwealths, territories, and possessions) at which members of the armed forces 

would have to be used for the performance of a function described in subsection (a) at 

the expense of unit readiness.

(2) (2) A contract to be carried out on a Government-owned but privately operated 

installation. 

Air Force Administrative Record for FY 2013 Furlough Appeals 074
Enclosure 1 

(3) A contract (or the renewal of a contract) for the performance of a function under 

contract on September 24, 1983. 

(4) A contract for the performance of firefighting functions if the contract is- 

(A) for a period of one year or less; and 

(B) covers only the performance of firefighting functions that, in the absence of 

the contract, would have to be performed by members of the armed forces 

who are not readily available to perform such functions by reason of a 

deployment. 

Air Force Administrative Record for FY 2013 Furlough Appeals 075
Enclosure 2 

Non-Exhaustive Examples of Closely Associated With Inherently Governmental Functions 

(Extract from Office of Federal Procurement Policy Letter 11-1 (September 12, 2011) 

 

1. Services in support of inherently governmental functions, including, but not limited to the 

following: 

a. Performing budget preparation activities, such as workload modeling, fact 

finding, efficiency studies, and should-cost analysis. 

b. Undertaking activities to support agency planning and reorganization. 

c. Providing support for developing policies, including drafting documents, and 

conducting analyses, feasibility studies, and strategy options. 

d. Providing services to support the development of regulations and legislative 

proposals pursuant to specific policy direction. 

e. Supporting acquisition, including in the areas of: 

i. Acquisition planning, such as by conducting market research; developing 

inputs for government cost estimates, and drafting statements of work and 

other pre-award documents. 

ii. Source selection, such as by preparing a technical evaluation and 

associated documentation; participating as a technical advisor to a source 

selection board or as a nonvoting member of a source selection evaluation 

board; and drafting the price negotiations memorandum. 

iii. Contract management, such as by assisting in the evaluation of a 

contractor’s performance (e.g. by collecting information performing an 

analysis, or making a recommendation for a proposed performance rating), 

and providing support for assessing contract claims and preparing 

termination settlement documents. 

f. Preparation of responses to Freedom of Information Act requests. 

2. Work in a situation that permits or might permit access to confidential business 

information or other sensitive information (other than situations covered by the National 

Industrial Security Program described in Federal Acquisition Regulation 4.402(b)). 

3. Dissemination of information regarding agency policies or regulations, such as 

conducting community relations campaigns, or conducting agency training courses. 

4. Participation in a situation where it might be assumed that participants are agency 

employees or representatives, such as attending conferences on behalf of an agency. 

5. Services as arbitrators or provision of alternative dispute resolution (ADR) services. 

6. Construction of buildings or structures intended to be secure form electronic 

eavesdropping or other penetration by foreign governments. 

7. Provision of inspection services. 

8. Provision of legal advice and interpretations of regulations and statutes to government 

officials. 

9. Provision of non-law enforcement security activities that do not directly involve criminal 

investigations, such as prisoner detention or transport and non-military national security 

details. 

Air Force Administrative Record for FY 2013 Furlough Appeals 076
Enclosure 3 

Examples of Military Essential Functions 

 (summarized from DoD Instruction 1100.22) 

1. Missions involving operational risks and combatant status under the Law of War. 

2. Specialized collective and individual training requiring military unique knowledge and 

skills based on recent operational experience 

3. Independent advice to senior civilian leadership in Department requiring military unique 

knowledge and skills based on recent operational experience 

4. Command and control arrangements best performed within the Uniform Code of Military 

Justice. 

5. Rotation base for an operational capability. 

6. Career progression. 

7. Esprit de corps (such as military recruiters, military bands) 

Air Force Administrative Record for FY 2013 Furlough Appeals 077
THE SECRETARY OF THE AIR FORCE 

CHIEF OF STAFF, UNITED STATES AIR FORCE 

WASHINGTON DC 

FEB 2 5 2013 

MEMORANDUM FOR DEPARTMENT OF THE AIR FORCE CIVILIAN EMPLOYEES 

SUBJECT: A Difficult Time for Civilian Airmen 

The United States Air Force would not be the best in the world without your daily contributions 

as vital members of the Air Force family and the joint team. You are integral to nearly every part of the 

mission, from processing recruits and rurining family programs, to managing budgets and developing 

strategy. You fix airplanes, sustain infrastructure, design and develop future systems, and deploy to 

support combatant commanders. You serve with integrity, selflessness, and excellence. You are Airmen 

and we thank you for all you do. 

