BY ORDER OF THE SECRETARY OF THE AIR FORCE AIR FORCE

BY ORDER OF THE SECRETARY

OF THE AIR FORCE

AIR FORCE MANUAL 65-506

6 SEPTEMBER 2019

Financial Management

ECONOMIC ANALYSIS

COMPLIANCE WITH THIS PUBLICATION IS MANDATORY

ACCESSIBILITY: Publications and forms are available on the e-Publishing website at

www.e-Publishing.af.mil for downloading or ordering

RELEASABILITY: There are no releasability restrictions on this publication

OPR: SAF/FMCE

Supersedes: AFMAN 65-506, 29 August 2011

AFMAN 65-510, 19 October 2010

Certified by: SAF/FMC

(Ms. Pamela C. Schwenke)

Pages: 166

This manual implements Air Force Instruction (AFI) 65-501, Economic Analysis, by providing

information on applying the Economic Analysis (EA) approach to support Air Force decisions.

This publication applies to all civilian employees and uniformed members of the Regular Air

Force, the Air Force Reserve and the Air National Guard. Ensure all records created as a result of

processes prescribed in this publication are maintained in accordance with Air Force Manual

(AFMAN) 33-363, Management of Records, and disposed of in accordance with the Air Force

Records Disposition Schedule located in the Air Force Records Information Management System.

Refer recommended changes and questions about this publication to the Office of Primary

Responsibility (OPR) using AF Form 847, Recommendation for Change of Publication; route AF

Forms 847 from the field through the appropriate functional’s chain of command. The authorities

to waive wing/unit level requirements in this publication are identified with a Tier (“T-0, T-1, T-

2, T-3”) number following the compliance statement. See AFI 33-360, Publications and Forms

Management, for a description of the authorities associated with the Tier numbers. Submit requests

for waivers through the chain of command to the appropriate Tier waiver approval authority, or

alternately, to the Publication OPR for non-tiered compliance items. This publication may be

supplemented at any level, but all direct Supplements must be routed to the OPR of this publication

for coordination prior to certification and approval. The use of the name or mark of any specific

manufacturer, commercial product, commodity, or service in this publication does not imply

endorsement by the Air Force.

2 AFMAN65-506 6 SEPTEMBER 2019

SUMMARY OF CHANGES

This manual combines AFMANs 65-506, Economic Analysis, and 65-510, Business Case Analysis

Procedures. This manual clarifies that economic analysis is both an analytical approach to

decision-making and one of many products resulting from the analytical approach. This manual

includes a clarification that all Comparative Analysis products (e.g., Economic Analysis (EA),

Cost Benefit Analysis, Analysis of Alternatives (AoA), Business Case Analysis (BCA)) fit under

the umbrella of the economic analysis approach and are subject to this instruction (consistent with

Department of Defense Instruction (DoDI) 7041.03, Economic Analysis for Decision Making).

This manual clarifies that the level of rigor in an economic analysis will vary with multiple factors

(e.g., maturity of the project, dollar value of the project)

This manual updated and added detail to the elements that must be addressed as part of the

economic analysis approach. This manual includes an economic analysis process overview with

tips on how to get started.

This AFMAN revised the chapter contents to more closely align with the elements that must be

included in a comparative analysis. Chapter 2 was expanded to include: Background, Scope, Facts

and Ground Rules. The Objective and Assumptions sections of Chapter 2 were clarified.

This manual made the instruction on alternatives into its own Chapter (Chapter 3). The Chapter

expands upon the previous explanation of alternatives.

This manual expands the Chapter on cost (Chapter 4) to include more information on building the

cost analysis. Chapter 4 includes a table to explain the different purposes of cost estimates and

provide the context of how building the cost estimates for a comparative analysis differs from other

cost estimates. Chapter 4 explains the incremental cost concept. Chapter 4 includes the basic steps

for building a cost estimate and a brief description of a few common estimating techniques.

Chapter 4 moved topics such as terminal value, discount factors, present value, and Uniform

Annual Cost method to the section on “Other Considerations in the Cost Analysis.”

The chapter on benefits (Chapter 5) now includes more information on building a benefit analysis.

Chapter 5 added flexibility to allow for benefits to be expressed as either a narrative or on an

ordinal scale. Chapter 5 includes more detail on developing a benefit hierarchy (if needed) and

weighting benefits. Chapter 5 includes examples of benefit analysis summary tables.

The chapter on Uncertainty Analysis (sensitivity and risk analysis) (Chapter 6) now includes more

information on building risk and sensitivity analyses. Chapter 7 now includes comparison of

alternatives, providing results, documentation and post analysis activities. This chapter includes a

requirement to provide an interpretation of results. The post analysis activities include such topics

as: an implementation plan and stakeholder analysis. This manual moved special analyses to the

attachments and expanded them. This manual updated the attachments to include a section on the

Clinger-Cohen Act analyses (Attachment 13) and a section on Real Property Construction and

Repair analyses (Attachment 11).

AFMAN65-506  6 SEPTEMBER 2019  3 
This manual moved the Economic Impact Analysis (EIA) to Attachment 12.  The attachment was 
changed to adapt to the new source of multipliers.  This update includes references to a new Excel 
Tool that implements the new method for performing the economic impact analysis. 
This manual updates the form for submitting a waiver and the format for the Executive Summary. 
This manual added information on the certification process that includes consideration of recent 
changes to  Air  Force organizations.    This  manual  also  updated the  certificate  of  satisfactory 
economic analysis. 
This manual updated the Economic Analysis Review Guide (Attachment 6), and the Preparer’s 
Guides (Attachment 5).  This manual updated the formulas for Factors and financial Indicators 
(Attachment 7). 
This  manual  updates  the  sample  formats  for  summary  of  costs  (Format  A  and  Format  A-1) 
(Attachment 8).  The update clarifies which costs should be included when using the Uniform 
Annual Cost Method versus the Terminal Value Method. 
 
Chapter 1— ECONOMIC ANALYSIS PRINCIPLES    7 
1.1.   Economic Analysis Background .............................................................................   7 
Figure  1.1.   Economic Analysis Approach and Comparative Analysis. ....................................   7 
1.2.   Elements of the Economic Analysis Approach.......................................................   8 
1.3.   Applying the Economic Analysis Approach: Overview. ........................................   9 
Figure  1.2.   Comparative Analysis Support. ..............................................................................   10 
Figure  1.3.   Foundational Elements. ..........................................................................................   11 
Figure  1.4.   Data Collection. ......................................................................................................   11 
1.4.   Roles and Responsibilities.   ...................................................................................   11 
Chapter 2— FOUNDATIONAL ELEMENTS:  BACKGROUND, OBJECTIVE, SCOPE, 
FACTS, GROUND RULES AND ASSUMPTIONS    12 
2.1.   Background.   ..........................................................................................................   12 
2.2.   Objective of the Comparative Analysis.  ................................................................   12 
Figure  2.1.   Objective. ................................................................................................................   13 
2.3.   Scope.  .....................................................................................................................   13 
2.4.   Parameters of the Analysis (Facts/Ground Rules/Assumptions).   .........................   13 
Chapter 3— ALTERNATIVES    15 
3.1.   Overview. ................................................................................................................   15 

4  AFMAN65-506  6 SEPTEMBER 2019 
3.2.   Baseline/Status Quo ................................................................................................   15 
3.3.   Reasonableness and Feasibility...............................................................................   15 
Figure  3.1.   Reasonable and Feasible Examples for Alternatives. .............................................   16 
Figure  3.2.   Reasonable and Feasible Notional Illustration........................................................   17 
3.4.   Completeness ..........................................................................................................   17 
3.5.   Describing Alternatives ..........................................................................................   17 
Chapter 4— COST ANALYSIS    19 
4.1.   Overview - Cost Analysis .......................................................................................   19 
4.2.   Purpose of Cost Analysis  .......................................................................................   19 
Table  4.1.   Cost and Purpose. ...................................................................................................   19 
4.3.   Basic Steps for the Cost Analysis ...........................................................................   20 
Figure  4.1.   Example - Build New Facility Cost Element Structure. .........................................   21 
4.4.   Components of a Cost Analysis ..............................................................................   23 
4.5.   Other Considerations in the Cost Analysis .............................................................   27 
Figure  4.2.   Incremental Cost Example. .....................................................................................   29 
Chapter 5— BENEFIT ANALYSIS    32 
5.1.   Overview – Benefit Analysis ..................................................................................   32 
5.2.   Role of Benefits ......................................................................................................   32 
5.3.   Types of Benefits ....................................................................................................   32 
5.4.   Basic Steps for Benefit Analysis.............................................................................   34 
Figure  5.1.   Quantifying Benefits. ..............................................................................................   37 
Figure  5.2.   Benefit Weighting Example. ...................................................................................   38 
Figure  5.3.   Relative Ranking without Weights. ........................................................................   39 
Figure  5.4.   Relative Ranking with Weights. .............................................................................   40 
Figure  5.5.   Weighted Benefits Score Evaluated at a Summary Level. .....................................   41 
Figure  5.6.   Benefits Evaluated as a Hierarchy. .........................................................................   42 
5.5.   Other Benefit Considerations ..................................................................................   43 
Chapter 6— UNCERTAINTY (RISK AND SENSITIVITY) ANALYSIS    44 
6.1.   Uncertainty Analysis Overview ..............................................................................   44 

AFMAN65-506  6 SEPTEMBER 2019  5 
6.2.   Sensitivity Analysis ................................................................................................   44 
6.3.   Risk Analysis ..........................................................................................................   45 
Figure  6.1.   Risk Matrix Example. .............................................................................................   47 
Figure  6.2.   Definitions for Likelihood Categories. ...................................................................   47 
Figure  6.3.   Definitions for Consequence Categories. ...............................................................   48 
Figure  6.4.   Summary of Risk Analysis. ....................................................................................   48 
Figure  6.5.   Risk Element Definitions. .......................................................................................   49 
Chapter 7— CONCLUDING THE ANALYSIS: SUMMARY AND COMPARISON OF 
ALTERNATIVES AND POST-ANALYSIS ACTIVITIES    50 
7.1.   Once the cost, benefit and uncertainty analyses are completed for each 
alternative:  ..............................................................................................................   50 
7.2.   Provide summary tables for:  ..................................................................................   50 
7.3.   Provide a brief narrative explanation of:  ...............................................................   50 
7.4.   Every comparative analysis must:  .........................................................................   50 
7.5.   If the analyst provides a recommendation:  ............................................................   51 
7.6.   The decision-maker at each level may:  ..................................................................   51 
7.7.   Documentation Requirements.  ...............................................................................   51 
7.8.   Information and Activities that are Important for Implementing a Decision ..........   52 
Chapter 8— ANNUAL ECONOMIC ANALYSIS REPORT    53 
8.1.   Annual Economic Analysis Report (RCS: HAF-FMC [A] 9501):  ........................   53 
Attachment 1— GLOSSARY OF REFERENCES AND SUPPORTING INFORMATION    54 
Attachment 2— EXECUTIVE SUMMARY FORMAT REQUIREMENT    61 
Attachment 3— COMPARATIVE ANALYSIS CERTIFICATION AND WAIVER 
APPROVAL    63 
Attachment 4— REQUEST FOR WAIVER FROM THE COMPARATIVE ANALYSIS 
REQUIREMENT    74 
Attachment 5— COMPARATIVE ANALYSIS PREPARER’S GUIDE    76 
Attachment 6— COMPARATIVE ANALYSIS REVIEWER/CERTIFICATION GUIDE    85 
Attachment 7— FORMULAS FOR FACTORS AND FINANCIAL INDICATORS    98 
Attachment 8— SAMPLE FORMATS FOR SUMMARY OF COSTS    103 

6  AFMAN65-506  6 SEPTEMBER 2019 
Attachment 9— PRELIMINARY COMPARATIVE ANALYSIS    109 
Attachment 10— ANNUAL ECONOMIC ANALYSIS REPORT (RCS: HAF-FMC[A] 
9501) FORMAT    111 
Attachment 11— REAL PROPERTY CONSTRUCTION AND REPAIR ECONOMIC 
ANALYSES    112 
Attachment 12— ECONOMIC IMPACT ANALYSIS    139 
Attachment 13— CLINGER-COHEN ACT ECONOMIC ANALYSES    151 
Attachment 14— OTHER SPECIALIZED ANALYSES    159 
 
   

AFMAN65-506 6 SEPTEMBER 2019 7

Chapter 1

ECONOMIC ANALYSIS PRINCIPLES

1.1. Economic Analysis Background

1.1.1. Economic analysis is a systematic approach to decide how to use scarce resources to

meet a given objective. Properly using the economic analysis approach yields an impartial

analysis of competing alternatives to meet an objective, and weighs the costs, and benefits and

uncertainty for each alternative. The economic analysis approach does not replace the

judgment of a decision maker, but rather provides an analytic and uniform foundation upon

which sound decisions can be made.

1.1.2. Analyses that include costs and benefits to support decision making are performed under

a variety of names (e.g., Cost Benefit Analysis, Analysis of Alternatives, Economic Analysis,

Business Case Analyses). Any analysis that includes cost benefit and uncertainty

considerations fits under the definition of “economic analysis” even though not specifically

titled as such.

1.1.3. For the remainder of this manual, all analyses resulting from implementing the

economic analysis approach will be referred to as “comparative analyses” or simply as

“analyses” unless referring to a specific product whose name has been directed at a higher level

(e.g., Product Support Business Case Analysis, Military Construction Economic Analysis).

The conceptual approach to decision-making will be referred to as economic analysis to remain

consistent with DoDI 7041.03.

Figure 1.1. Economic Analysis Approach and Comparative Analysis.

1.1.4. The economic analysis approach considers all significant anticipated effects of a

decision across the entire organization, not just the financial ones. It also assesses the

likelihood that those effects will occur as anticipated (i.e., uncertainty/risk).

8 AFMAN65-506 6 SEPTEMBER 2019

1.1.5. Programs, projects, and initiatives evaluated using the economic analysis approach may

include any significant decision that leadership is contemplating. The following is a sample

(not all-inclusive) list of programs and situations for which the economic analysis approach

can be used to assist in decision making:

1.1.5.1. Military construction (MILCON), military family housing and facility repair.

1.1.5.2. Tradeoffs between force structures, force size, modernization, fuel/energy

consumption, and readiness.

1.1.5.3. Manpower analysis.

1.1.5.4. Projects to mechanize, automate, prevent obsolescence, improve workflow and

layout, or increase capacity.

1.1.5.5. Acquiring, repairing, supporting, modifying or replacing weapon systems,

information systems or information technology.

1.1.5.6. Acquiring or upgrading equipment to reduce operating and support costs.

1.1.5.7. Lease or purchase of general purpose real property, such as office buildings,

warehouses, and associated land.

1.1.5.8. Consolidating facilities, such as warehouses, maintenance and storage depots, and

repair activities to decrease cost for any reason or to add to mission effectiveness.

1.1.5.9. Business process improvement (business reengineering).

1.2. Elements of the Economic Analysis Approach.

1.2.1. The economic analysis approach will be driven by the context around the decision.

Some of the drivers include: the stage a program or project is in its life cycle, the level of

resources consumed in the project, the level of visibility, and the scope/significance of the

objective. As a result, analysis may require a tailored approach to fit the project. Tailoring

could include abbreviating some elements of the analysis, or going into greater depth on some

elements, but in almost all cases the basic elements in 1.2.2 need to be included in some

manner.

1.2.2. Unless otherwise stated, the elements below must be included when applying the

economic analysis approach. (T-2).

1.2.2.1. Background/Objective/Scope – These areas provide the programmatic foundation

upon which the analysis is built. The background provides the context for the analysis while

the objective and scope define what the project or program under study seeks to attain.

1.2.2.2. Facts/Ground Rules/Assumptions – These areas identify parameters significant to

the analysis. Facts are key known parameters that are significant to the analysis. Ground

rules are general principles (often directive in nature) that provide bounds for the analysis.

Assumptions are key parameters where the values and circumstances must be estimated

because reliable knowledge is lacking. Without assumptions, analytical models would not

be able to produce useful conclusions.

1.2.2.3. Alternatives – Solution sets evaluated to meet the objective.

1.2.2.4. Cost Analysis – Analysis of monetary costs/savings/revenue effects by alternative.

AFMAN65-506 6 SEPTEMBER 2019 9

1.2.2.5. Benefit Analysis – Analysis of non-monetary attributes of each alternative.

1.2.2.6. Uncertainty Analysis

1.2.2.6.1. Sensitivity Analysis – Test of the assumptions to see how the results are

impacted.

1.2.2.6.2. Risk Analysis – Analysis of risks by alternative.

1.2.2.7. Summary and Comparison of Alternatives – Evaluation and comparison of the

alternatives and discussion of key findings in the analysis.

1.2.2.8. This list does not preclude an analyst from incorporating other relevant

information when using the economic analysis approach to complete a comparative

analysis.

1.2.3. The resulting comparative analysis product will be formatted with the following

sections: a certification (when required by AFI 65-501, para 1.7), an executive summary, the

analysis itself, supporting appendices and supporting documentation. (T-2).

1.3. Applying the Economic Analysis Approach: Overview.

1.3.1. Sources of guidance and support

1.3.1.1. When the need for a comparative analysis is identified, one of the first questions

is where to get guidance and support. Figure 1.2 illustrates primary support organizations

for acquisition-related and all other analyses.

1.3.1.2. For Major Command (MAJCOM) and Installation organizations (outside of

weapon system acquisition), the Air Force Installation and Mission Support Center

Resource Management Cost Division (formerly the Financial Management Center of

Expertise) or MAJCOM Cost Staff are the primary sources of guidance and support.

1.3.1.2.1. The scope and type of project may affect which organization ultimately

assists with a comparative analysis project.

1.3.1.2.2. As an example, while an Installation Financial Office should contact the Air

Force Installation and Mission Support Center Resource Management Cost Division

for support with an analysis, that analysis may be passed to the Air Force Economics

and Business Management Division (SAF/FMCE) for support if its scope crosses

multiple MAJCOMs.

1.3.1.3. For Headquarters Air Force level organizations, SAF/FMCE is the primary source

of guidance and support.

1.3.1.4. For weapon system acquisition programs on the Acquisition Master List or other

Acquisition designations (e.g., Fiscal Year (FY) 17 National Defense Authorization Act

section 804 programs), the primary source of guidance and support is the program’s Center

Cost staff.

1.3.1.5. For acquisition programs which are not included under paragraph 1.3.1.4 above,

the primary sources of guidance and support are SAF/FMCE, MAJCOM Financial

Management staff, or Center Cost staff.

10 AFMAN65-506 6 SEPTEMBER 2019

Figure 1.2. Comparative Analysis Support.

1.3.2. Build a Plan and Schedule

1.3.2.1. Build a plan for the analysis. Identify key personnel including the decision maker,

functional experts, and other analysts and support. Confirm the objective and scope of the

analysis and how it will be used. Identify sources for cost, performance, capability, and

other benefit and uncertainty data, etc., as applicable. Verify the higher-level review and

certification requirements. Identify the specific deliverables required.

1.3.2.1.1. Depending on the scope and the time available, hold a kickoff meeting with

key stakeholders to determine the plan and schedule.

1.3.2.1.2. The elements in this section are important to consider even for an analysis

which will not be formalized.

1.3.2.2. Timeliness is important in a comparative analysis. Particularly when there is a

hard suspense (e.g., Program Objective Memorandum build), it is important to develop a

schedule that meets the decision-maker’s timeline. If the analysis is completed too late for

the decision, it will not have an impact. When the suspense is softer, the analyst may be

able to negotiate the schedule in order to provide a more robust analysis. This is a balance

that will need to be addressed early in the program.

1.3.3. Foundation - Work with the requirement owner to develop foundational elements.

1.3.3.1. The foundational elements include: background, objective, scope, facts,

assumptions, and ground rules.

1.3.3.2. These foundational elements guide the remainder of the estimate. It is important

to understand that while they guide subsequent analysis, they can be revisited and updated

if the update would lead to a more valuable analysis. In particular, the assumptions should

be revalidated and updated during the analysis process.

AFMAN65-506 6 SEPTEMBER 2019 11

Figure 1.3. Foundational Elements.

1.3.4. Alternatives – After these initial steps, the analyst will have the foundation needed to

develop a set of alternatives that would satisfy the objective. Chapter 3 provides more details

on developing an appropriate set of alternatives.

1.3.5. Cost/Benefits/Uncertainty – The foundation, together with the alternatives, will enable

the analyst to begin building the cost analysis, benefit analysis, and uncertainty analysis. As

part of the uncertainty analysis, the analyst should test the strength of the results using

sensitivity analyses and may assess risk. See Chapters 4, 5, and 6 for more detailed guidance

on cost analysis, benefit analysis, and uncertainty analysis.

Figure 1.4. Data Collection.

1.3.6. Summary and Comparison of Alternatives – With completed cost, benefit, and

uncertainty analyses, the analyst will have sufficient information to compare the alternatives.

In addition to comparing the alternatives, the analyst interprets the results. Chapter 7 provides

additional information on this step.

1.3.7. Documentation/Report – The analyst will finish the comparative analysis product (i.e.,

the documentation for the economic analysis) for delivery to the decision maker. (T-2). More

information on documentation is provided in Chapter 7.

1.4. Roles and Responsibilities. For a complete listing of the Roles and Responsibilities of

developing an Economic Analysis, see section 1.4 of AFI 65-501. Roles and Responsibilities for

certification are contained in Attachment A3 of this manual.

12 AFMAN65-506 6 SEPTEMBER 2019

Chapter 2

FOUNDATIONAL ELEMENTS: BACKGROUND, OBJECTIVE, SCOPE, FACTS,

GROUND RULES AND ASSUMPTIONS

2.1. Background. The background provides a context for the analysis. The background should

be concise. Some examples of items to include in background context are:

2.1.1. A brief project/program history, technical description (if applicable), and current state

of the project/program. For a complex program, the technical description could include

information about the maturity of the concepts and technology.

2.1.2. A brief synopsis of why the analysis is needed (e.g., problem that is being addressed,

legislative compliance, Command directed).

2.1.3. Key milestone dates for the program, initiative, project, etc. that affect the timing or

constrain the scope of the analysis.

2.1.4. The intended audience for the analysis.

2.1.5. Timeframe for the analysis.

2.1.6. Any other relevant information on how the analysis will be used (budgeting,

contracting, etc.).

2.2. Objective of the Comparative Analysis. The objective of the comparative analysis is the

purpose for which the analysis is being performed. When doing the analysis, the analyst should

frequently reference the objective to ensure the analysis remains consistent with the purpose.

2.2.1. The objective statement should clearly and succinctly define and quantify, to the extent

possible, what the project or program under study seeks to attain (e.g., obtain sufficient

workspace for 200 people arriving on base as a result of gaining a new mission). It should state

the goal or objective (i.e., mission or mission support requirement) to be met by the alternatives

under study.

2.2.2. The objective should address the true problem to be solved. For example, do not limit

the objective to insufficient manpower at the gate to check IDs when the problem to be solved

is long lines (which may have a variety of solutions).

2.2.3. The objective should be stated broadly enough that it can be met by multiple alternatives

and not in a way that favors or pre-supposes one particular alternative. A narrowed objective

can sometimes introduce what is called pre-selection bias.

2.2.4. The objective statement should reflect the purpose of the project or program that is being

analyzed. Conversely, it should not be a statement of the objective of the analysis.

AFMAN65-506 6 SEPTEMBER 2019 13

Figure 2.1. Objective.

2.3. Scope.

2.3.1. The scope describes the content that is included in the analysis and the content that is

excluded from the analysis. In assessing the scope, the analyst will need to determine the level

of the objective (e.g., Society, Federal Government, Defense Department, Air Force,

MAJCOM, Installation, Portfolio, or Program). The scope is a focusing mechanism for the

analysis.

2.3.2. Be cautious of narrowing the scope unnecessarily. It is important to consider costs and

benefits, including potential second and third order effects, experienced by all affected

organizations.

2.3.3. Be cautious also of having a scope that is too broad or the analysis may become

unwieldy.

2.4. Parameters of the Analysis (Facts/Ground Rules/Assumptions). All parameters must be

explicitly stated. (T-2).

2.4.1. Facts - Facts are key parameters that will be significant to the analysis and for which

the value is known.

2.4.1.1. Facts may include information about factors that may be relevant for an analysis.

For example, in a vehicle lease versus buy analysis, a fact may be that there are currently

excess vehicles in the inventory.

2.4.1.2. An analyst should include important facts in the background of the analysis.

2.4.2. Ground Rules - Ground rules are general principles that provide bounds for the analysis.

2.4.2.1. Some common examples of ground rules include: period of analysis and type of

dollar used (base-year, then-year, and constant-year).

2.4.2.2. Ground rules can also involve the scope of the analysis. Certain areas can be

excluded from the analysis by ground rule. When doing so, the analyst should have a

rationale for the exclusion.

2.4.3. Assumptions - Assumptions are key parameters where the values and circumstances

must be estimated because their values depend on future events or there is a lack reliable

knowledge.

2.4.3.1. Only assumptions that are necessary and reasonable should be included in an

analysis. The reasonableness and validity of assumptions, as well as the need for new

assumptions, should be periodically re-assessed throughout the course of the analysis.

14 AFMAN65-506 6 SEPTEMBER 2019

2.4.3.2. Avoid making assumptions where facts should be used.

2.4.3.3. Assumptions should not be made for the convenience of the analyst or one of the

stakeholders, or to unfairly favor one alternative over another.

2.4.3.4. The analyst should avoid treating assumptions as facts (e.g., past workload is a

fact, projecting that workload into the future is an assumption). Any such assumptions

should be explicitly stated in the Assumptions section of the analysis. Sometimes current

facts can be used as a foundation for an assumption. For example, the fact that there are

currently excess vehicles may be used to assume that the excess will persist in future years.

2.4.3.5. There are times when assumptions can appropriately narrow the scope of an

analysis to manageable proportions, but they should not unduly constrain the analysis by

eliminating otherwise reasonable alternatives.

2.4.3.6. Assumptions are one way to handle uncertainty in an analysis. A Sensitivity

Analysis must be performed to test the effect that major assumptions have on analysis

results. (T-1).

2.4.3.7. Examples of areas where assumptions are commonly made include: operations,

organization, facilities, schedule, discount factors, inflation factors, manpower factors,

production rates, utilization rates, workload, requirements and changes to requirements,

estimated economic lives, future events, efficiency factors and reliability rates.

AFMAN65-506 6 SEPTEMBER 2019 15

Chapter 3

ALTERNATIVES

3.1. Overview.

3.1.1. Alternatives are reasonable courses of action to attain the stated objective.

3.1.2. In developing the analysis, the analyst will consider (identify and discuss) all reasonable

alternatives. All alternatives that are reasonable and feasible shall be fully analyzed. (T-2).

3.2. Baseline/Status Quo

3.2.1. Analyses almost always include a baseline alternative by which all other alternatives

are compared. Typically, the baseline is the Status Quo alternative. The baseline describes

how the program or process under study currently performs with respect to the objective.

3.2.2. If the analysis is on a new initiative, there may not be a baseline to measure against. In

some cases, the Status Quo may be infeasible or unreasonable. (See paragraph 3.3.4) In those

cases, another alternative, or modified status quo, is commonly set as the baseline in order to

have a comparison point for the analysis.

3.3. Reasonableness and Feasibility

3.3.1. The analyst shall address all reasonable alternatives. (T-2).

3.3.2. Each reasonable alternative shall be evaluated for feasibility. (T-2). Alternatives that

are reasonable and feasible shall be fully analyzed. (T-2).

3.3.3. If any reasonable alternative is deemed infeasible, the reasons shall be fully explained

in this section. (T-2). After documenting reasonable alternatives that are infeasible, the

infeasible alternatives do not need to be considered any further in the analysis. Documenting

reasonable alternatives that are infeasible alternatives informs readers and reviewers that all

reasonable alternatives were considered, and provides the rationale for deeming some

alternatives as infeasible. If there are alternatives that are feasible, but excluded for some other

reason, the rationale for exclusion must be explained in this section (e.g., see paragraph 3.4).

(T-2).

3.3.4. Care must be taken to ensure a difference in capability or other benefits is not construed

to mean infeasibility. Infeasibility means an alternative does not satisfy the required minimum

level of acceptable performance (see paragraph 5.4.7.1.2). Mere differences in capabilities

should be accounted for in the Benefits section. In the analysis, the decision maker can weigh

the difference in benefits against any cost differences. One common pitfall is to define the

objective too narrowly (see Chapter 2) such that the Status Quo cannot meet the requirement.

For example, the objective may be defined too narrowly such that a new business system is the

only alternative to meet that objective. Instead, a properly defined objective would allow for

the status quo, or a modification to the status quo to be feasible, but not provide as many

benefits.

16 AFMAN65-506 6 SEPTEMBER 2019

Figure 3.1. Reasonable and Feasible Examples for Alternatives.

AFMAN65-506 6 SEPTEMBER 2019 17

Figure 3.2. Reasonable and Feasible Notional Illustration.

3.4. Completeness

3.4.1. Be thorough when developing alternatives. Make sure all reasonable alternatives are

included. It is essential to leverage input from key personnel identified in section 1.3.2.1 to

both identify and determine the reasonableness/feasibility of alternatives.

3.4.2. Use inputs from experts, critics, and supporters of various viewpoints. Be willing to

use external parties such as: the commercial sector, Congressional reports, or academia.

3.4.3. Consider combinations of systems or approaches and solutions that involve outside

agencies or organizations (e.g., community partnerships).

3.4.4. While considering a full range of alternatives, if the number of alternatives is too great

to be manageable, screen out the most unlikely in order to keep the number of alternatives to

a manageable level. Provide details regarding the down select methodology used.

3.4.5. Analysis is iterative, and as such, the set of alternatives may not be static. As the

analysis progresses and new information becomes available, be open to expanding or reducing

the set of alternatives.

3.5. Describing Alternatives

3.5.1. Fully explain what each alternative involves, especially those aspects that are likely to

drive costs and benefits.

3.5.1.1. Explain how each process or procedure would work, what personnel, equipment,

or facilities would be required, and what other changes from the Status Quo or baseline

would be involved.

18 AFMAN65-506 6 SEPTEMBER 2019

3.5.1.2. Each alternative should be fully described, to enable someone completely

unfamiliar with the program to fully understand what would be involved in its

implementation.

3.5.1.3. At a minimum, the description shall include attributes that will result in costs to

the government. (T-2).

3.5.2. When describing the alternatives, the analyst should not include conclusions about the

relative merit of the alternatives.

AFMAN65-506 6 SEPTEMBER 2019 19

Chapter 4

COST ANALYSIS

4.1. Overview - Cost Analysis

4.1.1. Cost estimates/analyses support many different types of decisions and activities. The

cost estimates in a comparative analysis are for the purpose of comparing the incremental costs

that would be incurred by the decision over the period of the analysis.

4.1.2. The cost analysis includes those items traditionally understood to be monetary costs,

revenues, and savings. As such, the cost analysis is really an analysis of monetary impacts

both positive and negative.

4.1.3. Cost methodologies must be thoroughly documented so the analysis can be replicated

if necessary. (T-2).

4.2. Purpose of Cost Analysis

4.2.1. The purpose of a cost analysis in a comparative analysis is different from its purpose in

many other uses. Key areas where the cost analysis of comparative analyses may differ from

other analyses include: the use of only incremental costs, the treatment of sunk costs, possibly

varying periods of analysis and treatment of revenue and savings (sometimes referred to as

monetary benefits). Cost analyses developed for another purpose need to be adjusted to

account for the difference in purpose in a comparative analysis. Some prominent purposes for

cost analyses and how they impact the cost calculations and presentation can be found in Table

4.1

Table 4.1. Cost and Purpose.

20 AFMAN65-506 6 SEPTEMBER 2019

4.2.2. For comparative analyses, the cost analyses for the alternatives will be compared using

dollars that have been discounted to present value. (T-2). This allows for an appropriate

comparison of investment costs, typically occurring early in the period of analysis, with

recurring costs which typically occur later in the period of analysis. The year selected for

present value calculations is the first year investment funds will be required or the first year of

the analysis. This is commonly referred to as the base year of the program or project.

4.2.3. The estimate includes all costs incremental to the implementation of each

alternative.

4.2.3.1. Include incremental costs for those portions of the life-cycle covered by the period

of analysis. Include the cost of design, development, procurement, operation, support, and

disposal or residual value, as appropriate.

4.2.3.2. A comparative analysis normally includes all costs to the US government within

the scope of the analysis, not simply those incurred by the function under study. The scope

of the analysis should not be artificially drawn to exclude costs outside the Air Force.

While thorough cost analyses is the goal, it may not be possible to understand and capture

all of the effects a decision could have on other government agencies. The analyst will

have to use judgement to determine the extent to which costs outside the Air Force are

captured.

4.2.4. The cost analyses in a comparative analysis will only include costs for which funds have

not yet been expended or irrevocably committed. (T-2). In other words, sunk costs are not

included in a comparative analysis.

4.3. Basic Steps for the Cost Analysis

4.3.1. These steps are intended as a basic guide to developing cost analyses that fit within

economic analyses and the framework of this manual. These steps are not intended to be a

comprehensive guide to cost analysis. There are additional materials that provide more in-

depth guidance. Examples of additional materials include on-line Defense Acquisition

University courses (e.g., BCF130 Fundamentals of Cost Analysis), the Government

Accountability Office Cost Estimating and Assessment Guide, and the Government

Accountability Office Schedule Assessments Guide.

4.3.2. Review Foundational Elements

4.3.2.1. The cost analysis should be based on the objective statement and scope.

4.3.2.2. Reviewing the foundational elements will focus the analysis on the decision to be

made.

4.3.3. Build Cost Element Structure

4.3.3.1. The cost element structure is the framework for building the estimate.

4.3.3.1.1. The cost element structure is a hierarchical breakdown of the program or

project being estimated. Costs are estimated at the lowest level of the cost element

structure. The cost element structure (and the estimating technique used) will be

dependent on the data that is available. At times, the level of detail in the structure will

be limited because the available data better support a higher level estimating approach.

AFMAN65-506 6 SEPTEMBER 2019 21

4.3.3.1.2. It is important to understand the cost behavior of the cost elements when

building the cost element structure. For example, recurring and non-recurring should

not be included in the same cost element because the costs behave differently.

4.3.3.2. For a comparative analysis, each alternative may require different cost element

structures.

4.3.3.3. In many comparative analyses, a cost estimate for a particular alternative may

already exist. The analyst has to review the cost element structures across alternatives to

ensure the content included for each alternative is comparable.

Figure 4.1. Example - Build New Facility Cost Element Structure.

4.3.3.4. The latest version of the Military Standard 881 (MIL-STD-881) contains weapon

system related examples of work breakdown structures. Similarly, the Cost Analysis and

Program Evaluation Operating and Support Cost-Estimating Guide contains a cost element

structure for operations and support of weapon systems. While MIL-STD 881 and the Cost

Analysis and Program Evaluation Guide provide excellent examples, they may not fit the

circumstances of the alternative being estimated. As a result, the analyst may have to build

a new cost element structure to fit the level of detail and unique circumstances of their

estimate. Figure 4.1 contains cost elements that may be used in a facility construction cost

element structure.

4.3.4. Select Estimating Technique – will likely vary across cost elements

22 AFMAN65-506 6 SEPTEMBER 2019

4.3.4.1. The estimating technique will depend on the data available.

4.3.4.2. The estimating technique can be different for each alternative and even each cost

element.

4.3.4.3. It is critical that the analyst ensure that the alternatives remain comparable even

when a unique estimating technique is selected for each alternative.

4.3.4.3.1. For example, an analogy-based estimate for one alternative may include a

computer hardware refresh because it was included in the analogous program.

Conversely, if another alternative was using an engineering estimate, the computer

hardware refresh may need to be estimated separately in a different cost element.

4.3.4.3.2. As another example, extrapolation of actuals is a common approach for the

Status Quo alternatives; while actuals are not available for new alternatives, the analyst

may employ a parametric model to estimate the costs of an alternative. Caution should

be taken to ensure that what is included in the actuals is comparable to the content of

the parametric model to avoid biasing the analysis in favor of one alternative due to

missing or overstated costs.

4.3.4.4. There are a variety of techniques that can be used to build the estimate. A list and

brief description of some common techniques are provided below. Training courses are

available with additional information on the estimating techniques. An example on-line

training course from Defense Acquisition University is BCF130 (Fundamentals of Cost

Analysis). The Government Accountability Office Cost Estimating and Assessment Guide

is also a valuable source for information on cost estimating techniques.

4.3.4.4.1. Analogy – Under this technique, the analyst estimates cost based on

historical data from a similar program. When using an analogy, the analyst should

include a technical comparison between the existing and proposed systems in order to

account for the difference between the analogous program and the program being

estimated.

