Appropriations for FY1999: Military Construction

98-210 F

CRS Report for Congress

Received through the CRS Web

Appropriations for FY1999:

Military Construction

Updated November 10, 1998

Mary T. Tyszkiewicz

Analyst in National Defense

Foreign Affairs and National Defense Division

Congressional Research Service ˜ The Library of Congress

Appropriations are one part of a complex federal budget process that includes budget

resolutions, appropriations (regular, supplemental, and continuing) bills, rescissions, and

budget reconciliation bills. The process begins with the President’s budget request and is

bounded by the rules of the House and Senate, the Congressional Budget and Impoundment

Control Act of 1974 (as amended), the Budget Enforcement Act of 1990, and current program

authorizations. In addition, the line item veto took effect for the first time in 1997.

This report is a guide to one of the 13 regular appropriations bills that Congress passes each

year. It is designed to supplement the information provided by the House and Senate

Appropriations Subcommittees on Military Construction Appropriations. It summarizes the

current legislative status of the bill, its scope, major issues, funding levels, and related

legislative activity. The report lists the key CRS staff relevant to the issues covered and

related CRS products.

This report is updated as soon as possible after major legislative developments, especially

following legislative action in the committees and on the floor of the House and Senate.

NOTE: A Web version of this document with

active links is available to congressional staff at

[http://www.loc.gov/crs/products/apppage.html]

Appropriations for FY1999: Military Construction

Summary

The military construction (MilCon) appropriations bill finances (1) military

construction projects in the United States and overseas; (2) military family housing

operations and construction; (3) U.S. contributions to the NATO Security Investment

Program; and (4) most base realignment and closure costs.

This report reviews the appropriations and authorization process for military

construction. The congressional debate perennially centers on the adequacy of the

President’s budget for military construction needs and the cases for and against

congressional additions, especially for Guard and Reserve projects. This year, key

Members of Congress have argued that the Pentagon has neither funded nor planned

adequately for military construction.

For FY1999, the Administration has requested budget authority of $7.8 billion.

This is down from the FY1996 level of $11.1 billion, the FY1997 level of $9.8 billion

and the FY1998 level of $8.9 billion. On May 21, the House passed their version of

the FY1998 defense authorization bill, H.R. 3616 (H.Rept. 105-532). On May 7, the

Senate Armed Services Committee finished marking up its version, S. 2057 (S.Rept.

105-189). The Senate passed the defense authorization bill on June 25. The

conference report (H Rept. 105-736) passed the House on September 24, and the

Senate on October 1. The FY1999 authorization bill became Public Law 105-261 on

October 17, 1998.

The military construction appropriations subcommittees have finished their work.

The conference committee submitted their report (H. Rept. 105-647) for H.R. 4059

on July 24. The House agreed to the conference report (417-1), on July 29, with the

Senate agreeing (87-3) on September 1. It became Public Law 105-237 on

September 20, 1998.

The conference recommended $8.450B. The conference committee added

$666M to the President's request. Even with the additional funds, the FY1999 total

is $759M less than what was enacted for FY1998. This is an additional $216M to

the House bill and a reduction of $31M from the Senate bill.

Military construction accounts received emergency supplemental appropriations

money for FY1999 in the Omnibus Consolidation bill (H.R. 4328, H.Rept. 105-825)

in October 1998. Due to monsoons in Korea and Hurricanes Georges & Bonnie,

military construction projects secured an additional $209 million in funding.

Appropriations and authorization hearings on the FY1999 military construction

budget have highlighted the following issues:

! importance of housing to the quality of life for servicemembers;

! privatization of military family housing and barracks improvements;

! Base Realignment and Closure (BRAC) concerns;

! environmental issues; and

! advanced procurement for Army military construction.

Key Policy Staff

Area of Expertise

Name

CRS Division

Tel.

Base Closure

David Lockwood

F

7-7621

Defense Acquisition

Valerie Grasso

F

7-7617

Defense Budget, Military Construction Mary Tyszkiewicz

F

7-3144

Defense Budget

Stephen Daggett

F

7-7642

Defense Reform

Gary Pagliano

F

7-1750

Guard and Reserve Issues

Robert Goldich

Division abbreviations: F = Foreign Affairs.

F

7-7633

Contents

Most Recent Developments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Background: Content of Military Construction Appropriations and Defense

Authorization Bills . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1

Status . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

Appropriations Process

..................................................... 3

Emergency Supplemental Appropriations for FY1999 . . . . . . . . . . . . 3

Conference Agreement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3

House and Senate Actions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

Budget Agreement . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4

Authorization Process . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5

Key Policy Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

Recent History and Context . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

The Funding Pattern for Military Construction Budgets . . . . . . . . . . . 6

Funding and Long-term Planning for Military Construction: Inadequate?

................................................. 7

The Debate Over Added Projects and the McCain Criteria . . . . . . . . . 8

The FY1998 Line Item Veto . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9

Prospects for Congressional Additions to the FY1999 Military

Construction Budget . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10

Ongoing Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10

Importance of Housing to the Quality of Life for Servicemembers . . 10

Privatization of Military Family Housing . . . . . . . . . . . . . . . . . . . . . 11

Barracks Improvements . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12

Base Realignment and Closure (BRAC) Concerns . . . . . . . . . . . . . . 13

Environmental Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13

Use of Advanced Procurement for Army Military Construction . . . . 14

Major Funding Trends . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

Legislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15

For Additional Information . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20

CRS Issue Briefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20

CRS Reports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20

Selected World Wide Web Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20

List of Tables

Table 1. Status of Military Construction Appropriations, FY1999 . . . . . . . . . . 3

Table 2. Mil. Con. Appropriations, FY1994-98 . . . . . . . . . . . . . . . . . . . . . . . . 16

Table 3. Mil. Con. Appropriations by Account: FY1997-99 . . . . . . . . . . . . . . 17

Table 4. Mil. Con. Appropriations by Account - Congressional Action . . . . . . . 18

Table 5. Congressional Additions to Annual Department of Defense Budget Requests

for National Guard and Reserve Military Construction, FY1985-98 . . . . . 19

Appropriations for FY1999:

Military Construction

Most Recent Developments

The military construction appropriations bill became Public Law 105-237 on

September 20, 1998. The conference report (H. Rpt. 105-647) for H.R. 4059 was

passed by the House on July 27 and the Senate on September 1. The conference

recommended $8.450B.

The conference committee added $666M to the President's request. Even with

the additional funds, the total for FY1999 is $759M less than what was enacted for

FY1998. This is an additional $216M to the House bill and a reduction of $31M

from the Senate bill.

