94-301
2004
108TH CONGRESS 2d Session
HOUSE OF REPRESENTATIVES
Report
[Graphic image not available]
JUNE 18, 2004- Committed to the Committee of the Whole House on the State of the Union and ordered to be printed
DEPARTMENT OF DEFENSE APPROPRIATIONS BILL, 2005
94-301
2004
108TH CONGRESS 2d Session
HOUSE OF REPRESENTATIVES
Report
[Graphic image not available]
JUNE 18, 2004- Committed to the Committee of the Whole House on the State of the Union and ordered to be printed
| C O N T E N T S |
| Page | ||
| Bill Totals | 1 | |
| Committee Budget Review Process | 4 | |
| Introduction | 4 | |
| Fiscal Year 2005 Budget Request | 4 | |
| Budget Amendment for Operations in Iraq and Afghanistan | 5 | |
| Unfunded Demands | 5 | |
| Committee Views | 5 | |
| Major Recommendations in the Committee Bill | 6 | |
| Committee Recommendations by Major Category | 9 | |
| Military Personnel | ||
| 9 | ||
| Operation and Maintenance | ||
| 9 | ||
| Procurement | ||
| 9 | ||
| Research, Development, Test and Evaluation | ||
| 10 | ||
| Other Items of Interest Funded in the Bill | ||
| 11 | ||
| Reprogramming, Withholding, and `Taxing' Appropriated Funds | 11 | |
| Security and Financial Reviews Regarding Iraqi National Congress | 14 | |
| Forces to be Supported | 14 | |
| Department of the Army | ||
| 14 | ||
| Department of the Navy | ||
| 15 | ||
| Department of the Air Force | ||
| 16 | ||
| TITLE I. MILITARY PERSONNEL | 17 | |
| Programs and Activities Funded by Military Personnel Appropriations | ||
| 17 | ||
| Summary of Military Personnel Recommendations for Fiscal Year 2005 | ||
| 17 | ||
| Adjustments to Military Personnel Account | ||
| 19 | ||
| Overview | ||
| 19 | ||
| End Strength Adjustments | ||
| 19 | ||
| Accuracy of Obligations | ||
| 20 | ||
| Personnel Strengths | ||
| 20 | ||
| Guard and Reserve Workyear Requirements | ||
| 20 | ||
| Military Technicians Cost Avoidance | ||
| 21 | ||
| Budget Justification Documents for Military Personnel | ||
| 21 | ||
| Reimbursement of Citizenship Fees | ||
| 21 | ||
| Full-Time Support Strengths | ||
| 22 | ||
| Military Personnel, Army | ||
| 22 | ||
| Military Personnel, Navy | ||
| 25 | ||
| Military Personnel, Marine Corps | ||
| 28 | ||
| Military Personnel, Air Force | ||
| 31 | ||
| Reserve Personnel, Army | ||
| 34 | ||
| Reserve Personnel, Navy | ||
| 36 | ||
| Reserve Personnel, Marine Corps | ||
| 38 | ||
| Reserve Personnel, Air Force | ||
| 40 | ||
| National Guard Personnel, Army | ||
| 42 | ||
| National Guard Personnel, Air Force | ||
| 44 | ||
| TITLE II. OPERATION AND MAINTENANCE | 47 | |
| Operation and Maintenance Overview | ||
| 49 | ||
| Recommendations to Address Shortfalls | ||
| 50 | ||
| Operation and Maintenance Budget Exhibits | ||
| 50 | ||
| Operation and Maintenance Budget Execution Data | ||
| 51 | ||
| Operation and Maintenance Reprogrammings | ||
| 51 | ||
| Availability of Funds | ||
| 52 | ||
| Civilian Pay | ||
| 52 | ||
| Unobligated Balances | ||
| 53 | ||
| Reduction to Administration and Servicewide Activities | ||
| 53 | ||
| Base Operations Support | ||
| 53 | ||
| Civilian Pay Overstatement | ||
| 53 | ||
| Military to Civilian Conversions | ||
| 54 | ||
| Working Capital Fund Cash | ||
| 54 | ||
| Transportation Working Capital Fund | ||
| 54 | ||
| Other Contracts | ||
| 54 | ||
| Contract Offsets | ||
| 55 | ||
| Civilian Separation Incentive | ||
| 55 | ||
| Fort Ticonderoga | ||
| 55 | ||
| Presidio of San Francisco | ||
| 55 | ||
| Corrosion Control | ||
| 55 | ||
| Joint Professional Military Education Level One | ||
| 56 | ||
| Operation and Maintenance, Army | ||
| 57 | ||
| Online Technology Training Program | ||
| 62 | ||
| Philadelphia Military Academies | ||
| 62 | ||
| Vehicle Integrated Primary Electrical Resource | ||
| 62 | ||
| Virtual Reality Spray Paint Simulator System and Training Program | ||
| 62 | ||
| Fort Monmouth Telecommunications Infrastructure | ||
| 62 | ||
| Controlled Humidity Program | ||
| 62 | ||
| One Soul: Holocaust Education Exhibit | ||
| 62 | ||
| Sense and Respond Logistics | ||
| 63 | ||
| Integrated Digital Environments Information Portal | ||
| 63 | ||
| Army Knowledge Online | ||
| 63 | ||
| Operation and Maintenance, Navy | ||
| 63 | ||
| Knowledge Management and Decision Support System | ||
| 67 | ||
| Local Situational Assessment, NAS Lemoore | ||
| 68 | ||
| CDTEMS | ||
| 68 | ||
| Single Torpedo Maintenance Facility | ||
| 68 | ||
| Navy Region Southeast Integrated Safety Management System | ||
| 68 | ||
| NAS North Island | ||
| 68 | ||
| Global Hawk Maritime Demonstration | ||
| 69 | ||
| DoD NOAA Facility Clean-Up | ||
| 69 | ||
| Operation and Maintenance, Marine Corps | ||
| 69 | ||
| Marine Corps Mountain/Cold Weather Clothing and Equipment | ||
| 72 | ||
| Operation and Maintenance, Air Force | ||
| 72 | ||
| F-15E Oxygen Concentrator Reliability Improvement Program | ||
| 76 | ||
| Defense Installation Spatial Data Infrastructure (DISDI) | ||
| 76 | ||
| Air Show Study | ||
| 77 | ||
| Threat Representation and Validation | ||
| 77 | ||
| Heavy Outsized Airlift Capacity | ||
| 77 | ||
| B-1 Aircraft Regeneration | ||
| 77 | ||
| Operation and Maintenance, Defense-Wide | ||
| 78 | ||
| Passive RFID Prototype Project | ||
| 82 | ||
| Norm Mineta Internship Immersion Program | ||
| 82 | ||
| Commercial Technologies for Maintenance Activities (CTMA) | ||
| 82 | ||
| George AFB | ||
| 82 | ||
| Norton AFB | ||
| 82 | ||
| Lewis Center for Educational Research | ||
| 82 | ||
| Environmental Remediation of Unexploded Ordnance | ||
| 83 | ||
| Building Protection | ||
| 83 | ||
| Victim Advocates | ||
| 83 | ||
| Operation and Maintenance, Army Reserve | ||
| 83 | ||
| US Army Reserve Command IT Consolidation | ||
| 87 | ||
| Controlled Humidity Protection | ||
| 87 | ||
| Operation and Maintenance, Navy Reserve | ||
| 87 | ||
| Operation and Maintenance, Marine Corps Reserve | ||
| 90 | ||
| Operation and Maintenance, Air Force Reserve | ||
| 92 | ||
| 932nd Airlift Wing | ||
| 94 | ||
| Operation and Maintenance, Army National Guard | ||
| 94 | ||
| Homeland Operational Planning System | ||
| 97 | ||
| AVCRAD Replacement Equipment | ||
| 97 | ||
| Advanced Starting Systems | ||
| 97 | ||
| Infantry Helmet Liner Retrofit | ||
| 97 | ||
| Operation and Maintenance, Air National Guard | ||
| 97 | ||
| Overseas Contingency Operations Transfer Account | ||
| 100 | ||
| United States Court of Appeals for the Armed Forces | ||
| 100 | ||
| Environmental Restoration, Army | ||
| 100 | ||
| Environmental Restoration, Navy | ||
| 101 | ||
| Environmental Restoration, Air Force | ||
| 101 | ||
| Environmental Restoration, Defense-Wide | ||
| 101 | ||
| Environmental Restoration, Formerly Used Defense Sites | ||
| 101 | ||
| DeWitt Center | ||
| 101 | ||
| Overseas Humanitarian, Disaster, and Civic Aid | ||
| 102 | ||
| Former Soviet Union Threat Reduction Account | ||
| 102 | ||
| TITLE III. PROCUREMENT | 103 | |
| Estimates and Appropriations Summary | ||
| 103 | ||
| Special Interest Items | ||
| 105 | ||
| Reprogramming Guidance for Acquisition Accounts | ||
| 105 | ||
| Classified Annex | ||
| 105 | ||
| Multiyear Procurement Contracts | ||
| 105 | ||
| Ground Forces Recapitalization | ||
| 107 | ||
| Aircraft Procurement, Army | ||
| 108 | ||
| Comanche Termination and Budget Amendment | ||
| 110 | ||
| Missile Procurement, Army | ||
| 113 | ||
| Line of Sight Anti-Tank (LOSAT) | ||
| 115 | ||
| Hellfire | ||
| 115 | ||
| Procurement of Weapons and Tracked Combat Vehicles, Army | ||
| 118 | ||
| Stryker | ||
| 120 | ||
| Procurement of Ammunition, Army | ||
| 123 | ||
| Ammunition Industrial Base | ||
| 125 | ||
| M169 Cartridge Casing Production | ||
| 125 | ||
| Hydra Rocket | ||
| 125 | ||
| Other Procurement, Army | ||
| 129 | ||
| Tactical Unmanned Aerial Vehicle (TUAV) | ||
| 134 | ||
| Rapid Equipping Force (REF) | ||
| 134 | ||
| Integrated Communications Navigation Identification Avionics (ICNIA) | ||
| 134 | ||
| Aircraft Procurement, Navy | ||
| 141 | ||
| Ongoing Program Review | ||
| 145 | ||
| EA-18G Advance Procurement | ||
| 145 | ||
| MH-60R | ||
| 145 | ||
| EA-6B Series | ||
| 146 | ||
| Improved Capabilities (ICAP III) Program | 146 | |
| F/A-18 Advanced Tactical Reconnaissance System (ATARS) | ||
| 146 | ||
| F/A-18 LITENING Pod Downlink Development Program for AV-8B | ||
| 147 | ||
