Center for Arms Control and Non-Proliferation

Analysis of House May 2008 Iraq-Afghanistan Supplemental War Funding Package

by Travis Sharp [contact information]

Updated May 16, 2008

May 16 UPDATE: On May 15, the House passed amendments #2 and #3 but failed to pass amendment #1, which would provide $162.6 billion in DOD funding for ongoing military operations in Iraq and Afghanistan. That funding is expected to be added to the supplemental by the Senate, which is slated to take up the supplemental the week of May 19. Check back for a full analysis of the Senate's version of the supplemental package.

SUMMARY

On May 15, the House of Representatives will vote on three separate amendments as part of the war supplemental funding package. The never-enacted Fiscal Year (FY) 2008 Military Construction-Veterans Administration Appropriations bill (HR 2642) will be used as a legislative vehicle for the supplemental. The previous contents of HR 2642 will be stripped out, and three separate amendments will be offered for three separate votes.

The supplemental would provide $100.1 billion in FY2008 funding for ongoing military operations in Iraq and Afghanistan, of which $96.6 billion is for the Department of Defense (DOD) and $3.5 billion is for the State Department, U.S. Agency for International Development (USAID), military construction, and Veterans Administration (VA). The supplemental would also provide $68.3 billion in FY2009 funding, of which $65.9 billion is for DOD and $2.4 billion is for State/USAID.

Thus, the supplemental would provide $168.4 billion in combined FY2008 and FY2009 funding for operations related to Iraq and Afghanistan.

If this $168.4 billion supplemental is enacted into law, Congress will have approved approximately $864 billion in DOD, State/USAID, and VA funding for the Global War on Terror (GWOT) since 2001. This would cement Iraq and Afghanistan's place as the second costliest conflict in U.S. history.

For more information, visit the Center's Iraq-Afghanistan supplemental funding resource center.

OVERVIEW OF SUPPLEMENTAL PACKAGE

Amendment #1 – Provides $162.6 billion in DOD funding for ongoing military operations in Iraq and Afghanistan.

Amendment #2 – Attaches multiple policy restrictions, including:

• 18 month withdrawal goal – Mandates that U.S. forces begin withdrawing from Iraq within 30 days, with a goal of completing withdrawal by December 2009
• Contractor restrictions – Expands current law to make all contractors working in war zones subject to prosecution for offenses that would otherwise be in violation of U.S. law
• Unit readiness – Prohibits the deployment to Iraq of any combat unit not deemed "fully mission capable"
• Deployment time – Restricts combat deployments to 12 months for the Army and 7 months for the Marine Corps
• Dwell time – Requires that Army units get at least 12 months, and Marine Corps units get at least 7 months, of "dwell time" between combat deployments
• Torture – Provides that no person in U.S. custody may be subjected to treatment not authorized by the U.S. Army Field Manual on Human Intelligence Collector Operations
• Permanent bases and oil – Prohibits funding for permanent bases or control of Iraqi oil resources
• Long-term agreement – Prohibits the President from entering into any agreement with Iraq, including a security assurance pact, unless the agreement is sent as a treaty to the Senate for advice and consent, or is specifically authorized by Congress
• Iraqi reconstruction spending – Prohibits spending on Iraqi training, capacity building, construction, and infrastructure unless the Iraqi government matches U.S. expenditures dollar-for-dollar
• Iraq fuel subsidies – Requires the President to complete an agreement that requires Iraq to subsidize fuel costs for U.S. armed forces operating in Iraq

Amendment #3 – Provides $21.2 billion in funding for military construction, Veterans Administration, State/USAID operations abroad, and domestic programs like the GI veterans' education benefits. Of this $21.2 billion, approximately $5.9 billion is for expenditures related to Iraq and Afghanistan ($3.5 billion for FY2008, $2.4 billion for FY2009). Amendment #3 would fund the following Iraq-Afghanistan focused activities:

• Diplomatic operations, including embassy security and construction
• Inspectors General at State Department and USAID, as well as the Special Inspector General for Iraq Reconstruction (SIGIR)
• UN Assistance Missions in Iraq and Afghanistan
• USAID operations in Iraq and Afghanistan
• Economic Support Fund (ESF) assistance
• Democracy and legal governance development, counternarcotics, and refugee assistance
• Presidential protection in Afghanistan and de-mining activities in Iraq

BACKGROUND: FY 2008 & FY 2009 WAR FUNDING

In December 2007, Congress approved $86.8 billion in "bridge" FY2008 war-related funding for DOD as part of the FY2008 Consolidated Appropriations Act (HR 2764/PL 110-161). With enactment of this "bridge" fund, $102.5 billion in pending FY2008 war-related funding for DOD remains to be acted upon by Congress in 2008.

