Message from netstat -ap (*run as root*):

(Not all processes could be identified, non-owned process
info will not be shown, you would have to be root to see it
all.)
Active Internet connections (servers and established)
Proto Recv-Q Send-Q Local Address           Foreign
Address         State       PID/Program name
tcp        0      1 rtsa1.raleigh.ibm.:1023
vox.raleigh.ibm:printer SYN_SENT    451/lpd
[snip]
tcp        0      0 rtsa1.raleigh.ibm.:1075
serv15.raleigh.i:telnet ESTABLISHED 1919/
tcp        0      0 rtsa1.raleigh.ibm.:1074
serv15.raleigh.i:telnet ESTABLISHED 1918/telnet
[snip]

(sorry for any wrapping)

I think this means:

This is line 387 of netstat.c
  meaning prg_cache_loaded != 1

Since prg_cache_loaded is set to 1 at line 303, this appears
to mean that the prg_cache_add() from line 370 is getting
called and hence sets prg_cache_loaded to 2.  The
prg_cache_add() getting executed doesn't appear to be a big
deal since it appears to be the snprintf() call before it
that generates the ending of netstat -p output

***
After digging through and trying to find patterns, it looks
like that any process that has no resident pages in memory
(and hence "ps" stat output will show "W") has its
accompanying /proc/pid/* entries messed up... in particular,
even though this machine has 4 telnet sessions from 4
xterm's to the same machine, 3 of the 4 are swapped out and
now their cmdline is empty:

[root@rtsa1 /root]# cat /proc/{1919,2024,2040}/cmdline
[root@rtsa1 /root]#

Yes, this machine *does* swap a lot :)

[root@rtsa1 /root]# free
             total       used       free     shared
buffers     cached
Mem:         64136      61540       2596      17356
1344      24756
-/+ buffers/cache:      35440      28696
Swap:       192772     160108      32664

Hence it looks like netstat (among others) might assume
that root can always get valid /proc/*/cmdline entries,
although if processes are swapped out that's not the case.

Please feel free to reassign this to net-tools and patch
netstat.c to simply warn about this case

--- netstat.c~1~	Thu Oct  7 15:32:10 1999
+++ netstat.c	Thu Oct  7 15:33:52 1999
@@ -384,8 +384,12 @@
 		geteuid());
     }
     else
-	fprintf(stderr, _("(Not all processes could be identified,
non-owned process info\n"
-			 " will not be shown, you would have to be root to see
it all.)\n"));
+	if(geteuid())
+		fprintf(stderr, _("(Not all processes could be
identified, non-owned process info\n"
+			 	" will not be shown, you would have to be root to see
it all.)\n"));
+	else
+		fprintf(stderr, _("(Not all processes could be identified
because some were swapped out of memory\n"));
+
 }

 #if HAVE_AFNETROM