Military Construction, Military Quality of Life and Veterans Affairs: FY2007 Appropriations

Congressional research reportMar 6, 2007

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Military Construction, Military Quality of Life

and Veterans Affairs: FY2007 Appropriations

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Specialist in National Defense

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Specialist in Social Policy

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Analyst in Veterans Policy

March 6, 2007

Congressional Research Service

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RL33427

CRS Report for Congress

Prepared for Members and Committees of Congress

Military Construction, Military Quality of Life and Veterans Affairs

Summary

The structure of the Committees on Appropriations were changed at the beginning of the 109th

Congress, altering jurisdictions over the appropriations covered in this report, including military

construction, military housing allowances, military installation maintenance and operation, the

Department of Veterans Affairs, and other veteran-related agencies, rested in the House

Committee on Appropriations with the new Subcommittee on Military Quality of Life and

Veterans Affairs. In the Senate Committee on Appropriations, jurisdiction for military

construction, the Department of Veterans Affairs, and other veteran-related agencies were vested

in the Subcommittee on Military Construction and Veterans Affairs, while military housing

allowances and military installation maintenance and operation are the responsibility of the

Subcommittee on Defense. At the opening of the 110th Congress, the House subcommittee

structure was again adjusted, returning some non-construction defense activities to the

Subcommittee on Defense. Authorization jurisdictions lie with the two Committees on the Armed

Services and Committees on Veterans Affairs.

Key issues in congressional action to date include:

•

Military Construction: The changing structure of the Army, the redeployment

of troops from overseas garrisons to domestic bases, and implementation of the

current BRAC round have drawn committee attention during the appropriation

process. To fund the activities included in the military construction and family

housing portion of this bill, the President requested $16.7 billion, the House

appropriated $15.9 billion, and the Senate Committee on Appropriations

recommended $16.3 billion.

•

Veteran Benefits: Entitlement spending is rising as the number of beneficiaries

is increasing, education benefits are being augmented, and annual cost of living

adjustments are being granted. Benefits such as disability compensation,

pensions, and education are mandatory payments and constitute more than half

($37.2 and $41.4 billion, respectively) of the VA appropriation of approximately

$71 billion for FY2006 and almost $78 billion proposed for FY2007.

•

Veteran Medical Care: The Administration has again requested legislative

changes to increase certain co-payments and other cost sharing fees for veterans

in lower priority categories. The House passed version of H.R. 5385 provides

$32.7 billion for the Veterans Health Administration (VHA) for FY2007, about

the same amount as the President’s request. On July 20, 2006, the Senate

Committee on Appropriations reported out of committee its version of H.R. 5385.

H.R. 5385, as amended, provides $32.7 billion for VHA for FY2007, almost

equivalent to the House-passed amount and the President’s request. The Housepassed bill and the Senate Appropriations Committee-reported bill do not include

any provisions that would give VA the authority to implement fee increases.

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Military Construction, Military Quality of Life and Veterans Affairs

Contents

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

Military Construction, Military Quality of Life and Veterans Affairs

Appropriations (H.R. 5385)..........................................................................................1

Defense Authorization (H.R. 5122, S. 2766)....................................................................1

Defense Appropriation (H.R. 5631).................................................................................2

Continuing Resolutions ...................................................................................................2

FY 2007 Emergency Supplemental Request for the Global War on Terror........................3

Status of Legislation....................................................................................................................4

Summary and Key Issues ............................................................................................................4

Appropriations Subcommittee Jurisdiction Realignment, 109th Congress ...............................4

House .............................................................................................................................4

Senate.............................................................................................................................5

Subsequent Agreement....................................................................................................5

Appropriations Subcommittee Jurisdiction Realignment, 110th Congress ...............................5

Title I: Department of Defense ....................................................................................................6

Defense Health Program (DHP) ............................................................................................6

Military Construction ............................................................................................................6

Military Base Realignments and Closures .......................................................................6

Recapitalization ..............................................................................................................8

NATO Security Investment Program (NSIP)....................................................................8

Special Inspector General for Iraq Reconstruction (SIGIR)..............................................9

Additional Appropriations, House ................................................................................. 12

Additional Appropriations, Senate................................................................................. 12

Title II: Department of Veterans Affairs..................................................................................... 13

Agency Mission .................................................................................................................. 13

Key Budget Issues .............................................................................................................. 15

VA Cash Benefits .......................................................................................................... 15

Medical Care ...................................................................................................................... 15

Funding Level for Defense and Veterans Brain Injury Center .............................................. 17

Title III: Related Agencies......................................................................................................... 18

Independent Commissions .................................................................................................. 18

American Battle Monuments Commission..................................................................... 18

U.S. Court of Appeals for Veterans Claims .................................................................... 18

Cemeterial Expenses, Army .......................................................................................... 18

Armed Forces Retirement Home (AFRH) ..................................................................... 19

Tables

Table 1. Status of FY2007 Military Construction, Military Quality of Life and Veterans

Affairs Appropriations (H.R. 5385) ..........................................................................................4

Table 2. Status of FY2007 Defense Authorization (H.R. 5122, S. 2766).......................................4

Table 3. Additional Appropriations, House, FY2007.................................................................. 12

Table 4. Additional Appropriations, Senate, FY2007 ................................................................. 13

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Military Construction, Military Quality of Life and Veterans Affairs

Table 5. Department of Veterans Affairs Appropriations, FY2000-FY2006 ................................ 13

Table 6. Appropriations: Department of Veterans Affairs, FY2006-FY2007 ............................... 13

Table A-1. DOD Military Construction...................................................................................... 20

Table A-2. DOD Basic Allowance for Housing.......................................................................... 22

Table A-3. DOD Facilities Sustainment, Restoration, & Modernization ..................................... 23

Table A-4. DOD Environmental Remediation............................................................................ 24

Table A-5. DOD Health Program............................................................................................... 25

Table A-6. DOD Military Totals ................................................................................................ 25

Table A-7. Related Agencies ..................................................................................................... 25

Appendixes

Appendix A. Consolidated Funding Tables ................................................................................ 20

Appendix B. Additional Resources ............................................................................................ 27

Contacts

Author Contact Information ...................................................................................................... 28

Key Policy Staff for Military Construction, Military Quality of Life, and Veterans Affairs

Appropriations ....................................................................................................................... 28

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Military Construction, Military Quality of Life and Veterans Affairs

Most Recent Developments

Military Construction, Military Quality of Life and Veterans Affairs

Appropriations (H.R. 5385)

The House Committee on Appropriations Subcommittee on Military Quality of Life and Veterans

Affairs and Related Agencies reported its draft of the appropriations bill on May 15, 2006 (H.R.

5385, H.Rept. 109-464), recommending a total Fiscal Year appropriation of $136.9 billion. The

Rules Committee reported H.Res. 821, providing for one hour of general debate and leaving the

bill open to general amendments, on May 18. The resolution passed on May 19, when the House

began debate. Several Members offered amendments, though none was adopted, and raised points

of order before the bill passed by the Yeas and Nays 395-0 (Roll No. 176).

The Senate received the bill and referred it to the Committee on Appropriations. The Committee

reported H.R. 5385 with an amendment in the nature of a substitute favorably on July 20 (S.Rept.

109-286).1 It was then placed on the Legislative Calendar under General Orders (Calendar No.

525). The Senate considered the bill on November 13 and 14, passing it by voice vote after floor

amendment to the bill and title.2 Nevertheless, the measure, along with most of the other regular

appropriations bills, did not conference before the 109th Congress ended. Only the appropriations

for the Departments of Defense and Homeland Security were enacted for Fiscal Year 2007, with

the remaining functions of the federal government being sustained by a series of continuing

resolutions.

Defense Authorization (H.R. 5122, S. 2766)

Representative Duncan Hunter introduced (by request) the draft National Defense Authorization

Act to the House on April 6, 2006. After referral to the Committee on Armed Services, the bill

was reported (amended) to the House on May 5 (H.Rept. 109-452). The chamber considered the

bill on May 10-11, 2006, and after amending it, considered recommitting it with instructions to

Armed Services. Recommittal failed on a recorded vote 202-220 (Roll no. 144). The House then

passed the measure 396-31 (Roll no. 145).

Senator John Warner reported the Senate Committee on Armed Services bill (S. 2766) and its

accompanying report (S.Rept. 109-254) to the Senate on May 9, 2006. Additional views were

filed simultaneously. The measure was placed on the Senate Legislative Calendar under General

Orders (Calendar No. 426). The measure was laid before the Senate on June 12, debated,

amended, and passed on June 22 by a Yea-Nay vote of 96-0 (Record Vote No. 186).

H.R. 5122 was received on May 15 and placed on the Legislative Calendar under General Orders

(Calendar No. 431). On June 22, the Senate struck all after the Enacting Clause and substituted

the language of S. 2766 amended, passing the amended measure by Unanimous Consent and

The Committee also recommended a change of the bill’s title from “Military Quality of Life and Veterans Affairs, and

Related Agencies Appropriations Bill, 2007” to “Military Construction and Veterans Affairs and Related Agencies

Appropriation Bill, 2007,” reflecting the differences between the chambers in appropriations subcommittee names and

jurisdictions.