On February 20, 2013, the Secretary of Defense advised Congress that if sequestration is not 

averted, the Department of Defense (DoD) intends to implement a civilian furlough of up to 22 days, 

likely beginning in late Aptil and spread over the remainder of the fiscal year. A furlough of any part of 

our civilian force would undermine our mission and break faith with our people. Your Air Force is still 

vigorously engaged alongside the rest of the Administration to avoid sequestration, which is the triggering 

mechanism that would make a furlough necessary. Unfortunately, if Congress does not act, virtually all 

of our active duty, Guard, Reserve, and civilian Airmen would feel the impact on their personal fmances, 

and the entire Air Force would experience a degradation of readiness and capability. 

The leadership throughout the Air Force will work hard to guide us all through this turbulent 

time, but we are concerned about you and your families. Each Air Force base has an Employee 

Assistance Program with capacity to help, as does each Airmen and Family Readiness Center. Although 

the Air Force Aid Society (AF AS) is limited by its charter, if you are retired military, a widow or 

widower of a uniformed member, or serving on Reserve component orders for 15 days or more, AF AS 

(www.afas.org) can help. Otherwise, federal civilians may receive assistance from the Federal Employee 

Education and Assistance Fund (www.feea.org). As we discover more resources which may be available 

to you, we will be sure to share that information quickly. None of these organizations will be able to 

compensate completely for the lost income from 22 days of non-duty, non-pay status in a furlough, so we 

encourage you to plan now as best as possible for the potential reduction of income. Official notification 

of any furloughs will come through your chain of command. 

Air Force people are our strongest asset, and we know you work alongside your uniformed 

partners every day for the security of our Nation. Without a doubt, we could not be the world's greatest 

Air Force without you. Thank you for your unrelenting dedication to the mission despite the challenges 

before us. 

~0, Michael B. Donley 

Secretary of the Air Force 

Attachment: 

SECDEF Memo, February 20, 2013 

Mark A. Welsh III 

General, USAF 

Chief of Staff 

Air Force Administrative Record for FY 2013 Furlough Appeals 078
EXECUTIVE OFFICE OF THE PRESIDENT 

OFFICE OF MANAGEMENT AND BUDGET 

·WASHINGTON, D.C. 20503 

February 27, 2013 

M-13-05 

MEMORANDUMFORTHEHEADSO 

FROM: Danny Werfel_,/j 

Controller T 1 

CUTIVE DEPARTMENTS AND AGENCIES 

SUBJECT: Agency Responsibilities for Implementation of Potential Joint Committee 

Sequestration 

Unless Congress acts to amend current law, the President is required to issue a 

sequestration order on March 1, 2013, canceling $85 billion in budgetary resources across the 

Federal Government. Because these cuts must be achieved over the remaining seven months of 

the fiscal year, the Office of Management and Budget (OMB) estimates that the effective 

percentage reductions are approximately 9 percent for nondefense programs and 13 percent for 

defense programs. These reductions will result in significant and harmful impacts to national 

security and domestic priorities. 

The President has been clear that sequestration is bad policy that was never intended to 

be implemented, and the Administration remains hopeful that Congress will act to avoid it 

through an agreement on balanced deficit reduction. However, because legislation may not be 

enacted to avoid sequestration before the current deadline of March 1, 2013, executive 

departments and agencies (agencies) with sequestrable accounts have been engaged in planning 

activities to operate at the lower, post-sequestration funding levels should it be necessary. 

This guidance builds on prior communications with agencies about the implementation of 

sequestration, and addresses questions that have been raised as to certain categories of planning 

activities. 

Agency Planning Activities 

OMB Memorandum 13-03, Planning for Uncertainty with Respect to Fiscal Year 2013 

Budgetary Resources, directed agencies to begin planning activities to operate with reduced 

budgetary resources in the event that sequestration occurs. Agencies' planning efforts must be 

guided by the principle of protecting the agency's mission to serve the public to the greatest 

extent practicable. Planning efforts should be done with sufficient detail and clarity to determine 

the specific actions that will be taken to operate under the lower level of budgetary resources 

1 

Air Force Administrative Record for FY 2013 Furlough Appeals 079
required by sequestration. For example, agencies should identify any major contracts that they 

plan to cancel, re-scope or delay as well as any grants that they plan to cancel, delay, or for 

which they plan to change the payment amount. Similarly, agencies should identify the number 

of employees who will be furloughed, the length of expected furloughs, the timing of when 

furlough notices will be issued, and the manner in which furloughs will be administered. In 

some cases, agencies may not be able to ascertain all of this information prior to March 1. 