Military construction accounts received emergency supplemental

appropriations money for FY1999 in the Omnibus Consolidation bill (H.R. 4328,

H.Rept. 105-825) in October 1998. Due to monsoons in Korea and Hurricanes

Georges & Bonnie, military construction projects secured an additional $209 million

in funding.

Background: Content of Military Construction

Appropriations and Defense Authorization Bills

The Department of Defense manages the world’s largest dedicated

infrastructure, covering over 40,000 square miles of land and a physical plant worth

over $500 billion. The annual military construction appropriations bill provides most

of the funding to maintain and upgrade this infrastructure. The bill funds construction

projects and real property maintenance of the active Army, Navy & Marine Corps, Air

Force, and their reserve components; defense-wide construction; U.S. contributions

to the NATO Security Investment Program (formerly called the NATO Infrastructure

Program); and military family housing operations and construction. The bill also

provides funding for the Base Realignment and Closure (BRAC) account, which

finances most base realignment and closure costs, including construction of new

facilities for transferred personnel and functions, and environmental cleanup at closing

sites.

The military construction appropriations bill is one of several annual pieces of

legislation that provide funding for national defense. Other major legislation includes

(1) the defense appropriations bill, that provides funds for all military activities of the

Department of Defense, except for military construction; (2) the national defense

CRS-2

authorization bill, that authorizes appropriations for national defense,1 and (3) the

energy and water development appropriations bill, that provides funding for atomic

energy defense activities of the Department of Energy. Three other appropriations

— VA-HUD-Independent Agencies, Commerce-Justice-State, and Transportation —

also include small amounts for national defense. In addition, the energy and water

development appropriations bill provides funds for civil projects carried out by the

U.S. Army Corps of Engineers.

The annual defense authorization bill authorizes all the activities in the defense

appropriations measures described above. Therefore, major debates over defense

policy and funding issues, including military construction may also occur in action on

the authorization bill. Since issues in the defense authorization and appropriations are

so interwoven, this report highlights salient parts of the authorization bill, along with

the military construction appropriations process.

Military construction appropriations are the major, but not the sole, source of

funds for facility investments by the military services and defense agencies. The

defense appropriations bill provides some funds for real property maintenance in

operation and maintenance accounts. In addition, funds for construction and

maintenance of “Morale, Welfare, and Recreation (MWR)” facilities, are partially

provided through proceeds from commissaries, recreation user fees, and other

income.

Most funds appropriated by Congress each year must be obligated in that fiscal

year. Military construction appropriations are an exception.2 These funds are

generally made available for obligation for five fiscal years.

Consideration of the military construction budget starts when the President’s

budget is delivered to the Congress each year. For FY1999, the President requested

$7.8 billion for military construction, 12% less than the $8.9 billion appropriated for

FY1998.

1

See Appropriations for FY1999: Defense, by Stephen Daggett, CRS Report 98-205, for

details on the defense authorization and appropriation process.

2

Department of Defense accounts vary in how long the funds are available for obligation.

Military personnel and operations & maintenance accounts are available for one year.

Research and development funds are available for two years. Procurement funds (with the

exception of shipbuilding) are available for three years.

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Status

Table 1 shows the key legislative steps necessary for the enactment of the

FY1999 military construction appropriations.

Table 1. Status of Military Construction Appropriations, FY1999

Subcommittee

Markup

House

6/16

Senate

House

Report

House

Passage

Senate

Report

Senate

Passage

Conference

Report

6/22

S.Rept.

105-213,

6/11/98

6/25

6/11

H.Rept

105-578,

6/16/98

H.Rept. 105647,

7/24/98

Conference Report

Approval

House

H.Rept.

105-647

7/29

Senate

Public Law

9/1

P.L. 105237

9/20/98

Appropriations Process

Emergency Supplemental Appropriations for FY1999. Military construction

accounts received emergency supplemental appropriations money for FY1999 in the

Omnibus Consolidation bill (H.R. 4328, H.Rept. 105-825) in October 1998. Due to

monsoons in Korea and Hurricanes Georges & Bonnie, military construction projects

secured an additional $209 million in funding.

Conference Agreement. The military construction appropriations bill became

Public Law 105-237 on September 20, 1998. The conference report (H.Rept. 105647) for H.R. 4059 was passed by the House by a vote of 417 - 1 on July 27 and the

Senate on September 1 by a vote of 87-3.

The conference recommended $8.450B. The conference committee added

$666M to the President's request. Even with the additional funds, the FY1999 total

is $759M less than what was enacted for FY1998. This is an additional $216M to

the House bill and a reduction of $31M from the Senate bill.

The conference agreement included full funding of the requested chemical

demilitarization program. However, the conference included a general reduction of

$50.5M of unobligated prior year funds against the entire program, because of delays

in equipment and environmental & construction permits.

The DOD Family Housing Improvement Fund was reduced to $2M from $242M

in the House bill and $7M in the Senate bill. The large reduction in the House bill

reflects full funding of construction projects in traditional family housing accounts,

rather than the Family Housing Improvement Fund. Transfer authority to the Fund

is provided for qualified projects from regular family housing accounts.

The conference committee noted that 90% of resources expended for the House

Revitalization Support Office (HRSO) for FY1996-98 was for consultant support.

Therefore, the conferees reduced support for Family Housing Improvement Fund to

$2M, based on available balances and excessive allocation for consultative services.

CRS-4

The conferees also noted the delay in execution of family housing projects, for

possible privatization efforts. The conference expects from DOD, a revised, scaledback, reasonable plan for the privatization effort by October 1, 1998 and an integrated

family housing strategy by December 1, 1998.

The Homeowners Assistance Fund had no funds appropriated by the conference.

Instead the conference adopted Section 127, which allows the transfer of funds from

the Base Realignment and Closure account into the Homeowners Assistance Fund.

House and Senate Actions. Based on the interim 302 (B) allocations (see

Budget Agreement section below), the military construction appropriations

subcommittees finished their work. The Senate Appropriations Committee (SAC)

approved their version of the military construction bill (S. 2160) with report (S.Rept.

105-213) on June 11. SAC approved $8.484 billion. The House Appropriations

Committee finished their bill (H.R. 4059) with report (H.Rept. 105-578) on June 16.

HAC approved $8.235 billion.

The House passed H.R. 4059 on June 2 with the HAC-approved total. The

Senate passed their bill on June 25, with the SAC-approved total.

