Second FY2008 Supplemental Appropriations for Military Operations, International Affairs, and Other Purposes

FY2008 Spring Supplemental Appropriations
and FY2009 Bridge Appropriations for
Military Operations, International Affairs,
and Other Purposes (P.L. 110-252)
Updated July 15, 2008
Stephen Daggett, Susan B. Epstein, Rhoda Margesson,
Curt Tarnoff, Pat Towell, and Catherine Dale
Foreign Affairs, Defense, and Trade Division
Shannon S. Loane
Knowledge Services Group



FY2008 Spring Supplemental Appropriations and
FY2009 Bridge Appropriations for Military Operations,
International Affairs, and Other Purposes (P.L. 110-252)
Summary
On June 30, 2008, President Bush signed into law a bill, H.R. 2642 (P.L. 110-
252), that makes supplemental appropriations for FY2008 and FY2009, extends
unemployment payments, and expands veterans’ educational benefits. The House
approved the measure on June 19 and the Senate on June 26. As enacted, the bill
reflects compromises with the White House on several key issues. It extends
unemployment benefits for 13 weeks but not 26, allows veterans’ educational
benefits to be transferred to dependents, does not include an offsetting tax increase,
limits other domestic spending, and delays implementation of six, rather than seven,
new Medicaid rules. The amended bill also drops most Iraq-related policy provisions
that had been in earlier versions. In all, the bill provides $183.5 billion in
supplemental appropriations, including $2.65 billion of newly added funds to respond
to Midwest floods. Extended unemployment benefits are estimated to cost a net of
$10 billion over ten years and enhanced veterans educational benefits $63 billion.
Earlier, the House approved an initial version of the bill on May 15, 2008.
Procedurally, the House took up H.R. 2642, a bill on a different topic, and considered
three amendments. By a vote of 141-149, with 132 Republicans voting “present,”
the House rejected an amendment providing $162.5 billion in FY2008 and FY2009
for military operations. It adopted a second amendment setting out Iraq-related
policies, including a requirement that combat forces be withdrawn from Iraq within
18 months. And it approved a third amendment to expand veterans’ educational
benefits offset by a tax surcharge; extend unemployment compensation; delay new
Medicaid regulations; and provide $21 billion in supplemental appropriations.
On May 22, 2008, the Senate approved an amended version of the bill
providing $194 billion in supplemental funding. The Senate-passed bill included
$162.5 billion for defense and about $8 billion more than the House bill for domestic
programs. The bill expanded veterans’ educational benefits without an offset and
limited Medicare payments to new specialty hospitals. On key roll calls, the Senate
rejected by 34-63 an amendment to provide defense funding and to establish Iraq-
related policies; approved by 75-22 an amendment to provide defense funding
without policy restrictions; and approved by 70-26 an amendment to fund domestic,
international affairs, and military construction programs.
During its first session, the 110th Congress approved FY2008 emergency
supplemental appropriations of $86.8 billion for the Department of Defense and $2.4
billion for international affairs. This left unresolved Administration requests for
$102.5 billion for defense and $5.4 billion for international affairs. For congressional
action on FY2008 supplemental funding through December 2007, see CRS Report
RL34278, FY2008 Supplemental Appropriations for Global War on Terror Military
Operations, International Affairs, and Other Purposes, which will not be updated
further. This CRS report, RL34451, reviews congressional action on remaining
FY2008 and additional FY2009 supplemental funding.



Contents
Most Recent Developments..........................................1
Earlier Congressional Action.........................................2
Highlights of H.R. 2642 (P.L. 110-252) as Signed by the President
June 30, 2008.................................................4
How Long FY2008 Funding Would Have Lasted.........................5
Key Issues in the Bill...............................................6
Expanded GI Bill Veterans’ Education Benefits......................6
House and Senate Differences Over Other Domestic Spending..........7
Iraq Policy..................................................13
House-Passed and Senate Committee Bills.....................13
Defense Funding Issues........................................15
International Affairs Remaining FY2008 and Additional FY2009
Supplemental Appropriations...............................16
Congressional Action..........................................16
Iraq Reconstruction Assistance..................................24
May 15 House Action on Iraq Reconstruction...................26
May 22 Senate Action on Iraq Reconstruction..................27
House and Senate Action on Iraqi Role in Reconstruction.........28
Enacted Version of FY2008/2009 Supplemental................28
Afghanistan Reconstruction Assistance............................32
Background .............................................32
The FY2008 Original and Amended Emergency Supplemental
R eques t ............................................32
The FY2009 Regular and Supplemental Request................33
Congressional Action......................................33
Pakistan ....................................................37
The FY2008 Original and Amended Supplemental Request........37
The FY2009 Regular and Supplemental Request................37
Congressional Action......................................38
Sudan ......................................................38
FY2008 Supplemental Request..............................38
FY2009 Regular and Supplemental Request....................38
Congressional Action......................................39
Other Humanitarian Assistance..................................41
Migration and Refugee Assistance (MRA).....................41
Emergency Refugee and Migration Assistance Fund (ERMA)......41
International Disaster Assistance (IDA).......................41
Food Security and Food Aid....................................42
Mérida Initiative..............................................43
Domestic Programs...............................................43
Expansion of Montgomery GI Bill Education Benefits................44
The Graham alternative....................................45
PAYGO, Military Retention, and Transferability Issues...........46



Hurricane Katrina Repairs and Coastal Louisiana Restoration..........47
Congressional Action......................................48
The Census and Other Domestic Issues............................48
Decennial Census.........................................48
Other additions...........................................48
Other Senate Additions of Funding for Domestic Programs............49
Appendix A. Status of FY2008 Supplemental Funding Through
December 2007..............................................50
Status of FY2008 Supplemental Funding..........................50
Congressional Action on FY2008 Supplemental Appropriations Through
December 2007..........................................50
Administration Requests...................................50
Congressional Action......................................51
Remaining FY2008 and Additional FY2009 Defense Request..........53
Appendix B. Summary Funding Tables...............................57
List of Tables
Table 1. Overview of House and Senate Supplemental Appropriations in
H.R. 2642 by Title and by Major Category..........................9
Table 2. Selective Comparison of House- and Senate-Passed Supplemental
Appropriations, H.R. 2642.....................................10
Table 3. FY2008 and FY2009 Emergency Supplemental for State Department
Operat i ons ..................................................18
Table 4. FY2008 and FY2009 Foreign Operations Emergency Supplemental..19
Table 5. House and Senate Rescissions...............................24
Table 6. Supplemental Appropriations for Iraq Reconstruction.............30
Table 7. Afghanistan Reconstruction Assistance, FY2008-FY2009.........36
Table 8. Sudan Emergency Supplemental, FY2008-FY2009...............40
Table A-1. Remaining FY2008 and Additional FY2009 Supplemental
Funding Requested for the Department of Defense..................54
Table B-1. Spring FY2008 and FY2009 Supplemental Appropriations:
Request, House, and Senate Amounts by Account...................57
Table B-2. Memorandum: Un-passed House Leadership Bill Defense Funding
Compared to Request and Senate-Passed Bill......................67



FY2008 Spring Supplemental
Appropriations and FY2009 Bridge
Appropriations for Military Operations,
International Affairs, and Other Purposes
(P.L. 110-252)
Most Recent Developments
On June 30, 2008, President Bush signed H.R. 2642 (P.L. 110-252), a bill which
makes supplemental appropriations for FY2008 and FY2009 for military operations
in Iraq and Afghanistan and for other purposes. The bill also extends unemployment
payments, and expands veterans’ educational benefits. The House had passed the bill
on June 19, and the Senate approved it June 26 by a vote of 92-6.
In floor action on the bill on June 19, the House adopted two amendments to a
version of the bill previously approved by the Senate. Amendment #1, agreed to by
a vote of 268-155, included $162.4 billion for military operations, the same amount
as in the same title of the Senate-passed bill. Amendment #2, agreed to by a vote of
416-12, reduced the defense total by $3.6 billion and incorporated all of the other key
measures to be included in the final bill.
Because the House agreed on June 19 to the defense total in the version of the
bill previously approved by the Senate, the issue before the Senate on June 26 was
concurrence in the House-passed Amendment #2. Before clearing the bill for the
President, the Senate voted 77-21 to waive the Budget Act concerning the bill, thus
disposing of a point of order against the bill raised by Senator Coburn, who
contended that the bill improperly designated as “emergency” spending — thus
exempt from spending ceilings set by the Congressional Budget Resolution — $210
million for the Census Bureau.
As enacted, the bill would cost an estimated $202 billion in FY2008 and
FY2009 and almost $60 billion more through FY2018, of which
!$183.5 billion is supplemental appropriations for defense,
international affairs, disaster relief, and some other domestic
programs, including $2.65 billion of newly added funds to respond
to Midwest flooding earlier in the month;
!$14 billion in FY2008 and FY2009 is for extended unemployment
benefits, with a net cost, following savings in future years, of $10
billion over eleven years through FY2018;



!$796 million in FY2008 and FY2009 and $63 billion through
FY2018 is for expanded veterans educational benefits; and
!$1.2 billion in FY2008 and FY2009 is due to Medicaid rules
changes.
The final bill reflects compromises with the White House on several issues. On
major issues the bill extends unemployment benefits for 13 weeks but not for 26
weeks; expands veterans’ educational benefits as in earlier House and Senate bills
and adds a provision allowing benefits to be transferred to spouses and dependents,
as the White House had proposed; does not include a surcharge on high income
taxpayers to offset costs of expanded educational benefits as in the earlier House-
passed bill; delays six, rather than seven, new Medicaid rules; does not approve the
bulk of unrequested funds for domestic programs included in the Senate-passed bill;
and adds $2.65 billion in new funds, partly at the request of the President, to
replenish emergency accounts expected to be used to respond to recent Midwest
floods. The final bill also drops most Iraq-related policy provisions that were in the
original House-passed bill, except for provisions requiring Iraq to match U.S.
economic assistance, prohibiting permanent bases in Iraq, and applying mandatory
fraud reporting requirements to contractors working abroad.
Earlier Congressional Action
In earlier action, on May 15, 2008, the House approved an initial version of the
bill that provided $21 billion for military construction, international affairs, and
domestic programs, but did not include $162.5 billion that the House leadership had
proposed for operations in Iraq and Afghanistan. The House bill also approved
extended unemployment compensation payments, expanded veterans educational
benefits, and Medicaid rules changes. Procedurally, as a vehicle for considering
supplemental appropriations without a committee markup, the House brought to the
floor the Senate-passed version of H.R. 2642, the FY2008 military
construction/veterans’ affairs appropriations bill that had been incorporated into the1
FY2008 consolidated appropriations act. The House then considered three
amendments as substitutes for the text of the bill.
!By a vote of 141-149 with 132 voting present, the House rejected the
first amendment to provide $96.6 billion in FY2008 and $65.9
billion in FY2009 funding for military operations.
!By a vote of 227-196, the House approved a second amendment to
require the withdrawal of combat forces from Iraq within 18 months;
establish readiness requirements for the deployment of U.S. troops;


1 H.R. 2642 was the FY2008 military construction/veterans affairs appropriations bill in the

1st session of the 110th Congress. Both the House and the Senate passed versions of the bill.


Further action on the bill became unnecessary when a conference agreement on the bill was
incorporated into the FY2008 consolidated appropriations act, H.R. 2764, P.L. 110-161, that
the President signed into law on December 26, 2007.

require that any agreement on the status of U.S. forces in Iraq be
authorized by Congress; mandate that Iraq match U.S. reconstruction
aid dollar-for-dollar and agree to subsidize fuel costs for U.S. forces;
make contractors in war zones subject to prosecution for offenses
that would violate U.S. law; prohibit the establishment of permanent
bases in Iraq; and prohibit interrogation techniques not authorized in
the Army Field Manual.
!And, by a vote of 256-166, the House approved a third amendment
providing $21 billion in FY2008 and FY2009 for military
construction, domestic, and international affairs programs. The
amendment also included expanded veterans educational benefits at
an estimated cost of $52 billion over ten years, with an offsetting
increase in taxes on those with incomes above $500,000 for an
individual or $1,000,000 for a couple. And the amendment included
an extension of unemployment benefits and Medicaid rules changes.
A week later, on May 22, 2008, the Senate approved an amended version of
H.R. 2642, providing $194 billion in supplemental appropriations for FY2008 and
FY2009, and also approving extended unemployment payments, expanded veterans’
educational benefits, Medicaid rules changes, and adding a limit on Medicare
payments to new specialty hospitals. On key roll call votes, all of which required 60
votes for approval, the Senate
!rejected by a vote of 34-63 an amendment to the House bill to
provide funding for defense programs and to establish various Iraq
policy provisions;
!approved by a vote of 75-22 an amendment providing defense
funding without policy restrictions; and
!approved by a vote of 70-26 an amendment providing funding for
domestic programs, international affairs, and military construction.
Earlier, on May 2, the White House sent Congress an amendment to its FY2009
budget formally requesting $70 billion in emergency FY2009 funding, including $66
billion for the Department of Defense and $4 billion for international affairs
programs. The $66 billion request for the Defense Department constituted a “bridge
fund” sufficient to allow the services to carry on both day-to-day peacetime activities
and military operations overseas until the middle of 2009. Approval of a bridge fund
— which the appropriations committees had planned to provide before the White
House made its formal request — would allow Congress to avoid a debate over war
funding during the fall election period, and also provide the 111th Congress time to
act on a full-year war supplemental after the next President takes office.
The $4 billion FY2009 emergency international affairs request included $770
million in emergency food-related assistance announced on May 1 (though FY2009
funding would not be available until October 1, 2008), $1.4 billion for aid to Iraq,
$1.1 billion for aid to Afghanistan, $350 million for the Middle East, $193 million
for Pakistan, $123 million for stabilization operations in Africa, $36 million for



security for diplomats in the Middle East, Sudan, and Somalia, and $15 million for
the six party agreement on North Korean nuclear programs.
On May 1, the President announced a new request for $770 million in FY2009
emergency supplemental appropriations for international food aid. The
Administration had requested $350 million for P.L. 480 international food assistance
in its October, 2007, budget amendment to the FY2008 supplemental request.
Senators Durbin and Casey had proposed adding $200 million in food aid to the
supplemental.
Highlights of H.R. 2642 (P.L. 110-252) as Signed by
the President June 30, 2008
The enacted version of H.R. 2642 provides $96.1 billion for military operations
in Iraq, Afghanistan, and elsewhere in FY2008 and $65.9 billion in FY2009; $4.2
billion for military construction programs in the United States and abroad; $10.1
billion for international affairs programs; and $10.3 billion for domestic programs,
including $2.65 billion, added after the House, on May 15, and the Senate, on May

22, passed earlier versions of the bill, to respond to Midwest floods. On key issues,


the final bill
!expands GI bill veterans’ education benefits to provide a full four
years of college education for service members who serve 36 or
more months abroad, as provided in the House and Senate bills, and
also permits benefits to be transferred to spouses and dependents, as
the Administration requested, which increases the estimated ten-year
cost from $52 billion to $62.8 billion;
!does not include a House-passed 0.5% income tax surcharge on
incomes of $500,000 or more for individuals and $1,000,000 or
more for couples — the surcharge was intended to offset the cost of
the GI bill provisions;
!provides 13 weeks of extended unemployment compensation in all
states, but not 26 weeks in some states as in the House and Senate
bills, reducing the estimated ten-year cost from $11 billion to $8.2
billion.
!adds $2.65 billion to replenish accounts expected to be used for
Midwest flood relief — the White House had reportedly requested
$1.8 billion;2


2 Christian Bourge, with Humberto Sanchez contributing, “Hoyer Says War Supplemental
Might Reach Floor Thursday,” National Journal Congress Daily, PM, June 18, 2008.

!delays implementation of six of seven Administration changes in
Medicaid regulations that would reduce Federal payments to the
states, rather than of all seven as in the House and Senate bills;
!drops most Iraq-related policy provisions that were in the House-
passed version of the bill, including a provision requiring withdrawal
of combat troops within 18 months and others requiring that troops
meet targets for readiness and for dwell time at home between
deployments — the bill includes measures requiring the Iraqi
government to match amounts of some reconstruction assistance and
prohibiting the use of funds to establish permanent bases in Iraq, and
it extends mandatory fraud reporting requirements to contractors
working abroad;
!provides $5.8 billion for Gulf Coast hurricane protection levees, as
the Administration requested, and deletes $4.6 billion in additional
flood-relief funding in the Senate bill, though the final bill also adds
$73 million for housing vouchers;
!provides $4.2 billion for military construction, which is $2.2 billion
above the Administration request, $1.2 billion above the Senate
level, and $0.4 billion below the House May 15-passed bill;
!provides $400 million in unrequested funds for science programs
rather than $1.2 billion as in the Senate bill;
!provides $150 million to bolster Food and Drug Administration
safety programs, compared to $275 million in the Senate bill; and
!provides $178 million for the Bureau of Prisons and $210 million for
the Bureau of the Census, as requested by the agencies, though not
formally included in the Administration’s May 2, 2008,
supplemental request, and as included in both the House and Senate
bills.
How Long FY2008 Funding Would Have Lasted
In advance of additional FY2008 supplemental funding, the Defense
Department had available funds provided (1) in the regular FY2008 defense
appropriations act (P.L. 110-116) and (2) in the FY2008 consolidated appropriations
action (P.L. 110-161). Defense officials had calculated that funding for the Army
appropriated in those two bills would begin to run out some time in June — by about
the middle of June for Army military personnel accounts and by the end of June for
Army operation and maintenance. On May 27, however, the Defense Department
requested congressional approval to transfer $9.7 billion of funds to the Army,



sufficient, officials said, to extend operations through the end of July.3 DOD
requested that Congress include in a supplemental bill authority to replenish the
accounts from which the transfers of funds were to be made. Section 9103 of the
final supplemental bill provides DOD authority to transfer up to $2.5 billion of
FY2008 funds in the bill between accounts and Section 9203 provides authority to
transfer up to $4 billion of FY2009 funds.
In addition to, or instead of, transferring funds from other accounts, the Defense
Department could have extended Army operations beyond June by invoking the Feed
and Forage Act, which allows the Defense Department to obligate funds in advance
of appropriations for transportation, housing, subsistence and other purposes. The
Defense Department might also have extended operations by using other standing
authorities to shift funding between the services.4
On June 26, hours before the Senate passed the amended bill, Defense Secretary
Robert M. Gates said during a press conference that, until the bill was enacted, DOD
would continue planning for a possible shutdown of all nonessential operations in
July.
Key Issues in the Bill
Expanded GI Bill Veterans’ Education Benefits
The initial House- and the Senate-passed versions of the FY2008 supplemental
appropriations bill, H.R. 2642, included a measure to provide substantially increased
educational benefits for military personnel who serve abroad for thirty-six months or
more (see below for a more detailed review of the main provisions). A key issue in
congressional action on the bill was whether to offset the long-term costs of
expanded benefits, which CBO estimated would amount to $52 billion through
FY2018. In May, under pressure from “Blue Dog” Democrats, the House leadership
agreed to add to the bill a 0.5% surcharge on high income taxpayers as a means of
offsetting the cost of the program. The Senate, however, did not agree to the tax
offset, and it was not included in the May 22 Senate-passed bill.
Subsequently, as the House leadership considered how to proceed, “Blue Dog”
Democrats in the House continued to warn that they would vote against the final bill
if it did not offset the costs. Meanwhile, the White House warned that the President
would veto the bill if it included a tax increase. In the end, the House leadership did


3 Department of Defense, “Reprogramming Action — Prior Approval,” DOD Serial Number
FY 08-19 PA, “Army Operational Requirements,” and Department of Defense,
“Reprogramming Action — Prior Approval,” DOD Serial Number FY 08-18 PA, “Various
Military Personnel Appropriations,” both dated May 27, 2008. See also, Christopher J.
Castelli, “DOD Seeks to Shift $9.7 Billion for War Costs,” Inside Defense, May 29, 2008.
4 See CRS Report RL34275, How Long Can the Defense Department Finance FY2008
Operations in Advance of Supplemental Appropriations?, by Stephen Daggett and Pat
Towell and CRS Report RL33110, The Cost of Iraq, Afghanistan, and Other Global War
on Terror Operations Since 9/11, by Amy Belasco.

not include the offset in the final version of the bill. On June 19, the House approved
expanded veterans educational benefits as part of Amendment #2 with only 12 votes
against it.
Aside from the debate about offsetting costs, there were some objections to
specific aspects of the main GI bill proposal being considered in the House and
Senate. Senior officials in the Defense Department opposed key elements of the
measure, and Senate Republicans, with White House support, proposed an alternative
that would require longer service before personnel could qualify for full benefits. At
a May 8 press conference, Secretary of Defense Robert Gates and Joint Chiefs
Chairman Admiral Michael Mullen complained that the measure being proposed in
the House and Senate bills would undermine retention of personnel because it would
make full educational benefits available for service members who have not reenlisted
for a second term. On May 6, at an event to honor military spouses, the President
said that he was sending to Congress legislation that would improve benefits for
military families, including a measure that would allow educational benefits to be
transferred to children or spouses.
On May 14, Senate Republicans brought up an alternative GI bill expansion
proposal sponsored by Senator Graham as an amendment to pending collective
bargaining legislation.5 That amendment was based on S. 2938, a measure to
increase veterans education benefits that Senator Graham proposed on April 29 with
a number of co-sponsors, including Senator McCain. The Graham bill would provide
larger benefits for military personnel who serve for at least 12 years and permit
benefits to be transferred to other family members. The education benefit measure
included in the House and Senate supplemental bills, in contrast, was based on a bill,
S. 22/H.R. 5740, sponsored by Senator Webb and Representative Mitchell, that
provides maximum benefits after as little as thirty-six months of service.
In the end, the enacted version of the supplemental adheres to the
Webb/Mitchell bill. It provides maximum benefits to personnel with as little as 36
months of service. The final bill, however, also includes a provision allowing service
members to transfer benefits to spouses and other dependents. The transfer provision
adds $10.8 billion to the ten-year projected cost of the bill.
House and Senate Differences Over Other Domestic
Spending
Apart from the fact that the House rejected funding for military operations
(except for military construction funds that were grouped together with funding for
domestic programs), the main differences between the initial House and Senate bills
had to do with amounts for domestic spending. Both the House and the Senate bills
provided $9.9 billion for international affairs programs, though the bills allocated the
funds somewhat differently. Both bills also included expanded GI bill educational
benefits, with $716 million required in FY2008 and FY2009, and extended
unemployment benefits costing $15.6 billion in the first two years.


