Order Code RL34451
Second FY2008 Supplemental Appropriations for
Military Operations, International Affairs, and
Other Purposes
Updated June 25, 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

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Second FY2008 Supplemental Appropriations for
Military Operations, International Affairs, and Other
Purposes
Summary
On June 19, 2008, the House approved an amended version of H.R. 2642, a bill
which makes supplemental appropriations for FY2008 and FY2009, extends
unemployment payments, and expands veterans’ educational benefits. The bill now
passes to the Senate, which may clear the bill for the President if it makes no further
amendments. The House-passed bill reflects compromises with the White House on
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 the amount of other domestic spending, and delays
implementation of six, rather than seven, new Medicaid rules. The House also
dropped most Iraq-related policy provisions. In all, the bill provides $183.5 billion
in supplemental funding, 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policies, including a requirement that combat forces be withdrawn from Iraq within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, all of which
required 60 votes for approval, 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 provide funds for 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, will review congressional action on remaining
FY2008 and additional FY2009 supplemental funding and will be updated regularly.

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Contents
Most Recent Developments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Highlights of the House Amendments of June 19, 2008 . . . . . . . . . . . . . . . . . . . . 4
How Long Available FY2008 Funding Will Last . . . . . . . . . . . . . . . . . . . . . . . . . 5
Key Elements of the House- and Senate-Passed Bills . . . . . . . . . . . . . . . . . . . . . . 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 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
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
June 19 House Version of FY2008/2009 Supplemental . . . . . . . . . . . 28
Afghanistan Reconstruction Assistance . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32
Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32
The FY2008 Original and Amended Emergency Supplemental
Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32
The FY2009 Regular and Supplemental Request . . . . . . . . . . . . . . . . 33
Congressional Action . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
FY2008 Amended Supplemental . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
FY2009 Amended Supplemental . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
Pakistan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37
The FY2009 Regular and Supplemental Request . . . . . . . . . . . . . . . . 37
The FY2008 Original and Amended Supplemental Request . . . . . . . . 37
Congressional Action . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38
Sudan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38
FY2008 Additional Emergency Supplemental Request . . . . . . . . . . . 38
Congressional Action . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39
Other Humanitarian Assistance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39
Migration and Refugee Assistance (MRA) . . . . . . . . . . . . . . . . . . . . . 39
Emergency Refugee and Migration Assistance Fund (ERMA) . . . . . . 40
International Disaster Assistance (IDA) . . . . . . . . . . . . . . . . . . . . . . . 40
Food Security and Food Aid . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 40
Other International Affairs Programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41
Congressional Action . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41
Domestic Programs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42
Expansion of Montgomery GI Bill Education Benefits . . . . . . . . . . . . . . . . 43
The Graham alternative . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44
PAYGO, Military Retention, and Transferability Issues . . . . . . . . . . . 45
Hurricane Katrina Repairs and Coastal Louisiana Restoration . . . . . . . . . . 45

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Congressional Action . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46
The Census and Other Domestic Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46
Decennial Census . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46
Other Senate Additions of Funding for Domestic Programs . . . . . . . . . . . . 47
Appendix A. Status of FY2008 Supplemental Funding Through
December 2007 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48
Status of FY2008 Supplemental Funding . . . . . . . . . . . . . . . . . . . . . . . . . . 48
Congressional Action on FY2008 Supplemental Appropriations
Through December 2007 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48
Administration Requests . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 48
Congressional Action . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 49
Remaining FY2008 and Additional FY2009 Defense Request . . . . . . . . . . 51
Appendix B. Summary Funding Tables . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 55
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 Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 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 . . . . . . . . . . . . . . . 39
Table A-1. Remaining FY2008 and Additional FY2009 Supplemental
Funding Requested for the Department of Defense . . . . . . . . . . . . . . . . . . . 52
Table B-1. Spring FY2008 and FY2009 Supplemental Appropriations:
Request, House, and Senate Amounts by Account . . . . . . . . . . . . . . . . . . . 55
Table B-2. Memorandum: Un-passed House Leadership Bill Defense
Funding Compared to Request and Senate-Passed Bill . . . . . . . . . . . . . . . . 64

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Second FY2008 Supplemental
Appropriations for Military Operations,
International Affairs, and Other Purposes
Most Recent Developments
On June 19, 2008, the House approved an amended version of H.R. 2642, a bill
to provide supplemental appropriations for FY2008 and FY2009 and which also
extends unemployment compensation payments, expands veterans’ educational
benefits, and delays new Medicaid regulations. In floor action on the bill, the House
approved two amendments to a version of the bill previously approved by the Senate.
Amendment #1, adopted 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, adopted 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
measure. Because the House agreed to the Senate defense total, the bill will be
approved if the Senate accepts the second House amendment.
If enacted, the House-passed 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 House-passed bill reflects compromises with the White House on key
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

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approve the bulk of unrequested funds for domestic programs included in the Senate-
passed bill; 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; and does not include most Iraq-related policy provisions 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. The bill now passes to the
Senate, which may clear the bill for the President if it makes no further amendments.
Senate action is expected before the July 4 recess.
In earlier action on the bill, 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 the
FY2008 consolidated appropriations act.1 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;
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 benefit 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
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.

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individual or $1,000,000 for a couple. And the amendment included
an extension on 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.

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Highlights of the House Amendments of
June 19, 2008
H.R. 2642, as passed by the House in June 19, 2008, would provided $96.1
billion for military operations in Iraq, Afghanistan, and elsewhere in FY2008 and
$65.9 billion in FY2008; $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 Senate bill was
passed on May 22, 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 has requested, which increase 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 more for individuals and $1,000,000 or more
for couples 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
! 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 in the House-passed
version of the bill, including a provision requiring withdrawal of
combat troops within 18 months, and 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;
2 Christian Bourge, with Humberto Sanchez contributing, “Hoyer Says War Supplemental
Might Reach Floor Thursday,” National Journal Congress Daily, PM, June 18, 2008.

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CRS-5
! 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 new House bill
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 $2 billion as in the Senate bill;
! provides $150 million to bolster Food and Drug Administration
safety programs, as 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.
The following sections of this report have been updated to cover major features of
the House June 19 bill.
How Long Available FY2008 Funding Will Last
Since December 2007, Defense officials had calculated that funding for the
Army appropriated in the regular FY2008 defense appropriations act, P.L. 110-116,
together with FY2008 supplemental appropriations provided in the consolidated
appropriations act, P.L. 110-161, 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. The Defense
Department could also invoke the Feed and Forage Act to obligate funds in advance
of appropriations or use other standing authorities to extend operations further.4
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
(continued...)

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Key Elements of the House- and
Senate-Passed Bills
Expanded GI Bill Veterans’ Education Benefits
The House- and the Senate-passed bills 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 over the next ten years. In May, under pressure from “Blue Dog” Democrats,
the House leadership agreed to add to the bill a tax 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 more conservative “Blue Dog” Democrats in the
House continued to warn House leaders 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
not include the offset in the final, June 19, version of the bill. On June 19, the House
approved the program as part of amendment #2 with only 12 votes against it.
In addition to debate over a tax offset, the Defense Department has opposed key
elements of the benefit expansion, and Senate Republicans, with White House
support, proposed an alternative measure 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
4 (...continued)
on Terror Operations Since 9/11, by Amy Belasco.
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.

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provides maximum benefits after thirty-six months of service. See below for a
further discussion of specific provisions of the Webb and Graham proposals.
In the end, the June 19 House-passed 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.
Beyond that, the House bill provided $5.8 billion in FY2009 emergency funds
for Gulf Coast levee construction; $1.6 billion for FY2008 and FY2009 costs of
delaying new Medicaid reimbursement regulations; $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, insisted
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 Democrats in view of presidential veto warnings. The
House leadership resisted adding funds for domestic programs and, 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.
In the end, however, the House leadership decided to pursue a bill that would
not be vetoed and included relatively little unrequested domestic funding in the final
measure.

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Table 1 provides an overview of House and Senate 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.

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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-
Senate-
House-
Passed
Passed
Passed
Request
May 15
May 22
June 19
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 Matters
—
498,169
4,049,600
1,048,169
Title III: Natural Disaster Relief and Recovery
5,761,000
5,761,000
10,396,751
8,483,619
Title VIII (House) General Provisions (Defense
Reductions)
—
—
—
-3,577,845
Title IX: Defense Matters
166,015,369
—
165,427,034
165,427,034
Total FY2008/FY2009 Discretionary
Appropriations
183,774,224
21,168,265
194,104,649
186,502,221
Discretionary Supplemental Appropriations by Category
Defensea
168,453,900
4,641,684
169,127,993
166,156,996
International Affairs
9,423,558
9,918,108
9,918,608
10,088,608
Domestic
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
—
15,573,000
15,573,000
14,338,000
Title V (House)/Title IV (Senate): Veterans
Educational Assistance
—
716,000
717,000
796,000
Title VII (House)/Title VI (Senate): Medicaid
Provisions
—
1,600,000
1,755,000
1,195,000
Total Unemployment, Veterans Educational
Benefits, Medicaid Rules Delay
—
17,889,000
18,045,000
16,329,000
Mandatory Unemployment and Veterans Benefits and Medicaid Rules Delay, FY2008-FY2018 Totals
Emergency Unemployment Compensation
—
11,137,000
11,137,000
9,962,000
Veterans Educational Assistance
—
51,600,000
51,616,000
62,770,000
Medicaid/Other Health Provisions
—
-7,000
2,849,000
-7,000
Tax Surcharge Offset
—
-52,286,000
—
—
Total FY2008-FY2018 Mandatory
—
10,444,000
65,602,000
72,725,000
Sources: Request and House June 19 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
[http://www.rules.house.gov/announcement_details.aspx?NewsID=3333].
Note: Totals may not add due to rounding.
a. 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.