Of the $8.2 billion appropriated in the House FY1999 Military Construction

Appropriations Bill (H.R. 4059), 43% is for family housing; 37% for general military

construction projects and 21% is to meet the obligations of the Base Realignment and

Closure (BRAC). In the $8.5 billion appropriated in the Senate (S. 2160), 42% is for

family housing, 37% for general military construction projects, and 20% is to meet

BRAC obligations.

The military construction subcommittees had similar themes in their reports.

Both subcommittees rejected Administration proposals for:

! advanced appropriations for Army military construction, citing the difficulty

to project future costs and that the requested advance appropriations projects

were not identified in DOD justification documents;

! acquisition of either the leased building or additional land for U.S. Southern

Command Headquarters, relocated from Panama to Miami, Florida; and

! devolution of chemical demilitarization construction from Office of the

Secretary of Defense to the Army, because of the importance of this activity

to overall national security.

Both committees — like their authorization counterparts — lamented general

underfunding by the DOD of military construction, especially for decreasing

maintenance backlogs and increasing quality of life projects.

The House Appropriations Committee decided to put all requested privatization

projects from the Family Housing Construction Account into the Family Housing

Improvement Fund, increasing the budget request of $7 million to $242 million. This

allocation will enforce the use of privatization authorities mechanisms for these

projects.

Budget Agreement. Usually, the budget resolution sets the stage for the

appropriations process. However, the work on this year’s agreement is not completed

CRS-5

yet. The House and Senate are still in conference deliberations for the FY1999

budget resolution.

While they wait for the completed budget agreements, the appropriations

committees are beginning their work. Both committees have released tentative 302

(B) allocations to their subcommittees. The Senate Appropriations Committee has

allocated $8.484 billion in budget authority for military construction, which is an

additional $700 million (an increase of 8.9% ) than the President’s request of $7.8

billion. The House Appropriations Committee gave $8.235 billion (an increase of

400 million or 5%) to the Military Construction Appropriations Subcommittee for

FY1999.

Authorization Process

On May 21, the House approved $8.2 billion for military construction in its FY

1999 defense authorization bill (H.R. 3616), which is $450 million more than the

President’s request. The House National Security Committee reported that 40%

($183 million) of the increase is dedicated to quality of life enhancements. The

committee highlighted additions to family housing, troop housing, child development

centers, and fitness centers. (For more detailed information on the FY1999 House

authorization bill, see the press releases and committee reports and bill sections on the

House National Security Home Page at [http://www.house.gov./nsc/].

On May 7, the Senate Armed Services Committee (SASC) approved $500

million more than the Administration’s FY1999 budget in S. 2057. The SASC

designated $164 million of the additional money for unaccompanied personnel

quarters, child development centers, dining facilities, education centers, and military

family housing. The remaining $336 million is for high-priority projects submitted by

the military services that were not funded in the President’s request.

The Senate passed S. 2057 on June 25. It added $200 million of quality of life

military construction projects to the SASC bill, by amendment. The Senate also made

it harder for DOD to close military bases passing the Inhofe amendment. The

amendment makes the DOD seek congressional approval for closing bases if 225 jobs

are at stake, instead of current law's 300 jobs limit. Also, the Inhofe amendment

contained a Sense of the Senate statement that Congress will not consider another

round of base closures until the latest round is completed.

The HNSC and SASC came to some similar decisions about the FY1999

President’s military construction budget request.

! In their respective reports, both the HNSC (H.Rept. 105-532) and the SASC

(S.Rept. 105-189) noted the low budget request compared to prior years (15%

less than the FY1998 enacted amount).

! Both defense authorizing committees rejected the Administration’s proposal

for two more base closure rounds, and for acquiring a leased building or land

in Miami, Florida for U.S. Southern Command Headquarters.

! Both committees rejected the Administration’s proposal to move funding for

chemical demilitarization construction from the Office of Secretary of Defense

(OSD) to the Army. Because of the national importance of this issue, the

CRS-6

committees believe that authority should stay within OSD. Each committee

noted delays in DOD’s obligation of money for chemical demilitarization

projects, often because of construction and environmental permit problems.

The Senate cut $50 million from the program because of the backlog of

unobligated funds.

The Senate authorizers noted the trend for the DOD to fund military

construction projects with prior year savings instead of including full funding for the

military construction budget. The trend started in the FY1997 and continued through

to the FY1999 proposal. The SASC denied the use of prior year savings and expects

the DOD to fully fund military construction requests in future budgets.

The defense authorization conference report (H.Rept. 105-736) passed the

House on September 24, and the Senate on October 1. The FY1999 authorization

bill became P.L. 105-261 on October 17, 1998.

Key Policy Issues

Recent History and Context

The Funding Pattern for Military Construction Budgets. In recent years,

the Congress has added significant amounts to annual Administration’s military

construction budget requests. Congress added $479 million in FY1996, $850 million

in FY1997 and $800 million in FY1998 to the military construction accounts.

Three themes explain the pattern of reoccurring congressional additions. First,

some members of the military construction subcommittees believe that military

construction has been chronically underfunded. Military construction proponents,

including facility advocates in the military services, argue that military facilities have

been systematically underfunded for many years — even, some say, in the midst of the

defense buildup of the 1980s.

In arguing that military construction has been chronically underfunded, DOD

facility managers state that they have not met their goal of budgeting 3% of the plant

replacement value of DOD facilities for annual construction and maintenance (called

real property maintenance at the Pentagon). Although this 3% goal is below the

average for public facilities nationwide, actual DOD funding has typically run at 1 to

2% of plant replacement value. For example, the Air Force testified on March 11,

1998 to the House National Security Subcommittee for Military Installations and

Facilities that the Air Force could manage to budget only 1% for real property

maintenance. Thus, facility proponents welcome congressional additions.3

Second, other Members of Congress, as Senator Bond commented during the

floor debate on FY1996 military construction appropriations, believe that the

Pentagon counts on Congress to add money to Guard and Reserve programs. In

3

For a discussion of this and related issues, see CRS Report 91-669, Military Construction:

Current Controversies and Long-Term Issues, by Martin Cohen and Stephen Daggett.

CRS-7

recent years, Congress has added as much as $401.8 million (FY1995) for National

Guard and Reserve construction projects. (See Table 5.)

Third, often Congress has different priorities from the Administration.

Congressional military construction subcommittees — authorization as well as

appropriations subcommittees — have often taken issue with Administration military

construction priorities. In the 1990s, for example, the committees frequently reduced

amounts requested for construction overseas — on the grounds that troop levels

abroad should be reduced and that allied burden-sharing contributions should increase

— and reallocated the funds to domestic projects. In addition, congressional

committees have added unrequested funds for quality of life improvements, such as

day care centers and barracks renovation. The congressional defense committees

have argued that the military services have tended to neglect these areas in favor of

warfighting investments.