For FY2009, the Bush administration submitted a placeholder $70 billion "bridge" emergency supplemental war funding request alongside its "base" FY2009 national defense (Function 050) request of $542.5 billion. In May 2008, the administration provided a detailed overview of its $70 billion FY2009 request. This $70 billion will not be enough to fund Global War on Terror (GWOT) operations throughout all of FY2009, but it will fund operations into 2009, when the next President takes office.

HIGHLIGHTS (AMENDMENT #1)

Iraqi and Afghan Security Forces – Provides $2.5 billion in total funding ($1.5 billion FY2008 + $1.0 billion FY2009) for Iraqi Security Forces. Provides $3.4 billion in total funding ($1.4 billion FY2008 + $2.0 billion FY2009) for Afghan Security Forces.

Commander's Emergency Response Program (CERP) – Provides $1.0 billion in FY2008 funding for CERP, of which $480 million is for Afghanistan and $2 million is to fight terrorism in the Philippines.

Joint Improvised Explosive Device Defeat Organization (JIEDDO) – Provides $2.0 billion in FY2009 funding for JIEDDO.

C-17 Transport Aircraft – Includes $3.6 billion in FY2008 funding for the purchase of 15 C-17 transports for the Air Force. This funding was not requested by the administration. The supplemental report language says that DOD "has not adequately assessed strategic lift requirements" in light of planned increases in Army and Marine Corps end-strengths and the emerging lift needs of Future Combat Systems.

Mine Resistant Ambush Protected Vehicles (MRAP) – Provides $1.7 billion in FY2009 funding, the amount requested by the administration, for MRAP ballistic testing, sustainment, and transportation. The supplemental report language stipulates that future MRAP sustainment requests must be included in DOD's "base" budget starting with the FY2010 request.

Army Vehicles – Provides $1.3 billion in total funding ($921 million FY2008 + $394.8 million FY2009) for Bradley Fighting Vehicles; $2.2 billion in total funding ($2.0 billion FY2008 + $248.1 million FY2009) for Stryker Vehicles; $1.9 billion in total funding ($1.5 billion FY2008 + $390.2 million FY2009) for Humvees; and $2.4 billion in total funding ($2.3 billion FY2008 + $90.0 million FY2009) for the Family of Heavy Tactical Vehicles.

Aircraft – Provides $768 million in FY2008 funding for 13 Navy F/A-18E/F Hornets; $602 million in FY2008 funding for 9 Navy KC-130Js; $141 million in FY2008 funding for 2 Navy V-22 Ospreys and $301 million in FY2008 funding for Air Force V-22 Ospreys, for a total of $442 million; and $1.8 billion in FY2008 funding for 18 C-130Js and 7 MC-130Js. No funding was provided for the F-35 Joint Strike Fighter, although the administration requested $230 million in FY2008 funding for 1 aircraft.

DOD FUNDING PROVISIONS (AMENDMENT #1)

Total Funding (DOD only)
FY2008 Already Provided (December 2007 Bridge): $86.8 billion
FY2008 Remaining Request: $102.5 billion
FY2009 Bridge Request: $65.9 billion
Amount in House Supplemental Package: $96.6 billion (FY2008) + $65.9 (FY2009) = $162.6 billion total

Personnel
FY2008 Already Provided (December 2007 Bridge): $1.1 billion
FY2008 Remaining Request: $16.8 billion
FY2009 Bridge Request: $3.8 billion
Amount in House Supplemental Package: $17.6 billion (FY2008) + $1.2 billion (FY2009) = $18.8 billion total

Operations & Maintenance (O&M)
FY2008 Already Provided (December 2007 Bridge): $57.6 billion
FY2008 Remaining Request: $34.9 billion
FY2009 Bridge Request: $51.1 billion
Amount in House Supplemental Package: $33.2 billion (FY2008) + $54.9 billion (FY2009) = $88.1 billion total

Procurement
FY2008 Already Provided (December 2007 Bridge): $27.2 billion
FY2008 Remaining Request: $44.4 billion
FY2009 Bridge Request: $8.5 billion
Amount in House Supplemental Package: $41.0 billion (FY2008) + $4.4 billion (FY2009) = $45.4 billion total