The amended title read, “Military Construction and Veterans Affairs and Related Agencies Appropriations Act,

2007.”

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requesting a conference. The House disagreed to the Senate amendment on September 7 and

agreed to a conference. The conference began on September 12, 2006.

The Conference Report (H.Rept. 109-702) was filed in the House on September 29, 2006, and

agreed the same day by the Yeas and Nays: 398-23 (Roll no. 510). The Senate agreed the report

by Unanimous Consent on the following day. The bill was presented to the President on October

5. The bill became law on October 17, 2006 (P.L. 109-364).

Defense Appropriation (H.R. 5631)

Several items in the House version of H.R. 5385 lie within the jurisdiction of the Senate

Committee on Appropriations Subcommittee on Defense. These include basic allowance for

housing (military personnel account), facilities, sustainment, restoration, and modernization

(operations and maintenance account), and defense-related agencies. Appropriations for these

activities are therefore included in the Senate’s defense appropriation bill. Nevertheless, they are

included in the tables appended to this report.

H.R. 5631 was introduced in the House on June 16, 2006, and passed on June 20 by a vote of

407-19 (H.Rept. 109-504, Roll no. 305). Referred to the Senate Committee on Appropriations, it

was reported out on July 25 with an amendment in the form of a substitute (S.Rept. 109-292) and

was placed on the Legislative Calendar under General Orders (Calendar No. 532). The Senate

agreed to the committee substitute by Unanimous Consent on August 1. The Senate debated and

amended the bill between August 1 and 3 and continued on September 5 through 7, passing it

with amendment on a Yea-Nay vote of 98-0 (Record Vote No. 239) and requesting a conference.

The House appointed conferees on September 21, and the Conference Report (H.Rept. 109-676)

was filed on September 25, 2006. The House agreed to the report by the Yeas and Nays: 394-22

(Roll no. 486). The Senate agreed to the conference report on September 29 by a Yeas and Nays

vote of 100-0 (Record Vote No. 261). Presented to the President, he signed the bill on the same

day (P.L. 109-289).

Continuing Resolutions

In the absence of an annual appropriation, Fiscal Year 2007 funding for all of the accounts

included in the House version of H.R. 5385 has been sustained by a series of continuing

resolutions. Div. B of H.R. 5631 (P.L. 109-289), the Department of Defense Appropriations Act

for Fiscal Year 2007, continued appropriations for a variety of activities, including those covered

by H.R. 5385, from the beginning of Fiscal Year 2007 through November 16, 2006, using various

formulas.3 In general, these equated to the lowest of the House-passed, Senate-passed, or lastenacted funding levels.

H.J.Res. 100 (P.L. 109-369) continued appropriations through December 18, 2006.

H.J.Res. 102 (P.L. 109-383) continued appropriations through February 15, 2007.

See Div. B, Sec. 101(b) – (e) of the Act.

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H.J.Res. 20 (P.L. 110-5) was passed by the 110th Congress and enacted on February 15, 2007. It

incorporated the previous continuing resolutions, continuing them, with some modification to

military construction and veterans benefits, through the end of Fiscal Year 2007 (September 30,

2007). Additional information on H.J.Res. 20 is included later in this report.

Additional information regarding the recent history of and practices regarding continuing

resolutions can be found in CRS Report RL30343, Continuing Resolutions: Latest Action and

Brief Overview of Recent Practices, by (name redacted), and CRS Report RL32614,Duration of

Continuing Resolutions in Recent Years, by (name redacted).

FY 2007 Emergency Supplemental Request for the Global War on Terror

As part of his Fiscal Year 2008 Budget Request, President George W. Bush included a

recommendation for an additional $93.4 billion emergency supplemental appropriation to support

the Global War on Terror (GWOT). As stated in the Fiscal Year 2008 Budget Appendix

(Additional FY2007 and FY2008 Proposals), military construction funds included would be

“used to build urgent facilities needed for the Global War on Terror, including buildings,

perimeter fences and barriers, secure fuel facilities, and roads to improve the force protection and

safety of U.S. military forces. The funds will also be used to construct theater-located operations

facilities needed to improve the capabilities of combat forces. In addition, the funds will cover the

cost of housing, maintenance, and training infrastructure needed to support an expansion of Army

and Marine Corps ground combat forces.”4

This supplemental request would add $1.38 billion to the FY2007 Army military construction

account, $412.5 million to the FY2007 Navy and Marine Corps military construction account,

and $60.2 million to the FY2007 Air Force military construction account.

Supplementary budget documentation forwarded by DOD broke down the funding along three

main functional topics. “Continuing the Fight,” “Reconstituting the Force,” and “Enhancing

Ground Forces.” Military construction was included in the first and the last of these.

Under “Continuing the Fight,” DOD indicated that approximately $980.0 million would be

devoted to the construction and improvement of facilities in Iraq and Afghanistan in direct

support of ground force military operations. The Navy would spend $85.1 million for facilities in

Djibouti and at Naval Station Guantanamo, Cuba, and the Air Force would use $60.2 million to

improve airfield facilities in Afghanistan.

Approximately $100 million of military construction under “Enhancing Ground Forces”is

intended to accelerate the transition of existing Army and Marine units into two Brigade Combat

Teams (Army) and a single Regimental Combat Team (Marine). The remaining construction

funding, approximately $729 million, would build housing and maintenance and training facilities

for 92,000 new troops to be added to Army and Marine end strength by the end of 2012.

The quotation is taken from pg. 1161. The appendix is available on the World Wide Web at

http://www.whitehouse.gov/omb/budget/fy2008/.

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Status of Legislation

Table 1. Status of FY2007 Military Construction, Military Quality of Life and Veterans

Affairs Appropriations (H.R. 5385)

Committee

Markup

House

Senate

5/4/06

7/18/06

Conference

Report

Approval

House

Report

House

Passage

Senate

Report

Senate

Passage

Conf.

Report

House

Senate

Public

Law

H.Rept. 109464

5/19/06

S.Rept. 109286

11/14/06

—

Table 2. Status of FY2007 Defense Authorization (H.R. 5122, S. 2766)

Committee

Markup

House

Senate

5/18/05

5/4/06

House

Report

House

Passage

Senate

Report

Senate

Passage

Conf.

Report

H.Rept.

109-452

5/11/06

S.Rept.

109-254

9/7/06

H.Rept.

109-702

Conference

Report

Approval

House

Senate

9/29/06

9/30/06

Public

Law

P.L. 109364

Summary and Key Issues

Appropriations Subcommittee Jurisdiction Realignment, 109th

Congress

House

During the first session of the 109th Congress, the Committee on Appropriations reorganized its

subcommittee structure and realigned subcommittee jurisdictions. In the resulting redistribution

of subcommittee responsibilities, the Subcommittees on Veterans Affairs, Housing and Urban

Development (VA-HUD) and Military Construction were eliminated and some of their

responsibilities were assigned to a new Subcommittee on Military Quality of Life and Veterans

Affairs and Related Agencies. The new subcommittee was given jurisdiction for appropriations to

the following accounts:

•

Department of Defense (DOD): Military Construction, Army, Navy (including

Marine Corps), Air Force, Defense-wide, and Guard and Reserve Forces,

Facilities Sustainment, Restoration and Modernization, Army, Navy (including

Marine Corps), Air Force, and Guard and Reserve Forces, Chemical

Demilitarization Construction, Defense-wide Military Family Housing

Construction and Operation and Maintenance, Army, Navy (including Marine

Corps), Air Force, and Defense-wide Family Housing Improvement Fund,

Military Unaccompanied Housing Improvement Fund, Homeowners Assistance

Fund, Basic Allowance for Housing, Army, Navy (including Marine Corps), Air

Force, and Guard and Reserve Forces, Environmental Restoration Accounts,

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Military Construction, Military Quality of Life and Veterans Affairs

Base Realignment and Closure Account, NATO Security Investment Program,

Defense Health Program Account.

•

Department of Veterans Affairs.

•

Related Agencies: American Battle Monuments Commission, Armed Forces

Retirement Home, Cemeterial Expenses, Army (DOD), Court of Appeals for

Veterans Claims.

Senate

At the same time, the Senate Committee on Appropriations dissolved its Subcommittee on

Veterans Affairs, Housing and Urban Development and transferred its responsibilities for

Veterans Affairs, the American Battle Monuments Commission, Cemeterial Expenses, Army

(Arlington National Cemetery), the Court of Appeals for Veterans Claims, and the Selective

Service Commission to the former Subcommittee on Military Construction, which retained its

responsibility for military construction appropriations. The reconstituted organization was

renamed the Subcommittee on Military Construction and Veterans Affairs.