---

CRS-10
Table 2. Selective Comparison of House- and Senate-Passed
Supplemental Appropriations, H.R. 2642
(amounts in thousands of dollars)
House-
Senate-
Passed
Passed
Senate vs.
Request
May 15
May 22
House
Title I: Other Security, Military Construction, and International Matters
Department of Agriculture
P.L. 480 International Food Assistance
745,000
1,245,000
1,245,000
—
Department of Justice
Federal Bureau of Investigation
140,184
174,769
247,565
+72,796
Drug Enforcement Administration, Salaries
and Expenses
8,468
12,166
22,666
+10,500
Other Dept of Justice Programs
37,114
42,369
42,369
—
Department of Defense
Military Construction
2,010,855
3,275,284
2,228,304
-1,046,980
Family Housing
427,676
1,366,400
1,214,652
-151,748
Department of Veterans Affairs
Polytrauma Clinics and Other Programs
—
120,000
557,100
+437,100
International Affairs Supplemental Appropriations for Fiscal Year 2008
Administration of Foreign Affairs,
Embassy Security and Other
1,868,008
1,691,008
1,512,900
-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
—
200,000
240,000
+40,000
AID Operation Expenses
41,000
146,000
153,500
+7,500
Economic support fund
2,009,000
1,747,000
1,962,500
+215,500
Democracy fund
—
75,000
76,000
+1,000
International narcotics control and law
enforcement
734,000
419,300
520,000
+100,700
Migration and refugee assistance
30,000
325,000
367,108
+42,108
Nonproliferation, anti-terrorism, demining
and related programs
5,000
11,200
10,000
-1,200
Foreign Military Financing Programs
—
72,500
—
-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 Other
1,081,300
836,200
750,700
-85,500
International Organizations, Peacekeeping
Programs
40,000
225,500
225,500
—
Broadcasting Board of Governors
—
8,000
6,000
-2,000
Bilateral Economic and Military Assistance
Global Health and Child Survival
—
75,000
75,000
—
Development Assistance
210,000
200,000
200,000
—
International disaster assistance
270,000
200,000
200,000
—
Operating expenses of the US Agency for
International Development
60,000
93,000
93,000
—

---

CRS-11
House-
Senate-
Passed
Passed
Senate vs.
Request
May 15
May 22
House
Operating expenses of the US Agency for
International Development Office of
Inspector General
—
1,000
1,000
—
Economic support fund
1,297,800
1,147,300
1,132,300
-15,000
International narcotics control and law
enforcement
225,000
204,500
151,000
-53,500
Migration and refugee assistance
191,000
350,000
350,000
—
Nonproliferation, anti-terrorism, demining
and related programs
—
4,000
4,500
+500
Foreign Military Financing program grants
170,000
170,000
145,000
-25,000
Peacekeeping operations
60,000
85,000
85,000
—
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
12,048,005
14,939,096
14,231,264
-707,832
Title II: Domestic Matters
Food and Drug Administration
—
—
275,000
+275,000
Bureau of the Census
—
210,000
210,000
—
Department of Justice
United States Marshals Service, Salaries
and Expenses
—
—
50,000
+50,000
Federal Prison System, Salaries and
Expenses
—
178,000
178,000
—
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 Health
—
—
400,000
+400,000
Small Business Administration
—
—
600
+600
Secure Rural Schools
—
—
400,000
+400,000
State Unemployment Insurance
—
110,000
110,000
—
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
—
498,169
4,049,600
+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

---

CRS-12
House-
Senate-
Passed
Passed
Senate vs.
Request
May 15
May 22
House
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 Engineers
5,761,000
5,761,000
8,759,745
+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 5,761,000
5,761,000
10,396,751
+4,635,751
Title IV (Senate)/Title III (House): Veterans Educational Assistance
Veterans Educational Assistance, FY2008
—
40,000
40,000
—
Veterans Educational Assistance, FY2009
—
676,000
677,000
+1,000
Total, Title IV
—
716,000
717,000
+1,000
TITLE V (Senate)/Title IV (House): Emergency Unemployment Compensation
Emergency unemployment compensation
FY2008
—
6,170,000
6,170,000
—
Emergency unemployment compensation
FY2009
—
9,440,000
9,440,000
—
Total, Title V
—
15,610,000
15,610,000
—
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
—
1,600,000
1,755,000
+155,000
Title IX: Defense Matters
Defense Supplemental Appropriations for Fiscal Year 2008
Military Personnel
16,767,299
—
18,065,599
+18,065,599
Operation and Maintenance
31,271,603
—
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

---

CRS-13
House-
Senate-
Passed
Passed
Senate vs.
Request
May 15
May 22
House
Procurement
44,411,846
—
42,006,355
+42,006,355
Research, Development, Test and
Evaluation
2,945,748
—
1,745,483
+1,745,483
Revolving and Management Funds
962,785
—
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 Provisions
6,500
—
6,500
+6,500
Defense Bridge Fund Appropriations for Fiscal Year 2009
Military Personnel
3,805,000
—
1,194,000
+1,194,000
Operation and Maintenance
44,870,064
—
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
Procurement
2,930,044
—
4,435,320
+4,435,320
Research, Development, Test and
Evaluation
379,125
—
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
130,000
—
188,000
+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
166,015,369
—
165,427,034 +165,427,034
Total in Bill
183,824,374
39,094,265
212,186,649 +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
[http://www.rules.house.gov/announcement_details.aspx?NewsID=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

---

CRS-14
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 of the $163 billion in
funding for operations overseas.
The Senate committee measures 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 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 September 2007, the Administration requested a total of
$189.3 billion in emergency FY2008 supplemental appropriations for the Department

---

CRS-15
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 above, 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 adds $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.

---

CRS-16
The June 19 House-passed supplemental bill includes the 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
illustrates possible rescissions in the House and Senate bills.
Congressional Action
The June 19th House-passed version of H.R. 2642 would provide a total of $5.16
billion for the department of State, Foreign Operations, and Related Programs. It
would fund just under $1.99 billion for the Department of State and add $2 million
for International Broadcasting in the FY2008 supplemental spending. About $1.15
billion would be for Iraq operations within the Diplomatic and Consular Programs
(D&CP) account. Compared to the May 15 House-passed bill, the June 19 version
raises funding for the Inspector General, U.S. Contributions to International
6 Prepared by Susan B. Epstein, Specialist in Foreign Policy.

---

CRS-17
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 amended House bill passed on June 19th
would provide about $4.2 billion for FY2008 funding to various countries and for
international food aid. (See Table 4.)
For the FY2009 supplemental, the House June 19-passed bill would provide a
total of $1.07 billion for State Department accounts, including up to $550.5 million
for operations in Iraq. In addition, $6 million would be provided for international
broadcasting. The amended House bill would also provide about $2.86 billion for
country foreign aid allocations and for international food aid.
The May 15 House-passed version of H.R. 2642 provided for the FY2008
supplemental funds about $2.08 billion for the Department of State, more than half
of which would be for State’s Diplomatic and Consular Programs, and, of that,
mostly for Iraq diplomatic operations. Also in this account is $205.2 million for U.S.
operations and security in Afghanistan. The House-passed legislation provided $76.7
million in the Embassy, Construction, and Maintenance account for secure embassy
facilities in Afghanistan. The House also agreed to $333.6 million in International
Peacekeeping funds for the United Nations Africa Mission in Darfur (UNAMID).
For the FY2009 supplemental funds, the House passed just under $1.1 billion. (See
Table 3.)
For U.S. foreign assistance FY2008 supplemental funds, the House on May 15
approved about $3.8 billion, including $929 million for Afghanistan and $600
million for Iraq. The House also set P.L. 480 emergency food aid funding at $850
million for FY2008. For FY2009, the House bill provides nearly $3.0 billion in
supplemental funding, including $455 million for Afghanistan, $114.5 million for
Iraq, and $595 million for food aid. (See Table 3.)
The Senate bill, passed on May 22, provided just under $2 billion for State
Department operations in FY2008 and $982 million for State operations in FY2009.
Unlike the House, the Senate bill contained $3 million and $6 million for FY2008
and FY2009, respectively, for international broadcasting.
For foreign assistance, the Senate bill provided higher levels of funding than the
Administration request or either of the House bills. While both bills contained some
rescissions, most noteworthy were the Senate rescissions totaling $525 million from
the well-regarded Millennium Challenge Corporation (MCC).7 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. (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
Senate
House
House
Senate
House
Total
Enacted
Second
May 15-
May 22-
June 19-
May 15-
May 22-
June 19-
FY2008
Supp.
FY2008
passed
passed
passed
FY2009
passed
passed
passed
Supp.
H.R. 2764
Supp
FY2008
FY2008
FY2008
Supp
FY2009
FY2009
FY2009
Activity
Request
PL110-161
Request
supp
Supp
Supp
Request
Supp
Supp
Supp
Total 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
Diplomatic & Consular
2,283.0
781.6
1,708.0
$1,606.8
$1,413.7
$1,465.7
1,064.5
$737.9
$652.4
$744.9
Programs
Iraq Operations
(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)
Afghanistan
(205.2)
(195.2)
((200.2)
(101.0)
(91.4)
(87.4)
(89.4)
Worldwide Security Protection
(162.4)
(206.6)
(162.4)
(210.5.)
(212.4)
(48.0)
(45.8)
(78.4)
(78.4)
(78.4)
Education & Cultural Exchanges
—
—
—
—
$10.0
—
—
—
—
—
Embassy Security, Construction &
Maintenance
$160.0
—
$160.0
$76.7
$76.7
$76.7
—
$41.3
$41.3
$41.3
Office of Inspector General
—
—
—
$7.5
$12.5
$9.5
$16.8
$57.0
$57.0
$57.0
Contributions to International
Organizations
$53.0
—
$53.0
$53.0
$66.0
$66.0
$40.0
$75.0
$75.0
$75.0
Contributions to International Peacekeeping
$723.6
$468.0
$333.6
$333.6
$383.6
$373.7
—
$150.5
$150.5
$150.5
Broadcasting
—
$12.0
—
—
$3.0
$2.0
—
—
$6.0
$6.0
Total
$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
Source: H.R. 2642, the Department of State, and CRS calculations. For FY2009 figures, Office of Management and Budget, “FY2009 Emergency Budget Amendments: Operation
Iraqi Freedom, 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
House
Senate May
House
Total
Enacted
Second
May 15-
May 22-
June 19-
May 15-
22-
June 19-
FY2008
Supp
FY2008
passed
passed
passed
FY2009
passed
passed
passed
Supp.
H.R. 2764
Supp
FY2008
FY2008
FY2008
Supp
FY2009
FY2009
FY2009
Account
Request
P.L. 110-161a
Request
Supp
Supp
Supp
Request
Supp
Supp
Supp
Afghanistan
839.0
n.a
839.0
929.0
904.0
899.0
924.9
455.0
455.0
455.0
ESF
834.0

