Since the Coast Guard's marine safety program became a GPRA pilot program in fiscal year 1994, the number of direct program personnel declined and its budget was reduced by 2 percent.
They couldn't afford to keep as many people employed. 
mnli hypothesis: They couldn't afford to keep as many people employed.  premise: Since the Coast Guard's marine safety program became a GPRA pilot program in fiscal year 1994, the number of direct program personnel declined and its budget was reduced by 2 percent.