Over a decade had passed since the legislation which had established it, and he was concerned about the degree of inter-service rivalry, duplication and mismanagement that was evident in many programs. In ballistic missile development, the Soviet Sputnik program had demonstrated that country's technological lead over the United States. The Army and Air Force had rival programs, PGM-19 Jupiter and PGM-17 Thor respectively, and the additional cost to the taxpayers of developing two systems instead of one was estimated at $500 million.[73]