DAO 102_Planning_Programming_Budgeting paper Department of Defense Decision Support Systems1.2. Planning, Programming, Budgeting and Execution (PPBE) Process | |
The purpose of the PPBE process is to allocate resources within the Department of Defense. It is important for program managers and their staffs to be aware of the nature and timing of each of the events in the PPBE process, since they may be called upon to provide critical information that could be important to program funding and success.
In the PPBE process, the Secretary of Defense establishes policies, strategy, and prioritized goals for the Department, which are subsequently used to guide resource allocation decisions that balance the guidance with fiscal constraints. The PPBE process consists of four distinct but overlapping phases:
Planning. The planning phase of PPBE is a collaborative effort by the Office of the Secretary of Defense and the Joint Staff, in coordination with DoD components. It begins with a resource-informed articulation of national defense policies and military strategy known as the Guidance for the Development of the Force (GDF). The GDF is used to lead the overall planning process. This process results in fiscally constrained guidance and priorities - for military forces, modernization, readiness and sustainability, and supports business processes and infrastructure activities - for program development in a document known as the Joint Programming Guidance. The Joint Programming Guidance is the link between planning and programming, and it provides guidance to the DoD Components (military departments and defense agencies) for the development of their program proposals, known as the Program Objective Memorandum (POM).
Programming. The programming phase begins with the development of a POM by each DoD Component. This development seeks to construct a balanced set of programs that respond to the guidance and priorities of the Joint Programming Guidance within fiscal constraints. When completed, the POM provides a fairly detailed and comprehensive description of the proposed programs, including a time-phased allocation of resources (forces, funding, and manpower) by program projected six years into the future. In addition, the DoD Component may describe important programs not fully funded (or not funded at all) in the POM, and assess the risks associated with the shortfalls. The senior leadership in OSD and the Joint Staff review each POM to help integrate the DoD Component POMs into an overall coherent defense program. In addition, the OSD staff and the Joint Staff can raise issues with selected portions of any POM, or any funding shortfalls in the POM, and propose alternatives with marginal adjustments to resources. Issues not resolved at lower levels are forwarded to the Secretary for decision, and the resulting decisions are documented in the Program Decision Memorandum.
Budgeting. The budgeting phase of PPBE occurs concurrently with the programming phase; each DoD Component submits its proposed budget estimate simultaneously with its POM. The budget converts the programmatic view into the format of the congressional appropriation structure, along with associated budget justification documents. The budget projects resources only two years into the future, but with considerably more financial details than the POM. Upon submission, each budget estimate is reviewed by analysts from the office of the Under Secretary of Defense (Comptroller) and the Office of Management and Budget (OMB). Their review ensures that programs are funded in accordance with current financial policies, and are properly and reasonably priced. The review also ensures that the budget documentation is adequate to justify the programs presented to the Congress. Typically, the analysts provide the DoD Components with written questions in advance of formal hearings where the analysts review and discuss the budget details. After the hearings, each analyst prepares a decision document (known as a Program Budget Decision, or PBD) for the programs and/or appropriations under his or her area of responsibility. The PBD proposes financial adjustments to address any issues or problems identified during the associated budget hearing. The PBDs are staffed for comment and forwarded to the Deputy Secretary of Defense for decisions. These decisions are then reflected in an updated budget submission provided to the OMB. After that, the overall DoD budget is provided as part of the President's Budget request to the Congress.
Execution. The execution review occurs simultaneously with the program and budget reviews. The execution review provides feedback to the senior leadership concerning the effectiveness of current and prior resource allocations. Over time, metrics are being developed to support the execution review that will measure actual output versus planned performance for defense programs. To the extent performance goals of an existing program are not being met, the execution review may lead to recommendations to adjust resources and/or restructure programs to achieve desired performance goals. PPBE Biennial Cycles. In 2003, the Department adjusted its planning, programming and budgeting procedures to support a two-year cycle that results in two-year budgets. The revised process is described in Management Initiative Decision (MID) 913, dated May 22, 2003. The concept in MID 913 is consistent with submission of a biennial DoD budget that is part of the President's Budget request to Congress for even-numbered fiscal years (FY) (e.g., the FY 2008 President's Budget, submitted to Congress in February 2007, contained justification material for both FY 2008 and FY 2009). In this cycle, the even-numbered years are called on-years, while the odd-numbered years are called off-years. Figure 1.2.F1 displays a nominal timeline for the PPBE phases in an on-year.

Figure 1.2.F1. Typical PPBE Biennial Cycle, "On-Year"