5 Bart Jansen, Josh Rogin and Kathleen Hunter, “GOP Slips McCain’s GI Bill Alternative
into Play on Senate Floor,” CQ Today Online News, May 14, 2008.

Beyond that, the House bill provided $5.8 billion in FY2009 emergency funds
for Gulf Coast levee construction; $210 million for the Bureau of the Census; and
$178 million for shortfalls in the federal prison system budget. Representative Obey,
the chairman of the House Appropriations Committee, repeatedly noted that all of
these funds were requested in some form by the Administration.
The Senate-passed bill provided $8.5 billion more than the House bill for
domestic programs. Of the additional funds $4.6 billion was for hurricane-related
relief and reconstruction and other disaster assistance (for a total in the Senate bill of
$10.4 billion), and $1 billion was provided for low-income energy assistance, $590
million for state and local law enforcement assistance, $400 million for secure local
schools, $437 million for veterans’ administration polytrauma facilities, $275 million
for Food and Drug Administration safety programs, and $1.2 billion for a “science
initiative” with funds allocated to NASA, the Department of Energy, and the
National Institutes of Health.
The additional funds in the Senate bill for domestic programs were a matter of
considerable debate among House and Senate Democratic leaders. Not wanting to
invite a presidential veto, the House leadership resisted adding funds for domestic
programs. Except for veterans education benefits, unemployment compensation, and
the cost of delaying new Medicaid rules, the House stayed within limits on spending
that the White House insisted on. The Senate, however, approved a substantial
amount of additional domestic spending as part of an amendment that passed by a
vote of 70-26, with more than enough support to override a veto.
When the House subsequently took up the Senate-passed version of the bill in
June, the House leadership decided to negotiate with the White House in an effort to
agree on a bill that would not be vetoed. The final bill included relatively little
unrequested domestic funding. That version of the bill, passed by the House June 19
and by the Senate June 26, was signed by the President on June 30.
Table 1 provides an overview of House, Senate, and enacted funding compared
to the request. It shows funding by title within the bills and it provides a breakdown
of defense, international affairs, and domestic spending. Table 2 provides a
comparison of House, Senate, and requested funding for selected programs. It is
intended mainly to highlight key differences between the House and the Senate. A
detailed breakdown of funding by account is provided in Tables B-1 and B-2 in
Appendix B at end of this report.



Table 1. Overview of House and Senate Supplemental Appropriations in
H.R. 2642 by Title and by Major Category
(amounts in millions of dollars)
House- Sena t e -
PassedPassedEnacted
RequestMay 15May 22June 30
Discretionary Supplemental Appropriations by Title
Title I: Military Construction, Veterans,
International Matters, and Other Security-Related
Matters 11,997,855 14,909,096 14,231,264 15,121,244
Title II: Domestic Matters498,1694,049,6001,048,169
Title III: Natural Disaster Relief and Recovery5,761,0005,761,00010,396,7518,483,619
Title VIII (House) General Provisions (Defense
Reductions) -3,577,845
Title IX: Defense Mattersa166,015,369 165,427,034165,427,034
Total FY2008/FY2009 Discretionary
Appropriatio ns 183,774,224 21,168,265 194,104,649 186,502,221
Discretionary Supplemental Appropriations by Category
Defense b 168,453,900 4,641,684 169,127,993 166,156,996
International Affairs9,423,5589,918,1089,918,60810,088,608
Do me stic 5,896,766 6,608,473 15,058,048 10,256,617
Mandatory Unemployment and Veterans Benefits and Medicaid Rules Delay, FY2008/FY2009 Amounts
Title IV (House)/Title V (Senate): Emergency
Unemployment Compensation 15,573,00015,573,00014,338,000
Title V (House)/Title IV (Senate): Veterans
Educational Assistance 716,000717,000796,000
Title VII (House)/Title VI (Senate): Medicaid
Provisions 1,600,0001,755,0001,195,000
Total Unemployment, Veterans Educational
Benefits, Medicaid Rules Delay 17,889,00018,045,00016,329,000
Mandatory Unemployment and Veterans Benefits and Medicaid Rules Delay, FY2008-FY2018 Totals
Emergency Unemployment Compensation 11,137,00011,137,0009,962,000
Veterans Educational Assistance 51,600,00051,616,00062,770,000
Medicaid/Other Health Provisions -7,0002,849,000-7,000
Tax Surcharge Offset -52,286,000
Total FY2008-FY2018 Mandatory 10,444,00065,602,00072,725,000
Sources: Request and “Enacted June 30” amounts from House Appropriations Committee, explanatory material and
funding tables inserted into the Congressional Record, June 19, 2008, pp. H5622-H5699; Senate amounts from Senate
Appropriations Committee, “FY2008 Supplemental Explanatory Material,” May 20, 2008, on line at
[http://appropriations.senate.gov/]; House amounts by CRS based on explanatory material prepared by the House
Appropriations Committee and distributed on May 15, 2008, by the House Rules Committee on line at
[ h t t p : / / www. r u l e s . h o u s e . g o v / a n n o u n c e m e n t _ d e t a i l s . a s p x ? N e ws I D = 3333].
Note: Totals may not add due to rounding.
a. Title VIII of the June 19 House-passed and ultimately enacted bill made an across-the-board cut of $3.6 billion from
amounts provided in Title IX for FY2008 defense procurement, R&D, and revolving fund accounts, to be applied
proportionately to each line item.
b. In addition to funding provided in Title IX for military operations, the “Defense” category total includes military
construction funds and funds for defense-related activities of the Department of Energy provided in Titles I and
II. See Appendix B for a more detailed display of funding by appropriations account.



Table 2. Selective Comparison of House- and Senate-Passed
Supplemental Appropriations, H.R. 2642
(amounts in thousands of dollars)
House- Sena t e -
PassedPassedSenate vs.
RequestMay 15May 22House
Title I: Other Security, Military Construction, and International Matters
Department of Agriculture
P.L. 480 International Food Assistance745,0001,245,0001,245,000
Department of Justice
Federal Bureau of Investigation140,184174,769247,565+72,796
Drug Enforcement Administration, Salaries
and Expenses8,46812,16622,666+10,500
Other Dept of Justice Programs37,11442,36942,369
Department of Defense
Military Construction2,010,8553,275,2842,228,304-1,046,980
Family Housing427,6761,366,4001,214,652-151,748
Department of Veterans Affairs
Polytrauma Clinics and Other Programs 120,000557,100+437,100
International Affairs Supplemental Appropriations for Fiscal Year 2008
Administration of Foreign Affairs,
Embassy Security and Other1,868,0081,691,0081,512,900-178,108
International Organizations, Peacekeeping
Programs 386,600 386,600 449,600 +63,000
Broadcasting Board of Governors 3,000+3,000
Bilateral Economic and Military Assistance
International disaster assistance 200,000240,000+40,000
AID Operation Expenses41,000146,000153,500+7,500
Economic support fund 2,009,0001,747,0001,962,500+215,500
Democracy fund 75,00076,000+1,000
International narcotics control and law
enforcement 734,000419,300520,000+100,700
Migration and refugee assistance 30,000325,000367,108+42,108
Nonproliferation, anti-terrorism, demining
and related programs 5,00011,20010,000-1,200
Foreign Military Financing Programs72,500-72,500
Peacekeeping operations 10,000+10,000
World Food Program 20,000 -20,000
International narcotics control and law
enforcement (Sudan) 10,000 -10,000
Offsetting Rescissions-30,000 +30,000
International Affairs Bridge Fund Appropriations for Fiscal Year 2009
Administration of Foreign Affairs,
Embassy Security and Other1,081,300836,200750,700-85,500
International Organizations, Peacekeeping
Programs40,000225,500225,500
Broadcasting Board of Governors 8,0006,000-2,000
Bilateral Economic and Military Assistance
Global Health and Child Survival 75,00075,000
Development Assistance 210,000200,000200,000
International disaster assistance 270,000200,000200,000
Operating expenses of the US Agency for
International Development 60,00093,00093,000



House- Sena t e -
PassedPassedSenate vs.
RequestMay 15May 22House
Operating expenses of the US Agency for
International Development Office of
Inspector General 1,0001,000
Economic support fund 1,297,8001,147,3001,132,300-15,000
International narcotics control and law
enforcement 225,000204,500151,000-53,500
Migration and refugee assistance 191,000350,000350,000
Nonproliferation, anti-terrorism, demining
and related programs 4,0004,500+500
Foreign Military Financing program grants 170,000170,000145,000-25,000
Peacekeeping operations 60,00085,00085,000
World Food Program 20,000+20,000
International narcotics control and law
enforcement (Sudan) 10,000+10,000
Horn of Africa 40,000+40,000
Food Security and Cyclone relief 225,000+225,000
Jordan 300,000+300,000
Offsetting Rescissions -645,000-645,000
Total, Title I 12,048,00514,939,09614,231,264-707,832
Title II: Domestic Matters
Food and Drug Administration 275,000+275,000
Bureau of the Census 210,000210,000
Department of Justice
United States Marshals Service, Salaries
and Expenses 50,000+50,000
Federal Prison System, Salaries and
Expenses 178,000178,000
State and Local Law Enforcement
Assistance 590,000+590,000
Science
NASA, Return to Flight 200,000+200,000
National Science Foundation 200,000+200,000
Non-Defense Energy Programs, Cleanup
and Science 157,000+157,000
Defense Environmental Cleanup 243,000+243,000
National Institutes of Health400,000+400,000
Small Business Administration 600+600
Secure Rural Schools 400,000+400,000
State Unemployment Insurance 110,000110,000
Centers for Disease Control, Research and
Training 26,000+26,000
Low-Income Energy Assistance (LIHEAP) 1,000,000+1,000,000
House of Representatives, Payments to
Widows and Heirs 169-169
American Battle Monuments Commission,
Foreign Currency Account 10,000+10,000
Total, Title II 498,1694,049,600+3,551,431
Title III: Hurricanes Katrina and Rita, and Other Natural Disasters
Emergency Conservation Program 49,413+49,413
Emergency Watershed Protection Program
130,464+130,464
Rural Electric and Telecommunication
Loans 1,000+1,000



House- Sena t e -
PassedPassedSenate vs.
RequestMay 15May 22House
Offsetting Rescissions -1,000-1,000
Economic Development Assistance
Programs 75,000+75,000
National Oceanic and Atmospheric
Administration 75,000+75,000
State and Local Law Enforcement
Assistance 75,000+75,000
Corps of Engineers5,761,0005,761,0008,759,745+2,998,745
Bureau of Land Management, Wildland
Fire Management 125,000+125,000
National Park Service, Historic
Preservation Fund 15,000+15,000
EPA, State and Tribal Assistance Grants 5,000+5,000
Forest Service, Wildland Fire Management 325,000+325,000
Centers for Medicare and Medicaid
Services 350,000+350,000
Department of Defense
Military Construction Army National
Guard 11,503+11,503
Offsetting Rescissions -7,000-7,000
Family Housing Navy 10,500+10,500
Emergency Highway Relief Program 451,126+451,126
Department of Housing and Urban
Development 146,000+146,000
Louisiana Road Home (rescission of
emergency funds) -200,000-200,000
Total, Title III 5,761,0005,761,00010,396,751+4,635,751
Title IV (Senate)/Title III (House): Veterans Educational Assistance
Veterans Educational Assistance, FY2008 40,00040,000
Veterans Educational Assistance, FY2009 676,000677,000+1,000
Total, Title IV 716,000717,000+1,000
TITLE V (Senate)/Title IV (House): Emergency Unemployment Compensation
Emergency unemployment compensation
FY2008 6,170,0006,170,000
Emergency unemployment compensation
FY2009 9,440,0009,440,000
Total, Title V 15,610,00015,610,000
Title VI (Senate)/Title V (House): Department of Health and Human Services
Medicaid Moratorium, FY2008 450,000 -450,000
Medicaid Moratorium, FY2009 1,150,000 -1,150,000
Medicaid, Medicare and SCHIP
provisions, FY2008 530,000+530,000
Medicaid, Medicare and SCHIP
provisions, FY2009 1,225,000+1,225,000
Total, Title VI 1,600,0001,755,000+155,000
Title IX: Defense Matters
Defense Supplemental Appropriations for Fiscal Year 2008
Military Personnel16,767,29918,065,599+18,065,599
Operation and Maintenance31,271,603 31,475,336+31,475,336
Iraq Freedom Fund 207,500 50,000+50,000
Afghanistan Security Forces Fund 1,350,000 1,400,000+1,400,000
Iraq Security Forces Fund 1,500,000 1,500,000+1,500,000



House- Sena t e -
PassedPassedSenate vs.
RequestMay 15May 22House
Procurement44,411,846 42,006,355+42,006,355
Research, Development, Test and
Evaluation2,945,748 1,745,483+1,745,483
Revolving and Management Funds962,785 1,842,560+1,842,560
Defense Health Program 561,741 1,413,864+1,413,864
Other Programs 69,411 146,711+146,711
General Provisions6,500 6,500+6,500
Defense Bridge Fund Appropriations for Fiscal Year 2009
Military Personnel3,805,0001,194,000+1,194,000
Operation and Maintenance44,870,064 51,916,009+51,916,009
Afghanistan Security Forces Fund 3,666,259 2,000,000+2,000,000
Iraq Security Forces Fund 2,000,000 1,000,000+1,000,000
Procurement2,930,044 4,435,320+4,435,320
Research, Development, Test and
Evaluation379,125 387,828+387,828
Defense Working Capital Funds 2,200,000
Defense Health Program 400,000 1,100,000+1,100,000
Drug Interdiction and Counter-Drug
Activities, Defense 130,000188,000+188,000
Joint Improvised Explosive Device Defeat
fund 2,970,444 2,000,000+2,000,000
Mine Resistant Ambush Protected Vehicle
fund 2,610,000 1,700,000+1,700,000
Rescission of emergency appropriations -146,531-146,531
Total, Title IX 166,015,369165,427,034+165,427,034
Total in Bill183,824,37439,094,265212,186,649+173,062,384
Sources: Request and Senate amounts from Senate Appropriations Committee, FY2008 Supplemental
Explanatory Material,” May 20, 2008, on line at [http://appropriations.senate.gov/]; House amounts by CRS
based on explanatory material prepared by the House Appropriations Committee and distributed on May 15,
2008, by the House Rules Committee on line at
[ h t t p : / / www. r u l e s . h o u s e . g o v / a n n o u n c e m e n t _ d e t a i l s . a s p x ? N e ws I D = 3333].
Iraq Policy
House-Passed and Senate Committee Bills. The May 15 House-passed
version of H.R. 2642 included a package of Iraq-related policy provisions requiring
!that a redeployment U.S. forces out of Iraq begin within 30 days of
enactment of the legislation with a goal of completing withdrawal of
combat troops by December, 2009;
!that any agreement on the status of U.S. forces in Iraq be authorized
by Congress;
!that Iraq match U.S. reconstruction aid dollar-for-dollar;
!that Iraq agree to subsidize fuel costs for U.S. forces; and
!that U.S. troops meet guidelines for readiness before being deployed,
including guidelines for time at home between rotations.
The House-passed Iraq policy amendment also made contractors in war zones subject
to prosecution for offenses that would violate U.S. law, prohibited the establishment



of permanent bases in Iraq, and prohibited interrogation techniques not authorized
in the Army Field Manual.
The Senate, however, rejected by a vote of 34-63 a package of Iraq policy
provisions that were approved by the appropriations committee. The vote did not
necessarily reflect the sentiment of the Senate on policy matters, however — several
anti-war Senators said they opposed the measure because they did not want to vote
for the $163 billion in funding to which the policy package was attached.
The Senate committee measure did not establish a timetable for withdrawal, as
in the House bill. The rejected Senate policy provisions would
!state that the mission of U.S. forces in Iraq should shift to counter-
terrorism, training, and force protection;
!require that units be fully mission capable before being deployed,
with a Presidential waiver;
!set limits on the time units may be deployed of one year in the Army
and seven months in the Marine Corps, also with a waiver;
!require that units be based at home for the same periods between
rotations, with a waiver;
!prohibit permanent bases in Iraq;
!require congressional approval of any security agreements with Iraq;
!prohibit an agreement that would place U.S. forces under Iraqi
criminal jurisdiction;
!require a report on Iraq’s budget;
!require Iraq to reimburse U.S. forces for fuel costs;
!establish criminal statutes against profiteering and other fraud and
abuse;
!prohibit U.S. funding of large-scale infrastructure projects in Iraq;
!require an agreement with Iraq to share costs of military operations;
and
!require that the International Red Cross be informed of and have
access to any detainees.
The committee proposal also included expanded oversight of contractors and an
extension of laws governing extraterritorial jurisdiction over contractor personnel.
The June 19 House-passed bill, which the Senate agreed to June 26, and which
the President signed on June 30, drops most of the policy language in the initial
House measure. It includes only provisions that would
!require that Iraq match U.S. State Department and USAID (though
not Defense Department) reconstruction funding;
!prohibit permanent U.S. bases in Iraq; and
!extend mandatory fraud reporting requirements to contractors
working abroad.