| F/A-18 LITENING Pod Advanced Targeting (AT) | ||
| 147 | ||
| Naval Air Systems Command Metrology and Calibration Program | ||
| 147 | ||
| Operational Flight Trainer Simulation Initiative | ||
| 147 | ||
| Weapons Procurement, Navy | ||
| 152 | ||
| Northwest Undersea Range | ||
| 154 | ||
| Pioneer Unmanned Aerial Vehicle (UAV) Product Improvement Program (PIP) | ||
| 154 | ||
| Procurement of Ammunition, Navy and Marine Corps | ||
| 157 | ||
| Shipbuilding and Conversion, Navy | ||
| 162 | ||
| Shipbuilding Issues | ||
| 164 | ||
| DDG-51 Guided Missile Destroyer--Advance Procurement | ||
| 164 | ||
| DDG-51 Guided Missile Destroyer--Modernization Program | ||
| 165 | ||
| Other Procurement, Navy | ||
| 167 | ||
| CVN Propeller Replacement Program | ||
| 172 | ||
| TRIDENT Modifications | ||
| 172 | ||
| Unmanned Undersea Vehicle (UUV) Program | ||
| 172 | ||
| Performance-Centric Mission Essential Content Delivery | ||
| 172 | ||
| Serial Number Tracking System | ||
| 173 | ||
| Physical Security Equipment | ||
| 173 | ||
| Procurement, Marine Corps | ||
| 180 | ||
| Aircraft Procurement, Air Force | ||
| 188 | ||
| F/A-22 Raptor | ||
| 191 | ||
| F/A-22 Independent Cost Estimate | ||
| 191 | ||
| C-17 Aircraft | ||
| 191 | ||
| C-17 Interim Contractor Support | ||
| 193 | ||
| Tanker Replacement Transfer Fund | ||
| 193 | ||
| Global Hawk | ||
| 193 | ||
| C-130 Gunship Link 16 | ||
| 194 | ||
| Missile Procurement, Air Force | ||
| 198 | ||
| Joint Air-To-Surface Standoff Missile | ||
| 200 | ||
| Evolved Expendable Launch Vehicle | ||
| 200 | ||
| Procurement of Ammunition, Air Force | ||
| 204 | ||
| General Purpose Bombs | ||
| 206 | ||
| Other Procurement, Air Force | ||
| 208 | ||
| Theater Air Control System Improvement | ||
| 211 | ||
| Procurement, Defense-Wide | ||
| 216 | ||
| SOF Rotary Wing Upgrades | ||
| 219 | ||
| Advanced Seal Delivery System (ASDS) | ||
| 219 | ||
| Miscellaneous Equipment | ||
| 219 | ||
| Vulnerability Management Strategy | ||
| 219 | ||
| National Guard and Reserve Equipment | ||
| 224 | ||
| Defense Production Act Purchases | ||
| 224 | ||
| Information Technology | ||
| 224 | ||
| Information Technology and Business Management Modernization Program | ||
| 226 | ||
| Navy Converged Enterprise Resource Planning | ||
| 227 | ||
| U.S. Army Reserve Command IT Consolidation | ||
| 227 | ||
| TITLE IV. RESEARCH, DEVELOPMENT, TEST AND EVALUATION | 229 | |
| Estimates and Appropriation Summary | ||
| 229 | ||
| Reprogramming Guidance for Acquisition Accounts | ||
| 231 | ||
| Joint Strike Fighter (F-35) | ||
| 231 | ||
| Preserving Growth Potential for the F-35 | ||
| 233 | ||
| F-35 Program Management | ||
| 234 | ||
| Joint Unmanned Combat Aerial System (JUCAS) | ||
| 234 | ||
| Special Interest Items | ||
| 235 | ||
| Classified Annex | ||
| 236 | ||
| Research, Development, Test and Evaluation, Army | ||
| 236 | ||
| Future Combat System | ||
| 253 | ||
| Non Line of Sight Cannon (NLOS-C) | ||
| 254 | ||
| Theater Support Vessel | ||
| 254 | ||
| Joint Tactical Radio System (JTRS) | ||
| 255 | ||
| Patriot PAC-3/Medium Extended Air Defense System (MEADS) | ||
| 255 | ||
| Land Warrior and Future Force Warrior | ||
| 256 | ||
| Guided Multiple Launch Rocket System (GMLRS)--Unitary | ||
| 256 | ||
| Nuclear Monitoring | ||
| 257 | ||
| Defense Language Institute | ||
| 257 | ||
| Arizona Telemedicine Program | ||
| 257 | ||
| Research, Development, Test and Evaluation, Navy | ||
| 264 | ||
| Bone Marrow Registry | ||
| 287 | ||
| Naval Hospital Great Lakes and North Chicago Veterans Affairs Medical Center | ||
| 287 | ||
| DD(X) | ||
| 287 | ||
| Littoral Combat Ship (LCS) | ||
| 288 | ||
| Amphibious Assault Ship--LHA Replacement | ||
| 289 | ||
| Advanced Hybrid Stored Energy Devices | ||
| 290 | ||
| Blast Resistant Anechoic Sprayable Elastomeric Coatings | ||
| 290 | ||
| Cutting Tools for Aerospace Materials | ||
| 290 | ||
| Low-Power Mega Performance UAV Processing Engines | ||
| 290 | ||
| Center for Critical Infrastructure Protection | ||
| 290 | ||
| High Performance Sandwich Panel Construction Techniques | ||
| 291 | ||
| Project M | ||
| 291 | ||
| Intelligent Systems Consortium (ISC) Initiative | ||
| 291 | ||
| Cascading Vehicles Concept for Advanced Littoral Operations | ||
| 291 | ||
| Review of Multiple Missile Systems | ||
| 291 | ||
| Disruptive Technology Opportunities Fund (DTOF) | ||
| 292 | ||
| Supply Chain Practices for Affordable Navy Systems (SPANS) | ||
| 292 | ||
| Center for Coastline Security Technology | ||
| 293 | ||
| Joint Operational Test Bed (JOTBS) | ||
| 293 | ||
| Nano-Imprint at Manufacturing Scale (NIMS) | ||
| 293 | ||
| Composite Ceramic Unmanned Underwater Vehicle | ||
| 293 | ||
| AH-1Y/UH-1Z Tailboom | ||
| 293 | ||
| CV-22 Osprey | ||
| 294 | ||
| VXX Helicopter Program | ||
| 294 | ||
| Navy Converged Enterprise Resource Planning | ||
| 294 | ||
| Research, Development, Test and Evaluation, Air Force | ||
| 302 | ||
| Space Based Infrared System (SBIRS) High | ||
| 312 | ||
| Space Based Radar | ||
| 312 | ||
| E-10A Multi-Mission Command and Control Aircraft | ||
| 314 | ||
| Bomber Development | ||
| 315 | ||
| Airborne Electronic Attack | ||
| 316 | ||
| Bomber Tactical Data Links | ||
| 316 | ||
| National Aerospace Leadership Initiative | ||
| 317 | ||
| Research, Development, Test and Evaluation, Defense-Wide | ||
| 326 | ||
| Comparative Genomics for National Security Goals | ||
| 337 | ||
| Operationally Responsive Satellite | ||
| 337 | ||
| Chemical and Biological Defense Program | ||
| 337 | ||
| California Manufacturing Technology Center (CMTC) | ||
| 337 | ||
| Defense Acquisition Challenge Program | ||
| 337 | ||
| Business Management Modernization Program | ||
| 338 | ||
| Ballistic Missile Defense System (BMDS) Summary | ||
| 338 | ||
| Aegis Missile Defense Program | ||
| 340 | ||
| BMDS Operation and Maintenance | ||
| 340 | ||
| Integrated Flight Test--13C (IFT-13C) | ||
| 340 | ||
| Advanced Multipurpose Microdisplay System | ||
| 341 | ||
| Operational Test and Evaluation, Defense | ||
| 347 | ||
| TITLE V. REVOLVING AND MANAGEMENT FUNDS | 351 | |
| Defense Working Capital Funds | ||
| 351 | ||
| Defense Working Capital Funds Reduction | ||
| 351 | ||
| National Defense Sealift Fund | ||
| 351 | ||
| Maritime Pre-Positioning Force (Future) | ||
| 351 | ||
| TITLE VI. OTHER DEPARTMENT OF DEFENSE PROGRAMS | 353 | |
| Defense Health Program | ||
| 353 | ||
| Defense Health Program--Reprogramming | ||
| 357 | ||
| Walter Reed Army Medical Center--Amputee Patient Care Program | ||
| 357 | ||
| Landstuhl Army Medical Center | ||
| 357 | ||
| Army Fisher Houses | ||
| 358 | ||
| Third-Party Collections | ||
| 358 | ||
| Mental Health Services | ||
| 358 | ||
| Limited Access to Military Treatment Facilities in Rural Areas | ||
| 359 | ||
| Chemical Agents and Munitions Destruction, Army | ||
| 359 | ||
| Drug Interdiction and Counter-Drug Activities, Defense | ||
| 361 | ||
| Volume Test Site for Point Sensors | ||
| 361 | ||
| Tethered Aerostat Program | ||
| 361 | ||
| Hemispheric Radar System | ||
| 361 | ||
| Office of the Inspector General | ||
| 362 | ||
| TITLE VII. RELATED AGENCIES | 363 | |
| National Foreign Intelligence Program | ||
| 363 | ||
| Classified Annex | ||
| 363 | ||
| Central Intelligence Agency Retirement and Disability System Fund | ||
| 363 | ||
| Intelligence Community Management Account | ||
| 364 | ||
| Payment to Kaho'olawe Island Conveyance, Remediation, and Environmental Restoration Fund | ||
| 364 | ||
| National Security Education Trust Fund | ||
| 364 | ||
| TITLE VIII. GENERAL PROVISIONS | 365 | |
| Definition of Program, Project, and Activity | ||
| 365 | ||
| TITLE IX. ADDITIONAL APPROPRIATIONS | 367 | |
| Chapter 1 | Submission of Budget Amendment | |
| 367 | ||
| Committee Recommendations | ||
| 368 | ||
| Reporting Requirements | ||
| 369 | ||
| Abuse of Prisoners | ||
| 370 | ||
| INC Financial Review | ||
| 370 | ||
| Military Personnel | ||
| 371 | ||
| Operation and Maintenance | ||
| 372 | ||
| Iraq Freedom Fund | ||
| 372 | ||
| Procurement | ||
| 372 | ||
| Miscellaneous Procurement | ||
| 374 | ||
| Vehicle Force Protection | ||
| 375 | ||
| Defense Working Capital Funds | ||
| 376 | ||
| Defense Health Program | ||
| 376 | ||
| Outsourcing Oversight of Defense Contracts | ||
| 377 | ||
| Chapter 2 | Department of State | |
