Congress Inches Closer to Final War Supplemental Vote

Legislation appropriating over $100 billion for continued war funding (H.R. 2346 [1]) is moving closer to a final vote in Congress, despite significant delays and recent disagreements during conference committee negotiations. The main issues of contention include the release of detainee photos, a funding provision for the International Monetary Fund, and overall concerns related to the bloated cost of the bill. President Obama originally requested $90 billion for the legislation, but that figure has grown to $106 billion.

Perhaps the most controversial issue in the legislation was an amendment introduced by Sens. Joe Lieberman (I-CT) and Lindsey Graham (R-SC) that sought to prohibit the release of photos of detainees being tortured [2]. There was a heated debate about the relative merits of the need for government transparency versus the potential endangerment of U.S. soldiers who are serving in high-risk areas abroad. The conference committee eventually agreed to drop the amendment, assuaging a number of liberal House Democrats.

The president's $80 million request to close the Guantanamo Bay prison and transfer detainees was also modified. In its altered form [3], the bill would prohibit the relocation of detainees to the U.S. and would require the president to report on the specific destination and security risk of each individual before the release of any funds for transport.

In addition to funds for U.N. peacekeeping dues ($721 million) and military personnel shortfalls ($534 million), the conference agreement also allocates funds for items such as the Pakistan Counterinsurgency Capability Fund ($400 million), which is meant to assist Pakistan's security forces as well as provide funds for humanitarian relief and necessary reconstruction.

Some items may appear to be funded at lower or higher levels relative to the previous fiscal year, but the final figures need to be analyzed in conjunction with the administration's baseline budget figures. Earlier in 2009, the administration vowed to rely more on baseline budget figures instead of supplemental spending bills and some increases/decreases were subsequently reflected in the current bill. The administration has stated that this will be "the last planned war supplemental."

The bill also requires the president to submit two reports about the ongoing efforts in Afghanistan and Pakistan, including the United States' policy objectives and benchmarks for evaluation, as well as an assessment of the Afghani and Pakistani governments' roles in anti-terrorist efforts.

In addition to war funding, the bill contains some unrelated supplemental funding. The president requested and conferees included a provision that provides an additional $5 billion to the International Monetary Fund (IMF) for the organization's lending programs. These additional funds are meant to help the IMF combat economic situations that may continue to arise due to the global economic environment, but some Republicans protested its inclusion, indicating that the provision should not be attached to a war funding bill. Given the recent disharmony among Democrats [4] regarding some of the bill's proposed and included provisions, it may be tough to rally enough votes to pass the legislation if Republicans decide to vote against it based on the IMF provision.

The conference agreement also includes $1 billion for a "cash-for-clunkers" program, where consumers can receive a $3,500-$4,500 voucher to trade in their existing cars for more fuel-efficient vehicles, and an additional $4 billion on top of Obama's request of $3.7 billion for fighting pandemic flu outbreaks.

The House is expected to vote on the conference report as soon as June 16, with the Senate following shortly thereafter.