Defense Funding Issues
Between February and October 2007, the Administration requested a total of
$189.3 billion in emergency FY2008 supplemental appropriations for the Department
of Defense. Through December 2007, Congress had approved $86.8 billion, which
left $102.5 billion still pending when the 110th Congress reconvened in January. In
March, 2008, the Defense Department provided the congressional defense
committees with a revised allocation of the remaining funds. The main changes were
to reduce remaining requested funding for “Other Procurement Army” and to add
money for Navy, Army National Guard, and Air Force operation and maintenance
accounts. The revision also added about $1 billion in military construction funds to
cover escalating base realignment and closure costs.
In considering the remaining FY2008 defense request, House and Senate
appropriators announced plans to add a “bridge fund” for FY2009 of $65-70 billion,
providing funds mainly for personnel and operating accounts sufficient to allow the
military services to continue operations into about the middle of calendar year 2008.
This would avoid another contentious debate over Iraq policy during the fall election
season, accompanied by DOD complaints that it would have to shut down Army and
Marine Corps operations early in the following year. It would also leave time for the
next Administration to formulate its own full-year war supplemental funding
proposal based on any proposed changes in strategy and troop levels.
Subsequently, on May 2, 2008, the White House sent Congress a formal request
for $70 billion in emergency war-related FY2009 supplemental funding, of which
$66 billion was for the Department of Defense and $4 billion for international affairs
programs.
Table 2 and, with somewhat more detail, Tables B-1 and B-2 in Appendix B
show House and Senate action on defense funding compared to the unadjusted
Administration FY2008 supplemental request and the new FY2009 request. In
general, the House leadership bill, like the Senate-passed bill, agreed to the Defense
Department’s proposed shifts of FY2008 funds — both bills added funding for base
realignment and closure costs and for service operation and maintenance accounts
and reduced funding for “other procurement Army,” an account that has grown
dramatically in recent supplementals to cover purchase of force protection
equipment, trucks, and communications equipment. The Army has been adjusting
its projected requirements in all of these areas.
The main congressional initiatives in the FY2008 and FY2009 defense
supplemental bills were to add funding for a number of major weapons programs.
Both the Senate-passed bill and the House-leadership bill included $3.6 billion in
FY2008 to procure 15 C-17 cargo aircraft, which the Administration is officially
proposing to terminate, but for which the Air Force requested funds in its FY2008
and FY2009 unfunded priorities lists. Both bills also added $2.5 billion for 34
C-130J cargo aircraft, including a tanker variant for the Marine Corps and a variant
for Special Operations Forces. The FY2009 bridge fund request included only a
limited amount for procurement, $4.4 billion all, since most of the money in the
bridge fund was intended to sustain operations into next year. Neither bill provided



funding for F-22 procurement, leaving the issue to be resolved the regular FY2009
defense appropriations bill.
The enacted version of the bill, passed by the House June 19 and by the Senate
on June 26, includes the earlier Senate amounts for defense, but with an across-the-
board cut of $3.6 billion from FY2008 procurement, R&D, and revolving fund
accounts, to be applied proportionately to each line item.
International Affairs Remaining FY2008 and Additional
FY2009 Supplemental Appropriations6
In its initial February 2007 budget for FY2008 and in the October 2007 budget
amendment, the Administration requested a total of $6.9 billion in emergency
FY2008 appropriations for international affairs programs. Most of the request was
for embassy security and reconstruction assistance in Iraq and Afghanistan. Congress
did not address these funding requests until it took up the FY2008 Department of
State/Foreign Operations appropriations bill, H.R. 2764, which ultimately became
the vehicle for consolidated FY2008 appropriations. Division J of the consolidated
appropriations bill comprises a conference agreement on the State/Foreign
Operations appropriations bill. It includes, in addition to regular FY2008
appropriations, $2.4 billion of emergency FY2008 funding.
Not all of that $2.4 billion was for programs that were part of the
Administration’s $6.9 billion emergency funding request. Furthermore, some
supplemental funds were allocated to the base international affairs budget when
Congress appropriated less than requested in regular funding. According to the State
Department, only about $1.5 billion of the new emergency funding was for programs
as requested, leaving $5.4 billion of the request still to be addressed, of which $2.3
billion is for State Department and related activities and $3.1 billion is for foreign
operations.
In addition to the remaining FY2008 supplemental request, on May 2, 2008, the
Administration amended its regular FY2009 State-Foreign operations request by
adding a supplemental request of $2.24 billion to the Department of State FY2009
regular request and nearly $2.88 billion in foreign assistance funding, including $770
million for food security and food aid. Table 3 shows the remaining FY2008
supplemental request and the FY2009 supplemental request for the State Department
and international broadcasting. Table 4 shows the remaining FY2008 supplemental
request and the FY2009 supplemental request for foreign operations. Table 5 shows
rescissions in the House and Senate bills.
Congressional Action
The enacted version of H.R. 2642, passed by the House June 19 and by the
Senate June 26, provides a total of $6.15 billion in FY2008 supplementals and $3.94
in FY2009 supplementals for the Department of State, Foreign Operations, and


6 Prepared by Susan B. Epstein, Specialist in Foreign Policy.

Related Programs. It funds about $1.99 billion for the Department of State and adds
$2 million for International Broadcasting in FY2008 supplemental spending. About
$1.15 billion is provided for Iraq operations in the Diplomatic and Consular
Programs (D&CP) account. Compared to the May 15 House-passed bill, the enacted
version raises funding for the Inspector General, U.S. Contributions to International
Organizations, and U.S. Contributions to International Peacekeeping. The
International Broadcasting funds are for increased broadcasting to Tibet. (See
Table 3.) For Foreign Operations, the enacted House bill provides about $4.16
billion in FY2008 funding to various countries and for international food aid. (See
Table 4.)
For the FY2009 supplemental, the enacted version of the bill provides a total of
$1.07 billion for State Department accounts, including up to $550.5 million for
operations in Iraq. In addition, $6 million is provided for international broadcasting.
The bill also provides about $2.86 billion for country foreign aid allocations and for
international food aid.
The enacted legislation made some changes to earlier House and Senate
versions. It reduced slightly the amount for the Department of State in FY2008, but
increased the amount for State in the FY2009 supplemental. The final bill added
funds for international broadcasting — $2 million for FY2008 and $6 million for
FY2009 — that were not in earlier versions of the legislation. For foreign assistance,
the enacted bill reduced somewhat from earlier versions the amount for Iraq and
Afghanistan, Jordan, the Democratic Republic of the Congo. It also eliminated funds
for Vietnam and Pakistan in FY2008 that had been in earlier versions. The enacted
legislation increased funds for Mexico in FY2008 and for Sudan in both
supplemental years. (See Table 3.)
While both bills contained some rescissions, most noteworthy were Senate
rescissions totaling $525 million from the Millennium Challenge Corporation7
(MCC). The MCC rescissions were used as offsets to provide $300 million for
Jordan, a country expected to sign a compact with MCC next year, and $225 million
for International Disaster Assistance. The enacted legislation did not include the
$225 million in rescissions from MCC for International Disaster Assistance (IDA),
however. (See Table 5.)


7 The MCC, first authorized in January 2004 (P.L. 108-199), provides assistance through a
competitive bidding process to developing countries that show progress in adopting
democratic reforms.

CRS-18
Table 3. FY2008 and FY2009 Emergency Supplemental for State Department Operations
(millions of U.S. dollars)
House SenateHouseSenate
TotalEnactedSecondMay 15-May 22-EnactedMay 15-May 22-Enacted
FY2008Supp.FY2008passed passedJune 30FY2009passedpassedJune 30
Supp.H.R. 2764SuppFY2008FY2008FY2008SuppFY2009FY2009FY2009
ActivityRequestPL110-161RequestSuppSupp SuppRequestSupp SuppSupp
tal State Operations$3,219.6$1,261.6$2,254.6$2,077.6$1,962.5$1,991.6$1,121.3$1,061.7$1,016.2$1,068.2
plomatic & Consular2,283.0781.61,708.0$1,606.8$1,413.7$1,465.71,064.5$737.9$652.4$744.9
ograms
s (2,120.6) (575.0) (1,545.6) (1,295.0) (1,095.0) (1,150.0) (921.0) (581.5) (500.0) (550.5)
iki/CRS-RL34451fghanistanorldwide Security Protection(162.4)(206.6)(162.4)(205.2)(210.5.)(195.2)(212.4)((200.2)(48.0)(101.0)(45.8)(91.4)(78.4)(87.4)(78.4)(89.4)(78.4)
g/w
s.orucation & Cultural Exchanges
leak $10.0
bassy Security, Construction &
://wikintenance$160.0 $160.0$76.7$76.7$76.7 $41.3$41.3$41.3
httpfice of Inspector General $7.5$12.5$9.5$16.8$57.0$57.0$57.0
ntributions to International
ganizations$53.0 $53.0$53.0$66.0$66.0$40.0$75.0$75.0$75.0
ntributions to International Peacekeeping
$723.6$468.0$333.6$333.6$383.6$373.7 $150.5$150.5$150.5
casting $12.0 $3.0$2.0 $6.0$6.0
tal $3,219.6 $1,261.6 $2,254.6 $2,077.6 $1,965.5 $1,993.6 $2,242.6 $1,061.7 $982.2 $1,074.2
H.R. 2642, the Department of State, and CRS calculations. For FY2009 figures, Office of Management and Budget, “FY2009 Emergency Budget Amendments: Operation
, Operation Enduring Freedom, and Selected Other International Activities,” May 2, 2008.



CRS-19
Table 4. FY2008 and FY2009 Foreign Operations Emergency Supplemental
(millions of U.S. dollars)
House Senate House Senate May
TotalEnactedMay 15-May 22-EnactedMay 15-22-Enacted
FY2008SuppSecondpassedpassedJune 30 FY2009passedpassedJune 30
Supp.HR2764a FY08 SuppFY2008FY2008FY2008SuppFY2009FY2009FY2009
AccountRequestPL110-161RequestSuppSupp SuppRequestSuppSupp Supp
anistan839.0n.a 839.0929.0904.0899.0924.9455.0455.0455.0
834.0 859.0899.0859.0749.9455.0455.0455.0
iki/CRS-RL34451DR5.05.05.05.0
g/wLE65.035.0175.0
s.orID Operating Expenses(16.0)
leakq956.0n.a 956.0600.0558.0584.0212.8104.5114.5107.0
797.0 440.0 398.0 424.0 212.8 100.0 110.0 102.5
://wikiLE159.080.085.085.0
httpDR4.54.54.5
75.075.075.0
istan60.0 n.a 60.0 60.0170.0175.0150.0150.0
60.060.070175.0150.0150.0
100.0
no n 50.0 45.0 32.5
50.0 45.032.5
a n 150.0 450.0 250.0 100.0 200.0 200.0 200.0
17.0100.0100.0100.0100.0
150.0 150.0 175.0 100.0 100.0 100.0


fset with rescissions300.025.0
fset with rescissions33.0

CRS-20
House Senate House Senate May
TotalEnactedMay 15-May 22-EnactedMay 15-22-Enacted
FY2008SuppSecondpassedpassedJune 30 FY2009passedpassedJune 30
Supp.HR2764a FY08 SuppFY2008FY2008FY2008SuppFY2009FY2009FY2009
AccountRequestPL110-161RequestSuppSupp SuppRequestSuppSupp Supp
ank/Gaza375.0n.a 220.0125.0225.0196.0200.0150.0200.0200.0
LE 25.0 25.0 25.0 25.0 50.0 50.0 50.0 50.0
350.0 100.0 200.0 171.0 150.0 150.0 150.0 150.0
el (FMF) 170.0
106.0n.a 53.053.053.053.015.015.015.015.0
106.0 53.0 53.0 53.0 53.0 15.0 15.0 15.0 15.0
iki/CRS-RL34451xico500.00.0 500.0296.5350.0352.0103.548.0
g/wLE210.0350.0215.553.548.0
s.or500.066.5116.550.0
leak20.020.0
://wikiericaLE50.050.050.050.056.529.390.050.065.024.8
httpDR6.26.2
6.04.0
15.040.025.0
ti (INCLE)2.55.02.5
inican Republic ((INCLE)2.55.02.5
l (ESF)7.07.0
(ESF)15.015.0
nka (ESF)6.06.0
iland (ESF)2.52.5



CRS-21
House Senate House Senate May
TotalEnactedMay 15-May 22-EnactedMay 15-22-Enacted
FY2008SuppSecondpassedpassedJune 30 FY2009passedpassedJune 30
Supp.HR2764a FY08 SuppFY2008FY2008FY2008SuppFY2009FY2009FY2009
AccountRequestPL110-161RequestSuppSupp SuppRequestSuppSupp Supp
m (ESF)2.0
ladesh (ESF)25.025.025.050.050.050.0
ma (ESF)5.35.35.3
(ESF)40.0
n70.0 n.a70.045.045.055.025.025.035.0
iki/CRS-RL3445170.070.045.045.045.010.0 b25.025.025.010.0 b
g/w
s.oralia40.040.040.0
leakKO40.040.040.0
://wikiya (ESF)12.012.045.025.025.025.0
httpocratic Republic of theo 25.012.520.030.030.020.0
15.012.510.010.010.0
KO10.020.020.020.010.0
abwe (ESF)5.05.015.015.015.0
d (ESF& DF)5.03.05.05.05.0
ral African Republic (ESF)2.01.02.02.02.0
nda (ESF)22.017.515.0 15.015.015.0
d 20.0
20.0
bilization/Peacekeeping (10.0) (80.0)(85.0)(85.0)



CRS-22
House Senate House Senate May
TotalEnactedMay 15-May 22-EnactedMay 15-22-Enacted
FY2008SuppSecondpassedpassedJune 30 FY2009passedpassedJune 30
Supp.HR2764a FY08 SuppFY2008FY2008FY2008SuppFY2009FY2009FY2009
AccountRequestPL110-161RequestSuppSupp SuppRequestSuppSupp Supp
(110.0) (110.0)
L480(110.0)0.0
(135.0)0.0 (135.0)
L480 (135.0)
on/Refugee Assist.230.0200.030.0300.0330.5315.0191.0350.0350.0350.0
ergency Migration (ERMA)25.036.631.0
iki/CRS-RL34451ernl Disaster Assist.80.080.0200.0240.0220.045.0200.0325.0200.0
g/w
s.or480350.00.0 350.0850.0850.0850.0395.0395.0395.0395.0
leak (DA & 20.0 c375.0200.0200.0200.0
://wiki)
httpal Health and Childvival75.075.075.0
AID Operating Expenses61.8n.a41.0142.0149.5150.560.093.093.093.0
4.04.04.01.01.01.0
prehensive Test Ban Treaty
onitoring5.02.5
er 196.0125.0
al d3,677.81,123.43,169.03,846.04,489.14,158.52,878.72,925.32,955.82,863.8
s: ESF=Economic Support Fund; INCLE=International Narcotics Control and Law Enforcement; FMF=Foreign Military Financing; PKO=Peacekeeping Operations; IDA-
ational Disaster Assistance; DA=Development Assistance; MRA=Migration and Refugee Assistance; NADR=Nonproliferation, Anti-terrorism, Demining, and Related Programs;
L480=Food for Peace; USAID=U.S. Agency for International Development, DF=Democracy Fund, ACP=Andean Counterdrug Program, WFP=World Food Program.



CRS-23
H.R. 2642, the Department of State, and CRS calculations. For FY2009 figures, Office of Management and Budget, “FY2009 Emergency Budget Amendments: Operation
, Operation Enduring Freedom, and Selected Other International Activities,” May 2, 2008.
:
ome supplemental funds were not designated in the Joint Explanatory Statement accompanying H.R. 2764 with regard to destination, and are marked asn.a.”
rom FY2008 ACP rescission.
scission from WFP.
ountry totals may include other accounts for which supplemental funds were not requested. Totals may not match totals in other sections of this report as all country/account funds
are not clearly designated within the legislation.


iki/CRS-RL34451
g/w
s.or
leak
://wiki
http

Table 5. House and Senate Rescissions
($ Millions)
AccountHouseMay 15SenateMay 22Enacted
Andean Counterdrug$20.0$20.0$20.0
Program for WFP
INCLE for Sudan$10.0$10.0$10.0
IRRF — expired — $350.0 —
IRRF for ESF total — — $50.0
IRRF — for Mexico — $50.0 —
IRRF — for Horn of — $40.0 —
Africa and
counterterrorism
MCC — for Jordan — $300.0$58.0
MCC — for IDA — $225.0 —
Source: H.R. 2642 and the Department of State.
Iraq Reconstruction Assistance8
A major issue in congressional action on supplemental funding for international
affairs was how much to provide for Iraq reconstruction and how to increase the role
of the Iraqi government. With the passage of the Consolidated FY2008
Appropriations Act, nearly half of the Administration’s $4.9 billion FY2008
supplemental request for Iraq reconstruction was approved. However, of the roughly
$2.1 billion appropriated in this category of assistance, only about $230 million was
for economic aid under the foreign operations portion of the bill, the bulk of enacted
reconstruction assistance being in the form of DOD appropriations. Remaining
outstanding from the FY2008 request and under consideration in the Second FY2008
supplemental was roughly $2.9 billion, of which $986 million was for foreign
operations economic assistance.
The outstanding FY2008 foreign operations request for Iraq was for three
accounts — $797 million in the Economic Support Fund (ESF), $159 million in
International Narcotics and Law Enforcement (INCLE), and $30 million in Migrationnd
and Refugee Assistance (MRA). However, the bulk of the 2 FY2008 supplemental
request for assistance to Iraq was for DOD appropriations for the training and


8 Prepared by Curt Tarnoff, Specialist in Foreign Affairs. For more detailed discussion of
the U.S. program of assistance to Iraq, see CRS Report RL31833, Iraq: Reconstruction
Assistance.

equipping of Iraqi security forces ($1.5 billion under the Iraq Security Forces Fund,
ISFF), for development programs delivered under the Commander’s Emergency
Response Program (CERP) (Iraq could expect at least half of the $719 million still
outstanding for both Iraq and Afghanistan), and for the Task Force to Improve
Business and Stability Operations in Iraq ($100 million under the Iraq Freedom Fund
account).
On May 2, 2008, the Administration issued a request for FY2009 emergency
supplemental funding. The request included $398.8 million for foreign operations
reconstruction — $212.8 million in ESF, $141 million in MRA, and $45 million in
IDA accounts. The DOD appropriations reconstruction request included $2 billion
for the ISFF, $1.7 billion for the CERP in Iraq and Afghanistan, of which at least half
would go to Iraq, and $50 million for the Business Task Force. Both DOD and
Foreign Operations portions of the FY2009 emergency request were considered by
Congress at the same time as the FY2008 supplemental.
The accounts to be funded under both FY2008 and FY2009 supplemental
requests for Iraq support a wide range of reconstruction programs. ESF is the
primary source of funding for assistance disbursed by the Provincial Reconstruction
Teams (PRTs), which have grown in number under the surge to 25, including 13
newly established ePRTs (embedded PRTs) embedded with U.S. combat battalions
and concentrated mostly in Baghdad and Anbar province. The ePRTs are intended
to help stabilize areas secured by U.S. and Iraqi forces by supporting local small-
scale, employment-generating, economic projects, using ESF-funded community
development grants, job training and micro-loan programs, among other activities.
PRTs also utilize ESF to increase the capacities of local government officials to
spend Iraqi-owned capital funds allocated by the Iraqi government for infrastructure
programs. At the national level, ESF supports ministerial capacity development,
agriculture and private sector reform, and the strengthening of democratization
efforts.
Of the ESF request, $25 million, accompanied by proposed authorization
language, would allow the Administration to establish a new Iraq enterprise fund
based on the model created for east Europe and the former Soviet Union in the late

1980s and early 1990s. Enterprise funds are U.S. government-funded private sector-


run bodies that primarily provide loans or equity investments to small and medium
business. In the former communist countries, enterprise funds also encouraged
growth of the private sector, including support for mortgage lending markets and
establishment of private equity funds. The most successful example, the Polish
Fund, made many profitable investments, helping companies grow that otherwise
were unable to obtain financial support in the period just after the fall of communism.
Some of the funds, however, have been much less successful, either because they
took on poor investment risks, or because they were unable to locate promising
businesses due to the poor business climate or competition from other private sector
funding sources. Some observers question the usefulness of the funds because their
ostensible development purpose seems often to conflict with pressures for economic
profit.
The INCLE account largely would support rule of law and corrections programs.
The Administration request was expected to fund prison construction, something that



Congress has sometimes cut from previous requests. The request was also intended
to extend judicial reform and anticorruption efforts to the provinces. The MRA
request would address the continuing refugee crisis in the region; an estimated 2.0
million Iraqis have fled the country and another 2.2 million have been displaced due
to sectarian violence and instability.
The CERP allows military commanders to support a wide variety of economic
activities at the local level, from renovating health clinics to digging wells to painting
schools, provided in the form of small grants. CERP also funds many infrastructure
efforts no longer supported with other U.S. assistance, such as provision of electric
generators and construction of sewer systems and roads. Commanders are able to
identify needs and dispense aid with few bureaucratic encumbrances. More recently,
the CERP has paid salaries to the so-called Sons of Iraq, mostly Sunnis who are
joining with U.S. forces to provide security.
The DOD Business Task Force seeks to stimulate the economy and create
employment for Iraqi citizens by rehabilitating some of the roughly 200 state-owned
enterprises that comprised a large portion of the Iraqi economy prior to the U.S.
occupation. News reports have suggested some difficulty with the program, resulting
from the lack of electricity, the insecure environment, and a lack of enthusiasm from
U.S. companies that had been expected to invest in the facilities, among other
reasons. To date, about 29 factories have been assisted, responsible for about 10,000
jobs.9
Outstanding FY2008 supplemental funds include operational costs (not counted
in the reconstruction aid total or the table) for staffing and administering
reconstruction programs: $679 million for PRTs. The new FY2009 supplemental
request includes funding for PRT operations (an unspecified portion of a total $921
million Embassy/PRT request), $23.6 million for USAID operational expenses, and
$15 million for the Special Inspector General for Iraq Reconstruction (SIGIR).
May 15 House Action on Iraq Reconstruction. The combined funding
amendments #1 and #3 to H.R. 2642 which the House considered on May 15 would
have provided a total of $4.0 billion in additional economic and security
reconstruction funding for Iraq, about two-thirds of the $6.2 billion Administration
request for the two years of assistance. See Table 6 for details under each account.
However, DOD reconstruction appropriations, contained in amendment #1, were
rejected in a House vote on May 15. Of the total FY2008 and FY2009 DOD
appropriations request of $4.9 billion, the failed amendment would have provided
$3.1 billion, or 64%.
Only amendment #3 of the two funding amendments was approved. It
contained the foreign operations portion of Iraq reconstruction assistance. Of the
total FY2008 and FY2009 foreign operations request of $1.4 billion, the House bill
provided $921 million, or 66%.