Funding and Long-term Planning for Military Construction: Inadequate?

Along with concern about the level of funding, Members of Congress have also

complained that poor Pentagon planning make it difficult for the Congress to insure

that added military construction projects meet pressing priorities.

The military construction budget request is created within the Department of

Defense’s Planning, Programming and Budgeting System (PPBS).4 The PPBS

process is used to prepare DOD’s internal, long-term financial plan. The long-term

plan extends over a six-year period and is known as the Future Years Defense Plan

(FYDP). In the 1990s, congressional defense committees repeatedly criticized the

Pentagon’s long-term planning for military construction.

In the FY1998 hearings, the Chairman of the House Subcommittee on Military

Construction, Representative Ron Packard chastised the Department of Defense for

repeatedly failing to submit “honest” budgets reflecting real service priorities. He

complained that the military construction request traditionally leaves out necessary

projects, especially for the National Guard and Reserve, which the services expect

Congress to add. Mr. Packard wanted the subcommittee to get out of the business

of adding money for projects that the administration had not requested, but yet

apparently needs. He also wanted DOD and the Services to use the Future Years

Defense Plan (FYDP) rigorously to set priorities for their construction projects and

to integrate Guard and Reserve needs.

In testimony on the FY1998 request to the Military Construction Subcommittee

of the House Appropriations Committee, then-DOD Comptroller, John Hamre

admitted that DOD needs to undertake good detailed planning for the military

construction budget and has not done this in the past. Hamre also conceded that the

DOD has not evaluated the accuracy of the military construction FYDPs, and that he

saw a need for that assessment.

Its report on the FY1998 Military Construction Appropriations Bill (H.Rept.

105-150), the House Appropriations Committee called for DOD to prepare a Future

4

For a discussion of the formulation of the defense budget proposal by the DOD, see CRS

Report 93-317, A Defense Budget Primer, by Keith Berner and Stephen Daggett.

CRS-8

Years Defense Plan (FYDP) for military construction at the project level of detail,

including Guard and Reserve requirements.

The FY1999 military construction hearings reviewed service efforts to integrate

Guard and Reserve needs into the budget request. The Services — especially the

Army — testified that they have produced integrated military construction plans with

Guard and Reserve input. Alma Moore, Principal Deputy Secretary of the Army for

Installations, Logistics and Environment, testified at a House Military Construction

Subcommittee that:

“This year’s military construction budget was built on the Army’s one team, one

fight concept. We made a conscientious effort to balance our resources among

all components, the active Army, the National Guard and the Army Reserve.”

The Debate Over Added Projects and the McCain Criteria. Since the

Congress has added significant amounts to military construction budgets over the last

10 years, congressional debate has centered on how to prioritize additional projects.

In 1994, the Senate debate on the military construction appropriations bill

heavily focused the amount of congressional additions to the request despite

constraints on overall defense spending. Senator McCain, in particular, objected to

the provision of substantial amounts for projects that the Administration had not

requested. He argued that such projects largely represent “pork barrel” spending, and

come at the expense of higher priority defense programs. In Senate floor

consideration of the military construction bill that year, the managers accepted a

McCain amendment that called for criteria to be applied to additional projects. His

amendment included a provision that any added project should be on the military lists

of critical yet unbudgeted projects. The McCain amendment was not incorporated

into the final conference version of the bill, however, and the conference agreement

provided over $900 million for unrequested construction projects.

The National Defense Authorization Act for FY1995 (P.L. 103-337), however,

incorporated Senator McCain’s criteria as a sense of the Senate provision, providing

that the unrequested projects should be:

1. essential to the DOD’s national security mission,

2. not inconsistent with planned base closures,

3. in the services’ Future Years Defense Plans (see above),

4. executable in the year they are authorized and appropriated, and

5. offset by reductions in other defense accounts, through advice from the

Secretary of Defense.

The purpose of these criteria is to help Congress rate the relative importance of

different projects. Though a sense of the Senate provision does not have the force of

law, the McCain criteria have been cited repeatedly in Senate authorization and

appropriations debates for FY1996 and FY1997. The criteria were also cited in the

House FY1997 debates by members of the “porkbusters” coalition. In practice,

debates have focused on justifying projects according to the first four criteria, while

ignoring the offset requirement.

CRS-9

In debate on the FY1998 military construction appropriations conference report,

Senator McCain continued to challenge congressional add ons. He noted that the

Congress added 129 projects, totaling $800 million. The National Guard and Reserve

received $220 million of the additional congressional money. Senator McCain listed

the extra projects in the Congressional Record, in a letter to the President, and on his

web page at the following address: ([http://www.senate.gov/~mccain/milconf.txt]).

Since the 104th Congress, the House military construction authorizing and

appropriations committees have used criteria, in collaboration with the Pentagon, to

add projects to the military construction budget. Each added project needs to pass

criteria like the McCain criteria: Is the project essential to the DOD mission,

consistent with BRAC plans, in the Future Years Defense Plan and “executable” in

the coming fiscal year? If the project can meet those criteria, the military construction

authorizing and appropriations committees may add the project.

The FY1998 Line Item Veto. Debate over whether congressionally added

projects are pork or important to the DOD mission contributed to the President’s first

use of his line item veto authority5 in October 1997. The line item veto was used on

the military construction appropriations law (P.L. 105-45) to eliminate 38 projects in

24 states, totaling $287 million. According to the line item veto law6, the $287

million in savings would go directly to deficit reduction and not back to the

Department of Defense.

The White House cited three criteria in explaining why the President vetoed

these projects. These criteria are similar to the McCain criteria and the House

committees’ criteria for adding projects.

1. The projects were not in the Department of Defense’s future years defense

plan (FYDP).

2. Design work for the projects was not completed and therefore the project

could not be executed in the coming fiscal year.

3. The projects would provide no “substantial” contribution to improving the

quality of life of U.S. troops.

According to the Clinton Administration, the vetoed projects needed to meet all

three criteria to be put on the veto list. The Administration’s criteria, however, did

not square with the data on particular projects that the military officers provided in

testimony to the Senate Appropriations Committee in October 1997. First, the data

showed that 33 of the 38 projects were in the Pentagon’s FYDP. Second, some of

the projects did have design work in progress and so it appeared that the information

that the President received on design work was inaccurate. Many of the projects

appeared to be “executable” in FY1998. Finally, the committee questioned the White

House’s judgement of the quality of life merit of the 38 projects.

5

See The Line Item Veto Act: Procedural Issues, by Louis Fisher and Virginia A. McMurtry,

CRS Report 96-973, for details on the line item veto process.