| 377 | ||
| Administration of Foreign Affairs | ||
| 377 | ||
| Diplomatic and Consular Programs | ||
| 377 | ||
| Embassy Security, Construction, and Maintenance | ||
| 378 | ||
| Chapter 3 | Bilateral Economic Assistance | |
| 378 | ||
| Funds Appropriated to the President | ||
| 378 | ||
| United States Agency for International Development | ||
| 378 | ||
| International Disaster and Famine Assistance | ||
| 378 | ||
| Department of State | ||
| 378 | ||
| Migration and Refugee Assistance | ||
| 378 | ||
| General Provisions--This Title | ||
| 379 | ||
| HOUSE OF REPRESENTATIVES REPORTING REQUIREMENTS | 381 | |
| Changes in the Application of Existing Law | ||
| 381 | ||
| Appropriations Language | ||
| 381 | ||
| General Provisions | ||
| 383 | ||
| Appropriations Not Authorized by Law | ||
| 387 | ||
| Transfer of Funds | ||
| 388 | ||
| Rescissions | ||
| 389 | ||
| Compliance With Clause 3 of Rule XIII (Ramseyer Rule) | ||
| 389 | ||
| Statement of General Performance Goals and Objectives | ||
| 393 | ||
| Constitutional Authority | ||
| 393 | ||
| Comparison With the Budget Resolution | ||
| 393 | ||
| Five-Year Outlay Projections | ||
| 394 | ||
| Financial Assistance to State and Local Governments | ||
| 394 | ||
| Additional Views | ||
| 408 |
2d Session
108-553
--DEPARTMENT OF DEFENSE APPROPRIATIONS BILL, 2005
[To accompany H.R. 4613]
The Committee on Appropriations submits the following report in explanation of the accompanying bill making appropriations for the Department of Defense, and for other purposes, for the fiscal year ending September 30, 2005.
BILL TOTALS
Appropriations for most military functions of the Department of Defense are provided for in the accompanying bill for the fiscal year 2005. This bill does not provide appropriations for military construction, military family housing, civil defense, or nuclear warheads, for which requirements are considered in connection with other appropriations bills.
The President's fiscal year 2005 budget request for activities funded in the Department of Defense Appropriations Bill totals $417,807,305,000 in new budget (obligational) authority. This amount includes $392,807,305,000 requested on February 3, 2004, as part of the President's overall fiscal year 2005 budget submission, and $25,000,000,000 requested in a budget amendment on May 12, 2004.
The amounts recommended by the Committee in the accompanying bill total $416,153,100,000 in new budget authority for the Department of Defense. This includes $25,000,000,000 for incremental costs of operations in Iraq and Afghanistan. 1
[Footnote] This total is $47,458,539,000 above the sums made available for the Department of Defense in fiscal year 2004. 2
[Footnote] An additional $780,300,000 has been provided in title IX of the bill, for emergency funding requirements of the Department of State.
[Footnote 1: If the bill is enacted before October 1, 2004, these amounts for Iraq and Afghanistan will be considered fiscal year 2004 budget authority.]
[Footnote 2: This amount does not include $62,906,554,000 in fiscal year 2004 supplemental appropriations and rescissions provided in Public Laws 108-106 and 108-199.]
COMMITTEE BUDGET REVIEW PROCESS
During its review of the fiscal year 2005 budget, the Subcommittee on Defense held a total of nine hearings during the period of February 2004 to May 2004. Testimony received by the Subcommittee totaled 771 pages of transcript. Approximately half of the hearings were held in open session. Executive (closed) sessions were held only when the security classification of the material to be discussed presented no alternative.
INTRODUCTION
The Committee's consideration of the fiscal year 2005 Department of Defense Appropriations bill has been shaped by the need to carefully examine and balance the formidable array of challenges confronting America's armed forces.
The Nation is at war on multiple fronts. Military operations in Iraq, Afghanistan, and the broader global war on terrorism have made it imperative that the Department of Defense and the Congress respond by providing the necessary resources to support our deployed forces. These demands are far from trivial--the situation in Iraq coupled with these other operations have led to the largest mobilization in decades.
It is clear that these deployments, especially Operation Iraqi Freedom, will remain the focus of our armed forces for some time. It is also becoming clearer with each passing day that these operations are generating great strains on the current force, in terms of both manning and equipment. The Committee is deeply concerned that these stresses are creating many near- and mid-term challenges which have yet to be fully factored into Department of Defense plans and budgets.
While looking to address these immediate and mid-term concerns in this legislation, the Committee also is mindful of the need to provide for the longer-term investments required to ensure the viability of the U.S. military in the future.
FISCAL YEAR 2005 BUDGET REQUEST
The President's fiscal year 2005 defense budget submitted in February 2004 was largely a `peacetime budget', as the Administration initially announced it intended to request funds for war-related costs through the supplemental appropriations process.
Accordingly, this budget reflected the Administration's emphasis on strongly supporting improved pay and benefits for service members, and increases in peacetime training and readiness accounts. In the acquisition arena, the budget request gave continued priority to developing new generations of ground combat vehicles, ships and aircraft, many of which embrace so-called `defense transformation'--be it in technology, acquisition scheme, or operational employment. The budget also reflected the need to address emerging threats by proposing increased funding for intelligence, the development of missile defenses and counters to chemical and biological attacks, and a series of other transformational technologies including new satellites and unmanned aircraft.
BUDGET AMENDMENT FOR OPERATIONS IN IRAQ AND AFGHANISTAN
As originally submitted, the fiscal year 2005 request did not include funds to support the ongoing costs resulting from operations in Iraq and Afghanistan. Funds for these operations were to be requested at the beginning of 2005 in a supplemental appropriations request. The situation in theater has evolved, however, and as a result, on May 12, 2004, the President submitted a budget amendment for the Department of Defense, requesting $25,000,000,000 for incremental operational costs associated with Iraq and Afghanistan operations. These appropriations are intended to serve as a funding bridge until early next year when a fiscal year 2005 supplemental request will be submitted to cover the remaining costs of the Iraq and Afghanistan operations, as well as the global war on terrorism.
UNFUNDED DEMANDS
Largely due to timing, the Committee notes that the President's budget does not include funding to address two major emerging requirements, both centered on the nation's ground forces.
First, at roughly the same time the budget was submitted the Army announced the most ambitious restructuring of its combat formations in decades. This reorganization, known as `modularity', will transform the structure of Army divisions to create additional combat relevant units, centered on brigades. This plan will not just lead to a more flexible, deployable Army, but by creating additional combat formations, it should contribute to the reduction of stress on our troops resulting from the high operational tempo of recent years. The Army is moving rapidly to institute this new structure, but no funds for this initiative were requested in the fiscal year 2005 budget.
Second, the fiscal year 2005 budget, prepared last year, does not address the new set of recapitalization challenges confronting all the services--but particularly the Army and Marine Corps--as a result of Operations Iraqi Freedom and Enduring Freedom. As stated in recent congressional testimony by the Chairman of the Joint Chiefs of Staff,
`The equipment that we leave is being used very hard, more than we've ever used in peacetime. So as we look at future budgets . . . we have to program in . . . the ability to fix this equipment if it can be fixed through depot, or replaced, if it has to be replaced.'