4.3.4.4.2. Engineering (also called grass roots and bottom up) – Under this technique,

the analyst calculates labor and materials from the most detailed level of the program

and aggregates those costs to get the total program cost. While it is very detailed, this

method is generally more time intensive and includes a risk of missing some aspect of

the program when building the estimate.

4.3.4.4.3. Parametric – Under this technique, the analyst estimates cost based on

historical data from multiple past programs. Parametric estimates use cost estimating

relationships that correlate programmatic characteristics (e.g., size, lines of code,

weight) with cost. These cost estimating relationships can be developed either singly,

or as part of a software package. The analyst estimates cost using the programmatic

characteristics of the proposed program.

4.3.4.4.4. Extrapolation of Actuals – Under this technique, the analyst estimates future

costs based on historical data from the program being estimated. This technique can

only be used for programs that are on-going.

AFMAN65-506 6 SEPTEMBER 2019 23

4.3.4.4.5. Catalog Prices/Vendor Quote – This technique is simply obtaining quotes

from a vendor or catalog. This is commonly used to obtain a lease price in a

lease/purchase analysis. It is important that the analyst understand exactly what is

included in the vendor quote so that a proper comparison can be made across

alternatives. This technique works best with commercially available products where

multiple quotes can be obtained.

4.3.4.4.6. Factors – This technique is essentially a subset of the parametric technique

or the analogy technique. Essentially, a single factor can result from a cost estimating

relationship (e.g., Supervision Inspection and Overhead Cost as a percentage of

Construction Cost).

4.3.5. Collect Cost Data and Apply Estimating Techniques

4.3.5.1. Data collection should occur as early as possible because it may be difficult to

find good data. Similarly, data collection and the selection of estimating techniques is

normally be done simultaneously because the estimating technique depends on available

data.

4.3.5.2. As data is collected, use the selected estimating techniques to begin populating the

cost estimate.

4.3.5.3. Document completely the source/origin of all data collected. (T-2).

4.3.6. Time Phasing, Escalation, Inflation, and Discounting

4.3.6.1. Time phasing the estimate is ensuring that costs are placed in the year the cost will

be incurred. Proper time phasing requires that the costs be escalated to the appropriate year

using a price escalation index so that the estimate is in then-year dollars. The price

escalation index used must be documented. (T-2).

4.3.6.2. After the estimate is time phased and calculated in then-year dollars, the estimate

must be converted to present value dollars. (T-2). This can be done one of two ways. The

first way is to apply the nominal discount rate to the then-year dollars. The second way is

to first convert the then-year dollars to constant year dollars using an inflation index and

then use the real discount rate to convert the estimate to present value. Whichever method

is selected, the calculation must be documented. (T-2).

4.3.6.3. For detailed instructions on escalation and inflation, consult AFMAN 65-502,

Inflation.

4.4. Components of a Cost Analysis

4.4.1. It is important to understand what should be included in the cost analysis section of an

economic analysis. The cost analysis should only include the costs, savings and revenue

required as a result of selecting the alternative.

4.4.2. Sunk cost

4.4.2.1. Any cost incurred in the past, to include future costs that have been irrevocably

committed. An example of a future cost that has been irrevocably committed would be

work on a contract that has been performed, but not yet paid.

24 AFMAN65-506 6 SEPTEMBER 2019

4.4.2.2. Such costs have no bearing on any decision to be made, and so should not be

included in a comparative analysis. Life cycle cost estimates will need to be adjusted to

remove sunk costs when being used for comparative analyses. (T-2).

4.4.3. Wash costs (also called Common costs)

4.4.3.1. Any cost that will be incurred identically across alternatives. Wash costs are

optional to include, but should be treated the same across alternatives (i.e., either included

or excluded) and documented completely.

4.4.3.2. Wash costs may be excluded for simplicity. This is sometimes called a “delta

estimate.”

4.4.3.3. Wash costs may be included so the decision-maker can get a full appreciation of

the magnitude of the cost of an alternative.

4.4.3.4. It may be necessary to include wash costs when using some estimating techniques

and data sources.

4.4.4. Average cost

4.4.4.1. The average cost is the total cost divided by the number of units that make up the

total.

4.4.4.2. When using these types of averages, make sure they are appropriate for the

analysis and will not bias the results. For example, the cost of a Captain in AFI 65-503 is

an average expected cost of all the Captains in the Air Force. If the study only involves

one location, it may be better to use the local Basic Allowance for Housing cost instead of

the average Basic Allowance for Housing listed in AFI 65-503.

4.4.5. Non-recurring cost

4.4.5.1. One-time costs or costs that are not expected to continue beyond the investment

phase. These costs usually take the form of initial capital or other unique expenditures.

4.4.5.2. Types of non-recurring costs include:

4.4.5.2.1. Research and Development Costs

4.4.5.2.2. Investment costs. These are costs associated with the acquisition of

equipment, real property, nonrecurring services, nonrecurring operations and start- up

costs, and other one-time outlays.

4.4.5.2.3. Costs of acquisition, rehabilitation, or modification of assets such as: land,

buildings, machinery, equipment, furniture and one-time computer software costs.

4.4.5.2.4. Temporary facilities/swing space.

4.4.5.2.5. Costs of plant rearrangement and tooling associated with the project.

4.4.5.2.6. Nonrecurring services received from others, both internal and external to the

Air Force.

4.4.5.2.7. Cost to cancel or terminate any existing arrangement that would result if a

different alternative were implemented.

4.4.6. Recurring cost

AFMAN65-506 6 SEPTEMBER 2019 25

4.4.6.1. Recurring costs are cost that are incurred repeatedly.

4.4.6.2. Types of recurring costs include:

4.4.6.2.1. Annual recurring cost: A cost incurred every year (e.g., membership dues).

Recurring costs many times occur at time intervals of less than one year (e.g., utilities).

Commonly these costs are aggregated and treated as annual recurring costs.

4.4.6.2.2. Periodic recurring cost: A cost incurred in a period greater than one year

long, like Programmed Depot Maintenance, or replacement of heating, ventilation and

air conditioning equipment that may be replaced every 20 years.

4.4.7. Fuel/Energy Costs: The fully burdened cost of delivered energy shall be used in

analyses conducted for all Department of Defense tactical systems with end items that create

a demand for energy. (T-0). Be sure to only include those costs that are incremental to a

decision.

4.4.8. Induced Costs: Induced costs are those costs that the execution of a given project or

program alternative impose on another Air Force or government program. For example, if a

proposal to move an activity into facilities currently occupied by a second activity causes

expenditures by the second activity for real property acquisition or improvement, then those

expenditures are induced costs that should be taken into account in the decision to move the

first activity.

4.4.9. Costs incurred in foreign currency: The cost analysis portion of comparative analyses

will be performed in United States dollars. (T-1). See attachment 14 for additional details.

4.4.10. Opportunity cost

4.4.10.1. Opportunity cost is the cost of a resource measured in terms of its value in the

best alternate use. One way opportunity costs are accounted for in comparative analyses

is through the discount rate. Some projects may experience additional opportunity costs

specific to that project.

4.4.10.2. For example, the value of an existing asset may be included when there is an

opportunity cost associated with the asset. As an example, assume a piece of equipment

valued at $1,000 is being used in the Status Quo process. In the process for Alternative 1

the equipment is not needed; however, the same equipment was programmed to be

purchased by another organization. This other organization will be able to forego the

purchase and use the existing equipment if Alternative 1 is selected. In this case, the

equipment could be counted as a negative cost in the cost analysis for Alternative 1 because

the other organization now does not need to purchase the equipment.

4.4.11. Depreciation expense.

4.4.11.1. Depreciation accounts for the gradual consumption of capital goods and

resources over time. A common use is to allow business to "recover" investment in capital

goods through tax benefits.

26 AFMAN65-506 6 SEPTEMBER 2019

4.4.11.2. Normally, depreciation will not be included as a cost in an Air Force economic

analysis since it would double-count expenses (i.e., the acquisition cost of assets are

entered when the asset is acquired). However, depreciation procedures can be used to

estimate terminal or residual values. Depreciation may be a consideration in commercial

lease versus buy alternatives if it provides extraordinary tax benefits to the lessor that are

a cost to the Treasury.

4.4.12. Savings

4.4.12.1. Savings are not typically identified as a separate cost element. Instead, they are

reflected as the reduced cost of an alternative.

4.4.12.1.1. For example, if four people are required for a task in Alternative 2 instead

of the five required for status quo, the analyst would include the cost of four people for

Alternative 2. This will show up as a lower cost (savings) for that alternative.

4.4.12.1.2. Continuing the example, if hours are saved from multiple positions, but a

position is not deleted (or re-purposed), then there are no savings and the cost should

be recorded as five people for Alternative 2. In this case, the reduced hours are

accounted for in the benefit analysis. This benefit is commonly referred to as cost

avoidance.

4.4.12.2. Generally speaking, an analyst should only show the cost of the alternatives and

not make a statement about savings.

4.4.12.2.1. Savings, when calculated, can only be calculated from a currently approved

(funded) program as the baseline. Although approved funding is limited to the Future

Years Defense Program, reductions reasonably likely to occur beyond the Future Years

Defense Program period are also savings because they are reducing cost for a program

or function that is assumed to be approved.

4.4.12.2.2. The status quo should represent the currently approved (funded) program

(plus extension beyond the FYDP). Sometimes, in addition to the status quo, an

analysis will contain a Status Quo Prime. One reason to include a Status Quo Prime is

to reflect a shortfall in funding. If this is done, the analyst should not leave the

impression that the resulting difference between Status Quo Prime and the alternatives

reflects savings. If an alternative were selected and executed, the amount between

Status Quo Prime and Status Quo would be cost avoidance and the difference between

Status Quo and the alternative would be savings.

4.4.12.2.3. If savings are calculated, they should be categorized into three time periods:

budget year, FYDP, and beyond FYDP. This structuring of savings allows for

recognition of the level of certainty of the funding.

4.4.13. Revenue

4.4.13.1. In the context of a Comparative Analysis, revenues are funds remitted to the US

government as a result of a service performed or good provided in one of the alternatives.

4.4.13.2. Revenue should be included as a “negative cost” in the cost analysis.

AFMAN65-506 6 SEPTEMBER 2019 27

4.5. Other Considerations in the Cost Analysis

4.5.1. Base year: Usually defined as the FY in which a program was/will be initially funded.

This will normally be the Start Year of the analysis. When reporting costs in constant dollars,

they should be reported in the dollars of the base year of the analysis. Do not confuse this Base

Year of Analysis with the base year of an Acquisition program, which is often set for the

Selective Acquisition Report at Milestone B.

4.5.2. Economic life: The economic life of a project or asset is the time during which benefits

from the project or asset may reasonably be expected to accrue to the Air Force. The economic

life of a project or asset is set by the shortest of its physical life, technological life, or mission

life. Economic lives of assets can often be found in functional area directives for planning,

programming, and budgeting for resources. Appendix 3 of Office of Management and Budget

(OMB) Circular A-76 also has a Useful Life and Disposal Value table.

4.5.2.1. Physical life: The number of years a facility or piece of equipment can physically

be used before it wears out.

4.5.2.2. Mission life: The estimated number of years that the need for the asset is

anticipated, before the mission either changes or is no longer required.

4.5.2.3. Technological life: The period before improved technology makes an asset

obsolete.

4.5.3. Period of analysis: Economic life plus project lead-time determine the period of analysis

for a comparative analysis. If the alternatives do not have equal lives, there are multiple

methods of selecting a period of analysis:

4.5.3.1. Terminal Value Method

4.5.3.1.1. The Terminal Value Method uses the terminal value or “salvage” value to

account for unequal economic lives of assets.

4.5.3.1.2. This method sets the period of the analysis to the duration of the alternative

with the shortest economic life.

4.5.3.1.2.1. The terminal and residual values of assets are included as inflows, or

negative cost amounts, in the final period cash flows for each alternative. This

adjusts the present value of the net cash flow for the disparity between the lives of

the alternatives. See section 4.5.8 for more information about the remaining value

of an asset at the end of its useful life.

4.5.3.1.2.2. To calculate the present value of each alternative under this approach,

the analyst needs to know the terminal or "salvage" values of the assets for the

alternative with the shortest life. For example, an engine replacement program may

plan to sell the status quo engines for scrap when they reach the end of their

economic lives.

4.5.3.1.2.3. The analyst also needs to know the residual values of the asset(s) for

the alternative(s) with longer economic life (lives). For example, an engine

replacement program would include the residual value of the replacement engines

when comparing those engines against the status quo.

28 AFMAN65-506 6 SEPTEMBER 2019

4.5.3.2. Common Denominator Method

4.5.3.2.1. This method assumes the assets associated with each alternative are replaced

in the last year of their lives with identical equipment, and replacement continues until

all alternatives have assets reaching the last year of their lives during the same year.

Choose that year as the last year of the analysis.

4.5.3.2.2. It is important to keep in mind the major assumption being made: that

“chaining” the assets in this manner represents a realistic investment strategy. This

approach is not recommended for use with an asset having a short technological life

(e.g., computer hardware and software).

4.5.3.3. Uniform Annual Cost (also called Equivalent Annual Cost)

4.5.3.3.1. The Uniform Annual Cost method reflects a present value estimate of the

average annual cost for each alternative. In this method, the present value of the costs

are divided by the years in the economic life.

4.5.3.3.2. The period of analysis under Uniform Annual Cost is equal to the economic

life of the alternative with the longest economic life.

4.5.3.3.3. This method can be used in place of the Terminal Value Method.

4.5.4. Incremental Cost

4.5.4.1. The intent of this section is to better describe incremental costs, or the difference

in costs that will be expended between the base case (usually the Status Quo alternative)

and the other alternatives.

4.5.4.2. For each alternative, the estimate will include the incremental change in cost that

will have to be expended in order to execute the alternative being evaluated. The cost that

is included should be the incremental cost to the decision. In other words, only include

costs that will change as a result of the decision. (T-2).

4.5.4.3. Sunk costs and wash costs fit in the category of costs that are not incremental to

the decision.

4.5.4.4. Another category of costs that are commonly not incremental to the decision are

overhead costs. Depending on the magnitude change resulting from the decision, there

may be no change in overhead costs at all. However, if the change is large enough, then

there may be changes in infrastructure, base operating support, and other overhead that

need to be included in the analysis.

AFMAN65-506 6 SEPTEMBER 2019 29

Figure 4.2. Incremental Cost Example.

4.5.5. Confidence Levels

4.5.5.1. If cost risk was assessed in the estimate for one alternative, cost risk should also

be included for other alternatives, where appropriate, and all alternatives should be

evaluated at similar confidence levels.

30 AFMAN65-506 6 SEPTEMBER 2019

4.5.5.2. Common methods for assessing cost risk include:

4.5.5.2.1. Enhanced Scenario-based method: the analyst quantifies what can go right

and what can go wrong with a program/project from a high-level perspective (as

opposed to the more detailed level perspective common to simulation). The result

provides an estimated cumulative probability for the true program cost. More

information can be obtained from the Joint Agency Cost, Schedule, Risk and

Uncertainty Handbook.

4.5.5.2.2. Simulation is also used to evaluate risk in cost estimates. There are a variety

of software packages that can be used to assist with using simulation to evaluate cost

risk. Two common methods of applying simulation to cost risk are the Cost Informed

by Schedule Method and the Fully Integrated Cost/Schedule Method. More

information can be found on these methods in the Joint Agency Cost, Schedule, Risk

and Uncertainty Handbook.

4.5.6. Monetary Benefits

4.5.6.1. Monetary Benefits include revenues and savings as defined in the glossary to this

manual. Monetary benefits are included in the cost analysis. This does not include benefits

that could be dollarized, but would not result in revenue or savings.

4.5.6.2. Benefits that could be dollarized, but would not result in revenue or savings should

be recorded in the benefit analysis as per paragraph 5.3.2.2

4.5.7. Discounting and Present Value.

4.5.7.1. Discounting is a method of calculating the value today (present value) of a future

cost or stream of future costs.

4.5.7.2. The Air Force evaluates decisions using present value dollars (discounted dollars).

4.5.7.3. Discount Rates – Discount rates are the rates used to calculate present value in a

comparative analysis. In order to simplify the present value calculation, the rates are

sometimes converted to discount factors. The simplification is that the present value can

then be easily calculated by multiplying the discount factors with the stream of dollar

values.

4.5.7.4. Where to find discount rates. Comparative Analyses are performed using discount

rates that represent the government's cost of borrowing, as provided annually in the

President's Budget and Appendix C to OMB Circular A-94.

4.5.7.4.1. Rates used for analysis are interest rates on Treasury notes and bonds with

maturities of 3, 5, 7, 10, 20 and 30 years. The rate to be used should correspond to the

period of analysis for the project. Projects with terms different from those listed should

use a linear interpolation. For example, a four-year project can be evaluated with a rate

equal to the average of the three-year and five-year rates. Projects with durations longer

than 30 years may use the 30-year interest rate.

4.5.7.4.2. Interest rates on Treasury securities are cited on both a real and nominal

basis. For an estimate in constant year dollars, use a real rate. For an estimate in then-

year dollars, use the nominal rate.

AFMAN65-506 6 SEPTEMBER 2019 31

4.5.7.5. Discount Factors. Discount factors for use in comparative analyses are derived

from the discount rate used, using the formulas found in Attachment 7. There are two

kinds of discount factors that are common in Air Force comparative analyses.

4.5.7.5.1. Midyear Factors: When costs and benefits occur in a steady stream,

applying midyear discount factors is more appropriate. Midyear factors approximate

actual disbursement patterns--i.e., funds are typically disbursed throughout a given FY

rather than at its beginning or end. When the precise timing of outlays is critical to

program evaluation, monthly (or quarterly) rather than annual flows of funds may be

considered for early program years. Midyear factors should be used in Air Force

comparative analyses unless there is good reason to use other factors, in which case the

reason(s) should be explained in the analysis.

4.5.7.5.2. End-of-Year Factors: These factors implicitly assume that costs and benefits

occur as lump sums at year-end.

4.5.8. Remaining value at the end of an asset’s useful life (i.e., physical life, mission life, or

technological life).

4.5.8.1. The remaining values of assets are included as inflows, or negative dollar

amounts, in the final period of the cost analysis for each alternative. This step adjusts the

present value of the net cash flow for the differences between the lives of the alternatives.

A straight-line depreciation method is acceptable for estimating terminal, residual or

salvage value. This is done only to estimate the remaining value of existing assets, and for

no other purpose.

4.5.8.2. There are three terms used to describe the value of an existing asset that remains

at the end of its useful life: salvage value, residual value and terminal value.

4.5.8.2.1. Salvage value is the value of an asset at the end of its physical life (scrap

value). Salvage value is often offset by the cost to dispose of the asset.

4.5.8.2.2. Residual value is the value of an asset at any point in time before the end of

its economic life.

4.5.8.2.3. Terminal value is the value of an asset remaining at the end of its economic

life. If its economic life is deemed to be the same as its physical life, then terminal

value will equal salvage value. If, however, an asset’s physical life is longer than its

mission or technological life, there may be some value left in the asset beyond salvage

value.

32 AFMAN65-506 6 SEPTEMBER 2019

Chapter 5

BENEFIT ANALYSIS

5.1. Overview – Benefit Analysis

5.1.1. An essential and critical element of an economic analysis is the consideration of

benefits. Without a consideration of benefits, the analysis is a cost comparison, not a

comparative analysis.

5.1.2. For the purpose of a comparative analysis, the benefit analysis section is generally

limited to non-monetary impacts. That is, the benefit analysis includes those aspects of the

alternatives that are not represented as a cash flow within the analysis.

5.1.3. There can be both qualitative and quantitative benefits and both types are important to

consider. Quantifying an otherwise qualitative benefit is useful for analysis, but does not

eliminate subjectivity. Weighting benefits is an important way to assess their relative value to

the decision.

5.1.4. All benefit elements that are analyzed should be fully explained so that someone

unfamiliar with them can fully understand the benefit and its measurement.

5.2. Role of Benefits

5.2.1. The purpose of benefit analysis is to identify, measure, and evaluate the benefits

provided by each of the proposed alternatives.

5.2.2. Since benefits reflect the performance of the organizational mission or service desired,

they are the primary reason for a project. While costs can be thought of as “inputs” to a project

or program, benefits can be thought of as the “output” or what the government receives for the

resources input. Considering benefits is essential to a comparative analysis. Benefits or results

are the reasons for the investment, but there can also be benefits that are ancillary to the

objective. These ancillary benefits can be recognized in the analysis, but should be secondary

to those benefits that are directly related to the project objective.

5.2.3. The selection of any particular alternative should be based on a full economic

evaluation, in which costs and benefits are appropriately weighed and compared. An

alternative with the lowest cost may not be the preferred alternative after costs and benefits are

considered together.

5.3. Types of Benefits

5.3.1. The benefits section focuses on non-monetary impacts. If implementing an alternative

would result in a reduced operating cost, then that reduced cost should be reflected in the cost

analysis, not the benefit analysis. Similarly, if one of the alternatives results in revenue to the

Air Force, then that should be reflected in the cost analysis, not the benefit analysis.

5.3.2. There are two types of benefits – quantitative and qualitative.

5.3.2.1. Quantitative benefits

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5.3.2.1.1. Quantitative benefits are any benefits that can be measured quantifiably such

as a reduction in military man-hours. Characteristics like product or service

performance (e.g., miles/hour, orders/hour) or work environment (e.g., average noise

level, mishaps/week) often can be quantified. In such cases, these benefits should be

quantified to the greatest extent possible, and direct comparisons for each of these

measures across alternatives should be made.

5.3.2.1.2. Express these quantitative benefits in the units they naturally occur (e.g.,

military overtime hours, miles/hour) instead of converting the benefit into dollars.

Converting the benefit into dollars may mislead the decision maker into thinking that

such quantifications represent actual dollar cash flows.

5.3.2.1.3. Quantitative benefits in their unit, or raw, form should not be aggregated

across benefits. Since they are in different units, they should be presented as individual

benefits instead of an aggregated measure. If the quantitative benefits are converted to

percentages (e.g., 500 parking spaces out of 1,000 desired equals 50% of the desired

spaces) and weighted (see section 5.4.6), then they may be aggregated into a single

benefit score.

5.3.2.1.4. Cost Avoidance Benefits.

5.3.2.1.4.1. Cost avoidances are areas where someone may think the budget will

be affected when, in fact, it will not be. As a result, cost avoidance is accounted

for as a benefit.

5.3.2.1.4.2. There are two types of cost avoidance.

5.3.2.1.4.2.1. The first type of cost avoidance is productivity gains that do not

result in budget savings, such as man-hour savings that do not result in a deleted

position. Productivity efficiencies should be accounted for in their naturally

occurring metric (e.g., hours) instead of being converted to dollars.

5.3.2.1.4.2.2. The second type is a reduction in some future resource

requirement which: (a) has not been included in an approved (funded) Air

Force program or function within the Future Years Defense Program, and (b)

would not be reasonably assumed to be included in an Air Force approved

program beyond the Future Years Defense Program. This type of cost

avoidance benefit is the only benefit that should be measured in terms of dollars.

While the Air Force would not experience a reduction in funding from this

benefit, it represents the reduction in a potential liability. For example, if the

status quo anticipates the purchase of certain hardware which has not been

included in an approved and funded Air Force program, but implementation of

the preferred alternative does not require its purchase, there is a cost avoidance.

5.3.2.1.4.3. Cost avoidances can accrue at any time during the life cycle.

5.3.2.2. Qualitative benefits

5.3.2.2.1. Qualitative benefits are not naturally measured in quantities (e.g., mission

effectiveness, security, organizational morale). These benefits are usually subjective

in nature and generally do not lend themselves to quantitative analysis.

34 AFMAN65-506 6 SEPTEMBER 2019

5.3.2.2.2. There are techniques available which attempt to determine the comparative

desirability of each alternative with respect to each benefit and also attempt to measure

the magnitude of the differences in desirability between alternatives. While these

techniques do not measure qualitative benefits in an objectively quantitative way, this

approach allows us to establish a numeric basis of comparison. See Section 5.4.7 and

Figures 5.2, 5.3 and 5.4.

5.4. Basic Steps for Benefit Analysis

5.4.1. The steps for doing a benefit analysis are iterative in that the information gained from a

subsequent step may require the analyst to go back to a prior step.

5.4.2. Review Foundational Elements

5.4.2.1. The benefit analysis should be based on the objective statement and scope.

Reviewing the foundational elements will help keep the analysis focused on the decision

to be made.

5.4.2.2. The benefits developed should be benefits to the government within the scope of

the analysis, not simply those incurred by the function under study.

5.4.3. Identify Benefit Elements

5.4.3.1. The benefit element structure is the framework for building the benefit analysis.

5.4.3.2. The benefit element structure varies depending on the analysis. Structures can

vary from a list of high level benefits to a hierarchical breakdown of the benefits for the

project being analyzed. The benefits included in the structure must be mutually exclusive.

5.4.3.3. The analyst should receive input on identifying benefits from multiple

stakeholders representing multiple viewpoints. As an example, consider a proposal to

provide temporary lodging. From the viewpoint of the facility manager, benefits include:

capacity, housekeeping productivity and security. For the customer, benefits include:

location, comfort, security, and amenities. More broadly, the government may also have a

concern about the environmental impact. This highlights the need to include multiple

stakeholders when measuring benefits.

5.4.3.4. In developing the list of benefits, care must be taken to avoid double-counting

impacts which are accounted for in the cost analysis, and, if included, the risk analyses.

For example, reduced manpower positions are captured in the cost analysis; the hours

associated with those positions should not be captured as a benefit. Risk sometimes can

be assessed in the benefits section; however, if a separate risk analysis is included, ensure

that the benefit analysis does not assess the same risks.

5.4.3.4.1. While an analyst should be careful not to double count, there may be some

elements in the analysis that impact both costs and benefits.

5.4.3.4.2. As an example, while the cost associated with reduced fuel consumption is

accounted for in the cost analysis, there are aspects of it that could be considered a

benefit such as reduced pollution.

5.4.4. Select Benefit Measurement Technique

AFMAN65-506 6 SEPTEMBER 2019 35

5.4.4.1. The analysis technique will depend on the available data, time available and the

ability of the technique to provide the decision-maker with an accurate view of the benefits

received by alternative.

5.4.4.2. The following are different types of measurement.

5.4.4.2.1. Quantitative Measures

5.4.4.2.1.1. Quantitative benefits are measured in a variety of units. Measures

could include physical counts of tangible items, but it can also include other

measures, such as the square feet of a building, the age of a building, the speed of

an aircraft, or the weight of an aircraft. Many times the interpretation of

quantitative data is intuitive and can be easily used in calculations, but that is not

always the case.

5.4.4.2.1.2. Some benefit data requires additional consideration in how it is

interpreted and used in calculations. As an example, with reduced fuel

consumption there are aspects of it that could be considered a benefit both in terms

of reduced pollution and in terms of the logistical footprint of a deployed unit.

Additionally, when measuring fuel consumption of an aircraft, the analyst should

understand that the consumption is not linear over a flight. Instead, more fuel is

consumed in takeoff (per unit of time) than while cruising. As a result, saving one

hour in a ten hour flight will not result in consuming 10% less fuel.

5.4.4.2.1.3. For some data the distance between values is meaningful, but the ratio

between two values is not. As an example, engine temperature (as measured in

Fahrenheit) is an interval measure. The interval between 100 degrees and 101

degrees is meaningful, but 200 degrees is not twice as hot as 100 degrees because

0 degrees Fahrenheit does not represent the absence of heat.

5.4.4.2.1.4. Another simple but important concern is understanding the unit of

measure used (e.g., Fahrenheit versus Kelvin, miles versus kilometers, tons versus

long tons).

5.4.4.2.1.5. How data has been calculated/normalized prior to receiving it is

important to understand as well. If an analyst was provided the average deployment

days for different types of units, it would be good to know how the average

deployed days was calculated. Deployed days across all people divided by total

days available for all people will yield a different answer than the average length

of deployment (in days) for those who deployed.

5.4.4.2.2. Qualitative Measures

5.4.4.2.2.1. Ordinal measures

5.4.4.2.2.1.1. Ordinal measures of benefits can be arranged in an order (e.g.,

ranking of outstanding/good/satisfactory/inadequate, high to low, 1 to 5 star

hotels).

5.4.4.2.2.1.2. These subjective values may not be on a linear scale and may be

numeric or descriptive.

36 AFMAN65-506 6 SEPTEMBER 2019

5.4.4.2.2.1.3. Even though the measurement may be numeric, it is not

appropriate to do calculations with the raw measurement.

5.4.4.2.2.2. Narrative descriptions

5.4.4.2.2.2.1. With narrative benefits, the merits of each alternative are

qualitatively described for each benefit element.

5.4.4.2.2.2.2. Even with narrative benefits, the analysis can provide a weight

for each benefit to show the level of importance attributed to each benefit

element in the assessment.

5.4.4.3. The level of measurement at which benefits data will be collected is important

because it defines the subsequent analysis that can be done with the data. For example,

with narrative descriptions applying a weight to each benefit would be the only possible

computation that could be applied.

5.4.4.4. It is important to note that assigning numeric values to an otherwise qualitative

benefit (e.g., morale) induces a measure of an individual or group’s opinion, but it does not

eliminate subjectivity. (See paragraph 5.4.7.2.5 for more information on assigning

numeric values to benefits that are otherwise qualitative). Further, when assigning numeric

values to these benefits, it is important to understand and document the substantive impact

behind the measurement (e.g., the new building has greater physical security because it is

50 meters behind a fence line and thus less vulnerable to terrorist attack).

5.4.5. Collect Benefit Measurement Data

5.4.5.1. Data collection applies to benefits as well as costs. For benefits, data can take a

wide variety of forms from quantitative performance measures (e.g., miles per hour) to

more subjective measures (e.g., morale). Data collection should occur as early as possible

because it may be difficult to find good data. Similarly, data collection and the selection

of benefit analysis techniques are normally done simultaneously because the technique

depends on available data.

5.4.5.2. As data is collected, use the selected estimating techniques to begin populating the

analysis.

5.4.5.3. Because of the comparative nature of economic analysis, quantification of benefits

or outputs can be very helpful. When results are quantitative, they can be measured which

may facilitate comparison of the alternatives.

AFMAN65-506 6 SEPTEMBER 2019 37

Figure 5.1. Quantifying Benefits.

5.4.6. Prioritize (Weight) Benefits

5.4.6.1. Understanding the priority and relative value of the benefits is a critical step. The

analyst must rely on feedback from the different stakeholder viewpoints discussed under

measuring benefits. While the prioritization of benefits is subject to the approval of the

decision authority, often the analyst is the person to propose a prioritization. The

development of priorities should have traceability back to the stakeholder viewpoints.

5.4.6.2. In this step, the analyst is trying to determine the intrinsic value of one benefit

relative to other benefits for the decision.

5.4.6.2.1. Realizing that some benefit elements will have greater influence than others

on a particular decision, the analyst or decision-maker should consider developing a

method of assessing the degree of influence through prioritization.

5.4.6.2.1.1. When benefits are only addressed narratively, they are not required to

be prioritized; by default this leaves prioritization up to the decision-maker by the

analysis being silent.

5.4.6.2.1.2. If a prioritization method is used for some benefits, it must be applied

to all benefits. (T-3). When an analysis uses both scored and narrative benefits,

prioritization is required for all benefits.

5.4.6.2.2. One common method of prioritizing is to give a numerical weight to the

benefits an ordinal ranking may also be used. If the benefits are organized in a

hierarchy, then each level of the hierarchy is weighted. Figure 5.1 provides an example

of benefit weighting. In this approach, the percentages allocated to the elements at the

second level in the hierarchy must sum to 100% and the percentages allocated to the

children benefits within each of the second level elements must sum to 100%.

38 AFMAN65-506 6 SEPTEMBER 2019

Figure 5.2. Benefit Weighting Example.

5.4.7. Evaluate Benefits by Alternative

5.4.7.1. Identifying Infeasible Alternatives

5.4.7.1.1. Commonly alternatives are vetted early in the comparative analysis process

to determine their feasibility. However, through additional research, an analyst may

discover that an otherwise feasible alternative may be identified as infeasible as a result

of the benefits analysis.

5.4.7.1.2. Satisficing

5.4.7.1.2.1. Satisficing is one method for identifying infeasible alternatives before

completing the entire benefits analysis.

5.4.7.1.2.2. Satisficing uses absolute minimum requirements or maximum limits

to eliminate alternatives. Once the benefits for the analysis have been identified,

determine if there are any alternatives that do not satisfy minimum performance

standards for each benefit. If an alternative fails to meet the minimum requirement

for even one benefit, it is an unacceptable or infeasible alternative. The infeasible

alternative can be eliminated from further consideration in the economic analysis.

The reason for eliminating the alternative should be stated in the narrative of the

analysis. Continue the benefits analysis considering only the remaining feasible

alternatives.

5.4.7.2. Benefit Evaluation and Comparison

AFMAN65-506 6 SEPTEMBER 2019 39

5.4.7.2.1. There are several ways to compare the benefits of the alternatives. The

complexity of the comparison can vary significantly. A few ways to compare benefits

are described below.

5.4.7.2.2. Dominance

5.4.7.2.2.1. If one alternative is rated the best under every attribute considered in

the analysis, that alternative dominates the others.

5.4.7.2.2.2. If the alternative that was dominant in the benefits analysis is also the

least costly, the interpretation of the results of the analysis may be straight forward

(unless a sensitivity analysis raises concerns).

5.4.7.2.3. Comparison of Raw Quantitative Measures

5.4.7.2.3.1. Raw quantitative measures may be used to compare alternatives (e.g.,

aircraft cargo hold size, aircraft range). The drawback to using raw quantitative

measures is that they do not provide the decision-maker with information on how

other stakeholders (e.g., users of the system) value the measure.

5.4.7.2.3.2. Using this technique depends on the decision-maker being able to

understand the value the measure provides to the Air Force. When the quantitative

measures are further evaluated (e.g., in a weighted point rating), the raw measures

should still be noted in the analysis so the decision-maker has an understanding of

the raw benefits the Air Force will receive.

5.4.7.2.4. Relative Ranking

5.4.7.2.4.1. Relative ranking requires the collection of ordinal data.

5.4.7.2.4.2. This system is based on two assumptions: (1) all alternatives are at

least adequate in all benefit areas, and (2) no two alternatives provide the exact

same level of value for a particular benefit element.

5.4.7.2.4.3. Each alternative is evaluated in direct competition with all other

alternatives, and is placed in a relative ranking position with all other alternatives

for a particular benefit element. No two alternatives can be ranked in the same

position; each must be ranked above or below all others.

5.4.7.2.4.4. In Relative Ranking without weighting, it is assumed that all benefit

elements have equal value. An example is provided in Figure 5.2 below. In the

example, a higher rank (higher number) represents a more desired alternative.

Figure 5.3. Relative Ranking without Weights.

40 AFMAN65-506 6 SEPTEMBER 2019

5.4.7.2.5. Relative Ranking with Weights

5.4.7.2.5.1. Assigning weights to each benefit element signifies that each of the

benefit elements are valued differently. For example, if security and functionality

are benefits elements in the analysis, an analyst would give security a greater weight

in the study if it was more important to the decision than functionality.

5.4.7.2.5.2. An example summary table from using the Relative Ranking with

Weights technique is provided in Figure 5.3. The weights associated with the

benefit elements could be key information for the decision-maker. As shown

below, while Alternative B is ranked very highly in both comfort and environment,

the weights for these benefit elements is low. As a result, the decision-maker may

discount those scores for Alternative B. Conversely, Alternative D may be

considered more important because it was ranked highly in benefit elements that

carried a higher weight.

Figure 5.4. Relative Ranking with Weights.

5.4.7.2.6. Weighted Point Rating

5.4.7.2.6.1. The weighted point rating technique requires the analyst, stakeholders

and/or decision-maker to examine their individual valuation, preferences, etc. with

respect to the alternatives and assign values to the benefits for each alternative.

5.4.7.2.6.2. There is a significant amount of subjectivity involved in this approach,

while, at the same time, it provides a single numerical score for the total value of

all benefits which appears to be objective. When using this method, it is critical to

ensure the analysis presents the meaning of the benefits behind the scores. The

mathematical score presented without any additional information can provide the

appearance of certainty without giving the decision maker substantive information

about the benefits.

5.4.7.2.6.3. The weighted point rating system is a comprehensive evaluation

method that involves:

5.4.7.2.6.3.1. Value – The establishment of a numerical value for each benefit

that would result from executing an alternative. In the figures below (Figures

5.3 and 5.4), the values are referred to as a score and expressed as a percent.

Expressing values as a percent is a typical method of measuring the benefit

elements using a common measure so they can be aggregated later.

5.4.7.2.6.3.1.1. This numerical value could be assigned directly by those

determining the value of each alternative by benefit element.