6

In the 1998, the Supreme Court found the line item veto law to be an unconstitutional

cession of congressional powers to the Executive Branch.

CRS-10

It appeared that most of the vetoed 38 projects did not meet two out of three

Administration criteria for inclusion on the veto list. Based on this assessment, the

House and Senate passed a disapproval bill (H.R. 2631) in October 1997 to overturn

the veto.7 The President vetoed the disapproval bill in November 1997, despite the

White House’s admission that erroneous data were used to cancel some projects. The

Office of Management and Budget (OMB) refused to confirm which projects or how

many were vetoed by mistake. The canceled projects were restored by a veto

override of H.R. 2631 in February 1998 by the House and Senate. The veto override

restored funding for the 38 canceled projects.

The debate on the military construction line item veto highlights the issues that

arise with adding projects to the military construction budget. Which projects are

urgent? According to which criteria? And if projects are important, why doesn’t the

Administration request them?

Prospects for Congressional Additions to the FY1999 Military Construction

Budget. The Budget Enforcement Act of 1997 (P.L. 105-33) set caps on budget

authority and outlays for FY1998-FY20028. The President’s FY1999 budget

proposal for national defense equals the cap of $270.6 billion. Unless Congress

revises the budget agreement, there would appear to be no room for Congress to add

funding to the defense budget.

This will be the first time in three years that Congress has not been able to add

money to the defense budget. The Congress added budget authority of about $7

billion in FY1996, $11.2 billion in FY1997 and $2.9 billion in FY1998 to the defense

budget. With those increases to the defense budget, military construction accounts

received congressional additions of $479 million in FY1996, $850 million in FY1997

and $800 million in FY1998.

Despite these budget agreement constraints, the defense authorizing committees

and the military construction appropriators added military construction money to the

President’s request. The House National Security Committee added $450 million and

the Senate Armed Services Committee added $500 million, in their deliberations over

the FY1999 defense authorization bills. The conference for the FY1999 Military

Construction Appropriations Bill recommended $8.450B, which is an additional

$666M to the President's request.

Ongoing Issues

Importance of Housing to the Quality of Life for Servicemembers. Quality

of life issues are considered to be important to recruitment and retention of

servicemembers. Review of the military construction budget brings up quality of life

issues for family housing, barracks and child care facilities in congressional debates.

7

For more details on line item vetoes in the FY1998 military construction appropriations bill,

see Appropriations for FY1998: Military Construction, by Mary T. Tyszkiewicz, CRS

Report 97-210.

8

For more details, see: The Appropriations Process and the Congressional Budget Act, by

James V. Saturno, CRS Report 97-947.

CRS-11

The Department of Defense has found that about two-thirds of military housing

— both family quarters and barracks — are substandard because of size, safety or

condition.9 In 1995, then-Defense Secretary Perry established an external advisory

committee and an in-house executive committee to look at quality of life issues for the

men and women in uniform.

Two major housing initiatives for family housing and barracks renewal emanated

from Perry’s quality of life committees. First, private sector financing and methods

for family housing were proposed and implemented in the FY1996 Defense

Authorization Act (P.L. 104-106). Second, a new barracks standard was set, called

“1 + 1". This standard provides each servicemember at sergeant or below an

individual room plus a shared bathroom with an adjoining room.10 Congress has been

concerned, however, about the pace of both programs.

Privatization of Military Family Housing. To alleviate the family housing

problem, the Congress gave the Pentagon new authorities (see above) to obtain

private sector financing and expertise for family housing. The Pentagon estimates that

with these authorities, defense dollars can be leveraged to more quickly build three

times the amount of housing units financed the traditional way. The authorities are:

! guarantees, both loan and rental;

! conveyance or lease of existing property and facilities;

! differential lease payments;

! investments, both limited partnerships and stock/bond ownership; and

! direct loans.

These new authorities can be used individually, or in combination in various

projects.11

On February 26, 1998, John Goodman, Deputy Under Secretary of Defense

(Industrial Affairs and Installations) testified to the Military Installations and Facilities

Subcommittee of House National Security Committee about the use of these

authorities over the past two years. He listed the following accomplishments:

! Two Navy projects — in Corpus Christi, TX and Everett, WA — were

awarded, producing 589 units. These units are already occupied and were

primarily privately financed.

! Two projects — Army at Ft. Carson, CO and Air Force at Lackland AFB in

TX — should be awarded this spring. The Ft. Carson project will revitalize

1824 existing units and build 840 new ones. The Lackland AFB project will

supply 400 units.

! A Request for Proposal (RFP) has been released for a Marine Corps Logistics

Base in Georgia for 155 units.

9

Maze, Rick, “The new Congress: What’s in store for you,” Navy Times, January 20, 1997,

p. 6.

10

Adelsberger, Bernard, “How to fix the housing crunch: Another study,” Navy Times,

March 4, 1996, p. 6.

11

For more detailed information on the authorities; see the DOD’s Privatization of Military

Housing web site, [http://www.acq.osd.mil/iai/hrso/welcome.htm].

CRS-12

! RFPs are being developed for 3 Army projects, 2 Air Force projects and 1

Marine Corps project, with up to 29 potential projects under consideration.

Because these are new authorities, however, start-up issues have delayed largescale pursuit of privatization. The Department of Defense’s Housing Revitalization

Support Office (HRSO) is coordinating the implementation of the new authorities for

each of the Services12. HRSO is staffed with 16 full-time housing and real estate

experts from each of the Services and the Office of Secretary of Defense, along with

consultant support.

It has taken some time for DOD to learn how to work in the commercial real

estate market. The Office of Management and Budget had to determine rules to

account for government obligations with each of the authorities, and the rules were

not devised until June 1997. Also, the Pentagon needed to translate loan and loan

guarantee concepts into actual documents that the private financial community would

trust for investment grade financing.

Representative Joel Hefley, chairman of the Military Installations and Facilities

Subcommittee of the House National Security Committee pointed out in a March 10,

1998 hearing that the military housing privatization’s authorities expire on September

30, 2000 unless extended by Congress or made permanent law. Mr. Hefley stated

that, “My inclination at this time would be to extend the authorities once the five-year

period expires, but in order to justify an extension, Congress will have to see

significantly better execution.”