The Committee concurs.
COMMITTEE VIEWS
Thus, the biggest challenge the Committee faced this year was to seek a balance between these competing imperatives. The Committee's priorities are to sustain current operations, readiness, and force well-being; ensure our forces' ability to respond to other potential conflicts in the not-too-distant future; and use our limited resources to proceed surely, but effectively, with military transformation.
To meet these objectives, the Committee finds itself largely in agreement with many aspects of the overall direction of the Administration as reflected in the fiscal year 2005 budget. Amending the budget to provide for early fiscal year 2005 operational costs of Iraq and Afghanistan is both prudent and necessary. Also, the Committee has long stressed the need for adequate funding for military pay, quality of life, and readiness programs, and supports these priorities as requested in the President's budget.
As for the Department's acquisition programs, in general the Committee believes that many of the `transformational' programs under development are worthy objectives, both playing to American advantages and future threat environments. These programs stress the use of modern information technology and manufacturing techniques to produce more agile, flexible, and lethal combat platforms and systems. After thorough examination, however, the Committee has concluded that a consistent theme runs through many of these programs, as proposed in the fiscal year 2005 budget--namely, the development programs are currently too aggressive and optimistic in terms of research, testing, and production profiles. The Committee believes that a more measured `transition to transformation' is in order, especially in the areas of Naval surface combatants and Army combat vehicles.
Finally, the Committee believes it imperative to begin now a meaningful program that addresses what will surely be the long-term need to refurbish and rebuild our ground forces. There is no question that the combination of combat losses and extraordinary rates of operational tempo make this necessary, as is the need to deal with strain on certain elements of the domestic industrial base, for items such as ammunition.
For its future budgets, the Committee believes the Department must confront the reality that its ongoing contingency operations must lead to some serious rethinking of its needs, and the budgets and programs to meet them. The Department would be wise to step back and take a broad look at the changed circumstances now confronting the military--as the Committee has done--to develop a balanced, effective fiscal plan and program for the coming years.
MAJOR RECOMMENDATIONS IN THE COMMITTEE BILL
To meet near-term needs, the Committee provides funds to:
- Support continued operations in Iraq and Afghanistan;
- Fight the Global War on Terrorism;
- Maintain readiness; and
- Fully fund military pay, benefits, and medical programs.
For the mid-term the Committee bill:
- Initiates a program to recapitalize our ground forces;
- Supports continued production of major platforms such as the Virginia class submarine, the C-17, C-130, and V-22 transports, and the F/A-18 and F/A-22 fighters;
- Supports the initial deployment of national missile defenses and continued investment in theater missile defenses; and
- Makes recommendations on certain programs that will allow the Department to `transition to transformation'.
For the long-term, the Committee supports the Department's efforts to transform, but makes appropriate adjustments to programs that have `come too far, too fast'.
A more detailed summary of major programs follows:
Fiscal Year 2005 Operational Costs- The Committee bill proposes $25,000,000,000 in title IX to defray operational costs in Iraq and Afghanistan. Within this amount, the Committee provides funding for added manpower requirements stemming from these operations and the increases in end strength approved by the House in its consideration of the National Defense Authorization Act for Fiscal Year 2005. This amount also includes over $14 billion for operation and maintenance; addresses critical force protection requirements such as Up-armored HMMWVs and individual body armor; and provides funding in support of the Army brigade restructuring initiative, as it applies to units which will be rotating into theater.
Ground Forces Recapitalization- The Committee bill provides increases over the budget request totaling $2.2 billion for the Army and Marine Corps. Of this amount, some $330 million is directed to the Guard and Reserve component. This recapitalization package includes--
- $1.3 billion for combat vehicles--including procurement of equipment for an additional Stryker brigade combat team ($950 million) above that programmed in the budget;
- $503 million for helicopters;
- $390 million for trucks and other support vehicles; and
- $52 million for the ammunition production base.
These recommendations begin the process of restocking our ground forces' fleets, recognizes the `transformational' character of the Army's restructuring/modularity process, and provides a more robust transitional force for the Army on the path to transformation.
Military Personnel and Medical Programs- The Committee bill fully funds the military pay raises proposed in the President's budget, and also supports the request for Basic Allowance for Housing, eliminating service members' average out-of-pocket housing expenses from 3.5 percent to zero in fiscal year 2005. Nearly $18 billion is recommended for the Defense Health Program, an increase of $2.2 billion over fiscal year 2004, and funding for military-related medical research and related initiatives is increased by nearly over $900 million over requested levels.
Readiness Accounts.--The Committee bill provides the requested levels of funding for land forces training, tank training miles, helicopter flying hours, ship steaming days, Air Force and Navy flying hour programs.
Missile Defense Program.--The Committee bill recommends $9.7 billion for missile defense programs, an increase of over $632 million from fiscal year 2004 levels and a net decrease of $458 million from the budget request. This amount includes $4.4 billion for ground-based midcourse missile defense, in support of fielding a national missile defense initial operational capability in the autumn of 2004 as proposed by the President. For theater missile defense, the Committee has provided $938 million for production, modification and continued development of Patriot PAC-3 missiles and the next generation MEADS systems.
Chemical and Biological Defense Initiatives.--The Committee bill provides nearly $1.7 billion for procurement and development of chemical and biological defenses under the Defense-Wide appropriations, with additional funding for mobile chemical agent detection, air contaminant monitoring systems, early warning and detection programs, and miniature chemical and biological detectors.
Future Combat System.--The Committee bill provides $2.9 billion, an increase over fiscal year 2004 of $1.2 billion and a decrease of $324 million to the budget request. The Committee bill fully funds the requested amount for the Non Line of Sight Cannon (NLOS-C) and directs its fielding by not later than 2010.
Shipbuilding Programs.--The Committee bill provides a total of $10.2 billion for shipbuilding procurement and has fully funded amounts requested for fiscal year 2005 production ships, including one Virginia-class submarine, one Trident SSGN conversion, and three DDG-51 destroyers. An additional $225 million is allocated towards a DDG-51 modernization program and for procurement of an additional DDG-51 in the future.
As for future ship development, the Committee recommends $953 million for the next-generation CVN-21 carrier; $409 million for the Littoral Combat Ship, an addition of $57 million over the request; and a total of $1.2 billion for the DD(X) program, a reduction of $248 million from the request owing to a decision to defer construction of the first DD(X) ship.
Major Aviation Programs.--The Committee makes the following recommendations:
Army: The Committee approves termination of the RAH-66 Comanche program and redistributes funding to other Army aviation programs, as proposed by the Army, and adds $463 million over the request for additional Blackhawk and Chinook helicopters.
Navy/Marine Corps: Funding is provided for 42 F/A-18 fighters, 8 Marine Corps V-22's and 2 E-2C surveillance aircraft as requested in the budget.
Air Force: The Committee recommends $3.6 billion for 24 F/A-22 fighters, and adds $158 million to the C-17 program to procure 15 aircraft, one over the request. The Committee proposes $100 million for a `Tanker Replacement Transfer Fund', to be used for the eventual acquisition of KC-767 tankers. $100 million is added for continued development of the B-2 and a next-generation bomber program.
Joint Strike Fighter.--The Committee bill recommends $4.4 billion, an increase of $116 million from fiscal year 2004 levels, for the Joint Strike Fighter development program. This amount represents a net decrease of $204 million from the request reflecting schedule slips. Funds are added for design work on the STOVL variant of this aircraft.
Space Programs.--The Committee bill provides $560 million for the Space Based Infrared System (SBIRS-High), an increase of $91 million over the request; and provides $520 million for Enhanced Expendable Launch Vehicle (EELV) procurement. Development funding for the Advanced Wideband System and Mobile User Objective System programs is reduced, owing to concerns regarding technical maturation, risk reduction, and likely expenditure rates. Funding for the Space Based Radar program is reduced to $75 million, with direction to return this effort back to the technology development phase.
COMMITTEE RECOMMENDATIONS BY MAJOR CATEGORY
MILITARY PERSONNEL
In title I, the Committee recommends a total of $104,191,558,000 for active, Reserve and Guard military personnel costs, a reduction of $620,000,000 from the fiscal year 2005 budget request and $5,737,877,000 over the amount appropriated in fiscal year 2004.
The Committee supports the budget request proposal of a 3.5 percent pay raise for military personnel effective January 1, 2005, as well as the proposal to eliminate the remaining 3.5 percent out-of-pocket housing costs.
The Committee has funded the end strength levels as requested in the President's budget request for active duty and Selected Reserve personnel. Funds in title IX of the bill provide additional funds for the increased end strength resulting from ongoing contingency operations, and those levels approved by the House in its version of the National Defense Authorization Act for Fiscal Year 2005.
OPERATION AND MAINTENANCE
In title II of the bill, the Committee recommends a total of $120,568,274,000 for Operation and Maintenance support to the Service elements and other Department of Defense entities, a reduction of $1,306,315,000 from the fiscal year 2005 budget request and $4,653,397,000 over the amount appropriated in fiscal year 2004.
The Committee's recommendation fully funds the President's request for readiness training in flying hours, ship steaming and ground forces operational tempo training. Requests for unit and depot level maintenance program funding have been fully supported. Transformational initiatives, including the Army's Flight School XXI and the Navy's Fleet Response Plan have been fully supported.
In addition, the Committee's recommendation includes an increase of $500,000,000 in additional operating account funding to address many of the Department's funding shortfalls. Increased funding has been included for individual soldier and Marine field equipment, small all terrain vehicles, general purpose tents and mobility shelters, training and support facilities, joint training capabilities, training on urbanized terrain, military and civilian workforce safety, education programs, and distance learning.