Subsequent Agreement

After negotiating the differing jurisdictions between the two subcommittees, House and Senate

appropriators agreed that legislation considered would include appropriations to all of the

accounts within the jurisdiction of the former Military Construction subcommittees and those

related to the Department of Veterans Affairs and the related agencies. When considering

appropriations for odd-numbered fiscal years (e.g., 2007, 2009, etc.), the legislation add the

appropriations accounts specific to the jurisdiction of the House subcommittee. 5

Appropriations Subcommittee Jurisdiction Realignment, 110th

Congress

With the opening of the 110th Congress, the House and Senate brought the responsibilities of their

appropriations subcommittees more closely into alignment. On the House side, this resulted in a

new alignment of jurisdictions and the renaming of several subcommittees.

The non-construction quality-of-life defense appropriations, including Facilities Sustainment,

Restoration, and Modernization, Basic Allowance for Housing, Environmental Restoration, and

the Defense Health Program returned to the jurisdiction of the Subcommittee on Defense. The

former Subcommittee on Military Quality of Life, Veterans Affairs, and Related Agencies became

the Subcommittee on Military Construction, Veterans Affairs, and Related Agencies, mirroring its

counterpart in the Senate.

See Tim Starks, “Bill Targets Veterans’ Funding Shortfall,” CQ Weekly (November 18, 2005), p. 3136.

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Military Construction, Military Quality of Life and Veterans Affairs

Title I: Department of Defense

Defense Health Program (DHP)

H.R. 5385 considered funding for the Defense Health Program (DHP) in FY2007, the medical

and health care programs of the Department of Defense. The bill’s DHP funding, which included

Operation & Maintenance, Procurement and Research, Development, Test, and Evaluation

activities associated with military health care, would have totaled approximately $21 million.6

The DHP figure included funds for military medical facilities and contracts with Tricare civilian

health care providers, which provide medical care to some 8 million military personnel, their

dependents, retirees and their dependents. Differences between amounts approved by the House

were Senate are relatively small; the House approved $21.065 million; the Senate, $21.409

million.

Military Construction

Military Base Realignments and Closures7

Actions to implement recommendations to realign or close a number of defense installations

throughout the United States began during FY2006. Originally drafted by the Department of

Defense and modified by the independent nine-member BRAC Commission (officially known as

the Defense Base Closure and Realignment Commission of 2005), the list of actions will close 25

major military bases, realign another 24, and carry out some 765 other actions before the statutory

deadline of September 2011, according to the Department of Defense. 8

The 2005 round marked the fifth time that a commission took part in determining which military

installations are to be closed or significantly reduced in scope. The first, the Base Realignment

and Closure Commission, was chartered by, and reported its recommendations to, the Secretary of

Defense. All subsequent commissions were created by Congress in the Defense Base Closure and

Realignment Act of 1990, as amended. Three subsequent rounds (in 1991, 1993, and 1995) were

authorized by Congress in the original legislation. The 2005 round was authorized in an

amendment to the original law incorporated into the National Defense Authorization Act for

Fiscal Year 2002.

Funds ($7 billion) for military medical personnel were appropriated in the Department of Defense Appropriations Act

for Fiscal Year 2007 (H.R. 5631, P.L. 109-289). P.L. 109-289 also includes an $11 billion contribution to the fund that

will provide care for future Medicare-eligible military retirees and dependents, the Medicare Eligible Retiree Health

Care Fund.

CRS products that discuss the BRAC process in greater detail include CRS Report RL32216, Military Base Closures:

Implementing the 2005 Round, by (name redacted), CRS Report RS22291,

Military Base Closures: Highlights of

the 2005 BRAC Commission Report and Its Additional Proposed Legislation, by (name redacted) and (name red

acted), and CRS Report R40476,

Base Realignment and Closure (BRAC): Transfer and Disposal of Military

Property, by (name redacted). Current BRAC-related products can most easily be found through the CRS web page

under Current Legislative Issues: Defense and then Military Base Closures.

10 U.S.C. 2687 note, the Defense Base Closure and Realignment Act of 1990, as amended, requires the Secretary of

Defense to implement all BRAC Commission recommendations not later than six years after their final approval. For

the 2005 round, DOD has calculated that date to be September 15, 2011.

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Several BRAC-related issues arose during the formulation and consideration of the list of

recommendations, as indicated below.

Requested Funding for BRAC Accounts

The appropriation request for FY2007 was split between two BRAC Accounts, one labeled the

1990 account and the other the 2005 account.

The BRAC 1990 account is the consolidation of what had been four separate accounts, one for

each of the previous BRAC rounds. Because all of the recommended BRAC actions from those

rounds were completed in 2001, the BRAC 1990 account is devoted to funding the continuing

environmental remediation required on the federal property deemed excess during those rounds

but not yet conveyed to non-DOD ownership. There was $246 million appropriated to the 1990

account for FY2005, and $252.2 million was enacted for FY2006. For FY2007, the President

requested $191.2 million, while the House Committee on Appropriations recommended $216.2

million. The Senate Committee on Appropriations endorsed the President’s request for $191.2

million.

The BRAC 2005 account funds the many realignment and closure actions, to include the

movement of units and equipment, the construction of new infrastructure at receiving

installations, and the realignment and closure of property deemed excess in the current BRAC

round. In addition, DOD has incorporated into the BRAC 2005 account funding for construction

to accommodate units being redeployed to the United States and its territories from garrisons

located overseas—primarily in Germany and the Republic of Korea. DOD refers to this

worldwide redeployment as the Integrated Global Presence and Basing Strategy, or IGPBS, and

has identified its associated military construction in budget justification documents using that

acronym. 9

BRAC appropriations in previous rounds rose rapidly during the first two or three years in order

to initiate needed military construction. Appropriations then stabilized and fell off as units and

functions were moved to new locations and surplus properties were relinquished. Continuing

appropriations, as mentioned above, have been dedicated primarily to environmental remediation

of remaining problematic real property for which title remains with DOD.

Congress appropriated $1.59 billion to the BRAC 2005 account for FY2006. The President

requested $5.6 billion for FY2007. If DOD follows its historic pattern, this request is likely to be

repeated for FY2008 before falling off to perhaps half that for FY2009. The House Committee on

Appropriations recommended a $5.3 billion appropriation for FY2007, while the Senate

Committee on Appropriations recommended $5.2 billion.

Because Congress did not pass a military construction appropriation for Fiscal Year 2007, BRAC

had to be funded under the various continuing resolutions. The final non-emergency appropriation

action for Fiscal Year 2007 was H.J.Res. 20, a year-long continuing resolution that incorporated

the two previous short-term continuing resolutions and extended their appropriations through the

end of the fiscal year, September 20, 2007. Though Sec. 101 of the continuing resolution

specified that funding was to be provided at the levels specified in the applicable Fiscal Year 2006

BRAC deals with the closure and realignment of defense installations within the United States and its territories,

while the IGPBS addresses all other U.S. military installations worldwide.

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appropriations acts, exceptions were made for certain accounts. This is reflected in the tables in

Appendix A.

Impact of Military Redeployments on Local Schools

Unit and function movements associated with BRAC and IGPBS will significantly increase the

populations in and around some military installations. For example, the 2005 BRAC Commission

estimated that Aberdeen Proving Ground and Ft. Meade in Maryland are expected to gain more

than 1,800 and 10,000 military, civilian, and contractor positions, respectively. Ft. Belvoir,

Virginia, is calculated to gain more than 21,000 direct and indirect positions. Several other

installations, such as Ft. Bliss in Texas and Ft. Sill in Oklahoma, are also preparing for significant

additions to the personnel stationed there. Local jurisdictions in the vicinity of gaining

installations have expressed concern that they may have difficulty creating the infrastructure

needed to support such large-scale changes in population.

One such issue concerns the provision of primary and secondary education for the children of

families being moved into the various areas. Some school boards have expressed concern that the

process for providing federal impact aid, which subsidizes the maintenance and operation of local

education institutions adversely affected by federal government activity such as maintaining a

military installation, may not be received in time to construct and staff new school facilities

before these new students arrive. A detailed discussion of impact aid in the BRAC context can be

found in CRS Report RL33137, Military Base Closures and the Impact Aid Program for

Education, by (name redacted).

Recapitalization

In 2001, the Department of Defense estimated its existing recapitalization rate at 192 years.10 This

meant that, on average, the Department was funding military construction at a rate that would

replace its real property inventory every 192 years. At that time, the Department established a

recapitalization goal of 67 years. In testimony to Congress on February 15, 2006, the Hon. Philip

Grone, the Deputy Undersecretary of Defense for Installations and Environment, stated that the

Fiscal Year 2007 budget request would support a recapitalization cycle of 72 years, indicating an

acceleration of construction that is approaching, but has not yet reached, its goal.