However, agencies should continue to engage in intense and thorough planning activities to 

determine all specific actions that will be taken as soon as practicable. 

Communications 

To the extent permitted by law, agencies should inform their various partners and 

stakeholders in a timely and complete manner of the impact of sequestration so that third parties 

are able to adjust their operations and plans as appropriate. Accordingly, at this time, agencies 

should be actively and continuously communicating with affected stakeholders-including 

States, localities, tribal governments, Federal contractors, Federal grant recipients, and Federal 

employees-regarding elements of the agency's planning that have a direct impact on these 

groups. These communications will vary greatly by agency and by stakeholder, but agencies 

should be as specific as possible in order to provide sufficient detail to be helpful to these 

stakeholders in understanding the implications of the reduced budget authority resulting from 

sequestration. 

With regard to any planned personnel actions to reduce Federal civilian workforce costs, 

consistent with Section 3(a)(ii) of Executive Order 13522, agencies must allow employees' 

exclusive representatives to have pre-decisional involvement in these matters to the fullest extent 

practicable and permitted under the law. In particular, in instances where agencies are 

considering potential furloughs, agencies have a duty to notify their exclusive representatives 

and, upon request, bargain over any negotiable impact and implementation proposals the union 

may submit, unless the matter of furloughs is already covered by a collective bargaining 

agreement. Agencies should ensure that they are fully aware of and in compliance with any and 

all collective bargaining requirements, and should consult with their General Counsel or 

appropriate labor relations office for questions regarding these requirements and appropriate 

interaction with employees and unions on these matters. 

Acquisition 

Due to the Government's large acquisition footprint, sequestration will inevitably affect 

agency contracting activities and require agencies to reduce contracting costs where appropriate. 

As with all actions taken as a result of sequestration, agencies should ensure that any contract 

actions are both cost-effective and minimize negative impact on the agency's mission to the 

extent practicable. 

Program, acquisition, financial/budget management, information technology, and legal 

personnel should work together to make determinations regarding contracts in light of 

sequestration. As a general matter, agencies should only enter into new contracts or exercise 

options when they support high-priority initiatives or where failure to do so would expose the 

2 

Air Force Administrative Record for FY 2013 Furlough Appeals 080
government to significantly greater costs in the future. Agencies may also consider de-scoping or 

terminating for convenience contracts that are no longer affordable within the funds available for 

Fiscal Year 2013, should no other options exist to reduce contracting costs in these instances. 

Should such steps be necessary, agencies must evaluate the associated costs and benefits of such 

actions, and appropriately inform and negotiate with contractors. Finally, agencies should take 

all appropriate steps to minimize to the extent practicable the impact on small businesses of 

reduced contracting activities. 

Financial Assistance 

Given the widespread use of grants, loans and other Federal financial assistance to nonfederal entities (e.g., State, local and tribal governments, non-profit organizations, and 

companies), sequestration will impact the funding of these activities. 

As a general matter, agencies should ensure that any new financial assistance obligations 

or funding increases under existing agreements are consistent with the need to protect the 

agency's mission at the post-sequestration level. In light of sequestration, agencies may also 

consider delaying awarding of new financial assistance obligations, reducing levels of continued 

funding, and renegotiating or reducing the current scope of assistance. Agencies may be forced 

to reduce the level of assistance provided through formula funds or block grants. Should any 

such steps be necessary, agencies should evaluate the associated costs and benefits of such 

actions and appropriately engage and inform recipient(s) as early as possible. 

Increased Scrutiny of Certain Activities 

In determining the appropriate manner to achieve funding reductions, agency heads must 

also ensure that their agencies have risk management strategies and internal controls in place that 

provide heightened scrutiny of certain types of activities funded from sequestered accounts. To 

the extent these accounts remain at the post-sequestration funding level, increased scrutiny 

should apply to: 

• hiring new personnel; 1 

• issuing discretionary monetary awards to employees, which should occur only if legally 

required until further notice; and 

• incurring obligations for new training, conferences, and travel (including agency-paid 

travel for non-agency personnel). 