AFMAN65-506 6 SEPTEMBER 2019 41

5.4.7.2.6.3.1.2. A more rigorous method would take a two-step process. The

first step is to measure the benefit. This works well for benefits that already

have quantitative measures (e.g., number of training deficiencies). The

second step is to use a value function to determine the stakeholder’s relative

value for the different levels of performance for each measure over the range

needed to evaluate the alternatives. For example, how much more valuable

is it to the organization if personnel exit training with only 2 training

deficiencies versus 20.

5.4.7.2.6.3.1.3. Whether assigning values directly, or using the two step

process, the analyst should provide an intuitive explanation of the resulting

value. Just seeing a number without context will not be meaningful to a

decision-maker.

5.4.7.2.6.3.2. Weight – The assignment of weights to each benefit element

accounts for the fact that each of the benefit elements are valued differently.

For example, if security and morale are benefits elements in the analysis, an

analyst would give security a greater weight in the study if it was more

important to the decision than morale.

5.4.7.2.6.3.3. Composite – The calculation of a composite score (using value

and benefit element weight) for ranking of the alternatives.

5.4.7.2.6.4. The weight of each benefit should reflect how important each benefit

is relative to the others, while the value should measure how well the alternative

provides that benefit. The weight multiplied by the score equals the composite

score. These are then summed to show the various alternatives’ overall weighted

benefit score.

5.4.7.2.6.5. Many times the benefits are weighted and scored at a summary level.

When benefits are weighted and scored as a hierarchy, the calculations are a bit

more complex.

5.4.7.2.6.6. Figure 5.4 shows benefits evaluated at a summary level. This is a

common method of benefit evaluation.

Figure 5.5. Weighted Benefits Score Evaluated at a Summary Level.

42 AFMAN65-506 6 SEPTEMBER 2019

5.4.7.2.6.7. Figure 5.5 shows benefits evaluated as a hierarchy. In this case,

benefits are evaluated at the lowest level of the hierarchy and then aggregated. The

aggregated scores for each benefit element are then multiplied by the weight for the

element to obtain an element weighted score. The sum of the element weighted

scores by alternative equals the total benefit score for each alternative.

Figure 5.6. Benefits Evaluated as a Hierarchy.

5.4.7.2.7. Narrative Benefit Comparison

5.4.7.2.7.1. Alternatives can be compared using narrative-only descriptions of how

the alternatives perform under each of the benefit elements. Narrative-only

descriptions should provide the decision-maker with a rich understanding of what

each alternative will provide and the context behind why one alternative is superior

to (or equal to) another for each benefit element.

5.4.7.2.7.2. The Narrative benefit elements can also be given weights based on the

significance of the benefit element. The purpose of weighting this type of benefit

would be to give the decision-maker additional information on which benefits merit

more attention.

5.4.8. Time Phasing and Discounting

5.4.8.1. When scoring benefits, the person evaluating the benefit should take into account

the value of the benefit over time.

5.4.8.2. In doing so, the analyst will have accounted for the benefit over the entire period

of analysis.

AFMAN65-506 6 SEPTEMBER 2019 43

5.5. Other Benefit Considerations

5.5.1. Individual benefits to be analyzed are best selected, weighted and scored by

knowledgeable personnel from relevant functional areas, like civil engineering, safety, security

forces, financial management or services, etc.

5.5.2. In the analysis, each benefit should have a brief separate paragraph describing what the

benefit is, what is being measured, and the rationale used in determining the score for each.

5.5.3. The sources and derivation of quantitative benefits must be documented in the same

level of detail as costs, and should include all interim calculations as appropriate. (T-2).

5.5.4. Realized Benefits – This is the benefit equivalent of sunk costs. The analysis should

only include benefits over the period of analysis. Benefits realized prior to the period of

analysis are excluded from consideration. In situations where questions on realized benefits

might arise, they should be documented in the analysis.

5.5.5. Wash (Common) Benefits – Wash benefits are also referred to as common benefits.

This is the benefit equivalent of wash costs. These are benefits that will be realized regardless

of the alternative implemented. Wash benefits are optional to include in an analysis.

44 AFMAN65-506 6 SEPTEMBER 2019

Chapter 6

UNCERTAINTY (RISK AND SENSITIVITY) ANALYSIS

6.1. Uncertainty Analysis Overview

6.1.1. Estimates of costs and benefits contain uncertainties. Since estimating errors can be

introduced into the analysis because of the uncertainty, the potential impact of these errors

must be analyzed.

6.1.2. Uncertainty, and the related errors introduced, in comparative analyses is primarily

addressed through risk and sensitivity analyses. It is important to have an understanding of

how the Department of Defense defines risk and sensitivity analysis.

6.1.2.1. Risk is the probability an unfavorable outcome or event will occur. Risk analysis

evaluates the probability and severity of the potential unfavorable outcomes.

6.1.2.2. Sensitivity is the magnitude of impact that particular inputs have on an analysis

and its results. Sensitivity analysis is an evaluation of the effect that uncertain elements of

an analysis have on the outcome.

6.1.2.3. Every comparative analysis must have a separate sensitivity analysis (see section

6.2 of this manual). (T-1). An analyst can also assess the risk associated with each

alternative (see section 6.3.2 of this manual).

6.1.3. Assumptions of any type and level, by virtue of not being facts, introduce uncertainty

into the analysis. Sensitivity analysis examines the impact to the analysis of changing the level

or value of the assumption. If the baseline value of the assumption assumed for the analysis is

not just uncertain (i.e., its value is not known with certainty) but, if it is also too

optimistic/pessimistic, it introduces risk around the alternative(s), (i.e., increases the

probability that the alternative will not execute in the same manner as the analysis presents).

In the case of optimistic/pessimistic assumptions, sensitivity analysis is required. If a risk

analysis is included in the analysis, optimistic/pessimistic assumptions should be included.

6.2. Sensitivity Analysis

6.2.1. Sensitivity analysis identifies key assumptions and variables within an economic

analysis and determines how changes in value of those assumptions and variables affect the

results of the analysis. Its value lies in the additional information and understanding it brings

to bear on the decision. For decision makers facing an investment decision, sensitivity analysis

is a tool for determining how changes in assumptions and the values of variables (e.g., due to

estimating errors that stem from uncertainty) affect the analysis results. A sensitivity analysis

can be particularly important when the results of the cost and benefit analysis do not clearly

favor one of the alternatives.

6.2.1.1. A decision is insensitive to uncertainties regarding a variable if that variable’s

value can vary over a wide range without affecting the results of the alternatives relative to

each other. A sensitivity analysis demonstrates the stability (or instability) of the results.

AFMAN65-506 6 SEPTEMBER 2019 45

6.2.1.2. Two major limitations of sensitivity analysis are that (1) it only analyzes the

assumptions and variables that have been considered and (2) each assumption or variable

is analyzed in isolation. These limitations emphasize that critical thinking and dialogue

with experts is crucial to preparing a quality analysis.

6.2.2. Sensitivity analyses are commonly performed:

6.2.2.1. On uncertain assumptions that can impact the estimates of costs or benefits.

6.2.2.2. On major cost drivers, those parameters of the analysis that have the largest impact

on the discounted life cycle cost. In some cases, there may be a cost element that is a high

percentage of program cost, but is actually a “passenger,” meaning that it is driven by a

cost driver but has no parameter itself that can be adjusted to actually impact the cost of

the program. In this case, the sensitivity analysis would not be performed on the passenger.

Instead, the analyst would perform analysis on the parameter that is driving cost.

6.2.2.3. On major benefit drivers, those parameters that have a large impact in a weighted

point benefit assessment.

6.2.3. To perform a sensitivity analysis, vary an uncertain assumption or variable value within

what is considered to be a reasonable and relevant range (e.g., plus or minus 10% of initial

investment costs, plus or minus $3.50 per operating hour, or whatever is appropriate).

Recalculate the costs and benefits of all affected alternatives and compare them again. Several

iterations can be accomplished, varying the assumption or variable value at whatever interval

(e.g., every 2%) the analyst thinks is appropriate. Continue until the assumption or variable

value being varied becomes too unreasonable. Make sure to document the reasoning and show

calculations and intermediate steps. This level of documentation may be either in the

comparative analysis report, or in an appendix that would be made available if needed. If a

sensitivity analysis yields a change in the cost or benefit ranking of alternatives, report the

value at which the change occurs. If no change in alternative ranking occurs, report that, as

well, so the decision maker will understand the stability of the alternative rankings. If the

sensitivity analysis of a discount rate results in a change in the cost ranking of alternatives,

report the rate at which the change occurs.

6.2.4. Scenario Analysis

6.2.4.1. A scenario analysis is similar to a sensitivity analysis. In a sensitivity analysis,

one variable is allowed to change so that a decision maker can understand the effect that

variable has on the results of the analysis.

6.2.4.2. In a scenario analysis, the analyst allows multiple variables to change

simultaneously to gain insight into their combined impact. This can be a particularly

effective tool if there are multiple assumptions or cost drivers that the analyst considers

particularly questionable in the baseline analysis or if changing one variable almost always

impacts a related variable in the analysis.

6.3. Risk Analysis

6.3.1. A risk analysis can assess uncertainty in a manner different from sensitivity analysis.

6.3.2. When to include a risk analysis:

46 AFMAN65-506 6 SEPTEMBER 2019

6.3.2.1. Through the analysis process, if the analyst develops an understanding through

conversations with subject matter experts and stakeholders that the level of risk associated

with any alternative has a reasonable likelihood of being a key consideration for the

decision-maker, then a risk analysis should be performed.

6.3.2.2. A risk analysis should be included when required by the type of analysis or the

decision-maker.

6.3.3. A risk matrix is a common mechanism for evaluating risk. (See paragraph 6.3.10 Risk

can also be expressed narratively in the analysis).

6.3.4. Risk can occur in many forms. Some examples include: optimistic assumptions,

insufficient funding, schedule delays, immature technology, legislative requirements, biased

data, or contractor inability to execute. Risk can be found in a variety of areas. There is some

risk that the benefits expected from an alternative may not be achieved. There is also risk of

project execution that may not be easily expressed within the benefit element framework.

6.3.5. A risk analysis can include an evaluation of the level of confidence associated with

assumptions in the benefit analysis. In this case, the risk analysis is evaluating the probability

of not achieving the benefit attributed to a particular alternative. A risk analysis could also

focus on those benefit elements that have a particularly large impact on the results.

6.3.6. Cost risk is often assessed within the cost estimate. If the cost estimate includes an

assessment of cost risk, do not include a separate assessment of cost risk in this section of the

analysis (See paragraph 4.5.5).

6.3.7. Political risk (the risk associated with Congressional action or inaction) should only be

included when directed by an Air Force senior leader. Any assessment of political risk should

be provided by qualified subject matter experts (e.g., legislative liaison).

6.3.8. If a risk element is assessed low for an alternative because a mitigation is anticipated,

then the cost of mitigation should be addressed either in the cost analysis, or as a sensitivity

analysis. For example, the Air Force may have a risk of not obtaining data rights to a weapon

system, but as a mitigation, the program office believes the system could be reverse engineered

to the extent that maintenance could be performed organically. In this case, if the risk is being

evaluated as low due to the mitigation, then the cost of the mitigation should be included in the

cost estimate, or at least addressed as a sensitivity analysis.

6.3.9. If one of the alternatives is evaluated as having zero risk for a particular risk element,

that measurement of zero risk should be included in subsequent aggregation and assessment of

risk.

6.3.10. Risk Matrix

6.3.10.1. A risk matrix is a common approach for assessing both the probability and

severity of a risk element or undesirable events. Risk matrices can help prioritize

uncertainties that could negatively impact program cost, schedule and benefits. Subject

matter experts familiar with the program define the risk factors, probabilities, and resulting

impact to cost, schedule, and performance.

AFMAN65-506 6 SEPTEMBER 2019 47

6.3.10.2. An example risk matrix is provided in Figure 6.1. Additional explanation is

provided in AFI 90-802, Risk Management. In this example, the matrix was built so that a

higher risk item would have a higher score. An evaluation using the risk matrix would be

conducted for each risk element and each alternative. For the example in Figure 6.1, once

risk is evaluated for a specific risk element/alternative, the relative risk associated with

each alternative for that risk element can be assessed by multiplying the values assigned to

the different levels of Likelihood and Consequence.

6.3.10.2.1. The vertical axis is an evaluation of the likelihood of the risk.

6.3.10.2.2. The horizontal axis is an evaluation of the severity of the consequence

should the undesirable event occur.

Figure 6.1. Risk Matrix Example.

6.3.10.3. When using a risk matrix, the analyst should provide definitions for the

categories of risk listed in the risk matrix so that the reader knows how the risk categories

are being applied to this analysis. Examples are below.

Figure 6.2. Definitions for Likelihood Categories.

48 AFMAN65-506 6 SEPTEMBER 2019

Figure 6.3. Definitions for Consequence Categories.

6.3.10.4. Summarizing the Risk Assessment Results

6.3.10.4.1. Figure 6.4 shows an example summary of the results. Notice that each

alternative has a risk rating for each risk element.

6.3.10.4.2. If these risk elements are also benefit elements, then the risk score reflects

not being able to meet the benefit score provided in the benefit analysis. This means

that an alternative may only have a low risk score because of the low benefit

expectation. If benefits were normalized across alternatives, the risk of achieving the

benefit would be higher. When risk scores are related to the benefit evaluation, the

implications should be explained in the documentation.

6.3.10.4.3. If these risk elements are not also benefit elements, then the risk score

reflects an absolute comparison among the alternatives.

6.3.10.4.4. In Figure 6.4, the “Prob” columns are the likelihood measure from the risk

matrix. The “Conseq” columns are the consequence measure from the risk matrix. The

score is the assessment from combining likelihood and consequence. The rating

column follows the color scheme in the risk matrix with green being low risk, yellow

being moderate risk and red being high risk.

6.3.10.4.5. The scores are aggregated to an average score by alternative.

Figure 6.4. Summary of Risk Analysis.

6.3.10.4.6. Similar to defining the risk categories, the risk elements should also be

defined. Figure 6.5 provides an example of risk element definitions.

AFMAN65-506 6 SEPTEMBER 2019 49

Figure 6.5. Risk Element Definitions.

50 AFMAN65-506 6 SEPTEMBER 2019

Chapter 7

CONCLUDING THE ANALYSIS: SUMMARY AND COMPARISON OF

ALTERNATIVES AND POST-ANALYSIS ACTIVITIES

7.1. Once the cost, benefit and uncertainty analyses are completed for each alternative: The

results must be analyzed, and the alternatives compared. (T-2). This section of the comparative

analysis includes a summary of the analysis results and a comparison of the results. The summary

of analysis presents and summarizes the key aspects of the cost, benefit, and uncertainty analyses

to then enable comparison of the alternatives. In the comparison of alternatives, the analyst

compares and interprets results. The analyst should provide more than just an explanation of the

analysis results. The analyst should provide insights into the behavior of the alternatives’ costs

and benefits from which the decision-maker could draw reasonable conclusions. The analyst is

not required to recommend an alternative, but may provide a recommendation.

7.2. Provide summary tables for: The cost analysis, benefit analysis, and uncertainty analysis

for areas where the analyses have been expressed in quantitative terms.

7.2.1. The cost summary should include a table(s) with the present value of the alternatives,

new funding required by alternative, and any other financial measures used to evaluate the

alternatives.

7.2.2. Benefits - The benefit summary should include a summary table if the benefits were

measured using: physical counts, an index/ratio, or a rating scale. If benefits were evaluated

using narrative descriptions, then those descriptions should be summarized in this section.

7.2.3. Uncertainty – A summary of the results of the sensitivity analysis should be included.

If a risk assessment was performed, this also is the appropriate section to summarize those

results. If risk was measured quantitatively, a table should be included.

7.3. Provide a brief narrative explanation of: The summarized cost and benefit analyses and

uncertainty assessment, as well as any measurements and indicators.

7.4. Every comparative analysis must: Compare the alternatives and interpret the results. (T-

2).

7.4.1. Compare the relative strengths and weaknesses of each alternative with respect to cost

as well as how well each alternative meets the objective. Provide insights from the comparison.

A few examples of this type of insight are pointing out whether a particular alternative

dominates in terms of costs, benefits and risks or providing the interpretation of the results that

achieving a particular benefit will cost XX dollars over the status quo. The analyst can

highlight the tradeoffs between the alternatives and explain the conditions under which the

rankings of alternatives change.

7.4.2. There are measures to assist with comparing alternatives; some apply to costs, some to

benefits, and some to a combination of the two. The measures below provide some useful

methods by which to make comparisons between alternatives.

7.4.2.1. Comparison of Present Value (PV):

AFMAN65-506 6 SEPTEMBER 2019 51

7.4.2.1.1. Present Value reflects the value today of a future amount or stream of future

amounts, expressed as a single sum of dollars. It is calculated by multiplying the

amount for each year by the corresponding discount factor, and summing the results.

Present value is the best measure for comparing cash flows over time.

7.4.2.1.2. Net Present Value (NPV) refers to the present value of the gains (revenue)

minus the present value of the investment. Government comparative analyses often do

not have a revenue stream but may have gains through reduced costs.

7.4.2.2. Uniform Annual Cost: Uniform Annual Cost is calculated by dividing the net

present value of the costs of an alternative by the sum of the discount factors for the periods

covering the life of each alternative in which costs were incurred.

7.4.2.3. Savings/Investment Ratio: The present value of the total return generated by an

investment divided by the present value of the initial investment amount.

7.4.2.4. Return On Investment: A ratio that evaluates the return relative to the investment.

See Attachment 7 for a more detailed explanation.

7.4.2.5. Weighted Benefit Score: The result of the scoring of benefits of a given

alternative, weighted by the relative importance of each individual benefit. Multi-

Objective Decision Analysis (MODA) is an example of weighted benefit scoring.

7.4.2.6. Cost/Benefit Ratio: The ratio of the life cycle cost of an alternative to its weighted

benefit score or other quantitative measure of benefits.

7.4.2.7. Payback Year: The year in which the cumulative revenue or savings generated by

a project is expected to equal its investment costs.

7.4.3. As a minimum, a present value comparison must be included for all analyses that are

required by AFI 65-501 for which the period of analysis is greater than one year. (T-2).

7.4.4. A narrative explanation and comparison of the benefits is a minimum requirement for

all analyses. (T-2).

7.4.5. See attachments for specific requirements related to special analyses.

7.4.6. As part of interpreting the results, the analyst should provide insights and conclusions

based on the comparison of alternatives.

7.5. If the analyst provides a recommendation: Then the rationale behind the recommendation

must be explained. (T-2).

7.6. The decision-maker at each level may: Want to include a memo with the comparative

analysis that indicates the selected alternative.

7.7. Documentation Requirements. Comparative analyses must be thoroughly documented.

(T-2).

7.7.1. A key element of credible analysis is sufficient documentation of method and

information sources so that, with the same material, a reader not familiar with the study could

arrive at essentially the same result without having to look elsewhere for any information used

to perform the analysis. The documentation in a comparative analysis must meet this standard.

(T-2).

52 AFMAN65-506 6 SEPTEMBER 2019

7.7.2. A comparative analysis is documented in a comparative analysis report. If supporting

documents are too voluminous for inclusion in the comparative analysis report, they must be

cited in sufficient detail so that the exact document(s) may be found by an independent

reviewer or reader if they need to reference them. (T-2).

7.7.3. See paragraph 1.2 for elements to include in the documentation.

7.7.4. Analyses involve calculations or adjustments used to turn raw source data into

information used in the analysis. Since these calculations are commonly done in Excel®, or

specialized estimating software, the files should be retained by the analyst with the

documentation.

7.8. Information and Activities that are Important for Implementing a Decision

7.8.1. While decision implementation is the responsibility of the functional organization for

which the decision is being made (or its implementing partner), there are aspects of the

comparative analysis which may be helpful for implementation and change management.

7.8.2. Implementation Plan – In building a comparative analysis, the analyst needs to

understand the assumed schedule and end state of the selected alternative. In fact, the

requirement to cost out the transition and end state often brings more rigor into the planned

alternatives. As such, the plan used in the analysis process to estimate costs could also be used

to build the framework of the implementation plan.

7.8.3. Stakeholder Analysis – Information gathered from stakeholders during the comparative

analysis process may be helpful in building a stakeholder action plan and communication plan

needed to implement the alternative selected by the decision-maker. In particular, the benefit

analysis and uncertainty analysis processes may identify stakeholder perspectives and/or

concerns with each alternative.

7.8.4. Performance Measures and Outcomes – The cost, benefit, and uncertainty measures

from the comparative analysis provide a framework from which performance measures and

outcomes can be developed. These performance measures and outcomes could be used as a

baseline against which the results of the change are compared and as a starting point for lessons

learned.

AFMAN65-506 6 SEPTEMBER 2019 53

Chapter 8

ANNUAL ECONOMIC ANALYSIS REPORT

8.1. Annual Economic Analysis Report (RCS: HAF-FMC [A] 9501): Each MAJCOM, direct

reporting unit (DRU), field operating agency (FOA), and similar Air Force organization will

prepare and forward a copy of an annual report concerning their economic analysis program to

SAF/FMCE by 1 December annually. (T-2). This report (see Attachment 10) will provide

information on economic analysis activity in the previous FY.

JOHN P. ROTH

Assistant Secretary of the Air Force

for Financial Management and Comptroller

54 AFMAN65-506 6 SEPTEMBER 2019

Attachment 1

GLOSSARY OF REFERENCES AND SUPPORTING INFORMATION

References

AFI 32-6001, Family Housing Management, 21 August 2006

AFI 32-6004, Furnishings Management Program, 27 January 2016

AFI 32-6005, Unaccompanied Housing Management, 29 January 2016

AFI 33-360, Publications and Forms Management, 1 December 2015

AFI 65-501, Economic Analysis, 29 October 2018

AFI 65-503, US Air Force Cost and Planning Factors, 13 July 2018

AFI 90-802, Risk Management, 1 April 2019

AFMAN 33-363, Management of Records, 1 March 2008

AFMAN 65-502, Inflation, 13 May 2015, Corrective Actions applied on 30 October 2018

AFPAM 63-123, Product Support Business Case Analysis, 1 June 2017

DoDI 5000.02, Operation of the Defense Acquisition System, 7 January 2015

DoDI 5000.74, Defense Acquisition of Services, 5 January 2016,

DoDI 7041.03, Economic Analysis for Decision-Making, 9 September 2015

Title 20 United States Code § 7701 et. seq. Elementary and Secondary Education Act of 1965

Title 40 United States Code Subtitle III, Information Management Technology

Military Standard 881D, Work Breakdown Structures for Defense Materiel Items, 9 April 2018

Government Accountability Office Cost Estimating and Assessment Guide: Best Practices for

Developing and Managing Capital Program Costs, 2 March 2009

Government Accountability Office Schedule Assessment Guide: Best Practices for Project

Schedules, 22 December 2015.

Joint Agency Cost Schedule Risk and Uncertainty Handbook, 12 March 2014.

National Defense Authorization Act for Fiscal Year 2017, Public Law 114-328, Enacted 13

August 2018

NAVFAC Pub 442, Economic Analysis Handbook, November 2013

NIST Handbook 135, Life-Cycle Costing Manual for the Federal Energy Management Program,

1995 (supplemented annually)

NISTIR 85-3273-xx, Energy Price Indices and Discount Factors for Life-Cycle Cost Analysis,

updated annually

OMB Circular A-76, Performance of Commercial Activities, 4 August 83

OMB Circular A-94, Guidelines and Discount Rates for Benefit-Cost Analysis of Federal

Programs, 29 October 92

AFMAN65-506 6 SEPTEMBER 2019 55

Adopted Forms

AF Form 847, Recommendation for Change of Publication

DD Form 1391, FY___ Military Construction Project Data

Abbreviations and Acronyms

ACAT—Acquisition Category

AFI—Air Force Instruction

AFIMSC—Air Force Installation and Mission Support Center

AFMAN—Air Force Manual

AML—Acquisition Master Listing

AoA—Analysis of Alternatives

BAH—Basic Allowance for Housing

BCA—Business Case Analysis

CBA—Cost Benefit Analysis

CIO—Chief Information Officer

CRIS—Commander’s Resource Integration System

DEAMS—Defense Enterprise Accounting and Management System

DoE—Department of Energy

DRU—Direct Reporting Unit

EA—Economic Analysis

EIA—Economic Impact Analysis

FM—Financial Management

FMA—Financial Management Analysis

FNDH—Foreign National Direct Hires

FOA—Forward Operating Agency

FTE—Full Time Equivalent

FY—Fiscal Year

FYDP—Fiscal Year Defense Program

GPC—Government Procurement Card

HQ—Headquarters

IT—Information Technology

LCC—Life Cycle Cost

LCCE—Life Cycle Cost Estimate

56 AFMAN65-506 6 SEPTEMBER 2019

MAJCOM—Major Command

MILCON—Military Construction

MIL-STD—Military Standard

MOA—Memorandum of Agreement

NDAA—National Defense Authorization Act

NPV—Net Present Value

NSS—National Security System

O&M—Operations and Maintenance

O&S—Operations and Sustainment

OCR—Office of Collateral Responsibility

OMB—Office of Management and Budget

OPR—Office of Primary Responsibility

PV—Present Value

RIMS II—Regional Input-Output Modeling System

ROI—Return on Investment

SIR—Saving to Investment Ratio

TDY—Temporary Duty

UAC—Uniform Annual Cost

Terms

Alternative—One possible method of obtaining the stated project/program objective.

Automated Information System—See DoDI 5000.02 Table 1 Note 4. A system of computer

hardware, computer software, data or telecommunications that performs functions such as

collecting, processing, storing, transmitting, and displaying information. Exclusions are computer

resources, both hardware and software, that are (1) an integral part of a weapon or weapon system;

(2) used for highly sensitive classified programs (as determined by the Secretary of Defense); (3)

used for other highly sensitive information technology (IT) programs (as determined by the DoD

CIO; or (4) determined by the DAE or designee to be better overseen as a non-Acquisition

Information System program (e.g., a program with a low ratio of RDT&E funding to total program

acquisition costs or that requires significant hardware development).

Base Year—Usually defined as the FY in which a program was/will be initially funded.

Benefits—Measures of an alternative's non-monetary value to the United States Government. The

only benefit measured in terms of dollars is a reduction in some future resource requirement which:

(a) has not been included in an approved (funded) Air Force program or function within the Future

Years Defense Program, and (b) would not be reasonably assumed to be included in an Air Force

approved program beyond the Future Years Defense Program. See Chapter 5.

AFMAN65-506 6 SEPTEMBER 2019 57

Benefits Analysis—Analysis to identify, measure and evaluate the non-monetary benefits for each

proposed alternative.

Business Case Analysis—See Comparative Analysis

Clinger-Cohen Act Compliance—Requirement for all programs that acquire information

technology (IT), including National Security Systems (NSS), at any Acquisition Category (ACAT)

level, that the Milestone Decision Authority not initiate a program or an increment of a program,

or approve entry into any phase of the acquisition process that requires formal acquisition

milestone approval, and that the DoD component not award a contract for the applicable

acquisition phase until the sponsoring DoD component or Program Manager has satisfied the

Clinger Cohen Act requirements. The Milestone Decision Authority and Component Chief

Information Officer (CIO), or designee, approve Clinger Cohen Act compliance

Comparative Analysis—An impartial analysis that uses the economic analysis approach to

support a decision on how to allocate scarce resources. A comparative analysis identifies

alternative methods of solving a problem or accomplishing a stated objective, and compares them

by weighing the costs, benefits, and uncertainties for each alternative. Comparative analyses are

referred to by a variety of names including, but not limited to, economic analysis, business case

analysis, cost benefit analysis, lease vs. purchase, and analysis of alternatives.

Comparative Analysis Product—The document produced through the process of performing a

comparative analysis. It identifies the competing alternatives for solving a problem or

accomplishing a stated objective, and presents the costs, benefits and uncertainties for each

alternative. It interprets the results of the comparative analysis and highlights aspects in favor of

and against each alternative. It can include a recommendation, but one is not mandatory.

Constant Year Dollar—The value or purchasing power of a dollar in any specific year, which

may or may not be the base ear. Constant year dollars do not contain any inflationary changes that

occurred or are forecast to occur outside of the reference year to which the analyst is normalizing.

Constant year dollars are not influenced by outlay profiles (Expenditure Patterns). Also known as

real dollars.

Constraints—Limitations of any kind to be considered in planning, programming, scheduling,

implementing or evaluating programs, projects, initiatives, etc.

Cost Avoidance—Areas where someone may think the budget will be affected when, in fact, it

will not be. There are two categories of cost avoidance. The first category is productivity gains

that do not result in budget savings such as man hour savings that do not result in a deleted position.

The second category is a reduction in some future resource requirement which: (a) has not been

included in an approved (funded) Air Force program or function within the Future Years Defense

Program and (b) would not be reasonably assumed to be included in an Air Force approved

program beyond the Future Years Defense Program.

Cost-Benefit Analysis or Cost-Effectiveness or Cost-Capability Analysis—See Comparative

Analysis.

58 AFMAN65-506 6 SEPTEMBER 2019

Defense Business System—See DoDI 5000.75, Business Systems Requirements and Acquisition.

Business systems are information systems that are operated by, for, or on behalf of the Department

of Defense, including: financial systems, financial data feeder systems, contracting systems,

logistics systems, planning and budgeting systems, installations management systems, human

resources management systems, and training and readiness systems. A business system does not

include a national security system or an information system used exclusively by and within the

defense commissary system or the exchange system or other instrumentality of the DoD conducted

for the morale, welfare, and recreation of members of the armed forces using non-appropriated

funds.

Delta Estimate—A cost estimate that includes only the costs that are different from the funded

status quo.

Discount Rate—The interest rate used to translate future costs or benefits into Present Value. It

is a measure of the time value of money.

Discounting—The process of using the discount rate to determine the present value of costs.

Economic Analysis—A systematic approach to the problem of choosing how to use scarce

resources to meet a given objective. It includes consideration of costs, benefits, and uncertainties

associated with all alternatives under consideration. At times, the term economic analysis is used

in reference to the product/document that results from applying the economic analysis systematic

approach. This resulting document is also referred to as a comparative analysis product.

Economic Analysis Document—See Comparative Analysis Product.

Economic Life—The period of time over which the benefits to be gained from a project may

reasonably be expected to accrue. It is the shortest of physical, technological or mission life.

Effectiveness—Ability of a project to meet objectives.

Efficiency—The amount of output per unit of input. Alternatively, it is the quality whereby one

alternative uses less input per unit of output than other alternatives.

Feasible Alternative—An alternative that is considered practical and realistic to execute by

someone familiar with the conditions surrounding the project. A feasible alternative will satisfy

the minimum performance necessary to meet the objective.

Formalized Comparative Analysis—A comparative analysis which satisfies the following

criteria: 1) All of the elements of the economic analysis approach are included; 2) The analysis is

documented from the sources of the raw data, through the interim calculations to the final

conclusions so that a reader would be able to reach the same conclusions using only the information

in the document; 3) The analysis is certified when required by AFI 65-501 and in accordance with

AFMAN 65-506; 4) The analysis includes a comparison of final costs expressed in present value

dollars.

Historical Cost—The cost of any item, based on actual dollar (or equivalent) outlay, ascertained

after the fact.

Incremental Cost—The change in cost that results from an alternative being selected.

Induced Costs—Those costs that execution of a given project or program alternative impose on

another Air Force or government program.

AFMAN65-506 6 SEPTEMBER 2019 59

Investment Costs—Costs associated with the acquisition of equipment, real property,

nonrecurring services, nonrecurring operations and maintenance (start-up) costs, and other one-

time outlays. Commonly investment costs are broadly referred to as any costs in the RDT&E and

Procurement Appropriations. For the purpose of a comparative analysis, the implementing

investment costs are those costs that are those initial investment costs (e.g., land purchase,

architectural design, facility construction) required to build the product (e.g., facility) under

evaluation. For clarity, the savings to investment ratio and the internal rate of return use the term

implementing investment.

Lease-Purchase Analysis—An analysis of the decision whether to lease or purchase the services

of an asset. After the decision to acquire the services of an asset has been made, there may be a

need to analyze the decision whether to lease or purchase the asset.

Life-Cycle Cost—The total cost to the government for a system over its full life, including the

cost of development, procurement, operation, support, and disposal.

Mission Life—The estimated number of years that the need for an asset is anticipated before the

mission either changes or is no longer required.

National Security System (NSS)—See US Code Title 40 Subtitle 3 Section 11103. A

telecommunications or information system operated by the Federal Government, the function,

operation, or use of which: (A) involves intelligence activities; (B) involves cryptologic activities

related to national security; (C) involves command and control of military forces; (D) involves

equipment that is an integral part of a weapon or weapons system; or (E) subject to paragraph (2),

is critical to the direct fulfillment of military or intelligence missions.

Non-monetary Benefit—Benefit whose value is not represented as cash flow within the analysis.

Non—recurring Costs - One-time costs or costs that are not expected to continue beyond the

investment phase.

Objective Statement—A statement of what a project or program seeks to accomplish. In

economic analysis, objectives are to be stated such that there is no bias toward a particular

alternative.

Opportunity Cost—The cost of a resource, measured in terms of its value in the highest alternate

use.

Output—Goods and services produced or provided.

Physical Life—The number of years an asset can physically be used before it wears out.

Present Value—The value today of a future amount or series of future amounts, discounted to

reflect the time value of money. Present value comparisons are used in economic analysis to

meaningfully compare different cash flows.

Program Evaluation—Economic analysis of ongoing actions to determine how well the stated

objectives are being accomplished. Program evaluation studies entail a comparison of actual with

intended performance.

Qualitative Benefit—Benefit not naturally measured in quantities. These benefits are usually

subjective in nature.

60 AFMAN65-506 6 SEPTEMBER 2019

Quantitative Benefit—Non-monetary benefit which can be measured quantifiably. These

benefits are usually objective in nature.

Real Property—Land, buildings, structures, utility systems, improvements. Includes equipment

attached to and made part of buildings and structures (such as heating systems) but not movable

equipment (such as plant equipment).

Reasonable Alternative—Alternatives that a reasonable person (who is unfamiliar with the

detailed unique circumstances of the analysis) would consider as a potential solution to the

objective. Unreasonable alternatives do not need to be addressed in an Economic Analysis.

Recurring Costs—Expenses incurred on a repeated basis, either annually or periodically.

Residual Value—The expected value of an asset at any point in time before the end of its

economic life.

Risk—The probability of a loss or injury.

Savings—The reduction of required funding for a currently approved (funded) program or

function, within the time period covered by the Future Years Defense Program. Additionally,

when the same type of reduction that would have led to a reduction within the Future Years

Defense Program occurs beyond the Future Years Defense Program period, these reductions are

also savings because they are reducing cost for a program or function that is assumed to be

approved (funded). A reduction in monetary cost from the approved and funded Status Quo (i.e.,

baseline) alternative is considered savings. Savings result from the cost analysis and should be

discussed in the Comparison of Alternatives

Sensitivity Analysis—Examination of the effects obtained by changing the direction and

magnitude of assumptions, key variables or other factors in an analysis.

Sunk Cost—Sum of past expenditures or irrevocably committed funds related to a project. Such

costs are generally not relevant to decision making as they reflect previous, rather than present,

choices.

Technological Life—The estimated number of years before improved technology will make an

existing or proposed asset obsolete.

Terminal Value—The expected value of assets at the end of their economic life.

Then-Year Dollar—Reflects the amount of funding needed (expected to be needed) when the

expenditure for goods and services were (are expected to be) made. Then-year dollars include

inflation and escalation.

Uncertainty—The indefiniteness about the outcome of a situation. Uncertainty includes both

risks (i.e., the probability of a loss or injury) and opportunities (i.e., favorable events or outcomes).

Uniform Annual Cost—The average cost per year for a given alternative. It is calculated by

dividing the total net present cost (for the full-time life cycle) by the sum of the discount factors

of the years in which benefits accrue (economic life).

Wash (Common) Benefit—Any benefit that will be incurred identically across alternatives.

Wash (Common) Cost—Any cost that will be incurred identically across alternatives.

AFMAN65-506 6 SEPTEMBER 2019 61

Attachment 2

EXECUTIVE SUMMARY FORMAT REQUIREMENT

A2.1. An Executive Summary is required for comparative analyses.

A2.2. Use the format below: When creating the Executive Summary for a comparative analysis.

Figure A2.1. Executive Summary Format.

EXECUTIVE SUMMARY

INSTALLATION/MAJCOM: (For Overseas include the country.)

PROJECT TITLE: (If applicable, include project number.)

PROJECT OBJECTIVE: (State what the project or program under study seeks to attain.)

BACKGROUND: (Provide a concise summary of the circumstances surrounding the project.)

SCOPE: (Describe the content that is included and the content that is excluded from the

analysis.)