9 “In Iraq, One Man’s Mission Impossible,” CNN Money.com, September 4, 2007.

Judging by the allocations made by the Appropriations Committee for the $440
million in FY2008 ESF, the committee favors a significant shift in the direction of
the economic aid program toward local-level assistance programs. Of the total
amount, at least $355 million would be targeted to provincial and local community
activities, rather than programs supporting the national government. PRT programs
would get $140 million. Related community-based programs, the Community
Stabilization Program (CSP) and the Community Action Program (CAP), would
receive $100 million and $75 million respectively.10 Provincial economic growth,
including microcredit and agriculture, would get $40 million. The only significant
national-level effort, the National Capacity Development program, would receive $70
million, a cut of $178 million from the request. Another request for a nationally-
based effort, $70 million for the provision of infrastructure security protection, was
cut entirely. Democracy assistance, requested under ESF, is being provided under
the Democracy Fund account at $75 million, and is expected to be implemented
through the National Endowment for Democracy (NED) and other non-governmental
organizations (NGOs).
Two other reconstruction provisions in the May 15 House bill are noteworthy.
No funding was provided for the Iraqi Enterprise Fund, and such a fund was
specifically prohibited. The FY2008 INCLE Iraq program funding, at $85 million,
was cut substantially, by $74 million, from the request, and no prison construction
funding was included.
Because operational funds for the PRTs are blended with those of the Embassy
and USAID operating expenses are provided for both Iraq and Afghanistan, it is not
possible to say with certainty whether the full request was met by the House
amendment. The amendment did provide the SIGIR with $2.5 million and $46.5
million for FY2008 and FY2009, respectively.
May 22 Senate Action on Iraq Reconstruction. With regard to Iraq
funding levels, the Senate bill, approved on May 22, differed from the May 15
House-passed bill in one large respect — it contained $2.8 billion in DOD
reconstruction appropriations and the House bill had none. In other respects, the bills
were similar. See Table 6 for account levels. In all, the Senate bill provides $4.2
billion for both DOD and foreign operations appropriations in FY2008 and FY2009,

67% of the Administration request.


Like the House, the Senate bill shifted funding strongly in the direction of local-
level assistance programs. Of the $398 million in FY2008 ESF, at least $313 million
would be targeted to provincial and local community activities, rather than programs
supporting the national government. PRT programs would get $138 million. As in
the House bill, the CSP and CAP would receive $100 million and $75 million
respectively, and the National Capacity Development program would receive $70
million. Infrastructure security protection was cut out. Again, like the House, the
Senate bill would provide democracy assistance under the Democracy Fund account


10 The request for the Community Stabilization Program was cut by $55 million and half
of funds provided are to be withheld until a concern about possible misuse of funds is
resolved.

at $75 million. The proposed enterprise fund would also not be funded in the Senate
bill.
The May 22 Senate bill provided the SIGIR an operating expense level of $2.5
million in FY2008 and $36.5 million in FY2009. PRT and USAID operating
expense levels are not specified.
House and Senate Action on Iraqi Role in Reconstruction. Reflecting
recent indications that Members of both parties desired to see the Iraqi government
pay a greater share of the costs of reconstruction, under the approved House
amendment #2, the May 15 House bill contained a measure that would require most
reconstruction funds to be matched by Iraqi obligations on a dollar-for-dollar basis.
The exceptions are for democracy and human rights programs, the USAID
Community Action Program and other NGO-assisted programs, humanitarian
demining, refugee and displaced persons assistance, intelligence activities, and CERP
projects with a value less than $750,000. It is not clear from the language whether
the match would have to be made project-by-project or whether total Iraqi funding
for reconstruction in general would suffice to permit continued U.S. assistance at the
same level. If the latter, the provision might not affect U.S. funding significantly as,
in the past year, Iraqi obligations for security and economic reconstruction have
approached the U.S. contribution and will likely surpass it in 2008.
The May 22 Senate bill contained the above matching fund language. The
Senate bill also contained language requiring the Secretary of Defense to develop a
process with Iraq to institute equal sharing of reconstruction costs for all DOD-
funded projects costing over $750,000, beginning by October 1, 2008. The bill
debated on the floor on May 22 would also have prohibited DOD funding of large-
scale infrastructure projects costing over $2 million, but this section was rejected
along with other so-called policy provisions. As the CERP was exempted from this
restriction, the likely effect would have been only to ensure that Iraq funds
construction of security-related facilities, such as military barracks and training
centers.
Enacted Version of FY2008/2009 Supplemental. The version of the
FY2008 and FY2009 supplemental approved on June 19 by the House, approved by
the Senate June 26, and signed by the President June 30 differs from its predecessor
in a few important respects. First, it approves DOD appropriations for Iraq security,
adopting the Senate’s figures for the ISFF, the CERP, and the Business Task Force
(see table below for details).
Second, where the two bodies differed in their respective first versions of the
bill — i.e., in the foreign operations appropriations ESF account — the House
compromised with the Senate figure. The enacted version of the bill provides $424
million in FY2008 ESF and $102.5 million in FY2009 ESF, for a total of $526.5
million, $483.3 million less than the combined ESF request. The supplemental
provides a total for both years of $175 million for PRT programs; $132.5 million for
the CSP; $107.5 million for the CAP; $10 million for infrastructure maintenance;
$25 million for Provincial Economic Growth (agriculture and microcredit); $70
million for National Capacity Development; and $7.5 million for the Marla Ruzicka
War Victims Fund.



A third significant difference between the first version of the House bill and the
version enacted on June 30 is the range of conditions placed on economic aid. The
bill maintains prohibitions on prison construction and an enterprise fund. It
withholds funding on infrastructure maintenance ($10 million) until the Department
of State certifies that Iraq has entered into and begun to implement an asset transfer
agreement, including an Iraqi agreement to maintain U.S.-funded infrastructure. It
releases no more than 40% of rule of law (INCLE) funding until the State
Department reports that an anti-corruption strategy has been developed and is being
implemented by the Iraq government. It withholds all PRT operating expenses and
program funds until the State Department reports on a strategy for winding down and
closing out the PRTs, on the costs of the PRT program, expenses, security, and any
Iraq contribution, and on the future costs and placement of U.S. consulates in Iraq.
The bill withholds half of the Community Stabilization Program (CSP) appropriation
until the State Department certifies that USAID is implementing the Inspector
General’s recommendations regarding accountability.
Finally, the bill only releases its foreign operations appropriations for Iraq to the
extent that U.S. funds are “matched” on a dollar-for-dollar basis by Iraq. Exceptions
are made for democracy and human rights programs, the Community Action Program
and other civil society efforts, demining, and assistance to refugees and displaced
persons. The Secretary of State must submit a report by end of September 2008 with
amounts obligated and expended by the Government of Iraq.



CRS-30
Table 6. Supplemental Appropriations for Iraq Reconstruction
(millions of U.S. dollars)
International Affairs (Budget Function 150 Accounts)
Enacted House MaySenate May
To t a l Supp. Second 15-pa ssed 22-pa ssed Ena c t e d
FY2008AllocationFY2008VersionVersion June 30 FY2009House May 15-Senate May 22-Enacted
Supp.H.R. 2764SuppFY2008FY2008 FY2008Supppassed Versionpassed Version June 30
Request(PL110-161)RequestSupp SuppSuppRequestFY2009 Supp FY2009 Supp FY2009 Supp
omic Support Fund (ESF)797.015.0797.0440.0398.0424.0212.8100.0110.0102.5
ocracy Fund75.075.075.0
iki/CRS-RL34451national Narcotics Control and Enforcement (INCLE)159.0 159.0 85.085.085.0 gg
g/w
s.orration and Refugee AssistanceA)195.0a149.5a30.0a30.0j30.0j30.0j141.0141.0h141h141.0h
leak
rnational Disaster Assistancebbiii
://wikiA)80.080.045.045.045.045.0
httpprolif, Anti-Terror, Demining
DR)4.54.54.5
TAL 150 Account1,231.0244.5986.0630.0588.0614.0398.8290.5300.5293.0
Department of Defense (Budget Function 050 Accounts)
rity Forces Fund (ISFF)3,0001,500.01,500.0(1,500.0)*1,500.01,500.02,000.0(1,000.0)*1,000.01,000
mander’s Emergencycdeeeef
ponse Program (CERP)609.7370.0359.7(544.9)*744.9744.9850.0
reedom Fund (for Task Force
prove Business)100.0 100.0(50.0)*50.050.050.0
TAL 050 Account3,709.71,870.01,959.7(2,094.9)*2,294.02,294.02,900.0(1,000.0)*1,000.01,000



CRS-31
O TAL
0504,940.72,114.52,945.7(2,724.9)*2,882.92,908.03,298.8(1,290.5)*1,300.51,293.0
rces: Department of State and DOD FY2008 Congressional Budget Justifications; H.R. 2764; SIGIR, Report to Congress, April 2008; Office of Management and Budget, FY2009 Emergency Budget
ndments: Operation Iraqi Freedom, Operation Enduring Freedom, and Selected Other International Activities, May 2, 2008; Amendments to H.R. 2642 and Explanatory Statements.
Not included are requests of $45.8 million in USAID Iraq operational expenses (OE) and $679 million for PRT OE. H.R. 2764 provided USAID with $20.8 million in OE.
account funds were contained in amendment #1 to H.R. 2642, which failed to pass the House on May 15, 2008. Amendment #3, containing 150 account appropriations,
was approved by Congress on that date.
.R. 2764 provided $200 million for MRA account. The total account request was $230 million. Table shows amount requested/allocated for Iraq.
.R. 2764 provided $110 million for Iraq and other countries affected by disasters. Total IDA account request was $80 million. Table shows amount allocated for Iraq.
e total CERP request of $1,219.4 million is for both Iraq and Afghanistan. The amount included here assumes that at least half will be used in Iraq.
ress appropriated up to $500 million for the CERP. According to the SIGIR, Iraq has been allocated $370 million as of April 2008.
he total unenacted FY2008 CERP request of $719.4 million is for both Iraq and Afghanistan. The amount included here assumes that at least half of the request is for Iraq. The House and Senate
figures are amount remaining for Iraq after specified amount for Afghanistan and Philippines is subtracted from total.
iki/CRS-RL34451e total FY2009 supplemental CERP request of $1.7 billion is for both Iraq and Afghanistan. The amount included here assumes that at least half of the request is for Iraq.
g/wotal May 15 House FY2009 amount for INCLE account is $204.5 million, including an unspecified level of Iraq aid. Total June 19 House amount is $199 million, including an unspecified amount
s.orfor Iraq.otal May 15 House and May 22 Senate bill amount for FY2009 MRA account is $350 million, including an unspecified level of Iraq aid. Total June 19 House amount is $350 million, including an
leakunspecified level of Iraq aid.
://wikital May 15 House and May 22 Senate bill FY2009 amount for IDA account is $200 million. Total June 19 House is $200 million, with unspecified amount for Iraq.tal May 15 House amount for FY2008 MRA account is $300 million, including an unspecified level of Iraq aid. Total May 22 Senate draft amount for MRA account is $330.5 million, including an
httpunspecified level of Iraq aid. Total June 19 House amount for FY2008 is $315 million, including an unspecified level of Iraq aid.



Afghanistan Reconstruction Assistance11
Background. Afghanistan’s political transition was completed with the
convening of a parliament in December 2005, but in 2006 insurgent threats to
Afghanistan’s government escalated to the point that some experts began questioning
the success of U.S. stabilization efforts. In the political process, a new constitution
was adopted in January 2004, successful presidential elections were held on October
9, 2004, and parliamentary elections took place on September 18, 2005. The
parliament has become an arena for factions that have fought each other for nearly
three decades to debate and peacefully resolve differences. Afghan citizens have
started to enjoy new personal freedoms, particularly in the northern and western
regions of the country, that were forbidden under the Taliban. Women are beginning
to participate in economic and political life, including as ministers, provincial
governors, and senior levels of the new parliament. The next elections are planned
for 2009.
The insurgency, led by remnants of the former Taliban regime, escalated in

2006, after several years in which it appeared the Taliban was mostly defeated. U.S.


and NATO military commanders have had recent successes in counter-insurgency
operations, but the Taliban continues to present a considerable threat to peace and
security in parts of Afghanistan. Some experts argue that slow reconstruction,
corruption, and the failure to extend Afghan government authority into rural areas
and provinces, particularly in the south and east, have contributed to the Taliban
resurgence. Political leadership in the more stable northern part of the country have
registered concerns about distribution of reconstruction funding. In addition,
narcotics trafficking is resisting counter-measures, and independent militias remain
throughout the country, although many have been disarmed. The Afghan government
and U.S. officials have said that some Taliban commanders are operating across the
border from Pakistan, putting them outside the reach of U.S./NATO forces in
Afghanistan. In 2007, the Administration unveiled the Reconstruction Opportunity
Zones (ROZ) in Afghanistan and the border regions with Pakistan, an initiative to
stimulate economic activity in underdeveloped, isolated regions.
The United States and partner stabilization measures focus on strengthening the
central government and its security forces and on promoting reconstruction while
combating the renewed insurgent challenge. As part of this effort, the international
community has been running PRTs to secure reconstruction. Despite these efforts,
weak provincial governance is seen as a key obstacle to a democratic Afghanistan
and continues to pose a threat to reconstruction and stabilization efforts.
The FY2008 Original and Amended Emergency Supplemental
Request. The Administration requested $339 million in ESF for Afghanistan
reconstruction assistance in the FY2008 emergency supplemental in February 2007.
Other parts of the supplement request for Afghanistan included increases in embassy
operations and security. The Administration amended the FY2008 supplemental
request in October 2007 for a total request of $839 million for reconstruction, which


11 Prepared by Rhoda Margesson, Specialist in International Humanitarian Policy and
Kenneth Katzman, Specialist in Middle Eastern Affairs.

included several provisions intended to continue U.S. efforts to stabilize Afghanistan
and continue economic reconstruction efforts.12 The amended supplemental included
additional funding for democratic governance and reconstruction efforts to continue
security and development strategy that would be allocated as follows:
!$275 million to strengthen provincial governance and
responsiveness to the Afghan people. Funding would support a wide
range of programs, preparation activities for the 2009 election and
ongoing programs, such as the National Solidarity Program ($40
million), the Afghanistan Reconstruction Fund ($25 million), and
the Provincial Governance Fund ($50 million);
!$50 million as part of an effort to invest in basic social services,
such as health and education, particularly in rural areas; and
!$170 million for economic growth and infrastructure, including the
development of power sector projects ($115 million); road projects
($50 million) focused on those segments that are of strategic military
importance and provide key connections between the central and
provincial government capitals; and funding to support
Reconstruction Opportunity Zones ($5 million) in designated
economically isolated areas and to create employment alternatives.
In addition to ESF funding, the amended FY2008 request included
!$5 million in Non-proliferation, Anti-terrorism, Demining and
Related Programs (NADR) to support the Afghan leadership through
the Presidential Protection Service.
The FY2008 consolidated appropriations act funded most government
operations for which regular FY2008 appropriations bills — 11 in all — had not been
enacted. Although emergency funds for military operations in Afghanistan were
appropriated as part of the bridge supplemental in the consolidated appropriations act
(which included $1.35 billion in DOD funds for Afghan security forces), the FY2008
supplemental request of $839 for reconstruction was not approved.
The FY2009 Regular and Supplemental Request. The regular FY2009
Administration request for Afghanistan totals $1.054 billion. On May 2, 2008, the
Administration issued an amendment to the regular FY2009 budget request which
would provide supplemental funding for Afghanistan totaling $924.9 million,
including $749.9 million for ESF and $175 million for INCLE.
Congressional Action. The version of the supplemental appropriations bill
approved by the House on June 19, by the Senate June 26, and then signed by the


12 Funding figures obtained from the FY2008 Revised Emergency Proposal dated October
22, 2007; the proposed Budget for Fiscal Year 2008 (“Additional 2007 and 2008
Proposals”) submitted in February 2007; and the Supplemental Appropriations Justification
Fiscal Year 2008 prepared by the Department of State and USAID.

President June 30 provides $859 million for Afghanistan in FY2008 supplemental
appropriations for ESF, which is $25 million above the request of $834 million, with
allocations as follows:
!$360 million to strengthen governance, including preparation
activities for the 2009 elections ($70 million), governance and
capacity building ($165 million), support for the National Solidarity
Program ($65 million), Civilian Assistance ($10 million), and PRTs
($50 million);
!$77 million for basic social services, such as health and education
($75 million) and NATO/ISAF Post-Operations Humanitarian Relief
Fund ($2 million); and
!$422 million for economic growth and infrastructure, including
power sector projects ($150 million), roads ($200 million), rural
development ($65 million), and trade and investment ($7 million).
In addition to ESF funding, the final supplemental bill includes
!$35 million for International Narcotics Control and Law
Enforcement (INCLE) to support programs to strengthen narcotics
eradication efforts in Afghanistan, including police training and
development of the justice sector, with specific reporting
requirements for the State Department to the Committees on
Appropriations (not later than 180 days after the of this act) on levels
of counternarcotics cooperation by the Government of Afghanistan;
and
!$5 million in Non-proliferation, Anti-terrorism, Demining and
Related Programs (NADR) to support the Afghan leadership through
the Presidential Protection Service.
For FY2009 the House,. Senate, and enacted bills provide $455 million for ESF
assistance for Afghanistan, $294.9 million lower than requested. The enacted version
of the bill specifies allocations of
!$20 million for the National Solidarity Program;
!not less than $35 million for the 2009 elections; and
!not less than $35 million for rural development and alternative
livelihoods.
The final bill also provides that funding “shall be programmed in a manner consistent
with the Afghan National Development Strategy.13 The final bill does not include
$175 million for INCLE, which was in the Administration’s original request.


13 House Amendment to the Senate Amendment 2 to H.R. 2642, Further House Amendment
Relating to Supplemental Appropriations for Fiscal Years 2008 and 2009.