859.0
899.0
859.0
749.9
455.0
455.0
455.0
NADR
5.0
5.0
5.0
5.0
—
—
—
—
INCLE
—
65.0
—
35.0
175.0
—
—
—
USAID Operating Expenses
(16.0)
—
—
—
—
—
—
—
Iraq
956.0
n.a
956.0
600.0
558.0
584.0
212.8
104.5
114.5
107.0
ESF
797.0
440.0
398.0
424.0
212.8
100.0
110.0
102.5
INCLE
159.0
80.0
85.0
85.0
—
—
—
—
NADR
—
—
—
4.5
4.5
4.5
DF
75.0
75.0
75.0
—
—
—
Pakistan
60.0
n.a
60.0
—
60.0
—
170.0
175.0
150.0
150.0
ESF
60.0
—
60.0
—
70
175.0
150.0
150.0
FMF
—
—
—
100.0
—
—
—
Lebanon
50.0
45.0
32.5
FMF
—
—
—
—
—
—
50.0
—
45.0
32.5
Jordan
150.0
450.0
250.0
100.0
200.0
200.0
200.0
FMF
—
—
—
—
—
17.0
100.0
100.0
100.0
100.0
ESF
150.0
150.0
175.0
100.0
100.0
100.0
ESF offset with rescissions
300.0
25.0
FMF offset with rescissions
33.0

---

CRS-20
House
Senate
House
House
Senate May
House
Total
Enacted
Second
May 15-
May 22-
June 19-
May 15-
22-
June 19-
FY2008
Supp
FY2008
passed
passed
passed
FY2009
passed
passed
passed
Supp.
H.R. 2764
Supp
FY2008
FY2008
FY2008
Supp
FY2009
FY2009
FY2009
Account
Request
P.L. 110-161a
Request
Supp
Supp
Supp
Request
Supp
Supp
Supp
West Bank/Gaza
375.0
n.a
220.0
125.0
225.0
196.0
200.0
150.0
200.0
200.0
INCLE
25.0
25.0
25.0
25.0
50.0
50.0
50.0
50.0
ESF
350.0
100.0
200.0
171.0
150.0
150.0
150.0
150.0
Israel (FMF)
—
—
—
—
—
—
—
—
—
170.0
North Korea
106.0
n.a
53.0
53.0
53.0
53.0
15.0
15.0
15.0
15.0
ESF
106.0
53.0
53.0
53.0
53.0
15.0
15.0
15.0
15.0
Mexico
500.0
0.0
500.0
296.5
350.0
352.0
—
103.5
—
48.0
INCLE
—
—
210.0
350.0
215.5
53.5
—
48.0
FMF
500.0
—
66.5
—
116.5
50.0
—
—
ESF
—
—
20.0
—
20.0
—
—
—
Central America
50.0
—
50.0
56.5
90.0
65.0
—
—
—
—
INCLE
50.0
50.0
29.3
50.0
24.8
—
NADR
—
—
6.2
—
6.2
—
FMF
—
—
6.0
—
4.0
—
ESF
—
—
15.0
40.0
25.0
—
Haiti (INCLE)
—
—
—
2.5
5.0
2.5
—
—
—
—
Dominican Republic ((INCLE)
—
—
—
2.5
5.0
2.5
—
—
—
—
Nepal (ESF)
—
7.0
7.0
—
—
—
—
Philippines (ESF)
—
15.0
15.0
—
—
—
—
Sri Lanka (ESF)
—
6.0
6.0
—
—
—
—
Thailand (ESF)
—
2.5
2.5
—
—
—
—

---

CRS-21
House
Senate
House
House
Senate May
House
Total
Enacted
Second
May 15-
May 22-
June 19-
May 15-
22-
June 19-
FY2008
Supp
FY2008
passed
passed
passed
FY2009
passed
passed
passed
Supp.
H.R. 2764
Supp
FY2008
FY2008
FY2008
Supp
FY2009
FY2009
FY2009
Account
Request
P.L. 110-161a
Request
Supp
Supp
Supp
Request
Supp
Supp
Supp
Vietnam (ESF)
—
2.0
—
—
—
—
—
Bangladesh (ESF)
—
—
—
25.0
25.0
25.0
—
50.0
50.0
50.0
Burma (ESF)
—
—
—
—
—
—
—
5.3
5.3
5.3
Africa (ESF)
—
—
—
40.0
—
—
—
—
—
—
Sudan
70.0
n.a
70.0
45.0
45.0
55.0
—
25.0
25.0
35.0
ESF
70.0
70.0
45.0
45.0
45.0
25.0
25.0
25.0
10.0 b
10.0 b
Somalia
40.0
40.0
40.0
—
PKO
—
—
—
—
—
—
40.0
40.0
40.0
—
Kenya (ESF)
—
—
—
—
12.0
12.0
45.0
25.0
25.0
25.0
Democratic Republic of the
—
—
—
—
25.0
12.5
20.0
30.0
30.0
20.0
Congo
ESF
15.0
12.5
—
10.0
10.0
10.0
PKO
10.0
—
20.0
20.0
20.0
10.0
Zimbabwe (ESF)
—
—
—
—
5.0
5.0
—
15.0
15.0
15.0
Chad (ESF& DF)
—
—
—
—
5.0
3.0
—
5.0
5.0
5.0
Central African Republic (ESF)
—
—
—
—
2.0
1.0
—
2.0
2.0
2.0
Uganda (ESF)
—
—
—
—
22.0
17.5
15.0
15.0
15.0
15.0
Poland
20.0
FMF
—
—
—
—
—
—
20.0
—
—
—
Stabilization/Peacekeeping
—
—
—
—
(10.0)
—
(80.0)
(85.0)
(85.0)
—

---

CRS-22
House
Senate
House
House
Senate May
House
Total
Enacted
Second
May 15-
May 22-
June 19-
May 15-
22-
June 19-
FY2008
Supp
FY2008
passed
passed
passed
FY2009
passed
passed
passed
Supp.
H.R. 2764
Supp
FY2008
FY2008
FY2008
Supp
FY2009
FY2009
FY2009
Account
Request
P.L. 110-161a
Request
Supp
Supp
Supp
Request
Supp
Supp
Supp
Horn of Africa/Kenya
(110.0)

(110.0)
—
—
—
—
—
—
—
PL480
(110.0)
0.0
Southern Africa
(135.0)
0.0
(135.0)
—
—
—
—
—
—
—
PL480
(135.0)
Migration/Refugee Assist.
230.0
200.0
30.0
300.0
330.5
315.0
191.0
350.0
350.0
350.0
Emergency Migration (ERMA)
—
—
—
25.0
36.6
31.0
—
—
—
—
Intern’l Disaster Assist.
80.0
80.0
—
200.0
240.0
220.0
45.0
200.0
325.0
200.0
PL480
350.0
0.0
350.0
850.0
850.0
850.0
395.0
395.0
395.0
395.0
Other Food Security (DA &
—
—
—
—
—
20.0 c
375.0
200.0
200.0
200.0
IDA)
Global Health and Child
—
—
—
—
—
—
—
75.0
75.0
75.0
Survival
USAID Operating Expenses
61.8
n.a
41.0
142.0
149.5
150.5
60.0
93.0
93.0
93.0
USAID IG
—
—
—
4.0
4.0
4.0
—
1.0
1.0
1.0
Comprehensive Test Ban Treaty
Int’l Monitoring
—
—
—
—
5.0
2.5
—
—
—
—
Other
—
—
—
—
—
—
—
196.0
125.0
—
Total d
3,677.8
1,123.4
3,169.0
3,846.0
4,489.1
4,158.5
2,878.7
2,925.3
2,955.8
2,863.8
Acronyms: ESF=Economic Support Fund; INCLE=International Narcotics Control and Law Enforcement; FMF=Foreign Military Financing; PKO=peacekeeping Operations; IDA-
International Disaster Assistance; DA=Development Assistance; MRA=Migration and Refugee Assistance; NADR=Nonproliferation, Anti-terrorism, Demining, and Related Programs;
and PL480=Food for Peace; USAID=U.S. Agency for International Development, DF=Democracy Fund, ACP=Andean Counterdrug Program, WFP=World Food Program.

---

CRS-23
Source: H.R. 2642, the Department of State, and CRS calculations. For FY2009 figures, Office of Management and Budget, “FY2009 Emergency Budget Amendments: Operation
Iraqi Freedom, Operation Enduring Freedom, and Selected Other International Activities,” May 2, 2008.
Notes:
a. Some supplemental funds were not designated in the Joint Explanatory Statement accompanying H.R. 2764 with regard to destination, and are marked as “n.a.” As more information
becomes available, this table will be updated.
b. From FY2008 ACP rescission.
c. Rescission from WFP.
d. Country 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.

---

CRS-24
Table 5. House and Senate Rescissions
($ Millions)
House June 19
Account
House
Senate
amendment
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
$58.0
$300.0
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 is 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 Migration
and Refugee Assistance (MRA). However, the bulk of the 2nd 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.

---

CRS-25
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

---

CRS-26
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 below 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.

---

CRS-27
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 below 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.

---

CRS-28
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.
June 19 House Version of FY2008/2009 Supplemental. The version
of the FY2008 and FY2009 supplemental approved on June 19 by the House 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 compromises with the Senate
figure. The new House version 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 with the first version of the House bill is the range
of conditions placed on economic aid. It maintains prohibitions on prison

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CRS-29
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.

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CRS-30
Table 6. Supplemental Appropriations for Iraq Reconstruction
(millions of U.S. dollars)
International Affairs (Budget Function 150 Accounts)
Enacted
House May Senate May
Total
Supp.
Second
15-passed
22-passed
House June
FY2008
Allocation
FY2008
Version
Version
19-passed
FY2009 House May 15- Senate May 22- House June 19-
Supp.
H.R. 2764
Supp
FY2008
FY2008
Version
Supp
passed Version passed Version passed Version
Request (PL110-161) Request
Supp
Supp
FY2008 Supp Request FY2009 Supp
FY2009 Supp
FY2009 Supp
Economic Support Fund (ESF)
797.0
15.0
797.0
440.0
398.0
424.0
212.8
100.0
110.0
102.5
Democracy Fund
—
—
—
75.0
75.0
75.0
—
—
—
—
International Narcotics Control and
Law Enforcement (INCLE)
159.0
—
159.0
85.0
85.0
85.0
—
— g
—
— g
Migration and Refugee Assistance
(MRA)
195.0a
149.5a
30.0a
30.0j
30.0j
30.0j
141.0
141.0h
141h
141.0 h
International Disaster Assistance
(IDA)
80.0b
80.0b
—
—
—
—
45.0
45.0i
45.0i
45.0 i
Nonprolif, Anti-Terror, Demining
(NADR)
—
—
—
—
—
—
—
4.5
4.5
4.5
TOTAL 150 Account
1,231.0
244.5
986.0
630.0
588.0
614.0
398.8
290.5
300.5
293.0
Department of Defense (Budget Function 050 Accounts)
Iraq Security Forces Fund (ISFF)
3,000
1,500.0
1,500.0
(1,500.0)*
1,500.0
1,500.0
2,000.0
(1,000.0)*
1,000.0
1,000
Commander’s Emergency
Response Program (CERP)
609.7c
370.0d
359.7e
(544.9)*e
744.9e
744.9e
850.0f
—
—
—
Iraq Freedom Fund (for Task Force
to Improve Business)
100.0
—
100.0
(50.0)*
50.0
50.0
50.0
—
—
—
TOTAL 050 Account
3,709.7
1,870.0
1,959.7
(2,094.9)*
2,294.0
2,294.0
2,900.0
(1,000.0)*
1,000.0
1,000
GRAND TOTAL
150 & 050
4,940.7
2,114.5
2,945.7
(2,724.9)*
2,882.9
2,908.0
3,298.8
(1,290.5)*
1,300.5
1,293.0
Sources: 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
Amendments: Operation Iraqi Freedom, Operation Enduring Freedom, and Selected Other International Activities,” May 2, 2008; Amendments to H.R. 2642 and Explanatory Statements.
Note: 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.