ALTERNATIVES: (Briefly describe the reasonable alternatives and explain any dismissed as

infeasible.)

Alternative 1:

Alternative 2:

Alternative 3:

SUMMARY OF ANALYSIS RESULTS: (Include a brief summary of costs, benefits and

uncertainty.)

Costs - The cost summary should include a table(s) with the present value of the alternatives,

new funding required by alternative, and any other financial measures used to evaluate the

alternatives.

Benefits - The benefit summary should include a summary table if the benefits were measured

using: physical counts, an index/ratio, or a rating scale. If benefits were evaluated using

narrative descriptions, then those descriptions should be summarized in this section.

Uncertainty - A brief description of the sensitivity analyses should be included in this section.

This also is the appropriate section to summarize results for the risk assessment if included. If

risk was measured quantitatively, a table should be included.

62 AFMAN65-506 6 SEPTEMBER 2019

COMPARISON OF ALTERNATIVES

In this section, the analyst should provide a comparison of alternatives that includes an

interpretation of the results that is logically consistent with the costs, benefits and uncertainty

documented in the analysis. If a recommendation is included in the analysis, it should be

included in this section along with the rationale behind the recommendation.

AFMAN65-506 6 SEPTEMBER 2019 63

Attachment 3

COMPARATIVE ANALYSIS CERTIFICATION AND WAIVER APPROVAL

A3.1. Introduction.

A3.1.1. Comparative Analysis Certification is the Air Force’s standardized method of

assuring comparative analyses are completed in accordance with the instructions outlined in

AFI 65-501 and this manual, and that both functional and financial management reviewers at

each stage of the review coordinate on the assumptions made and techniques used to produce

the analysis results.

A3.1.2. Certification must follow the format and certification process in this Attachment, and,

at a minimum, incorporate all statements and information included in this Attachment unless

excepted by the criteria A3.1.6 (T-1). Functional managers and reviewers at each stage of the

review process must sign the Certificate of Satisfactory Comparative Analysis. (T-1).

Comparative analyses forwarded to the Air Staff or Secretariat must give evidence of

intermediate levels of certification. (T-1).

A3.1.3. The standup of Air Force Installation and Mission Support Center (AFIMSC) in 2015

as Air Force Materiel Command’s sixth center, created a gap in Air Force comparative analysis

certification policy. This realignment in conjunction with a Headquarters reduction left some

MAJCOMs without the ability to adequately review and certify comparative analysis

documents developed within their MAJCOM. As a result, command financial management

offices now have the option of forming a memorandum of understanding with the Air Force

Materiel Command financial management cost office to certify their comparative analyses.

See AFI 65-501, paragraph 1.4.4.

A3.1.4. The Waiver Approval process is the Air Force’s standardized method of determining

if a project or program that would normally require a comparative analysis in accordance with

AFI 65-501, paragraph 1.5, can be exempted due to meeting the criteria outlined in AFI 65-

501, paragraph 1.6. The Waiver Approval process requires all functional and Financial

Management (FM) offices to coordinate on (i.e., agree with) the initiating office’s claim that

the project or program meets the criteria outlined in AFI 65-501, paragraph 1.6.

A3.1.5. Waiver Approval must follow the coordination process in this Attachment. (T-1). The

format of the “Request for Waiver from a Comparative Analysis” form is in Attachment 4.

Functional and financial managers and reviewers at each stage of the review process must sign

the Request for Waiver from a Comparative Analysis. (T-1). All waiver requests must be

forwarded to the Air Staff or Secretariat for final forwarding to, and approval by, SAF/FMCE.

(T-1).

A3.1.6. Applicability

A3.1.6.1. The requirement for certification applies to comparative analyses required by

AFI 65-501, paragraph 1.5.

A3.1.6.2. The process for certifying comparative analyses detailed in this Attachment

applies to most types of comparative analyses. However, processes can vary depending on

the type of program or funding.

64 AFMAN65-506 6 SEPTEMBER 2019

A3.1.6.2.1. The process for certification described in this chapter does not apply to

Clinger-Cohen Act comparative analyses done for programs on the acquisition master

list or with other acquisition designations, (e.g., Middle Tier of Acquisition Programs).

For these programs, see Attachment 12 to this manual.

A3.1.6.2.2. Certification of Product Support Business Case Analyses is accomplished

through the governance approval process specified in Air Force Pamphlet 63-123.

A3.1.6.2.3. If unsure of the process, the financial management office developing the

comparative analysis should consult with the MAJCOM financial management office

of primary responsibility to determine the appropriate process.

A3.1.6.3. The approval process for comparative analysis waivers allowed in accordance

with AFI 65-501, paragraph 1.6, follows many of the same steps as the process for

comparative analysis certification.

A3.2. Roles and Responsibilities – Table A3.1 below highlights the key roles and

responsibilities for the Comparative Analysis Certification Process. Table A3.2 shows the key

roles and responsibilities for the Comparative Analysis Waiver Approval Process.

AFMAN65-506 6 SEPTEMBER 2019 65

Table A3.1. Comparative Analysis Certification Process Roles and Responsibilities.*.

66 AFMAN65-506 6 SEPTEMBER 2019

Table A3.2. Request for Waiver from a Comparative Analysis Process Roles and

Responsibilities.*

A3.3. Meaning of Certification with respect to a Comparative Analysis

A3.3.1. Certification by financial management personnel means that a comparative analysis

has been prepared in accordance with this manual and AFI 65-501. Certification by financial

management personnel attests to the reasonableness of the data in the comparative analysis,

the proper use of economic principles in the analysis and the adequacy of documentation such

that the comparative analysis is a stand-alone document. All factors and data in the

comparative analysis must be current as of the signing of the certification. Certification by

financial personnel does not mean that the financial organization endorses the conclusions

contained in the comparative analysis.

A3.3.2. Certification by functional personnel indicates that the assumptions, reasoning and

cost and benefit assessments in the comparative analysis are consistent with their area of

technical expertise. Certification does not mean that the functional organization endorses the

conclusions contained in the comparative analysis.

AFMAN65-506 6 SEPTEMBER 2019 67

A3.4. Meaning of Coordination with respect to a Request for Waiver from a Comparative

Analysis

A3.4.1. Coordination on a request for waiver from a comparative analysis by functional and

financial management personnel means that the project or program meets the criteria outlined

in AFI 65-501, paragraph 1.6, and the specific reason(s) on the “Request for Waiver from a

Comparative Analysis” form selected by the initiating office is valid.

A3.4.2. Coordination on a waiver request also means that clear and convincing justification

for the reason(s) selected are included in the waiver request package.

A3.5. Process Description

A3.5.1. Entrance Criteria to the process – The Comparative Analysis Certification Process and

the Request for Waiver from a Comparative Analysis Process are initiated in accordance with

AFI 65-501 and based on one of the following criteria:

A3.5.1.1. There is a requirement for a comparative analysis to be certified

A3.5.1.2. There is a requirement for a comparative analysis with justification for a waiver

to be approved.

Figure A3.1. Comparative Analysis Certification and Waiver Request Process Flow.

A3.5.2. Comparative Analysis Certification Process Steps

A3.5.2.1. Overview - The following section outlines the process steps in the Comparative

Analysis Certification Process except those specified in A3.1.6.2.

A3.5.2.2. Figure A3.1 provides a top level process flow. Table A3.3 provides further

detail for each step in the process.

68 AFMAN65-506 6 SEPTEMBER 2019

Table A3.3. Steps for the Comparative Analysis Certification and Waiver Request

Processes.

Step

Who Does It

What Happens

Local FM

Office

(i.e.,

Installation,

Tenant,

Center,

Program

Office)

Local FM Office completes comparative analysis. Air Force

Installation and Mission Support Center Resource Management

Cost Division (AFIMSC/RMC) may assist the Local FM Office in

completing the comparative analysis.

Proceed to step 2

Local

Functional

Office

(i.e.,

Installation,

Tenant,

Center,

Program

Office)

Local Functional Office, with Local FM Office assistance,

completes request for waiver from comparative analysis

requirement.

Proceed to step 4b

Local FM

Office

(i.e.,

Installation,

Tenant,

Center,

Program

Office)

Does the comparative analysis require certification under this

Attachment?

See paragraph 3.1.6.

If Yes:

If No:

Proceed to step 4a

Proceed to step 3

Local FM

Office

Retain documentation of analysis. The (process ends here for

analyses not requiring any certification.

Local FM

Office OPR

Certify comparative analysis and forward to Local Functional

Office.

As the FM certifier, the local FM Office certifies the comparative

analysis.

Proceed to step 5

Local FM

Office OPR

Review/coordinate on waiver request & return it to the Local

Functional Office for forwarding to the MAJCOM Functional

Office.

The Local FM Office OPR coordinates on the waiver request.

AFMAN65-506 6 SEPTEMBER 2019 69

Step

Who Does It

What Happens

Local

Functional

Office

Review/certify comparative analysis or coordinate on the waiver

request. Forward to MAJCOM Functional Office.

The Local Functional OPR certifier certifies the comparative analysis

or coordinates on the waiver request.

MAJCOM or

Center

Functional

Office or

AFIMSC/IZ

Review/certify comparative analysis or review/coordinate on

waiver request & forward to MAJCOM or Center FM

comparative analysis OPR

The certifier in the MAJCOM Functional Office certifies the

comparative analysis.

The MAJCOM Functional Office must coordinate on waiver

requests. (T-1).

If MAJCOM, proceed to step 7. Otherwise, proceed to step 8.

MAJCOM

Comparative

Analysis

OPR

For Comparative Analysis Certification, proceed to step 7b. For

waiver requests, proceed to step 8

MAJCOM

Comparative

Analysis

OPR

Can the MAJCOM FM OPR certify?

The MAJCOM FM comparative analysis OPR must decide whether

the MAJCOM FM Office can properly certify its analysis. (T-1).

If Yes:

If No:

The MAJCOM FM comparative

analysis OPR certifies the

comparative analysis

Proceed to Step 9.

The MAJCOM FM

comparative analysis OPR

forwards the request for

assistance to Air Force

Material Command Cost

Analysis (AFMC/FMC)

comparative analysis OPR.

MAJCOM or

Center FM

Comparative

Analysis

OPR or

AFMC/FMC

Comparative

Analysis

OPR

Review/certify comparative analysis or review/coordinate on

waiver request & return to MAJCOM Functional Office.

If AFMC/FMC certifies the comparative analysis, they return the

document to the MAJCOM FM office who forwards the document to

the MAJCOM Functional.

The MAJCOM FM Office must coordinate on waiver requests. (T-1).

70 AFMAN65-506 6 SEPTEMBER 2019

Step

Who Does It

What Happens

MAJCOM or

Center

Functional

Office

Does the comparative analysis/waiver request require

Headquarters Air Force certification/approval?

All waiver requests require HAF approval.

Certain comparative analyses require HAF certification because the

analysis has visibility at the level of the Secretary or Under Secretary

of the Air Force or the Chief of Staff or Vice Chief of Staff of the Air

Force. A comparative analysis also requires HAF certification if the

analysis is anticipated to have an audience outside of the AF.

Additionally, comparative analyses initiated at the MAJCOM or

Center level require HAF certification.

The MAJCOM Functional Office OPR must determine if the

comparative analysis requires HAF certification. (T-2).

If Yes:

If No:

The MAJCOM or Center

Functional Office prepares the

comparative analysis and any

required supporting information or

the waiver request for transmittal to

HAF functional staff (proceed to

Step 11).

No additional action required

(proceed to Step 10).

MAJCOM or

Center

Functional

Office

Disseminate complete certified comparative analysis.

The MAJCOM Functional Office provides copies of the completed

(certified) comparative analysis back to the Local Functional Office

and the Local FM Office. The local FM retains a copy.

Process ends after this step.

MAJCOM or

Center

Functional

Office

Forward document to HAF Functional Office.

The MAJCOM or Center Functional Office transmits certified

comparative analysis and documentation or coordinated waiver

request to HAF Functional Office.

AFMAN65-506 6 SEPTEMBER 2019 71

Step

Who Does It

What Happens

HAF

Functional

Office

Review/approve document & forward to SAF/FMCE.

For comparative analyses, the appropriate HAF Functional Office

receives the certified comparative analysis from the MAJCOM or

Center, reviews the package from their functional perspective,

certifies and forwards the comparative analysis to SAF/FMCE.

If the Functional or SAF/FMCE review produces questions, the HAF

Functional Office forwards these questions to the MAJCOM or

Center office proposing the project. The HAF Functional Office also

coordinates all correspondence between SAF/FMCE and the

MAJCOM.

For waiver requests, the HAF Functional Office reviews and

concurs/non-concurs, as appropriate, with MAJCOM requests for

waivers from comparative analysis requirements. Then, the HAF

Functional Office forwards all waiver requests to SAF/FMCE.

SAF/FMCE

Review/approve comparative analysis or approve/disapprove

waiver & return to HAF Functional Office.

SAF/FMCE reviews and approves the comparative analysis or

returns it with questions/comments, as appropriate.

SAF/FMCE reviews and approves/disapproves the request for waiver

from comparative analysis requirements.

When complete, SAF/FMCE returns document(s) to the HAF

Functional Office.

HAF or

Center

Functional

Office

Disseminate complete certified document or approved waiver.

The HAF Functional Office provides copies of the completed

(certified) comparative analysis or approved waiver to the MAJCOM

functional OPR, who will provide completed copies to the Local

Functional Office and the Local FM Office. The Local FM retains a

copy.

Process ends after this step.

A3.6. Deliverables

A3.6.1. The deliverable for the Comparative Analysis Certification Process is a completed and

certified comparative analysis.

A3.6.2. The deliverable for the Request for Waiver from a Comparative Analysis Process is a

completed and coordinated comparative analysis waiver.

72 AFMAN65-506 6 SEPTEMBER 2019

A3.7. Exit Criteria - Exit criterion for the comparative analysis certification process or the request

for waiver from a comparative analysis process is the completion and distribution of the

deliverable(s).

A3.8. Required Format

A3.8.1. Use the format below for certifying comparative analyses unless otherwise specified.

For the alternatives listed on the certificate, include the feasible alternatives considered in the

analysis.

A3.8.2. Use the format in Attachment 4 for coordinating on a Request for Waiver from a

Comparative Analysis unless otherwise specified.

AFMAN65-506 6 SEPTEMBER 2019 73

Figure A3.2. Certificate of Satisfactory Comparative Analysis.

74 AFMAN65-506 6 SEPTEMBER 2019

Attachment 4

REQUEST FOR WAIVER FROM THE COMPARATIVE ANALYSIS REQUIREMENT

A4.1. Use the format below to request a waiver from the comparative analysis

requirement. Detailed instructions on waiver criteria are found in AFI 65-501, paragraph 1.6.

The Waiver Request approval process is described in Attachment 3 of this manual.

A4.2. Supporting justification and documentation is required to: Be attached to all waiver

requests.

AFMAN65-506 6 SEPTEMBER 2019 75

Figure A4.1. Request for Waiver from a Comparative Analysis.

76 AFMAN65-506 6 SEPTEMBER 2019

Attachment 5

COMPARATIVE ANALYSIS PREPARER’S GUIDE

A5.1. This is a guide for preparers of comparative analyses. It is intended to assist in

performing a comparative analysis. It is like a checklist, but the intention is for it to go beyond

the mere listing of items that must be included in the comparative analysis document. It provides

a narrative description of the thought processes behind performing a comparative analysis, and is

organized consistent with the organization of a comparative analysis so the preparer can use it as

an outline when developing and documenting the comparative analysis.

A5.2. What is a Comparative Analysis?

A5.2.1. A comparative analysis is a decision analysis that identifies alternatives and presents

defendable economic and technical arguments (to include costs, benefits, and uncertainty) for

and against each alternative leading to an assessment of each alternative’s ability to achieve

stated objectives and the associated costs.

A5.2.2. Names for comparative analyses include Economic Analysis, Business Case Analysis,

Cost-Benefit Analysis, Capability Analysis, and Analysis of Alternatives, among others.

Figure A5.1. Format of a Comparative Analysis.

A5.3. Certificate of Satisfactory Comparative Analysis: This is the first page of a typical

comparative analysis package. It should follow the format shown in the sample Certificate of

Satisfactory Comparative Analysis at the end of Attachment 3. In the Certificate:

AFMAN65-506 6 SEPTEMBER 2019 77

A5.3.1. Each FM certifier must certify that the comparative analysis complies with the guiding

regulations (AFI 65-501 and AFMAN 65-506) and that it reasonably reflects the costs and

benefits of the alternatives presented.

A5.3.2. Each Functional OPR certifier must certify that the assumptions, reasoning and

functional technical assessments in the comparative analysis are sound and are consistent with

their functional area of technical expertise.

A5.3.3. Make sure that: The certificate follows the format shown in the sample Certificate of

Satisfactory Comparative Analysis at the end of Attachment 3.

A5.3.3.1. It states the Installation name, MAJCOM, and Project Title. If the project has a

Project Number (e.g., MILCON economic analyses), it should be included, as well.

A5.3.3.2. It states all feasible alternatives that were considered in the analysis.

A5.3.3.3. It includes this statement, which describes what the FM certifier is certifying

about the analysis: “This comparative analysis follows the instructions in AFI 65-501and

the procedures in AFMAN 65-506. Significant changes to project scope, major

assumptions, or estimated costs will invalidate this certificate and require revision of this

analysis.”

A5.3.3.4. It also includes this statement, which describes what the Functional certifier is

certifying about the analysis: “The assumptions, reasoning, and functional technical

assessments in this comparative analysis are sound with respect to the function

implementing this program/project.”

A5.3.3.5. There are signature blocks for the installation Financial Management Analysis

(FMA), FM, and Functional office. For simple administrative reasons, it may be simpler

to do MAJCOM certification on a separate certificate, but if not, the certificate should have

signature blocks for MAJCOM FM and functional offices. Signatures for other offices

should be included as applicable to the analysis.

A5.4. Executive Summary: The Executive Summary briefly summarizes the comparative

analysis and its results.

A5.4.1. It should follow the format in Attachment 2.

A5.4.2. For additional guidance on a Real Property Construction and Repair Analysis

executive summary, see Attachment 11.

A5.5. The Objective: The objective should state the requirement each alternative must meet.

Make sure that:

A5.5.1. The objective stated is the objective of the program or project, not of the comparative

analysis. It should state the requirement that each alternative is designed to fulfill, like “The

objective is to provide family housing that meets Air Force standards to 350 military families

at Yodel AFB.” Note that the objective in this example should not be to conduct a comparative

analysis on military family housing. The objective revolves around what the analyst is trying

to obtain or accomplish.

78 AFMAN65-506 6 SEPTEMBER 2019

A5.5.2. The objective stated addresses the root problem. Seeking solutions to the wrong

problem, or a poorly stated problem, often leads to the wrong solution due to missed

alternatives, faulty assumptions, etc. Pictorial displays of processes or data (e.g., a flow chart)

can assist in ensuring a complete understanding of the problem.

A5.5.3. The objective stated is not so narrow that it eliminates reasonable alternatives.

A5.5.4. The objective is not slanted in such a way that the comparative analysis that follows

naturally leans towards preferring any particular alternative (also known as “pre-selection

bias”), nor does it unreasonably rule out others.

A5.6. Facts, Ground Rules, and Assumptions: Make sure that:

A5.6.1. Facts are documented and sources are provided.

A5.6.2. Assumptions are not used in place of discoverable facts.

A5.6.3. All assumptions are reasonable and not too restrictive. Do not use assumptions that

unduly restrict the study by eliminating possible significant alternatives or by narrowing the

scope of consideration. Likewise, assumptions should not unfairly penalize one or more

alternatives. If there is any question, include a brief explanation about why each assumption

was made.

A5.6.4. The period of analysis is consistent with the type of analysis.

A5.6.5. The most recent discount rates are used.

A5.6.6. The most recent applicable inflation rates are used.

A5.6.7. Applicable/appropriate escalation indices are used to normalize and forecast costs.

A5.6.8. There is a ground rule about the type of dollars used in the document (e.g., FY19

constant year dollars).

A5.6.9. There are assumptions about economic life, depreciation, and residual value.

A5.6.10. Assumptions made in the analysis can reasonably be expected to represent the most

likely condition, and are properly supported.

A5.6.10.1. When an assumption is given a value in the analysis, ensure the baseline value

is reasonable and not too optimistic or pessimistic.

A5.6.11. The analysis does not assume away costs, especially significant ones. If minor costs

are assumed away, include a reasonable explanation.

A5.6.12. Assumptions are examined to determine if they should be included in the Uncertainty

Analysis. Assumptions impose a limitation or a judgment. It is important to assess the impact

of limitations and judgments contained in significant assumptions. Uncertainty analysis

examines the effect that major uncertainties in assumed values have on analysis results.

A5.7. Alternatives: This section of the comparative analysis should list and describe all

reasonable methods of satisfying the objective. Make sure that:

A5.7.1. All reasonable alternatives are discussed. It is important to discuss all seemingly

reasonable alternatives even if some are subsequently determined to be infeasible. That way,

later readers/reviewers will know that all reasonable alternatives were considered.

AFMAN65-506 6 SEPTEMBER 2019 79

A5.7.2. All alternatives determined to be infeasible have a convincing explanation as to why

that is the case. Explain how the determination of infeasibility was arrived at. The explanation

should assume the reader is not familiar with the project or program, or the location at which

the project or program will be implemented. Infeasible alternatives are not analyzed any

further after this point.

A5.7.3. Alternatives are sufficiently different from each other as opposed to a superficial

restructuring of a single course of action.

A5.7.4. Contract and other government agency alternatives are considered where reasonable.

A5.7.5. The status quo is used as a baseline for alternative evaluation where possible.

A5.7.6. The explanation of each alternative describes what would have to be done to

implement the alternative if it were to be selected, and that the explanation is written as if the

reader were unfamiliar with the project. Make sure that all aspects of the alternative that

differentiate it from other alternatives in ways that influence costs and benefits are adequately

described.

A5.7.6.1. Use the standard that the descriptions should not leave readers/reviewers

confused over why certain costs or benefits are included in some alternatives, but not

others.

A5.7.6.2. For example, when a Supply Warehouse comparative analysis includes

acquisition costs for new material handling equipment in Alternative 2 but not any other

alternatives, the description of Alternative 2 should explain the reason, such as this

equipment is required only if the warehouse function were to relocate to a different facility,

due to the different configuration of that facility.

A5.7.7. When faced with an environment where key variables in the analysis are changing, or

are expected to change in the near future, these changes are incorporated into the base case. In

this situation, the analysis may include just this “revised” base case, or both a status quo

without the changes and a base case with the changes.

A5.7.8. All significant interfaces with existing systems or projects are adequately considered

in developing the alternatives. Proper treatment of alternatives requires careful examination

of how the proposed alternatives affect and are affected by related systems or projects. This

examination is crucial in areas such as transportation and management information systems.

A5.7.9. Combinations of Systems or Projects are considered among the alternatives. Consider

viable alternatives based on mixtures of two or more efforts that combine the best features of

each. For example, in a management information system analysis, one alternative might be a

manual system and another might be an automated system. If feasible, a third might be a

combination of a manual and an automated system.

A5.8. Cost Analysis: This section of the comparative analysis describes the cost estimating

methodologies used in the analysis and presents the costs and revenues, as applicable, for each

alternative. Make sure that:

A5.8.1. The costs and revenues are labeled with their type of dollars as well as the associated

FY (e.g., then-year FY18 dollars, FY12 constant dollars). Check that all totals and other

calculations are completed with the same type of dollars.

80 AFMAN65-506 6 SEPTEMBER 2019

A5.8.2. Each alternative’s costs and revenues are, as a minimum, reported in present value

dollars. The report may also include reporting in other types of dollars.

A5.8.3. Revenue estimates are based on realistic assumptions, are computed in the same type

dollar as any costs in the same alternative and have realistic phasing.

A5.8.4. If part of the analysis report identifies funding required by FY in order to facilitate

budget preparation, those dollars are presented in then-year dollars for that section of the

analysis and analysis report.

A5.8.5. Investment costs and recurring costs are properly categorized.

A5.8.6. The costs and revenues for each alternative are estimated as if that alternative was

actually going to be implemented, and ALL relevant costs and revenue that are incremental to

the decision are included. Exceptions are noted in paragraphs A5.8.1.13 and A5.8.1.14.

A5.8.7. Direct and indirect costs all have been considered and included, as appropriate.

A5.8.7.1. Ensure the level and details of costs in the analysis provide enough information

for the decision maker.

A5.8.7.2. Ensure costs and related estimating techniques are adequately described and the

alternatives remain comparable even when different estimating techniques are used for

each alternative.

A5.8.7.3. Items determined to be cost avoidance are not included in the cost analysis. For

example, productivity improvements sometimes lower costs and results in savings when

compared to other alternatives, but sometimes productivity improvements result in cost

avoidances, not savings. If an alternative is estimated to save 100 hours per year, but no

manpower positions would be eliminated, then the manpower costs are not reduced. In

this situation, productivity improvements are cost avoidance benefits and are captured as

hours in the Benefits Analysis section.

A5.8.7.4. Cost avoidance also includes a reduction in some future resource requirement

which: (a) has not been included in an approved (funded) Air Force program or function

within the Future Years Defense Program, and (b) would not be reasonably assumed to be

included in an Air Force approved program beyond the Future Years Defense Program.

These cost avoidances are also not included in the cost analysis. They are incorporated

into the benefit analysis.

A5.8.8. All discounting calculations are correct.

A5.8.8.1. As required by paragraph 4.5.7.4.1, use midyear discount factors (vice End-of-

Year factors).

A5.8.8.2. Any use of End-of-Year or other factors should be explained in the Assumptions

section.

A5.8.9. Appropriate inflation and cost escalation indices are used, and that they are applied

properly. AFMAN 65-502 provides information on how to appropriately make these

adjustments.

A5.8.10. The time phasing of cash flows is realistic.

A5.8.11. Cost collection aggregation and normalization is reasonable.

AFMAN65-506 6 SEPTEMBER 2019 81

A5.8.12. Confidence levels are reported for any cost estimate that assessed cost risk. If cost

risk was assessed in the estimate for one alternative, cost risk is included for other alternatives,

where appropriate, and all alternatives are evaluated at similar confidence levels.

A5.8.13. Common costs are treated the same for all alternatives. These costs need not be

included in the comparative analysis. Since these costs are common to all alternatives, there is

no value added to comparing them across alternatives, although there is no problem with

including them, and for obvious cost items, they often are. Later readers (e.g., Commanders,

reviewers) may wonder why there is no cost for an obvious cost element when they read the

comparative analysis.

A5.8.14. Only differential costs are included if the cost estimate is a delta estimate. To avoid

confusion for those readers who may be unfamiliar with this concept, its use should be

explained as a ground rule and in the cost section. If there are multiple alternatives, the

differential costs should all be taken from the same reference point, typically the status quo.

A5.8.15. Sunk costs are not included in the analysis. These costs will be incurred regardless

of any decision the decision-maker makes. The purpose of comparative analyses is to help

decision-makers make choices about resource allocation, and any costs beyond the control of

the decision-maker should not play a part in the decisions.

A5.8.16. Costs incurred in foreign currency are converted at the known or estimated exchange

rate of the base year of the analysis, NOT the Foreign Currency Fluctuation Account budget

rate. Include an explanation of the exchange rate being used and its source. The Assumptions

section is a typical location for this explanation.

A5.9. Benefit Analysis: This section of the comparative analysis identifies, measures, and

evaluates the non-monetary benefits of the proposed alternatives. Make sure that:

A5.9.1. The Benefits Analysis includes all non-monetary benefits.

A5.9.1.1. Generally speaking, only non-monetary benefits are included in this section.

The only benefit measured in terms of dollars is a reduction in some future resource

requirement which: (a) has not been included in an approved (funded) Air Force program

or function within the Future Years Defense Program, and (b) would not be reasonably

assumed to be included in an Air Force approved program beyond the Future Years

Defense Program.

A5.9.1.2. Reduced costs and increased revenues are included in the Cost Analysis.

Although these are positive, beneficial attributes, they are monetary in nature and are not

addressed in the Benefit Analysis.

A5.9.1.3. Any items identified as cost avoidance are included in the Benefit Analysis and

not included in the Cost Analysis.

A5.9.2. Benefits primarily relate to the project objective. There may also be ancillary benefits

gained from a particular alternative. These ancillary benefits can be recognized in the analysis,

but should be secondary to those benefits that are directly related to the project objective.

A5.9.3. Benefits realized in the past are not included in the analysis. Similar to sunk costs,

these have already been received and the decision cannot change that.

82 AFMAN65-506 6 SEPTEMBER 2019

A5.9.4. Benefits are clearly defined and that they are mutually exclusive. The analysis should

not double count anything. To avoid double counting, review benefits to ensure they are not

already captured in another benefit or in the Cost Analysis.

A5.9.5. A weighting system is used if all benefit measures are not of equal importance in the

analysis/decision. A weight system adjusts the level of impact each benefit has on the analysis.

A5.9.6. Quantitative benefits are included in the analysis in the units in which they naturally

occur, unless they are converted to percentages.

A5.9.7. Benefit measuring techniques are properly defined and supported.

A5.9.7.1. Ensure that prioritization (i.e., weighting) of benefits is logical and consistent.

A5.9.7.2. For any scored benefits, ensure the scoring approach is applied consistently

across alternatives and the assigned scores are reasonable.

A5.9.8. The timing of the benefits is considered for future systems. The benefits of a proposed

future system often depend on when it will be available for operational use and the total

operational life span (economic life) of the system. In examining the effect of the time

dimension on benefits, pay particular attention to the time between the present and the initial

operational availability of the complete system.

A5.9.9. The impact of other operations are considered. Sometimes the system or organization

interfaces with other systems or organizations to the point where its operations affect and are

affected by the operations of the other. For example, peak use of power, or vehicles, or people

may have detrimental effects on related projects or activities. Consider the “ripple effect.”

A5.9.10. If risk elements are analyzed (see section 6.3.2 of this manual) and are analyzed as

part of the benefits analysis, ensure their treatment is consistent with the treatment of other

benefits to the maximum extent possible. If consistent treatment is not possible, (e.g., risk

assessment is narrative while other benefits are quantified), explain how the risk elements are

to be evaluated in the overall benefits analysis.

A5.10. Uncertainty Analysis, Including Sensitivity Analysis and Risk: An Uncertainty

Analysis includes a Sensitivity Analysis and may include a Risk Analysis. A Sensitivity Analysis

tests the effect that uncertain assumptions have on the results of the alternatives relative to each

other. A Risk Analysis evaluates risk to program execution (cost, schedule, performance) and risk

to the Air Force for each alternative. Make sure that:

A5.10.1. A sensitivity analysis is performed on all assumptions that have a great deal of

uncertainty and a significant impact on analysis results.

A5.10.1.1. For quantitative assumptions, a useful technique is to vary the value of the

assumption across the range of probable values. This type of analysis will show not only

how sensitive results are to changes in the assumption’s value, but should also reveal the

nature of the relationship between the assumption’s value and analysis results (e.g., linear,

exponential).

A5.10.1.2. For qualitative assumptions, a useful technique is to try to make other plausible

major assumptions. If these invalidate the study’s results, then the results are not robust in

this area. Ensure this is discussed in the analysis.

AFMAN65-506 6 SEPTEMBER 2019 83

A5.10.2. A sensitivity analysis is considered for all cost elements that constitute a high

percentage of total life cycle costs. Similarly, ensure a sensitivity analysis is considered for

benefits with a large relative weight.

A5.10.3. If the benefits derived in the analysis depend on the assumptions, some consideration

has been made to determine the degree of dependence. Generally a good analysis will show

the degree of dependence through various kinds of sensitivity analyses.

A5.10.4. If the PVs of the two lowest-cost alternatives are close, a sensitivity analysis is

performed on the most uncertain assumption(s) of the alternatives, and if it shows a change in

the cost ranking of alternatives, this should be pointed out in the Summary and Comparison of

Alternatives section. Identify the crossover points for each assumption.

A5.10.5. Scenario analysis is considered if the decision-maker would benefit from the

information gained by analyzing changes to multiple variables simultaneously or if a change

in one variable almost always impacts a different variable and they should be examined

together.

A5.10.6. The comparative analysis describes what was done in the Sensitivity Analysis and,

at least briefly, state its results. Do not just rely on graphs and charts. Explain what they mean.

A5.10.7. The study includes adequate sensitivity analyses in light of the time and resources

allotted to the study, the magnitude of the proposed investment, and the likelihood additional

analyses would significantly affect the study results. At the minimum, assumptions with

uncertainty and a large effect on analysis results and variables comprising a large percentage

of costs should be considered for a Sensitivity Analysis.

A5.10.8. A risk analysis is included, if warranted.

A5.10.8.1. Is there reason to believe that the level of risk associated with any alternative

will likely be a key consideration for the decision-maker?

A5.10.8.2. Is significant execution risk (i.e., cost, schedule, or performance) associated

with the alternatives?

A5.10.8.3. Did the decision-maker direct a risk assessment?

A5.10.8.4. Is there significant uncertainty associated with the assumptions in the benefits

analysis?

A5.10.9. If a risk assessment is included:

A5.10.9.1. Adequately explain the risks.

A5.10.9.2. Ensure subject matter expertise underlies the risk assessment.

A5.10.9.3. Only assess political risk if the requirements of section 6.3.7 are met.

A5.10.9.4. If risk mitigation measures are assumed when assessing the risk of an

alternative, include the costs of those mitigation measures in the cost analysis.

A5.10.9.5. Include elements rated as zero risk in the overall assessment of risk unless they

are common among all alternatives. Leaving those elements out biases the risk assessment.

A5.10.9.6. Include the risk assessment results in the Summary and Comparison of

Alternatives.

84 AFMAN65-506 6 SEPTEMBER 2019

A5.11. Summary and Comparison of Alternatives: This is where the analyst summarizes the

results of the Cost Analysis, Benefit Analysis, and Uncertainty Analysis for each alternative

compares the strengths and weaknesses of each alternative with respect to the other alternatives,

and explains the implications of the results. Make sure that:

A5.11.1. Summary tables for the cost analysis, benefit analysis, and uncertainty analysis are

provided for areas where analyses have been expressed in quantitative terms.

A5.11.2. Analyses expressed in qualitative terms are summarized in narrative form.

A5.11.3. A brief narrative explanation of the summarized cost and benefit data and uncertainty

assessment, as well as any measurements and indicators, is included.

A5.11.4. All criteria for comparison are identified. The criteria, or characteristics of cost,

schedule, and performance, are the bases for the conclusions.

A5.11.5. All criteria are stated clearly. Decisions will likely be based on them.

A5.11.6. Each alternative’s relative strengths and weaknesses are compared.

A5.11.6.1. At a minimum, ensure comparison of the present value of costs and revenues

for all alternatives.

A5.11.6.2. At a minimum, ensure benefits of all alternatives are narratively compared.

A5.11.6.3. Ensure present value calculations and other comparison metrics are

accomplished in accordance with Attachment 7.

A5.11.6.4. Ensure any requirements for special analyses are adhered to (e.g., inclusion of

a return on investment calculation for economic analyses required for Clinger-Cohen Act

certification).

A5.11.7. Ensure the alternative comparison techniques are appropriate for the project being

evaluated.

A5.11.8. Any interpretation in this section is consistent with the interpretation in the Executive

Summary. Sometimes, changes made in one of these do not catch up to the other sections

before the documentation is finalized.

A5.11.9. The rationale behind any recommendation is explained. A recommendation is not

required, but may be provided by the analysis team.

A5.11.10. The analyst/comparative analysis preparer should encourage the decision-maker at

each level to prepare a memo stating which alternative they prefer. All such memos should be

included with the comparative analysis.

A5.12. Attachments & Appendices - Supporting Documentation: This is everything that

serves as the basis for the analysis. Each comparative analysis should be a stand-alone document.

Therefore, it should include copies of source data and all calculations used to turn the source data

into comparative analysis inputs (e.g., normalization calculations). A reviewer should be able to

understand the comparative analysis without having to look at anything else. They should be able

to replicate the comparative analysis using the source data and documentation.

A5.13. This is the end of the Preparer’s Guide. For more assistance in preparing a comparative

analysis, contact the MAJCOM’s FM Office, AFIMSC/RMC, or SAF/FMCE.