In addition, the enacted version of the bill provides $76.7 million for
Afghanistan in the Embassy, Construction, and Maintenance account, as in earlier
versions passed by the House and Senate. In addition, the final bill provides up to
$5 million to be transferred to the Special Inspector General for Afghanistan
Reconstruction for reconstruction oversight, which earlier House and Senate versions
also had approved. Like earlier House and Senate versions, the enacted version of
the bill also provides an additional amount of $41.3 million for Embassy Security,
Construction, and Maintenance to become available on October 1, 2008.



CRS-36
Table 7. Afghanistan Reconstruction Assistance, FY2008-FY2009
(millions of U.S. dollars)
House Senate HouseSenate
TotalFinal SecondMay15-May 22-EnactedMay15-May 22-Enacted
FY2008 Supp H.R.FY2008passedpassedJune 30FY2009passedpassedJune 30
Activity Supp 2764 Supp F Y 2008 F Y 2008 F Y 2008 Supp F Y 2009 F Y 2009 F Y 2009
(appropriation account)RequestPL110-161RequestSupp Supp SuppRequestSupp Supp Supp
834.0 — 834.0 859.0899.0859.0749.9455.0455.0455.0
oliferation (NADR)5.0 — 5.05.05.05.0 — — — —
iki/CRS-RL34451NCLE)65.0 — 35.0175.0 — — —
g/w
s.or839.0 — 839.0929.0904.0899.0924.9455.0455.0455.0
leak
://wikiFY2008-FY2009 budget materials.
http Data in this table reflect ongoing and FY2008 proposed funding for programs the same as or similar to those requested in the FY2007 supplemental. The total line does not
ent total aid or mission operations for Afghanistan. Excluded from this table is proposed funding requested for FBI operations in Afghanistan.
s: ESF-Economic Support Fund, NADR-Nonproliferation, Anti-terrorism, Demining, and Related Programs, and INCLE-International Narcotics Control and Law
o rcement.



Pakistan14
The Federally Administered Tribal Areas (FATA) of Pakistan are considered
strategically important to combating terrorism, while continued terrorist and militant
activities in the frontier region remain a threat to the United States and its interests
in Afghanistan. The Government of Pakistan has developed a FATA Sustainable
Development Plan to be implemented over 10 years. In support of this plan, the State
Department and the U.S. Agency for International Development have put forward a
five-year $750 million development assistance strategy for the frontier region (a
pledge of $150 million per year) that complements the Government of Pakistan’s
plan.15 The U.S. objectives are to improve economic and social conditions in the
FATA in order to address the region’s use by terrorists and militants. Programs
would include governance, health and education services, and economic
development, such as agricultural productivity, infrastructure rehabilitation, credit,
and vocational training.
On November 3, 2007, President Musharraf imposed emergency rule and
suspended Pakistan’s constitution. In light of these events, the Administration
announced a review of U.S. assistance. However, no action was taken in 2007 and
in February 2008, Pakistan held what was reported to be a reasonably credible
national election that seated a new civilian government. On April 9, 2008, Secretary
of State Condoleezza Rice determined that a democratically elected government had
taken office in Pakistan on March 25, 2008, which permitted the removal of coup-
related sanctions on Pakistan and the resumption of assistance.
The FY2008 Original and Amended Supplemental Request. In the
FY2008 regular budget, the President asked for $90 million for the frontier region
development plan, which left a gap of $60 million in the overall U.S. pledge of $150
million. The Administration did not request funding for Pakistan in its original
FY2008 emergency supplemental request in February 2007. The October 2007
FY2008 amended supplemental request included $60 million for ESF. This would
address the funding gap and meet the full pledge as follows: Investment in
governance and planning ($13 million); health and education programs ($15 million);
and local economic development ($32 million). The $60 million emergency
supplemental request is in addition to the regular appropriations from various
accounts in the FY2008 budget.
The FY2009 Regular and Supplemental Request. The Administration
requested $826.3 million for Pakistan in its regular FY2009 budget request. On May
2, 2008, the Administration requested additional FY2009 supplemental funds for
Pakistan totaling $170.0 million, of which $70 million was in the Economic Support
Fund account for “district elections support, good governance programs, and rural
health and basic education initiatives in conflict regions outside of the Federally
Administered Tribal Areas” and $100 million was in the Foreign Military Financing
account for assistance “to reduce terrorist and militant activity in the


14 Prepared by Rhoda Margesson, Specialist in International Humanitarian Policy.
15 For more detail on Pakistan, see CRS Report RL33498, Pakistan-U.S. Relations, by K.
Alan Kronstadt.

Afghanistan-Pakistan border region including efforts to train and equip Pakistan’s
Frontier Corps.”
Congressional Action. The House May 15-passed bill provided no FY2008
supplemental funding for Pakistan, while the Senate May 22-passed bill provided the
requested amount of $60 million for ESF for that year. The final enacted bill
provides no funds for Pakistan in the FY2008 supplemental. For the FY2009
supplemental, the House May 15-passed bill included $175 million in ESF funds for
Pakistan, and the Senate May 22-passed bill provided $150 million. The final bill
provides $150 million in ESF funds for Pakistan in the FY2009 supplemental.
Sudan16
FY2008 Supplemental Request. No funding was requested for Sudan in
the original FY2008 emergency supplemental in February 2007. The Administration
sought a total of $868.6 million for Sudan in the October 2007 emergency
supplemental amendment, most of which was for humanitarian and peacekeeping
support in the Darfur region. Major elements of the FY2008 amended emergency
supplemental request included the following:
!A $70 million request in ESF for Sudan to support upcoming
national elections that are to take place before July 2009, as
determined in the 2005 Comprehensive Peace Agreement between
north and south Sudan. The assistance will focus on strengthening
political parties, drafting the electoral law, supporting an electoral
commission, promoting civic education, and supporting election-
related institutions and processes. The United Nations estimates that
the elections could cost nearly $400 million because of the logistical
hurdles in conducting elections in a post-conflict environment. $70
million remains in the pending FY2008 emergency supplemental;
and
!$723.6 million in support of the African Union/United Nations
Hybrid Operation in Darfur (UNAMID) in the amended FY2008
supplemental. In the consolidated appropriations act, $468 million
was appropriated; $333.6 remains in the pending FY2008 emergency
supplemental.
FY2009 Regular and Supplemental Request. It the FY2009 regular
foreign operations request, the Administration included a total of $332.6 million for
Sudan. The May 2008 FY2009 supplemental request included funds for diplomatic
security and for USAID operations in Sudan. Of a total of $1.1 billion requested for
the Department of State for Diplomatic and Consular programs, $36 million was
requested “for security and operational support in Sudan and Somalia, and to support


16 Prepared by Rhoda Margesson, Specialist in International Humanitarian Policy.

several diplomatic Middle East Peace Missions.”17 And of $60 million requested for
USAID operational expenses, $2.9 million was request for operations in Sudan.
Congressional Action. In the FY2008 consolidated appropriations act, P.L.
110-161, Sudan received $334.8 million in the regular FY2008 foreign operations
budget and also $468 million for the African Union/United Nations Hybrid Operation
in Darfur (UNAMID) peacekeeping mission. For FY2008 UNAMID operations, the
House May 15, the Senate May 22, and the final enacted bills all provide $333.6
million in the State Department’s U.S. Contributions to International Peacekeeping
(CIPA) account. The final bill also provides $40.1 million “to meet unmet fiscal year
2008 assessed dues for the international peacekeeping missions to countries such as
the Democratic Republic of the Congo, Cote d’Ivoire, Haiti, Liberia, and Sudan.”
The House, Senate, and final bills also provide $45 million for ESF assistance to
Sudan for the FY2008 supplemental, less than the Administration’s requested amount
of $70 million. For the FY2009 supplemental, the Administration did not make a
request for ESF funding for Sudan. Nevertheless, both House and Senate bills
provided $25 million for ESF, and the final bill concurs. The enacted bill also
provides $10 million in FY2008 and $10 million in FY2009, offset by equivalent
rescissions, in the International Narcotics Control and Law Enforcement (INCLE)
account to support police units in Sudan. And it includes $15 million in FY2009
funds for State Department Diplomatic and Consular Activities for personnel and
security requirements in Sudan.
In addition, a general provision, Section 1411, in the final bill provides that
money appropriated earlier in the FY2008 consolidated appropriations act, P.L. 110-
161 or in previous appropriations bills, may be used to provide helicopters and
related equipment to the African Union/United Nations peacekeeping operation in
Darfur.


17 Office of Management and Budget, “FY 2009 Emergency Budget Amendments: Operation
Iraqi Freedom, Operation Enduring Freedom, and Selected Other International Activities,”
May 20, 2008, p. 36.

CRS-40
Table 8. Sudan Emergency Supplemental, FY2008-FY2009
(millions of U.S. dollars)
F Y 2008 F Y 2008 F Y 2009 F Y 2009
Supp Supp Supp Supp
FY2008Final PendingMay 15May 22FY2008May 15May 22FY2009
Activity Supp. Supp. F Y 2008 Hous e- Senat e - Supp F Y 2009 Hous e- Senat e - Supp F Y 2009
(appropriationRequestH.R. 2764Supp.passedpassedEnactedSupp.passedpassedEnactedRegular
account) Tot a l P L110-161 Request HR2642 HR2642 HR2642 Request HR2642 HR2642 HR2642 Request
atic and — — — — — — a — — 15.0 —
iki/CRS-RL34451rams
g/wID (CIPAb )723.6468.0333.6 333.6333.6333.6 — — — — —
s.or
leaka rcotics
— — — — — 10.0 — — — 10.0 —
://wikient (INCLE)
httpic Support
70.0 — 70.045.045.045.0 — 25.025.025.0254.1
$868.6 $403.6$378.6$378.6$388.6 — $25.0$25.0$35.0$332.6c
FY2008- FY2009 budget materials.
The Total line does not represent total aid or mission operations for Sudan.
equest included $36 million for security and operational support in Somalia and Sudan and to support Middle East peace missions.
A-Contributions to International Peacekeeping Activities.
cludes accounts for which supplementals were not requested.



Other Humanitarian Assistance18
Although proposed aid packages for specific countries anticipate and identify
some humanitarian needs, the Administration also seeks funding for what it describes
as unmet or unforeseen humanitarian needs.
Migration and Refugee Assistance (MRA). The Administration’s
FY2008 emergency supplemental request, as amended through October 2007, asked
for $230 million for Migration and Refugee Assistance (MRA) for anticipated and
unanticipated refugee and migration emergencies, of which $195 million was
requested for humanitarian assistance to Iraqi refugees.19 In addition, $35 million
was requested for the emergency needs of Palestinian refugees in Gaza and West
Bank, and for Palestinian refugee camps in Lebanon. In the Consolidated
Appropriations Act (P.L. 110-161), $200 million was appropriated for MRA of
which $195 was allocated for Iraqi refugees, leaving $30 million (of the original $230
million request) as part of the pending FY2008 supplemental request for assistance
to Iraqi refugees. The Administration requested $191 million in the FY2009
supplemental request.
For the FY2008 supplemental, the June 30 enacted version of H.R. 2642
provides $315 million for MRA, which is $285 million above the request, to meet
global refugee needs worldwide, including for Iraqi refugees in Jordan, Syria,
Lebanon, Turkey, Egypt, and the region, and for Internally Displaced Persons (IDPs)
in Iraq. These funds may also be used to support the admissions costs of Iraqi
refugees and other requirements of the Iraqi refugee program. The amended bill
raises concerns about the level of resources the Government of Iraq has so far
dedicated to assisting Iraqi refugees and IDPs. The bill also refers to the welfare and
security of the Lao Hmong in the Thai military camp in Petchaboon, northern
Thailand.
The final June 30 version of the bill also provides $350 million for MRA in the
FY2009 supplemental, nearly 50% more than requested, to respond to urgent
humanitarian and refugee admissions requirements, including assistance for refugees
from Iraq, Afghanistan, and Central Africa.
Emergency Refugee and Migration Assistance Fund (ERMA). The
Administration did not request funding for ERMA in the FY2008 or FY2009
supplemental requests. For FY2008, the enacted legislation includes $31 million for
ERMA, but it does not provide additional funds in FY2009.
International Disaster Assistance (IDA). The Administration’s regular
FY2008 budget request included $80 million for IDA. In the Consolidated
Appropriations Act (P.L. 110-161), $110 million was appropriated for emergency
humanitarian assistance. The Administration’s FY2008 supplemental request did not


18 Prepared by Rhoda Margesson, Specialist in International Humanitarian Policy.
19 This was an increase of $160 million for Iraqi refugees; $35 million was requested in the
earlier version of the FY2008 emergency supplemental request.

include funding for IDA. The Administration requested $45 million in its FY2009
supplemental request.
For FY2008, the June 30 enacted version of H.R. 2642 includes $220 million
for IDA for urgent humanitarian crises worldwide, including in Burma, Bangladesh,
the People’s Republic of China, and other countries affected by the ongoing food
crisis. For FY2009, the bill includes $200 million for IDA for ongoing humanitarian
needs in Bangladesh, Burma, and the People’s Republic of China. In addition, some
of these funds may be allocated to assist IDPs in Iraq and Afghanistan and be used
in response to the international food crisis.
Food Security and Food Aid
The October 2007 amendment included $350 million in additional P.L. 480 -
Title II assistance to meet emergency food needs in the Darfur region of Sudan and
eastern Chad and elsewhere worldwide, including places such as southern Africa, and
the Horn of Africa and Kenya.
In April 2008, Senators Durbin and Casey proposed adding $200 million in
response to recent global increases in food prices.20 On May 1, the President
announced a new request for $770 million in FY2009 emergency supplemental
funding for food-related international aid, including
!$395 million for P.L. 480 Title II emergency food assistance;
!$225 million for U.S. Agency for International Development
(USAID) International Disaster Assistance (IDA), mainly for Africa,
for local and regional procurement of food abroad and for other
humanitarian needs created by high food prices;
!$150 million for the Development Assistance (DA) account for food
security and improved production in insecure countries.21
The enacted legislation provides for P.L. 480 more than double ($850 million)
the amount requested ($350 million) by the Administration for the FY2008
supplemental. Also, for FY2008 is an additional $20 million for food security
assistance within DA or IDA accounts. For the FY2009 supplemental, the final bill
provides $395 million for P.L. 480 and another $200 for other food security
assistance.


20 Ben Schneider and Christian Bourge, “Durbin Eyes Additional Food Aid, Seeks Assist
From Rice,” National Journal Congress Daily AM, April 29, 2008.
21 White House Office of Management and Budget, “Estimate #2 — FY2009 Emergency
Budget Amendments: Operation Iraqi Freedom, Operation Enduring Freedom, and Selected
Other International Activities,” May 2, 2008, available online at
[ h t t p : / / www.whi t e house.go v/ omb/ budget / a me ndment s / a me ndment _5_2_08.pdf ] .

Mérida Initiative
In its October 2007 supplemental budget amendment, the Administration
included $550 million for the Mérida Initiative, a multi-year plan for U.S.
counterdrug and anticrime assistance to Mexico and Central America. The initiative
is aimed at helping the Mexican and Central American governments combat drug
trafficking, gangs, and other criminal organizations. Of the $550 million in proposed
supplemental assistance, Mexico would receive $500 million and Central America
would receive $50 million.22
On May 14, 2008, the House Committee on Foreign Affairs approved a bill,
H.R. 6028 (Berman), which would authorize $1.6 billion over three years,
FY2008-FY2010, for the Mexico-Central America Mérida Initiative. In legislative
action on H.R. 2642, the second FY2008 supplemental appropriations measure, the
House May-15 passed version of the bill included $400 million for Mexico and $61.5
million for Central America, Haiti, and the Dominican Republic. The Senate version
of H.R. 2642, as amended on May 22, 2008, provided $350 million for Mexico and
$100 million for Central America, Haiti, and the Dominican Republic. Both versions
had human rights conditions, some of which the Mexican government has objected
to on the grounds that they would violate Mexico’s national sovereignty.
The final, June 30 enacted version of H.R. 2642 provides $465 million in
FY2008 supplemental funding for the Mérida Initiative. Of that total, $400 million
is for Mexico and $65 million (a slight increase from the earlier House bill) for
Central America, Haiti, and the Dominican Republic. The compromise language in
the House-amended bill reduces the amount of funding subject to human rights
conditions, from 25% to 15%, and softens the language of those conditions.
Domestic Programs
In addition to funding for defense and international affairs, the Administration’s
original FY2008 supplemental request included a limited amount of funding for
domestic programs, including counter-terrorism-related programs of the Justice
Department particularly the FBI. Along with its regular FY2009 budget, the
Administration requested emergency FY2009 appropriations of $5.8 billion for Gulf
Coast hurricane protection measures carried out by the Corps of Engineers.
Individual agencies, including the Census Bureau, the Federal Prison System, and the
U.S. Marshals office, also reported shortfalls in funds to the appropriations
committees.
In action on the 2nd FY2008 supplemental, H.R. 2642, the House and Senate
supplemental bills chambers provided requested funding for these programs. In
addition, the Senate bill added $4.6 billion for hurricane and other disaster relief
programs, $1.2 billion for a science R&D initiative across several agencies, $1 billion


22 See CRS Report RS22837, Merida Initiative: Proposed U.S. Anticrime and Counterdrug
Assistance for Mexico and Central America, by Colleen W. Cook and Clare Ribando Seelke.

for low income energy assistance, $590 million for state and local law enforcement
grants, and $400 million for Secure Rural Schools.
Also, most significantly, both the House and the Senate approved three major
measures that the Administration did not request. The are
!an expansion of veterans’ educational benefits, initially estimated to
cost $52 billion over the next ten years;
!extended unemployment benefits, initially estimated to cost a total
of about $11 billion over ten years, net of reduced payments in
future years; and
!a moratorium on new Medicaid rules that would reduce payments to
the states, for which the House and Senate supplemental bills
include $450 million in FY2008 and $1.15 billion in FY2009. The
Senate bill also provides $80 million in FY2008 and $75 million in
FY2009 for increases in the SCHIP children’s health insurance
program net of offsetting savings from limiting Medicare payments
to new specialty hospitals.
The following sections provide background on some of the major congressional
additions.
Expansion of Montgomery GI Bill Education Benefits23
Both the House- and Senate-passed bills included provisions that would enhance
veterans’ educational benefits.24 The benefit enhancements were based on the Post-
9/11 Veterans Educational Assistance Act of 2008 (S. 22), sponsored by Senator
Webb, which has broad bipartisan support, with 56 co-sponsors in the Senate; and
the House companion bill, H.R. 5740, sponsored by Representative Mitchell, which
has 261 cosponsors.25
S. 22 and H.R. 5740 would offer 36 months of tuition (limited to in-state tuition
charged at the most expensive public institution in the state in which the veteran is
enrolled), a monthly stipend to cover living expenses (based on average housing
prices in the area in which the veteran is enrolled), and a $1,000 annual stipend for
books and required educational expenses. Provisions for funds for tutorial assistance,
licensing, and certification tests are also included. The bills would apply to active
duty, Reserve, and National Guard members who serve some period of active duty


23 Prepared by Shannon Loane, Knowledge Services Group, Domestic Social Policy
Consulting Section.
24 For information on the current Montgomery GI Bill provisions, see CRS Report RL33281,
Montgomery GI Bill Education Benefits: Analysis of College Prices and Federal Student
Aid Under the Higher Education Act, by Charmaine Mercer.
25 See Josh Rogin, “Spending Add-ons Could Make for Largest War Supplemental Bill Yet.”
CQ Today, April 18, 2008

beginning on or after September 11, 2001. Servicemembers and veterans who serve
36 months on active duty would be eligible for full benefits. Individuals who serve
less than 36 months on active duty would be eligible for benefits calculated as a
percentage of the total maximum benefits.
The bills also establish a new program under which the government would
match dollar for dollar (up to 50% of the tuition difference) any voluntary additional
contributions to veterans from institutions whose tuition is more expensive than the
maximum educational assistance provided under the bills.
Differing views on the pros and cons of S. 22 were offered at a hearing before
the Senate Committee on Veterans’ Affairs on May 9, 2007. Senator Webb argued
that S. 22 was comparable to the post-World War II GI bill, would lead to similar
economic growth and expansion, and would also have a positive effect on military
recruitment and on the readjustment experience of veterans.26 In the same hearing,
Daniel Cooper, the Department of Veterans’ Affairs (VA) Under Secretary for
Benefits, stated the VA’s opposition, criticizing the bill’s complexity, cost, and
administrative burden. He also argued that it might lead to lower rates of
reenlistment in the military services.27
The Graham alternative. An alternative to S. 22 and H.R. 5740 was
proposed by Senator Graham on April 29, 2008. S. 2938, the Enhancement of
Recruitment, Retention, and Readjustment Through Education Act of 2008, proposed
somewhat more limited increases in GI Bill educational benefits for servicemembers
and veterans. For individuals with 12 or more years of active duty service, the
benefits would be $1,650 per month in FY2009, in addition to a $500 annual stipend
for books and supplies (for those attending on at least a half-time basis). As under
the current Montgomery GI Bill (MGIB), servicemembers would have accept a pay
reduction of $100 per month for the first 12 months of pay, the benefits would be for
36 months and would have to be used within 10 years of discharge or release from
active duty, and provisions for tutorial assistance and licensing and certification tests
are included. In addition, active duty servicemembers would be able to use up to
$6,000 per year of educational benefits to repay federal student loans, and eligibility
would be extended to certain individuals not currently eligible for MGIB, including
service academy graduates and Senior Reserve Officers’ Training Corps officers
(under some conditions and with some stipulations).
The bill also proposed a matching grants program, the ‘College Patriots Grant
Program,’ in which up to an additional $3,000 per year could be paid by the
Department of Veterans Affairs in return for schools, through the use of institutional
or other non-federal aid, making a matching reduction in cost of attendance for a
servi cem em ber.