NATO Security Investment Program (NSIP)

The NSIP constitutes the United States contribution to the common North American Treaty

Organization (NATO) infrastructure fund. Traditionally, these common alliance funds have

constructed facilities such as petroleum pipelines, roads, communications networks, and the like

that are employed in the defense of the NATO alliance.

Recapitalization is the process of replacing old structures as they reach the end of their expected service life

(assuming that facility sustainment, or routine maintenance, is fully funded). If maintenance is inadequate, the service

life of any structure is correspondingly shortened. The Department of Defense often quotes a shorthand Departmentwide “recapitalization rate” that is the funded service life (e.g., 192 years) and an “expected service life” that is a

replacement goal (e.g., 67 years).

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Since the end of the Cold War, the military focus of the North Atlantic Alliance has shifted from

the defense member states in Western Europe to the potential for “out-of-area” operations in areas

such as the Balkans and Central Asia. In its report to the House (H.Rept. 109-464), the Committee

on Appropriations recommended $201.0 million for the NSIP, noting that the “Committee expects

projects will be prioritized with the highest priority given to NATO on-going missions such as

those in Iraq and Afghanistan.”11

The President requested $221.0 million for the NSIP for FY2007, while the House approved

$201.0 million. The Senate approved an appropriation of $206.0 million.

Special Inspector General for Iraq Reconstruction (SIGIR)

Language in the John Warner National Defense Authorization Act for Fiscal Year 2007 (H.R.

5122, P.L. 109-364) provided for the termination of the Special Inspector General for Iraq

Reconstruction (SIGIR).

The House-passed version of the bill contained no provision regarding the operation of the

SIGIR.12 During floor debate of the Senate’s national defense authorization bill (S. 2766), Senator

Russell D. Feingold proposed an amendment that would extend the investigative, auditing, and

reporting authorities of the SIGIR to cover “any funds appropriated or otherwise made available

for fiscal year 2006 for the reconstruction of Iraq, regardless of how such funds may be

designated.”13 The measure was agreed by voice vote on June 15, 2006, and incorporated into the

bill as Sec. 1054. It became part of H.R. 5122 when the Senate amended that bill by substituting

the language of S. 2766 on June 22. The section read as follows:

SEC. 1054. STRENGTHENING THE SPECIAL INSPECTOR GENERAL FOR IRAQ

RECONSTRUCTION.

For purposes of discharging the duties of the Special Inspector General for Iraq

Reconstruction under subsection (f) of section 3001 of the Emergency Supplemental

Appropriations Act for Defense and for the Reconstruction of Iraq and Afghanistan, 2004 (5

U.S.C. 8G note), and for purposes of determining the date of termination of the Office of the

Special Inspector General under subsection (o) of such section, any funds appropriated or

otherwise made available for fiscal year 2006 for the reconstruction of Iraq, regardless of

how such funds may be designated, shall be treated as amounts appropriated or otherwise

made available for the Iraq Relief and Reconstruction Fund.

Conference on the authorization bill began on September 12, and the conference report (H.Rept.

109-702) was filed on September 29. Sec. 1054, as entered into the Congressional Record, now

read:

SEC. 1054. MODIFICATION OF AUTHORITIES RELATING TO THE SPECIAL

INSPECTOR GENERAL FOR IRAQ RECONSTRUCTION.

House, Military Quality of Life and Veterans Affairs, and Related Agencies Appropriations Bill, 2007, 109th Cong.,

2 Sess., 2006, H.Rept. 109-464, p. 27.

The SIGIR maintains a website, through which access to information on its’ audits, investigations, and reports can be

gained. This website can be found at http://www.sigir.mil/.

S.Amdt. 4256. Consideration of the measure is found in the Congressional Record for June 15 (S5914-S5916, the

text of the amendment is located on page S5968).

Congressional Research Service

Military Construction, Military Quality of Life and Veterans Affairs

(a) Duties—For purposes of carrying out the duties of the Special Inspector General for Iraq

Reconstruction under section 3001(f) of the Emergency Supplemental Appropriations Act

for Defense and for the Reconstruction of Iraq and Afghanistan, 2004 (Public Law 108-106;

117 Stat. 1235 et seq.; 5 U.S.C. App., note to section 8G of Public Law 95-452), any United

States funds appropriated or otherwise made available for fiscal year 2006 for the

reconstruction of Iraq, irrespective of the designation of such funds, shall be deemed to be

amounts appropriated or otherwise made available to the Iraq Relief and Reconstruction

Fund.

(b) Termination—Section 3001(o) of the Emergency Supplemental Appropriations Act for

Defense and for the Reconstruction of Iraq and Afghanistan, 2004 (Public Law 108-106; 117

Stat. 1238; 5 U.S.C. App., note to section 8G of Public Law 95-452) is amended to read as

follows:

‘(o) Termination - The Office of the Inspector General shall terminate on October 1, 2007,

with transition operations authorized to continue through December 31, 2007.’.

By way of explanation, the accompanying Joint Explanatory Statement read:14

The Senate amendment contained a provision (sec. 1054) that would expand the authority of

the Special Inspector General for Iraq Reconstruction (SIGIR) by considering any funds

appropriated or made available in the Emergency Supplemental Appropriations Act for

Defense, the Global War on Terror, and Hurricane Recovery, 2006 (Public Law 109-234) for

relief and reconstruction in Iraq as part of the Iraqi Relief and Reconstruction Fund (IRRF),

and under the jurisdiction of the SIGIR, regardless of the source of the funds.

The House bill contained no similar provision.

The House recedes with an amendment that would clarify that the additional SIGIR

jurisdiction is limited to U.S. funds and would provide a sunset date of October 1, 2007, for

the Office of the SIGIR, with transition operations authorized to continue through December

31, 2007.

The conferees support the comprehensive audit efforts of the SIGIR and believe the office

continues to perform a critical function as long as significant resources flow to Iraq

reconstruction and until a transition plan is in place to return to regular order. The conferees

direct the SIGIR, jointly with the Inspectors General of the Departments of State and

Defense and the Inspector General of the U.S. Agency for International Development

(USAID), to develop and submit such a transition plan to Congress by April 1, 2007. The

plan should ensure maintenance and accountability of all accumulated records and minimal,

if any, disruption in the ability to oversee reconstruction funding or other U.S. assistance to

Iraq. The plan should include a process and time line for transfer of open audits and

investigations to the appropriate Departments of Defense, State or USAID office and should

consider various contingency scenarios which may impact the transition time line. The

conferees recognize that a significant change in the assumptions underlying this provision,

such as a major new commitment of U.S. funds for Iraq reconstruction, would require

changes to the transition plan and time line.

The conference report was agreed by the House by the Yeas and Nays: 398-23 (Roll no. 510) on

September 29, 2006. The Senate agreed to the report by Unanimous Consent on the following

H.Rept. 109-702, p. 817.

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Military Construction, Military Quality of Life and Veterans Affairs

day. The bill was presented to the President on October 5 and became law on October 17, 2006

(P.L. 109-364).

The Joint Explanatory Statement notwithstanding, Senators Susan M. Collins and Joseph I.

Lieberman appeared in a press conference on November 14, 2006, to state, in part:

COLLINS: How did the termination provision ... get put in? That’s a very good question. We

are both conferees—were conferees. And, speaking for myself, what I thought was the last

version of the bill did not include that provision.

But I think it’s important that however it got in there—and it certainly did not originate on

the Senate side—that it’s important that we correct the problem, go forward, and extend the

life of the office...

LIEBERMAN: Yes. I’d just add, also as a conferee, that we didn’t see this in the last version

that we saw. We checked after this became public, and I don’t believe that the leaders of the

committee on the Senate side or their staff knew it was in there....

Senator Collins had introduced an amendment to the military construction appropriations bill then

under consideration on the Senate floor. This provision stated:15

On page 82, between lines 19 and 20, insert the following:

Sec. 126. Section 3001(o) of the Emergency Supplemental Appropriations Act for Defense

and for the Reconstruction of Iraq and Afghanistan, 2004 (Public Law 108-106; 117 Stat.

1238; 5 U.S.C. App., note to section 8G of Public Law 95-452), as amended by section

1054(b) of the John Warner National Defense Authorization Act for Fiscal Year 2007

(Public Law 109-364), is amended to read as follows:

“(o) Termination.—(1)(A) The Office of the Inspector General shall terminate 10 months

after 80 percent of the funds appropriated or otherwise made available to the Iraq Relief and

Reconstruction Fund have been expended.

“(B) For purposes of calculating the termination of the Office of the Inspector General under

this subsection, any United States funds appropriated or otherwise made available for fiscal

year 2006 for the reconstruction of Iraq, irrespective of the designation of such funds, shall

be deemed to be amounts appropriated or otherwise made available to the Iraq Relief and

Reconstruction Fund.

“(2) The Special Inspector General for Iraq Reconstruction shall, prior to the termination of

the Office of the Special Inspector General under paragraph (1), prepare a final forensic audit

report on all funds deemed to be amounts appropriated or otherwise made available to the

Iraq Relief and Reconstruction Fund.”.