Research, Development, Testing & Evaluation (RDT&E)
FY2008 Already Provided (December 2007 Bridge): none
FY2008 Remaining Request: $2.9 billion
FY2009 Bridge Request: $379 million
Amount in House Supplemental Package: $1.6 billion (FY2008) + $387.8 million (FY2009) = $2.0 billion total

Military Construction
FY2008 Already Provided (December 2007 Bridge): none
FY2008 Remaining Request: $2.4 billion
FY2009 Bridge Request: none
Amount in House Supplemental Package: $4.6 billion (includes $1.4 billion for BRAC) = $4.6 billion total (provided in Amendment #3)

Revolving and Management Funds
FY2008 Already Provided (December 2007 Bridge): $1 billion
FY2008 Remaining Request: $962.8 million
FY2009 Bridge Request: $2.2 billion
Amount in House Supplemental Package: $1.8 billion (FY2008) + none (FY2009) = $1.8 billion total

OTHER DOD PROGRAMS OF INTEREST

Defense Health Program (O&M)
FY2008 Already Provided (December 2007 Bridge): $575.7 million
FY2008 Remaining Request: $561.7 million
FY2009 Bridge Request: $400 million (under "Medical Support Fund")
Amount in House Supplemental Package: $1.4 billion (FY2008) + $1.1 billion (FY2009) = $2.5 billion total

Drug Interdiction and Counter-Drug Activities (O&M)
FY2008 Already Provided (December 2007 Bridge): $192.6 million
FY2008 Remaining Request: $65.0 million
FY2009 Bridge Request: $130 million
Amount in House Supplemental Package: $65.3 million (FY2008) + $188 million (FY2009) = $253.3 million total

Iraq Freedom Fund (O&M)
FY2008 Already Provided (December 2007 Bridge): $3.7 billion
FY2008 Remaining Request: $103.8 million
FY2009 Bridge Request: none
Amount in House Supplemental Package: $50 million (FY2008) + none (FY2009) = $50 million total

Commander's Emergency Response Program (O&M)
FY2008 Already Provided (December 2007 Bridge): $500 million
FY2008 Remaining Request: $719.4 million
FY2009 Bridge Request: $1.7 billion
Amount in House Supplemental Package: $1.0 billion (FY2008) + none (FY2009) = $1.0 billion total

Afghanistan Security Forces Fund (O&M)
FY2008 Already Provided (December 2007 Bridge): $1.35 billion
FY2008 Remaining Request: $1.35 billion
FY2009 Bridge Request: $3.7 billion
Amount in House Supplemental Package: $1.4 billion (FY2008) + $2.0 billion (FY2009) = $3.4 billion total

Iraq Security Forces Fund (O&M)
FY2008 Already Provided (December 2007 Bridge): $1.5 billion
FY2008 Remaining Request: $1.5 billion
FY2009 Bridge Request: $2.0 billion
Amount in House Supplemental Package: $1.5 billion (FY2008) + $1.0 billion (FY2009) = $2.5 billion total

Joint Improvised Explosive Device Defeat Organization (JIEDDO) (Procurement)
FY2008 Already Provided (December 2007 Bridge): $4.3 billion
FY2008 Remaining Request: none
FY2009 Bridge Request: $3.0 billion
Amount in House Supplemental Package: none (FY2008) + $2.0 billion (FY2009) = $2.0 billion total

MAJOR WEAPONS SYSTEMS (AMENDMENT #1)

ARMY

ARH-70 Armed Reconnaissance Helicopter
FY2008 Already Provided (December 2007 Bridge): none
FY2008 Remaining Request: $222.6 million for 29 aircraft
FY2009 Bridge Request: none
Amount in House Supplemental Package: none (FY2008) + none (FY2009) = none

UH-60 Blackhawk Helicopters (multiyear procurement)
FY2008 Already Provided (December 2007 Bridge): $483.3 million for 36 aircraft
FY2008 Remaining Request: $44.1 million for 3 aircraft
FY2009 Bridge Request: none
Amount in House Supplemental Package: $44.7 million for modifications (FY2008) + none (FY2009) = $44.7 million total

Bradley Fighting Vehicles
FY2008 Already Provided (December 2007 Bridge): $700.1 million for 235 vehicles
FY2008 Remaining Request: $921.0 million for 308 vehicles
FY2009 Bridge Request: none
Amount in House Supplemental Package: $921 million (FY2008) + $394.8 million (FY2009) = $1.3 billion total