AFMAN65-506  6 SEPTEMBER 2019  85 
Attachment 6 
COMPARATIVE ANALYSIS REVIEWER/CERTIFICATION GUIDE 
A6.1.  This  is  a  guide  for  reviewers  and  certifiers  of  comparative  analyses.  It  is  like  a 
checklist, but the intention is for it to go beyond the mere listing of items to check.  It provides a 
narrative  description  of  the  thought  processes  behind  a  comparative  analysis  review,  and  is 
organized consistent with the organization of a comparative analysis, so that a reviewer can go 
through the guide while going through the comparative analysis.  It takes the form of questions, 
followed by a brief identification of the issue being highlighted.A6.2   It will help to begin by 
describing what a Comparative Analysis is: 
A6.2.  A comparative analysis is  : A decision analysis that identifies alternatives and presents 
defendable economic and technical arguments (to include costs, benefits, and uncertainty) for and 
against each  alternative  leading to  an assessment  of  each alternative’s ability to  achieve stated 
objectives and the associated costs.  Names for comparative analyses include Economic Analysis, 
Business Case Analysis, Cost-Benefit Analysis, Capability Analysis, and Analysis of Alternatives, 
among others. 
A6.3.  Certificate of  Satisfactory Comparative Analysis:  This  is  the  first  page of a  typical 
comparative analysis package.  It should follow the format shown in the sample Certificate of 
Satisfactory Comparative Analysis at the end of Attachment 3. 
A6.3.1.  There should be signature blocks for the installation FMA, FM, and functional office.  
For simple administrative reasons, it may be simpler to do MAJCOM certification on a separate 
certificate, but  if not,  the  certificate  should  have  signature  blocks  for  MAJCOM  FM and 
Functional offices. 
A6.3.2.  Check to see that all FM and Functional Office OPRs at lower levels have certified 
(i.e., signed) the comparative analysis.  It should be certified by all FM and Functional Office 
OPRs at lower levels before the reviewer assesses the document at the current level. 
A6.3.2.1.  Each  FM  certifier  certifies  that  the  comparative  analysis  complies  with  the 
guiding regulations (AFI 65-501 and AFMAN 65-506) and that it reasonably reflects the 
costs and benefits of the alternatives presented. 
A6.3.2.2.  Each  Functional  OPR  certifier  certifies  that  the  assumptions,  reasoning  and 
functional technical assessments in the comparative analysis are sound and are consistent 
with their functional area of technical expertise. 
A6.3.2.3.  The FM or Functional reviewer will be expected to certify (i.e., sign) the analysis 
when thereview is complete.  By doing so, the reviewer will be acknowledging agreement 
with either paragraph A6.3.2.1 or A6.3.2.2, depending on whether the reviewer is an FM 
certifier or a Functional OPR certifier. 
A6.3.3.  What to look for: The certificate should: 
A6.3.3.1.  Follow the format shown in the sample Certificate of Satisfactory Comparative 
Analysis at the end of Attachment 3. 
A6.3.3.2.  State the Installation name, MAJCOM, and Project Title.  If the project has a 
Project Number (e.g., MILCON economic analyses), it should be stated, as well. 

86 AFMAN65-506 6 SEPTEMBER 2019

A6.3.3.3. State all alternatives that were considered in the analysis, even if any of them

were deemed infeasible.

A6.3.3.4. Include this statement, which describes what the FM certifier is certifying about

the analysis: “This comparative analysis follows the instructions in AFI 65-501, and the

procedures in AFMAN 65-506. Significant changes to project scope, major assumptions,

or estimated costs will invalidate this certificate and require revision of this analysis.”

A6.3.3.5. Include this statement, which describes what the Functional certifier is certifying

about the analysis: “The assumptions, reasoning, and functional technical assessments in

this comparative analysis are sound with respect to the function implementing this

program/project.”

A6.4. Executive Summary: The Executive Summary should briefly summarize the comparative

analysis and its results.

A6.4.1. The Executive Summary should follow the format in Attachment 2.

A6.4.2. For additional guidance on a Real Property Construction and Repair analysis

executive summary, see Attachment 11.

A6.5. Objective: The objective should state the requirement each alternative must meet. It is the

reason the project has been proposed. What to look for:

A6.5.1. Does the stated objective address the real problem? Critical to the successful

completion of a comparative analysis is the identification and clear statement of the correct

objective. Often symptoms and not the disease are believed to be the problem. Seeking

solutions to the wrong problem, or a poorly stated problem, almost always leads to the wrong

solution due to missed alternatives, faulty assumptions, etc.

A6.5.2. Is the objective statement too narrow? Does it unnecessarily eliminate reasonable

alternatives?

A6.5.3. Does the objective statement favor one alternative over another?

A6.5.4. Does the objective statement identify all significant pieces of the problem? The

analysis addresses the objective statement. Therefore, the objective statement must fully

identify, consider, and address all facets of the problem. Look for significant problem

components that are not identified and addressed.

A6.6. Facts, Ground Rules, and Assumptions: What to look for:

A6.6.1. Are all assumptions identified? Look for assumptions that are not identified since

assumptions imply a limitation or a judgment. Assessing the impact of limitations and the

validity of judgments contained in all assumptions is necessary. A common assumption,

seldom made explicit, is that a given organization or system operates by itself. Such an

assumption can contribute to inadequate consideration of support provided and complementary

outputs produced by related systems. This can lead to improper measurement of total costs

and benefits and erroneous conclusions. As a minimum, this section should:

A6.6.1.1. Identify facts and their sources.

A6.6.1.2. Include a ground rule about the type of dollars used in the analysis (e.g., FY19

constant year dollars).

AFMAN65-506 6 SEPTEMBER 2019 87

A6.6.1.3. State the inflation and escalation rates used and their sources.

A6.6.1.4. State the discount rates used. They should be the most recent discount rates

published in OMB Circular A-94, Appendix C.

A6.6.1.5. Include assumptions about economic life, depreciation, and residual value.

A6.6.2. Are any assumptions used in place of discoverable facts?

A6.6.3. Are the major assumptions reasonable? All major assumptions should be examined

at each level of review by either a FM or Functional OPR to determine if they are reasonable

with respect to their area of expertise.

A6.6.4. Are the assumptions unduly restrictive? Assumptions, when properly used, narrow

the scope of a comparative analysis to manageable proportions. However, the assumptions

should not unduly restrict the study, thereby eliminating possible significant alternatives or

narrowing the scope of consideration. This examination should continue throughout the review

of the analysis and not only during the initial review of the stated assumptions.

A6.6.5. Do any of the major assumptions incorrectly treat a variable whose value has inherent

uncertainty as a fact?

A6.6.5.1. Uncertainty can be defined as the lack of reliable knowledge to assign values or

probabilities to factors influencing analysis results. Uncertainties can be quantitative or

qualitative.

A6.6.5.2. The reviewer should be alert to major assumptions, either stated or implied,

assigning fixed values to variables subject to uncertainty--the assigned values then being

treated in the analysis as facts.

A6.6.5.3. Examples of quantitative variables that have inherent quantitative uncertainty

are: projected workloads, personnel retention rates, equipment usage rates, and availability

and reliability rates. If a quantitative variable’s value that has inherent uncertainty is

treated as a fact, check to see if the assumption is included in the Uncertainty Analysis

(addressed in Chapter 6). Major qualitative uncertainties treated as assumptions can also

affect results.

A6.6.5.3.1. Examples of variables that have inherent qualitative uncertainty are:

availability of community services, availability of spare part manufacturers, and

advances in technology that lead to new equipment capabilities.

A6.6.5.3.2. Political considerations, such as availability of base rights, assurance of

overflight permission, and the character of future environmental standards are also

examples of qualitative variables with inherent uncertainty, and can sometimes make

the difference between an alternative being feasible or not. Treatment of these kinds

of uncertainties is not easy, but if they are important to analysis results, a good analysis

will address them, even if only narratively. Sometimes these variables’ values can have

a limited number of discrete values (e.g., “yes” or “no”; “low”, “medium” or “high”).

For this type of qualitative variable, the Uncertainty Analysis can show how different

assumptions have an impact on analysis results. A study of alternative waste disposal

systems thus might investigate the effects of increasingly severe environmental

standards and the possible use of improved filtration processes.

88 AFMAN65-506 6 SEPTEMBER 2019

A6.6.5.4. Does the analysis assume away any costs? The analysis cannot simply assume

away costs. A red flag should go up any time a reviewer see something like this. If minor

costs are assumed away, ensure there is a reasonable explanation. Depending on the

reasons given, it may be justified, but ensure it passes the sanity check.

A6.7. Alternatives: This section of the comparative analysis should list and describe all

reasonable methods of satisfying the objective. What to look for:

A6.7.1. Are all seemingly reasonable alternatives considered?

A6.7.1.1. If the reviewer can think of an alternative that could achieve the objective, but

that was not mentioned and discussed in the comparative analysis, then the analysis should

probably be returned for further work. If the alternative is feasible, it should be included

in the analysis. If the alternative is not feasible, it should be mentioned and the reasons for

its infeasibility explained. It is the analyst’s responsibility to state the relevant facts and

explain why the alternative is infeasible.

A6.7.1.2. Are all feasible alternatives analyzed?

A6.7.2. Are current capabilities or the "base case" adequately considered?

A6.7.2.1. Current capabilities should be considered when constructing alternatives except

for clearly stated valid reasons. Valid reasons may include inability of the current system

to accomplish the proposed objective. Current capabilities, where applicable, should also

be considered as part of a proposed alternative.

A6.7.2.2. If the current system is included as an alternative in an analysis, it should be

identified as the Status Quo, or the baseline or base case. The analysis should concentrate

on the differences in costs and benefits expected to result from the implementation of the

other proposed alternatives versus the baseline. This is proper provided the base case is a

feasible alternative; that is, capable of achieving the stated objectives.

A6.7.2.3. If key variables (e.g., projected workload, legislation) in the base case are

changing, or are expected to change in the near future, does the base case adequately

address the evolving environment? One possible way the analysis can consider the changes

is for it to include a “revised” or “modified” base case, or both a status quo without the

changes and a base case with the changes.

A6.7.3. Is the implementation of each alternative described? It should be clear to the reviewer

what will have to be done to implement each alternative if it were to be selected. Ensure, at a

minimum, that aspects of the alternative that differentiate it from other alternatives in ways

that influence costs and benefits are adequately described.

A6.7.3.1. The reviewer should not be confused over why certain costs or benefits are

included in some alternatives, but not others.

A6.7.3.2. For example, when a Supply Warehouse comparative analysis includes costs for

new material handling equipment in Alternative 2, but not any of the other alternatives,

the description of Alternative 2 should explain the reason, such as this equipment is

required only if the warehouse function were to relocate to a different facility, due to the

different configuration of that facility.

AFMAN65-506 6 SEPTEMBER 2019 89

A6.7.4. Are combinations of systems or projects considered among the alternatives? Given

two or more viable alternatives, would an alternative based on a mixture of two or more

alternatives that combine the best features of each be reasonable? For example, in a

management information system analysis, one alternative might be a manual system and

another might be an automated system. If feasible, a third might be a combination of a manual

and an automated system.

A6.7.5. Are all significant interfaces with existing systems or projects adequately considered

in developing and describing the alternatives? Proper treatment of alternatives requires careful

examination of how the proposed alternatives affect and are affected by related systems or

projects. The need for this examination is crucial in areas such as transportation and

management information systems.

A6.8. Cost Analysis: This section of the comparative analysis describes the cost estimating

methodologies used in the analysis and presents the costs and revenues, as applicable, for each

alternative. What to look for:

A6.8.1. Are all the costs and revenues labeled with their type of dollars, as well as with their

associated FY (e.g., FY18 then-year dollars, FY12 constant dollars)? Check that all totals or

other calculations are completed with the same type of dollars.

A6.8.2. Are cost models identified? A cost model implements the methodology used to

construct the cost estimate. These models may be complex and computer assisted or may

consist of a few relatively simple equations readily computed by hand. The study should

identify and describe all cost models used so the reviewer or decision maker can determine the

validity of the model used and how the cost estimates were derived. If the documentation does

not permit the reviewer to do this, then more information is required.

A6.8.3. Are the cost estimating relationships valid? Does the cost estimating methodology

make sense?

A6.8.3.1. Cost estimating relationships may be unsophisticated cost factors, simple

extrapolation of recent experience, or complex equations with many variables. In all cases,

the purpose of a cost estimating relationship is to translate a characteristic or a specification

of a physical resource (e.g., aircraft weight) or conceptual resource (e.g., lines of code) into

a cost.

A6.8.3.2. Cost estimating relationships should be based on current data, or distorted

estimates may result. For example, the purchase price per pound for engines has increased

over the years due to changes in metal alloy technology (advanced alloys are lighter, but

cost more per pound to produce), and the maintenance cost per flying hour for aircraft has

increased significantly over the past years as more sophisticated aircraft have been

introduced into the force structure.

A6.8.4. Are all relevant costs and revenues that are incremental to the decision included in

constructing the cost estimate? Deciding which costs are relevant requires analysis and

judgment. Preparing a universal list of always-relevant costs is not possible. Ideally, the

analysis should indicate why certain costs were considered relevant and why others were

omitted. Are revenue estimates based on realistic assumptions and computed in the same type

dollar as the costs in the same alternative?

90 AFMAN65-506 6 SEPTEMBER 2019

A6.8.5. Is the time phasing of all cash flows realistic?

A6.8.6. Are any cost avoidance items included in the cost analysis? For example,

productivity improvements sometimes lower costs (and result in savings when compared to

other alternatives), but sometimes only result in cost avoidances. If an alternative is estimated

to save 100 hours per year, but no manpower positions will be eliminated, then manpower

costs will not be reduced. In this situation, productivity savings should be captured as cost

avoidances in the Benefits Analysis section, not as savings in the Cost Analysis section.

A6.8.7. Are sunk costs and inherited assets properly treated?

A6.8.7.1. Inherited assets are those resources such as installations, equipment, and trained

personnel inherited from efforts that are being phased out. Sunk costs are costs already

expended or irrevocably committed. The costs pertinent to decision making are those yet

to be incurred. These previously incurred or committed costs should be excluded from

comparative analyses.

A6.8.7.2. Including the costs of inherited assets and other sunk costs can produce distorted

cost estimates and financial metrics with consequent effect on the conclusions. On the

other hand, if inherited assets have alternative uses, any relevant costs and benefits should

be included in the analysis.

A6.8.8. Are construction costs included? The costs for additional installations or facilities are

sometimes overlooked, yet these costs can be significant. Costs of facility rehabilitation should

also be included.

A6.8.9. Are replacement, consumption, and maintenance costs included? Cost estimates for

major equipment items should include not only the acquisition of the operational equipment,

but also costs for the additional items required for initial inventory and operations and

maintenance for the life of the system (e.g., replacement parts, overhauls).

A6.8.10. Are all training costs included? The resource implications of training personnel can

be significant. Initial training costs represent the resources for training personnel necessary for

introduction of the alternative. The availability of fully trained personnel and the number of

personnel requiring complete or transitional training is the initial resource required. Annual

training costs represent the resource implications for maintaining currency/certifications and

training replacements. These replacements are required because of usual attrition.

A6.8.11. Are all directly related support costs incremental to the decision included in the cost

estimate? Cost estimates of systems or organizations should include the marginal cost of those

other units or elements required in direct support.

A6.8.12. Are investment costs and recurring costs properly categorized?

A6.8.13. Are the cost data accurate?

A6.8.13.1. Cost data can be from many different sources and the reviewer cannot check

all cost data for accuracy. However, the reviewer should consider whether the sources of

data are authoritative and spot check for accuracy. Cost data furnished by manufacturers

should be viewed critically. These cost data may be understated, particularly for new or

advanced projects. Advanced system costs stated as an exact figure rather than presented

as a range with estimated lower and upper values are particularly suspect.

AFMAN65-506 6 SEPTEMBER 2019 91

A6.8.13.2. Great accuracy in cost estimates is often not feasible. In fact, in dealing with

costs of future acquisition, having a range of possible costs (i.e., upper and lower values)

is usually more realistic than a single point cost estimate that implies no uncertainty. The

analysis should use the most likely cost in the estimate, but vary costs with uncertainty in

a sensitivity analysis.

A6.8.14. Are price escalation and inflation appropriately addressed and properly applied?

AFMAN 65-502 provides information on how to appropriately make these adjustments.

A6.8.15. Are costs presented in terms of present value? As explained in paragraph 4.5.6.4.1.,

were midyear discount factors used (vice End-of-Year factors)? The costs of proposed

alternatives will differ both in total dollars and in the percentage distribution of the total over

the years included in the period of analysis. The present value, or discounting method, is the

means by which dollars in any year of the analysis can be converted to dollars of the present

so they can be compared. Using midyear discount factors produces consistency in identifying

the resource implications of proposed investments. Any use of End-of-Year or other discount

factors should be explained in the Assumptions section. The report may also present costs in

other types of dollars, but present value dollars is required.

A6.8.15.1. If the analyst prepared the comparative analysis using an Air Force approved

comparative analysis software application, then it is safe to assume all the discounting

calculations were done correctly. If not, spot-check the calculations, including calculations

of the discount factors from the discount rates (or double-check ALL calculations if there

is reason to believe there may be calculation errors).

A6.8.15.2. If part of the analysis report identifies funding required by FY in order to

facilitate budget preparation, those dollars should be presented in then-year dollars for that

section of the analysis and analysis report.

A6.8.16. Are cost aspects of all alternatives treated equally? Inconsistency in handling the

costs of competing alternatives prevents an objective evaluation and can lead to incorrect

conclusions. Realize, though, that using the same cost estimating technique for calculating a

particular cost element for all alternatives is not always possible. The issue is whether the final

dollar estimate accurately reflects the actual resource requirements for the alternative and that

the differences in estimating techniques do not distort the cost results. Are wash/common costs

included in the cost estimate of any of the alternatives? If so, they should be included in the

cost estimate for all alternatives.

A6.8.17. If costs are incurred in foreign currency, have they been converted at the known or

estimated exchange rate of the base year of the analysis, NOT the Foreign Currency Fluctuation

Account budget rate? Verify that an explanation of the exchange rate being used is provided,

as well as its source. The assumptions section is a typical location for this explanation.

A6.9. Benefits Analysis: This section of the comparative analysis identifies, measures, and

evaluates the non-monetary benefits of the proposed alternatives. What to look for:

A6.9.1. Are any monetary (i.e., budget) benefits included in the Benefits Analysis?

A6.9.2. Only non-monetary (non-budget) benefits should be included in this section.

Therefore, cost avoidance items can be included, but no savings. Budgetary effects should be

included in the Cost Analysis.

92 AFMAN65-506 6 SEPTEMBER 2019

A6.9.2.1. Examine any items identified as cost avoidance to ensure they are not actually

savings.

A6.9.3. Are the benefits clearly defined and mutually exclusive? Ensure there is no overlap

in benefits (i.e., double counting of benefits). For example, if upgrading an aircraft’s

propulsion system, two possible benefits that sound different, but likely overlap would be

“Range of Aircraft” and “Air Refueling Tanker Demand.”

A6.9.4. Are the benefits all equal in importance? If not, was a weighting system used to adjust

the level of impact each benefit has on the analysis? If so, does the weighting scheme seem

logical and consistent?

A6.9.5. Are the benefit measuring techniques identified and explained? The study should

clearly identify the standards or measures used for evaluating the quantity of benefits provided

by the alternatives under study. The alternatives cannot be properly evaluated, particularly

when their costs are similar, without proper evaluation of the benefits received.

A6.9.5.1. Are some aspects of benefits received not measurable? The treatment of

immeasurable benefits in the total measurement of benefit should be treated thoughtfully.

A6.9.5.2. Measures of benefit obtained by quantifying study aspects such as morale or

leadership can be misleading. At times, the only practical solution may be a qualitative

discussion of these factors.

A6.9.6. Is the evaluation of benefits based on straight extrapolation? Occasionally a study may

evaluate benefits by straight (linear) extrapolation from the measurement of benefits of a small

unit. For example, a hypothetical study may show that Airmen are twice as happy when the

dining hall serves three entrees rather than one. An extrapolation stating that 21 entrees will

make Airmen 10 times happier (i.e., two additional entrees increase happiness by X, so 20

additional entrees will increase happiness by 10X) may not be justified without supporting

evidence. The potential error in straight line extrapolation is that it disregards the concept of

diminishing marginal utility (i.e., diminishing returns).

A6.9.7. Is the impact of other operations ignored? In measuring the benefits of a system or

organization, consider the effects on other operations. For example, peak use of power, or

vehicles, or people may have detrimental effects on related projects or activities. The "ripple

effect" should be considered.

A6.9.8. Do the benefits of future systems take into account the timing of benefits? The benefits

of a proposed future system often depend on when it will be available for operational use and

the total operational life span (economic life) of the system. In examining the effect of the time

dimension on benefits, pay particular attention to the time between the present and the initial

operational availability of the complete system.

A6.9.9. Is there a reason to believe there is significant execution or schedule risk associated

with the alternatives? If so, risk can be handled either in the Benefits Analysis or the

Uncertainty Analysis sections of the comparative analysis. If it is not in the Benefits Analysis,

make sure an independent risk assessment is included in the Uncertainty Analysis.

A6.9.9.1. The more easily risk can be quantified and measured, the easier it is to handle in

the Benefits Analysis. If the risks are difficult to quantify and measure, it might be more

appropriate to include the risk assessment in the Uncertainty Analysis.

AFMAN65-506 6 SEPTEMBER 2019 93

A6.9.9.2. If the amount of risk is not quantified, is a convincing explanation provided on

why the risk was different across the alternatives and what characteristics drove the risk or

distinguished the alternatives?

A6.9.10. Has the analysis included any benefits that were realized in the past? Like sunk

costs, unless benefits will be received in the future as a result of implementing an alternative,

they should not be recognized as benefits.

A6.10. Uncertainty Analysis, including Sensitivity Analysis and Risk: An Uncertainty

Analysis includes a Sensitivity Analysis and may include a Risk Analysis. Sensitivity Analysis

tests the effect that uncertain assumptions have on the results of the alternatives relative to each

other. A Risk Analysis evaluates risk to program execution (cost, schedule, performance) and risk

to the Air Force for each alternative. What to look for:

A6.10.1. Is a Sensitivity Analysis performed on all assumptions whose value is uncertain and

significantly affects analysis results? The study should clearly explain how sensitive analysis

results (costs and benefits) are to changes in assumption values.

A6.10.1.1. Verify that cost elements that constitute a high percentage of total life cycle

costs were considered for a Sensitivity Analysis. Similarly, verify that benefits constituting

a large relative weight were considered for a Sensitivity Analysis.

A6.10.1.2. If the present values of the two lowest-cost alternatives are very close, a

Sensitivity Analysis should be done on the most uncertain assumption(s) of the alternatives,

and if it shows a change in the cost ranking of alternatives, this should be pointed out in

the Summary and Comparison of Alternatives section.

A6.10.2. Are the processes followed in conducting all sensitivity analyses explained?

Additionally, are the results of each sensitivity analysis explained? Reader of the comparative

analysis should not have to rely solely on graphs and charts. An explanation of the graphs and

charts highlighting the important findings should be included.

A6.10.3. For each sensitivity analysis performed, did the sensitivity analysis consider the

effects of varying variable values across the entire range of reasonable values for the period of

analysis? For example, if the period of analysis is two years and current interest rates are 5

percent, a reasonable range for a sensitivity analysis might be 3-7 percent. However, if the

period of analysis is 20 years, a reasonable range might be 1-10 percent.

A6.10.3.1. If sensitivity analyses show a change in the cost ranking of alternatives, is this

finding pointed out in the Summary and Comparison of Alternatives section?

A6.10.3.2. Are the crossover points for each assumption identified?

A6.10.4. The period of analysis is often not considered to be a subject for sensitivity analysis,

but if one or more alternatives have occasional “balloon” costs (e.g., overhaul of heavy

equipment, replacement of air conditioners, water heaters, washers/dryers, and other durable

goods), it probably should be. For example, would 10 years of operations as opposed to 5

make a significant difference in the relative costs of the alternatives?

94 AFMAN65-506 6 SEPTEMBER 2019

A6.10.5. For qualitative assumptions, were sensitivity analyses considered? A useful

technique is to make other plausible major assumptions (e.g., the use of a Fixed Price contract

versus a Cost Plus contract). If these invalidate the study’s results, then the analysis should

discuss the assumption values that drive the results and try to assess the likelihood of the

different values.

A6.10.6. The number of sensitivity analyses required and feasible is a matter of judgment.

There are limits to the time and manpower available for a given study. At the minimum,

though, a sensitivity analysis should be performed on assumptions with uncertainty and a large

effect on analysis results. Variables comprising a large percentage of costs should also be

considered for sensitivity analysis. The reviewer should have a confident understanding of the

circumstances under which analysis results would change.

A6.10.7. Does the level of risk associated with any alternative have a reasonable likelihood of

being a key consideration for the decision-maker? Or, is a risk analysis required by the type

of analysis or the decision-maker? If so, ensure a risk analysis is performed. If not, a risk

assessment is not required.

A6.10.8. If a risk analysis is included, does it assess the following issues (if appropriate):

A6.10.8.1. Risk that the benefits expected from an alternative may not be achieved. If

there is uncertainty associated with the assumptions in the benefits analysis, a risk analysis

can examine the probability and impact of not achieving the benefit.

A6.10.8.2. The degree of execution risk (i.e., cost, schedule, or performance) associated

with the alternatives.

A6.10.9. Ensure the cost of any risk mitigation measures assumed when assessing the risk of

an alternative are included in the cost analysis.

A6.10.10. Make sure the risks are adequately explained and are included in the Summary and

Comparison of Alternatives section.

A6.10.11. If risk is not quantified, make sure a convincing explanation is provided on why the

risk is different across the alternatives and what characteristics drive the risk or distinguished

the alternatives.

A6.10.12. Ensure risk elements rated as zero risk are included in the overall assessment of risk

unless they are common among all alternatives. Leaving those elements out biases the risk

assessment.

A6.11. Summary and Comparison of Alternatives: This is where the analyst summarizes the

results of the Cost Analysis, Benefit Analysis, and Uncertainty Analysis for each alternative,

compares the strengths and weaknesses of each alternative with respect to the other alternatives,

and explains the implications of the results. What to look for:

A6.11.1. Are the present value of costs and revenues summarized, compared, and discussed

across alternatives? (Ensure cost avoidance is not included in the discussion of costs).

A6.11.2. Are the benefits, both quantitative and qualitative, compared across alternatives?

A6.11.3. Are the results of the Uncertainty Analysis summarized and the assumptions with

crossover points identified?

AFMAN65-506 6 SEPTEMBER 2019 95

A6.11.4. Are summary tables accompanied by a narrative explanation of the summarized cost

and benefit data and uncertainty assessment included?

A6.11.5. Are analyses expressed in qualitative terms summarized?

A6.11.6. Are the criteria for comparison identified? The criteria (i.e., or characteristics of

cost, schedule, and performance) are the bases for the conclusions. The criteria should be

stated specifically and clearly.

A6.11.7. Are the criteria too general? Very general criteria should be suspect. For example,

a study may state a criterion as being "the system with maximum military worth" or the "best

system." These generalizations can be interpreted differently by different people and,

therefore, are not meaningful. Good criteria leave less room for individual interpretation (e.g.,

“the minimum cost of maintaining a specified level of transport capability over a specified

time span.").

A6.11.8. Is the interpretation of results (conclusions) logically derived from the material in

the study?

A6.11.8.1. Do the conclusions show bias? Studies sometimes unwittingly show bias

because of parochial or institutional interests. One test for bias is to judge whether the

same conclusions would be reached by another study agency based on the material in the

study.

A6.11.8.2. Are the conclusions based on outside considerations? If so, document those

considerations in the analysis.

A6.11.8.2.1. Occasionally, conclusions must be drawn in the face of great uncertainty.

A study may find several alternatives exhibiting similar costs and benefits, but the

results are very sensitive to the values assigned to the inputs. In this situation, some

studies arrive at conclusions based on considerations other than those studied. In other

words, the study agency is stating, after the analysis was performed, that applying the

criteria did not lead to a preference, but rather to indifference among the alternatives.

In that case, the issue was decided based on other unstudied criteria. In situations of

this kind, those criteria should be stated, and sensitivity to the unstudied criteria must

be examined.

A6.11.8.2.2. Some studies draw conclusions based on previous studies and materials

that are not fully documented within the study (mention in a bibliography is not

enough). If input from another study is essential, it should be documented and

explained. This requires at least a statement of the validity, scope of application, and

uncertainty related to the particular input.

A6.11.9. Have all the significant consequences been considered in arriving at the conclusions

and interpretations?

A6.11.9.1. Sometimes a study fails to consider all the pertinent consequences in

developing the conclusions of the study or arriving at the decisions to be made. These

consequences are often referred to as "spillovers." For example, if a study recommended

adoption of an engine requiring a new type of fuel, the supply system to include supply,

storage, and transportation operations would be affected.

96 AFMAN65-506 6 SEPTEMBER 2019

A6.11.9.2. Spillover effects are not always negative. For example, adopting dehydrated

rations to achieve greater shelf life may also reduce construction and transportation costs

because of the smaller unit volume and weight of dehydrated food.

A6.11.10. Are the interpretations and conclusions in this section consistent with the

interpretations in the Executive Summary? Sometimes, changes made in one of these do not

catch up to the other sections before the documentation is finalized.

A6.11.11. Are the conclusions intuitively satisfying? When the conclusions of the study are

not intuitively satisfying, one should try to isolate the cause. If the study fails to show by data,

models, and other means that the intuition is wrong, further examination is required to

determine if some subtle considerations have been neglected because of over simplification or

other reasons.

A6.11.12. Are the criteria consistent with higher echelon objectives? No matter what the

concern of a study, the subject falls into a larger framework. Are the criteria used in the study

consistent with higher-level objectives? This requires management judgment and the necessity

to examine the larger context of the problem. If the study criteria are not consistent with

objectives at the higher level, then the analysis may be addressing the wrong problem (sub-

optimization).

A6.11.13. If a recommendation is included in the analysis, does the recommendation logically

follow from the conclusions? Is the rationale used to determine the recommendation included?

Consider the feasibility of the recommended alternative in light of political, cultural, policy,

and other considerations not included in the analysis.

A6.12. Documentation and Data Evaluation: This is everything that serves as the basis for

the analysis. Each comparative analysis should be a stand-alone document, so it should include

copies of source data and all calculations used to turn source data into comparative analysis inputs.

A reviewer should be able to understand the comparative analysis without having to look at

anything else. They should be able to replicate the comparative analysis using the source data and

documentation. If the reviewer does not feel the documentation provides enough information to

do so, the documentation may be insufficient. What to look for:

A6.12.1. Is the analysis adequately documented? One characteristic of good documentation

is that it provides enough information about the data sources and methodology used so a reader

not familiar with the study could arrive at essentially the same result. Without documentation,

an analysis appeals for acceptance solely on faith in the authority of the issuing agency.

A6.12.2. Are all data sources provided? Are the data sources authoritative?

A6.12.3. Are the facts correct? It is usually not possible to verify all the facts from a variety

of sources used in the study. However, facts upon which conclusions are based should be

specifically evaluated.

AFMAN65-506 6 SEPTEMBER 2019 97

A6.12.4. Are the facts stated with proper qualifications? In addition to checking the validity

of the facts, completeness should also be evaluated. Some material may be correct in isolation,

but may take on a different meaning when other facts are added. For example, a bulldozer may

generally be able to move "x" cubic yards of earth per day. However, this rate may not be valid

for earth removal in rocky or frozen terrain. Likewise, a builder might be able to construct

buildings at a certain pace, but if work cannot be performed in the rain, then the rate of

construction may not be valid if the project is scheduled for rainy season.

A6.12.5. Are the performance characteristics valid?

A6.12.5.1. Performance characteristics are often the key element in determining the

benefits of a system or piece of equipment.

A6.12.5.2. In evaluating the validity of performance characteristics, the source of the data

should be examined.

A6.12.5.2.1. Performance characteristics based on manufacturer’s claims are often

optimistic.

A6.12.5.2.2. Performance characteristics derived from tests at research installations

also require examination. Test performance characteristics are usually derived under

controlled conditions. Performance characteristics derived from field tests should be

examined. Such tests can, at times, produce misleading results due to artificialities

caused by abnormally stringent operating and safety regulations and choice of test

areas.

A6.12.6. Are the data from supporting simulation models valid? Does the analysis use the

results from simulation models in an appropriate manner?

A6.12.6.1. In determining the validity of simulation results, the reviewer should judge how

well the model portrays the essential relationships. The review should also evaluate the

validity of the judgments and assumptions used in conducting the analysis. Major

judgments and assumptions used in the model should be fully identified.

A6.12.6.2. Studies sometimes use the results of simulation models as facts. In evaluating

whether the analysis uses simulation results appropriately, the reviewer should consider

the nature of simulation. Basically, a simulation involves an abstraction from the real

world. Models are structured according to mechanistic rules or judgments or both, and

these are made by people. Additionally, many assumptions are made when constructing

the model. Therefore, simulation results should not be treated as fact. However, they can

be used to provide insight into problem behavior, and sensitivity analysis can be used on

the simulation model assumptions to determine the volatility of the model’s results, or on

the model’s output if it is fairly stable and predictable.

A6.12.7. Are any of the data derived from questionnaires? The data obtained from

questionnaires should be examined to determine the validity of the questions, adequacy of the

number of people surveyed, and the relevant qualifications of the people surveyed.

A6.12.8. This is the end of the reviewer’s guide. If reviewer need more assistance in

reviewing a comparative analysis, there is also a Comparative Analysis Preparer’s Guide in

Attachment 5 of this manual.

98 AFMAN65-506 6 SEPTEMBER 2019

Attachment 7

FORMULAS FOR FACTORS AND FINANCIAL INDICATORS

A7.1. Midyear discount factor.

Table A7.1. Midyear discount factor.

A7.2. End-of-year discount factor.

Table A7.2. End-of-year discount factor.

A7.3. Present Value (PV): Present Value is the value of a future amount or series of future

amounts, discounted to reflect the time value of money. The future amounts are discounted to a

date chosen by the analyst (e.g., first year of investment). Present value comparisons are used in

economics to meaningfully compare different cash flows. Present Value is the primary cost

measurement for decision-making and will be included in all formalized cost comparisons.

AFMAN65-506 6 SEPTEMBER 2019 99

Table A7.3. Present Value (PV).

A7.4. Uniform Annual Cost (UAC): Uniform Annual Cost is a method to compare alternatives

with unequal lives, UAC is calculated by dividing the present value of the costs of an alternative

by the sum of the discount factors for the periods covering the life of each alternative in which

costs were incurred. The following is a notional example showing the Uniform Annual Cost

calculations for two alternative methods for meeting an objective. The first alternative has an

economic life of 5 years and the second alternative has an economic life of 10 years. The example

uses a 2.7% midyear discount rate:

Figure A7.1. Uniform Annual Cost Calculation Example.

A7.4.1. UAC Calculation. This table above shows that Alternative A has a lower total cost

than Alternative B, but their economic lives of the alternatives are different. The benefit of

Alternative B is being received for 10 years and only the benefit of Alternative A is being

received for 5 years. When the difference in economic lives of the alternatives are normalized

using the UAC Approach, Alternative B has a lower Uniform Annual Cost.

100 AFMAN65-506 6 SEPTEMBER 2019

Table A7.4. UAC Calculation.

A7.4.2. Uniform Annual Cost is used as an alternative to the Terminal Value Method of

reporting costs for the alternatives. The Uniform Annual Cost measure has the benefit of not

requiring the estimate of a terminal value. Senior leaders will differ as to which method they

prefer.

A7.5. Savings/Investment Ratio (SIR): The SIR equals the present value of the savings

generated from an investment divided by the present value of the implementing investment

amount. The SIR should include all savings across the program life.

Table A7.5. Savings/Investment Ratio (SIR).

A7.6. Return on Investment (ROI): The present value of the total return generated by an

investment (minus the implementing investment amount) divided by the present value of the

implementing investment amount.

Table A7.6. Return on Investment (ROI).

A7.6.1. Return on Investment is required in Clinger-Cohen Act Economic Analyses.

A7.6.2. The Return on Investment is very similar to the Savings to Investment ratio. They are

related by the following formula.

Table A7.7. Savings to Investment ratio.

A7.6.3. Return on Investment is useful for projects that are expected to achieve efficiencies

that would realize savings or a profit. Return on Investment allows for a comparison of

financial return as a percent of the implementing investment. A drawback of Return on

Investment is that it does not provide the magnitude of the financial benefit/cost in absolute

terms (present value calculations provide that information). Many government projects are

selected for the non-monetary benefits they yield. As a result, return on investment may be

zero or negative for many government projects.

AFMAN65-506 6 SEPTEMBER 2019 101

A7.7. Cost/Benefit Ratio (CBR): The present value cost of an alternative divided by the benefit

measure of that alternative. The result will be the average cost per unit of benefit. This metric is

applicable with benefits measured quantitatively (e.g., direct quantitative measure or weighted

benefit score)

A7.7.1. This technique should be used with caution. Decisions generally should not be made

on average costs and benefits, but instead should be based on marginal costs and benefits. As

an example, assume the benefit being measured is hangar size as measured in square meters,

assuming all square meters of area produce the same marginal benefit. Nominal life cycle

costs and the benefits are provided in the Figure A7.2

Figure A7.2. Notional Example Cost Benefit Ratio.