In light of the reduced budgetary resources available due to sequestration, expending 

funds on these activities at this time would in many circumstances not be the most effective way 

to protect agency mission to the extent practicable. Therefore, agency leadership should review 

processes and controls around these activities, and ensure that these activities are conducted only 

1 Agencies must also ensure that appropriate controls are in place to prevent the increased use of contractors 

to perform work due to any restrictions on hiring. Agencies should bear in mind the statutory restrictions 

contained in 10 U.S.C. 2461 and 41 U.S.C. 1710 on the conversion of functions from performance by Federal 

employees to performance by contractors. 

3 

Air Force Administrative Record for FY 2013 Furlough Appeals 081
to the extent they are the most cost-effective way to maintain critical agency mission operations 

under sequestration. 

Please contact your OMB Resource Management Office (RMO) if you have any 

questions about or need assistance with this guidance. 

4 

Air Force Administrative Record for FY 2013 Furlough Appeals 082
UNDER SECRETARY OF THE AIR FORCE 

WASHINGTON 

MEMORANDUM FOR ALMAJCOMICC 

SUBJECT: Fiscal Year 2013 (FY13) Sequestration Guidance 

FEB 2 8 2013 

On l March 2013, we expect to absorb over $12B in sequestration reductions while we 

simultaneously work to mitigate an OCO shortfall of approximately $1.8B and operate under a 

highly restrictive Continuing Resolution. A reduction of this magnitude would be devastating to 

our mission and our people, but, since it appears sequestration cannot be avoided, we must take 

further actions to significantly slow spending to operate within mandated budget limitations. 

Implementation of these actions should be structured as best possible to minimize short- and 

long-term harm to our people and our unit readiness, recognizing that major impacts cannot be 

entirely avoided. This guidance applies to the Total Force. 

As a reminder and to assist you in making mission critical determinations, OSD directed 

protection of the following programs throughout the year: 

Fully protect funding for wartime operations 

Fully protect Wounded Warrior programs 

To the extent feasible, protect programs most closely associated with the new defense 

strategy 

To the extent feasible, protect family programs 

Continuation o{Near Term Actions Directed in14 January 2013 Memorandum 

Conduct a thorough review of all OCO requirements and identify potential reductions 

which will not impair wartime operations such as delaying asset reconstitution and 

incrementally funding OCO contracts. 

Civilian hiring restrictions remain in place to include a hiring freeze, immediate 

elimination of temporary employees and not renewing term hire employees with 

exceptions for mission-critical activities and when appropriate in terms of personnel 

timing. See attachment 1 for guidance on Total Force Management. 

Cancel all temporary duties that are not mission-critical, such as attendance at or hosting 

of conferences and symposia (such as functional conferences), staff assistance visits and 

training seminars. 

Cancel ongoing and scheduled studies that are not congressionally directed or mission 

critical. Further Action: SAF/LL and SAF/FMBL will engage with Congress, as 

appropriate, to seek relief or delay approval for congressionally directed studies. 

Limit supply purchases to essential FY13 consumption (e.g., flying hour bench stock) 

and stop minor purchases that are not mission-critical such as furniture, and unit 

equipment. 

Given the current budget uncertainty, the Air Force Chief Information Officer, SAF/CIO 

A6, further directed immediate actions to minimize IT expenditures to only missioncritical capabilities. Specific actions are outlined in the CIO Policy Directive 

Memorandum, Subject: Near-Term Guidance on FY13 Information Technology (IT) 

Air Force Administrative Record for FY 2013 Furlough Appeals 083
Spending dated 15 Feb 13 (attachment 2). The actions are intended to ensure planned 

mission-critical purchases are aligned and directly support the transition to enterprisewide IT services to realize long-term cost savings and mission effectiveness. 

Defer all non-emergency Facility Sustainment, Restoration and Modernization (FSRM) 

projects to include Dormitory and Energy Focus Funds. Installations should continue to 

work with local contracting offices to gather low bids and provide funds requests to the 

Air Force Civil Engineer Center (AFCEC). Projects may be funded later in the year if 

funding becomes available. Emergency requirements should be coordinated with 

AFCEC using the established process for Emergent Requirements (POC: M IA4/7C). 