Stryker Vehicles
FY2008 Already Provided (December 2007 Bridge): $41 million for 10 vehicles
FY2008 Remaining Request: $2.0 billion for 473 vehicles
FY2009 Bridge Request: none
Amount in House Supplemental Package: $2.0 billion (FY2008) + $248.1 million (FY2009) = $2.2 billion total

High Mobility Multipurpose Wheeled Vehicles "Humvee"
FY2008 Already Provided (December 2007 Bridge): $455 million for 2,409 vehicles
FY2008 Remaining Request: $1.6 billion for 8,469 vehicles
FY2009 Bridge Request: none
Amount in House Supplemental Package: $1.5 billion (FY2008) + $390.2 million (FY2009) = $1.9 billion total

Family of Medium Tactical Vehicles
FY2008 Already Provided (December 2007 Bridge): $146 million for 765 vehicles
FY2008 Remaining Request: $2.7 billion for 14,103 vehicles
FY2009 Bridge Request: none
Amount in House Supplemental Package: $673.6 million (FY2008) + none (FY2009) = $673.6 million total

Family of Heavy Tactical Vehicles
FY2008 Already Provided (December 2007 Bridge): $427 million for 799 vehicles
FY2008 Remaining Request: $2.4 billion for 4,506 vehicles
FY2009 Bridge Request: none
Amount in House Supplemental Package: $2.3 billion (FY2008) + $90.0 million (FY2009) = $2.4 billion total

NAVY

F/A-18E/F Hornet Fighters (multiyear procurement)
FY2008 Already Provided (December 2007 Bridge): none
FY2008 Remaining Request: $768.0 million for 13 aircraft
FY2009 Bridge Request: none
Amount in House Supplemental Package: $768.0 million for 13 aircraft (FY2008) + none (FY2009) = $768.0 million total

KC-130J Refueling/Transport Aircraft
FY2008 Already Provided (December 2007 Bridge): none
FY2008 Remaining Request: $495.4 million for 17 aircraft
FY2009 Bridge Request: none
Amount in House Supplemental Package: $602.4 million for 9 aircraft (FY2008) + none (FY2009) = $602.4 million total

V-22 Osprey
FY2008 Already Provided (December 2007 Bridge): none
FY2008 Remaining Request: $140.5 million for 2 Navy aircraft
FY2009 Bridge Request: none
Amount in House Supplemental Package: $140.5 million for 2 Navy aircraft (FY2008) + none (FY2009) = $140.5 million total

AIR FORCE

F-35 Joint Strike Fighter (JSF)
FY2008 Already Provided (December 2007 Bridge): none
FY2008 Remaining Request: $230 million for 1 aircraft
FY2009 Bridge Request: none
Amount in House Supplemental Package: none (FY2008) + none (FY2009) = none

C-17 Airlift Aircraft
FY2008 Already Provided (December 2007 Bridge): none
FY2008 Remaining Request: none
FY2009 Bridge Request: none
Amount in House Supplemental Package: $3.6 billion for 15 aircraft (FY2008) + none (FY2009) = $3.6 billion total

C-130J Transport Aircraft
FY2008 Already Provided (December 2007 Bridge): none
FY2008 Remaining Request: $1.4 billion for 17 aircraft
FY2009 Bridge Request: none
Amount in House Supplemental Package: $1.8 billion for 18 C-130J and 7 MC-130J aircraft (FY2008) + none (FY2009) = $1.8 billion total

V-22 Osprey
FY2008 Already Provided (December 2007 Bridge): none
FY2008 Remaining Request: $492.5 million for 5 Air Force aircraft
FY2009 Bridge Request: none
Amount in House Supplemental Package: $300.5 million (FY2008) + none (FY2009) = $300.5 million total

DEFENSE-WIDE

Mine Resistant Ambush Protected Vehicles (MRAP)
FY2008 Already Provided (December 2007 Bridge): $16.8 billion
FY2008 Remaining Request: none
FY2009 Bridge Request: $2.6 billion
Amount in House Supplemental Package: none (FY2008) + $1.7 billion (FY2009) = $1.7 billion total

SOURCES

Office of Management and Budget, Fiscal Year (FY) 2009 Global War on Terror Bridge Request (released May 2, 2008).
Office of the Secretary of Defense, Fiscal Year (FY) 2008 Global War on Terror Pending Request (updated February 2008).
Text and explanatory statements, Supplemental Appropriations Act of 2008 (released May 14, 2008).