A7.7.2. The cost per benefit ratio in Figure A7.2 implies that the status quo is a better choice

than the Add/Alter alternative because the average cost per square meter is lower. However,

the decision should not be based on which alternative has the lower average cost per square

meter. Instead, the decision should be based on whether the decision-maker believes the

additional 1,000 square meters is worth $4.5M. That is the marginal cost paid for the marginal

benefit received. Even though the cost per benefit is higher for the additional 1,000 square

meters, that may still be an acceptable price for the decision-maker.

A7.7.3. An additional concern with cost benefit ratios is that with some types of analyses, the

decision-maker does not directly incur the cost for the benefit received. For example, funding

for major MILCON projects does not come out of a local organization’s budget. The fact that

the cost is not directly incurred at the local level, may impact how benefits are valued relative

to cost.

A7.8. Payback Year:

A7.8.1. To calculate the Payback Year, add the expected savings for each period (i.e., the

numbers in the Annual Totals column) until the cumulative total equals or exceeds the

investment total. That will be the year in which payback is achieved. In the example in Figure

A7.3 below, investments are reflected as negative cash flows in the Annual Totals column. All

of the cash flows are the incremental changes that result from the decision to invest. By the

end of the investment year (year 0) there are cash outflows of $100,000. By the end of year 1,

there is a mix of cash outflows and savings that net to $50,000. By the end of year 2 and for

subsequent years, the incremental cash flow has turned positive in that the savings now exceed

the incremental cost for that year. Looking at the Cumulative Totals column, the cumulative

cash flow switches from negative to positive sometime in year 5, so the Payback Period is

between 4 and 5 years. To calculate the Payback Period, the analyst needs to have an idea of

the schedule of cash inflows in the Payback Year. In this case, cash inflows will be $53,000

and there will be $50,000 remaining until payback is reached. It is common to assume that the

cash inflows occur evenly throughout the year. As a result, the portion of year before payback

102 AFMAN65-506 6 SEPTEMBER 2019

is reached is:

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  . As a result, it takes 4.94 years, or about 4 years and 11 months

to reach payback.

A7.8.2. By convention, payback year analysis ordinarily uses un-discounted dollars.

Figure A7.3. Payback Year Example (TY19$).

A7.8.3. Payback is useful for projects that are expected to achieve efficiencies. Payback tends

to be biased toward projects with earlier savings. This could be good given that savings later

in the life of a project are commonly less certain. The drawback is for those cases where

savings expected later in a project are anticipated to be much larger than the other alternatives.

AFMAN65-506 6 SEPTEMBER 2019 103

Attachment 8

SAMPLE FORMATS FOR SUMMARY OF COSTS

A8.1. Figures A8.1 and A8.2 are two sample formats for displaying summarized cost data. Their

use is not mandatory, and can be changed to fit the needs of the analysis. Items such as Uniform

Annual Cost, Savings/Investment Ratio, Payback Year, etc. may not be applicable to the analysis.

Notional numbers were included in the figures.

Figure A8.1. Format A - Summary Of Costs For Comparative Analysis.

A8.2. FORMAT A COMMENTS:

104 AFMAN65-506 6 SEPTEMBER 2019

Table A8.1. Format A Comments.

Line 5: Indicates the alternative being considered for attainment of the project objective.

Generally a Format A is submitted for every feasible alternative which has been costed in the

comparative analysis. Format A, and the other formats in this instruction, may be modified to

fit the special features of a particular analysis.

Line 6a: Indicates the economic life of the project for which the alternative is being proposed.

This period may be either equal or unequal to the physical or technological lives of the

investment. If the requirement for the project is longer than the economic life of any particular

investment, future investment may have to be included in the analysis.

Line 6b: Indicates the period of analysis for the study. The period of analysis is used for the

Terminal Value Method. The Terminal Value Method is explained in Chapter 4 of this

manual

Column 7a: Indicates the years into the future that the project or program will exist.

Column 7b: Nonrecurring investment costs, corresponding to the Column 7a project year

during which they will be incurred. These costs should include all costs not categorized as

annually recurring, periodically recurring or operational costs. These costs may include but are

not limited to: initial investment, future overhaul of equipment, future renovation of facilities,

installation and start-up costs, equipment relocation, and freight charges. In Column 7b,

Research and Development (R&D) costs are separated from other investment costs. If there

are no R&D costs, the format may be modified to include only one column under Column 7b

for investments.

Column 7c: Recurring costs that correspond to the Column 7a project year during which they

will be incurred.

Column 7d: Includes the total incurred costs, obtained by summing Columns 7b and 7c, in

relation to the project year indicated in Column 7a.

Column 7e: Discount factors, which should be mid-year, can be generated by computer

spreadsheets using a formula (see Attachment 7 of this instruction).

Column 7f: Discounted annual cost is obtained by multiplying Column 7d, Annual Costs,

times Column 7e, Discount Factor. The product is the present value of the annual costs.

Line 8: The totals row includes the totals of Columns 7b through 7f. Column 7e total should

include only those factors corresponding to years in which recurring costs occur. Column 7f

total is the total project cost (discounted) and is also entered on Line 9, Total Discounted

Project Cost.

Line 9: From Line 8, Column f.

AFMAN65-506 6 SEPTEMBER 2019 105

Line 10: Uniform Annual Cost, sometimes called "equivalent annual cost," is calculated by

dividing the total discounted project cost (Line 9) by the sum of the discount factors of the

years in which recurring costs occur (ordinarily from Line 8, Column 7e, Discount Factor).

Line 11: The discounted terminal value is determined by multiplying the anticipated terminal

value by the discount factor corresponding to the year in which terminal value will be realized.

If terminal value is not applicable in a project or is zero, "NA" or 0 should be entered here.

Line 12: The discounted value of the costs beyond the terminal value period of analysis are

subtracted from the cost of the alternative to normalize the costs to the period of analysis

Line 13: The Terminal Value Method project cost is Line 9 minus Line 11 and Line 12.

106 AFMAN65-506 6 SEPTEMBER 2019

Figure A8.2. Format A-1--Summary of Differential Costs for Economic Analysis.

A8.3. FORMAT A-1 COMMENTS:

AFMAN65-506 6 SEPTEMBER 2019 107

Table A8.2. Format A-1 Comments.

Lines 6a & 6b: While the alternatives can have different economic lives, the costs are

accounted for only up to the period of analysis and any terminal value types of expenses

to normalize the alternatives for comparison purposes.

Column 7a: Years in which any costs will be incurred.

Column 7b: Operating costs of baseline system, corresponding to years in which incurred

and the Operating costs of the proposed system corresponding to years in which incurred.

Column 7c: Savings attributable to differential operating costs (Column 7b.i minus 7b.ii).

Column 7d: Discount factors corresponding to the years in Column 7a.

Column 7e: Year-by-year present value of operating savings (Column 7c times Column

7d).

Line 8, Totals: Totals for Columns 7b through 7e.

Lines 9: Present value of investments for the proposed alternative. These are assets not

on hand, new assets for which funding must be obtained.

Line 10: Present value of baseline investments for assets not on hand new assets for which

funding must be obtained. Subtracted from this present value will be the terminal value of the

asset at the end of the period of analysis.

Line 11: Present value of assets on hand that will be used on the proposed alternative and are

not currently used on the present alternative (i.e., equipment removed from storage or taken

from another organizational element). These are assets that are in existing Air Force

inventories and were planned to be used elsewhere. Subtracted from this present value will be

the terminal value of the asset at the end of the period of analysis.

Line 12: Present value of assets that are used on the present alternative but will not be used if

the proposed alternative is adopted; the assets will be sold, made available for use by other

organizations, or used on another project. If the assets cannot be sold or will not be used on

another project, then do not include them. Subtracted from this present value will be the

terminal value of the asset at the end of the period of analysis.

Line 13: Present value of eventual salvage income from asset investments listed in Line 9.

Line 14: Line 9 minus line 10 plus Line 11 minus Line 12 minus Line 13.

Line 15: Present value of operations savings; sum of row 8 column 7e.

Line 16: Present value of a current asset overhaul or modification that will not be required if

the proposed alternative is adopted; savings due to elimination of need of overhaul of current

108 AFMAN65-506 6 SEPTEMBER 2019

assets.

Line 17: Line 15 plus Line 16.

Line 18a: Line 17 divided by Line 14.

Line 18b: Follow instructions in Attachment 7 to calculate the payback year.

AFMAN65-506 6 SEPTEMBER 2019 109

Attachment 9

PRELIMINARY COMPARATIVE ANALYSIS

A9.1. Preliminary comparative analyses are internal planning tools. A preliminary

comparative analysis is a first, less detailed effort of performing a comparative analysis. Typically,

the Air Force performs preliminary comparative analyses early in project consideration: (1) when

it is more practical to do an abbreviated analysis and (2) to provide for a better understanding of

which alternatives of a specific project merit further development/consideration. A preliminary

comparative analysis could also be used when resources are limited and there are many potential

projects that would benefit from an analytical approach. There are some situations where a

preliminary analysis is required. See AFI 65-501.

A9.1.1. The findings of a preliminary comparative analysis do not preclude a different set of

findings or recommendation in a full comparative analysis.

A9.1.2. When a preliminary analysis has been done, care should be taken to ensure the

decision-maker is not anchored to those results when subsequent information in the full

comparative analysis leads to different results.

A9.2. In no case may a preliminary comparative analysis be substituted for: A full

comparative analysis when a full comparative analysis is required by AFI 65-501.

A9.3. The format below provides: An idea of the contents appropriate for a preliminary

comparative analysis, which is generally a document of no more than a few pages.

A9.3.1. Background. Provide a brief, relevant and clear context surrounding the project.

A9.3.2. Objective. State the generic need in an unbiased, non-limiting manner, quantified to

the extent possible, e.g., provide adequate housing for 300 unaccompanied enlisted personnel.

If "adequate" can be translated into square footage or other parameters, this quantification

should be done.

A9.3.3. Facts/Assumptions/Ground Rules. Identify only the most significant limitations,

constraints, assumptions, legal or regulatory considerations, e.g., all dormitories are currently

averaging 95 percent occupancy; no present base organizations are planned to be inactivated

or relocated.

A9.3.4. Alternatives. Identify, as a minimum, all alternatives that sound reasonable.

Categorize the alternatives into two groups: feasible alternatives to be analyzed (e.g., status

quo, renovation, new construction, basic allowance for housing (BAH)), or infeasible

alternatives to be eliminated (e.g., leasing). Analyze all alternatives that are both reasonable

and feasible. Include reasons for eliminating infeasible alternatives.

110 AFMAN65-506 6 SEPTEMBER 2019

A9.3.5. Costs. Identify the major categories of costs and include preliminary estimates by

major category. "Wash" or common costs may be excluded. Ignore minor categories of cost

or incidental costs. Summarize the differences in costs among alternatives as a rough order of

magnitude. Discounting would only be necessary in a preliminary comparative analysis if cash

flows vary significantly in timing. Work to develop cost estimates with the appropriate local

functional expert (e.g., facility maintenance and new facility construction costs from civil

engineering, number of dorm occupants by pay grade from base billeting office).

Documentation of costs should be at an appropriate level to track both the source of the data

and the methodology behind the estimate. Calculations should be checked for accuracy.

A9.3.6. Benefits. Identify the more important benefits associated with each of the

alternatives being analyzed (e.g., renovation corrects all deficiencies, or opting for off-base

housing results in demolishing old poor quality dorms.

A9.3.7. Uncertainty (Sensitivity/Risk) Assessment. Identify the key variables which, if

varied within a reasonable range of analysis, could possibly change the results of the analysis.

Also, identify any significant risks to project execution or benefit realization for each

alternative.

A9.3.8. Summary and Comparison of Alternatives. Briefly summarize the cost, benefit

and uncertainty analysis and interpret the results. Emphasize that the conclusions are based on

preliminary analysis only and could possibly change based on results of a complete, formal

comparative analysis.

AFMAN65-506 6 SEPTEMBER 2019 111

Attachment 10

ANNUAL ECONOMIC ANALYSIS REPORT (RCS: HAF-FMC[A] 9501) FORMAT

A10.1. Command/field operating agency financial analysis offices forward this report

to: SAF/FMCE by 1 December annually, reporting on economic analysis activity of the recently

completed FY. Report the number of comparative analyses and waiver requests

signed/certified at MAJCOM/FOA/DRU level during this period, regardless whether

SAF/FMCE has seen them.

A10.2. This report is designated emergency code C-2. Continue reporting during emergency

conditions, normal precedence. Submit data requirements in this category as prescribed or as soon

as possible after submission of priority reports. Discontinue reporting during MINIMIZE. A blank

spreadsheet version of this report can be obtained from SAF/FMCE.

112 AFMAN65-506 6 SEPTEMBER 2019

Attachment 11

REAL PROPERTY CONSTRUCTION AND REPAIR ECONOMIC ANALYSES

A11.1. Introduction. This Attachment provides guidance on the preparation of construction and

repair comparative analyses required as part of the project justification process for Facility

Improvement, Replacement, and New Construction projects. Based on the guidance governing

the requirement analyses, a comparative analysis for real property construction and repair is called

an economic analysis. A thorough and well documented economic analysis is a critical factor in

project approval and subsequent Congressional appropriation. The purpose of this manual is to

assist in conducting and documenting the results of applying the economic analysis approach to

real property decisions. In this area, the analyses that result are called economic analyses.

A11.1.1. Types of Facilities Covered. The information contained in this section is relevant

to construction and repair projects.

A11.1.2. Relevant projects include, but not limited to: administrative facilities, transient

quarters, dormitories, maintenance facilities, warehouses, child care facilities, Military Family

Housing and mission support facilities.

A11.2. Initiating and Updating an Economic Analysis

A11.2.1. An economic analysis is initiated as early as practical during the project planning

process. An early start assures the analysis is in place for decision making and allows sufficient

time to collect all the necessary data to conduct a more accurate life cycle cost analysis and a

more informed benefit and uncertainty analysis in order to provide better information and lay

the foundation for superior program support documentation.

A11.2.2. Do a preliminary economic analysis after an Installation Facilities Board has

established a requirement for a project, but before the Installation Facilities Board has chosen

an alternative. Develop the preliminary analysis as the civil engineering staff develops the

Department of Defense Form 1391.

A11.2.3. Complete a full economic analysis or a waiver to an economic analysis for each

facility project likely to be funded in the budget year. Complete the analysis prior to the

documentation deadline contained within the respective facility project business rules (e.g.,

MILCON; Unspecified Minor MILCON; Facilities Sustainment, Restoration, and

Modernization). The preliminary economic analysis is often the basis for this full economic

analysis unless conditions surrounding the project have changed substantially.

A11.2.3.1. For MILCON projects, a completed economic analysis or approved waiver

must be evident in each project’s development and analysis before the Air Force Corporate

Structure decides to include the project in the Air Force’s Program Objective Memorandum

submission. (T-1).

A11.2.3.2. For Unspecified Minor MILCON, Unspecified Minor Construction, or repair

projects, an approved economic analysis or waiver must be part of each project’s

development and analysis at cost thresholds in AFI 65-501, and must be included as

attachments in higher headquarters approval request packages. (T-1).

AFMAN65-506 6 SEPTEMBER 2019 113

A11.2.4. An economic analysis is updated when significant developments occur that would

invalidate or alter its conclusions. The following situations require an update to the economic

analysis if there is decision space remaining to impact execution of the project:

A11.2.4.1. When there is a change in project scope.

A11.2.4.2. If there are major changes in the initial study assumptions.

A11.2.4.3. When new alternatives are identified that appear to satisfy the stated

requirement.

A11.2.4.4. If changes in costs or benefits would be likely to change a decision made using

the analysis.

A11.3. Analysis Coordination. According to AFI 65-501, the primary responsibility for

performing the economic analysis lies with the FM staff at the affected organizational level.

Collateral responsibility lies with the Civil Engineering staff and the project user. Completing the

economic analysis requires close coordination between Civil Engineering, FM, and the end user

of the facility. Figure A11.1 presents the responsibility matrix. Some of the tasks have multiple

OPRs and Offices of Collateral Responsibility (OCRs). In these cases, the asterisks indicate the

division of responsibilities within the task. The responsibilities in the matrix are for both economic

analyses and waivers to the economic analysis requirement. See Attachment 3 of this manual for

the certification process for construction and repair economic analyses and for the approval process

for economic analysis waivers.

Figure A11.1. Real Property Economic Analysis Responsibility Matrix.

114 AFMAN65-506 6 SEPTEMBER 2019

A11.4. Analysis Foundational Elements

A11.4.1. Defining the Project, Formulating Assumptions, and Identifying

Alternatives. A clear, concise statement of the project objective is necessary in order to

identify potential alternatives for the project. This section will assist the analyst in accurately

identifying the problem, defining the project objective, formulating assumptions, and

identifying alternatives to meet the need.

A11.4.2. Collecting and Reviewing Background Information. The analyst collects and

reviews all written documentation available that could affect any project alternatives. This

review will include: the most current Department of Defense Form 1391, the construction cost

estimate for the proposed project, previous economic analyses, the Base Comprehensive Plan,

and the Planning Charrette Report. Next, interviews are conducted with personnel involved in

the project planning process and with the current facility users. The current facility users are a

good source for identifying deficiencies in the existing facility. All information is collected in

writing, including the source of the data, and the name, organization, title, and phone number

of each point of contact. The signed source documents are presented in Appendix B of the

economic analysis.

Figure A11.2. Sample Questions for Interviews and Background Data Collection.

AFMAN65-506 6 SEPTEMBER 2019 115

A11.4.2.1. The issues raised in the sample questions have to be identified in order to

determine scope of the proposed project. For example, a facility that is on or under

consideration for addition to the National Register of Historic Places may not be eligible

for demolition and could generate unique architectural/engineering compliance

requirements for renovation. As another example, asbestos, radon, or lead-based paint in

the existing facility can lead to costly abatement procedures which may impact the project

schedule. These costs may be incurred if the facility is renovated or demolished, depending

on the scope and type of remediation required.

A11.4.2.2. When reviewing the current facility situation, it is important to consider the

user. Does the existing facility meet the needs of the user? Are the current working

conditions affecting morale? Is an organization disjointed and spread over several

facilities? Would the organization work more efficiently if it were consolidated into one

facility? Could labor time be saved or duplicate functions be eliminated as a result of a

consolidation? It is important to address these and other types of user concerns when trying

to define the requirement.

A11.4.2.3. The following are possible facility deficiencies and other concerns that may

need to be addressed for the proposed construction or repair project.

Figure A11.3. Possible Facility Deficiencies.

A11.4.3. Defining the Project Objective. From the information collected, a clear, concise

statement of the project objective should be developed.

A11.4.3.1. When writing the project objective, it is important that the statement not be

biased toward any alternative. Also, the project objective should be quantified to the extent

possible.

A11.4.3.2. Once the project objective is clearly defined, the analysis team will identify

alternatives that satisfy the requirement. Figure A11.4 presents examples of project

objectives for several facility types. (T-2).

116 AFMAN65-506 6 SEPTEMBER 2019

Figure A11.4. Sample Analysis Objectives for Selected Construction and Repair Projects.

A11.4.4. Formulating Assumptions. Economic analyses are based on facts and data

pertaining to the project in question. However, an economic analysis deals with costs and

benefits occurring in the future. Since the future is unpredictable, assumptions and sensitivity

analyses are prepared to account for uncertainties. To avoid invalidation or bias of the analysis,

assumptions based on realistic assessments or anticipated conditions should be made by

qualified individuals. There are several common assumptions made when preparing an

economic analysis for a construction or repair project:

A11.4.4.1. Economic Life of the Project. The economic life for construction and repair

projects is different for each facility type. Additionally, the economic life of a renovated

facility is normally less than a newly constructed facility.

A11.4.4.1.1. Residual Value. Residual Value is the remaining (depreciated) value of

the facility at a point in time. Residual value is normally calculated using straight-line

depreciation of the start value over the project's economic life. State which method is

used to determine the assumed residual value.

A11.4.4.1.2. Inflation and Escalation. The source and date of all inflation and

escalation indices used must be documented in the assumption section. (T-2). Inflation

measures a sustained rise in the general price level. When historical data is used to

estimate future costs, the historical costs must be escalated to the year in which funds

would be appropriated for the project using a specific price index. (T-2). When

converting those costs to a constant year dollar (or base year dollar), use the inflation

index published by SAF/FMC. (T-1). Consult the Resource Management Cost Division

(formerly FM Center of Expertise) or SAF/FMCE for assistance on escalation indices

and inflation indices.

AFMAN65-506 6 SEPTEMBER 2019 117

A11.4.4.1.3. Discount Rate. The discount rate is used to account for the time value of

money when comparing the cost and benefits of alternatives over several years and is

documented as an assumption. Economic analyses performed to support Air Force

construction and repair programs should be discounted at the interest rate published in

the most recent President's Budget. The President’s Budget is published in January or

February of each year and includes both the constant and current-dollar discount rates

to be used in economic analyses. The annual discount rates are posted on the

SAF/FMCE SharePoint

page, to which a link is provided on the SAF/FMCE page of

the Air Force Portal. These discount rates reflect the latest values contained in the

OMB Circular A-94 Appendix C.

A11.4.4.1.4. Additional assumptions will likely be required when project data is

unavailable, when future costs are uncertain, or when a project involves unique

circumstances.

A11.5. Identifying Alternatives. For potential construction and repair projects, there are

typically six possible alternatives available to meet the objective:

Figure A11.5. Typical Construction and Repair Project Alternatives.

A11.5.1. Typical Alternatives

A11.5.1.1. The first three typical alternatives (Status Quo, Improvement and New

Construction/Replacement) are always reasonable alternatives for real property

construction and repair decisions. As a result, they must be included in all real property

construction analyses and waivers. (T-1). They may be deemed infeasible when

appropriate, but must at least be addressed. The last three typical alternatives (Leasing,

Community Partnerships and Non-Construction Solutions) may or may not be reasonable

alternatives given the project under consideration.

A11.5.1.2. The Status Quo alternative is considered the baseline for the economic analysis.

The Status Quo can be one or a combination of scenarios. Four common examples are:

A11.5.1.2.1. The continued use and operation of existing facilities in their current

condition.

A11.5.1.2.2. The continued payment of Basic Allowance for Housing to personnel

living off base in private residential housing when there is insufficient dormitory space

on base.

A11.5.1.2.3. The continued payment of lodging per diem to personnel on temporary

duty when there are insufficient transient quarters on base.

118 AFMAN65-506 6 SEPTEMBER 2019

A11.5.1.2.4. The continued use of temporary leased space in a privately owned facility

off base.

A11.5.1.3. The Improvement alternative involves renovating an existing facility to

eliminate deficiencies and/or reduce future maintenance and repair costs, altering the

facility to improve its operating efficiency, or constructing an addition to the facility to

increase space. Various levels of improvements can be addressed as alternatives, from

minimal correction of life-safety deficiencies to comprehensive "gut and rebuild" efforts.

The actual work to be performed is explicitly documented in the analysis.

A11.5.1.4. The New Construction or Replacement alternative consists of the construction

of a new facility in order to eliminate an existing shortage or deficiency, to meet a shortage

or deficiency created by a new mission or mission change, or to replace a substandard

facility. If new construction involves replacing an existing facility, then the disposal of the

existing facility is addressed.

A11.5.1.5. A Government Leasing alternative involves direct, long-term leasing by the

Air Force of a suitable, privately owned facility off base. General Services Administration

handles long-term leases for general-purpose facilities. If leasing is used to replace an

existing facility, then the disposal of the existing facility is addressed.

A11.5.1.6. The Community Partnerships alternative can use partnerships with local public

and private sector organizations to provide facilities for the Air Force.

A11.5.1.7. Non-construction alternatives consider that there may be ways of resolving the

need without construction. It is important to remember that improved facilities are just one

way of meeting a need. Other alternatives may include making operations more efficient

so that a new facility is not required. For instance, a shortage of warehouse space may be

compensated for by acquiring new handling and stacking equipment that allows more

efficient use of vertical space (i.e., cubed footage) or instituting just-in-time parts provision

procedures. Another solution may involve consolidating related functions to make better

use of existing or new space. These innovative approaches to meeting space requirements

can result in significant cost savings, and may offer the added benefit of improving

operational efficiency and/or productivity. It is important that the user take an active

role in alternative development so that these non-facility solutions can be properly

represented.

A11.5.2. In the case of a transient or dormitory quarters requirement, a direct compensation

alternative may also need to be considered.

A11.5.2.1. Direct compensation is an alternative when:

A11.5.2.1.1. There is suitable housing off base for non-mission essential personnel

within the allowable Basic Allowance for Housing rates.

A11.5.2.1.2. There is suitable lodging available off base for temporary duty personnel

within the allowable per diem.

A11.5.2.1.3. In other situations where compensation can potentially be made to

members in lieu of providing a facility on base.

A11.5.2.2. A market analysis of the local hotel or housing market is normally conducted

to assess the viability of a Direct Compensation alternative.

AFMAN65-506 6 SEPTEMBER 2019 119

A11.5.3. The above-mentioned alternatives are the ones most frequently addressed in

construction and repair economic analyses. However, an analyst should always aggressively

pursue all reasonable alternatives, since the final decision can be no better than the available

choices. Throughout the economic analysis process, the analyst will continually consider

accepting new alternatives and discarding old ones.

A11.5.4. Occasionally, after a complete review of the facts and circumstances pertaining to

the proposed project, the analyst may conclude that there is only one feasible alternative. In

this case, a waiver from the requirement for an economic analysis is required. This waiver

must follow the process described in this manual and in AFI 65-501. (T-1). Cost is not a basis

for infeasibility. If cost is the only aspect of an infeasibility determination, that alternative

must remain and an economic analysis must be developed. (T-2).

A11.5.5. Disposing of Existing Facilities. If the alternative involves replacing the current

facility either by means of new construction, private sector development, or a long-term lease,

the issue of what to do with the existing facility must be addressed. (T-2). There are three

common disposal practices:

A11.5.5.1. Converting the facility to another use. This is normally only an option if an

existing need could be met by the conversion. Conversion and operating costs are assumed

to be borne by the new occupant and are not included in the economic analysis.

A11.5.5.2. Demolishing the facility. This option is considered whenever the existing

facility is substandard, its site is required for a new facility, or if there is no other potential

use for it. Facilities are a resource, however, so before demolition is selected, a review of

all possible current or future uses needs to be conducted. The cost of demolition is included

in the analysis.

A11.5.5.3. Placing the facility in caretaker status. This option involves closing up the

facility and preserving it for potential future use by providing periodic maintenance to

preserve its structural integrity; "mothballing" and "pickling" are colloquial terms for

caretaker status. The sustainment costs associated with caretaker status are included in the

analysis.

A11.6. Conducting the Cost Analysis. This section discusses the cost analysis required in the

economic analysis. The costs and savings associated with each alternative under consideration

must be quantified and included in the analysis calculations. (T-2).

A11.6.1. All incremental costs expected to be incurred over the economic life assumed for

each alternative, except sunk costs, are included in the life cycle cost analysis. Examples of

sunk costs could include: project planning, preliminary design, and preparation of the

economic analysis itself depending on the phase at which the analysis is being completed.

Design costs are considered sunk if they are obligated or spent prior to selection of an

alternative. The amount of design costs that are considered sunk will vary based on the project.

Wash costs are optional to include.

A11.6.2. Construction and Other One-Time Costs. Most one-time costs occur early in a

project's life cycle although they can occur at any point, e.g., disposal costs. Construction costs

are usually the most significant example of one-time costs. However, all other one-time costs

are also considered.

120 AFMAN65-506 6 SEPTEMBER 2019

A11.6.2.1. Construction/Improvement Costs. Construction/Improvement costs include

design fees for the primary facility or building addition, demolition, site preparation,

utilities, roads and pavements, contingencies, and Supervision, Inspection, and Overhead.

Since the largest percentage of the project cost is determined by the scope of the

Improvement or New Construction project, it is imperative that all primary and support

costs are considered in the economic analysis. Equally important is the need for accurate

and complete cost estimating capabilities. Parametric cost estimating systems, such as the

Parametric Cost Engineering System (PACES), allow the analyst to readily compile costs

for multiple project construction or renovation alternatives. It is important for users of a

parametric cost model to understand how changes to model inputs will impact estimated

cost.

A11.6.2.2. Construction/Improvement costs are included on the Department of Defense

Form 1391 and attachments. The Department of Defense Form 1391 and attachments for

an economic analysis include:

A11.6.2.2.1. The project title, project number, and alternative name.

A11.6.2.2.2. The scope of the estimate in square feet or square meters (noting which

unit is used).

A11.6.2.2.3. A brief description of the costing methodology or estimating system used.

A11.6.2.2.4. Dated sources for variables, such as area cost factors and escalation

factors.

A11.6.2.2.5. The base year of the project cost.

A11.6.2.2.6. Authority signature for the estimate.

A11.6.3. The estimate shows all interim calculations so that the values can be tracked from

the source data to the total project cost appearing on the Department of Defense Form 1391

and in the Life Cycle Cost Report. Clear documentation speeds review of the analysis. In

addition, a clearly documented Department of Defense Form 1391 can be easily updated when

the source data changes or when the project is changed for a different program year.

A11.6.4. When compiling project costs, special attention is also given to ensure that all costs

associated with a renovation alternative, such as asbestos abatement, lead-based paint

remediation, environmental compliance, etc., have been considered.

A11.6.5. Other One-Time Costs. Accurate assessment and inclusion of other one-time costs

is imperative to ensure a complete analysis. Examples (many of which can be found in

Housing AFIs 32-6001, Family Housing Management, 32-6005, Unaccompanied Housing

Management, 32-6004, Furnishings Management Program) of one-time costs include:

A11.6.5.1. Moving and storage of furnishings and equipment when users are relocated.

A11.6.5.2. Disposal and replacement of furnishings and equipment.

A11.6.5.3. Lease payments made for temporary space.

A11.6.5.4. Temporary contracting out of the requirement.

A11.6.5.5. Tenant build-out requirements involving renovations to the temporary space in

order to make the facility meet the users' needs.

AFMAN65-506 6 SEPTEMBER 2019 121

A11.6.6. All attempts should be made to time facility replacement or improvement

construction activities to correspond with the expected requirement. However, even with the

best scheduling attempts, temporary accommodations may be required. Occasionally,

contracting out the requirement may be feasible and economical. In other cases, users may

require temporary accommodations. For renovation alternatives, this may involve moving the

users into temporary leased space while the existing facility is being improved and, following

completion of the project, moving into the completed facility. Lease rates are discussed below.

Moving and storage costs (drayage) can be obtained from the base transportation office. The

Interstate Commerce Commission can also provide approximate moving costs based on

weight, as well as requirements for cartons and custom-built crates. In addition, some tenant

build-out, such as partitions, power, and telecommunications, may be required to meet the

users' requirements.

A11.6.7. The improvement or replacement of a dormitory can result in some unique one-time

costs, such as:

A11.6.7.1. Reconnection fees associated with telephone and cable television service.

A11.6.7.2. Moving and storage of personal belongings for dormitory residents.

A11.6.7.3. Basic Allowance for Housing payments made to personnel in temporary

housing off base.

A11.6.8. As with other construction and repair projects, all attempts should be made to

schedule or phase dormitory improvements or replacements so as to minimize these one-time

costs.

A11.6.9. Recurring Costs. Recurring costs are the repeated costs required to operate and

maintain a facility. They are generally calculated on an annual or periodic basis.

A11.6.9.1. Examples of recurring costs include:

A11.6.9.1.1. Maintenance and repair of the facility.

A11.6.9.1.2. Utilities, such as electricity, natural gas, steam, water, and sewer.

A11.6.9.1.3. Personnel costs, such as building management, lease management,

custodial service, and security service.

A11.6.9.1.4. Lease costs

A11.6.9.1.5. Miscellaneous costs, such as grounds maintenance, landscaping, and

snow removal.

A11.6.9.2. Maintenance and Repair Costs. Maintenance and repair costs include both

annual maintenance and repair and periodic maintenance and repair. Annual maintenance

and repair expenses include preventive maintenance, unscheduled plumbing and electrical

repairs, and minor structural repairs that are required to ensure a safe and efficient work or

living environment. Periodic maintenance and repair expenses include major repairs to

building components, such as roof systems, electrical systems, heating ventilation and air

conditioning, plumbing fixtures, and interior finishes. These costs can be estimated based

on the expected life of the building system.

A11.6.9.2.1. Annual maintenance and repair costs

122 AFMAN65-506 6 SEPTEMBER 2019

A11.6.9.2.1.1. When an existing facility is associated with the Status Quo

alternative, historical annual maintenance and repair costs typically are used to

project future annual maintenance and repair costs in the economic analysis. The

analyst should collect and review at least three years of data in order to develop a

valid estimate.

A11.6.9.2.1.2. An industry reference that provides maintenance and repair cost per

square foot for a given facility type can also be utilized.

A11.6.9.2.1.3. Renovation and replacement alternatives typically have lower

annual maintenance and repair costs than the Status Quo alternative. Therefore, the

historical maintenance and repair cost data are normally adjusted downward by an

assumed percentage (commonly based on engineering judgment) for the

improvement and replacement alternatives. These assumptions must be clearly

stated in the analysis. (T-2). In the absence of information specific to the current

project, the Building Age Multiplier factors presented in Figure A11.6 may be used

to adjust annual maintenance and repair costs over the life of the improved or new

facility. If an assumption is made that there is no increased annual maintenance

cost associated with building age, then that assumption should be explicitly stated

and justified.

Figure A11.6. Building Age Multiplier Factors.

A11.6.9.2.2. Periodic maintenance and repair costs:

A11.6.9.2.2.1. Periodic maintenance and repair schedules are based on the

expected life of the equipment or fixtures. Civil Engineering can provide the date

the item was last replaced so that the analyst can project future schedules and costs

under the Status Quo alternative. Renovation and new construction alternatives

generally begin with all new equipment; hence, replacement schedules are based

on the construction date. It is important to remember that scheduled intervals will

often vary based on local conditions. For example, the salt air in marine

environments corrodes and shortens the expected lives of exterior mechanical units,

roof membranes and drainage systems, window frames, exterior doors, etc. Figure

A11.7 displays the generally accepted useful lives of various equipment and

fixtures.

AFMAN65-506 6 SEPTEMBER 2019 123

Figure A11.7. Life Cycles of Selected Building Systems.

A11.6.9.2.2.2. Periodic maintenance and repair costs can be estimated from local

prices or by using the cost of any recent replacement of similar items, including

appropriate labor fees. If such cost data is unavailable, commercial sources, such

as R.S. Means, Whitestone or Dodge Cost Data can be used and documented.

Another possible source would be comparable maintenance and repair costs from

another installation for a similar facility.

A11.6.9.3. Utility Costs. Utility costs include the expenses associated with the provision

of utility services, such as: Electricity, Natural gas or Oil, Steam, Water, Sewage, and

Telecommunications.

A11.6.9.3.1. Figure A11.8 presents an example of the technique used to estimate

annual electricity costs for all alternatives based on an area (square footage) basis; other

energy-consuming utility costs can be similarly calculated. The analyst uses annual

utility usage and facility size for similar facility types to estimate utility costs for the

proposed facility. The most accurate estimates of utility costs are available when bases

can meter utility usage at the facility level. Utility bills or Defense Utility Energy

Reporting System reports provide total utility consumption figures for the facility. The

Defense Utility Energy Reporting system can also provide the necessary area figures.

Civil Engineering is the best source for this data. If possible, usage rates from three

previous years are averaged after adjusting them to the base year of the economic

analysis. IHS Energy escalation Indices are used to escalate energy costs to the base

year. This data is available from SAF/FMC.

A11.6.9.3.2. Non-energy-consuming utilities such as sewage, and telecommunications

can also be calculated based on a three-year average. Since improvement or

replacement usually will not influence these usage rates, status quo values can be used

for all alternatives where the same users will move back into the facility. The analyst

should escalate non-energy costs to the base year using an appropriate escalation rate.

124 AFMAN65-506 6 SEPTEMBER 2019

Figure A11.8. Calculation of Annual Electricity Costs on an Area Basis.

A11.6.9.4. Personnel Costs. Personnel costs include the costs of staffing building

services, such as building management, lease management, and security.

A11.6.9.4.1. Personnel costs are calculated as the product of the number of personnel

and their appropriately burdened salary.

AFMAN65-506 6 SEPTEMBER 2019 125

A11.6.9.4.2. As noted in paragraph A11.6.1., the analyst should only include

incremental costs (additional costs that will result from an alternative being selected).