PROCUREMENT
In title III of the bill, the Committee recommends a total of $77,354,791,000 for procurement of equipment, an increase of $2,692,474,000 over the fiscal year 2005 budget request and $2,698,744,000 over the amount appropriated in fiscal year 2004.
Major program initiatives include:
$2,441,900,000 for Guard and Reserve equipment
$406,937,000 for 39 UH-60 Blackhawk helicopters
$1,039,450,000 for CH-47 helicopter modifications
$654,460,000 for Apache Longbow modifications
$489,253,000 for 108 Patriot missiles
$245,378,000 for Bradley Fighting Vehicle sustainment
$1,855,074,000 for Stryker Brigades
$457,692,000 for High Mobility Multi-Purpose Wheeled Vehicles (HMMWV)
$610,664,000 for Family of Medium Tactical Vehicles (FMTV)
$212,538,000 for Family of Heavy Tactical Vehicles (FHTV)
$2,907,456,000 for 42 F/A-18 E/F Fighter aircraft
$846,571,000 for 8 Navy V-22 aircraft and $305,581,000 for 3 Air Force V-22 aircraft
$241,792,000 for 9 UH-1Y/AH-1Z helicopters
$295,595,000 for 15 MH-60S helicopters
$134,555,000 for 4 airlift aircraft
$329,558,000 for 14 trainer aircraft
$58,835,000 for H-53 modifications
$160,970,000 for P-3 modifications
$967,613,000 for spares and repair parts for Navy and Marine Corps aircraft
$256,196,000 for 293 Tactical Tomahawk missiles
$1,994,754,000 for Navy weapons
$1,581,143,000 for 1 Virginia Class submarine
$469,226,000 for the last SSGN conversion
$3,444,950,000 for 3 DDG-51 Guided Missile Destroyers
$966,559,000 for 1 LPD-17 Class ship
$132,696,000 for AAV7A1 Product Improvement Program
$235,545,000 for 155MM Lightweight Towed Howitzer
$3,603,769,000 for 24 F-22 Raptor aircraft
$23,023,000 for modifications to F-117 stealth fighter-bombers to maintain a fleet of 51 aircraft
$2,671,079,000 for 15 C-17 tactical airlift aircraft
$202,178,000 for 3 Global Hawk High Altitude UAVs
$186,609,000 for 13 Predator Medium Altitude UAVs
$100,000,000 for tanker replacement and the establishment of a Tanker Replacement Transfer Fund
$769,171,000 for 11 C-130J airlift aircraft
$234,103,000 for Air Force aircraft spares and repair parts
$519,997,000 for 3 Evolved Expendable Launch Vehicles
$3,840,199,000 for procurement of ammunition for all Services
RESEARCH, DEVELOPMENT, TEST AND EVALUATION
In title IV of the bill, the Committee recommends a total of $68,946,512,000 for Research, Development, Test and Evaluation programs, an increase of $1,174,224,000 over the fiscal year 2005 budget request and $3,728,628,000 over the amount appropriated in fiscal year 2004.
Major program initiatives include:
$2,873,653,000 for the Future Combat System including $497,643,000 for the Non Line of Sight Cannon (NLOS-C)
$141,600,000 for the Theater Support Vessel (TSV)
$4,367,927,000 for the Joint Strike Fighter (JSF) F-35 program
$710,401,000 for the Joint Unmanned Combat Aerial System (JUCAS) program
$1,182,785,000 for the DD(X) next generation Guided Missile Destroyer
$409,080,000 for the Littoral Combat Ship (LCS)
$237,969,000 for the Expeditionary Fighting Vehicle (EFV)
$132,389,000 for the UH-1Y/AH-1Z development
$253,164,000 for V-22 Osprey development and test flights
$557,398,000 for the VXX Executive helicopter replacement program
$50,000,000 for future bomber development
$458,860,000 for development of E-10A and MP-RTIP radar
$50,000,000 for improvements to the B-2 bomber
$344,538,000 for continued development of F/A-22 capability
$674,836,000 for the Advanced Wideband System (AWS) Satellite
$612,049,000 for the Advanced EHF Satellite
$599,488,000 for the Space Based Infrared System (SBIRS) High Satellite
$307,668,000 for the National Polar-Orbiting Operational Environmental Satellite
OTHER ITEMS OF INTEREST FUNDED IN THE BILL
$1,694,338,000 for the Chemical Biological Defense Program
$8,688,772,000 for the programs of the Ballistic Missile Defense Agency
REPROGRAMMING, WITHHOLDING, AND `TAXING' APPROPRIATED FUNDS
In recent years, the Committee has become increasingly troubled with practices of the Department of Defense (DoD) which involve the withholding and redirection of appropriated funds from activities provided for by the Congress. Recent developments with respect to the research, development, test and evaluation appropriations are of special concern. The following discussion addresses how DoD executes the movement of a significant level of appropriated funds among programs through mechanisms such as reprogramming funds, withholding funds, and charging `taxes' on funds that pass through the control of various departmental organizations.
Reprogrammings.--This is the process by which DoD formally transfers funds from one program or activity--as approved in an appropriations act and delineated in a committee report--to another program or activity. The Congress understands there are instances in which DoD should be allowed to make such funding shifts, and this has manifested itself in the provision of transfer authority in appropriations acts and the establishment of reprogramming guidelines by the congressional defense committees. These guidelines include setting both dollar thresholds and `item of special interest' designations, under which DoD is obliged to seek the prior approval of the congressional defense committees before executing the movement of funds. An above-threshold reprogramming (ATR) requires approval of the congressional defense committees. A below-threshold reprogramming (BTR) does not, except in limited instances, include any requirement for congressional notification or approval.
In both fiscal years 2003 and 2004, the Committees on Appropriations temporarily raised the threshold for a BTR movement of funds. The new BTR guidance was raised to $20,000,000 for procurement (P-1 items) and $10,000,000 for Research, Development, Test and Evaluation (R-1 items), with current direction stating that the threshold shall be the specific dollar limitation ($20,000,000 for procurement and $10,000,000 for RDT&E) or 20 percent of the line, whichever is less.
The Committee believes these reprogramming guidelines provide sufficient management flexibility for DoD, but is concerned that the guidelines are not applied consistently within the Department. Indeed, the Committee has observed increased use of BTRs by both the Office of the Secretary of Defense (OSD) and the military services in a manner which is often inconsistent and in clear violation of congressional intent. Especially troubling is evidence suggesting below threshold reprogrammings have been used to initiate new start development programs without congressional notification.
Program Funding Withholds.--Withheld funds are those funds appropriated to, but not released to, programs for some portion of their availability period. Withholds are executed at the OSD and Service level, and are often justified when a program is experiencing programmatic issues or when congressional adjustments require additional information. These amounts should be released for expenditure to the programs for which the funds were appropriated when either OSD or the service involved is confident the program can proceed.
`Taxes'.--The term `taxes' refers euphemistically to amounts directed by either Departmental or Service entities to be set aside from amounts appropriated to programs, in order to be used for another purpose. Examples of taxes include reductions and redirection of funds resulting from statutory requirements, including those mandated to meet Small Business Innovative Research (SBIR) requirements, or `across-the-board' reductions applied in response to explicit direction in appropriations acts. However, according to a General Accounting Office (GAO) review, program managers do not apply statutory taxes in an equitable manner. Further, these items are not separately identified in budget documentation in support of each Research, Development, Text and Evaluation (RDT&E) appropriation request. It is therefore impossible to determine if the Department is properly executing the requirements of the law.
The Committee has also learned that other, so-called `non-statutory taxes', are being increasingly applied to programs by OSD or the Services, in order to generate funds to accommodate shortfalls in other programs or fund new requirements. GAO has informed the Committee that in both 2003 and 2004 program managers anticipated they would be required to set aside two to three percent of a program's appropriation to pay for taxes. Some of the amounts set aside as taxes are used to initiate new programs or new research that has not been presented to Congress, and for which an appropriation has not been approved.
The routine use of BTRs, withholds, and taxes is increasing and becoming more widespread, affecting nearly every program. Of particular concern is that the scope and the impact of their use are not readily visible to the Committee, and in some cases, not visible to OSD or Service headquarters. Moreover, according to GAO the use of these mechanisms can have a substantial impact on the funding levels for specific programs, and in some cases lead to a major redirection of a program after the appropriation has been enacted. There have been instances in which cumulatively, more than 10 percent of funding for a particular program has been shifted to other purposes.
The Department of Defense claims these mechanisms are necessary tools to effectively manage its acquisition-related appropriations. The Committee recognizes the need for the Department to have some flexibility to meet emergencies, react to unexpected opportunities, and make the most efficient use of funds. However, too much flexibility can encourage unrealistic budgeting and inefficient management practices, blur accountability, and weaken oversight. For example many program managers seek funding in excess of program requirements, to mitigate the financial impact of these mechanisms against their programs. The Committee concludes that while these actions may indeed provide flexibility, they constitute a terrible business practice and encourage poor management habits within the Department.
In addition, the lack of visibility into changes in appropriated funding levels for programs is of great concern. Current requirements for financial reports to the Committee provide information that is often late, inaccurate, and non-specific. Moreover, in many instances the Department does not have adequate internal systems for management tracking and analysis of this information. It is telling that while the DoD continually presses the Congress generally and the Committee specifically for more flexibility in the management of appropriated funds, it cannot provide itself or the Committee adequate and timely information on the current use or impact of such fiscal management mechanisms.