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CRS-31
* 050 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.
a. H.R. 2764 provided $200 million for MRA account. The total account request was $230 million. Table shows amount requested/allocated for Iraq.
b. H.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.
c. The 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.
d. Congress appropriated up to $500 million for the CERP. According to the SIGIR, Iraq has been allocated $370 million as of April 2008.
e. The 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.
f. The 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. Total 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
for Iraq.
h. Total 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
unspecified level of Iraq aid.
i. Total 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.
j. Total 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
unspecified level of Iraq aid. Total June 19 House amount for FY2008 is $315 million, including an unspecified level of Iraq aid.

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CRS-32
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.

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CRS-33
included several provisions intended to continue U.S. efforts to stabilize Afghanistan
and continue economic reconstruction efforts.12
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
($1.753 million), the FY2008 supplemental request of $839 for reconstruction was
not appropriated.
Key elements of the FY2008 emergency supplemental requests include funding
for the ESF. In addition to the $339 million for ESF in the initial supplemental
request, 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 request includes:
! $5 million in Non-proliferation, Anti-terrorism, Demining and
Related Programs (NADR) to support the Afghan leadership through
the Presidential Protection Service.
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
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.

---

CRS-34
would provide supplemental funding for Afghanistan totaling $924.9 million,
including $749.9 million for ESF and $175 million for INCLE.
Congressional Action
FY2008 Amended Supplemental. The House June 19, 2008 version of the
bill would provide $859 million 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 amended FY2008 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.
FY2009 Amended Supplemental. For FY2009 both House and Senate
provide not more than $455,000,000 for ESF assistance for Afghanistan. This is
$294.9 million lower that what was requested for the FY2009 supplemental. The
House June 19, 2008 version of the bill specifies allocations as follows:
! $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.

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CRS-35
The amended bill specifies that funding “shall be programmed in a manner consistent
with the Afghan National Development Strategy.13 It does not include $175 million
for INCLE, which was in the Administration’s original request.
Both the House and Senate bills provide $76.7 million for the Embassy,
Construction, and Maintenance account in Afghanistan. In addition, both provide up
to $5,000,000 to be transferred to the Special Inspector General for Afghanistan
Reconstruction for reconstruction oversight. The House and Senate bills provide an
additional amount of $41.3 million for Embassy Security, Construction, and
Maintenance that shall become available on October 1, 2008, and remain available
for facilities in Afghanistan. The Senate bill provides $57 million for the same
purpose and time line, provided that $36.5 million gets transferred to the Special
Inspector General for Iraq Reconstruction for oversight and $5 million gets
transferred to Afghanistan Reconstruction also for oversight.
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.

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CRS-36
Table 7. Afghanistan Reconstruction Assistance, FY2008-FY2009
(millions of U.S. dollars)
House
Senate
House
House
Senate
House
Total
Final
Second
May15-
May 22-
June 19-
May15-
May 22-
June 19-
FY2008
Supp H.R.
FY2008
passed
passed
passed
FY2009
passed
passed
passed
Activity
Supp
2764
Supp
FY2008
FY2008
FY2008
Supp
FY2009
FY2009
FY2009
(appropriation account)
Request
PL110-161
Request
Supp
Supp
Supp
Request
Supp
Supp
Supp
Infrastructure aid (ESF)
834.0
—
834.0
859.0
899.0
859.0
749.9
455.0
455.0
455.0
Nonproliferation (NADR)
5.0
—
5.0
5.0
5.0
5.0
—
—
—
—
Int’l Narcotics Control (INCLE)
65.0
—
35.0
175.0
—
—
—
Total
839.0
—
839.0
929.0
904.0
899.0
924.9
455.0
455.0
455.0
Source: FY2008-FY2009 budget materials.
Notes: 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
represent total aid or mission operations for Afghanistan. Excluded from this table is proposed funding requested for FBI operations in Afghanistan.
Acronyms: ESF-Economic Support Fund, NADR-Nonproliferation, Anti-terrorism, Demining, and Related Programs, and INCLE-International Narcotics Control and Law
Enforcement.

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CRS-37
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 FY2009 Regular and Supplemental Request. The Administration
is seeking $826.3 million for Pakistan in its regular FY2009 budget request. On May
2, 2008, the Administration requested FY2009 supplemental funds for Pakistan
totaling $170.0 million, including $50 million for INCLE and $150 million for FMF.
The FY2008 Original and Amended Supplemental Request. The
Administration did not request funding for Pakistan in its original FY2008
emergency supplemental request in February 2007. 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 FY2008
amended supplemental request for $60 million for ESF would address this 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.
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.

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CRS-38
Congressional Action
Both the House May 15-passed and the June 19-passed bill provide no FY2008
supplemental funding for Pakistan while the Senate bill provides the requested
amount of $60 million for ESF for that year. For the FY2009 supplemental, the
House June 19-passed bill provides $150 million, rather than the earlier House-
passed amount of $175 million in ESF money. The Senate bill provides $150 million
for Pakistan in ESF assistance, or $20 million less than the total requested amount.
Sudan16
For the FY2009 regular request, the Administration is asking for a total of
$332.6 million for Sudan. Some FY2009 supplemental funding for Sudan would
include funds for diplomatic security, as well as USAID operation in Sudan.
No funding was requested for Sudan in the original FY2008 emergency
supplemental in February 2007. The Administration sought a total of $868.6 million
in the amended emergency supplemental for Sudan, most of which was for
humanitarian and peacekeeping support in the Darfur region. Under the consolidated
appropriations act, Sudan received $334.8 million in the regular FY2008 budget and
also $468 for the African Union/United Nations Hybrid Operation in Darfur
(UNAMID) peacekeeping mission.
FY2008 Additional Emergency Supplemental Request. 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.
16 Prepared by Rhoda Margesson, Specialist in International Humanitarian Policy.

---

CRS-39
Congressional Action
For UNAMID, the House and the Senate provide $333.6 million within the State
Department’s U.S. Contributions to International Peacekeeping (CIPA) account.
Both the House and Senate bills 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.
Nevertheless, both House and Senate bills provide $25 million for ESF.
Table 8. Sudan Emergency Supplemental, FY2008-FY2009
(millions of U.S. dollars)
Final
Supp.
FY2008 FY2008
FY2009 FY2009
FY2008
H.R.
Pending
Supp
Supp
Supp
Supp
Activity
Supp.
2764
FY2008
House-
Senate- FY2009
House-
Senate-
FY2009
(appropriation
Request PL110-
Supp.
passed
passed
Supp.
passed
passed
Regular
account)
Total
161
Request HR2642 HR2642 Request HR2642 HR2642 Request
UNAMID (CIPAa)
723.6
468.0
333.6
333.6
333.6
—
—
—
—
Economic Support
70.0
—
70.0
45.0
45.0
—
25.0
25.0
254.1
Fund (ESF)
Total
$868.6

$403.6
$378.6
$378.6
—
$25.0
$25.0
$332.6b
Source: FY2008-FY2009 budget materials.
Note: The Total line does not represent total aid or mission operations for Sudan.
a. CIPA-Contributions to International Peacekeeping Activities.
b. Includes accounts for which supplementals were not requested.
Other Humanitarian Assistance17
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 original
request 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.18 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
17 Prepared by Rhoda Margesson, Specialist in International Humanitarian Policy.
18 This was an increase of $160 million for Iraqi refugees; $35 million was requested in the
earlier version of the FY2008 emergency supplemental request.

---

CRS-40
to Iraqi refugees. The Administration requested $191 million in the FY2009
supplemental request.
For the FY2008 supplemental, the amended House bill 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.
Both House and Senate passed $350 million for FY2009 supplemental MRA
funds, 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. The amended FY2008 House bill includes $31 million for
ERMA, but no additional funds in FY2009.
International Disaster Assistance (IDA). The Administration’s regular
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 include
funding for IDA. The Administration requested $45 million in its FY2009
supplemental request.
For FY2008, the amended House version of the bill 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 amended House version of 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 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.

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CRS-41
In April 2008, Senators Durbin and Casey proposed adding $200 million in
response to recent global increases in food prices.19 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.20
For P.L. 480, both the House and Senate provide more than double ($850
million) the amount requested ($350 million) by the Administration for the FY2008
supplemental. For the FY2009 supplemental, the House and Senate bills agree on
providing $395 million for P.L. 480 and another $200 for other food security
assistance.
Other International Affairs Programs
Several other elements of the international affairs request also remain to be
resolved. 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.21 The October 2007 budget amendment also included
a new request for $220 million for economic assistance in the West Bank and Gaza.
Congressional Action
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. The Bush
19 Ben Schneider and Christian Bourge, “Durbin Eyes Additional Food Aid, Seeks Assist
From Rice,” National Journal Congress Daily AM, April 29, 2008.
20 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
[http://www.whitehouse.gov/omb/budget/amendments/amendment_5_2_08.pdf].
21 See CRS Report RS22837, Merida Initiative: Proposed U.S. Anticrime and Counterdrug
Assistance for Mexico and Central America, by Colleen W. Cook, Rebecca G. Rush, Clare
Ribando Seelke.

