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Analysis of FY2008 "Bridge" War Funding Supplemental (Senate Version, S. 2340) and Administration Supplemental Requests

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by Christopher Hellman [contact information]

by Travis Sharp [contact information]

November 14, 2007

On November 13, Senate Republican leader Mitch McConnell (R-KY) and Defense Appropriations Subcommittee ranking member Ted Stevens (R-AK) introduced a $70 billion "bridge" or temporary funding bill for military operations in Iraq and Afghanistan. Unlike the "bridge" bill introduced in the House (H.R. 4156), McConnell's version does not contain Iraq policy language designed to end the war. The House is set to vote on its version of the "bridge" fund on November 14. The Senate may vote on a version similar to the House bill in the days ahead.

Sen. McConnell said that S. 2340 might come up for a vote after the Thanksgiving break – presumably if the temporary funding bill with Iraq language (i.e. the House version) fails in the Senate.

The administration's request for military operations in Iraq and Afghanistan now totals about $190 billion for Fiscal Year 2008. The Senate "bridge" fund provides about 37% of the administration's total request. The remainder of the request is expected to be considered by Congress in early 2008.

The Center's analysis of the House version of the "bridge" fund is available online.

BACKGROUND

In February 2007, the Administration submitted its FY2008 Iraq and Afghanistan war funding request alongside its normal "base" budget request for the Department of Defense. The "base" budget passed the House and Senate on November 8. The war funding request, which initially stood at $142 billion, has grown to about $190 billion, making it the largest war funding request since Global War on Terror operations began in 2001.

When FY2008 began on October 1, Congress had yet to pass a single appropriation bill. On September 27, lawmakers approved a continuing resolution (CR) providing temporary funding at FY2007 levels for all discretionary programs through November 16, approximately $5 billion of which went to GWOT operations according to estimates by the Congressional Research Service. This CR was extended by Congress through December 14 by language included in the Department of Defense "base" budget bill which passed on November 8.

Emergency supplemental funding has been used to pay for almost all of the costs in Iraq and Afghanistan. Because they are not subject to the same federal caps that apply to the "base" defense budget, however, supplementals are a tempting pot of money for services seeking to increase their annual procurement accounts.

IMPACT OF DELAYED CONGRESSIONAL ACTION

A reoccurring issue Congress has faced is whether delaying the passage of supplemental war funding packages will harm troops engaged in combat. In testimony before the House Budget Committee on October 24, Amy Belasco of the Congressional Research Service estimated that the Army would have enough "cash flow" to finance its war expenses until about mid-January 2008 using transferred "base" budget funds that would otherwise be used later in FY2008. By using its transfer authority and slowing non-readiness-related operating funding for its regular activities – steps it has taken in previous years – Belasco estimated that the Army could finance operations until mid-February 2008.

HIGHLIGHTS

TITLE I – $70 BILLION IN WAR FUNDING

Afghanistan/Iraq Security Forces Fund – Provides $1.5 billion for the Iraq Security Forces Fund and $1.35 billion for the Afghan Security Forces Fund.

Iraq Freedom Fund – Provides $3.75 billion for the Iraq Freedom Fund, a "slush" fund that provides the Secretary of Defense and Director of National Intelligence with the authority to redirect funds at will provided they notify Congress 30 days prior.

Joint Improvised Explosive Device Defeat Fund – Provides $2.26 billion for the Joint Improvised Explosive Device Defeat Organization (JIEDDO) to investigate, develop and provide equipment, supplies, services, training, facilities, and personnel to defeat IEDs.

Drug Interdiction and Counter-Drug Activities – Provides $128.8 million for Defense-managed counter-narcotics activities.

FUNDING PROVISIONS

NOTE: There are four sets of figures presented here – those from the Administration's original February 2007 war funding request, those from the amended October 2007 war funding request, those included in the House "bridge" war funding package, and those included in the Senate "bridge" war funding package. There are in a number of cases significant discrepancies between the figures included in the original war funding request, and the corresponding figures as reflected in the amended war funding request (for example, the February request shows "Procurement, Defense-Wide" as $470 million, while the amended request gives the figure as $601 million, with an additional request of $167 million, for a February/October total of $768 million). In most cases, the figures for both the original February request and the amount reported in the October amendment are used, and are shown in normal print. Where significant discrepancies exist, the figures from the February request are shown in bold. Figures from the House and Senate "bridge" packages are shown in italics, unless otherwise noted.

Total Funding

Personnel

Operations & Maintenance

Procurement

Research, Development, Testing & Evaluation

Military Construction

Revolving and Management Funds

Defense Health Program (O&M portion only)

Drug Interdiction and Counter-Drug Activities

GENERAL PROVISIONS

Transfer Authority – Authorizes $3 billion in transfer authority to the Secretary of Defense for shifting money between different accounts.

Commander's Emergency Response Program (CERP) – Authorizes $500 million in operations and maintenance funding for the Commander's Emergency Response Program, a popular program with U.S. officers that permits them to finance urgent humanitarian relief and reconstruction requirements in their area of responsibility (AOR).

FY2008 PROGRAM FUNDING FROM FEBRUARY WAR REQUEST

Iraqi/Afghani Security Forces – Requests $2 billion for Iraqi Security Forces and $2.7 billion for Afghani Security Forces.

Commander's Emergency Response Program (CERP) – Requests $977 million for the CERP program.

F-35 Joint Strike Fighter – Includes $230 million for procurement of one F-35 aircraft for the Air Force.

F/A-18E/F "Super Hornet" Fighter – Requests $714 million for 12 F/A-18E/F aircraft for the Navy.

C-130J Transport Aircraft – Includes $1.356 billion for procurement of 17 C-130J aircraft for the Air Force, and $495 million for seven KC-130J for the Navy.

V-22 "Osprey" Tilt-rotor Aircraft – Includes $493 million in Air Force funding for procurement of five CV-22 aircraft and $141 million for two V-22 aircraft for the Navy

Army Helicopters – Includes $223 million for 29 Armed Reconnaissance Helicopters and $527 million for 39 UH-60M "Blackhawk" helicopters for the Army.

Stryker Light Armored Vehicles – Requests $403 million for 100 Strykers for the Army.

SOURCES

Draft text of Senate "bridge" funding bill (S. 2340), introduced November 13.

Text of House "bridge" funding bill (H.R. 4156), finalized November 14, available online.

Original FY2008 war funding request, released February 2007, available online.

Amended FY2008 war funding request, released October 2007, available online.

Christopher Hellman 202-546-0795 chellman@armscontrolcenter.org

Christopher Hellman is the Military Policy Fellow at the Center for Arms Control and Non-Proliferation where his work focuses on national security spending, military planning and policy, trends in the defense industry, global military spending, and homeland security. Hellman is a frequent media commentator on these issues. Previously, Hellman worked for the Center for Defense Information, Physicians for Social Responsibility, and spent ten years as a congressional staffer working on national security and foreign policy issues.

Travis Sharp 202-546-0795 x123 tsharp@armscontrolcenter.org

Travis Sharp is the Military Policy Analyst at the Center for Arms Control and Non-Proliferation where he performs policy work on national security spending, military policy, and Iraq. He has published letters and articles in the New York Times, Los Angeles Times, Washington Post, Foreign Policy in Focus, United Press International, and Peace Review.