The following examples apply the incremental cost concept to personnel costs. If the

Air Force had to create a manpower position in order to support the facility, then the

Air Force will incur additional personnel cost as a result of the facility and the cost

should be included in the analysis. Conversely, if the building will require more time

within normal duty hours from an individual already employed by the Air Force, then

the Air Force did not incur additional personnel cost unless overtime pay is required.

In this second example, the increased hours should be assessed in the benefits section.

A11.6.9.4.3. Different alternatives or alternative facility designs can result in different

personnel costs. For example, a facility with a small number of exterior entrances may

require fewer security personnel than a design with numerous entry points or multiple,

unconsolidated facilities.

A11.6.9.4.4. For transient quarters, personnel costs also include maid service and the

front desk operation. Consult the AFI 65-503, US Air Force Cost and Planning Factors

for the most recent tables of Military and Civilian Compensation. If more specific data

than AFI65-503 is available, use that information.

A11.6.9.5. Contract Operations and Maintenance Costs. Contract costs include the costs

for contracts needed to keep the facility in working order. Contract costs can vary based

on building design. For example, a dorm with exterior walkways may require fewer

custodial personnel than a dorm with interior corridors.

A11.6.9.5.1. Many building services could be estimated either under personnel costs,

if the services are provided by base personnel, or under contract costs, if the services

are provided by a contractor.

A11.6.9.5.2. For administrative facilities, the median cost per square foot for building

services can be obtained from the Building Owners and Manager's Experience

Exchange Report (BOMA International, Washington, DC, (202) 408-2662).

A11.6.9.6. Lease Costs. Lease costs are associated with using off-base facilities on either

a temporary or long-term basis. If there is an existing Air Force lease of similar space off

base, then that lease rate per square foot can be used to estimate future lease costs for either

temporary space or a long-term requirement under a Government Lease Alternative. If

there is not an existing Air Force lease, then the General Services Administration lease

rates for the appropriate geographic area are used. The base office responsible for real

property management can normally provide the General Services Administration space

rates. For most facility types, Air Force leases are negotiated and managed by the General

Services Administration. General Services Administration rates are provided by functional

space type (e.g., office, conference, storage, laboratory, and industrial). General Services

Administration lease rates are typically gross leases--that is, the lease rate includes

reimbursements for services like maintenance and utilities. Gross leases are also known as

“full service” leases. The Air Force has authority to negotiate and manage leases directly

for land and unique, special-purpose facilities.

126 AFMAN65-506 6 SEPTEMBER 2019

A11.6.9.7. Direct Compensation

A11.6.9.7.1. For a dormitory facility, the primary cost element associated with a Direct

Compensation alternative is Basic Allowance for Housing payments. Basic Allowance

for Housing payments are based on grade and geographic location. Basic Allowance

for Housing data can be obtained from the Defense Travel Management Office

https://www.defensetravel.dod.mil/site/bah.cfm.

A11.6.9.7.2. For a transient quarters facility, the primary cost element associated with

a Direct Compensation alternative is lodging per diem payments. The Defense Travel

Management Office can provide lodging per diem rates for the geographic area

https://www.defensetravel.dod.mil/site/perdiemCalc.cfm. Where there are no

existing transient quarters, the billeting office can also provide the number of

"Certificates of Non-Availability" that have been issued over the last 3 years.

A11.6.9.8. Basic Allowance for Housing or per diem payments may also be incurred when

users need to find temporary accommodations off base during a renovation or construction

project for dormitory or transient quarters. These costs would be incurred in accordance

with the construction schedule.

A11.6.9.9. Figure A11.9 summarizes the suggested data sources for obtaining the data

required to conduct a construction or repair economic analysis.

Figure A11.9. Summary of Data Sources for Construction and Repair Economic Analyses.

A11.6.10. Impact of Project Schedule on Cost.

A11.6.10.1. The project schedule provides information about project phasing and facility

occupancy under each alternative. Many costs associated with the existing situation

continue to be incurred during the construction period. In general, reduced costs, such as

lower utility costs, cannot be realized until the new facility is occupied and the old facility

has been disposed.

AFMAN65-506  6 SEPTEMBER 2019  127 
A11.6.10.2.  Where the project schedule allows for phased occupancy, costs such as annual 
maintenance and repair and utilities are pro-rated.  The occupancy or “move-in” date may 
vary for some alternatives due to different time factors associated with the construction 
period, approvals, and the solicitation process. 
A11.6.11.  Other Cost Considerations 
A11.6.11.1.  The concept of present value is fundamental to the economic analysis.  Present 
value calculations  allow  comparison of  different  dollar amounts  received or  expended 
during different time periods.  In addition to presenting the costs in either then-year or 
constant-year dollars, the costs for each alternative must be presented in present value 
terms.  (T-2). 
A11.6.11.1.1.  Discounting is  the  technique  used to determine the  present value of 
future cash flows.  Discounting is further explained in Chapter 4 of this manual.  The 
Air Force normally uses a mid-year discounting convention.  The mid-year discounting 
calculation is illustrated in Attachment 7 of this manual. 
A11.6.11.2.  Uniform Annual Cost.  Uniform Annual Cost is a technique used to account 
for  alternatives  having  different  economic  lives.    It  is  required  for  real  property 
construction and repair economic analyses (T-2). 
A11.6.11.2.1.  Uniform Annual Cost uses a life cycle cost to measure the cost of each 
alternative.  In addition, construction and repair economic analyses are required to 
report the life cycle cost of each alternative using the Uniform Annual Cost Method, 
and the Terminal Value Method as described in Chapter 4 of this AFMAN. 
A11.6.11.2.2.  The Uniform Annual Cost Method is further illustrated in Attachment 
7.  Reporting costs in terms of the Uniform Annual Cost Method and the Terminal 
Value  Method  provides  the  Air  Force  with  methods  of  comparing  the  costs  of 
alternatives with different economic lives. 
A11.7.  Conducting  the  Benefits Analysis.    A  benefits  analysis  takes  into  account  the  non-
monetary aspects of each alternative in an economic analysis.  A benefits analysis is required in 
all economic analyses. 
A11.7.1.  There are a variety of ways benefits can be evaluated including narrative description, 
ordinal measurement and quantitative measures.  Chapter 5 of this manual provides details on 
conducting benefit analyses. 
A11.7.2.  The  financial  management  analyst  is  responsible  for  conducting  the  benefits 
analysis.  However, input should be provided by a variety of installation functions including, 
but  not  limited  to,  the  primary  user  or  beneficiary  of  services  from  the  facility,  civil 
engineering,  services,  security  police,  transportation,  and  other  appropriate  agencies.  One 
effective approach is to convene a "roundtable" discussion with all participating organizations 
to determine benefit categories and elements and to evaluate the benefits by alternatives. 
A11.7.3.  The financial management analyst should prepare a source document for the benefits 
analysis showing participants, assumptions, rationale for benefit selection, and sources.  This 
document must be included in the economic analysis. (T-2). 

128 AFMAN65-506 6 SEPTEMBER 2019

A11.7.4. Examples of typical benefits are presented in Figure A11.10 Note that the list in

Figure A11.10 is by no means exhaustive, but it does include many of the benefits which are

normally considered when evaluating construction and repair projects.

Figure A11.10. Benefits for Consideration in Construction and Repair Projects.

AFMAN65-506 6 SEPTEMBER 2019 129

A11.8. Uncertainty Analysis (Sensitivity and Risk Analysis).

A11.8.1. A sensitivity analysis is required in all economic analyses (T-1). Sensitivity analysis

identifies key assumptions and variables within an economic analysis and determines how

changes affect the results of the alternatives relative to each other. For decision makers facing

an investment decision, sensitivity analysis is a tool for determining how changes in costs or

benefits (e.g., due to estimating errors that stem from uncertainty) affect the economic analysis

conclusion and interpretation of results.

A11.8.2. Sensitivity Analyses should be performed on assumptions that drive cost and any

assumptions that have the possibility of significantly changing the relative value of the

alternatives. Chapter 6 of this nanual provides additional information on how to conduct a

sensitivity analysis.

A11.8.3. Risk Analysis – A risk analysis is an evaluation of unfavorable events or outcomes

and assesses uncertainty in a manner different from sensitivity analysis.

A11.8.4. A risk analysis is not required in real property construction and repair economic

analyses, but should be included when directed by the decision-maker or when the level of risk

associated with any alternative has a reasonable likelihood of being a key consideration for the

decision maker. Chapter 6 of this manual provides additional information on how to conduct

a risk analysis.

A11.9. Summary and Comparison of Alternatives. This section is the key to a meaningful

economic analysis. The analyst summarizes the analysis, compares the alternatives and provide

some interpretation of the results for the decision maker.

A11.9.1. Summarizing Alternatives

A11.9.1.1. Provide summary tables for the cost analysis, benefit analysis, and uncertainty

analysis for areas where the analyses have been expressed in quantitative terms.

A11.9.1.2. The cost summary should include a table(s) with the present value of the

alternatives, new funding required by alternative, and any other financial measures used to

evaluate the alternatives.

A11.9.1.3. Benefits - The benefit summary should include a summary table if the benefits

were measured using: physical counts, an index/ratio, or a rating scale. If benefits were

evaluated using narrative descriptions, then those descriptions should be summarized in

this section.

A11.9.1.4. Uncertainty - A description of the sensitivity analyses should be included in

this section. This also is the appropriate section to summarize results for the risk

assessment. If risk was measured quantitatively, a table should be included.

A11.9.2. Comparing Alternatives

A11.9.2.1. The present value of costs and the Uniform Annual Costs must be compared

across alternatives and any resulting cost differences addressed. (T-2).

A11.9.2.2. As a minimum, the benefits must be narratively compared across alternatives.

(T-2). In certain analyses, comparison of benefit scores is also appropriate.

130 AFMAN65-506 6 SEPTEMBER 2019

A11.9.2.3. The overall relative strengths and weaknesses of each alternative are required

to be discussed narratively in this section.

A11.9.3. The interpretation of the results should flow logically and be consistent from the rest

of the analysis.

A11.9.3.1. For example, an economic analysis for transient quarters could demonstrate

that continuing to pay per diem to transient personnel is the least cost alternative.

A11.9.3.2. However, if off-base lodging is remote and a significant number of the

transients are distinguished visitors, the benefits analysis may demonstrate that

construction of new quarters satisfies the objective far more effectively.

A11.10. Documenting the Results of the Economic Analysis. An economic analysis must be

documented in an economic analysis report to allow complete replication by reviewers. (T-2).

This section provides guidance on how to document an economic analysis. Figure A11.11 lists

the required elements.

Figure A11.11. Documentation Elements.

A11.10.1. Certificate of Satisfactory Economic Analysis – For the Certificate of

Satisfactory Economic Analysis, follow the procedure and format provided in

Attachment 3 of this manual.

A11.10.2. Executive Summary – For the Executive Summary, follow the format in

Section A11.11 of this manual.

A11.10.3. Table of Contents – A Table of Contents outlining the organization of the

economic analysis is placed after the Executive Summary.

A11.10.4. Background/Objective/Scope – The objective and an abbreviated version of

the background will be included in the executive summary to orient the reader to the

analysis. (T-2). A more thorough background will be included in the body of the economic

analysis document in addition to the objective and a description of the scope of the analysis.

(T-2).

AFMAN65-506 6 SEPTEMBER 2019 131

A11.10.5. Facts/Assumptions/Ground Rules – All economic analyses must include a list

of the assumptions made. (T-2). These assumptions must be clearly stated so evaluators can

understand the level of uncertainty and risk inherent in the economic analysis results. (T-2). It

is also important to include the source for each assumption.

A11.10.6. Alternatives - Detailed descriptions of each of the reasonable alternatives

addressed in the economic analysis are also included in the economic analysis executive

summary report. Figure A11.12 presents a checklist by alternative of the information that is

included in the project description. Justification for alternatives that were considered but

dismissed as infeasible are also presented in this section.

Figure A11.12. Description of Alternatives Construction and Repair Economic Analyses.

A11.10.7. Source and Derivation of Costs

A11.10.7.1. The methodology used for the interim calculations can be presented

narratively, or in tables or charts. Tables and charts can facilitate the review of the

economic analysis for evaluators. It is very important to include the source and any interim

calculations conducted for all estimates and data used in the economic analysis. Therefore,

this section will refer the reader to the appropriate signed source documents in Appendix

B and interim calculations in Appendix C of the economic analysis.

A11.10.7.2. Any assumptions that were used in the derivation of the cost estimate are also

reiterated here. For example, the derivation of annual maintenance and repair costs might

read like this: “Annual maintenance and repair costs for the existing facility were

based on historical data provided by the Planning Department of the Civil

Engineering Squadron (Appendix B). The data were adjusted to TY22 dollars

(Appendix C). Annual maintenance and repair costs for the renovation alternative

were assumed to be 10 percent less than the Status Quo alternative. Annual

maintenance and repair costs for the new construction alternative were assumed to

be 15 percent less than the Status Quo alternative. These assumptions were based on

interviews with Civil Engineering personnel and are documented in the Civil

Engineering Source Document dated 29 April 20XX. (Appendix B).”

132 AFMAN65-506 6 SEPTEMBER 2019

A11.10.8. Source and Derivation of Benefits: This section explains the methodology used

to develop the benefit analysis. The discussion on benefits analysis includes:

A11.10.8.1. A description of each benefit element.

A11.10.8.2. A discussion of the method used to obtain data and analyze the benefits (e.g.,

interviews, survey) to include the names and organizations of those who provided benefit

information. If the benefits were scored, include a discussion of how the weights and

values were calculated.

A11.10.8.3. Results of the benefit analysis by alternative to include rankings for non-

narrative analyses.

A11.10.8.4. When feasible, include a table summarizing the benefits by alternative.

A11.10.9. Uncertainty (Sensitivity Analysis and Risk Analysis) – The Sensitivity Analysis

results will be included in the economic analysis. (T-1). If the results of any sensitivity

analysis indicates a change in the alternative rankings, then this fact will be discussed. The

results of any risk assessment will also be included.

A11.10.10. Comparison of Alternatives and Interpretation of Results – In this section,

the analyst will provide a comparison of the alternatives and interpret the results. (T-2).

The executive summary will contain an abbreviated form of this section as a conclusion. (T-

2).

A11.10.11. Appendices – The economic analysis appendices include the following:

A11.10.11.1. Appendix A includes the Department of Defense Form 1391 for each

alternative.

A11.10.11.2. Appendix B includes the Source Documents used to build the analysis. All

of the signed source documents and supporting data are presented, including the name and

phone number of points of contact.

A11.10.11.3. Appendix C includes the interim calculations for the analysis. All of the

worksheets used in calculating utility, maintenance, moving, temporary leases, personnel

costs, BAH for military personnel, per diem for traveling personnel, and other estimates,

as well as inflation and escalation adjustments are presented in this appendix.

A11.11. A sample Executive Summary for a MILCON Economic Analysis is provided

below. Even though the content of this sample applies strictly to MILCON, the format can be

applied to other comparative analyses. Note that only the Executive Summary is provided below,

not the entire analysis report. More details on the cost analysis, benefit analysis, and uncertainty

analysis would be included in the body of the document.

A11.11.1. The Executive Summary includes a description of all reasonable alternatives.

Including a description of reasonable alternatives that are infeasible will inform subsequent

readers of why an alternative was excluded from further consideration.

A11.11.2. The cost table includes: new funding required, life cycle costs, and Uniform Annual

Costs. The life cycle costs are only those costs relevant for comparative analyses. For

example, they do not include sunk costs and may not include wash costs.

AFMAN65-506 6 SEPTEMBER 2019 133

A11.12. A weighted benefit summary was included in the Executive Summary to: Reflect

that a weighted benefit technique was used as part of the comparative analysis. Following the

sample Executive Summary, a second example of a benefit analysis summary was provided that

could be used in an Executive Summary. The second example of a benefit analysis summary is

for when a narrative benefit technique is used in the comparative analysis. Please note that the

Executive Summary only contains a summary of the benefit analysis. A more thorough description

of the benefit analysis should be included in the main body of the document.

A11.13. The sample Executive Summary includes a recommendation.

134 AFMAN65-506 6 SEPTEMBER 2019

Figure A11.13. The sample Executive Summary includes a recommendation.

EXECUTIVE SUMMARY

Installation/MAJCOM: Sample Air Force Base (AFB), Any State/Air Mobility Command

(AMC)

Project Title: 237

Aeromedical Evacuation Squadron Facility

Project Number: 1024223

Project Objective: Provide facility at Sample Air Force Base (SAFB) that meets the needs of

the 237

Aeromedical Evacuation Squadron

Background

The 237

AES conducts aeromedical evacuation missions spanning the continental United

States, Europe, the Pacific and the Middle East. A Strategic Basing Decision was approved

by the Secretary of the Air Force (SecAF) in May 20XX to relocate the 237

AES from Old

Air Force Base to Sample Air Force Base. This relocation aligns the 237

AES with the

Air Mobility Wing at SAFB.

The 237

AES is manned by flight medical personnel, plus medical, logistics, and

radio/communications technicians. This incoming unit will need secure space for unit

operations and climate-controlled storage to relocate its 57 officers, 110 enlisted, one civilian,

and all associated mobility support equipment.

Alternatives Considered

Alternative 1: Status Quo (Infeasible) – The 237

AES is a new mission at SAFB and no

facility exists to accommodate the squadron without modifications. Therefore, this

alternative is considered infeasible and was not analyzed further.

Alternative 2: Renovation

–

Under this alternative, Building 241 on SAFB would be used

to house the incoming 237

AES. The building would require a major renovation to

accommodate the 237

AES. The renovation would replace the old, leaking roof with a new

standing seam metal roof, replace the original interior doors, install new floor coverings,

repaint the exterior of the facility, replace the ceiling throughout the facility, replace all

electrical wirings, install energy efficient lighting and controls, replace raised flooring,

remove curb slope entrance at the second floor restrooms, replace all original windows with

those approved for antiterrorism/force protection, install fire detection and suppression

systems as required. Building 83 would be used for equipment storage. The renovation

project is estimated to begin in June of 2019 and is estimated to be completed by September

of 2020.

AFMAN65-506 6 SEPTEMBER 2019 135

Alternative 3: New Construction

Under this alternative, a new purpose-built facility

would be constructed with 29,999 SF to accommodate the 237

AES and B83 would be

used for equipment storage. Under this alternative, the project is estimated to begin in

March of 2022 and would be completed by January of 2023. Since there is no currently

existing facility, disposal costs will not be incurred.

Summary of Analysis Results

Summary of Costs - A cost summary is provided in the table below. Renovate has a

significantly lower investment cost and a lower life cycle cost. Consistent with the lower

investment and life cycle cost, the Uniform Annual Cost for renovation is also lower than the

Uniform Annual Cost for new construction.

Table A11.1. Cost Summary.

136 AFMAN65-506 6 SEPTEMBER 2019

Table A11.2. Benefits Summary.

AFMAN65-506 6 SEPTEMBER 2019 137

138 AFMAN65-506 6 SEPTEMBER 2019

AFMAN65-506 6 SEPTEMBER 2019 139

Attachment 12

ECONOMIC IMPACT ANALYSIS

A12.1. Introduction. By its very presence in local communities, both in the continental US and

around the world, each Air Force installation increases economic output of its host community

thru local spending on goods and services. In addition, individuals who work on an installation

spend their own money in the local community on things like rent, food and entertainment. These

expenditures have an impact on the local economy that can be quantified using an Economic

Impact Analysis (EIA). In turn, the EIA can be an important tool for installation leadership in

interactions with civic leaders.

A12.2. Background. An EIA is an estimate of an installation’s economic impact on its host

community. This chapter provides a methodology, guidance and instructions for estimating an

installation’s economic impact in terms of dollars and jobs.

A12.2.1. The requirement to complete an EIA by Air Force installations, units, or MAJCOMs

is determined by the MAJCOM Headquarters or installation commander. For installations that

do produce an EIA, the guidance in this chapter is provided to ensure a valid methodology is

used and to aid in consistency and comparability across installations.

A12.2.2. SAF/FMC developed an Excel

estimating template to assist producers of EIA and

to facilitate consistency of EIA across the Air Force. This Excel

template/spreadsheet is

available on the SAF/FMCE SharePoint

page, to which a link is provided on the SAF/FMCE

page of the Air Force Portal. The Installation and Mission Support Center Resource

Management Cost Division may also be a useful reference.

A12.2.3. While it is possible to calculate economic impact without multipliers, the Air Force

primary approach uses multipliers. An allowable alternate approach is to calculate the

economic impact without using multipliers. The analysis should state whether or not

multipliers have been included. If an installation does include economic multipliers, the

analyst should use the economic multipliers from the Bureau of Economic Analysis.

Multipliers for many installations are provided in the Excel

template.

A12.2.3.1. The Bureau of Economic Analysis multipliers are developed using the

Regional Input-Output Modeling System (RIMS II) and the resulting multipliers are called

final-demand multipliers. Only changes in purchases made by final users are used with

final-demand multipliers. A final-demand change refers to goods and services sold to final

users. Final users are people and organizations that purchase a finished or final product.

For example, a bakery that buys ingredients (e.g., flour, sugar, eggs) to make bread and

pastries is not considered a final user; the customers who buy the final product (i.e., the

bread and pastries) are the final users. In most cases for Air Force EIA, dollars associated

with final users are limited to Appropriated Fund and Working Capital Fund expenditures

and payroll.

A12.2.3.1.1. Accounting for Government Expenditures and Payroll – The Bureau of

Economic Analysis does not include a government multiplier that is suitable to use in

an EIA. Instead, analysts will have to break out expenditures by type (e.g.,

construction, utilities, payroll). This approach will then require the application of

multipliers by expenditure type as described in section A12.4 of this manual.

140 AFMAN65-506 6 SEPTEMBER 2019

A12.2.3.1.2. Examples of final user expenditures are: (1) construction funded by

appropriated funds, (2) utilities funded by appropriated funds, (3) supplies funded by

appropriated funds, (4) any other good or service funded by appropriated funds, and

(5) purchases funded by a Working Capital Fund.

A12.2.3.1.3. Examples of final user payroll are: (1) military pay, (2) civilian pay, (3)

Non-Appropriated Fund employee payroll funded by appropriated funds, (4) Army &

Air Force Exchange Service and Defense Commissary Agency (DeCA) employee

payroll funded by appropriated funds, (5) other employee payroll funded by

appropriated funds and (6) employee payroll funded by a Working Capital Fund.

A12.2.3.2. Some expenditures are purposefully not included when calculating the

economic impact of an installation on the local area. That is because they do not represent

a final-demand change caused by the Air Force installation.

A12.2.3.2.1. Expenditures that are not final user should not be included in expenditure

amounts to which the multipliers will be applied. These intermediate expenditures are

accounted for by the multiplier itself. They are similar to purchases made by a military

person or government civilian at a local community department store, grocery store,

etc. Likewise, a housing privatization expenditure is similar to the cost of construction

for a newly constructed house off-installation that is being rented to a military member.

In this case, the economic impact is accounted for under the Basic Allowance for

Housing (BAH) payment, not the privatized construction cost.

A12.2.3.2.2. Examples of expenditures that are not final user include: (1) Non-

Appropriated Fund employee payroll not funded by appropriated funds, (2) Non-

Appropriated Fund activity expenditures not funded by appropriated funds, (3) housing

privatization expenditures not funded by appropriated funds, (4) payroll and

expenditures of a business that physically resides on an installation, such as a bank,

credit union or tenant restaurant.

A12.3. Data Collection. The SAF/FMC EIA tool requires a variety of data elements (described

below). The data elements are organized into tables to help analysts organize the data. Each table

element is intended to be self-explanatory. Annualize all expenditures for payroll, contracts,

construction and other procurements that are spent over more than one FY. If actual expenditures

are not available, distribute the contract amount for a project or service evenly over the number of

years of the contract. Input the annualized number, not the full contract value. Include tenant

organizations to the extent that they impact the local economy. Who and what amount to include

will not be an exact science. That being said, it is key to document which organizations are

included in the analysis. The paragraphs under paragraph A12.3 (this section) refer to tables in

the Excel

template as a way to organize data collection. Figure A12.1 summarizes the data

collection requirements.

A12.3.1. Personnel.

A12.3.1.1. Input Table 1 – Number of Personnel. The number of personnel table in the

Excel

template will show the number of personnel employed locally by the installation or

activity, regardless of where the servicing personnel or payroll offices are located.

A12.3.1.1.1. Military Personnel – Data Source: Servicing Personnel office.

AFMAN65-506 6 SEPTEMBER 2019 141

A12.3.1.1.2. Trainees/Cadets – Data Source: Servicing registrar or equivalent.

A12.3.1.1.3. Retirees – Data Source: Department of Defense Office of the Actuary.

(It is an open question as to what portion of the retirees are in the local area as a result

of the installation. For clarity, any retiree impact, if included, should be reported

separately from the installation economic impact).

A12.3.1.1.4. Civilian Employees – Data Source: Servicing Personnel office.

A12.3.1.1.5. Foreign National Direct Hires (FNDH) – Data Source: Servicing

Personnel office.

A12.3.1.1.6. Non-Appropriated Fund Employees funded by appropriated funds – Data

Source: Servicing Non-Appropriated Fund Human Resources Office.

A12.3.1.1.7. Army & Air Force Exchange Service and Defense Commissary Agency

employees funded by appropriated funds – Data Source: Respective installation

manager.

A12.3.1.1.8. Department of Defense Education Activity employees – Data Source:

Local Department of Defense Education Activity.

A12.3.1.1.9. Tenant employees funded by appropriated funds – Data Source:

Individual tenant unit(s) or installation Memorandum of Agreement (MOA) manager.

A12.3.1.1.10. Contract Civilians (not elsewhere included) – Data Source: servicing

contracting office. Report the number of Full-Time Equivalent (FTE) contract civilians

assigned. Numbers may also be obtained from the functional organization requiring

the contract.

142 AFMAN65-506 6 SEPTEMBER 2019

Figure A12.1. List of Expenses to Include in the Economic Impact Analysis.

A12.3.1.2. Input Table 2 – Annual Payroll by Classification. This table in the Excel

template will show the installation payroll expenses impacting the local area. The many

people who work on Air Force installations (military personnel, civilian personnel and

host-nation civilian employees) increase the economic output of the local community by

spending some portion of their pay on such items as rent, restaurants, entertainment and

daily necessities.

A12.3.1.2.1. Payroll is defined as gross income including basic pay, benefits and

allowances. Do not include retirement funds accrued or employer contributions that

are not immediately available to the employee.

AFMAN65-506 6 SEPTEMBER 2019 143

A12.3.1.2.2. When appropriate, or when specific cost information is not available, use

cost factor tables from AFI 65-503. The current cost factor tables are available on the

SAF/FMCE SharePoint

page, to which a link is provided on the SAF/FMCE page of

the Air Force Portal. Table references that follow refer to AFI 65-503.

A12.3.1.3. The community on an Air Force installation consists of many different kinds

of employees funded by appropriate funds. The intention is to count all these personnel in

the EIA. Personnel categories to include:

A12.3.1.3.1. Military Pay.

A12.3.1.3.1.1. Regular Air Force.

A12.3.1.3.1.1.1. Data Source: Servicing Financial Services Office. An

alternate method is to multiply the total quantity of assigned personnel with the

applicable standard composite rate(s), Table A19.1 or A19.2.

A12.3.1.3.1.1.2. Include only the following data elements of the Standard

Composite Factors: Basic Pay, Basic Allowance for Housing, Incentive Special

Pay and Miscellaneous. Do not include any accruals (retirement or other),

Permanent Change of Station or acceleration factors.

A12.3.1.3.1.2. Air Force Reserve/Air National Guard.

A12.3.1.3.1.2.1. Include non-extended active duty Air Force Reserve/Air

National Guard. This includes those personnel who serve one weekend per

month and a two-week active duty tour per year.

A12.3.1.3.1.2.2. Data Source: Servicing Financial Services Office. An

alternate method is to multiply the total quantity of assigned personnel with the

applicable standard composite rate(s), Table A22.1 or A23.1. Include only the

following data elements of the Standard Composite Factors: Basic Pay, Basic

Allowance for Housing, Incentive Special Pay and Miscellaneous. Do not

include any accruals (retirement or other), Permanent Change of Station or

acceleration factors.

A12.3.1.3.1.3. Trainees/cadets.

A12.3.1.3.1.3.1. Data Source: Training institution or Table A19.1 or A19.2.

Use an average daily student load if appropriate.

A12.3.1.3.1.3.2. The head-count and composite rate method is an alternative

source for trainee payroll data.

A12.3.1.3.1.4. Military Retirees. It is an open question as to what portion of the

retirees are in the local area as a result of the installation.

A12.3.1.3.1.4.1. Data Source: Department of Defense Office of the Actuary.

A12.3.1.3.1.4.2. For clarity, any retiree impact, if included, should be reported

separately from the installation economic impact.

A12.3.1.3.2. Civilian employees funded by appropriated funds or a Working Capital

Fund.

144 AFMAN65-506 6 SEPTEMBER 2019

A12.3.1.3.2.1. General Schedule, DoD Civilian Acquisition Workforce Personnel

Demonstration Project and Federal Wage System employees.

A12.3.1.3.2.1.1. Data Source: Servicing Financial Services Office. If this data

is not readily available, an approximation is [C / (1 + F)] * N. Where C is the

applicable standard composite rate from Table A27.1 or A28.1, F is the

retirement and benefits factor from Table A30.1, and N is the number of Full-

Time Equivalent (FTE) personnel. This equation estimates the total payroll, net

of retirement accrual and other employer-sponsored contributions.

A12.3.1.3.2.2. Foreign National Direct Hire (FNDH), Foreign National Indirect

Hire (FNIH), other foreign national employees.

A12.3.1.3.2.2.1. Data Source: Servicing Financial Services Office. Or use the

alternative method described in paragraph A12.3.1.3.2.1.1

A12.3.1.3.2.3. Non-Appropriated Fund-related employees funded by appropriated

funds.

A12.3.1.3.2.3.1. Include employees funded by Non-Appropriated Funds when

the employee or function is funded by appropriated funds via a Memorandum

of Agreement.

A12.3.1.3.2.3.2. Data Source: servicing Non-Appropriated Fund Human

Resources Office.

A12.3.1.3.2.4. Army & Air Force Exchange Service and Defense Commissary

Agency employees funded by appropriated funds.

A12.3.1.3.2.4.1. Data Source: Respective installation manager.

A12.3.1.3.2.5. Department of Defense Education Activity employees.

A12.3.1.3.2.5.1. Data Source: Local Department of Defense Education

Activity.

A12.3.1.3.2.6. Tenant employees funded by appropriated funds.

A12.3.1.3.2.6.1. Data Source: Servicing Financial Services Office or the

individual tenant unit(s), or use applicable cost factors from AFI 65-503.

A12.3.1.3.2.7. Contract Civilians (not elsewhere included).

A12.3.1.3.2.7.1. Data Source: Servicing contracting office. Numbers may also

be obtained from the functional organization requiring the contract. If this data

is not readily available, an approximation can be made by dividing the total

labor cost by cost per man-year or total labor hours divided by hours per man-

year.

A12.3.1.3.2.7.2. Caution! Do not double-count payroll in the "Contract

Civilians" line and in Table 3. If the payroll of contract civilians is part of a

contract amount reported in Table 3, do not enter the payroll amount in Table

AFMAN65-506 6 SEPTEMBER 2019 145

A12.3.2. Input Table 3 – Expenditures by classification. Table 3 in the Excel

template

will show the installation expenses for Construction, Services, and Procurement of Materials,

Equipment and Supplies. This is spending in the local community by installation units,

organizations and activities. An Air Force installation increases economic output of its host

community through spending on locally-purchased materials, supplies, equipment and

contracts. Installations also spend locally for services and construction contracts as well as

utilities and many other items, large and small. In addition to spending by official Air Force

units, recreational and other supporting organizations also make purchases off-installation, as

do tenant vendors, banks and many other unofficial activities on the installation.

A12.3.2.1. Locally produced goods and services – This category includes goods and

services that are not only purchased from local suppliers, but also produced locally.

A12.3.2.1.1. Construction expenditures. Include the following construction-related

expenditures as appropriate (suggested source: Civil Engineer function staff):

A12.3.2.1.1.1. MILCON Program.

A12.3.2.1.1.2. Military Family Housing Construction.

A12.3.2.1.1.3. Military Family Housing Operations and Maintenance (O&M).

A12.3.2.1.1.4. Construction-related Operations & Maintenance. Include only

those costs associated with contract construction (i.e., minor construction,

architectural and design fees, and real-property maintenance contracts).

A12.3.2.1.1.5. Non-Appropriated Fund Construction.

A12.3.2.1.1.6. Working Capital Fund Construction.

A12.3.2.1.2. Locally produced non-construction expenditures.

A12.3.2.1.2.1. Include all expenditures for goods and services that were produced

in the local area.

A12.3.2.1.2.2. Examples include: utilities (e.g., Cost Element Code 2332xxx for

commercial utilities, Legacy: Element of Expense 480xx), warehousing and

storage, printing, telecommunications, internet, real estate services (leasing, etc.),

Advisory and Assistance Services, Administrative and Support Services, waste

management, educational services, lodging services and hospital services.

A12.3.2.1.2.3. Suggested Sources:

A12.3.2.1.2.3.1. Operations & Maintenance. Installation budget office.

A12.3.2.1.2.3.2. Army & Air Force Exchange Service and Defense

Commissary Agency. Use appropriated fund expenditures only. Information

may be obtained directly from the installation manager. If unable to determine

how much appropriated fund spending is local, the analyst may make a reasoned

estimate.

A12.3.2.1.2.3.3. Medical. Ensure that any local procurement spending of Air

Force funds in the medical appropriation are included. The local medical

facility may also help determine the amount of local TRICARE spending in the

local economy.

146 AFMAN65-506 6 SEPTEMBER 2019

A12.3.2.1.2.3.4. Non-Appropriated Funds. Information on local procurements

may be obtained directly from the local Non-Appropriated Funds resource

management office. If unable to determine how much of Non-Appropriated

Funds spending is local, the analyst may make a reasoned estimate.

A12.3.2.1.2.3.5. Working Capital Fund. Installation budget office.

A12.3.2.1.2.3.6. Education.

A12.3.2.1.2.3.6.1. Department of Defense Education Activity. Information

may be obtained directly from the local the Department of Defense Education

Activity. If unable to determine how much of Department of Defense

Education Activity spending is local, the analyst may make a reasoned

estimate.

A12.3.2.1.2.3.6.2. Impact Aid. The Federal Government provides financial

assistance to local school districts to assist with the provision of educational

services to children of Federal employees (in accordance with Title VIII of

the Elementary and Secondary Education Act of 1965 (20 U.S.C. § 7701 et.

seq.)). An allocation should be used if there is more than one military

installation in the economic area (e.g., based on military and civilian

personnel assigned to the installation). Information may be obtained from the

local school district or United States Department of Education, Impact Aid

Programs,

http://www2.ed.gov/about/offices/list/oese/impactaid/index.html or

[email protected]. Contact telephone number is: 202-260-3858.

A12.3.2.1.2.3.6.3. Tuition Assistance. Information may be obtained directly

from the installation Education Office.

A12.3.2.2. Local purchases of goods produced outside the local area.

A12.3.2.2.1. Include local expenditures that are not captured in A12.3.2.1 above.

A12.3.2.2.2. One suggested method of data collection (for Air Force appropriated fund

activities on an installation) is to perform a Commanders' Resource Integration System

(CRIS) and/or Defense Enterprise Accounting and Management System (DEAMS)

retrieval of all expenditures (Accrued Expenditures Paid) incurred in the relevant FY

by Cost Elements (Legacy: Element of Expense and Investment Code). Exclude

expenditures that were not spent locally, like the Air Force Stock Fund and e-commerce

via the Government Purchase Card (GPC) program. Based on location and

circumstances, useful information may be available in contracting and civil engineering

databases. If appropriate, the analyst may assume expenditures were made locally and

include them in the estimate. This is a difficult category of local spending to estimate

and the analyst must exercise the best reasoned judgment.

A12.3.2.3. Temporary Duty/Travel.

A12.3.2.3.1. Include the amount of local spending by individuals Temporary Duty

(TDY) to the installation (suggested source: Installation Lodging office).

AFMAN65-506 6 SEPTEMBER 2019 147

A12.3.2.3.2. Lodging cost: Number of Temporary Duty and Temporary Lodging bed

nights multiplied by the lodging rate. Account for any changes in lodging rates that

occur during the year. Account for bed nights in installation lodging separately from

those in local community lodging due to the differences in lodging rates.

A12.3.2.3.3. Meals and Incidental Expenses (M&IE): A suggested method is to obtain

the number of TDY bed nights and perform the following calculation: B * (M * 0.75).

Where B is the number of Temporary Duty bed nights in local community lodging, M

is the Meals and Incidental Expenses rate, and 0.75 assumes that travelers spend 75%

of their Meals and Incidental Expenses allowances in the local community.