The amendment was agreed to in the Senate by voice vote, and the bill passed as amended on

November 14, 2006.

S.Amdt. 5123 to H.R. 5385, titled “To extend the Office of the Inspector General for Iraq until 80 percent of the

funds appropriated or otherwise made available to the Iraq Relief and Reconstruction Fund has been expended.”

Amendment text may be found in the Congressional Record for November 13, 2006, on pages S10881-S10882.

Consideration of the measure is detailed on pages S10895-S10897.

Congressional Research Service

Military Construction, Military Quality of Life and Veterans Affairs

Additional Appropriations, House

In Title IV of its bill, the House Committee on Appropriations recommended an additional $507

million for military construction accounts for “projects supporting contingency operations related

to the global war on terrorism” (see Table 3). These funds were intended for “projects related to

urgent transformation efforts, as well as projects directly supporting operations in the theater and

those that will enhance training in urban operations and close quarters combat.”16

Table 3. Additional Appropriations, House, FY2007

Military Construction Account

New Budget Authority

($ millions)

Army

379,300

Navy and Marine Corps

26,037

Air Force

49,923

Defense-Wide

44,500

Army National Guard

5,530

Army Reserve

1,713

Total

507,003

Source: H.Rept. 109-464, p. 69.

Each of these appropriations was addressed in a separate paragraph under Title IV, and each was

designated an emergency appropriation by language stating that “the amount under this heading is

designated as making appropriations for contingency operations related to the global war on

terrorism pursuant to section 402 of H.Con.Res. 376 (109th Congress), the concurrent resolution

on the budget for FY2007.” This language would have constituted legislation within a general

appropriations bill by changing the existing concurrent resolution. It therefore violated Clause

2(b) of Rule XXI of the House Rules. 17 Representative Jeb Hensarling, of Texas, raised a point of

order against each of these paragraphs and was sustained by the Chair.

Additional Appropriations, Senate

The Senate Committee on Appropriations included in its defense appropriation recommendation

$50 billion in additional appropriations to fund the global war on terrorism for the first several

months of Fiscal Year 2007. Of this, $897 million was recommended as an addition to the

recommended basic allowance for housing for Army active and reserve component members, as

noted in Table 4.

House, Military Quality of Life, p. 69.

The clause states, “A provision changing existing law may not be reported in a general appropriation bill, including a

provision making the availability of funds contingent on the receipt or possession of information not required by

existing law for the period of the appropriation, except germane provisions that retrench expenditures by the reduction

of amounts of money covered by the bill (which may include those recommended to the Committee on Appropriations

by direction of a legislative committee having jurisdiction over the subject matter) and except rescissions of

appropriations contained in appropriation Acts.”

Congressional Research Service

Military Construction, Military Quality of Life and Veterans Affairs

Table 4. Additional Appropriations, Senate, FY2007

($ in thousands)

Basic Allowance for Housing

Amount

Army

888,704

Army Reserve

3,164

Army National Guard

5,141

Total

897,009

Source: S.Rept. 109-292, p. 236.

Title II: Department of Veterans Affairs

Table 5. Department of Veterans Affairs Appropriations, FY2000-FY2006

(budget authority in billions)

FY2000

FY2001

FY2002

FY2003

FY2004

FY2005

FY2006

$46.04

$47.95

$52.38

$58.10

$61.84

$65.84

$71.46

Source: Amounts shown are from reports of the Appropriations Committees accompanying the appropriations

bills for the following years.

Agency Mission

Federal policy toward veterans recognizes the importance of their service to the nation and the

effect that service may have on their subsequent civilian lives. The Department of Veterans

Affairs (VA) administers, directly or in conjunction with other federal agencies, programs that

provide benefits and other services to veterans and their dependents and beneficiaries. The three

primary organizations in VA that work together to accomplish this mission are the Veterans

Benefits Administration (VBA), the Veterans Health Administration (VHA), and the National

Cemetery Administration (NCA). The benefits provided include compensation for disabilities

sustained or worsened as a result of active duty military service; pensions for totally disabled,

poor war veterans; cash payments for certain categories of dependents and/or survivors;

education, training, rehabilitation, and job placement services to assist veterans upon their return

to civilian life; loan guarantees to help them obtain homes; free medical care for conditions

sustained during military service as well as medical care for other conditions, much of which is

provided free to low income veterans; life insurance to enhance financial security for their

dependents; and burial assistance, flags, grave-sites, and headstones when they die.

Table 6. Appropriations: Department of Veterans Affairs, FY2006-FY2007

(budget authority in billions)

Program

FY2006

enacted

FY2007

request

FY2007

House

FY2007

Senate

FY2007

H.J.Res. 20

Total: (VA)

$71.458

$77.909

$77.882

Compensation, pension, burial

$33.898

$38.007

3.309

3.262

Readjustment benefits

Congressional Research Service

Military Construction, Military Quality of Life and Veterans Affairs

Program

FY2006

enacted

FY2007

request

FY2007

House

FY2007

Senate

FY2007

H.J.Res. 20

Insurance/indemnities

0.046

0.050

.050

Housing prog. (net, indef.)

-0.047a

0.097

.097

Subtotal: Mandatory

$37.206

$41.416

41.416

Medical services

21.322

25.512

25.412

28.689

25.512

Emerg. funding

1.225

—

Emerg. funding

(P.L. 109-148)

0.225

—

Medical administration

2.858

3.177

3.277

—

3.177

Medical facilities

3.298

3.569

3.594

3.569

Med. & prosthetic research

0.412

0.399

0.412

.414

(offsetting receipts)

-2.170

-2.329

(approps. indefinite)

2.170

2.329

Subtotal: Med. programs & admin.

(appropriations)

29.341

32.657

32.695

32.670

32.672

Total available to VHA

31.511

34.986

35.024

34.999

35.001

Gen. admin. exp. (total)

1.411

1.481

1.468

1.481

Emerg. funding

(P.L. 109-148)

0.025

—

Information technology

1.214

1.257

1.302

1.256

1.214

National Cemetery Admin.

0.156

0.161

.161

—

Inspector General

0.070

0.069

0.071

.070

Construction

0.806

0.597

0.494

0.597

.598

0.955

—

Grants; state facilities

0.085

0.105

0.085

.085

State veteran cemeteries

0.032

.032

Housing & other loan admin.

0.155

0.154

.154

Disaster comp.—emergency

(P.L. 106-148)

0.003

—

Subtotal: Discretionary

$34.252

$36.493

$36.466

Med. care collection fundb

Emerg. funding

(P.L. 109-148)

Emerg. funding

(P.L. 109-148 & 234)

Source: Table prepared by the Congressional Research Service based on H.Rept. 109-464, S.Rept. 109-286, and

H.J.Res. 20.

This negative budget authority is the result of combining the loan subsidy payments estimated to be needed

during FY2006 with the offsetting receipts expected to be collected.

Medical Care Collections Fund (MCCF) receipts are restored to the VHA as an indefinite budget authority

equal to the revenue collected.

$200,000.

Congressional Research Service

Military Construction, Military Quality of Life and Veterans Affairs

Key Budget Issues

The budget submitted by the Administration in February 2006 calls for funding VA at a level of

$77.9 billion dollars for FY2007 (see Table 6). This would be an increase of $6.5 billion, or

9.0%, over the FY2006 total including the supplemental appropriations. The most recent

supplemental (P.L. 109-234) added FY2006 funds for construction of a replacement for the VA

Medical Center in New Orleans.18

The Senate passed its version of the budget resolution for FY2007 (S.Con.Res. 83) on March 16,

2006, and the House passed H.Con.Res. 376 on May 18, 2006. The overall budget function 700

for veterans benefits and services addressed in the budget resolution is broader than just the VA

and includes money that will be appropriated in other bills for other departments as well. The

House-passed version recommends $74.6 billion in new budget authority for veterans benefits

and services. The Senate version was amended on the floor to increase the total to $74.8 billion

for the veterans budget function.

The House Appropriations Committee approved its appropriations bill (H.R. 5385) including

about the same amount as requested for VA on May 10, 2006. The bill, as passed by the House on

May 19, 2006, would provide a total of $77.9 billion for the VA budget with $36.5 billion of the

bill’s $94.7 billion 302(b) allocation going for VA discretionary spending. The Senate

Appropriations Committee approved the bill with the same totals on July 20, 2006. On January

31, 2007, the House approved H.J.Res. 20, a continuing resolution to provide funding for

FY2007.

VA Cash Benefits

Eligibility requirements and benefit levels for VA cash benefits are specified in law. Since

spending for these programs is mandatory as noted above, the amounts requested in the budget

are based on projected caseloads. While the total number of veterans is declining, the number

receiving benefits is increasing. VA entitlement spending (outlays), mostly service-connected

compensation, pensions, and readjustment (primarily education) payments, rose from $31.2

billion in FY2004 to $38.1 billion in FY2005 and is projected at $38.2 billion in FY2007. In

addition to the increased number of beneficiaries, much of the projected increases in recent years

result from cost-of-living adjustments for compensation benefits and from liberalizations to the

Montgomery GI Bill, the primary education program.