The Senate is interested in how the use of housing privatization initiatives could

affect future Base Realignment and Closure (BRAC) rounds. This concern came up

in a March 3, 1998 Senate Appropriations Subcommittee on Military Construction

hearing on the FY1999 military construction budget. Senator Stevens expressed

concern that many of the housing privatization initiatives contain various mechanisms

that shift financial risk and liability to the government, especially with respect to

BRAC actions. Senator Stevens commented that housing projects with these

guarantees could be an advantage to a base in future BRAC rounds and this is

something the committee should monitor. The FY1998 Senate Appropriations

Committee report on Military Construction continued similar themes.

Barracks Improvements. To improve the conditions of barracks, the

Department of Defense is enforcing new standards. According to DOD official John

Goodman’s February 26, 1998 testimony to the House National Security Committee

on the FY1999 military construction budget, the Pentagon directed that gang latrine

barracks be eliminated by FY2008. The Air Force will meet that goal in FY1999,

with the Marine Corps following in FY2005 and Army & Navy in FY2008.

Implementation of the 1 + 1 standard (see above) for barracks housing will not

be completed until well into the next century. John Goodman testified that the

standard will be met in FY2020 by the Army, in FY2013 by the Navy, and in FY2019

12

Each Service has their own program name for housing privatization: Army - Capital

Venture Initiative (CVI); Navy - Public-Private Venture (PPV); and Air Force - Housing

Privatization Program.

CRS-13

by the Air Force. The Marine Corps plans to build to an interim 2+0 (two Marines

in one room, sharing a bath) standard by FY2035. These timetables were noted in the

FY1998 House Appropriations Committee report (H.Rept. 105-150), which stated

that it will take $14.3 billion and 20 years to reach the 1 + 1 standard.

Base Realignment and Closure (BRAC) Concerns. Legislation for more

BRAC rounds would start in the authorizing defense committees of the House and

Senate. Also — if passed — budget authority for future BRAC rounds would reside

in military construction appropriations accounts.

However, this year’s Administration request for two more BRAC rounds in

FY2001 and FY2005 has been received by the Congress with skepticism.13 During

the FY1998 review of the defense budget, both the House and Senate rejected

legislation to approve more military base closures. Instead, the Congress passed

Section 2824 of the FY1998 National Defense Authorization Act (P.L. 105-56),

which required the Pentagon to report the costs and savings from previously approved

domestic military base closures.

The required report, entitled “The Report of the Department of Defense on Base

Realignment and Closure” was released by the Pentagon in April 1998. The report

makes the case that:

! the DOD has 23% excess base capacity;

! two new BRAC rounds will save about $3 billion per year, after fully

implemented;

! actual BRAC costs reflect budget estimates;

! the BRAC process overstates costs for environmental restoration, and

! previous BRAC rounds in 1988, 1991, 1993 and 1995 are saving billions.14

Both defense authorizing committees rejected the Administration’s proposal for two

more base closure rounds in May 1998.

Environmental Issues. The Senate continues to raise concerns about the cost

of environmental clean-up and its effects on military functions and readiness. The

Chairman of the Senate Appropriations Subcommittee on Military Construction,

Senator Burns mentioned environmental issues, during his subcommittee hearing on

March 3, 1998. Senator Burns noted that 45% of the Army’s FY1999 BRAC funding

($489M) is for studies, clean-up and restoration of BRAC facilities and that these

costs are a growing concern to him. Senator Burns said that the subcommittee will

look at where the clean-up money is going, how it is being spent and to what degree

military construction facilities are cleaned when they are turned over to the private

sector.

13

For recent history on congressional BRAC debates, see: CRS Report 97-674, Military Base

Closures: Time for Another Round?, by David E. Lockwood.

14

Department of Defense, The Report of the Department of Defense on Base Realignment

and Closure, April 1997, pp. iii-vi. The report also includes appendices with a history of

prior rounds, and the DOD legislative proposal for new BRAC authorities. Also, see the

DefenseLINK web site for the report and related sites at the following address:

[http://www.defenselink.mil/other_info/brac.html].

CRS-14

Use of Advanced Procurement for Army Military Construction. This year,

the Congress will consider the Army’s proposal to use advanced procurement

procedures for military construction. This will be an exception to current practices

for defense funding.

When Congress appropriates money for defense programs, it generally pays all

the costs up front in one fiscal year. This practice is known as full funding. It was

mandated by Congress in the 1950s to give full visibility to the cost of weapons

procured. Therefore, all the money estimated at the time to complete the entire

project — such as production of 21 Trident missiles, overhaul of an aircraft carrier,

or construction of an ammunition depot — is approved as a single package by the

Congress. Often, the procurement of these weapons systems can span many years.

As an exception to this practice, Congress sometimes provides funding for

advance procurement of “long-leadtime” weapons components, such as nuclearpower plants for Navy warships.15

The FY1999 Army military construction request proposes to use advanced

procurement for some of its projects. Acting Assistant Secretary of the Army

(Installations, Logistics and Environment) Alma Moore stated at the House National

Security Committee hearing on February 26, 1998 that with advance appropriations,

the contract will not define the work to be performed by the contractor, but only limit

the work by the amount appropriated in a given year. Advance appropriations of

$555,050,000 are requested for:

! the U.S. Disciplinary Barracks, $13,000,000;

! the Roi Namur Power Plant, $36,000,000;

! the Fort Hood Railhead facility, $15,000,000;

! the Cadet Physical Development Center, $73,000,000, and

! four Chemical Demilitarization projects (Umatilla, Pine Bluff, Aberdeen and

Newport) at $418,050,000.

To get these large military construction projects started, the Office of

Management and Budget allowed the Army to propose advanced procurement

funding to the Congress. By approving advanced procurement, the Congress limits

its discretion on future military construction budgets, since it is committing future

funding.

The Army has been the executive agent of the Department of Defense chemical

demilitarization (chem demil). The Pentagon decided, in response to its Defense

Reform Initiative, that the Army now has total responsibility for chemical

demilitarization. Therefore, a total of $125 million was transferred from the DOD

15

According to the Department of Defense, advance procurement is: “Authority provided in

an appropriations act to obligate and disburse during a fiscal year before that in which the

related end item is procured. The funds are added to the budget authority for the fiscal year

and deducted from the budget authority of the succeeding year. Used in major acquisition

programs for advance procurement of components whose long-lead-time requires purchase

early in order to reduce the overall procurement lead-time of the major end item. Advance

procurement of long lead components is an exception to the DOD ‘full funding’ policy.”

Financial Management Regulation, Volume 2A. p. 1-2.

CRS-15

military construction budget to the FY1999 Army military construction budget for six

chem demil military construction projects.