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CRS-42
Administration requested $500 million for Mexico and $50 million for Central
American countries in an FY2008 supplemental appropriations request. In legislative
action on H.R. 2642, the second FY2008 supplemental appropriations measure, the
House approved $400 million for Mexico and $61.5 million for Central America,
Haiti, and the Dominican Republic on May 15, 2008. The Senate version of H.R.
2642, as amended on May 22, 2008, would provide $350 million for Mexico and
$100 million for Central America, Haiti, and the Dominican Republic. Both versions
have human rights conditions, some of which the Mexican government has objected
to on the grounds that that they would violate Mexico’s national sovereignty.
On June 19, 2008, the House passed an amendment to the second Senate
amendment of H.R. 2642 that would provide $465 million in FY2008 supplemental
funding for the Mérida Initiative. Of that total, $400 million would be provided 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 in those conditions.
Domestic Programs
In addition to funding for defense and international affairs, the Administration
requested a limited amount of fund for domestic programs, including counter-
terrorism-related programs of the Justice Department particularly the FBI and, along
with the FY2009 budget request, a request for 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.
The House and Senate supplemental bills both provide requested funding for
these programs. In addition, the Senate bill adds $4.6 billion for hurricane and other
disaster relief programs.
Both the House and the Senate approved three major measures that the
Administration did not request. The are
! an expansion of veterans’ educational benefits at an estimated total
cost of $52 billion over the next ten years, of which the House and
Senate bills appropriate $40 million in FY2008 and the House $676
million and the Senate $677 million in FY2009;
! extended unemployment benefits, estimated to cost a total of about
$11 billion over ten years, net of reduced payments in future years,
for which the House and Senate supplemental bills appropriate $15.6
billion, including $6.2 billion in FY2008 and $9.4 billion in
FY2009; and

---

CRS-43
! 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 Benefits22
Both the House- and Senate-passed bills include provisions that would enhance
veterans’ educational benefits.23 The benefit enhancements appear to be 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.24
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
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
22 Prepared by Shannon Loane, Knowledge Services Group, Domestic Social Policy
Consulting Section.
23 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.
24 See Josh Rogin, “Spending Add-ons Could Make for Largest War Supplemental Bill
Yet.” CQ Today, April 18, 2008

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CRS-44
economic growth and expansion, and would also have a positive effect on military
recruitment and on the readjustment experience of veterans.25 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.26
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, proposes
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 proposes 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
servicemember.
Additionally, S. 2938 includes 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. Currently, the different service branches are authorized to
operate limited transferability programs, but only the Army offers one at this time.
The Army’s program allows 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
25 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)
26 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)

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CRS-45
State of the Union address and repeated it in his May 8 address commemorating
Military Spouse Day.27
PAYGO, Military Retention, and Transferability Issues. The GI bill
enhancements appear to have become a major issue, potentially holding up action on
the whole supplemental. 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
— estimated at $52 billion over ten years — is not offset. 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. It is not clear, however, whether the Senate will approve offsets and
whether, in the absence of offsets, a conference agreement can be sustained.
In addition, the Defense Department has consistently been 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 36
months of service, DOD officials fear the bill will 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 Michael Mullen, echoed his
concerns.28
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
announced that he was sending legislation to Congress to permit benefit transfers as
well.29
Hurricane Katrina Repairs and Coastal Louisiana Restoration
The Administration included in its FY2009 budget, 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
27 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.
28 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].
29 President George W. Bush, “President Bush Commemorates Military Spouse Day,” The
White House, May 6, 2008.

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CRS-46
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 estimates that the $7 billion in previously appropriated
funds are insufficient to complete required measures because of increased costs,
improved data on costs, and other factors. The Corps anticipates that available funds
will be used by the end of FY2008, but that much remaining work is 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 2011.30
Congressional Action. The House and Senate differ significantly on
emergency funding for hurricane related programs. Both bills provide $5.761 billion
in emergency FY2009 funding for the Corps of Engineers, as the Administration
requested. The Senate-passed bill provides an additional $4.6 billion in net
additional funding for hurricane and other natural disaster-related programs. Senate
additions include $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.
The Census and Other Domestic Issues
Several other, smaller domestic programs may also receive 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 is facing 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 they proposed to pay for through intra-departmental
transfers within the Department of Commerce. Both the House- and Senate-passed
supplemental bills provide $210 million in emergency FY2008 supplemental
appropriations for the Bureau of the Census.31
30 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.
31 Prepared by Royce Crocker, Government and Finance Division.

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CRS-47
Other Senate Additions of Funding for Domestic Programs
By a vote of 70-26, the Senate approved, by a veto-proof majority, an
amendment to the supplemental bill that included additional increases in domestic
programs beyond those requested by the Administration and included in the House
bill. As noted, the largest increase is $4.6 billion in additional disaster relief funding.
Other significant Senate additions of funds include
! 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; and
! $275 million to bolster Food and Drug Administration public health
and safety enforcement.
In all, the House bill provides $24.5 billion for domestic programs, of which $15.6
billion is for extended unemployment compensation benefits, and the Senate bill
provides $33.1 billion, of which $15.6 billion also is for unemployment
compensation. In all, the Senate bill provides $9.1 billion more than the House bill
for domestic programs, of which $4.6 billion is for disaster-related programs.

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CRS-48
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 calculates 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 remain outstanding.
For defense, much of the remaining requested funding is to repair, replace, and
upgrade weapons and other equipment used in the war. For foreign operations,
remaining funding includes 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 include 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.

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CRS-49
! 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.32
! 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.33
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 conference
agreement on the FY2008 defense appropriations bill, H.R. 3222,34
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
32 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/amendments/amendment_7_31_07.pdf].
33 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_Global_War_On_Terror_Amendment.pdf].
34 See CRS Report RL33999, Defense: FY2008 Authorization and Appropriations, by Pat
Towell, Stephen Daggett, and Amy Belasco.

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CRS-50
$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.35 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.
35 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].

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CRS-51
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.

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CRS-52
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.36
Table A-1. Remaining FY2008 and Additional FY2009
Supplemental Funding Requested for the
Department of Defense
(amounts in millions of dollars)
Original
FY2008
FY2008 Remaining
FY2008
Enacted
Remaining
DOD
Adjusted
Amended
through
FY2008
Adjust-
FY2008
FY2009
Request
Dec. 2007
Request
ment
Request
Request
Military Personnel
Military Personnel, Army
12,318
783
11,535
+329
11,864
3,500
Reserve Personnel, Army
299
—
299
+9
309
—
National Guard Personnel,
1,137
—
1,137
+420
1,557
—
Army
Military Personnel, Navy
792
96
696
+6
702
95
Reserve Personnel, Navy
70
—
70
+3
73
—
Military Personnel, Marine
1,790
56
1,734
+3
1,737
85
Corps
Reserve Personnel, Marine
15
—
15
+1
17
—
Corps
Military Personnel, Air Force
1,416
138
1,278
+8
1,286
105
Reserve Personnel, Air Force
3
—
3
+4
7
—
National Guard Personnel,
—
—
—
—
—
20
Army
36 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.

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CRS-53
Original
FY2008
FY2008 Remaining
FY2008
Enacted
Remaining
DOD
Adjusted
Amended
through
FY2008
Adjust-
FY2008
FY2009
Request
Dec. 2007
Request
ment
Request
Request
National Guard Personnel, Air
—
—
—
+6
6
—
Force
Total Military Personnel
17,840
1,072
16,767
+789
17,556
3,805
Operation and Maintenance
O&M, Army
53,872
35,152
18,720
-1,577
17,143
35,560
O&M, Army Reserve
197
78
119
+38
157
—
O&M, Army National Guard
757
327
430
+383
813
—
O&M, Navy
6,163
3,664
2,499
+722
3,220
238
O&M, Marine Corps
4,272
3,966
306
+34
340
2,200
O&M, Navy Reserve
83
42
42
+66
108
—
O&M, Marine Corps Reserve
68
46
22
+1
23
34
O&M, Air Force
10,705
4,778
5,927
+830
6,758
3,644
O&M, Air Force Reserve
24
12
12
+150
162
—
O&M, Air National Guard
103
52
52
+234
285
—
O&M, Defense-Wide
5,337
2,117
3,220
+343
3,563
3,194
Office of the Inspector General
4
—
4
—
4
—
Drug Interdiction and Counter-
258
193
65
—
65
130
Drug Activities, Defense
Afghanistan Security Forces
2,700
1,350
1,350
—
1,350
3,666
Fund
Iraq Security Forces Fund
3,000
1,500
1,500
—
1,500
2,000
Iraq Freedom Fund
3,851
3,747
104
+70
174
—
Defense Health Program
1,137
576
562
+197
759
—
Medical Support Fund
—
—
—
—
—
400
Total Operation and
92,533
57,599
34,934
+1,490
36,424
51,066
Maintenance
Procurement
Aircraft Procurement, Army
2,125
944
1,182
+15
1,196
—
Missile Procurement, Army
642
—
642
-105
537
—
Procurement of W&TCV, Army
7,290
1,429
5,860
-289
5,571
—
Procurement of Ammunition,
514
154
360
—
360
—
Army
Other Procurement, Army
23,131
2,028
21,103
-4,410
16,693
80
Joint Impr Explosive Dev
4,269
4,269
—
-65
-65
2,970
Defeat Fund
Aircraft Procurement, Navy
3,908
49
3,860
+191
4,050
—
Weapons Procurement, Navy
318
—
318
—
318
—
Procurement of Ammo, Navy &
610
305
305
—
305
—
MC
Other Procurement, Navy
1,607
91
1,515
—
1,515
—
Procurement, Marine Corps
3,148
703
2,444
—
2,444
—
Aircraft Procurement, Air Force
3,946
51
3,895
—
3,895
1,209
Missile Procurement, Air Force
2
—
2
—
2
—
Procurement of Ammunition,
104
—
104
—
104
—
Air Force
Other Procurement, Air Force
2,461
31
2,430
—
2,430
1,468
Procurement, Defense-Wide
542
275
267
+8
275
73
Rapid Acquisition Fund
150
—
150
—
150
100

---

CRS-54
Original
FY2008
FY2008 Remaining
FY2008
Enacted
Remaining
DOD
Adjusted
Amended
through
FY2008
Adjust-
FY2008
FY2009
Request
Dec. 2007
Request
ment
Request
Request
Mine Resistant Ambush Prot
16,830
16,830
—
—
—
2,610
Veh Fund
Total Procurement
71,597
27,159
44,438
-4,657
39,781
8,511
Research, Development, Test and Evaluation
RDT&E, Army
163
—
163
+48
211
—
RDT&E, Navy
611
—
611
+21
632
113
RDT&E, AF
1,487
—
1,487
+62
1,549
72
RDT&E, DW
684
—
684
+260
945
194
Total RDT&E
2,946
—
2,946
+391
3,33
379
Military Construction
Military Construction, Army
1,441
—
1,441
+127
1,568
—
FY2005 BRAC - Army
—
—
—
+560
560
—
Military Construction, Navy
238
—
238
+95
332
—
FY2005 BRAC - Navy
—
—
—
+97
97
—
Military Construction, Air Force
305
—
305
+98
403
—
FY2005 BRAC - AF
—
—
—
+129
129
—
Military Construction, Defense-
28
—
28
—
28
—
Wide
FY2005 BRAC - Defense Wide
416
—
416
—
416
—
Total Military
2,427
—
2,427
+1,107
3,534
—
Construction
Family Housing
Fam Housing Construction,
12
—
12
—
12
—
Navy & Marine Corps
Total Family Housing
12
—
12
—
12
—
Revolving and Management Funds
Working Capital Fund, Army
1,364
720
644
+6
651
—
Working Capital Fund, Navy
43
—
43
+229
272
—
Working Capital Fund, Air
237
—
237
+358
595
—
Force
Working Capital Fund, Defense-
313
280
33
+287
320
2,200
Wide
National Defense Sealift Fund
5
—
5
—
5
—
Total Revolving &
1,963
1,000
963
+880
1,843
2,200
Mngmnt Funds
Other Non-DOD Intelligence
FBI Counter-terrorism
—
—
—
—
—
39
Total Other Intelligence
—
—
—
—
—
39
Total Budget Authority
189,316
86,830
102,486
—
102,486
66,000
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.