A12.4. Estimate of Economic Impact.

A12.4.1. There are many measures of economic impact (e.g., output, earnings, employment,

value added). This instruction will provide two measures using the data collected. The first

measure will be “output plus payroll.” The “output plus payroll” measure represents the total

dollar change in output that occurs for each additional dollar expended by the Air Force plus

payroll expenditures. The second measure is employment. The employment measure

represents the total change in number of jobs that occurs in all industries for each additional

million dollars expended by the Air Force (expenditures should be normalized to the year of

data upon which the multiplier is based). The below calculations are performed within the

Excel

template.

A12.4.2. Economic Impact on Output Plus Payroll and Employment.

A12.4.2.1. Economic Impact on Output Plus Payroll.

148 AFMAN65-506 6 SEPTEMBER 2019

Figure A12.2. Output plus Payroll Multiplier Decision Chart.

A12.4.2.1.1. Annual Payroll Expenditures.

A12.4.2.1.1.1. Multiply the payroll expenditures by the household output

multiplier to obtain the increase in economic output produced by the local

community that is created from household expenditures.

A12.4.2.1.1.2. To calculate total impact from payroll, add the original payroll

expenditures to the number calculated in paragraph A12.4.2.1.1.1 This step is

taken because the multipliers do not count household payroll as “output” to the

economy. As a result, the original payroll expenditures are included for the “output

plus payroll” measure.

A12.4.2.1.2. Locally produced goods and services.

A12.4.2.1.2.1. Segregate the expenditures by industry.

AFMAN65-506 6 SEPTEMBER 2019 149

A12.4.2.1.2.2. Multiply the locally produced expenditures by the respective

industry economic output multiplier.

A12.4.2.1.3. Local purchases that were produced outside the local area.

A12.4.2.1.3.1. The only portion of these expenditures that actually impacts the

local area is the retail margin (the portion of the price that can be attributed to the

local retailer). To obtain the retail margin, multiply these expenditures by the most

appropriate retail margin percentage.

A12.4.2.1.3.2. Multiply that product by the multiplier for retail goods.

A12.4.2.1.3.3. Selected retail margins are available in the retail margin table of the

Excel

template. If a retail margin is not available, use the “Other retail” margin

from the Excel

template.

A12.4.2.2. Economic Impact on Employment.

Figure A12.3. Employment Multiplier Decision Chart.

A12.4.2.2.1. Annual Payroll Expenditures.

150  AFMAN65-506  6 SEPTEMBER 2019 
A12.4.2.2.1.1.  Use the SAF/FMC inflation index to normalize the payroll expenses 
to the base year of the multipliers.  Divide the normalized payroll expenditures by 
$1M. 
A12.4.2.2.1.2.  Multiply the payroll expenditures by the household employment 
multiplier. 
A12.4.2.2.1.3.  The  employment  impact  from  the  calculations  in  sections 
A12.4.2.2.1.1 and A12.4.2.2.1.2 represent the number of jobs created in the local 
community as a result of government personnel spending their salaries in the local 
community.  To calculate total employment impact from payroll, add the original 
number of government jobs represented by payroll to the number calculated using 
paragraphs A12.4.2.2.1.1 and A12.4.2.2.1.2 
A12.4.2.2.2.  Locally produced goods and services. 
A12.4.2.2.2.1.  Segregate the expenditures by industry. 
A12.4.2.2.2.2.  Use the SAF/FMC inflation index to normalize expenditures for 
locally produced goods and services to the base year of the multipliers.  Divide the 
normalized expenditures by $1M. 
A12.4.2.2.2.3.  Multiply  the  locally  produced  expenditures  from  paragraph 
A12.4.2.2.2.2 by the respective industry economic employment multiplier. 
A12.4.2.2.3.  Local purchases that were produced outside the local area. 
A12.4.2.2.3.1.  For  these  purchases,  the  only  portion  of  the  expenditure  that 
actually impacts the local area is the retail margin (the portion of the price that can 
be attributed to the local retailer). 
A12.4.2.2.3.2.  Use the SAF/FMC inflation index to normalize expenditures for 
local purchases produced outside the local area to the base year of the multipliers.  
Divide the normalized expenditures by $1M. 
A12.4.2.2.3.3.  Multiply the expenditures from paragraph A12.4.2.2.3.2 by the 
most appropriate retail margin percentage. 
A12.4.2.2.3.4.  Multiply  the  product  of  paragraph  A12.4.2.2.3.3  by  the 
employment multiplier for retail goods. 
A12.4.2.2.3.5.  Selected retail margins are available in the Excel
®
 template.  If a 
retail  margin  is  not  available,  use  the  “Other  retail”  margin  from  the  Excel
®
 
template. 
A12.5.  Alternative Methodologies.  If an installation desires to use a different methodology for 
their EIA, a request must be submitted through the MAJCOM to SAF/FMCE (T-1).  Requests 
should include an explanation of the proposed method and the reason the Air Force method is not 
appropriate or executable. 
 

AFMAN65-506 6 SEPTEMBER 2019 151

Attachment 13

CLINGER-COHEN ACT ECONOMIC ANALYSES

A13.1. Issues Unique To Clinger-Cohen Act Comparative Analyses.

A13.1.1. The Clinger-Cohen Act requires “…criteria related to the calculation of a Return on

Investment” when considering whether to undertake an investment in information systems.

DoDI 5000.75 provides guidance on how to satisfy the Return on Investment requirement for

Defense Business Systems acquisition programs. DoDI 5000.02 provides guidance on how

to satisfy the Element 6 Return on Investment requirement for all other defense programs.

DoDI 5000.74 - Defense Acquisition of Services provides Clinger-Cohen Act guidance for the

acquisition of contracted services.

A13.1.2. Based on this DoD guidance, the Return on Investment requirement in the Clinger-

Cohen Act will be met either through an Economic Analysis or through a Life Cycle Cost

Estimate. (T-0). This Attachment provides information that is used to determine which type of

analysis is required and when in the acquisition life cycle the analysis is required. It also

provides information specific to preparing Clinger-Cohen Act economic analyses.

A13.2. Type Of Analysis Required.

A13.2.1. The Clinger-Cohen Act requires a Return on Investment calculation for automated

information systems. These systems can either be wholly automated information systems such

as a business system or they can be part of another weapon system or product such as software

inside an aircraft. See DoDI 5000.02 Table 1 Note 4 for the definition of automated

information systems. The Automated Information System category designation is determined

by the Component Acquisition Executive, as delegated by the Secretary of Defense or

Secretary of the Military Department, DoDI 5000.02.

A13.2.2. To satisfy Clinger-Cohen Act requirement, the Department of Defense requires an

Economic Analysis or a Life Cycle Cost Estimate depending on the type of system being

procured. The following rules apply. The rules are summarized in Figure A12.1

A13.2.2.1. Acquisition Master List or Other Acquisition Designation. Programs/systems

on the Acquisition Master List or with Other Acquisition Designation, (i.e., Middle-Tier

Acquisitions from FY17 NDAA Section 804) that acquire information technology require

Clinger-Cohen Act certification. If a program/system is not on the Acquisition Master List

or does not have an acquisition definition, then Clinger-Cohen Act requirements are

performed at the discretion of the Secretary of the Air Force- Chief Information Officer/A6.

A13.2.2.2. Acquisition Phase

A13.2.2.2.1. In general, an economic analysis or life cycle cost estimate is required for

Clinger-Cohen Act purposes during the development and production or deployment

acquisition phases.

A13.2.2.2.2. A program/system at any phase after the full deployment decision (or

equivalent) in its acquisition lifecycle is not required to update its economic analysis

or life cycle cost estimate for Clinger-Cohen Act purposes.

152 AFMAN65-506 6 SEPTEMBER 2019

A13.2.2.2.3. For Defense Business Systems, a system at any point after the acquisition

authority to proceed decision point (or equivalent) is not required to update its

economic analysis for Clinger-Cohen Act purposes.

A13.2.2.2.4. Modification programs to the parent program require an independent

economic analysis or Life Cycle Cost Estimate (LCCE) for Clinger-Cohen Act

purposes if that modification is treated as an acquisition program in its own right

regardless of the acquisition phase of the parent program.

A13.2.2.3. When the system program is on the acquisition master list or other acquisition

designation and at an acquisition phase which requires an economic analysis or life cycle

cost estimate for Clinger-Cohen Act purposes, the next key discriminators for determining

the type of analysis required are (1) whether the program/system is, or just includes, an

Automated Information System; (2) whether the program/system is a Defense Business

System; (3) whether the program/system is classified as a National Security System; and

(4) whether the program system is an information technology service. The type of analysis

required in each situation is described below:

A13.2.2.3.1. If the system under consideration is not an Automated Information

System under DoD Instruction 5000.02 Table 1 Note 4, then:

A13.2.2.3.1.1. A Life Cycle Cost Estimate is required for Clinger-Cohen Act

purposes unless the program is an Information Technology Services Contract.

A13.2.2.3.1.2. If a program is an Information Technology Service Contract, then

an Economic Analysis with a Return on Investment is required for Clinger-Cohen

Act purposes. Information Technology Services are defined in DoDI 5000.74.

A13.2.2.3.1.3. Note: The current definition in Table 1 Note 4 excludes “computer

resources, both hardware and software, that are an integral part of a weapon or

weapon system” from the definition of Automated Information Systems. However,

the analyst should always validate their official automated information system

categorization.

A13.2.2.3.2. If the system under consideration is a Defense Business System, then

perform an Economic Analysis with a Return on Investment when the system is in the

“Business System Functional Requirements and Acquisition Planning Phase”

(approaching it’s “Acquisition” Authority to Proceed) or equivalent phase. Defense

Business Systems are defined in DoDI 5000.75. By definition, the category of Defense

Business System does not include National Security Systems.

A13.2.2.3.3. If the program/system under consideration is an Automated Information

System, but not a National Security System and not a Defense Business System, then

perform an Economic Analysis with a Return on Investment.

A13.2.2.3.4. If the program/system under consideration is an Automated Information

System and also a National Security System, then the return on investment required for

Clinger-Cohen Act purposes will be met using an economic analysis with return on

investment if practicable; otherwise, a life cycle cost estimate is required. This is the

one categorization where an economic analysis is required, but a life cycle cost estimate

may be substituted if the economic analysis is not practicable to complete.

AFMAN65-506 6 SEPTEMBER 2019 153

A13.2.2.3.4.1. In determining whether an economic analysis would be practicable,

the analyst should consider whether it is possible to accomplish the return on

investment, which is essentially a quantitative calculation, and also whether the

return on investment would provide information that could be relevant to the

decision.

A13.2.2.3.4.2. The initial determination of whether an economic analysis is

practicable is made by the program office. (T-2). The final determination is made

by the highest level of Financial Management concurrence required for the analysis

(Economic Analysis or Life Cycle Cost Estimate). This will be either the Product

Center Cost Chief, the Sustainment Center Cost Chief, the MAJCOM Cost Chief,

or SAF/FMC and is determined by acquisition category level (see the coordination

process in paragraph A13.4 of this Attachment). (T-2). The program office may

consult with the appropriate center level Cost Chief or SAF/FMC in advance when

making an initial determination on whether an Economic Analysis is practicable.

A13.2.2.3.4.3. For acquisition programs, lack of time is rarely an acceptable reason

for determining that accomplishing an Economic Analysis is not possible.

Figure A13.1. Clinger-Cohen Act Economic Analysis and Life Cycle Cost Estimate

Requirements.

A13.3. Timing of The Requirement For An Economic Analysis Or Life Cycle Cost Estimate.

A13.3.1. For Defense Business Systems, the Economic Analysis is required for the

Acquisition Authority To Proceed decision point (or equivalent). Figure A13.2 shows the

timing of the Defense Business System Economic Analysis in the context of the Defense

Business System Acquisition Cycle described in DoDI 5000.75.

154 AFMAN65-506 6 SEPTEMBER 2019

Figure A13.2. Timing of Economic Analysis Requirement For Defense Business Systems.

A13.3.2. For non-Defense Business Systems Automated Information Systems requiring an

Economic Analysis, the Economic Analysis is required for Milestone A, B, C and Full Rate

Production/Full Deployment decisions (or equivalent). For Milestone A, an Analysis of

Alternatives can satisfy the requirement for the initial Economic Analysis as long as the

Analysis of Alternatives includes a rigorous consideration of costs and benefits associated with

alternative means of accomplishing the objective and a return on investment. Figure A13.3

illustrates the timing of the non-Defense Business Systems Economic Analysis in the context

of the Acquisition Cycle described in DoDI 5000.02.

Figure A13.3. Timing of Economic Analysis Requirement For Non-Defense Business

Systems.

A13.3.3. An Economic Analysis with an appropriate Return on Investment calculation from a

previous milestone decision may be sufficient for subsequent milestones if the Life Cycle Cost

Estimate has not changed by more than 15%, and the results of the Economic Analysis would

not be overturned by a change in cost or benefits.

A13.4. Coordination Process.

A13.4.1. If an Economic Analysis is required for Clinger-Cohen Act compliance, the

Economic Analysis will be developed by the Program Office and submitted to the appropriate

Cost Chief for concurrence and further reviews as required in paragraph A13.4.1.1 and

paragraph A13.4.1.2 (T-2). The coordination process is also summarized in Figure A13.4

AFMAN65-506 6 SEPTEMBER 2019 155

A13.4.1.1. For Defense Business Systems that are Category I, non-Defense Business

Systems that are ACAT I, and for select programs, as identified by the Secretary of Air

Force and/or Milestone Decision Authority, the Economic Analysis and associated

documentation (including coordination by the appropriate Cost Chief’s office) will be

submitted to Secretary of the Air Force/Financial Management Cost for review. (T-1).

A13.4.1.1.1. Programs on the Acquisition Master List or other Acquisition designation

will be approved by the appropriate Center Cost Chief prior to being submitted to

Secretary of the Air Force/Financial Management Cost. (T-1).

A13.4.1.1.2. Projects not on the Acquisition Master List or other Acquisition

designation will be approved by the appropriate MAJCOM Cost Chief prior to being

submitted to SAF/FMC. (T-2). For Non-Acquisition designated Clinger-Cohen

Projects with an investment (non-recurring) cost of under five million dollars the

MAJCOM Commander may delegate review/approval to the Wing-level Commander

who may further delegate approval to the Wing-level Comptroller for where the project

originated.

A13.4.1.1.3. The reviewing offices within the Secretary of the Air Force/Financial

Management Cost are SAF/FMC and AFCAA/FMCI. Once approved, Secretary of the

Air Force/Financial Management Cost & Economics will distribute approval

coordination to the appropriate MAJCOM Cost Office or Center Cost Office. Secretary

of the Air Force/Financial Management Cost & Economics coordination will serve as

evidence of Clinger-Cohen Act compliance of the return on investment requirement for

category I Defense Business Systems, non-Defense Business Systems that are ACAT

I, and select programs.

A13.4.1.2. For non-select Defense Business Systems that are category II and III, the

highest level of concurrence required is the Product Center Cost Chief, Sustainment Center

Cost Chief, or MAJCOM Cost Chief. (T-2). Similarly, for ACAT II and III systems that

are non-select and non-Defense Business Systems, the highest level of concurrence

required is the Product Center Cost Chief, Sustainment Center Cost Chief or MAJCOM

Cost Chief. (T-2). These cost offices’ coordination will serve as evidence of Clinger-

Cohen Act compliance for category II and III non-select programs.

156 AFMAN65-506 6 SEPTEMBER 2019

Figure A13.4. Clinger-Cohen Act Element 6 Process Flow And Coordination

Requirements.

A13.5. Alternatives.

A13.5.1. When developing an Economic Analysis, the analyst should consider all reasonable

alternatives for meeting the objective of the project. In some cases, Congressional legislation

may exclude the status quo (current state) as an alternative. If so, the analyst should list the

status quo and explain why it is not a feasible alternative for further consideration. It is only

in this situation that an economic analysis with only one costed course of action is acceptable.

If the status quo is not excluded, then the Clinger-Cohen Act Economic Analysis will include

at least two possible alternatives (one alternative in addition to the status quo). (T-2). The

second alternative will be the planned system investment. (T-2).

A13.5.1.1. Alternative 1 (Current State) – The course of action if the investment under

consideration is not made. Essentially, it is the current or “as-is” process prior to

investment.

A13.5.1.1.1. Software maintenance to keep software up-to-date should be included in

the Status Quo recurring cost.

A13.5.1.1.2. Software maintenance as defined by Defense Federal Acquisition

Regulation System Subpart 208.7401 is defined as the right to receive and use upgraded

versions of software, updates and revisions.

A13.5.1.2. Alternative 2 (Investment) – The course of action if the investment under

consideration is made.

A13.5.1.3. It is important to note that the requirements/technology maturation process may

reveal multiple reasonable material solutions that would satisfy the objective. With more

than one reasonable material solution, there may be more than two alternatives in the

economic analysis.

AFMAN65-506 6 SEPTEMBER 2019 157

A13.6. The Return On Investment Calculation

A13.6.1. A Return on Investment, as commonly defined, is intended to measure financial gain

(after investment cost) as a percent of the investment cost. For the Air Force, this financial

gain commonly translates into budget savings. Using this definition, the Return on Investment

calculation requires estimating a status quo alternative from which the budget savings can be

calculated.

Table A13.1. Return On Investment Calculation.

Figure A13.5. Return on Investment.

A13.6.2. For programs where the status quo has been excluded as a feasible alternative, the

analyst may substitute “criteria related to a Return on Investment” instead of the formal Return

on Investment calculation described above. The analyst should include the costs of the

investment alternative(s) as the investment and a description of the (non-monetary) benefits

from the investment alternatives as the return.

A13.6.3. Many programs are undertaken to correct a deficiency unrelated to budget savings.

As a result, the Return on Investment may not be a meaningful measure of which alternative

best meets the needs of the Air Force. In such a case, while the analyst is still required to

include the Return on Investment by law, the benefit analysis should carry a greater

significance than the Return on Investment in the Economic Analysis.

Figure A13.6. Return on Investment Alternative.

158 AFMAN65-506 6 SEPTEMBER 2019

A13.7. Additional Considerations.

A13.7.1. If cost risk is included in the estimate for the “investment” alternative, cost risk

should also be assessed for the status quo alternative.

A13.7.2. Both alternatives should be evaluated at similar confidence levels.

AFMAN65-506 6 SEPTEMBER 2019 159

Attachment 14

OTHER SPECIALIZED ANALYSES

A14.1. Lease-Purchase Decisions

A14.1.1. OMB Circular A-94, Guidelines and Discount Rates for Benefit-Cost Analysis of

Federal Programs, distinguishes two types of decisions regarding lease-purchase:

A14.1.1.1. The decision to acquire the services of an asset. This involves cost-benefit

analysis to show that acquiring the asset is the best economic alternative.

A14.1.1.2. Once the decision to acquire the services of an asset is made, the related

decision to lease or purchase the asset. In this lease-purchase type of analysis, benefits are

often essentially the same. In many Air Force analyses, mission need has already

determined the requirement. In this situation, only a lease-purchase analysis would be

required (i.e., an economic analysis with two alternatives, lease and purchase).

A14.1.2. When estimating for major facilities, the Air Force normally does not have authority

to solicit bids both for a lease or service contract alternative and for a purchase alternative.

Under these circumstances, one estimation method is:

A14.1.2.1. Estimate a life-cycle flow of funds for the purchase alternative.

A14.1.2.2. Compare the present value (i.e., discounted dollars) of contractor bids for the

lease or service contract with the present value of the purchase alternative. IMPORTANT:

Work with contracting offices to develop such bids since it must be made clear that the

government's request for information may not lead to an offer.

A14.1.3. All economic analyses involving lease-purchase analysis follow special guidance

outlined below.

A14.1.3.1. Leases are often "level term." Their cost is set per month or year over a number

of months or years. The lease terms are stated in nominal (i.e., inflated) dollars. For this

reason, economic analyses involving lease-purchase analysis are often accomplished in

nominal dollars. Discount these nominal dollars using the nominal discount rate provided

in OMB Circular A-94, Appendix C, for the term of the lease. The rates are updated

annually when the President presents the Budget, and can be found on the SAF/FMC

SharePoint

page, to which a link is provided on the SAF/FMCE page of the Air Force

Portal, or on the OMB website.

A14.1.3.2. If lease costs are stated in constant dollars, use constant dollars in the

comparative analysis and discount at the real rate.

A14.1.3.3. When the term of a lease or service contract differs from the economic life of

the asset under the purchase option, estimate asset value at the end of the lease term and

include it in the purchase alternative as a benefit (negative cost) in the final period of the

analysis.

A14.1.3.4. Add to the cost estimate for the lease the cost to the Treasury of any special tax

benefits available to the lessor associated with a lease.

160 AFMAN65-506 6 SEPTEMBER 2019

A14.1.3.4.1. For example, if a particular leased asset enables a lessor to take advantage

of accelerated depreciation tax benefits, increase the contract bid to offset these losses

to the Treasury.

A14.1.3.4.2. Consider current tax laws applicable to a lessor to determine whether or

not an adjustment is appropriate in a particular comparative analysis. Because tax laws

change, consult with legal and contracting staff.

A14.1.3.4.3. In most accelerated depreciation schedules, the amount of the special tax

advantage is only the portion of the total allowance for depreciation in excess of

"normal" economic depreciation. In such cases, the calculation of normal economic

depreciation is an annual amount equaling acquisition price divided by economic life

(i.e., straight-line depreciation).

A14.2. Energy Projects.

A14.2.1. Since energy price changes in energy sectors are apt to differ from price changes in

other sectors, use Department of Energy (DoE) indices, published annually (NISTIR 85-3273-

xx).

A14.2.2. Use the following guidelines for Energy Resilience and Conservation Investment

Program (ECIP) comparative analyses of retrofits to existing energy systems:

A14.2.2.1. Base all analyses on an economic life of 25 years or the life of the retrofit or of

the facility, whichever is less.

A14.2.2.2. Use the Department of Energy published escalation rates for energy.

A14.2.2.3. Energy Resilience and Conservation Investment Program projects will use the

published discount rates in the annual supplement to National Institute of Science and

Technology (NIST) handbook 135, NISTIR 85-3273-xx, Energy Price Indices and

Discount Factors for Life-Cycle Cost Analysis (check with the civil engineering office).

(T-2).

A14.2.3. Analyze lease-purchase decisions and private sector financed leases or service

contracts involving energy projects using the following guidance:

A14.2.3.1. Use the Energy Resilience and Conservation Investment Program approved

discount rate for lease-purchase comparative analyses.

A14.2.3.2. Escalate the government MILCON Program alternative estimate using DoE

rates for comparison with private sector financed (e.g., lease, service contract) alternatives.

Take the lessor or contractor bid at face value (i.e., not escalated, since this constitutes the

actual commercial bid).

AFMAN65-506 6 SEPTEMBER 2019 161

A14.2.3.3. Energy Resilience and Conservation Investment Program projects should in

most cases have a Simple Payback of 10 years or less with a minimum Savings Investment

Ratio (SIR) of 1.25 to meet Department of Defense criteria. (Estimated Simple Payback

time is the number of years required for the cumulative value of energy cost savings less

future non-fuel costs to equal the investment costs of the building system without

consideration of future price changes or discount rates. For example, invest $100,000 at

an annual savings of $20,000. Simple Payback is investment divided by savings, so the

Simple Payback would be 5 years. Simple Payback does not take into account the time

value of money.)

A14.2.4. Analyze energy plant conversion projects using the following guidelines:

A14.2.4.1. Discount projects using a renewable energy source at the rate for Energy

Resilience and Conservation Investment Programs.

A14.2.4.2. Discount projects using fossil (nonrenewable) fuel at the rate published by the

OMB.

A14.2.4.3. Use DoE energy indexes.

A14.2.5. Additional analytical tools can be found at the Federal Energy Management

Program’s website: (https://www.energy.gov/eere/femp/femp-solution-center-tool-box)

Note: Comparative analyses which are not specifically energy projects are not required to use

Department of Energy indexes.

A14.3. Warranty Cost-Benefit Analysis.

A14.3.1. Follow this guidance when performing a cost-benefit analysis (CBA) to determine

whether using a warranty is beneficial to the government. (T-1). The principal criterion for

determining life cycle cost (LCC) advantage is the present value (i.e., discounted dollars) of

expected program costs and benefits, estimated both with warranty coverage and without

warranty coverage, and (if appropriate) with partial warranty coverage.

A14.3.2. Plan sufficient lead time to complete the detailed work required in a warranty CBA.

Start early if it will support contract negotiations. Interim CBA findings are very valuable in

establishing government negotiating positions; the CBA identifies expected major cost drivers

and potential failure nodes.

A14.3.2.1. The analyst may do the CBA as early as the demonstration and validation phase

and then update the CBA during full-scale development and source selection or

negotiations for the production contract. It is best to accomplish the CBA before release

of the Request for Proposal for the production contract and update after receipt of proposals

with the contractor's proposed warranty price.

A14.3.2.2. The OPR for life-cycle cost analysis of the program is OPR for the warranty

CBA, unless the program manager assigns responsibility elsewhere. The program manager

(Program Office (PO) director, project manager, etc.) should ensure the CBA is initiated

as soon as system technical design is well enough established to allow LCC estimation.

A14.3.2.3. OCRs are significant stakeholders and any other organizations with

information necessary to develop the life-cycle cost model. OCRs usually include civil

engineering and logistics staffs.

162 AFMAN65-506 6 SEPTEMBER 2019

A14.3.3. A computer model is available to do the CBA. Contact HQ Air Force Material

Command Financial Management (AFMC/FM) for information. Consider information in the

Warranty Activity Report, if available, when doing the CBA.

A14.3.4. Estimate LCC for the system or component without warranty coverage. Then

estimate LCC under full or partial warranty coverage.

A14.3.4.1. Break down the system or item under consideration into its constituent parts,

based on the expected major operating and support (O&S) cost drivers and associated

failure nodes. Items considered for warranty coverage may be a combination of new

components and of components similar to those in historically procured items. Therefore,

analysts may face a combination of historical data and engineering forecasts to identify

cost drivers and failure nodes.

A14.3.4.2. Estimate the expected costs over time for each failure node, based on expected

failures and anticipated cost per failure.

A14.3.4.2.1. Use statistical methods or mathematical models to relate failures at each

node to variables measuring system deployment and operation (e.g., shelf life,

operation cycles, hours of operation, or presence or absence of special operating

conditions).

A14.3.4.2.2. Estimate the mean time between failures (mean operating cycles between

failures, etc.) and variables which are related to failure.

A14.3.4.2.3. Build estimates of the cost of a failure at each node from historical data

or projections, as applicable.

A14.3.4.2.4. Sum up monetary LCCs as the total of the costs of each failure node.

A14.3.5. Estimate LCCs for the alternative including warranty coverage. The basic procedure

is the same as above: break down the system or item into its major cost components. This is

particularly useful for addressing whether proposed warranty provisions should be accepted.

A14.3.5.1. Estimate the costs and benefits of each warranty clause or provision.

A14.3.5.1.1. Consider benefits to the government of warranty implementation plans

and procedures.

A14.3.5.1.2. Consider administrative costs of the warranty and potential claims that

the warranty is likely to cover. When possible, identify administrative costs with

specific warranty provisions, to increase the precision of the warranty assessment.

A14.3.5.2. Consider warranty effects on system or item cost components or performance

characteristics outside warranty coverage. For example, consider such factors as the effects

of warranty provisions on system field performance or the implicit cost differences due to

different turnaround times between contractor and in-house repair.

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A14.4. Military Construction Design

A14.4.1. Purpose. This guidance establishes criteria and standards for performing

comparative analyses and life cycle cost studies used in support of design decisions for

MILCON program projects, i.e., to support the selection from various alternatives of

components/systems being considered as elements in facilities design. These criteria and

standards apply to all design decisions regardless of when they are made in the planning,

programming, design or procurement process. This guidance does not apply to economic

analyses and life cycle studies used to make project justification decisions during the planning

and programming process.

A14.4.2. General. Comparative analyses shall be conducted as part of the design process to

ensure the selection/rejection of design alternatives is not based solely on construction costs,

but also on the lowest life cycle costs (LCC), that is, lowest total cost of ownership. (T-2). The

depth and degree of formality of these analyses shall be determined on a case- by-case basis to

ensure that the potential benefit from information accruing from the analysis is commensurate

with the effort for the analysis. Results of generic studies or results of previous analyses of

alternatives similar to those currently under consideration may be used in lieu of performing a

new study provided the previous study was based on similar design conditions, criteria, and

methods. Previous studies should be updated as required to reflect changes of conditions

significant enough to impact the design decision. All comparative analyses and other

justification for the selection of a design alternative, whether a previous study or a new one,

shall be clearly documented in the appropriate section of the project design analysis. (T-2).

A14.4.3. Methods. All analyses shall consider the total LCC for design alternatives, where

the LCC includes all costs and revenue associated with an alternative over its expected life,

including but not limited to construction/acquisition, energy, maintenance, operation, repair,

replacement, alteration, disposal costs, and retention values. (T-2). The present value

discounting approach shall be used to adjust for the differences in timing of cost and benefits

unless otherwise specified by other directives or by public law. (T-2). Discounting should be

applied to all cost and benefits over the appropriate analysis period. Specific criteria are as

follows:

A14.4.3.1. Energy Related Studies. All energy related economic studies (in which

energy costs are relevant, regardless of their magnitude relative to other costs) shall use the

current discount rate published by the National Institute of Standards and Technology

(NIST) in their annual supplement to NIST Handbook 135, and disseminated by the

appropriate Service Headquarters Office. (T-2).

A14.4.3.2. Non-energy Related Studies. All economic studies other than energy related

economic studies shall use the current discount rates published annually by the OMB as

Appendix C to OMB Circular A-94, and disseminated by the SAF/FMC. (T-2).

A14.4.3.3. Analysis Period. When using Terminal Value, the analysis period shall be

the life expectancy of the alternative with the shortest life. (T-2). When using Uniform

Annual Cost, the period of analysis will match the life expectancy of the facility in each

alternative. (T-2). Note: An adequate cost analysis of a utility system should be over a

term greater than 25 years. Generally, design lives of Electrical, Natural Gas, Water, and

Wastewater systems are a minimum of 50 years. LCCs over a shorter term tend to be very

inaccurate

164 AFMAN65-506 6 SEPTEMBER 2019

A14.4.3.4. Cash Flow. In general, cash flow used in the analysis will be based on the

estimated calendar dates on which the events and cost/benefits are projected/scheduled to

occur. Construction/acquisition costs may be assumed to be incurred as a single lump sum,

preferably at the time corresponding to the midpoint of the construction/acquisition

process. Other cash flows that occur periodically throughout the year (e.g., cost of fuel,

electricity, water, maintenance) may be assumed to be incurred as a single lump sum,

preferably at midyear. In circumstances where the above assumptions add unnecessarily to

the complexity of the calculations, all cash flows may be assumed to occur at the end of

the year in which they are actually scheduled/projected to occur.

A14.4.3.5. Costs. As a minimum, costs will be reported in present value terms. (T-2).

Otherwise, costs must be clearly labeled as to the year and type of dollar. In projecting

future costs, an allowance for future price-level changes, (i.e., escalation), will be made for

costs expected to change at rates higher or lower than the general rate of inflation. For

energy studies, fuel/energy costs shall use escalation rates as published by NIST in

Handbook 135. (T-2).

A14.5. Program Evaluation:

A14.5.1. A Program Evaluation is an economic analysis of on-going operations to ensure

established goals and objectives are being attained in the most cost-effective manner. A

program evaluation compares actual performance with stated program objectives. A program

evaluation must be performed when directed by the program’s leadership or higher authority,

or when prescribed by functional directives. (T-2).

A14.5.2. Responsibilities Assigned. The official who implements a program, or a higher

authority, directs that a program evaluation be completed at a specific future date. The

functional manager, with the assistance of the financial management staff, then establishes a

plan to collect and maintain the cost and benefit data necessary for the evaluation.

A14.5.3. General Program Evaluation Procedures when preparing a program evaluation

comparative analysis:

A14.5.3.1. Set reference points (baselines, milestones, and goals) for the analysis as soon

as possible.

A14.5.3.2. Determine if an analysis supporting previous decisions is available. Previous

comparative analyses may help start the process of analyzing the program or operation's

goals, assumptions, alternatives, costs and benefits, outputs, or effectiveness. However,

avoid excessive reliance on a previous analysis when the situation or contributing variables

have changed.

A14.5.3.3. Identify performance measures from the program or operation. It may be

helpful to compare performance measures with related on-going programs.

A14.5.3.4. Performance measures are inherently quantitative. If adequate data does not

exist for measuring performance, work with experts to determine adequate measures and

begin accumulating such data. The data must be auditable and reflect significant

organizational missions and functions, satisfaction of customer needs, timely

accomplishment of processes, relevant environmental impacts, or resources consumed or

required.

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A14.5.3.5. Identify and discuss important qualitative benefits (e.g., improvements in

process quality, mission fulfillment, health, safety, morale, security factors).

A14.5.3.6. Whenever trends are significantly different from previous estimates, examine

specific reasons for the variance.

A14.5.4. Methodology. The following step-by-step procedure can be used to facilitate output

measurement.

A14.5.4.1. Step I - Identify All Relevant Outputs. Government programs/projects have at

least one and often two or more objectives. These objectives may be prescribed by law,

established by policy or may be based on historical practice. There should be a causative

relationship between activities, as measured by the output indicator and the resources

consumed (costs). A restatement of resources consumed is not a good way to measure

output. For example, a statement of the man-hours required to do a job is simply another

way of accounting for resources consumed and tells little about what is accomplished. The

difference between costs of competing alternatives, i.e., differential costs or costs savings,

is not an "output" for purposes of program evaluation.

A14.5.4.2. Step II - Establish Data Sources. Avoid generating unnecessary work by

determining if adequate information is already available in some form. Consider sources

such as: established reports, opinions and judgments of experts, observations and

tabulations of steps in work process, outside organizations and information centers.

A14.5.4.3. Step III - Collect, Summarize, Evaluate, Validate and Display or Present

Output Data. Select a technique for summarizing the data in a tabular, graphic or other

format as appropriate. The analyst has discretion in deciding the method employed and

techniques.

A14.5.4.4. Step IV - Compare Output Data with Resources Consumed. In the analysis,

identify the output and costs associated with a particular alternative or activity. If

practicable, construct graphic relationships of output to cost to observe trends developing

or to detect evidence of possible substandard performance. When output data are not

quantitative, the analysis is more difficult. In such cases, identify project outputs in precise

terms and compare the outputs to the required resources so that the decision-maker can

determine the most reasonable course of action.

A14.6. Product Support Business Case Analysis:

A14.6.1. A Business Case Analysis is a statutory requirement for all major weapon systems

based on Title 10, United States Code (USC) Section 2337. DoDI 5000.02, Operation of the

Defense Acquisition System states the Business Case Analysis will be included as an annex to

the Life Cycle Sustainment Plan. (T-0).

A14.6.2. Product Support Business Case Analyses must comply with the guidance in this

manual. See Air Force Pamphlet 63-123, Product Support Business Case Analysis, for

additional guidance on preparing a Product Support Business Case Analysis.

A14.6.3. The Product Support Business Case Analyses for Acquisition Category 1, Defense

Business Systems Category I and select programs are approved at the SAF/FMC Level.

Category II and III are approved at the MAJCOM or Center Level.

166 AFMAN65-506 6 SEPTEMBER 2019

A14.7. Foreign Currency Conversion:

A14.7.1. This section provides additional guidance on and examples of foreign currency

conversions. The guidance in this Attachment addresses, in turn, constant and nominal dollar

analysis. The guidance assumes the analyst has collected some costs expressed in foreign

currency.

A14.7.2. Constant Dollar Analysis. Obtain a forecast of the exchange rate for the FY which

will be the base year of the analysis (i.e., the first year in which there will be differences in

expenditures for different alternatives). Use the exchange rate for that base year of the analysis

to convert expenditures in every year. The resulting dollars are constant dollars of that base

year, resulting in a constant dollar analysis. Note: Exchange rates are ordinarily cited on the

basis of national currency unit per US dollar (e.g., Yen per dollar). An exception is often the

British Pound Sterling, which frequently is cited as dollars per pound. Check the source for the

basis of the rate.

A14.7.3. Nominal Dollar Analysis. Obtain a forecast of the exchange rate for each year of the

analysis. Convert each year's foreign currency expenditures into dollars using the forecast

exchange rate for each year. The resulting dollars are nominal dollars. If the forecast does not

cover all the years in the analysis, use the exchange rate for the last year forecast for all

remaining years. An alternate approach: use the exchange rate for the first year of the analysis

to convert foreign currency into US dollars; then use a US inflation rate forecast to convert

these constant dollars into nominal dollars.