The House National Security Committee and the Senate Armed Services

Committee rejected the transfer of chem demil from the Office of Secretary of

Defense (OSD) to the Army in their FY1999 defense authorization bills. Both

committees felt that chem demil is of national importance and therefore needs to be

in OSD. Each committee also cut funding from the chem demil program, because of

a large amount of unobligated funds already in the accounts. The military

construction appropriators did the same.

Major Funding Trends

The Administration proposed significant reductions in military construction

spending for FY1999, compared to the enacted FY1998 amount. The President’s

FY1999 proposal of $7.8 billion is a 12% reduction from the FY1998 $8.9 billion

level approved by Congress. The military construction conference committee

recommended $8.450B for FY1999, an additional $666M to the President's request.

Table 2 shows overall military construction funding since FY1995, including

family housing. Table 3 breaks down the FY1999 request by appropriations account

and compared to FY1997 and FY1998. Table 4 shows congressional action on the

FY1999 military construction appropriations bills. Table 5 shows congressional

military construction add-ons for Guard and Reserve projects since FY1985.

Legislation

H.R. 3616 (Spence)

Referred to the House Committee on National Security, April 1, 1998. Full

committee markup held, May 6, 1998. Ordered to be reported as amended, May 6,

1998. Reported to House, amended, by House Committee on National Security

(H.Rept. 105-532), May 12, 1998. Rules Committee Resolution (H.Res. 435)

reported to House, May 14, 1998. Passed House (Amended) by recorded vote: 357

- 60 (Roll No. 183), May 21, 1998. Senate took up H.R. 3616, struck all after the

enacting clause, inserted the text of S. 2057, approved the bill as amended, by

unanimous consent, and requested a conference, June 25, 1998. Conference

agreement announced, September 17, 1998 and reported (H.Rept. 105-736),

September 22, 1998. Conference report approved in the House (373-50), September

24, 1998 and Senate, October 1, 1998. Became P.L. 105-261 on October 17, 1998.

S. 2057 (Thurmond)

Committee on Armed Services ordered to be reported an original measure, (S.

2057), May 7, 1998. Committee on Armed Services. Original measure reported to

Senate by Senator Thurmond, without written report. A companion bill, S. 2060

ordered to be reported (S.Rept. 105-189). Placed on Senate Legislative Calendar

under General Orders, Calendar No. 362, May 11, 1998. Considered by the Senate,

May 13, 14, and 15, and June 19, 22, and 23 1998.

CRS-16

S. 2160 (Burns)

Committee on Appropriations. Original measure reported to Senate by Senator

Burns, with written report (S.Rept. 105-213), on June 11, 1998. Placed on Senate

Legislative Calendar under General Orders. Calendar No. 410. Measure laid before

Senate by unanimous consent, June 25, 1998. Senate passed companion measure

H.R. 4059 in lieu of this measure by Unanimous Consent, June 25, 1998.

H.R. 4059 (Packard)

House Committee on Appropriations reported an original measure, with written

report (H.Rept. 105-578) on June 16, 1998. Placed on the Union Calendar, Calendar

No. 326. Rules Committee Resolution (H.Res. 477) reported to House on June 18,

1998. Rule H. Res. 477 passed House, on June 19, 1998. Passed House by Yea-Nay

Vote: 396 - 10 (Roll No. 254), June 22, 1998. The language of S. 2160 was adopted

as an amendment by Unanimous Consent in the Senate, amended and passed in the

Senate on June 25, 1998. Conference report H. Rept. 105-647 filed in House on July

24, 1998. House Agreed to Conference Report by the Yeas and Nays: 417 - 1 (Roll

No. 353) on July 29, 1998. Senate Agreed to Conference Report by the Yeas and

Nays: 87-3 on September 1, 1998. Became P.L. 105-237 on September 20, 1998.

Table 2. Mil. Con. Appropriations, FY1994-98

(budget authority in millions of dollars)

Actual

FY1995

Actual

FY1996

Actual

FY1997

Enacted

FY1998

Request

FY1999

Enacted

FY1999

Military

Construction

5,426

6,893

5,718

5,089

4,301

4,907

Family

Housing

3,392

4,260

4,131

3,807

3,477

3,541

Total

8,818

11,153

9,849

8,896

7,778

8,449

Source: Actual FY1995-97 data and Request FY 1999 data from Department of Defense,

Financial Summary Tables, February 1998 and previous years’ reports and FY1999 Military

Construction Appropriations Conference Report (H.Rept. 105-647).

Note: May not add exactly, due to rounding errors.

CRS-17

Table 3. Mil. Con. Appropriations by Account: FY1997-99

(in thousands of dollars)

Account

FY1997

Actual

FY1998

Est.

FY1999

Request

Milcon, Army

577,660

630,727

790,876

MilCon, Navy

687,314

605,296

468,150

MilCon, Air Force

748,964

626,505

454,810

MilCon, Defense-wide

711,550

640,242

491,675

MilCon, Army National Guard

78,086

102,499

47,675

MilCon, Air National Guard

184,855

190,444

34,761

MilCon, Army Reserve

55,543

55,453

71,287

MilCon, Navy Reserve

37,579

26,659

15,271

MilCon, Air Force Reserve

52,805

15,030

10,535

BRAC Acct., Army

471,042

397,717

489,222

BRAC Acct., Navy

1,201,064

982,846

622,932

BRAC Acct., Air Force

580,390

607,502

538,621

BRAC Acct., Defense-wide

120,978

56,789

79,929

NATO Security Investment Program

172,000

151,600

185,000

Foreign Curr. Fluct., Constr., Def.

38,112

—

—

Total: Military Construction

5,717,942

5,089,309

4,300,744

Family Housing Const., Army

158,503

196,300

103,440

1,212,466

1,104,868

1,104,733

Family Housing Const., Navy & Marine Corps

496,986

391,832

280,790

Family Housing Operation & Debt, Navy and

Marine Corps

1,021,563

965,404

915,293

Family Housing Const. AF

318,037

293,709

226,035

Family Housing Operation & Debt, AF

816,509

817,534

789,995

Family Housing Const., Def-wide

4,371

4,950

345

Family Housing Operation & Debt, Def-wide

30,963

32,624

36,899

Homeowners Assist. Fund, Def.

36,181

—

12,800

DOD Family Housing Improvement Fund

27,900

—

7,000

DOD Unacccompd. Housing Improvement Fund

5,000

—

—

Rossmoor Settlement Account (for the Navy use

in San Diego, CA via Section 2208 in P.L. 104106)

2,760

—

—

Total: Family Housing

4,131,239

3,807,221

3,477,330

GRAND TOTAL

9,849,181

8,896,530

7,778,074

Family Housing Operation & Debt, Army

Source: Department of Defense, “Financial Summary Tables,” February 1998.