---

CRS-55
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-
Senate-
House-
Passed
Passed
Passed
May 15
May 22
June 19
Request
H.R. 2642
H.R. 2642
H.R. 2642
TITLE I: OTHER SECURITY, MILITARY CONSTRUCTION, AND INTERNATIONAL MATTERS
CHAPTER 1
DEPARTMENT OF AGRICULTURE, Foreign Agricultural Service
Public Law 480 Title II Grants (emergency)
350,000
850,000
850,000
850,000
Advance appropriation, FY2009 (emergency)
395,000
395,000
395,000
395,000
CHAPTER 2
DEPARTMENT OF JUSTICE
General Administration, Inspector General
—
4,000
4,000
4,000
Legal Activities
General Legal Activities, Salaries and Expenses
4,093
1,648
1,648
1,648
United States Attorneys, Salaries and Expenses
5,000
5,000
5,000
5,000
United States Marshals Service, Salaries and Expenses
14,921
18,621
18,621
28,621
Federal Bureau of Investigation
Salaries and expenses (emergency)
101,122
92,169
164,965
106,122
Advance appropriation, FY2009 (emergency)
39,062
82,600
82,600
82,600
Drug Enforcement Administration, Salaries and
Expenses
8,468
12,166
22,666
29,861
Bureau of Alcohol, Tobacco, Firearms and Explosives,
Salaries and Expenses
4,000
4,000
4,000
4,000
Federal Prison System, Salaries and Expenses
9,100
9,100
9,100
9,100
CHAPTER 3
DEPARTMENT OF DEFENSE
Military Construction
Military construction, Army (emergency) 1,440,750
1,432,700
1,170,200
1,108,200
Military construction, Navy and Marine Corps
(emergency) 237,505
423,357
300,084
355,907
Military construction, Air Force (emergency)
305,000
409,627
361,900
399,627
Military construction, Defense-Wide (emergency)
27,600
1,009,600
27,600
890,921
Family Housing
Family housing construction, Navy and Marine Corps
(emergency) 11,766
11,766
11,766
11,766
Base realignment and closure account, 2005
(emergency)
415,910
1,354,634
1,202,886
1,278,886
DEPARTMENT OF VETERANS AFFAIRS
Departmental Administration
—
120,000
557,100
120,000
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
—
Sec 1303 Child development centers, Air Force
(emergency)
—
—
8,100
—
Sec 1304 Barracks improvements (emergency)
—
—
200,000
200,000

---

CRS-56
House-
Senate-
House-
Passed
Passed
Passed
May 15
May 22
June 19
Request
H.R. 2642
H.R. 2642
H.R. 2642
CHAPTER 4
SUBCHAPTER A — SUPPLEMENTAL APPROPRIATIONS FOR FISCAL YEAR 2008
DEPARTMENT OF STATE
Administration of Foreign Affairs
Diplomatic and consular programs (emergency) 1,708,008
1,606,808
1,413,700
1,465,700
Office of Inspector General (emergency)
—
7,500
12,500
9,500
Educational and cultural exchange program (emergency)
—
—
10,000
—
Embassy security, construction, and maintenance
(emergency) 160,000
76,700
76,700
76,700
International Organizations
Contributions to international organizations (emergency)
53,000
53,000
66,000
66,000
Contributions for international peacekeeping activities,
current year (emergency)
333,600
333,600
383,600
373,708
RELATED AGENCY
Broadcasting Board of Governors
International Broadcasting Operations (emergency)
—
—
3,000
2,000
BILATERAL ECONOMIC ASSISTANCE
Funds Appropriated to the President
International disaster assistance (emergency)
—
200,000
240,000
220,000
Operating expenses of the US Agency for International
Development (emergency)
41,000
142,000
149,500
150,500
Operating expenses of the US Agency for International
Development Office of Inspector General (emergency)
—
4,000
4,000
4,000
Other Bilateral Economic Assistance
Economic support fund (emergency) 2,009,000
1,747,000
1,962,500
1,882,500
Department of State
Democracy fund (emergency)
—
75,000
76,000
76,000
International narcotics control and law enforcement
(emergency) 734,000
419,300
520,000
390,300
Migration and refugee assistance (emergency)
30,000
300,000
330,500
315,000
Emergency migration and refugee assistance
(emergency) 5,000
25,000
36,608
31,000
Nonproliferation, anti-terrorism, demining and related
programs (emergency)
—
11,200
10,000
13,700
Military Assistance
Funds Appropriated to the President
Foreign Military Financing Programs
—
72,500
—
137,500
Peacekeeping operations (emergency)
—
—
10,000
—
General Provisions, Section 1407b
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
—
—

---

CRS-57
House-
Senate-
House-
Passed
Passed
Passed
May 15
May 22
June 19
Request
H.R. 2642
H.R. 2642
H.R. 2642
SUBCHAPTER B — BRIDGE FUND APPROPRIATIONS FOR FISCAL YEAR 2009
DEPARTMENT OF STATE
Administration of Foreign Affairs
Diplomatic and consular programs (emergency)
1,064,500
737,900
652,400
704,900
Office of Inspector General
16,800
57,000
57,000
57,000
Embassy Security, construction and Maintenance
—
41,300
41,300
41,300
International Organizations
Contributions to international organizations
40,000
75,000
75,000
75,000
Contributions for international peacekeeping activities,
current year
—
150,500
150,500
150,500
RELATED AGENCY
Broadcasting Board of Governors
International Broadcasting Operations
—
8,000
6,000
6,000
BILATERAL ECONOMIC ASSISTANCE
Funds Appropriated to the President
Global Health and Child Survival
—
75,000
75,000
75,000
Development Assistance
210,000
200,000
200,000
200,000
International disaster assistance
270,000
200,000
200,000
200,000
Operating expenses of the US Agency for International
Development 60,000
93,000
93,000
93,000
Operating expenses of the US Agency for International
Development Office of Inspector General
—
1,000
1,000
1,000
Other Bilateral Economic Assistance
Economic support fund
1,297,700
1,147,300
1,132,300
1,124,800
Department of State
International narcotics control and law enforcement
225,000
204,500
151,000
199,000
Migration and refugee assistance
191,000
350,000
350,000
350,000
Nonproliferation, anti-terrorism, demining and related
programs
—
4,000
4,500
4,500
MILITARY ASSISTANCE
Funds Appropriated to the President
Foreign Military Financing program grants
170,000
170,000
145,000
302,500
Peacekeeping operations
60,000
85,000
85,000
95,000
SUBCHAPTER C
GENERAL PROVISIONSc
Sec 1410(a) Contribution to World Food Program
—
—
20,000
20,000
(Rescission)
—
—
-20,000
-20,000
Sec 1410(b) Sudan
—
—
10,000
10,000
(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
—
—
300,000
58,000
(Rescission)
—
—
-300,000
-58,000
Section 1408 Buying Power Maintenance (transfer)
—
—
—
[74,000]
GENERAL PROVISIONS, TITLE I
Rescission, DHS Customs and Border Security
-50,000
—
—
—

---

CRS-58
House-
Senate-
House-
Passed
Passed
Passed
May 15
May 22
June 19
Request
H.R. 2642
H.R. 2642
H.R. 2642
Total, Title I
11,997,855
14,909,096
14,231,264
15,121,244
Defense
2,438,531
4,641,684
3,442,956
4,245,307
International Affairs
9,423,558
9,918,608
9,918,608
10,088,608
Domestic
135,766
349,304
869,700
787,329
TITLE II: DOMESTIC MATTERS
CHAPTER 1
DEPARTMENT OF HEALTH AND HUMAN SERVICES
Food and Drug Administration
—
—
275,000
150,000
Chapter 2 (Senate)/Chapter 1 (House)
DEPARTMENT OF COMMERCE
Bureau of the Census
—
210,000
210,000
210,000
DEPARTMENT OF JUSTICE
United States Marshals Service, Salaries and Expenses
—
—
50,000
—
Federal Prison System, Salaries and Expenses
—
178,000
178,000
178,000
State and Local Law Enforcement Assistance
—
590,000
—
SCIENCE
NASA, Return to Flight
—
—
200,000
62,500
National Science Foundation
—
—
200,000
62,500
Chapter 3
DEPARTMENT OF ENERGY
Non-Defense Energy Programs, Cleanup and Science
—
—
157,000
62,500
Defense Environmental Cleanup
—
—
243,000
62,500
Chapter 4
General Provision, Small Business Administration
—
—
600
—
Chapter 5
DEPARTMENT OF THE INTERIOR, Secure Rural
Schools
—
—
400,000
—
Chapter 6 (Senate)/Chapter 3 (House)
DEPARTMENT OF LABOR, State Unemployment
Insurance
—
110,000
110,000
110,000
DEPARTMENT OF HEALTH AND HUMAN SERVICES
Centers for Disease Control, Research and Training
—
—
26,000
—
National Institutes of Health
—
—
400,000
150,000
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
—
Total, Title II
—
498,169
4,049,600
1,048,169
Defense
—
—
243,000
62,500
International Affairs
—
—
—
—
Domestic
—
498,169
3,806,600
985,669
TITLE III: NATURAL DISASTER RELIEF AND RECOVERY
Chapter 1
DEPARTMENT OF AGRICULTURE
Emergency Conservation Program
—
—
49,413
89,413

