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acquisition strategies alter analysis annual lease payments argue that leasing arguments asset bear risk billion budget costs buy MILSATCOM systems buy option circulars A-76 communication satellites communication system Comsat contractor costs of risk decision to lease defense distribution economic equipment expected annual lease Finance Leases financial risks FLTSATCOM form of contract HCSI House Appropriations Committee incentives increase launch LEASAT lease contract lease or buy lease versus buy leased services leasing and buying lessee lessor MARISAT Program MILSATCOM acquisition NASA national security considerations Navy opportunity cost orbit percent performance present value private risk bearing private sector problems public sector leasing purchase contract Rand requirements result risk averse risk preferences risk premium satellite communication satellite system schedule delays shareholders shifting risks social costs Space Shuttle Spacecom staff suppliers tax considerations tax incidence tax savings taxpayers TDRS technical risks users versus buy debate versus buy decisions wartime communication