26 Prepared Statement of Hon. Jim Webb, U.S. Senator from Virginia, Committee on
Veterans’ Affairs Hearing Regarding Pending Veterans’ Benefits Legislation, May 9, 2007
(pp. 6-7)
27 Prepared Statement of Hon. Daniel L. Cooper, Under Secretary for Benefits, Department
of Veterans Affairs, Committee on Veterans’ Affairs Hearing Regarding Pending Veterans’
Benefits Legislation, May 9, 2007 (p. 24)

Additionally, S. 2938 included a transferability of benefits provision.
Servicemembers would be allowed to transfer up to half of their education benefits
to dependents after six years of service and to transfer all of their education benefits
after 12 years of service. Under existing law, the different service branches were
authorized to operate limited transferability programs, but only the Army offers one
at this time. The Army’s program allowed servicemembers in designated critical
skills areas with at least six years of service who re-enlist for at least four years to
transfer up to 18 months, or half, of their educational benefits to dependents.
President Bush proposed expanding the transferability of veterans’ educational
benefits to dependents in his State of the Union address and repeated it in his May

8 address commemorating Military Spouse Day.28


PAYGO, Military Retention, and Transferability Issues. The GI bill
enhancements became major issue in congressional consideration of the FY2008
supplemental, holding up action on the entire measure for some time. In the House,
members of the Democratic “Blue Dog” caucus initially warned that they would not
support a rule on the bill because the cost was not offset as the rules of the House
required. At the beginning of the 110th Congress, the new Democratic majority agreed
to changes in House rules to require that increases in mandatory spending or cuts in
revenues be paid for either by cuts in other mandatory programs or by increases in
revenues. These requirements, which are based on provisions initially included in
the Budget Enforcement Act of 1990, are known as “pay as you go” or PAYGO
rules. The House leadership subsequently agreed to support an income tax surcharge
as an offset to the costs of the bill. The Senate, however, did not concur.
In addition, the Defense Department was consistently critical of the Webb and
Mitchell bill because of concern that it might weaken retention of military personnel.
Because the bill would provide full benefits to servicemembers after as little as 36
months of service, DOD officials feared the program would encourage personnel to
leave for college rather than to reenlist in the military. Secretary of Defense Gates
raised these issues in an April 29 letter to Senator Levin and in a Pentagon press
conference on May 8, at which Chairman of the Joint Chiefs, Admiral Michael29
Mullen, echoed his concerns.
In the May 8 press conference, Secretary Gates and Admiral Mullen both
emphasized their preference, as well, for a bill that would permit servicemembers to
transfer educational benefits to family members. On May 6, President Bush


28 The FY2002 national defense authorization act provided the Defense Department with
authority to allow transfers of current educational benefits to family members, and the
provision has been tested in an Army pilot project, with, it appears, a relatively low use of
the authority by military personnel. For a discussion, see Bart Jansen, Josh Rogin and
Kathleen Hunter, “GOP Slips McCain’s GI Bill Alternative into Play on Senate Floor,” CQ
Today Online, May 14, 2008.
29 Secretary of Defense Robert M. Gates and Chairman of the Joint Chiefs of Staff Navy
Adm. Mike Mullen, “DoD Press Briefing,” May 8, 2008, online at
[http://www.defenselink.mil/ transcripts/transcript.aspx?transcriptid=4225].

announced that he was sending legislation to Congress to permit benefit transfers as
well. 30
Congressional Action. The May 15 House-passed version of the
FY2008/FY2009 supplemental included expanded GI bill benefits as in the original
Webb/Mitchell proposals. The bill also included a measure that would raise an
estimated $52.3 billion in revenues through FY2008 by imposing a surcharge on the
tax bills of individuals earning over $500,000 a year and couples earning over $1
million. The Senate approved a similar expansion of benefits in its May 22-passed
version of the bill, but did not agree to an offsetting increase in revenues.
Although House Blue Dog Democrats insisted on offsetting the cost of
expanded GI Bill benefits it to the very end, the House leadership ultimately decided
not to include offsets in the amendments brought to the floor on June 19 — and only
12 Representatives voted against Amendment # 2 that included the GI Bill
expansion. The final version of H.R. 2642, as passed by the House on June 19 and
the Senate on June 26, includes a version of the initial Webb/Mitchell expansion of
veterans educational benefits, with a provision added to allow benefits to be
transferred to spouses or other dependents, as the White House had urged. The
inclusion of a transfer provision increased the estimated cost by $11.6 billion, to a
total of $63.8 billion from FY2008 through FY2018.
Hurricane Katrina Repairs and Coastal Louisiana Restoration
The Administration’s FY2009 budget included a request for $5.761 billion in
emergency supplemental funds for the Army Corps of Engineers for hurricane
protection programs on the Gulf Coast. The Corps is responsible for much of the
repair and fortification of the hurricane protection system of coastal Louisiana,
particularly in the greater New Orleans area. Since Hurricane Katrina, most of the
Corps’ work on the region’s hurricane protection system has been funded through
emergency supplemental appropriations, not through the annual appropriations
process. Congress has provided about $7 billion in emergency funding to date.
The Administration estimated that the $7 billion in previously appropriated
funds were insufficient to complete required measures because of increased costs,
improved data on costs, and other factors. The Corps anticipated that available funds
would be used by the end of FY2008, but that much remaining work was required to
reduce the hurricane flooding risk to the New Orleans area to a 100-year level of
protection (i.e., 1% probability of flooding in any given year) and to restore and
complete hurricane protection in surrounding areas to previously authorized levels
of protection by 2011.31


30 President George W. Bush, “President Bush Commemorates Military Spouse Day,” The
White House, May 6, 2008.
31 See CRS Report RL34417, Energy and Water Development: FY2009 Appropriations, by
Carl E. Behrens, Coordinator, Anthony Andrews, David M. Bearden, Nicole T. Carter, Mark
Holt, Nic Lane, Daniel Morgan, and Fred Sissine.

Congressional Action. The House and Senate differed significantly on
emergency funding for hurricane related programs. Both bills provided $5.761
billion in emergency FY2009 funding for the Corps of Engineers, as the
Administration requested. The Senate-passed bill provided $4.6 billion in net
additional funding for hurricane and other natural disaster-related programs. Senate
additions included $3.0 billion more than requested for the Corps of Engineers, $500
million for wildland fire fighting, $451 million for the Emergency Highway Relief
program, $350 million for emergency Medicare and Medicaid services, and $146
million, offset by rescissions, for housing programs and community development
block grants.
After the Senate approved its version of the supplemental on May 22, large rain
storms caused extensive flooding in many parts of the Midwest. In response, the
White House informally urged Congress to add $1.8 billion or more to the
supplemental to replenish emergency accounts expected to be depleted by flood-
related federal relief and recovery expenditures. The House added about $2.7 billion
for flood relief to the June 19-passed version of the bill, which the Senate approved
on June 26 and the President signed on June 30. The final bill did not, however,
included the $4.6 billion that the Senate had added. The final bill provides $8.4
billion for disaster relief, as opposed to $5.8 billion in the request and the initial
House bill and $10.4 billion in the Senate May 22-passed bill.
The Census and Other Domestic Issues
Several other, smaller domestic programs also received funding in the pending
supplemental.
Decennial Census. As a result of newly discovered difficulties with
equipment planned to be used in various aspects of the 2010 Decennial Census, the
Census Bureau faced substantial shortfalls in funding for FY2008. At hearings, the
Secretary of Commerce stated that the shortfall for FY2008 would be between
$160-$230 million, which the agency proposed to pay for through internal transfers
within the Department of Commerce. Both the House- and Senate-passed
supplemental bills provided $210 million in emergency FY2008 supplemental
appropriations for the Bureau of the Census, and that amount is included in the final,32
enacted bill.
Other additions. Other agencies also reported shortfalls of funds to the
appropriations committees. The initial May 15 House-passed bill included $178
million to make up shortfalls in the federal prison system, and the May 22 Senate-
passed bill included that amount and also added $50 million for the Federal Marshals
Service and $275 million for Food and Drug Administration enforcement activities.
The final, enacted bill includes $178 million for prisons and $150 million for the
FDA.


32 Prepared by Royce Crocker, Government and Finance Division.

Other Senate Additions of Funding for Domestic Programs
In all, excluding FY2008 and FY2009 costs of extended unemployment
compensation, enhanced GI Bill education benefits, and the delay of Medicaid rules,
the May 15 House-passed bill included $6.6 billion for domestic programs, the
May 22 Senate-passed bill $15.1 billion, and the final, enacted bill $10.3 billion. Of
the Senate additions to the House bill, $4.6 billion was for disaster recovery
programs. The remaining Senate additions included
!a $1.2 billion science initiative that provides $200 million for the
NASA return to flight program, $200 million for the National
Science Foundation, $400 million for Department of Energy defense
and non-defense cleanup and science programs, and $400 million for
the National Institutes of Health,
!$1 billion for the Low-Income Heating Emergency Assistance
Program (LIHEAP);
!$590 million for state and local law enforcement assistance grants;
!$400 million for the Secure Rural Schools homeland security
program.
The final, enacted bill included $2.7 billion more than the initial request and the
initial House bill for disaster recovery. That amount was for accounts expected to be
used in response to Midwest floods. The final bill also added to the initial House bill
$400 million for science programs, and, as noted earlier, $150 million for the Food
and Drug Administration. In all, however, the final bill did not included nearly as
much as the Senate bill for unrequested domestic programs.



Appendix A. Status of FY2008 Supplemental
Funding Through December 2007
Status of FY2008 Supplemental Funding
During the first session of the 110th Congress, which ended on December 31,
2007, the Administration requested $196.5 billion in emergency supplemental
appropriations for Fiscal Year (FY) 2008, including $189.3 billion for military
operations, $6.9 billion for international affairs, and $325 million for other purposes.
Through the end of December, Congress had approved $86.8 billion of the total
requested for defense and $2.4 billion for international affairs, of which the State
Department calculated that $1.5 billion was for requested programs. Of the
President’s total emergency request, $102.5 billion for defense and $5.4 billion for
international affairs remained outstanding.
For defense, much of the remaining requested funding was to repair, replace,
and upgrade weapons and other equipment used in the war. For foreign operations,
remaining funding included additional sums for reconstruction assistance to Iraq and
Afghanistan and for a major new counter-narcotics initiative in Mexico and Central
America. For State Department operations, outstanding requests included additional
amounts for Diplomatic and Consular Program security upgrades and for
Contributions to International Peacekeeping Activities in Darfur and elsewhere.
Congressional Action on FY2008 Supplemental
Appropriations Through December 2007
Administration Requests. Between February and October of 2007, the
Administration submitted requests for FY2008 emergency supplemental
appropriations in three blocks.
!Along with the regular FY2008 budget that the White House sent to
Congress on February 5, 2007, the Administration requested $141.7
billion in emergency supplemental funding for the Defense
Department, $3.3 billion for the State Department and international
affairs, and $325 million for other agencies. By submitting the
defense request along with the President’s FY2008 budget, the
Administration complied with Section 1008 of the FY2007 national
defense authorization act (P.L. 109-364), which required the
President’s budget to included a request for estimated full year costs
of operations in Iraq and Afghanistan and a detailed justification of
the funds. The request constituted a Defense Department estimate
of the full year costs of continuing operations in Iraq and
Afghanistan at about the same pace as in 2006. The Defense
Department acknowledged, however, that the estimate was only a
rough, straight-line projection of current costs. By the time the
budget was submitted, the Administration was proposing a surge in
troops to Iraq that was not reflected in the budget, and it was
expected that the Administration would later provide revised cost
projections. These were submitted in October.



!On July 31, 2007,the White House requested an additional $5.3
billion for the Department of Defense to procure, outfit, and deploy
1,520 Mine Resistant Ambush Protected (MRAP) vehicles for the
Army and Marine Corps.33
!On October 22, 2007, the President proposed an amendment to the
FY2008 budget requesting an additional $45.9 billion in emergency
funding for military operations, economic and reconstruction
assistance, embassy security, and other activities mainly related to
ongoing conflicts in Iraq, Afghanistan, and elsewhere. The request
included $42.3 billion for the Department of Defense for military
operations and $3.6 billion for international affairs programs.34
In all, the Administration requested $195.6 billion in emergency supplemental
appropriations for FY2008, mainly for military operations in Iraq, Afghanistan and
elsewhere and for related foreign affairs programs.
Congressional Action. Congressional action on FY2008 emergency
supplemental funding began in earnest in September 2007 and was not completed
until shortly before Christmas.
!At the end of September, Congress included $5.2 billion in
emergency funding for Mine Resistant Ambush Protected (MRAP)
vehicles ($5.3 billion was requested in July) in a provision attached
to the first FY2008 continuing resolution, H.J.Res. 52, that the
President signed on September 29, P.L. 110-92.
!On November 8, 2007, the House and Senate approved a conference35
agreement on the FY2008 defense appropriations bill, H.R. 3222,
and the President signed the bill into law, P.L. 110-116, on
November 13. The measure provided $460 billion for baseline
Defense Department activities in FY2008, including $27.4 billion
for Army and $4.8 billion for Marine Corps operation and
maintenance, which may be used to finance both peacetime activities
and military operations abroad. The bill also provided an additional


33 White House Office of Management and Budget, “Estimate #5 — FY2008 Emergency
Budget Amendments: Department of Defense (Global War on Terror — Mine Resistant
Ambush Protected Vehicles),” July 31, 2007 online at [http://www.whitehouse.gov/omb/
budget/ame ndments/ame ndment_7_31_07.pdf].
34 For the overall request see White House Office of Management and Budget, “FY2008
Emergency Budget Amendments: Operation Iraqi Freedom, Operation Enduring Freedom,
and Selected Other International Activities,” October 22, 2007, online at [http://www
.whitehouse.gov/omb/budget/amendments/amendment_10_22_07.pdf]. For an overview of
the defense request, see Department of Defense, FY2008 Global War on Terror Amendment,
October 2007, online at [http://www.defenselink.mil/comptroller/defbudget
/fy2008/Supplemental/FY2008_October_Gl obal_War_On_T error_Amendment.pdf].
35 See CRS Report RL33999, Defense: FY2008 Authorization and Appropriations, by Pat
Towell, Stephen Daggett, and Amy Belasco.

$11.6 billion in emergency funding for MRAP vehicles. Except for
the MRAP money, however, the bill did not include funding to cover
additional costs associated with ongoing military operations in Iraq,
Afghanistan, and elsewhere.
!On November 14, 2007, by a vote of 218-203, the House approved
the “Orderly and Responsible Iraq Redeployment Appropriations
Act, 2008,” H.R. 4156, providing $50 billion for U.S. military
operations in Iraq, Afghanistan, and elsewhere. The bill included
enough money in Army and Marine Corps operating accounts to
sustain military operations in Iraq and elsewhere through about April
2008. It also (1) required the President to commence the withdrawal
of U.S. forces from Iraq within 30 days of enactment of the
legislation and to provide within 60 days a plan for withdrawing
most troops from Iraq by December 15, 2008; (2) limited the
mission of remaining U.S. forces in Iraq to force protection, training,
and pursuit of international terrorists; (3) prohibited deployment of
units that are not fully trained and equipped; and (4) extended
prohibitions on torture to all U.S. government agencies.
!On November 16, 2007, by a vote of 53-45, with 60 votes required,
the Senate refused to close debate on a motion to proceed to
consideration of H.R. 4156 as passed by the House, effectively
killing the measure. The Senate also rejected, by a vote of 45-53, a
motion to proceed to consideration of H.R. 2340, a substitute offered
by Senator McConnell, to provide $70 billion for the Defense
Department without requiring withdrawal from Iraq. (Ultimately,
however, with some revisions in the allocation of funds, the
McConnell amendment was approved as part of the final
consolidated appropriations act — see below.)
!Meanwhile, in a November 15, 2007, Pentagon press conference,
Secretary of Defense Robert Gates warned that the Army and Marine
Corps would have to begin implementing steps to limit operations
unless Congress approved additional funding very soon.36 Without
additional money, he said, the Army would have to cease operations
at all Army bases by mid-February 2008, which would require
furloughs of about 100,000 government employees and a like
number of contractor personnel. Plans would have to begin to be
implemented in mid-December, he said. On November 20, the
Defense Department announced that it was transferring $4.5 billion
to the Army and to the Joint IED Defeat Organization to extend their
operations. The Army, DOD said, would only be able to operate
with available funds, including the transfer, until February 23, 2008.


36 Department of Defense, “DoD News Briefing with Secretary of Defense Gates and
Chairman of the Joint Chiefs of Staff Adm. Mullen from the Pentagon Briefing Room,
Arlington, Va.,” November 15, 2007 at [http://www.defenselink.mil/transcripts
/transcript.aspx?transcriptid=4089].

Senior defense officials continued to warn that the Army and Marine
Corps would have to halt all but essential operations very soon
unless Congress approved additional funding.
!On December 17, 2007, the House brought up the foreign operations
appropriations bill, H.R. 2764, that had earlier been passed by the
House and then amended by the Senate, as a vehicle for FY2008
“omnibus” or “consolidated” appropriations. The House approved
two amendments to the Senate-passed bill. The first amendment,
approved by a vote of 253-154, struck the Senate foreign operations
language and inserted the text of conference agreements on 11 of the
12 FY2008 appropriations bills. In all, it provided $485 billion in
regular and emergency appropriations for programs covered by all
of the regular, annual appropriations bills except for defense, for
which appropriations had already been enacted. The second
amendment, approved by a vote of 206-201, provided $31 billion in
emergency defense appropriations, mostly restricted to Operation
Enduring Freedom (OEF), which encompasses operations in
Afghanistan and elsewhere, excluding Iraq. Funding for Army and
Marine Corps operation and maintenance was made available only
for OEF, except for amounts for force protection that could be
allocated to any area.
!On December 18, 2007, the Senate took up the House-passed
consolidated appropriations bill and, by a vote of 70-25, adopted an
amendment by Senator McConnell to delete the House-passed $31
billion for OEF and to provide, instead, $70 billion in emergency
!supplemental appropriations for the Department of Defense for
overseas operations, without limits on where the money could be
used and without requiring a withdrawal of forces from Iraq.
!On December 19, 2007, the House considered H.R. 2764 as
amended by the Senate. By a vote of 272-142, the House approved
a motion to agree to the Senate amendment to the House-passed bill,
thus clearing the measure for the President. The President signed the
bill into law, P.L. 110-161, on December 26.
Remaining FY2008 and Additional FY2009 Defense Request
The Administration requested a total of $189.3 billion in emergency FY2008
supplemental appropriations for the Department of Defense. Through December

2007, Congress had approved $86.8 billion, which leaves $102.5 billion still pending.


