"Two"
I've pontificated on this before, we have been saddled with bills that enable other services (Space, RPA, Cyber), without an increased piece of the DoD pork pie. The A-10 fiasco had several motivators but the biggest was dollars and cents. I was in the room for some of these discussions with OSD and SECDEF and they went like this:
SECAF/CSAF - "We need more Money"
SECDEF - "No, execute within existing resources"
SECAF/CSAF - "Copy Boss, We have a Title X responsibility to provide these core capabilities so we are going to eliminate capability A to pay the bills"
SECDEF - "No, Service X needs that capability, execute within existing resources"
SECAF/CSAF - "Copy Boss, We are going to eliminate capability B to pay the bills"
SECDEF - "No, Service X needs that capability, execute within existing resources, and here is a new bill."
SECAF/CSAF - "Copy Boss, We are going to eliminate capability C, D, X, and Z to pay the bills"
SECDEF - "No, Service X needs capability C, D, X and Congress has a special interest in Z, execute within existing resources and here is a new bill."
SECAF/CSAF - "Copy Boss, The only option left on the table that pays the bill is to eliminate the A-10."
SECDEF - "Ok."
Congress - "Not happening, and we direct you to ramp up F-35 production, here is the bill."
Until SECAF/CSAF fall on their sword in a very public manner we will continue to see issues like this.