Where practical, de-obligate/incrementally fund contracts to encompass only FY13 

activity (examples include but are not limited to base maintenance contracts, advisory 

and assistance services contracts, custodial contracts, etc.). 

Review contracts for possible descoping or other long term cost savings. 

Exceptions for Continued Near Term Actions 

Limited exceptions for the continuation of these near-term actions may be made for mission 

critical activities and civilian positions as determined by appropriate senior officials. Requests 

for exceptions shall be approved by MAJCOM Vice Commanders, the Deputy Director of the 

Air National Guard, DRU Commanders, and by SAF/AA for the HAF por1folio. Previous 

delegation of waiver authority will no longer be permitted effective 1 March 2013. 

Additional Actions Required due to Implementation o(Sequestration 

2 

In the event sequestration occurs, additional, wide-ranging and dramatic actions are required 

to ensure the Air Force operates within the new FY13 top-line. We direct the immediate 

implementation of the following actions in the event sequestration is triggered on 1 March 2013. 

Civilian Personnel (POC: AFIAJ) 

Civilian Furloughs: 

Follow the guidance found at attachment 3. Please read the attached guidance closely. 

The authority to approve the verv few exceptions to furlough cannot be delegated below 

the MAJCOM Vice Commanders, the Deputy Director of the Air National Guard (ANG). 

DRU Commanders, or SAF/AA for the HAF por1folio. ANG will follow guidance 

provided by N G-J 1-TN. 

It is also important to emphasize you may not use premium pay (compensatory or 

overtime) to offset furloughs, either to make up for lost work or to make up for lost pay. 

Premium pay is not authorized unless it is par1 of an employee's nmmal pay (such as an 

employee who regularly earns a night shift differential). Beyond that, premium pay is 

only authorized when it is necessary to provide safety of life or proper1y, but only to the 

minimum extent needed to protect life or property (i.e., firemen or emergency responders 

working over their regular shift due to an emergent situation that arises on their shift). 

To reiterate, except in the above circumstances, supervisors will not approve and civilian 

full-time employees will not work any hours in excess of their normal duty day. Parttime employees will have their furloughs pro-rated IA W 5 CFR 752. You may not 

request the furloughed employee work over1ime nor may you ask another civilian who is 

Air Force Administrative Record for FY 2013 Furlough Appeals 084
3 

not furloughed to compensate for the furloughed employee's lost productivity by working 

ovettime. 

Civilian Permanent Change of Station (PCS) guidance: 

All centrally-funded ·'must move" civilian PCSs will continue, to include overseas 

returnees, CDE placements, SES moves, priority placements, and centrally-funded career 

broadener, Palace Acquire, & Copper Cap placements. 

Centrally-funded civilian career moves that are discretionary will be significantly reduced 

as a result of sequestration. A strategic pause is anticipated for these discretionary 

moves; guidance will be provided by AFPC. 

Locally funded civilian PCSs can be approved at the discretion ofthe local commander. 

Education and Training (POC: AF/Al) 

Education and training guidance: 

All HQ AF leadership development courses scheduled through April 20 13 will be 

cancelled with exceptions for courses with non-recoverable tuition. HQ AF/ A 1 will 

evaluate subsequent classes on a monthly basis and assess the impact on our Total Force 

officer, enlisted, and civilian Airmen. 

Third quarter attendance at short-term TDY professional military education (PME), e.g., 

SOS, CALT, NCO Academies will be reduced. Specific guidance will be provided by 

AF/Al. 

The AF will support DoD and Joint education and training consistent w/OSD guidance. 

The following education and training is considered mission critical and will continue under 

sequestration: 

Long-tem1 professional military education (military and civilian attendance), all precommand training and CSAF mandated training, initial skills training, pre-deployment 

expeditionary skill training, and functional skills training as required by law. 

Flying Hours (POC: AF/AJ/5) 

Operational leaders at all levels of command are charged with preserving readiness to the 

maximum extent possible in these difficult circumstances. Due to compressed planning 

timelines and the unprecedented nature of sequestration cuts, we remain concerned about 

unanticipated second and third order effects on flying hour program execution and readiness. To 

mitigate this risk, operational leaders will ensure coordination across functional lines. In 

particular, civilian furloughs and weapon systems sustainment cuts (to include simulator 

sustainment) will significantly impact our ability to effectively execute flying hours or maintain 

operational competencies and must be taken into account. Readiness impacts will be severe and 

long-te1m under the best of scenarios; we must do everything in our power to avoid 

compounding negative effects through inefficient implementation. 