Medical Care

The Veterans Health Administration (VHA) is a direct service provider of primary care,

specialized care, and related medical and social support services to veterans through an integrated

health care system. In FY2005, VHA operated 156 hospitals, 135 nursing homes, 43 residential

rehabilitation treatment centers, and 711 community-based outpatient clinics (CBOCs).19 VHA

For further information on this bill, see CRS Report RL33298, FY2006 Supplemental Appropriations: Iraq and

Other International Activities; Additional Hurricane Katrina Relief, by (name redacted) et al.

Data on the number of hospitals and nursing homes includes facilities damaged by Hurricane Katrina. Data on the number

of CBOCs differ from source to source. Some count clinics located at VA hospitals while others count only freestanding

CBOCs. The number represented in this report excludes clinics located in VA hospitals. The data are current as of Dec. 1,

2005.

Congressional Research Service

Military Construction, Military Quality of Life and Veterans Affairs

also pays for care provided to veterans by independent providers and practitioners on a fee basis

under certain circumstances. Inpatient and outpatient care is provided in the private sector to

eligible dependents of veterans under the Civilian Health and Medical Program of the Department

of Veterans Affairs (CHAMPVA). In addition, VHA provides grants for construction of stateowned nursing homes and domiciliary facilities, and collaborates with the Department of Defense

(DOD) in sharing health care resources and services.

The President’s FY2007 budget proposal to Congress requested $32.7 billion for VHA, a 11.3%

increase over the FY2006 enacted amount of $29.3 billion, and a 10% increase over the FY2005

enacted amount of $29.7 billion. As in previous budget proposals, the President’s FY2007 budget

request also includes a set of legislative proposals. The Administration is requesting authorization

from Congress to assess an annual enrollment fee of $250 for all Priority 7 and 8 veterans,

increase the veterans’ share of pharmaceutical co-payments from $8 to $15 (for each 30-day

prescription) for all enrolled veterans in Priority Groups 7 and 8, and bill veterans receiving

treatment for nonservice-connected conditions for the entire co-payment amount.

The House passed its version of the Military Construction, Military Quality of Life, and Veterans

Affairs Appropriations bill (MIL-CON-QUAL-appropriations bill) for FY2007 (H.R. 5385,

H.Rept. 109-464) on May 19, 2006. H.R. 5385 provides $32.7 billion for the Veterans Health

Administration (VHA) for FY2007, about the same amount as the President’s request. This

includes $25.4 billion for medical services, a $2.6 billion (11.6%) increase over the FY2006

enacted amount and $100 million less than the President’s requested amount of $25.5 billion. The

MIL-CON-QUAL-appropriations bill also includes $3.3 billion for medical administration, a

$100 million increase over the President’s request; $3.6 billion for medical facilities; and $412

million for medical and prosthetic research, a $13.0 million increase over the Administration’s

request. The House-passed bill does not include any provisions that would give VA the authority

to implement fee increases as requested by the Administration’s budget proposal for VHA for

FY2007

On July 20, 2006, the Senate Committee on Appropriations reported out of committee its version

of the Military Construction and Veterans Affairs and Related Agencies Appropriations bill (MILCON-VA-appropriations bill) for FY2007 (H.R. 5385, H.Rept. 109-286). H.R. 5385, as amended,

provides $32.7 billion for VHA for FY2007, about the same as the House-passed amount and the

President’s request. This amount includes $28.7 billion for medical services, a 26.0% increase

over the FY2006 enacted amount, and a 13.0% increase over the House-passed amount. Although

it appears that the Committee-recommended amount is significantly higher than the President’s

request ($25.5 billion) and the House-passed amount ($25.4 billion), it should be noted that the

Committee combined the medical administration account into the medical services account. The

MIL-CON-VA-appropriations bill also includes $3.6 billion for medical facilities, and $412

million for medical and prosthetic research. The Senate Appropriations Committee reported bill

does not include any provisions that would give VA the authority to implement fee increases as

requested by the Administration’s budget proposal for VHA for FY2007.

The third continuing resolution (H.J.Res. 102 , P.L. 109-383) extended funding for VHA through

February 15, 2007. Section 136 of H.J.Res. 102 provided VA with the authority to transfer up to

$684 million into the medical services account from other non-medical care accounts. Since the

beginning of FY2007, VA has been using unobligated balances carried over from FY2006 to

bridge the approximately $250 million per month shortfall in the VHA accounts.

Congressional Research Service

Military Construction, Military Quality of Life and Veterans Affairs

Funding Level for Defense and Veterans Brain Injury Center

During Senate floor consideration of the FY2007 Department of Defense Appropriations Act

(H.R. 5631), controversy erupted about the adequacy of funding for the Defense and Veterans

Brain Injury Center, a center that coordinates treatment and research for traumatic brain injuries

affecting active-duty military, their dependents and veterans provided. 20 Concerned about

traumatic and other brain injuries in Iraq and Afghanistan due to Improvised Explosive Device

(IED) attacks, Congress increased DOD’s funding request for this program in FY2006, and

commissioned an extensive report due October 6, 2006.21 In FY2007, the final funding level for

this program will be set in the conference version of the Military Construction, Military Quality

of Life, Veterans Affairs & related agencies bill (H.R. 5385). Despite the controversy about the

funding level for this particular program, military personnel are entitled to full medical coverage

under the TRICARE program.

The Defense and Veterans Brain Injury Center is funded within the “Blast Injury Prevention,

Mitigation and Treatment” program, and received $10.7 million of the $19.6 million appropriated

in FY2006. Last year, Congress increased DOD’s request for blast injury from $7 million to $19.6

million, including monies for both treatment and R&D, all provided within the appropriation for

Defense Health.

In FY2007, DOD again proposed $7 million for the Blast Injury Prevention, Mitigation and

Treatment program including $4.9 million for the Defense and Veterans Brain Injury Center. On

September 6, 2007, the Senate unanimously adopted an amendment to the FY2007 DOD

Appropriations bill (H.R. 5631) offered by Senators Allen and Durbin (SA4883) that made $19

million available for the Defense and Veterans Brain Injury Center from monies for the Defense

Health Program. 22 The House did not change DOD’s request for $7 million for the Blast Injury

Prevention, Mitigation and Treatment program and funded the program in a different bill, the

Military Construction, Military Quality of Life and Veterans Affairs appropriations bill (H.R.

5385).23

In FY2007, the appropriation conferees for the FY2007 Military Construction, Military Quality of

Life and Veterans Affairs appropriation bills (H.R. 5385) will need to resolve differences in

funding for the Blast Injury Prevention, Mitigation and Treatment program, and the amount of

that funding that will go to Defense and Veterans Brain Injury Center.24

For a more detailed discussion of the VA medical care budget, see CRS Report RL33409,

Veterans’ Medical Care: FY2007 Appropriations, by (name redacted) .

Treatment is provided at three military hospitals, three VA hospitals and two private centers.

See Sec. 255 in P.L. 109-163, H.Rept. 109-360, pp.47-50, and p. 622 for reporting requirement, and see H.Rept. 109359, Conference Report on FY2006 DOD Appropriations Bill for FY2006 Congressional action, p. 458.

See Congressional Record, September 5, 2006, pp. S8928ff and September 6, 2006, p. S8992 and S9035.

For DOD request, see “Exhibit OP-5, In-House Care,” Defense Health Program, FY2007 Budget Estimates, February

2006, pp. 2-4; http://www.dod.mil/comptroller/defbudget/fy2007/budget_justification/pdfs/dhp/VOL_1/

Vol_1_Sec_5_-_A_OP-5_IHC_07PB_DHP.pdf. Because this program is part of In-house Care and because the House

did not change DOD’s request, the House report does not specifically mention its funding.

At the beginning of the 109th Congress, the appropriations committees changed the jurisdictional responsibility of

various subcommittees. Funding for Defense Health is included in Military Construction bill in the House and in the

Defense Appropriations bill in the Senate. The appropriators follow the House rules in odd years like FY2007 and the

Senate rules in even years.

Congressional Research Service

Military Construction, Military Quality of Life and Veterans Affairs

Title III: Related Agencies

Independent Commissions

American Battle Monuments Commission

The American Battle Monuments Commission (ABMC) is responsible for the maintenance and

construction of U.S. monuments and memorials commemorating the achievements in battle of

U.S. armed forces since the nation’s entry into World War I; the erection of monuments and

markers by U.S. citizens and organizations in foreign countries; and the design, construction, and

maintenance of permanent military cemetery memorials in foreign countries. The Commission

maintains 24 military memorial cemeteries and 25 monuments, memorials, and markers in 15

countries, including three memorials on U.S. soil.