CRS-18

Table 4. Mil. Con. Appropriations by Account - Congressional Action

(in thousands of dollars)

FY1999

Request

House

Bill

Senate

Bill

Conf.

Report

Milcon, Army

790,876

780,599

810,476

868,726

MilCon, Navy

468,150

570,643

565,030

604,593

MilCon, Air Force

454,810

550,475

627,874

615,809

MilCon, Defense-wide

491,675

611,075

560,485

553,114

MilCon, Army National Guard

47,675

70,338

124,599

142,403

MilCon, Air National Guard

34,761

97,701

175,877

169,801

MilCon, Army Reserve

71,287

71,894

101,633

102,119

MilCon, Navy Reserve

15,271

33,721

21,621

31,621

MilCon, Air Force Reserve

10,535

35,371

22,835

34,371

BRAC Acct., Part III

433,464

433,464

433,464

427,164

BRAC Acct., Part IV

1,297,240

1,297,240

1,297,240

1,203,738

185,000

169,000

152,600

154,000

Total: Military Construction

4,115,929

4,721,521

4,893,734

4,907,459

Family Housing, Army

1,208,173

1,180,537

1,229,223

1,229,987

Family Housing, Navy and Marine Corps

1,196,083

1,045,750

1,201,883

1,207,883

Family Housing, Air Force

1,016,030

993,084

1,092,690

1,064,169

Family Housing, Defense-wide

37,244

37,244

37,244

37,244

Family Housing Improvement Fund

7,000

242,438

7,000

2,000

Homeowners Assistance Fund

12,800

7,500

12,800

0*

3,477,330

3,506,553

3,580,840

3,541,283

6,000

6,000

6,000

**

7,784,074

8,234,074

8,480,574

8,449,742

Account

NATO Security Investment Program

Total: Family Housing

Family Housing, N&MC (H.R. 4059, Sec

125, & S. 2160, Sec. 126, for Paine Field,

WA)

GRAND TOTAL

Sources: H.Rept. 105-578, S.Rept. 105-213 & Congressional Record, 6/25/98 and 6/26/98; H. Rept. 105647.

Notes:

* Sec. 127 of the conference report provides transfer authority from the BRAC accounts to the Homeowners

Assistance Program.

** The Paine Field, WA project was included in the Family Housing, Navy & Marine Corps total in the

conference report.

CRS-19

Table 5. Congressional Additions to Annual Department of Defense Budget

Requests for National Guard and Reserve Military Construction, FY1985-98

(current year dollars in thousands)

Total

Total

Change

from

Request

67,800

390,800

—

60,800

67,800

407,709

+16,909

70,700

51,800

66,800

428,600

—

121,250

61,346

41,800

63,030

389,631

-38,969

121,100

140,000

86,700

44,500

58,900

451,200

—

1987 Enact.

140,879

148,925

86,700

44,500

58,900

479,904

+28,704

1988 Req.

170,400

160,800

95,100

73,737

79,300

579,337

—

1988 Enact.

184,405

151,291

95,100

73,737

79,300

583,833

+4,496

1989 Req.

138,300

147,500

79,900

48,400

58,800

472,900

—

1989 Enact.

229,158

158,508

85,958

60,900

70,600

605,124

+132,224

1990 Req.

125,000

164,600

76,900

50,900

46,200

463,600

—

1990 Enact.

223,490

235,867

96,124

56,600

46,200

658,281

+194,681

1991 Req.

66,678

66,500

59,300

50,200

37,700

280,378

—

1991 Enact.

313,224

180,560

77,426

80,307

38,600

690,117

+409,739

1992 Req.

50,400

131,800

57,500

20,900

20,800

281,400

—

1992 Enact.

231,117

217,556

110,389

59,900

9,700

628,672

+347,272

1993 Req.

46,700

173,270

31,500

37,772

52,880

342,122

—

1993 Enact.

214,989

305,759

42,150

15,400

29,900

608,198

+266,076

1994 Req.

50,865

142,353

82,233

20,591

55,727

351,769

—

1994 Enact.

302,719

247,491

102,040

25,029

74,486

751,765

+399,996

1995 Req.

9,929

122,770

7,910

2,355

28,190

171,154

—

1995 Enact.

187,500

248,591

57,193

22,748

56,958

572,990

+401,836

1996 Req.

18,480

85,647

42,963

7,920

27,002

182,012

—

1996 Enact.

137,110

171,272

72,728

19,055

36,482

436,647

+254,635

1997 Req.

7,600

75,394

48,459

10,983

51,655

194,091

—

1997 Enact.

78,086

189,855

55,543

37,579

52,805

413,868

+219,777

1998 Req.

45,098

60,225

39,112

13,921

14,530

172,886

—

1998 Enact.

102,499

190,444

55,453

26,659

15,030

390,085

+217,199

Fiscal Year

Army

National

Guard

Air

National

Guard

Army

Reserve

Naval Air Force

Reserve

Reserve

1985 Req.

88,900

102,900

70,400

60,800

1985 Enact.

98,603

111,200

69,306

1986 Req.

102,100

137,200

1986 Enact.

102,205

1987 Req.

Source: Department of Defense, Financial Summary Tables, successive years.

CRS-20

For Additional Information

CRS Issue Briefs

CRS Issue Brief 96022. Defense Acquisition Reform: Status and Current Issues, by

Valerie Bailey Grasso.

CRS Reports

CRS Report 93-317. A Defense Budget Primer, by Keith Berner and Stephen

Daggett.

CRS Report 98-205. Appropriations for FY1998: Defense, by Stephen Daggett.

CRS Report 98-155. Defense Budget for FY1999: Data Summary, by Stephen

Daggett and Mary T. Tyszkiewicz.

CRS Report 94-515. Defense Burdensharing: Is Japan’s Host Nation Support a

Model for Other Allies?, by Stephen Daggett.

CRS Report 91-669. Military Construction: Current Controversies and Long-Term

Issues, by Martin Cohen and Stephen Daggett.

Selected World Wide Web Sites

U.S. Department of Defense, Installations Home Page

[http://www.acq.osd.mil/inst]

House Committee on Appropriations

[http://www.house.gov/appropriations]

Senate Committee on Appropriations

[http://www.senate.gov/~appropriations/]

CRS Appropriations Products Guide

[http://www.loc.gov/crs/products/apppage.html#la]

Congressional Budget Office

[http://www.cbo.gov]

General Accounting Office

[http://www.gao.gov]

Office of Management & Budget

[http://www.whitehouse.gov/WH/EOP/OMB/html/ombhome.html]