Effective immediately, AF O&M flying hours will be used primarily to prepare for and 

execute approved named operations, SecDef-ordered missions and deployments, nuclear 

detetTence operations, POTUS/VPOTUS/CCDR travel, Continuity of Government/Operations, 

and initial training, to include Formal Training Units. Units preparing for and executing these 

Air Force Administrative Record for FY 2013 Furlough Appeals 085
missions will be allocated appropriate flying hours to remain mission ready or gain mission 

ready status prior to deployment. 

4 

Units not preparing for or executing these missions will follow MAJCOM guidance to 

preserve critical capabilities and readiness to the extent possible. This may result in 

ceasing operations at a number of units and tiered readiness beginning in March. In 

many cases, this will result in units having to stand down for prolonged periods, which 

will severely degrade readiness. For example, we anticipate more than half of our AD 

CAF units will reach this point by mid-May. MAJCOMs will build reconstitution plans 

to best posture Airmen for returning to fly in FY14, while ensuring these units maximize 

training opp01tunities (e.g. simulators, part task trainers, academics) during the down 

period. 

Not all SecDef approved missions wi II be suppmted. AF I A3/5 will coordinate with 

MAJCOMs and Joint Staff through Global Force Management processes to provide 

detailed guidance. 

The fo llowing flying hour actions are effective immediately upon sequestration ( 1 March 

20 13) unless already in execution or otherwise noted: 

To support emphasis on initial qualification training, we recognize advanced flying 

training (e.g., instructor upgrade, "TX" transition courses) may be severely impacted, to 

include Weapons Instructor Courses. MAJCOMs retain authority on specific termination 

dates and may approve waivers/exemptions required to allow completion of 

training/courses currently in execution or those deemed mission critical. 

Cancel O&M funded USAF exercises and AF fl ying participation in all other exercises, 

unless required for deployment spin-up. 

Cancel all air shows, tradeshows, fl yovers, orientation flights, heritage fl ights, and 

demonstration flights (includes funeral and all military graduation flyovers). 

Cancel all Thunderbird demonstration team events, effective 1 April 201 3. 

Cancel all installation open houses unless event includes only local assets and can be 

supported within available local funding. 

Lead MAJCOMs will continue to manage programs and make flying hour 

allocations/reductions based on supp01ted missions. 

For senior leader airlift support, the Air Force will continue to support \:Vhite Housedirected missions and DOD required users (lAW DODD 4500.56). For Congressional 

travel, the Air Force will stri ctly adhere to DODD 45 15. 12 unless waivered by OSD-LA 

and expects there to be a significant reduction in available aircraft. All other senior 

leader military airlift support will continue to adhere to existing processes in AFI 24-101 , 

but on a very restricted basis and with reduced aircraft available. 

AF/CV is waiver/exception-to-policy authority for events listed above. Only missioncritical events will be approved. Approvals will not result in increased flying hour 

allocation from the Air Staff; funding must be sourced from MAJCOM/Lead MAJCOM 

flying hours. Route requests through A3/5, to include event name, date(s), rationale, 

cost, and number of assets (personnel and aircraft) dedicated to supp01t the event. For 

public aerial events, route questions through SAF/P A. 

Weapon System Sustainment (POC: AF/A4/7) 

Utilizing the 24 January 201 3 Centralized Asset Management (CAM)/Executive Committee 

approved briefing data all weapon system sustainment fund holders will begin to execute 

Air Force Administrative Record for FY 2013 Furlough Appeals 086
5 

planned sequestration actions to cover the worst case scenario reductions. Establish regular 

reporting of workload not accomplished and workload in danger of not getting funded in next 

rep01t. Workload previously identified for deferral will not be initiated unless an equal dollar 

value offset is provided from within the relevant fund holder's portfolio. MAJCOMs and the AF 

Life Cycle Management Center will review war ready engine levels to determine where 

additional risk can be taken based on flying hour reductions. Program offices will continue to 

review activities to find potential savings and will continue to report impacts to contracts 

supporting weapon system sustainment (e.g., Contractor Logistics Supp011 contracts) and depot 

maintenance workload. Ensure minimum impact to contingency operations effotts and protect 

the pilot production pipeline in accordance with stated priorities. In addition, sustainment 

prioritization efforts should protect aircrew readiness capability through favorable consideration 

of aircrew training device and simulator operations and maintenance contracts. As CUITent 

mission requirements and warfighter priorities are reassessed, major adjustments to the 

previously reviewed plan will be vectored through the CAM Govemance Struch1re. 