The ABMC was responsible for the planning and construction of the World War II Memorial on

the Mall in Washington, DC. Though the National Park Service assumed responsibility for the

operation and maintenance of the Memorial at its dedication, the ABMC retains a fiduciary

responsibility for the remaining public contributions given for its construction. The ABMC has

undertaken the construction of an Interpretive Center at the Normandy American Cemetery,

Normandy, France, to commemorate the World War II Allied invasion of France on June 6, 1944,

and the subsequent land battles in Europe. The Commission is scheduled to open the facility on

June 6, 2007.

U.S. Court of Appeals for Veterans Claims

The U.S. Court of Appeals for Veterans Claims was established by the Veterans’ Judicial Review

Act of 1988. The Court is an independent judicial tribunal with exclusive jurisdiction to review

decisions of the Board of Veterans’ Appeals. It has the authority to decide all relevant questions of

law; interpret constitutional, statutory, and regulatory provisions; and determine the meaning or

applicability of the terms of an action by the Department of Veterans Affairs (VA). It is authorized

to compel action by the VA. It is authorized to hold unconstitutional or otherwise unlawful and set

aside decisions, findings, conclusions, rules and regulations issued or adopted by the Department

of Veterans Affairs or the Board of Veterans’ Appeals.

The Court currently occupies leased facilities near Judiciary Square in the District of Columbia

and is searching for a permanent location. The Court’s major operational initiative is its transition

to an electronic case filing system, which is also funded through this appropriation.

Cemeterial Expenses, Army

The Secretary of the Army is responsible for the administration, operation and maintenance of

Arlington National Cemetery and the Soldiers’ and Airmen’s Home National Cemetery. In

addition to its principal function as a national cemetery, Arlington is the site of approximately

3,100 non-funeral ceremonies each year and has approximately 4,000,000 visitors annually.

Congressional Research Service

Military Construction, Military Quality of Life and Veterans Affairs

Armed Forces Retirement Home (AFRH)

The Armed Forces Retirement Home account provides funds to operate and maintain the Armed

Forces Retirement Home in Washington, DC (also known as the United States Soldiers’ and

Airmen’s Home), and the Armed Forces Retirement Home in Gulfport, Mississippi (originally

located in Philadelphia, PA, and known as the United States Naval Home). These two facilities

provide long-term housing and medical care for approximately 1,600 needy veterans. The

appropriation is not drawn from the general treasury, but rather comes from a special trust fund

that is maintained through gifts, bequests, and a $0.50 per month assessment on the pay of active

duty enlisted military personnel and warrant officers.

The Gulfport campus, encompassing a 19-story living accommodation and medical facility tower,

was severely damaged by Hurricane Katrina at the end of August, 2005, and is not currently in

use. Four hundred fourteen of the 583 residents then occupying the facility were transferred to the

Washington, DC, location immediately after the storm.

Congressional Research Service

Military Construction, Military Quality of Life and Veterans Affairs

Appendix A. Consolidated Funding Tables

Table A-1. DOD Military Construction

(budget authority in $000)

FY2006

Enacted

FY2007

Request

House

Senate

Cont.

Res.

1,757,507

2,059,762

1,756,298

2,137,822

2,013,000

—

34,800

—

(19,746)

—

(43,348)

—

(125,800)

—

187,100

—

1,924,861

2,059,762

1,712,950

2,003,474

2,013,000

1,145,570

1,162,038

1,193,834

—

1,129,000

Rescissions

(50,037)

—

(38,000)

—

Emerg. Approps.

(P.L. 109-148)

291,219

—

Emerg. Approps.

(P.L. 109-234)

44,770

—

1,431,522

1,162,038

1,155,834

1,200,065

1,129,000

1,275,645

1,156,148

1,187,550

—

1,083,000

Rescissions

(29,100)

—

(2,694)

—

Emerg. Approps.

(P.L. 109-148)

52,612

—

Emerg. Approps.

(P.L. 109-234)

125,000

—

Rescissions

(Emerg. Approps.)

—

(10,800)

—

1,424,157

1,156,148

1,184,856

1,181,575

1,083,000

Military Construction, Defense-wide

998,766

1,208,198

1,107,606

1,061,395

1,127,000

Emergency Appropriations

—

100,886

—

Rescissions

(20,000)

—

(110,229)

(124,065)

—

Emerg. Approps.

(P.L. 109-148)

45,000

—

Emerg. Approps.

(P.L. 109-234)

20,600

—

1,044,366

1,208,198

997,377

1,038,216

1,127,000

5,824,906

5,586,146

5,051,017

5,423,330

5,352,000

517,919

473,197

512,873

539,804

473,000

—

(2,129)

—

Account

Military Construction, Army

Emergency Appropriations

Rescissions

Rescissions (Emerg. Approps.)

Emerg. Approps.

(P.L. 109-234)

Total

Military Construction, Navy and Marine Corps

Total

Military Construction, Air Force

Total

Total, Active components

Military Construction, Army National Guard

Rescissions

Congressional Research Service

Military Construction, Military Quality of Life and Veterans Affairs

FY2006

Enacted

FY2007

Request

Emerg. Approps.

(P.L. 109-148)

374,300

—

Emerg. Approps.

(P.L. 109-234)

210,071

—

1,102,290

473,197

512,873

537,675

473,000

312,956

125,788

207,088

252,834

126,000

Rescissions

(13,700)

—

Emerg. Approps.

(P.L. 109-148)

35,000

—

Emerg. Approps.

(P.L. 109-234)

5,800

—

340,056

125,788

207,088

252,834

126,000

151,043

166,487

167,774

191,450

166,000

151,043

166,487

167,774

—

166,000

46,395

48,408

55,158

48,408

43,000

Rescissions

(66,090)

—

Emerg. Approps.

(P.L. 109-148)

120,132

—

Emerg. Approps.

(P.L. 109-234)

24,270

—

Total

124,707

48,408

55,158

48,408

43,000

104,824

44,936

56,836

44,936

45,000

Rescissions

(13,815)

—

Total

91,009

44,936

56,836

44,936

45,000

Total, Reserve components

1,809,105

858,860

999,729

1,075,303

853,000

Total, Military Construction

7,634,011

6,444,962

6,050,746

6,498,633

6,205,000

204,789

220,985

200,985

205,985

204,789

Rescissions

(30,000)

—

Total

174,789

220,985

200,985

205,985

204,789

544,140

594,991

578,791

578,781

579,000

Rescissions

(16,000)

—

Total

528,140

594,991

578,791

578,781

579,000

Family Housing Ops and Debt, Army

795,953

676,829

674,657

675,617

671,000

Family Housing Construction, Navy and Marine

Corps

216,753

305,071

308,956

305,071

305,000

Emerg. Approps.

(P.L. 109-148)

86,165

—

Total

302,918

305,071

308,956

305,071

305,000

582,773

509,126

498,525

505,000

Account

Total

Military Construction, Air National Guard

Total

Military Construction, Army Reserve

Total

Military Construction, Naval Reserve

Military Construction, Air Force Reserve

NATO Security Investment Program

Family Housing Construction, Army

Family Housing Ops and Debt, Navy and Marine

Corps

Congressional Research Service

House

Senate

Cont.

Res.

Military Construction, Military Quality of Life and Veterans Affairs

FY2006

Enacted

FY2007

Request

Emerg. Approps.

(P.L. 109-148)

48,889

—

Total

631,662

509,126

498,525

505,000

1,090,868

1,183,138

1,169,138

1,182,138

1,168,000

Rescissions

(43,900)

—

(66,200)

—

Emerg. Approps.

(P.L. 109-148)

278,000

—

1,368,868

1,183,138

1,102,938

1,115,938

1,168,000

759,270

755,071

750,000

Emerg. Approps.

(P.L. 109-148)

47,019

—

Total

806,289

755,071

750,000

Family Housing Construction, Defense-wide

8,808

9,000

Family Housing Ops and Debt, Defense-wide

45,927

48,506

49,000

DOD Family Housing Improvement Fund

45,927

57,314

45,927

4,482,232

4,092,848

3,998,161

3,997,625

4,081,927

130,993

90,993

140,993

131,000

BRAC, 1990

252,279

191,220

216,220

191,220

252,279

BRAC, 2005

1,489,421

5,626,223

5,309,876

5,237,100

2,489,421

Total

1,741,700

5,817,443

5,546,096

5,428,320

2,741,700

14,032,732

16,707,231

15,866,981

16,271,556

13,364,416

Account

Family Housing Construction, Air Force

Total

Family Housing Ops and Debt, Air Force

Total, Family Housing

Chemical Demilitarization Construction,

Defense-wide

House

Senate

Cont.

Res.

Base Realignment and Closure

Grand Total, MilCon & FH

Table A-2. DOD Basic Allowance for Housing

(budget authority in $000)

FY2006

Enacted

FY2007

Request

House

Senate

Cont.

Res.