Most importantly, the Committee is concerned that the extensive use of these practices, coupled with a failure to provide adequate visibility into their use and impact, substantially increases the risk that the Department of Defense may be circumventing the intent of the Congress.
Committee Recommendation
Regarding so-called `non-statutory' taxes, the Committee believes that the two-to-three percent level noted by GAO in recent years has been assumed in the amounts requested in the fiscal year 2005 budget. Budgeting for amounts in anticipation that they will be redirected to other programs is not acceptable. Therefore, the Committee bill includes section 8020, which reduces the fiscal year 2005 budget request for the Research, Development, Test and Evaluation appropriations (Title IV of the committee bill) by $685,000,000. This reduction shall be applied to each budgeted program element, project and activity. Appropriations made to programs in direct support of the National Foreign Intelligence Program (NFIP) are exempt from the application of section 8020.
Further, the Committee directs the Department of Defense to end the practice of setting aside funds--taxing appropriations made for particular programs--without a statutory requirement to do so. The amounts appropriated in 2005 for each program designated in the appropriate tables in this report shall not be altered by any departmental entity through the application of non-statutory taxes or set asides.
Finally, in order to determine the application of statutory taxes, the Committee directs that future budget requests include a separate identification of the amount of an RDT&E appropriation request that will be set aside as a tax to fulfill each statutory requirement.
Reporting Requirements
By February 1, 2005, the Secretary of Defense is directed to provide the Committee--
- (a) Timely and complete data, by RDT&E program element, on the use of the Department's current flexibility mechanisms, including withholds, reprogrammings (i.e., actual BTRs as well as ATRs) and taxes during fiscal year 2004, as of September 30, 2004, and
- (b) A proposal for reporting fiscal year 2005 data to the Committee on the BTRs and ATRs executed to funds appropriated for procurement and RDT&E programs, by program element, as part of the Accounting Report 1002 process, or some other method that provides regular and timely information.
Also, the Committee believes that not later than 90 days after enactment of the Department of Defense Appropriation Act, 2005, the Undersecretary of Defense (Comptroller) should establish a working group of members of the Senior Executive Service with extensive experience in financial management and budgetary execution. This group should work to develop alternative and improved methods for providing visibility, flexibility, accountability, and oversight (both internal to the Department and to the Congress) in the management of research and development appropriations. This group should provide, through the Office of the Secretary of Defense, an interim and final report on the alternatives and methods explored, including the advantages and disadvantages of each, and provide recommendations for the establishment of new guidelines for the Department of Defense.
SECURITY AND FINANCIAL REVIEWS REGARDING IRAQI NATIONAL CONGRESS
The Committee is gravely concerned about recent allegations of security compromises associated with members of the Iraqi National Congress (INC), who may have provided highly sensitive U.S. intelligence information to a foreign government. Additional allegations of financial improprieties have been brought to light from recent Iraqi justice system proceedings. In the portion of this report dealing with funds provided for title IX, the Committee directs that the Office of Management and Budget provide a comprehensive report addressing all sources of funding and other support provided to the INC between 1998 and the current fiscal year. Further direction to the Intelligence Community regarding these matters is included in the classified annex accompanying this report.
FORCES TO BE SUPPORTED
DEPARTMENT OF THE ARMY
The fiscal year 2005 budget request is designed to support active Army forces of 10 divisions, 2 armored cavalry regiments, 2 separate brigades, and reserve forces of 8 divisions, 3 separate brigades, and 15 enhanced National Guard brigades (6 enhanced brigades will be aligned under 2 AC/ARNG integrated division headquarters). These forces provide the minimum force necessary to meet enduring defense needs and execute the National Military Strategy. The Army is in the process of converting to a modular brigade based force. At end state, the active Army force will contain 43-48 maneuver Units of Action. The Army National Guard will transition to 33 Units of Action and 1 Stryker Brigade Combat Team (SBCT).
A summary of the major forces follows:
---------------------------------------------------------------------------------
Fiscal year
2003 2004 2005
---------------------------------------------------------------------------------
Divisions:
Airborne 1 1 1
Air Assault 1 1 1
Light 2 2 2
Infantry 0 0 0
Mechanized 4 4 4
Armored 2 2 2
Total 10 10 10
Non division Combat units:
Armored Cavalry Regiments 3 3 2
Separate Brigades 1 1 2
Total 4 4 4
Active duty military personnel, end strength (thousands) 480.0 480.0 482.4
---------------------------------------------------------------------------------
DEPARTMENT OF THE NAVY
The fiscal year 2005 budget request supports battle forces totaling 292 ships at the end of fiscal year 2004, including 18 strategic submarines, 12 aircraft carriers, 226 other battle force ships, 1,614 Navy/Marine Corps tactical/ASW aircraft, 729 Undergraduate Training aircraft, 479 Fleet Air Training aircraft, 296 Fleet Air Support aircraft, 378 Reserve aircraft and 443 in the pipeline.
A summary of the major forces follows:
-----------------------------------------------------------
Type Fiscal year
2003 2004 2005
-----------------------------------------------------------
Strategic Forces: 18 18 18
Submarines 18 18 18
General Purpose: 245 241 238
Aircraft Carriers 12 12 12
Surface Combatants 98 94 91
Submarines (Attack) 54 55 55
Amphibious Warfare Ships 36 35 36
Combat Logistics Ships 34 34 33
Mine Warfare 11 11 11
Support Forces: 21 21 21
Mobile Logistics Ships 2 2 2
Support Ships 19 19 19
Mobilization Cat. A (Reserve) 14 15 15
Surface Combatants 8 9 9
Amphibious Warfare Ships 0 0 0
Mine Warfare 6 6 6
Total Ships, Battleforce 298 295 292
Auxiliaries/Sea Lift Forces: 159 160 157
Coastal Defense 13 13 8
Maritime Preposition 17 17 17
Fast Sealift/Other 12 12 12
Ready Reserve Force/LMS RORO 79 79 79
Naval Fleet Aux Force 38 39 41
Naval Aircraft:
Primary Authorized (plus Pipe) 4,062 4,175 4,100
Authorized Pipeline 437 460 443
Tactical/ASW Aircraft 1,680 1,623 1,614
Fleet Air Training 470 484 479
Fleet Air Support 329 332 296
Training (Undergraduate) 745 727 729
Reserve 409 385 378
Naval Personnel:
Active:
Navy 382,235 373,800 365,900
Marine Corps 177,779 175,000 175,000
Reserve:
14,384 14,152 69,248 14,578
2,261 2,261 37,339 2,261
-----------------------------------------------------------
DEPARTMENT OF THE AIR FORCE
The fiscal year 2005 Air Force budget request is designed to support active, guard, and reserve forces, including 87 combat coded fighter and attack squadrons and 8 combat coded strategic bomber squadrons. The ICBM force maintains 605 launch facilities with 500 Minuteman missiles, with the Peacekeeper missile force completing deactivation. The budget also supports our critical airlift mission, including 22 active duty airlift squadrons. To accomplish the Air Force mission, the 2005 budget supports a Total Force end strength of 542,600.
A summary of the major forces follows:
-----------------------------------------------------------------------------------
Fiscal year
2003 2004 2005
-----------------------------------------------------------------------------------
Summary of Major Forces:
USAF Fighter and Attack Squadrons (Active, ANG, AFRC) 86 88 87
Active 45 45 46
ANG 36 37 36
AFRC 5 6 5
Strategic Bomber Squadrons (Active) 8 8 7
Strategic Bomber Squadrons (AFRC) 1 1 1
Flight Test Units (DT and OT units with assigned aircraft) 11 12 12
Fighter 8 9 9
Bomber 3 3 3
ICBM Operational Launch Facilities/Control Centers 605 605 605
ICBM Missile Inventory 533 516 500
USAF Airlift Squadrons (Active):
Strategic Airlift Squadrons 12 14 13
Tactical Airlift Squadrons 10 10 9
Total Active Airlift Squadrons 22 24 22
Total Air Force Aircraft Inventory 5,851 5,854 5,776
-----------------------------------------------------------------------------------
----------------------------------------------------
Endstrength FY 2003 PB FY 2004 PB FY 2005 PB
----------------------------------------------------
Active Duty 375,062 359,300 359,700
Reserve Component 182,891 182,830 182,900
Air National Guard 108,137 107,030 106,800
Air Force Reserve 74,754 75,800 76,100
----------------------------------------------------
TITLE I
MILITARY PERSONNEL
PROGRAMS AND ACTIVITIES FUNDED BY MILITARY PERSONNEL APPROPRIATIONS
The President's fiscal year 2005 budget request continues to increase funding for military pay, housing allowances, recruiting and retention programs, and overall quality of life programs for active duty and Guard and Reserve personnel.
The budget request proposed an increase in basic pay for all personnel by 3.5 percent, effective January 1, 2005, and proposed eliminating the remaining 3.5 percent out-of-pocket housing costs for military members. The Committee supports the enhancements to recruiting, retention, military pay and increased housing benefits for fiscal year 2005.
SUMMARY OF MILITARY PERSONNEL RECOMMENDATIONS FOR FISCAL YEAR 2005
------------------------------------------------
------------------------------------------------
Fiscal year 2004 $98,453,681,000
Fiscal year 2005 budget request 104,811,558,000
Fiscal year 2005 recommendation 104,191,558,000
Change from budget request -620,000,000
------------------------------------------------
The Committee recommends an appropriation of $104,191,558,000 for the Military Personnel accounts. The recommendation is an increase of $5,737,877,000 above the $98,453,681,000 appropriated in fiscal year 2004. These military personnel budget total comparisons include appropriations for the active, reserve, and National Guard accounts. The following tables include a summary of the recommendations by appropriation account. Explanations of changes from the budget request appear later in this section.