---

CRS-59
House-
Senate-
House-
Passed
Passed
Passed
May 15
May 22
June 19
Request
H.R. 2642
H.R. 2642
H.R. 2642
Emergency Watershed Protection Program
—
—
130,464
390,464
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
—
—
75,000
100,000
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
—
—
66,600
61,700
Advance appropriation, FY2009
2,835,000
2,835,000
4,966,745
2,835,000
Mississippi river and tributaries
—
—
17,700
17,590
Operations and Maintenance
—
—
338,800
298,344
Flood Control and Coastal Emergencies
—
—
94,400
226,855
Advance appropriation, FY2009
2,926,000
2,926,000
3,274,000
2,926,000
General expenses
—
—
1,500
1,500
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 Grants
—
—
5,000
—
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
—
(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
—
—
73,000
73,000
Housing transition assistance
—
—
3,000
—
Project-based rental assistance
—
—
20,000
—
Community Development Block Fund
—
—
50,000
300,000
Louisiana Road Home (rescission of emergency funds)
—
—
-200,000
—

---

CRS-60
House-
Senate-
House-
Passed
Passed
Passed
May 15
May 22
June 19
Request
H.R. 2642
H.R. 2642
H.R. 2642
Total, Title III
5,761,000
5,761,000
10,396,751
8,483,619
Defense
—
—
15,003
—
International Affairs
—
—
—
—
Domestic
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
—
6,170,000
6,170,000
4,790,000
Emergency unemployment compensation, FY2009
—
9,440,000
9,440,000
7,765,000
Total, Title IV
—
15,610,000
15,610,000
12,555,000
Defense
—
—
—
—
International Affairs
—
—
—
—
Domestic
—
15,610,000
15,610,000
12,555,000
TITLE V (House)/Title IV (Senate): VETERANS EDUCATIONAL ASSISTANCE
Veterans educational assistance, FY2008
—
40,000
40,000
50,000
Veterans educational assistance, FY2009
—
676,000
677,000
746,000
Total, Title V
—
716,000
717,000
796,000
Defense
—
—
—
—
International Affairs
—
—
—
—
Domestic
—
716,000
717,000
796,000
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 VII
—
1,600,000
1,755,000
1,110,000
Defense
—
—
—
—
International Affairs
—
—
—
—
Domestic
—
1,600,000
1,755,000
1,110,000
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

—
12,216,715
12,216,715
Military Personnel, Navy 696,053

—
894,185
894,185
Military Personnel, Marine Corps 1,733,971

—
1,826,688
1,826,688
Military Personnel, Air Force 1,277,853

—
1,355,544
1,355,544
Reserve Personnel, Army
299,200
—
304,200
304,200
Reserve Personnel, Navy
70,000
—
72,800
72,800
Reserve Personnel, Marine Corps
15,420
—
16,720
16,720

---

CRS-61
House-
Senate-
House-
Passed
Passed
Passed
May 15
May 22
June 19
Request
H.R. 2642
H.R. 2642
H.R. 2642
Reserve Personnel, Air Force
3,000
—
5,000
5,000
National Guard Personnel, Army
1,136,747
—
1,369,747
1,369,747
National Guard Personnel, Air Force
—
—
4,000
4,000
Total, Military Personnel
16,767,299
—
18,065,599
18,065,599
Operation and Maintenance
Operation & Maintenance, Army
18,712,468
—
17,223,512
17,223,512
Operation & Maintenance, Navy
2,498,765
—
2,977,864
2,977,864
(Transfer out)
[-115,400]
—
[-112,607]
[-112,607]
Operation & Maintenance, Marine Corps
306,050
—
159,900
159,900
Operation & Maintenance, Air Force
5,924,865
—
5,972,520
5,972,520
Operation & Maintenance, Defense-Wide
3,152,933
—
3,657,562
3,657,562
Operation & Maintenance, Army Reserve
118,958
—
164,839
164,839
Operation & Maintenance, Navy Reserve
41,750
—
109,876
109,876
Operation & Maintenance, Marine Corps Reserve
22,040
—
70,256
70,256
Operation & Maintenance, Air Force Reserve
12,133
—
165,994
165,994
Operation & Maintenance, Army National Guard
430,008
—
685,644
685,644
Operation & Maintenance, Air National Guard
51,633
—
287,369
287,369
Subtotal, Operation and Maintenance
31,271,603
—
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
Subtotal, Other
3,057,500
—
2,950,000
2,950,000
Total, Operation and Maintenance
34,329,103
—
34,425,336
34,425,336
Procurement
Aircraft Procurement, Army
1,181,864
—
954,111
954,111
Missile Procurement, Army
641,764
—
561,656
561,656
Procurement of Weapons and Tracked Combat Vehicles,
Army 5,860,252

—
5,463,471
5,463,471
Procurement of Ammunition, Army
359,600
—
344,900
344,900
Other Procurement, Army
21,103,261
—
16,337,340
16,337,340
Aircraft Procurement, Navy
3,859,958
—
3,563,254
3,563,254
Weapons Procurement, Navy
318,281
—
317,456
317,456
Procurement of Ammunition, Navy and Marine Corps
304,945
—
304,945
304,945
Other Procurement, Navy
1,515,116
—
1,399,135
1,399,135
Procurement, Marine Corps
2,444,490
—
2,197,390
2,197,390
Aircraft Procurement, Air Force
3,894,839
—
7,103,923
7,103,923
Missile Procurement, Air Force
1,800
—
66,943
66,943
Procurement of Ammunition, Air Force
104,405
—
205,455
205,455
Other Procurement, Air Force
2,405,034
—
1,953,167
1,953,167
Procurement, Defense-Wide
266,237
—
408,209
408,209
National Guard and Reserve Equipment
—
—
825,000
825,000
Rapid Acquisition Fund
150,000
—
Total, Procurement
44,411,846
—
42,006,355
42,006,355
Research, Development, Test and Evaluation
Research, Development, Test & Evaluation, Army
163,299
—
162,958
162,958
Research, Development, Test & Evaluation, Navy
610,567
—
366,110
366,110
Research, Development, Test & Evaluation, Air Force
1,487,493
—
399,817
399,817
Research, Development, Test and Evaluation, Defense-
Wide 684,389

—
816,598
816,598
Total, Research, Development, Test and Evaluation
2,945,748
—
1,745,483
1,745,483

---

CRS-62
House-
Senate-
House-
Passed
Passed
Passed
May 15
May 22
June 19
Request
H.R. 2642
H.R. 2642
H.R. 2642
Revolving and Management Funds
Defense Working Capital Funds
957,675
1,837,450
1,837,450
National Defense Sealift Fund
5,110
5,110
5,110
Total, Revolving and Management Funds
962,785
1,842,560
1,842,560
Other Department of Defense Programs
Defense Health Program
561,741
—
1,413,864
1,413,864
Psychological health and traumatic brain injury
—
—
75,000
75,000
Drug Interdiction and Counter-Drug Activities, Defense
65,017
—
65,317
65,317
Office of the Inspector General
4,394
—
6,394
6,394
Total, Other Department of Defense Programs
631,152
—
1,560,575
1,560,575
General Provisions
Sec 11103 Additional transfer authority
—
—
[2,500,000]
[2,500,000]
Sec 11105 Defense Cooperation Account (transfer
authority) 6,500

—
6,500
6,500
Total, General Provisions
6,500
—
6,500
6,500
Total, Chapter 1: FY2008 SUPPLEMENTAL
APPROPRIATIONS
100,054,433
—
99,652,408
99,652,408
Chapter 2
DEFENSE BRIDGE FUND APPROPRIATIONS FOR FISCAL YEAR 2009
DEPARTMENT OF DEFENSE — MILITARY
Military Personnel
Military Personnel, Army 3,500,000

—
839,000
839,000
Military Personnel, Navy
95,000
—
75,000
75,000
Military Personnel, Marine Corps
85,000
—
55,000
55,000
Military Personnel, Air Force 105,000

—
75,000
75,000
National Guard Personnel, Army
20,000
—
150,000
150,000
Total, Military Personnel
3,805,000
—
1,194,000
1,194,000
Operation and Maintenance
Operation & Maintenance, Army
35,560,055
—
37,300,000
37,300,000
Operation & Maintenance, Navy
238,437
—
3,500,000
3,500,000
(Transfer out)
[-200,000]
—
[-112,000 ]
[-112,000 ]
Operation & Maintenance, Marine Corps
2,200,000
—
2,900,000
2,900,000
Operation & Maintenance, Air Force
3,644,078
—
5,000,000
5,000,000
Operation & Maintenance, Defense-Wide
3,193,494
—
2,648,569
2,648,569
Operation & Maintenance, Army Reserve
—
—
79,291
79,291
Operation & Maintenance, Navy Reserve
—
—
42,490
42,490
Operation & Maintenance, Marine Corps Reserve
34,000
—
47,076
47,076
Operation & Maintenance, Air Force Reserve
—
—
12,376
12,376
Operation & Maintenance, Army National Guard
—
—
333,540
333,540
Operation & Maintenance, Air National Guard
—
—
52,667
52,667
Subtotal, Operation and Maintenance
44,870,064
—
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
Total, Operation and Maintenance
50,536,323
—
54,916,009
54,916,009
Procurement
Aircraft Procurement, Army
—
—
84,000
84,000
Procurement of Weapons and Tracked Combat Vehicles,
Army
—
—
822,674
822,674
Procurement of Ammunition, Army
—
—
46,500
46,500
Other Procurement, Army
80,536
—
1,009,050
1,009,050
Other Procurement, Navy
—
—
27,948
27,948

---

CRS-63
House-
Senate-
House-
Passed
Passed
Passed
May 15
May 22
June 19
Request
H.R. 2642
H.R. 2642
H.R. 2642
Procurement, Marine Corps
—
—
565,425
565,425
Aircraft Procurement, Air Force
1,209,300
—
201,842
201,842
Other Procurement, Air Force
1,467,475
—
1,500,644
1,500,644
Procurement, Defense-Wide
72,733
—
177,237
177,237
Rapid Acquisition fund
100,000
—
—
—
Total, Procurement
2,930,044
—
4,435,320
4,435,320
Research, Development, Test and Evaluation
Research, Development, Test & Evaluation, Navy
113,228
—
113,228
113,228
Research, Development, Test & Evaluation, Air Force
71,741
—
72,041
72,041
Research, Development, Test and Evaluation, Defense-
Wide 194,156

—
202,559
202,559
Total, Research, Development, Test and Evaluation
379,125
—
387,828
387,828
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
—
1,100,000
1,100,000
Drug Interdiction and Counter-Drug Activities, Defense
130,000
—
188,000
188,000
Joint Improvised Explosive Device Defeat fund
2,970,444
—
2,000,000
2,000,000
Total, Other Department of Defenses Programs
3,500,444
—
3,288,000
3,288,000
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

—
1,700,000
1,700,000
Total, General Provisions
2,610,000
—
1,700,000
1,700,000
Total, Chapter 2: FY2009 BRIDGE FUND
APPROPRIATIONS
65,960,936
—
65,921,157
65,921,157
Chapter 3
General Provision
Sec 11308 rescission of emergency appropriations
—
—
-146,531
-146,531
Total, Title IX
166,015,369
— 165,427,034 165,427,034
Defense
166,015,369
— 165,427,034 165,427,034
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.