Since December, the Defense Department has made some adjustments in its budget
request. Table 1 shows by title and account (1) total FY2008 supplemental funding
requested for DOD through the October 22, 2007, budget amendment; (2) the amount
Congress has approved to date; (3) adjustments to the remaining amounts that the
Defense Department proposed — though not with a formal budget amendment — as
of the end of March, 2008, and (4) the remaining adjusted DOD budget request.



In preparing a bill to provide remaining FY2008 defense funds, the
congressional appropriations committees decided to add a “bridge fund” for FY2009
that would provide enough money to sustain both day-to-day peacetime activities and
war-related operations until well into calendar year 2009. This would leave it to the
next Administration to decide what it will request in total supplemental funding to
cover war costs based on any planned changes in strategy. The committees discussed
with the Defense Department how to allocate funds among accounts so as to sustain
critical operations through about June of 2009.
On May 2, the Office of Management and Budget formally sent Congress a
request for $70 billion in FY2009 supplemental funding, of which $66 billion was
for defense and intelligence and $4 billion was for international affairs. Along with
the pending FY2008 supplemental request, Table A-1 shows the breakdown of the
May 2 Administration request for a $66 billion defense bridge fund. CRS calculates
that a bridge fund of about $57 billion, if allocated by account to maximize the
amount of time critical operating accounts would last, could allow the services to
operate through the end of July, 2009, at DOD’s planned monthly rates of
obligations.37
Table A-1. Remaining FY2008 and Additional FY2009
Supplemental Funding Requested for the
Department of Defense
(amounts in millions of dollars)
O r ig ina l FY2008 FY2008 Rema ining
FY2008 Ena c t e d Rema ining DOD Adjusted
Amended throug h FY2008 Adjust- FY2008 FY2009
RequestDec. 2007RequestmentRequestRequest
Military Personnel
Military Personnel, Army12,31878311,535+32911,8643,500
Reserve Personnel, Army299 299+9309
National Guard Personnel,1,137 1,137+4201,557
Ar my
Military Personnel, Navy79296696+670295
Reserve Personnel, Navy70 70+373
Military Personnel, Marine1,790561,734+31,73785
Co r p s
Reserve Personnel, Marine15 15+117
Co r p s
Military Personnel, Air Force1,4161381,278+81,286105
Reserve Personnel, Air Force33+47
National Guard Personnel,20


Ar my
37 The largest requirement, by far, would be for Army Operation and Maintenance. If
monthly obligations for Army O&M, both for peacetime and for war-related operations,
average $6.9 billion in FY2009, which is about the FY2008 rate, then the $31 billion
requested for Army O&M in the base defense budget for FY2009 would last until about the
middle of February, 2009. An additional $38 billion would be needed to sustain operations
at the same rate through the end of July.

O r ig ina l FY2008 FY2008 Rema ining
FY2008 Ena c t e d Rema ining DOD Adjusted
Amended throug h FY2008 Adjust- FY2008 FY2009
RequestDec. 2007RequestmentRequestRequest
National Guard Personnel, Air+66
Fo r c e
Total Military Personnel17,8401,07216,767+78917,5563,805
Operation and Maintenance
O&M, Army53,87235,15218,720-1,57717,14335,560
O&M, Army Reserve19778119+38157
O&M, Army National Guard757327430+383813
O&M, Navy6,1633,6642,499+7223,220 238
O&M, Marine Corps4,2723,966306+34340 2,200
O&M, Navy Reserve834242+66108
O&M, Marine Corps Reserve684622+123 34
O&M, Air Force10,7054,7785,927+8306,758 3,644
O&M, Air Force Reserve241212+150162
O&M, Air National Guard1035252+234285
O&M, Defense-Wide5,3372,1173,220+3433,563 3,194
Office of the Inspector General444
Drug Interdiction and Counter-25819365 65 130
Drug Activities, Defense
Afghanistan Security Forces2,7001,3501,350 1,3503,666
Fund
Iraq Security Forces Fund3,0001,5001,500 1,5002,000
Iraq Freedom Fund3,8513,747104+70174
Defense Health Program1,137576562+197759
Medical Support Fund 400
Total Operation and92,53357,59934,934+1,49036,42451,066
M a int e na nce
Procurement
Aircraft Procurement, Army2,1259441,182+151,196
Missile Procurement, Army642 642-105537
Procurement of W&TCV, Army7,2901,4295,860-2895,571
Procurement of Ammunition,514154360 360
Ar my
Other Procurement, Army23,1312,02821,103-4,41016,69380
Joint Impr Explosive Dev4,2694,269 -65-65 2,970
Defeat Fund
Aircraft Procurement, Navy3,908493,860+1914,050
Weapons Procurement, Navy318 318 318
Procurement of Ammo, Navy &610305305 305
MC
Other Procurement, Navy1,607911,515 1,515
Procurement, Marine Corps3,1487032,444 2,444
Aircraft Procurement, Air Force3,946513,895 3,895 1,209
Missile Procurement, Air Force222
Procurement of Ammunition,104 104 104
Air Force
Other Procurement, Air Force2,461312,430 2,430 1,468
Procurement, Defense-Wide542275267+8275 73
Rapid Acquisition Fund150150150 100



O r ig ina l FY2008 FY2008 Rema ining
FY2008 Ena c t e d Rema ining DOD Adjusted
Amended throug h FY2008 Adjust- FY2008 FY2009
RequestDec. 2007RequestmentRequestRequest
Mine Resistant Ambush Prot16,83016,830 2,610
Veh Fund
Total Procurement71,59727,15944,438-4,65739,7818,511
Research, Development, Test and Evaluation
RDT&E, Army163 163+48211
RDT&E, Navy611 611+21632113
RDT&E, AF1,487 1,487+621,54972
RDT&E, DW684 684+260945194
Total RDT&E2,946 2,946+3913,33379
Military Construction
Military Construction, Army1,4411,441+1271,568
FY2005 BRAC - Army +560560
Military Construction, Navy238238+95332
FY2005 BRAC - Navy +9797
Military Construction, Air Force305305+98403
FY2005 BRAC - AF +129129
Military Construction, Defense-28 28 28
Wide
FY2005 BRAC - Defense Wide416 416 416
Total Military2,427 2,427+1,1073,534
Co nst r uct io n
Family Housing
Fam Housing Construction,12 12 12
Navy & Marine Corps
Total Family Housing121212
Revolving and Management Funds
Working Capital Fund, Army1,364720644+6651
Working Capital Fund, Navy43 43+229272
Working Capital Fund, Air237 237+358595
Fo r c e
Working Capital Fund, Defense-31328033+2873202,200
Wide
National Defense Sealift Fund555
Total Revolving &1,9631,000963+8801,8432,200
Mngmnt Funds
Other Non-DOD Intelligence
FBI Counter-terrorism39
Total Other Intelligence39
Total Budget Authority189,31686,830102,486 102,48666,000
Source: Department of Defense for FY2008 amounts, Office of Management and Budget,FY2009 Emergency
Budget Amendments: Operation Iraqi Freedom, Operation Enduring Freedom, and Selected Other International
Activities,” May 2, 2008.
Notes: Further changes in request for Iraq Freedom Fund are pending.BRAC refers to Base Realignment
and Closure.



Appendix B. Summary Funding Tables
Table B-1. Spring FY2008 and FY2009 Supplemental Appropriations:
Request, House, and Senate Amounts by Account
(amounts in thousands of dollars)
House- Sena t e - Ena c t e d
PassedPassedJune 30
May 15May 22H.R. 2642
RequestH.R. 2642H.R. 2642P.L. 110-252
TITLE I: OTHER SECURITY, MILITARY CONSTRUCTION, AND INTERNATIONAL MATTERS
CHAPTER 1
DEPARTMENT OF AGRICULTURE, Foreign Agricultural Service
Public Law 480 Title II Grants (emergency) 350,000850,000850,000850,000
Advance appropriation, FY2009 (emergency) 395,000395,000395,000395,000
CHAPTER 2
DEPARTMENT OF JUSTICE
General Administration, Inspector General 4,0004,0004,000
Legal Activities
General Legal Activities, Salaries and Expenses4,0931,6481,6481,648
United States Attorneys, Salaries and Expenses5,0005,0005,0005,000
United States Marshals Service, Salaries and
Expenses 14,921 18,621 18,621 28,621
Federal Bureau of Investigation
Salaries and expenses (emergency) 101,12292,169164,965106,122
Advance appropriation, FY2009 (emergency) 39,06282,60082,60082,600
Drug Enforcement Administration, Salaries and
Expenses 8,468 12,166 22,666 29,861
Bureau of Alcohol, Tobacco, Firearms and
Explosives, Salaries and Expenses4,0004,0004,0004,000
Federal Prison System, Salaries and Expenses9,1009,1009,1009,100
CHAPTER 3
DEPARTMENT OF DEFENSE
Military Construction
Military construction, Army (emergency) 1,440,7501,432,7001,170,2001,108,200
Military construction, Navy and Marine Corps
(emergency) 237,505423,357300,084355,907
Military construction, Air Force (emergency) 305,000409,627361,900399,627
Military construction, Defense-Wide
(emergency) 27,6001,009,60027,600890,921
Family Housing
Family housing construction, Navy and Marine
Corps (emergency) 11,76611,76611,76611,766
Base realignment and closure account, 2005
(emergency) 415,9101,354,6341,202,8861,278,886
DEPARTMENT OF VETERANS AFFAIRS
Departmental Administration 120,000557,100120,000
Construction, Major Projects 396,377
DEPARTMENT OF DEFENSE
General Provisions, Military Construction
Sec 1301 Child development centers, Army
(emergency) 70,600
Sec 1302 Child development centers, Navy
(emergency) 89,820



House- Sena t e - Ena c t e d
PassedPassedJune 30
May 15May 22H.R. 2642
RequestH.R. 2642H.R. 2642P.L. 110-252
Sec 1303 Child development centers, Air Force
(emergency) 8,100
Sec 1304 Barracks improvements (emergency) 200,000200,000
CHAPTER 4
SUBCHAPTER A SUPPLEMENTAL APPROPRIATIONS FOR FISCAL YEAR 2008
DEPARTMENT OF STATE
Administration of Foreign Affairs
Diplomatic and consular programs (emergency) 1,708,0081,606,8081,413,7001,465,700
Office of Inspector General (emergency) 7,50012,5009,500
Educational and cultural exchange program
(emergency) 10,000
Embassy security, construction, and maintenance
(emergency) 160,00076,70076,70076,700
International Organizations
Contributions to international organizations
(emergency) 53,00053,00066,00066,000
Contributions for international peacekeeping
activities, current year (emergency) 333,600333,600383,600373,708
RELATED AGENCY
Broadcasting Board of Governors
International Broadcasting Operations
(emergency) 3,0002,000
BILATERAL ECONOMIC ASSISTANCE
Funds Appropriated to the President
International disaster assistance (emergency) 200,000240,000220,000
Operating expenses of the US Agency for
International Development (emergency) 41,000142,000149,500150,500
Operating expenses of the US Agency for
International Development Office of Inspector
General (emergency) 4,0004,0004,000
Other Bilateral Economic Assistance
Economic support fund (emergency) 2,009,0001,747,0001,962,5001,882,500
Department of State
Democracy fund (emergency) 75,00076,00076,000
International narcotics control and law
enforcement (emergency) 734,000419,300520,000390,300
Migration and refugee assistance (emergency) 30,000300,000330,500315,000
Emergency migration and refugee assistance
(emergency) 5,000 25,00036,60831,000
Nonproliferation, anti-terrorism, demining and
related programs (emergency) 11,20010,00013,700
Military Assistance
Funds Appropriated to the President
Foreign Military Financing Programs72,500137,500
Peacekeeping operations (emergency) 10,000
General Provisions, Section 1407 /b/
World Food Program 20,000
Andean Counterdrug Initiative (rescission)-20,000
International narcotics control and law
enforcement (Sudan)10,000
International narcotics control and law
enforcement (rescission) -10,000



House- Sena t e - Ena c t e d
PassedPassedJune 30
May 15May 22H.R. 2642
RequestH.R. 2642H.R. 2642P.L. 110-252
SUBCHAPTER B — BRIDGE FUND APPROPRIATIONS FOR FISCAL YEAR 2009
DEPARTMENT OF STATE
Administration of Foreign Affairs
Diplomatic and consular programs (emergency) 1,064,500737,900652,400704,900
Office of Inspector General 16,80057,00057,00057,000
Embassy Security, construction and Maintenance 41,30041,30041,300
International Organizations
Contributions to international organizations 40,00075,00075,00075,000
Contributions for international peacekeeping
activities, current year 150,500150,500150,500
RELATED AGENCY
Broadcasting Board of Governors
International Broadcasting Operations 8,0006,0006,000
BILATERAL ECONOMIC ASSISTANCE
Funds Appropriated to the President
Global Health and Child Survival 75,00075,00075,000
Development Assistance 210,000200,000200,000200,000
International disaster assistance 270,000200,000200,000200,000
Operating expenses of the US Agency for
International Development 60,00093,00093,00093,000
Operating expenses of the US Agency for
International Development Office of Inspector
General 1,0001,0001,000
Other Bilateral Economic Assistance
Economic support fund 1,297,7001,147,3001,132,3001,124,800
Department of State
International narcotics control and law
enforcement 225,000204,500151,000199,000
Migration and refugee assistance 191,000350,000350,000350,000
Nonproliferation, anti-terrorism, demining and
related programs 4,0004,5004,500
MILITARY ASSISTANCE
Funds Appropriated to the President
Foreign Military Financing program grants 170,000170,000145,000302,500
Peacekeeping operations 60,00085,00085,00095,000
SUBCHAPTER C
GENERAL PROVISIONS /c/
Sec 1410(a) Contribution to World Food
Program 20,00020,000
(Rescission) -20,000-20,000
Sec 1410(b) Sudan 10,00010,000
(Rescission) -10,000-10,000
Sec 1410(c) Mexico IRRF (rescission of
emergency appropriations) -50,000-50,000
Sec 1410(d) Horn of Africa 40,000
Rescission of emergency appropriations -40,000
Sec 1412 Food Security and Cyclone relief 225,000
(Rescission) -225,000
Sec 1414 Jordan 300,00058,000
(Rescission) -300,000-58,000
Section 1408 Buying Power Maintenance
(transfer) [74,000]



House- Sena t e - Ena c t e d
PassedPassedJune 30
May 15May 22H.R. 2642
RequestH.R. 2642H.R. 2642P.L. 110-252
GENERAL PROVISIONS, TITLE I
Rescission, DHS Customs and Border Security-50,000
Total, Title I 11,997,85514,909,09614,231,26415,121,244
Defense 2 ,438,531 4,641,684 3,442,956 4,245,307
International Affairs9,423,5589,918,6089,918,60810,088,608
Do mestic 135,766 349,304 869,700 787,329
TITLE II: DOMESTIC MATTERS
CHAPTER 1
DEPARTMENT OF HEALTH AND HUMAN SERVICES
Food and Drug Administration 275,000150,000
Chapter 2 (Senate)/Chapter 1 (House)
DEPARTMENT OF COMMERCE
Bureau of the Census 210,000210,000210,000
DEPARTMENT OF JUSTICE
United States Marshals Service, Salaries and
Expenses 50,000
Federal Prison System, Salaries and Expenses 178,000178,000178,000
State and Local Law Enforcement Assistance 590,000
SCIENCE
NASA, Return to Flight 200,00062,500
National Science Foundation 200,00062,500
Chapter 3
DEPARTMENT OF ENERGY
Non-Defense Energy Programs, Cleanup and
Science 157,00062,500
Defense Environmental Cleanup 243,00062,500
Chapter 4
General Provision, Small Business
Administration600
Chapter 5
DEPARTMENT OF THE INTERIOR, Secure
Rural Schools 400,000
Chapter 6 (Senate)/Chapter 3 (House)
DEPARTMENT OF LABOR, State
Unemployment Insurance 110,000110,000110,000
DEPARTMENT OF HEALTH AND HUMAN SERVICES
Centers for Disease Control, Research and
Training 26,000
National Institutes of Health400,000150,000
General Provisions, Low-Income Energy
Assistance (LIHEAP) 1,000,000
Chapter 4 (House)
House of Representatives, Payments to Widows
and Heirs 169 169
Chapter 7
American Battle Monuments Commission,
Foreign Currency Account 10,000



House- Sena t e - Ena c t e d
PassedPassedJune 30
May 15May 22H.R. 2642
RequestH.R. 2642H.R. 2642P.L. 110-252
Total, Title II 498,1694,049,6001,048,169
Defense 243,00062,500
International Affairs
Domestic 498,1693,806,600985,669
TITLE III: NATURAL DISASTER RELIEF AND RECOVERY
Chapter 1
DEPARTMENT OF AGRICULTURE
Emergency Conservation Program 49,41389,413
Emergency Watershed Protection Program 130,464390,464
Sec 3101 RUS/Rural Electric and
Telecommunication Loans 1,000
(Rescission of emergency appropriations) -1,000
Chapter 2
DEPARTMENT OF COMMERCE
Economic Development Assistance Programs 75,000100,000
National Oceanic and Atmospheric
Administration 75,000
DEPARTMENT OF JUSTICE
State and Local Law Enforcement Assistance 75,000
Chapter 3
Corps of Engineers
Construction, General 66,60061,700
Advance appropriation, FY2009 2,835,0002,835,0004,966,7452,835,000
Mississippi river and tributaries 17,70017,590
Operations and Maintenance 338,800298,344
Flood Control and Coastal Emergencies 94,400226,855
Advance appropriation, FY2009 2,926,0002,926,0003,274,0002,926,000
General expenses 1,5001,500
Chapter 4
SMALL BUSINESS ADMINISTRATION
Disaster Loans Program Account, Midwestern
States 266,753
Chapter 5
FEDERAL EMERGENCY MANAGEMENT AGENCY
Disaster Relief 897,000
Chapter 6
DEPARTMENT OF THE INTERIOR
Bureau of Land Management, Wildland Fire
Management 125,000
National Park Service, Historic Preservation
Fund 15,000
EPA, State and Tribal Assistance Grants5,000
DEPARTMENT OF AGRICULTURE
Forest Service, Wildland Fire Management 325,000
Chapter 7
DEPARTMENT OF HEALTH AND HUMAN SERVICES
Centers for Medicare and Medicaid Services 350,000
Chapter 8
DEPARTMENT OF DEFENSE
Military Construction Army National Guard 11,503



House- Sena t e - Ena c t e d
PassedPassedJune 30
May 15May 22H.R. 2642
RequestH.R. 2642H.R. 2642P.L. 110-252
(Rescission of emergency appropriations) -7,000
General Provision, Sec. 3801 Family Housing
Navy (emergency 10,500
Chapter 9
Emergency Highway Relief Program 451,126
Department of Housing and Urban Development
Permanent Supportive Housing 73,00073,000
Housing transition assistance 3,000
Project-based rental assistance 20,000
Community Development Block Fund 50,000300,000
Louisiana Road Home (rescission of emergency
funds) -200,000
Total, Title III 5,761,0005,761,00010,396,7518,483,619
Defense 15,003
International Affairs
Do mestic 5,761,000 5,761,000 10,381,748 8,483,619
Title IV (House)/Title V (Senate): EMERGENCY UNEMPLOYMENT COMPENSATION
Emergency unemployment compensation,
FY2008 6,170,0006,170,0004,790,000
Emergency unemployment compensation,
FY2009 9,440,0009,440,0007,765,000
Total, Title IV 15,610,00015,610,00012,555,000
Defense
International Affairs
Domestic 15,610,00015,610,00012,555,000
TITLE V (House)/Title IV (Senate): VETERANS EDUCATIONAL ASSISTANCE
Veterans educational assistance, FY2008 40,00040,00050,000
Veterans educational assistance, FY2009 676,000677,000746,000
Total, Title V716,000717,000796,000
Defense
International Affairs
Domestic 716,000717,000796,000
TITLE VII (House)/Title VI (Senate): MEDICAID PROVISIONS
Medicaid Moratorium, FY2008 450,000 305,000
Medicaid Moratorium, FY2009 1,150,000 805,000
Medicaid, Medicare and SCHIP provisions,
FY2008 530,000
Medicaid, Medicare and SCHIP provisions,
FY2009 1,225,000
Total, Title VII1,600,0001,755,0001,110,000
Defense
International Affairs
Domestic 1,600,0001,755,0001,110,000