The fiscal year 2005 budget request includes a net decrease of 7,500 end strength for the active forces and a decrease of approximately 2,400 end strength for the Selected Reserve over fiscal year 2004 authorized levels.
The Committee recommends the following levels highlighted in the tables below.
OVERALL ACTIVE END STRENGTH
----------------------------------------------------------
----------------------------------------------------------
Fiscal year 2004 estimate 1,390,500
Fiscal year 2005 budget request 1,383,000
Fiscal year 2005 recommendation 1,383,000
Compared with Fiscal year 2004 -7,500
Compared with Fiscal year 2005 budget request
----------------------------------------------------------
OVERALL SELECTED RESERVE END STRENGTH
--------------------------------------------------------
--------------------------------------------------------
Fiscal year 2004 estimate 863,330
Fiscal year 2005 budget request 860,900
Fiscal year 2005 recommendation 860,900
Compared with Fiscal year 2004 -2,430
Compared with Fiscal year 2005 budget request
--------------------------------------------------------
-------------------------------------------------------------------------------------------------------
FY 2004 estimate Fiscal year 2005
Budget request Recommendation Change from request
-------------------------------------------------------------------------------------------------------
Active Forces (end strength):
Army 482,400 482,400 482,400
Navy 373,800 365,900 365,900
Marine Corps 175,000 175,000 175,000
Air Force 359,300 359,700 359,700
Total, Active Force 1,390,500 1,383,000 1,383,000
Guard and Reserve (end strength):
Army Reserve 205,000 205,000 205,000
Navy Reserve 85,900 83,400 83,400
Marine Corps Reserve 39,600 39,600 39,600
Air Force Reserve 75,800 76,100 76,100
Army National Guard 350,000 350,000 350,000
Air National Guard 107,030 106,800 106,800
Total, Guard and Reserve 863,330 860,900 860,900
-------------------------------------------------------------------------------------------------------
ADJUSTMENTS TO MILITARY PERSONNEL ACCOUNT
OVERVIEW
END STRENGTH ADJUSTMENTS
The Committee recommends the requested end strength levels as proposed in the budget. The Committee is aware that unprecedented retention levels and stop loss policies associated with the Global War on Terrorism have had an influence on the Services' end strength, causing them to exceed their mandated active duty end strength levels. Thus, the Services anticipate ending fiscal year 2004 significantly above their authorized end strength levels. The Committee has provided additional funds for the active duty military personnel accounts in title IX of the bill to address these additional manpower expenses.
ACCURACY OF OBLIGATIONS
The Committee recommends a reduction of $499,700,000 to the budget request, based on a General Accounting Office (GAO) analysis of prior year unexpended military personnel account balances. Even though some Services and components have improved the annual certification of the accuracy of present and prior year obligation balances, not all of the funds obligated are expended, and those unexpended balances are not always identified in the annual review certification process. Because the Services' and components' accounting data continue to show a pattern of under spending their appropriated funds, the Committee believes that the fiscal year 2005 military personnel budget request is overstated and can be reduced.
The Committee continues to believe the Services can improve their appropriations balance review below the budget activity level to ensure that funds are properly obligated and expended for the purposes appropriated. The Committee again directs the Secretary of Defense to ensure that all the Services and Guard and Reserve components strengthen the annual review and certification process by including a review of the accuracy of prior year obligations below the budget activity level.
PERSONNEL STRENGTHS
Because military personnel strengths are the foundation upon which the military personnel budget is built, it is vital that budget justification documents accurately reflect expected monthly strengths by rank. Without monthly strength information to use for the overview of work years, the Committee will not be able to assess the accuracy of the Services' personnel budget requests, as the General Accounting Office has found over the last several years. The Committee, therefore, again directs the Services to provide an annual budget justification exhibit, which displays the expected monthly personnel strengths by pay grades. The Committee further directs the Services to provide the requested exhibit in support of the fiscal year 2005 budget request for use in budget deliberations. This exhibit should also include the projected monthly strength of Guard and Reserve personnel mobilized in support of the Global War on Terrorism, broken out by officer and enlisted.
GUARD AND RESERVE WORKYEAR REQUIREMENTS
The Committee recommends a reduction of $55,000,000 to the budget request for Guard and Reserve workyear requirements. For a number of years, the General Accounting Office (GAO) has found that the Guard and Reserve components overstate, in many cases, the average strength of military personnel budgeted. This occurs when the budgeted positions are not manned, and when the Guard and Reserve components overstate inactive duty training (IDT) and annual training (AT) participation rates they use to estimate their budgets. In the past, the Committee has directed the Secretary of Defense to ensure that the Guard and Reserve components determine their participation rates based on the actual number of personnel participating in training, determined by the number of personnel paid.
Last year, the Committee directed the Department to report on the determination of Reserve components participation rates. The Assistant Secretary of Defense for Reserve Affairs provided a report in early March 2004, which provided a summary of how the Guard and Reserve components determine participation rates for selected training activities, and notes some progress by some components in developing more accurate participation rates. However, the report does not indicate how the Office of the Secretary of Defense plans to ensure that participation rates accurately reflect the percentage of personnel actually being paid for training. GAO has found that this determination can be made using pay data to confirm the number of personnel being trained. Additionally, because of the many ways in which personnel are supporting the Global War on Terrorism and the relationships, direct and indirect, to individual and unit training requirements, it is important that accurate participation rates be used to assure that funding is provided where it is needed. Therefore, the Committee directs the Secretary of Defense to ensure that all Guard and Reserve components use participation rates in the budget based on the number of personnel paid for training.
MILITARY TECHNICIANS COST AVOIDANCE
The Committee recommends a reduction of $221,400,000 to the budget request based on a General Accounting Office (GAO) analysis of actual mobilization data for approximately 8,300 Army and Air Force Guard and Reserve military (civilian) technicians mobilized in support of the Global War on Terrorism. To the extent that mobilization continues in fiscal year 2005, funds required in the Operation and Maintenance accounts for military technicians' compensation and related benefits can be reduced since these full-time support personnel are being covered by the Military Personnel appropriations accounts.
BUDGET JUSTIFICATION DOCUMENTS FOR MILITARY PERSONNEL
The Committee directs the Secretary of Defense to include in congressional justification materials for the services military personnel budget requests an exhibit of the Summary of Price and Program Changes (PB-31D), similar to that provided in the Operation and Maintenance budget exhibits. The Committee directs the Department to standardize the format of the PB-31D for all military personnel accounts to provide subactivity group, line item level of detail beginning with the budget justification materials for fiscal year 2006, and thereafter.
REIMBURSEMENT OF CITIZENSHIP FEES
The Committee directs the Secretary of Defense to identify each member or former member of the Armed Forces who, during the period beginning July 3, 2002, and ending October 1, 2004, applied for naturalization under the authority of section 328 or 329 of the Immigration and Nationality Act (8 U.S.C. 1439, 1440), and to use funds made available under Title I of this Act to reimburse the member for any fees paid by the member for filing the application for naturalization or for the issuance of a certificate of naturalization upon being granted citizenship, other than the portion of any such fee required to be paid to a State rather than the United States.
FULL-TIME SUPPORT STRENGTHS
There are four categories of full-time support in the Guard and Reserve components: civilian technicians, active Guard and Reserve (AGR), non-technician civilians, and active component personnel.
Full-time support personnel organize, recruit, train, maintain and administer the Reserve components. Civilian (Military) technicians directly support units, and are very important to help units maintain readiness and meet the wartime mission of the Army and Air Force.
Full-time support end strength in all categories totaled 154,956 in fiscal year 2004. The fiscal year 2005 budget request is 156,674 end strength. The following table summarizes Guard and Reserve full-time support end strengths:
GUARD AND RESERVE FULL-TIME END STRENGTHS
-----------------------------------------------------------------------------------------
FY 2004 estimate Budget request Recommendation Change from request
-----------------------------------------------------------------------------------------
Army Reserve:
AGR 14,374 14,970 14,970
Technicians 7,844 8,094 8,094
Navy Reserve:
TAR 14,384 14,152 14,152
Marine Corps Reserve:
AR 2,261 2,261 2,261
Air Force Reserve:
AGR 1,660 1,900 1,900
Technicians 9,991 9,954 9,954
Army National Guard:
AGR 25,599 26,476 26,476
Technicians 26,189 26,676 26,676
Air National Guard:
AGR 12,191 12,225 12,225
Technicians 23,240 23,306 23,306
Total:
AGR/TAR 70,469 71,984 71,984
Technicians 67,264 68,030 68,030
-----------------------------------------------------------------------------------------
MILITARY PERSONNEL, ARMY
------------------------------------------------
------------------------------------------------
Fiscal year 2004 appropriation $28,247,667,000
Fiscal year 2005 budget request 29,723,472,000
Committee recommendation 29,507,672,000
Change from budget request -215,800,000
------------------------------------------------
The Committee recommends an appropriation of $29,507,672,000 for Military Personnel, Army. The recommendation is an increase of $1,260,005,000 above the $28,247,667,000 appropriated for fiscal year 2004.