Air Force Working Capital Funds (AFWCF) (POC: SAFIFMBMR) 

The AFWCF will experience immediate and severe impacts caused by sequestration. Initial 

assessments indicate AFWCF 'Blue' cash will be depleted to a negative $772 million balance by 

the end ofFY2013. Coupled with projected Transp01tation WCF (TWCF) losses, the overall 

AFWCF cash balance could drop below negative $1 billion. Without additional action, this will 

cause an Anti-Deticiency Act violation, which must be avoided. Cost control measures within 

the AFWCF are critical to minimize losses; however, we understand that AFWCF activities may 

not be able to achieve sufficient cost reductions in the near term to off-set cash losses of this 

magnitude. With that in mind, we direct AFMC to take immediate actions to help mitigate the 

expected negative cash balance. Additionally, we direct AFMC to identify the month in which 

negative AFWCF 'Blue' cash and/or negative available budgetary resources will occur and to 

project the 'cash surcharge' required to prevent losses in total and by month. We will request that 

TRANSCOM also work to reduce costs and provide maximum possible insight into its cash 

position. SAF/FMB and AF/A4/7 will collaborate with AFMC and TRANSCOM to engage 

USD(C), OMB and the Congress in an effott to secure support fo r required mitigating actions to 

address any remaining shortfall in AFWCF. External support needed to prevent ADA violation 

may include restoral of readiness accounts, implementation of cash surcharges, and/or 

reprogran1ming funds from investment appropriations. 

In vestment Accounts (POCs: SAFIAQ, SAFIFMBI) 

SAF/AQ and SAF/FM will issue funding restrictions at the appropriation level and program 

ceiling level that assume worst case impacts as a result of combined continuing resolution and 

sequestration effects. This could have the impact of an across the board reduction of 10% to 

every program against the planned FY13 funding levels. Our ability to smooth programmatic 

impacts will be entirely dependent on the degree of funding flexibility we get with associated 

continuing resolution or appropriation language. As a result, we must have visibility of 

continuing resolution less sequestration reduction baselines at the program level and any 

proposed movement of funds between program line items. Additionally, any anticipated 

contract, modification or task/delivery order award using appropriated investment funding, with 

a value (not obligation) of $500M or more must be coordinated with AT &L before award. 

Requests for AT&L coordination shall be sent to SAF/AQX. SAF/AQX will ensure Air Force 

coordination and will staff the package to AT &L for approval. As a reminder. this AT &L 

Air Force Administrative Record for FY 2013 Furlough Appeals 087
6 

coordination requirement is for investment dollars only and excludes FMS, sustairunent, services 

acquisitions, and award of basic multiple award ID/IQ contracts. Investment OCO obligations 

should be deferred until fw1her notice; request for exception may be submitted to SAF/AQ and 

SAF/FM. Assume you will execute the sequestration plans you submitted to SAF/AQXR until 

fut1her notice; this includes preserving unobligated prior year balances identified to pay 

sequestration bill. Lastly, programs must adhere to guidance provided in this memorandum 

reducing studies, program management administrative and other contract costs. If our budget 

continues to decline, the Air Force will make strategic decisions to prioritize modernization 

programs to support the defense strategy and current readiness. 

Guidance for all Air Force Activities 

Based on actual sequestration reductions, you will receive updated budget bogeys when they 

are available. For planning purposes, you should plan for the worst case, using the 9 Jan Top 

Line Reduction, Scenario 2 Bogeys. This assumes the Air Force will not receive external 

support for our $1.8B OCO shortfall. You are directed to take the additional actions: 

Cancel all temporary duty travel unless directed by MAJCOM/CC or CV. Additional 

guidance includes: 

MAJCOMICCs will determine which, if any, functional and IG inspections will 

occur during the sequester. High priority should be given to nuclear-related 

inspections. 