House- Sena t e - Ena c t e d
PassedPassedJune 30
May 15May 22H.R. 2642
RequestH.R. 2642H.R. 2642P.L. 110-252
Title VIII: GENERAL PROVISIONS
Reduction in FY2008 Defense Procurement,
R&D, Working Capital Funds -3,577,845
Total, Title VIII -3,577,845
Defense -3,577,845
International Affairs
Domestic
TITLE IX: DEFENSE MATTERS
CHAPTER 1
DEFENSE SUPPLEMENTAL APPROPRIATIONS FOR FISCAL YEAR 2008
Military Personnel
Military Personnel, Army 11,535,055 12,216,71512,216,715
Military Personnel, Navy 696,053894,185894,185
Military Personnel, Marine Corps 1,733,9711,826,6881,826,688
Military Personnel, Air Force 1,277,853 1,355,5441,355,544
Reserve Personnel, Army 299,200 304,200304,200
Reserve Personnel, Navy 70,000 72,80072,800
Reserve Personnel, Marine Corps 15,420 16,72016,720
Reserve Personnel, Air Force 3,000 5,0005,000
National Guard Personnel, Army 1,136,747 1,369,7471,369,747
National Guard Personnel, Air Force 4,0004,000
Total, Military Personnel 16,767,29918,065,59918,065,599
Operation and Maintenance
Operation & Maintenance, Army 18,712,468 17,223,51217,223,512
Operation & Maintenance, Navy 2,498,765 2,977,8642,977,864
(Transfer out) [-115,400] [-112,607][-112,607]
Operation & Maintenance, Marine Corps 306,050 159,900159,900
Operation & Maintenance, Air Force 5,924,865 5,972,5205,972,520
Operation & Maintenance, Defense-Wide 3,152,933 3,657,5623,657,562
Operation & Maintenance, Army Reserve 118,958 164,839164,839
Operation & Maintenance, Navy Reserve 41,750 109,876109,876
Operation & Maintenance, Marine Corps Reserve 22,040 70,25670,256
Operation & Maintenance, Air Force Reserve 12,133 165,994165,994
Operation & Maintenance, Army National Guard 430,008 685,644685,644
Operation & Maintenance, Air National Guard 51,633 287,369287,369
Subtotal, Operation and Maintenance 31,271,603 31,475,33631,475,336
Iraq Freedom Fund 207,500 50,00050,000
Afghanistan Security Forces Fund 1,350,000 1,400,0001,400,000
Iraq Security Forces Fund 1,500,000 1,500,0001,500,000
Subtotal, Other 3,057,500 2,950,0002,950,000
Total, Operation and Maintenance 34,329,10334,425,33634,425,336
Procurement
Aircraft Procurement, Army 1,181,864 954,111954,111
Missile Procurement, Army 641,764 561,656561,656
Procurement of Weapons and Tracked Combat
Vehicles, Army 5,860,252 5,463,4715,463,471
Procurement of Ammunition, Army 359,600344,900344,900
Other Procurement, Army 21,103,261 16,337,34016,337,340
Aircraft Procurement, Navy 3,859,958 3,563,2543,563,254
Weapons Procurement, Navy 318,281 317,456317,456



House- Sena t e - Ena c t e d
PassedPassedJune 30
May 15May 22H.R. 2642
RequestH.R. 2642H.R. 2642P.L. 110-252
Procurement of Ammunition, Navy and Marine
Corps 304,945 304,945304,945
Other Procurement, Navy 1,515,116 1,399,1351,399,135
Procurement, Marine Corps 2,444,490 2,197,3902,197,390
Aircraft Procurement, Air Force 3,894,839 7,103,9237,103,923
Missile Procurement, Air Force 1,800 66,94366,943
Procurement of Ammunition, Air Force 104,405205,455205,455
Other Procurement, Air Force 2,405,034 1,953,1671,953,167
Procurement, Defense-Wide 266,237 408,209408,209
National Guard and Reserve Equipment 825,000825,000
Rapid Acquisition Fund 150,000
Total, Procurement 44,411,84642,006,35542,006,355
Research, Development, Test and Evaluation
Research, Development, Test & Evaluation,
Army 163,299162,958162,958
Research, Development, Test & Evaluation,
Navy 610,567 366,110366,110
Research, Development, Test & Evaluation, Air
Force 1,487,493399,817399,817
Research, Development, Test and Evaluation,
Defense-Wide 684,389816,598816,598
Total, Research, Development, Test and
Evaluation 2,945,7481,745,4831,745,483
Revolving and Management Funds
Defense Working Capital Funds 957,6751,837,4501,837,450
National Defense Sealift Fund 5,1105,1105,110
Total, Revolving and Management Funds 962,7851,842,5601,842,560
Other Department of Defense Programs
Defense Health Program 561,741 1,413,8641,413,864
Psychological health and traumatic brain injury 75,00075,000
Drug Interdiction and Counter-Drug Activities,
Defense 65,01765,31765,317
Office of the Inspector General 4,394 6,3946,394
Total, Other Department of Defense Programs 631,1521,560,5751,560,575
General Provisions
Sec 11103 Additional transfer authority [2,500,000][2,500,000]
Sec 11105 Defense Cooperation Account
(transfer authority) 6,500 6,5006,500
Total, General Provisions 6,5006,5006,500
Total, Chapter 1: FY2008 SUPPLEMENTAL
APPROPRIATIONS100,054,43399,652,40899,652,408
Chapter 2
DEFENSE BRIDGE FUND APPROPRIATIONS FOR FISCAL YEAR 2009
DEPARTMENT OF DEFENSE — MILITARY
Military Personnel
Military Personnel, Army 3,500,000 839,000839,000
Military Personnel, Navy 95,00075,00075,000
Military Personnel, Marine Corps 85,00055,00055,000
Military Personnel, Air Force 105,000 75,00075,000
National Guard Personnel, Army 20,000 150,000150,000
Total, Military Personnel 3,805,0001,194,0001,194,000



House- Sena t e - Ena c t e d
PassedPassedJune 30
May 15May 22H.R. 2642
RequestH.R. 2642H.R. 2642P.L. 110-252
Operation and Maintenance
Operation & Maintenance, Army 35,560,055 37,300,00037,300,000
Operation & Maintenance, Navy 238,437 3,500,0003,500,000
(Transfer out) [-200,000] [-112,000 ][-112,000 ]
Operation & Maintenance, Marine Corps 2,200,000 2,900,0002,900,000
Operation & Maintenance, Air Force 3,644,078 5,000,0005,000,000
Operation & Maintenance, Defense-Wide 3,193,494 2,648,5692,648,569
Operation & Maintenance, Army Reserve 79,29179,291
Operation & Maintenance, Navy Reserve 42,49042,490
Operation & Maintenance, Marine Corps Reserve 34,000 47,07647,076
Operation & Maintenance, Air Force Reserve 12,37612,376
Operation & Maintenance, Army National Guard 333,540333,540
Operation & Maintenance, Air National Guard 52,66752,667
Subtotal, Operation and Maintenance 44,870,064 51,916,00951,916,009
Afghanistan Security Forces Fund 3,666,259 2,000,0002,000,000
Iraq Security Forces Fund 2,000,000 1,000,0001,000,000
Total, Operation and Maintenance 50,536,32354,916,00954,916,009
Procurement
Aircraft Procurement, Army 84,00084,000
Procurement of Weapons and Tracked Combat
Vehicles, Army 822,674822,674
Procurement of Ammunition, Army 46,50046,500
Other Procurement, Army 80,536 1,009,0501,009,050
Other Procurement, Navy 27,94827,948
Procurement, Marine Corps 565,425565,425
Aircraft Procurement, Air Force 1,209,300 201,842201,842
Other Procurement, Air Force 1,467,475 1,500,6441,500,644
Procurement, Defense-Wide 72,733 177,237177,237
Rapid Acquisition fund 100,000
Total, Procurement 2,930,0444,435,3204,435,320
Research, Development, Test and Evaluation
Research, Development, Test & Evaluation,
Navy 113,228113,228113,228
Research, Development, Test & Evaluation, Air
Force 71,741 72,04172,041
Research, Development, Test and Evaluation,
Defense-Wide 194,156202,559202,559
Total, Research, Development, Test and
Evaluation 379,125387,828387,828
Revolving and Management Funds
Defense Working Capital Funds 2,200,000
Total, Revolving and Management Funds 2,200,000
Other Department of Defense Programs
Defense Health Program 400,000 1,100,0001,100,000
Drug Interdiction and Counter-Drug Activities,
Defense 130,000188,000188,000
Joint Improvised Explosive Device Defeat fund 2,970,444 2,000,0002,000,000
Total, Other Department of Defenses Programs 3,500,4443,288,0003,288,000
General Provisions
Sec 11203 Transfer authority [4,000,000] [4,000,000][4,000,000]
Sec 11208 Mine Resistant Ambush Protected
Vehicle fund 2,610,000 1,700,0001,700,000



House- Sena t e - Ena c t e d
PassedPassedJune 30
May 15May 22H.R. 2642
RequestH.R. 2642H.R. 2642P.L. 110-252
Total, General Provisions 2,610,0001,700,0001,700,000
Total, Chapter 2: FY2009 BRIDGE FUND
APPROPRIATIONS65,960,93665,921,15765,921,157
Chapter 3
General Provision
Sec 11308 rescission of emergency
appropriations -146,531-146,531
Total, Title IX 166,015,369165,427,034165,427,034
Defense166,015,369 165,427,034165,427,034
International Affairs
Domestic
Sources: Request and Senate amounts from Senate Appropriations Committee, FY2008 Supplemental Explanatory
Material,” May 20, 2008, on line at [http://appropriations.senate.gov/]; House May 15 amounts by CRS based on
explanatory material prepared by the House Appropriations Committee and distributed on May 15, 2008, by the House
Rules Committee on line at [http://www.rules.house.gov/announcement_details.aspx?NewsID=3333]. House June 19
amounts from House Appropriations Committee text of the House amendment, explanatory material, and appropriations
tables in the Congressional Record, June 19, 2008, pp. H5622-H5699. Totals by category are calculated by CRS.
Notes: Amounts may not add due to rounding. All totals shown are net of offsetting rescissions.



Table B-2. Memorandum: Un-passed House Leadership Bill Defense
Funding Compared to Request and Senate-Passed Bill
(amounts in thousands of dollars)
House
Le adership Sena t e -
BillPassedSenate vs
RequestMay 15May 22House
TITLE IX: DEFENSE MATTERS
CHAPTER 1
DEFENSE SUPPLEMENTAL APPROPRIATIONS FOR FISCAL YEAR 2008
Military Personnel
Military Personnel, Army 11,535,05511,807,65512,216,715+409,060
Military Personnel, Navy 696,053866,753894,185+27,432
Military Personnel, Marine Corps 1,733,9711,820,5711,826,688+6,117
Military Personnel, Air Force 1,277,8531,286,1531,355,544+69,391
Reserve Personnel, Army 299,200304,200304,200
Reserve Personnel, Navy 70,00072,80072,800
Reserve Personnel, Marine Corps 15,42016,72016,720
Reserve Personnel, Air Force 3,0005,0005,000
National Guard Personnel, Army 1,136,7471,369,7471,369,747
National Guard Personnel, Air Force 4,0004,000
Total, Military Personnel 16,767,29917,553,59918,065,599+512,000
Operation and Maintenance
Operation & Maintenance, Army 18,712,46816,343,51217,223,512+880,000
Operation & Maintenance, Navy 2,498,7652,952,8642,977,864+25,000
(Transfer out) [-115,400][-112,607][-112,607]
Operation & Maintenance, Marine Corps 306,050159,900159,900
Operation & Maintenance, Air Force 5,924,8655,922,5205,972,520+50,000
Operation & Maintenance, Defense-Wide 3,152,9333,387,5623,657,562+270,000
Operation & Maintenance, Army Reserve 118,958164,839164,839
Operation & Maintenance, Navy Reserve 41,750109,876109,876
Operation & Maintenance, Marine Corps Reserve 22,04070,25670,256
Operation & Maintenance, Air Force Reserve 12,133165,994165,994
Operation & Maintenance, Army National Guard 430,008685,633685,644+11
Operation & Maintenance, Air National Guard 51,633287,369287,369
Subtotal, Operation and Maintenance 31,271,60330,250,32531,475,336+1,225,011
Iraq Freedom Fund 207,50050,00050,000
Afghanistan Security Forces Fund 1,350,0001,400,0001,400,000
Iraq Security Forces Fund 1,500,0001,500,0001,500,000
Subtotal, Other 3,057,5002,950,0002,950,000
Total, Operation and Maintenance 34,329,10333,200,32534,425,336+1,225,011
Procurement
Aircraft Procurement, Army 1,181,864954,111954,111
Missile Procurement, Army 641,764561,656561,656
Procurement of Weapons and Tracked Combat
Vehicles, Army 5,860,2525,393,4715,463,471+70,000
Procurement of Ammunition, Army 359,600344,900344,900
Other Procurement, Army 21,103,26115,967,34016,337,340+370,000
Aircraft Procurement, Navy 3,859,9583,411,2543,563,254+152,000
Weapons Procurement, Navy 318,281317,456317,456
Procurement of Ammunition, Navy and Marine
Corps 304,945304,945304,945
Other Procurement, Navy 1,515,1161,260,1351,399,135+139,000
Procurement, Marine Corps 2,444,4902,153,3902,197,390+44,000



House
Le adership Sena t e -
BillPassedSenate vs
RequestMay 15May 22House
Aircraft Procurement, Air Force 3,894,8397,028,5637,103,923+75,360
Missile Procurement, Air Force 1,80066,94366,943
Procurement of Ammunition, Air Force 104,405205,455205,455
Other Procurement, Air Force 2,405,0341,903,1671,953,167+50,000
Procurement, Defense-Wide 266,237408,209408,209
National Guard and Reserve Equipment 750,000825,000+75,000
Rapid Acquisition Fund 150,000
Total, Procurement 44,411,84641,030,99542,006,355+975,360
Research, Development, Test and Evaluation
Research, Development, Test & Evaluation, Army 163,299162,958162,958
Research, Development, Test & Evaluation, Navy 610,567366,110366,110
Research, Development, Test & Evaluation, Air
Force 1,487,493278,427399,817+121,390
Research, Development, Test and Evaluation,
Defense-Wide 684,389816,598816,598
Total, Research, Development, Test and Evaluation 2,945,7481,624,0931,745,483+121,390
Revolving and Management Funds
Defense Working Capital Funds 957,6751,837,4501,837,450
National Defense Sealift Fund 5,1105,1105,110
Total, Revolving and Management Funds 962,7851,842,5601,842,560
Other Department of Defense Programs
Defense Health Program 561,7411,363,8641,413,864+50,000
Operation and maintenance [561,741][907,063][957,064]
Procurement [91,900][91,900]
Research Development and Testing [363,900][365,900]
Psychological health and traumatic brain injury 75,00075,000
Drug Interdiction and Counter-Drug Activities,
Defense 65,01765,31765,317
Office of the Inspector General 4,3946,3946,394
Total, Other Department of Defense Programs 631,1521,510,5751,560,575+50,000
General Provisions
Sec 11103 Additional transfer authority [2,500,500][2,500,000]
Sec 11105 Defense Cooperation Account (transfer
authority) 6,5006,5006,500
Rescissions of emergency funds -146,531 +146,531
Total, General Provisions 6,500-140,0316,500+146,531
Total, Chapter 1: FY2008 Appropriations 100,054,43396,622,11699,652,408+3,030,292
Chapter 2
DEFENSE BRIDGE FUND APPROPRIATIONS FOR FISCAL YEAR 2009
Military Personnel
Military Personnel, Army 3,500,000839,000839,000
Military Personnel, Navy 95,00075,00075,000
Military Personnel, Marine Corps 85,00055,00055,000
Military Personnel, Air Force 105,00075,00075,000
National Guard Personnel, Army 20,000150,000150,000
Total, Military Personnel 3,805,0001,194,0001,194,000
Operation and Maintenance
Operation & Maintenance, Army 35,560,05537,300,00037,300,000
Operation & Maintenance, Navy 238,4373,500,0003,500,000
(Transfer out) [-200,000][-112,000][-112,000 ]
Operation & Maintenance, Marine Corps 2,200,0002,900,0002,900,000



House
Le adership Sena t e -
BillPassedSenate vs
RequestMay 15May 22House
Operation & Maintenance, Air Force 3,644,0785,000,0005,000,000
Operation & Maintenance, Defense-Wide 3,193,4942,648,5692,648,569
Operation & Maintenance, Army Reserve 79,29179,291
Operation & Maintenance, Navy Reserve 42,49042,490
Operation & Maintenance, Marine Corps Reserve 34,00047,07647,076
Operation & Maintenance, Air Force Reserve 12,37612,376
Operation & Maintenance, Army National Guard 333,540333,540
Operation & Maintenance, Air National Guard 52,66752,667
Subtotal, Operation and Maintenance 44,870,06451,916,00951,916,009
Afghanistan Security Forces Fund 3,666,2592,000,0002,000,000
Iraq Security Forces Fund 2,000,0001,000,0001,000,000
Total, Operation and Maintenance 50,536,32354,916,00954,916,009
Procurement
Aircraft Procurement, Army 84,00084,000
Procurement of Weapons and Tracked Combat
Vehicles, Army 822,674822,674
Procurement of Ammunition, Army 46,50046,500
Other Procurement, Army 80,5361,009,0501,009,050
Other Procurement, Navy 27,94827,948
Procurement, Marine Corps 565,425565,425
Aircraft Procurement, Air Force 1,209,300201,842201,842
Other Procurement, Air Force 1,467,4751,500,6441,500,644
Procurement, Defense-Wide 72,733177,237177,237
Rapid Acquisition fund 100,000
Total, Procurement 2,930,0444,435,3204,435,320
Research, Development, Test and Evaluation
Research, Development, Test & Evaluation, Navy 113,228113,228113,228
Research, Development, Test & Evaluation, Air
Force 71,74172,04172,041
Research, Development, Test and Evaluation,
Defense-Wide 194,156202,559202,559
Total, Research, Development, Test and Evaluation 379,125387,828387,828
Revolving and Management Funds
Defense Working Capital Funds 2,200,000
Total, Revolving and Management Funds 2,200,000
Other Department of Defense Programs
Defense Health Program 400,0001,100,0001,100,000
Drug Interdiction and Counter-Drug Activities,
Defense 130,000188,000188,000
Joint Improvised Explosive Device Defeat fund 2,970,4442,000,0002,000,000
Total, Other Department of Defenses Programs 3,500,4443,288,0003,288,000
General Provisions
Sec 11203 Transfer authority [4,000,000][4,000,000][4,000,000]
Sec 11208 Mine Resistant Ambush Protected
Vehicle fund 2,610,0001,700,0001,700,000
Total, General Provisions 2,610,0001,700,0001,700,000
Total, Chapter 2 65,960,93665,921,15765,921,157
Chapter 3
General Provision
Sec 11308 rescission of emergency appropriations -146,531-146,531
Total, Title IX 166,015,369162,543,273165,427,034+2,883,761



Sources: Request and Senate amounts from Senate Appropriations Committee, “FY2008 Supplemental Explanatory
Material,” May 20, 2008, on line at [http://appropriations.senate.gov/]; House amounts by CRS based on explanatory
material prepared by the House Appropriations Committee and distributed on May 15, 2008, by the House Rules
Committee on line at [http://www.rules.house.gov/announcement_details.aspx?NewsID=3333].