PROGRAM RECOMMENDED
The total amount recommended in the bill will provide the following program in fiscal year 2005:
The adjustments to the budget activities for Military Personnel, Army are shown below:
| [In thousands of dollars] | |
| Budget Activity 2: Pay and Allowances of Enlisted Personnel: | |
| 1050 Special Pays/Selective Reenlistment Bonuses | -6,300 |
| Undistributed: | |
| 3200 Unobligated Balances | -209,500 |
MILITARY PERSONNEL, NAVY
------------------------------------------------
------------------------------------------------
Fiscal year 2004 appropriation $23,217,298,000
Fiscal year 2005 budget request 24,459,957,000
Committee recommendation 24,416,157,000
Change from budget request -43,800,000
------------------------------------------------
The Committee recommends an appropriation of $24,416,157,000 for Military Personnel, Navy. The recommendation is an increase of $1,198,859,000 above the $23,217,298,000 appropriated for fiscal year 2004.
PROGRAM RECOMMENDED
The total amount recommended in the bill will provide the following program in fiscal year 2005:
The adjustments to the budget activities for Military Personnel, Navy are shown below:
| [In thousands of dollars] | |
| Budget Activity 2: Pay and Allowances of Enlisted Personnel: | |
| 7350 Special Pays/Selective Reenlistment Bonuses | -9,800 |
| Undistributed: | |
| 9550 Unobligated Balances | -34,000 |
MILITARY PERSONNEL, MARINE CORPS
-----------------------------------------------
-----------------------------------------------
Fiscal year 2004 appropriation $8,971,897,000
Fiscal year 2005 budget request 9,595,902,000
Committee recommendation 9,591,102,000
Change from budget request -4,800,000
-----------------------------------------------
The Committee recommends an appropriation of $9,591,102,000 for Military Personnel, Marine Corps. The recommendation is an increase of $619,205,000 above the $8,971,897,000 appropriated for fiscal year 2004.
PROGRAM RECOMMENDED
The total amount recommended in the bill will provide the following program in fiscal year 2005:
The adjustment to the budget activities for Military Personnel, Marine Corps is shown below:
| [In thousands of dollars] | |
| Budget Activity 2: Pay and Allowances of Enlisted Personnel: | |
| 12400 Special Pays/Selective Reenlistment Bonuses | -4,800 |
MILITARY PERSONNEL, AIR FORCE
------------------------------------------------
------------------------------------------------
Fiscal year 2004 appropriation $22,910,868,000
Fiscal year 2005 budget request 24,510,811,000
Committee recommendation 24,291,411,000
Change from budget request -219,400,000
------------------------------------------------
The Committee recommends an appropriation of $24,291,411,000 for Military Personnel, Air Force. The recommendation is an increase of $1,380,543,000 above the $22,910,868,000 appropriated for fiscal year 2004.
PROGRAM RECOMMENDED
The total amount recommended in the bill will provide the following program in fiscal year 2005:
The adjustments to the budget activities for Military Personnel, Air Force are shown below:
| [In thousands of dollars] | |
| Budget Activity 2: Pay and Allowances of Enlisted Personnel: | |
| 17300 Special Pays/Selective Reenlistment Bonuses | -48,000 |
| Undistributed: | |
| 19620 Unobligated Balances | -171,400 |
RESERVE PERSONNEL, ARMY
-----------------------------------------------
-----------------------------------------------
Fiscal year 2004 appropriation $3,568,725,000
Fiscal year 2005 budget request 3,733,590,000
Committee recommendation 3,719,990,000
Change from budget request -13,600,000
-----------------------------------------------
The Committee recommends an appropriation of $3,719,990,000 for Reserve Personnel, Army. The recommendation is an increase of $151,265,000 above the $3,568,725,000 appropriated for fiscal year 2004.
PROGRAM RECOMMENDED
The total amount recommended in the bill will provide the following program in fiscal year 2005:
The adjustments to the budget activities for Reserve Personnel, Army are shown below:
| [In thousands of dollars] | |
| Undistributed: | |
| 23900 Unobligated Balances | -11,500 |
| 23950 Reserves Cost Avoidance | -2,100 |
RESERVE PERSONNEL, NAVY
-----------------------------------------------
-----------------------------------------------
Fiscal year 2004 appropriation $2,002,727,000
Fiscal year 2005 budget request 2,171,632,000
Committee recommendation 2,108,232,000
Change from budget request -63,400,000
-----------------------------------------------
The Committee recommends an appropriation of $2,108,232,000 for Reserve Personnel, Navy. The recommendation is an increase of $105,505,000 above the $2,002,727,000 appropriated for fiscal year 2004.
PROGRAM RECOMMENDED
The total amount recommended in the bill will provide the following program in fiscal year 2005:
The adjustments to the budget activities for Reserve Personnel, Navy are shown below:
| [In thousands of dollars] | |
| Undistributed: | |
| 25300 Unobligated Balances | -48,400 |
| 25370 Reserves Cost Avoidance | -15,000 |
RESERVE PERSONNEL, MARINE CORPS
---------------------------------------------
---------------------------------------------
Fiscal year 2004 appropriation $571,444,000
Fiscal year 2005 budget request 654,973,000
Committee recommendation 653,073,000
Change from budget request -1,900,000
---------------------------------------------
The Committee recommends an appropriation of $653,073,000 for Reserve Personnel, Marine Corps. The recommendation is an increase of $81,629,000 above the $571,444,000 appropriated for fiscal year 2004.
PROGRAM RECOMMENDED
The total amount recommended in the bill will provide the following program in fiscal year 2005:
The adjustment to the budget activities for Reserve Personnel, Marine Corps is shown below:
| [In thousands of dollars] | |
| Undistributed: | |
| 26600 Unobligated Balances | -1,900 |
RESERVE PERSONNEL, AIR FORCE
-----------------------------------------------
-----------------------------------------------
Fiscal year 2004 appropriation $1,288,088,000
Fiscal year 2005 budget request 1,464,050,000
Committee recommendation 1,451,950,000
Change from budget request -12,100,000
-----------------------------------------------
The Committee recommends an appropriation of $1,451,950,000 for Reserve Personnel, Air Force. The recommendation is an increase of $163,862,000 above the $1,288,088,000 appropriated for fiscal year 2004.
PROGRAM RECOMMENDED
The total amount recommended in the bill will provide the following program in fiscal year 2005:
The adjustments to the budget activities for Reserve Personnel, Air Force are shown below:
| [In thousands of dollars] | |
| Undistributed: | |
| 27900 Unobligated Balances | -10,300 |
| 27910 Reserves Cost Avoidance | -5,400 |
| 27930 932nd Airlift Wing Personnel | 3,600 |
NATIONAL GUARD PERSONNEL, ARMY
-----------------------------------------------
-----------------------------------------------
Fiscal year 2004 appropriation $5,500,369,000
Fiscal year 2005 budget request 5,950,729,000
Committee recommendation 5,915,229,000
Change from budget request -35,500,000
-----------------------------------------------
The Committee recommends an appropriation of $5,915,229,000 for National Guard Personnel, Army. The recommendation is an increase of $414,860,000 above the $5,500,369,000 appropriated for fiscal year 2004.
PROGRAM RECOMMENDED
The total amount recommended in the bill will provide the following program in fiscal year 2005:
The adjustments to the budget activities for National Guard Personnel, Army are shown below:
| [In thousands of dollars] | |
| Undistributed: | |
| 29350 Unobligated Balances | -10,500 |
| 29410 Reserves Cost Avoidance | -25,000 |
NATIONAL GUARD PERSONNEL, AIR FORCE
-----------------------------------------------
-----------------------------------------------
Fiscal year 2004 appropriation $2,174,598,000
Fiscal year 2005 budget request 2,546,442,000
Committee recommendation 2,536,742,000
Change from budget request -9,700,000
-----------------------------------------------
The Committee recommends an appropriation of $2,536,742,000 for National Guard Personnel, Air Force. The recommendation is an increase of $362,144,000 above the $2,174,598,000 appropriated for fiscal year 2004.
PROGRAM RECOMMENDED
The total amount recommended in the bill will provide the following program in fiscal year 2005:
The adjustments to the budget activities for National Guard Personnel, Air Force are shown below:
| [In thousands of dollars] | |
| Undistributed: | |
| 30550 Unobligated Balances | -2,200 |
| 30600 Reserves Cost Avoidance | -7,500 |
TITLE II
OPERATION AND MAINTENANCE
The fiscal year 2005 budget request for programs funded in Title II of the Committee bill, Operation and Maintenance, is $121,874,589,000 in new budget authority, which is an increase of $5,959,712,000 above the amount appropriated for fiscal year 2004.
The accompanying bill recommends $120,568,274,000 for fiscal year 2005, which is an increase of $4,653,397,000 above the amount appropriated for fiscal year 2004. These appropriations finance the costs of operating and maintaining the Armed Forces, including the Reserve components and related support activities of the Department of Defense (DoD), except military personnel costs. Included are pay for civilians, services for maintenance of equipment and facilities, fuel, supplies, and spare parts for weapons and equipment. Financial requirements are influenced by many factors, including force levels such as the number of aircraft squadrons, Army and Marine Corps divisions, installations, military personnel strength and deployments, rates of operational activity, and the quantity and complexity of equipment such as aircraft, ships, missiles and tanks in operation.
The table below summarizes the Committee's recommendations.
OPERATION AND MAINTENANCE OVERVIEW
The President's fiscal year 2005 budget request represents a $5,959,712,000 increase above fiscal year 2004 in Title II, Operation and Maintenance, exclusive of supplemental funding provided for continuation of military operations in Afghanistan and Iraq. The Administration's initial request did not include funding for the contin