---

CRS-64
Table B-2. Memorandum: Un-passed House Leadership Bill Defense
Funding Compared to Request and Senate-Passed Bill
(amounts in thousands of dollars)
House
Leadership
Senate-
Bill
Passed
Senate vs
Request
May 15
May 22
House
TITLE IX: DEFENSE MATTERS
CHAPTER 1
DEFENSE SUPPLEMENTAL APPROPRIATIONS FOR FISCAL YEAR 2008
Military Personnel
Military Personnel, Army
11,535,055
11,807,655
12,216,715
+409,060
Military Personnel, Navy 696,053
866,753
894,185
+27,432
Military Personnel, Marine Corps 1,733,971
1,820,571
1,826,688
+6,117
Military Personnel, Air Force 1,277,853
1,286,153
1,355,544
+69,391
Reserve Personnel, Army
299,200
304,200
304,200
—
Reserve Personnel, Navy
70,000
72,800
72,800
—
Reserve Personnel, Marine Corps
15,420
16,720
16,720
—
Reserve Personnel, Air Force
3,000
5,000
5,000
—
National Guard Personnel, Army
1,136,747
1,369,747
1,369,747
—
National Guard Personnel, Air Force
4,000
4,000
—
Total, Military Personnel
16,767,299
17,553,599
18,065,599
+512,000
Operation and Maintenance
Operation & Maintenance, Army 18,712,468
16,343,512
17,223,512
+880,000
Operation & Maintenance, Navy 2,498,765
2,952,864
2,977,864
+25,000
(Transfer out)
[-115,400]
[-112,607]
[-112,607]
—
Operation & Maintenance, Marine Corps
306,050
159,900
159,900
—
Operation & Maintenance, Air Force
5,924,865
5,922,520
5,972,520
+50,000
Operation & Maintenance, Defense-Wide 3,152,933
3,387,562
3,657,562
+270,000
Operation & Maintenance, Army Reserve
118,958
164,839
164,839
—
Operation & Maintenance, Navy Reserve
41,750
109,876
109,876
—
Operation & Maintenance, Marine Corps Reserve
22,040
70,256
70,256
—
Operation & Maintenance, Air Force Reserve
12,133
165,994
165,994
—
Operation & Maintenance, Army National Guard
430,008
685,633
685,644
+11
Operation & Maintenance, Air National Guard
51,633
287,369
287,369
—
Subtotal, Operation and Maintenance
31,271,603
30,250,325
31,475,336
+1,225,011
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
—
Subtotal, Other
3,057,500
2,950,000
2,950,000
—
Total, Operation and Maintenance
34,329,103
33,200,325
34,425,336
+1,225,011
Procurement
Aircraft Procurement, Army
1,181,864
954,111
954,111
—
Missile Procurement, Army
641,764
561,656
561,656
—
Procurement of Weapons and Tracked Combat
Vehicles, Army
5,860,252
5,393,471
5,463,471
+70,000
Procurement of Ammunition, Army
359,600
344,900
344,900
—
Other Procurement, Army
21,103,261
15,967,340
16,337,340
+370,000
Aircraft Procurement, Navy 3,859,958
3,411,254
3,563,254
+152,000
Weapons Procurement, Navy
318,281
317,456
317,456
—
Procurement of Ammunition, Navy and Marine
Corps 304,945
304,945
304,945

—
Other Procurement, Navy
1,515,116
1,260,135
1,399,135
+139,000
Procurement, Marine Corps 2,444,490
2,153,390
2,197,390
+44,000

---

CRS-65
House
Leadership
Senate-
Bill
Passed
Senate vs
Request
May 15
May 22
House
Aircraft Procurement, Air Force 3,894,839
7,028,563
7,103,923
+75,360
Missile Procurement, Air Force
1,800
66,943
66,943
—
Procurement of Ammunition, Air Force
104,405
205,455
205,455
—
Other Procurement, Air Force
2,405,034
1,903,167
1,953,167
+50,000
Procurement, Defense-Wide
266,237
408,209
408,209
—
National Guard and Reserve Equipment
750,000
825,000
+75,000
Rapid Acquisition Fund
150,000
—
Total, Procurement
44,411,846
41,030,995
42,006,355
+975,360
Research, Development, Test and Evaluation
Research, Development, Test & Evaluation, Army
163,299
162,958
162,958
—
Research, Development, Test & Evaluation, Navy
610,567
366,110
366,110
—
Research, Development, Test & Evaluation, Air
Force 1,487,493
278,427
399,817
+121,390
Research, Development, Test and Evaluation,
Defense-Wide 684,389
816,598
816,598

—
Total, Research, Development, Test and Evaluation
2,945,748
1,624,093
1,745,483
+121,390
Revolving and Management Funds
Defense Working Capital Funds
957,675
1,837,450
1,837,450
—
National Defense Sealift Fund
5,110
5,110
5,110
—
Total, Revolving and Management Funds
962,785
1,842,560
1,842,560
—
Other Department of Defense Programs
—
Defense Health Program
561,741
1,363,864
1,413,864
+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
—
75,000
75,000
—
Drug Interdiction and Counter-Drug Activities,
Defense 65,017
65,317
65,317

—
Office of the Inspector General
4,394
6,394
6,394
—
Total, Other Department of Defense Programs
631,152
1,510,575
1,560,575
+50,000
General Provisions
—
Sec 11103 Additional transfer authority
—
[2,500,500]
[2,500,000]
—
Sec 11105 Defense Cooperation Account (transfer
authority) 6,500
6,500
6,500

—
Rescissions of emergency funds
—
-146,531
—
+146,531
Total, General Provisions
6,500
-140,031
6,500
+146,531
Total, Chapter 1: FY2008 Appropriations
100,054,433
96,622,116
99,652,408
+3,030,292
Chapter 2
DEFENSE BRIDGE FUND APPROPRIATIONS FOR FISCAL YEAR 2009
DEPARTMENT OF DEFENSE — MILITARY
Military Personnel
Military Personnel, Army 3,500,000
839,000
839,000

—
Military Personnel, Navy
95,000
75,000
75,000
—
Military Personnel, Marine Corps
85,000
55,000
55,000
—
Military Personnel, Air Force 105,000
75,000
75,000

—
National Guard Personnel, Army
20,000
150,000
150,000
—
Total, Military Personnel
3,805,000
1,194,000
1,194,000
—
Operation and Maintenance
Operation & Maintenance, Army
35,560,055
37,300,000
37,300,000
—
Operation & Maintenance, Navy
238,437
3,500,000
3,500,000
—
(Transfer out)
[-200,000]
[-112,000]
[-112,000 ]
—

---

CRS-66
House
Leadership
Senate-
Bill
Passed
Senate vs
Request
May 15
May 22
House
Operation & Maintenance, Marine Corps
2,200,000
2,900,000
2,900,000
—
Operation & Maintenance, Air Force
3,644,078
5,000,000
5,000,000
—
Operation & Maintenance, Defense-Wide
3,193,494
2,648,569
2,648,569
—
Operation & Maintenance, Army Reserve
—
79,291
79,291
—
Operation & Maintenance, Navy Reserve
—
42,490
42,490
—
Operation & Maintenance, Marine Corps Reserve
34,000
47,076
47,076
—
Operation & Maintenance, Air Force Reserve
—
12,376
12,376
—
Operation & Maintenance, Army National Guard
—
333,540
333,540
—
Operation & Maintenance, Air National Guard
—
52,667
52,667
—
Subtotal, Operation and Maintenance
44,870,064
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
—
Total, Operation and Maintenance
50,536,323
54,916,009
54,916,009
—
Procurement
Aircraft Procurement, Army
—
84,000
84,000
—
Procurement of Weapons and Tracked Combat
Vehicles, Army
—
822,674
822,674
—
Procurement of Ammunition, Army
—
46,500
46,500
—
Other Procurement, Army
80,536
1,009,050
1,009,050
—
Other Procurement, Navy
—
27,948
27,948
—
Procurement, Marine Corps
—
565,425
565,425
—
Aircraft Procurement, Air Force
1,209,300
201,842
201,842
—
Other Procurement, Air Force
1,467,475
1,500,644
1,500,644
—
Procurement, Defense-Wide
72,733
177,237
177,237
—
Rapid Acquisition fund
100,000
—
—
—
Total, Procurement
2,930,044
4,435,320
4,435,320
—
Research, Development, Test and Evaluation
Research, Development, Test & Evaluation, Navy
113,228
113,228
113,228
—
Research, Development, Test & Evaluation, Air
Force 71,741
72,041
72,041

—
Research, Development, Test and Evaluation,
Defense-Wide 194,156
202,559
202,559

—
Total, Research, Development, Test and Evaluation
379,125
387,828
387,828
—
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
1,100,000
1,100,000
—
Drug Interdiction and Counter-Drug Activities,
Defense 130,000
188,000
188,000

—
Joint Improvised Explosive Device Defeat fund
2,970,444
2,000,000
2,000,000
—
Total, Other Department of Defenses Programs
3,500,444
3,288,000
3,288,000
—
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
1,700,000
1,700,000
—
Total, General Provisions
2,610,000
1,700,000
1,700,000
—
Total, Chapter 2
65,960,936
65,921,157
65,921,157
—
Chapter 3
General Provision
Sec 11308 rescission of emergency appropriations
—
—
-146,531
-146,531

---

CRS-67
House
Leadership
Senate-
Bill
Passed
Senate vs
Request
May 15
May 22
House
Total, Title IX
166,015,369
162,543,273
165,427,034
+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].

---