The following TDYs are considered mission critical and approved as they support 

critical corporate Air Force functions: Promotion boards, command selection 

boards, special selection boards, force management/force-shaping boards pre- and 

post-board activities, and development teams supporting school and command 

selection only. Development Team meetings supporting school and command 

selection should be considered on-site TDY s, unless agreement is reached with 

AFPC in advance to conduct them virtually. 

Safety and Accident Investigation Boards are approved travel. 

Travel for promotion/retirement/award ceremonies or banquets is NOT approved. 

Speaker participation in wing/group commander courses should not require travel, 

but be executed by VTC, DCO or other technology. 

Travel to attend AETC hosted teclmical or follow-on training courses is approved, 

but attendees must confirm the course will continue as scheduled. 

SAFIIA will provide minimum required suppm1 to international events. 

Cancel or defer all AF-hosted conferences and attendance at Non-Federal Entity 

(NFE) hosted conferences, seminars and symposia. Local attendance at an NFE 

event is allowed only ifthere is no cost to the Air Force. Previously delegated 

conference approval authority is rescinded. Request exemptions through the 

existing conference approval process for SAF/US approval. Cancellation includes 

individual speaker travel if at AF expense. (All "gifted ' travel must be approved 

by SAF/GC and repm1ed annually.) Conference attendance for medical readiness 

training and a1mual chaplain ecclesiastical endorsement events will be allowed 

after review through the conference approval process. 

No spouse travel will be approved at AF expense, except for required precommand training (eg., squadron, group, wing pre-command courses). 

Implement additional reductions where possible to Science Engineering and Technical 

Assistance (SET A); Advisory and Assistance Services (A&AS); Final System Design 

Air Force Administrative Record for FY 2013 Furlough Appeals 088
Review (FSDR); Contract Military Equivalents (CME) contracts by end of fiscal year or 

period of performance if earlier than Oct 1, 20 13. 

Reference SAF/AA Memorandum, Suspension ofTop Secret Periodic Reinvestigations 

13 Feb 2013 (see attachment 4 ), suspend the submission of all Top Secret Periodic 

Reinvestigations. Suspend all Single Scope Periodic Reinvestigations (SSBI-PR) and 

Phased Periodic Reinvestigations (PPRs) with limited exceptions. This suspension 

includes the mandatory Air Force Specialty Codes requiring in-scope Top Secret 

investigations as found in Air Force Officer and Air Force Enlisted Classification 

Directories. Reinvestigations for Personnel Reliability Programs, Presidential Support 

Programs, Special Access Programs and personnel with access to Sensitive 

Compartmented Information who are in positions directly suppot1ing the Intelligence 

Community will not be suspended. Additional exceptions must be approved by 

SAF/AAZ. 

7 

These events are unprecedented for the Department and the USAF. As such, it is critical that 

we maintain very open communication lines to ensure maximum awareness of actions and 

consistency of application of all sequestration guidance. This will enable us to infonn leadership 

of notable events and assist in the preparation for media/congressional inquiries. Request you 

provide a weekly update to the SAF/FMBP Workflow (SAFFMBP.Workflow@pentagon.af.mil) 

and identify any major actions/events that should be elevated to HQ AF. For example, if 

projected stand down of a fl ying unit is accelerated from previous estimates, please provide those 

details. Each MAJCOM should identify a command POC for submitting these reports. Negative 

inputs should be documented with a NSTR email to the SAF/FMBP Worktlow. 

We will continue to coordinate with MAJCOMs/COCOMs on actions for consistency in 

application and recognize you have already implemented many of the actions above. We also 

realize there are many difficult decisions and trade-offs yet to be made, but they are necessary to 

comply with a reduction of this magnitude. We will continue working closely to communicate 

sequestration impacts and advocate for restoral of funding necessary to mitigate the devastating 

effects of sequestration. If you have questions regarding this guidance, please call Ms. Marilyn 

Thomas, SAF/FM, at (703) 697-4464. 

--f~~./0. s~ ~~~AF Vice Chief of Staff 

cc: 

SAF/FM 

4 Attachments: 

1. 2 1 Feb 2013 OASD Total Force Management and Budgetary Uncertainty 

2. 15 Feb 2013 AF IT Spending Memo 

3. 20 Feb 2013 AF Furlough Guidance 

4. 13 Feb 20 12 SAF/AA Memo, Suspension ofTop Secret Periodic Reinvestigations 

Air Force Administrative Record for FY 2013 Furlough Appeals 089