Army

3,880,723

3,715,905

3,687,905

3,715,905

3,880,723

Navy

3,511,570

4,185,061

4,135,061

4,185,061

3,511,570

Marine Corps

1,166,686

1,351,921

1,350,921

1,351,921

1,166,686

Air Force

3,162,073

2,979,327

2,934,327

—

6,526

—

3,168,599

2,979,327

2,934,362

2,979,327

3,168,599

Army National Guard

444,819

469,109

—

Emerg. Approps.

(P.L. 109-148)

32,294

—

Total

477,113

469,109

477,113

Emerg. Approps.

(P.L. 109-148)

Total

Congressional Research Service

Military Construction, Military Quality of Life and Veterans Affairs

FY2006

Enacted

Air National Guard

FY2007

Request

House

Cont.

Res.

Senate

238,396

277,533

—

Emerg. Approps.

(P.L. 109-148)

10,289

—

Total

248,685

277,533

248,685

Army Reserve

306,642

347,607

—

361

—

Total

307,003

347,607

307,003

Naval Reserve

189,141

208,838

—

1,053

—

190,194

208,838

190,194

Marine Corps Reserve

40,134

43,082

40,134

Air Force Reserve

69,357

76,218

—

69,442

76,218

69,442

13,060,149

13,654,601

13,530,636

13,654,601

13,060,149

Emerg. Approps.

(P.L. 109-148)

Emerg. Approps.

(P.L. 109-148)

Total

Emerg. Approps.

(P.L. 109-148)

Total

Note: Reserve Component (Reserve and National Guard) BAH is not listed as a separate line item in the Senate

Committee on Appropriations Report.

Table A-3. DOD Facilities Sustainment, Restoration, & Modernization

(budget authority in $000)

FY2006

Enacted

FY2007

Request

House

Senate

Army

1,832,607

1,810,774

1,780,774

—

Navy

1,331,521

1,201,313

1,208,313

—

215,499

—

Total

1,547,020

1,201,313

—

Marine Corps

548,420

473,141

—

1,827,246

1,684,019

1,511,019

—

69,005

—

Total

1,896,251

1,684,019

1,511,019

—

Defense-Wide

115,731

86,386

—

5,238

—

120,969

86,386

—

392,579

387,882

—

Emerg. Approps.

(P.L. 109-148)

Air Force

Emerg. Approps.

(P.L. 109-148)

Emerg. Approps.

(P.L. 109-148)

Total

Army National Guard

Congressional Research Service

Conf.

Military Construction, Military Quality of Life and Veterans Affairs

FY2006

Enacted

FY2007

Request

House

Senate

Conf.

Emerg. Approps.

(P.L. 109-148)

49,217

—

Total

441,796

387,882

—

177,993

255,322

175,122

—

Emerg. Approps.

(P.L. 109-148)

13,557

—

Total

191,550

255,322

175,122

—

Army Reserve

202,326

215,890

—

1,128

—

Total

203,454

215,890

—

Naval Reserve

67,110

52,136

101,524

—

Emerg. Approps.

(P.L. 109-148)

310,024

—

Total

377,134

52,136

101,524

—

Marine Corps Reserve

10,004

9,579

—

Emerg. Approps.

(P.L. 109-148)

1,094

—

Total

11,098

9,579

—

49,860

59,849

—

Emerg. Approps.

(P.L. 109-148)

1,917

—

Total

51,777

59,849

—

7,222,076

6,236,291

6,009,479

—

Air National Guard

Emerg. Approps.

(P.L. 109-148)

Air Force Reserve

Total

Note: Defense-Wide FSRM is not broken out in the Senate report and is estimated.

Table A-4. DOD Environmental Remediation

(budget authority in $000)

FY2006

Enacted

FY2007

Request

House

Senate

Conf.

Army

403,786

413,794

—

Navy

302,222

304,409

—

Air Force

402,396

423,871

—

Defense-Wide

27,885

18,431

—

Formerly Used Defense Sites (FUDS)

254,352

242,790

257,790

—

1,390,641

1,403,295

1,418,295

—

Total

Congressional Research Service

Military Construction, Military Quality of Life and Veterans Affairs

Table A-5. DOD Health Program

(budget authority in $000)

FY2006

Enacted

FY2007

Request

House

Senate

19,106,789

20,498,163

20,218,205

20,544,605

—

(40,042)

—

Emerg. Approps.

(P.L. 109-148)

120,000

—

Emerg. Approps.

(P.L. 109-148)

172,958

—

Total

19,399,747

20,498,163

20,178,163

20,544,605

—

Procurement

375,328

396,355

402,855

397,355

—

Emerg. Approps.

(P.L. 109-148)

28,592

—

Total

403,920

396,355

402,855

397,355

—

536,883

130,603

444,103

467,903

—

20,340,550

21,025,121

21,409,863

—

Operation and Maintenance

Rescissions

Research and Development

Total, Defense Health

Conf.

Table A-6. DOD Military Totals

(budget authority in $000)

Account

FY2005

Enacted

FY2006

Request

House

Senate

59,026,539

58,077,324

58,763,794

Conf.

Total, Department of Defense, Military

New Budget Authority

56,046,148

—

Table A-7. Related Agencies

(budget authority in $000)

Account

FY2006

Enacted

FY2007

Request

House

Senate

Conf.

American Battle Monuments Commission

Salaries and Expenses

35,888

35,838

37,088

37,000

Foreign Currency Fluctuations

15,098

4,900

5,000

50,986

40,738

41,988

42,000

18,607

19,790

20,100

28,760

26,550

28,760

Operation and Maintenance

56,463

54,846

—

Capital Program

1,236

—

Total

U.S. Court of Appeals for Veterans Claims

Salaries and Expenses

Department of Defense-Civil

Cemeterial Expenses, Army

Armed Forces Retirement Home

Congressional Research Service

Military Construction, Military Quality of Life and Veterans Affairs

Account

FY2006

Enacted

FY2007

Request

House

Senate

Conf.

Emerg. Approps.

(P.L. 109-148)

65,800

—

Emerg. Approps.

(P.L. 109-234)

176,000

—

Total

299,499

54,846

299,499

Total, Agencies

397,852

141,924

143,174

390,359

Congressional Research Service

Military Construction, Military Quality of Life and Veterans Affairs

Appendix B. Additional Resources

Budget

CRS Report RL30002, A Defense Budget Primer, by (name redacted) and (name redacted).

CRS Report 98-720, Manual on the Federal Budget Process, by (name redacted) and Allen Schick.

Selected Websites

House Committee on Appropriations

http://appropriations.house.gov/

Senate Committee on Appropriations

http://appropriations.senate.gov/

House Committee on Armed Services

http://www.house.gov/hasc/

Senate Committee on Armed Services

http://armed-services.senate.gov/

House Committee on Veterans Affairs

http://veterans.house.gov/

Senate Committee on Veterans Affairs

http://veterans.senate.gov/

Commission on Review of Overseas Military Facility Structure of the United States (Overseas

Basing Commission)

http://www.obc.gov/

CRS Appropriations Products Guide

http://www.crs.gov/products/appropriations/apppage.shtml

CRS Multimedia Library

http://www.crs.gov/products/multimedia/multimedialibrary.shtml

Congressional Budget Office

http://www.cbo.gov/

Defense Base Closure and Realignment Commission (BRAC Commission)

http://www.brac.gov

Government Accountability Office

http://www.gao.gov/

Congressional Research Service

Military Construction, Military Quality of Life and Veterans Affairs

Author Contact Information

(name redacted)

Specialist in National Defense

/redacted/@crs.loc.gov, 7-....

(name redacted)

Analyst in Veterans Policy

/redacted/@crs.loc.gov, 7-....

(name redacted)

Specialist in Social Policy

/redacted/@crs.loc.gov, 7-....

Key Policy Staff for Military Construction, Military Quality of Life,

and Veterans Affairs Appropriations

Area of Expertise

Name

Phone

E-mail

Acquisition

Stephen H. Chadwick

7-....

Base Closure

(name redacted)

7-....

(name redacted)

7-....

/redacted/@crs.loc.gov

(name redacted)

7-....

/redacted/@crs.loc.gov

(name redacted)

7-....

/redacted/@crs.loc.gov

Health Care; Military

Richard A. Best, Jr.

7-....

Military Construction

(name redacted)

7-....

/red acted/@crs.loc.gov

Military Personnel

(name redacted)

7-....

/redacted/@crs.loc.gov

(name redacted)

7-....

/redacted/@crs.loc.gov

Defense Budget

/redacted/@crs.loc.gov

Military Personnel; Reserves

(name redacted)

Related Agencies

(name redacted)

7-....

/redacted/@crs.loc.gov

Veterans Affairs

(name redacted)

7-....

/redacted/@crs.loc.gov

Veterans Affairs; Healthcare

(name redacted)

Congressional Research Service

7-....

edacted/@crs.loc.gov

/redacted/@crs.loc.gov

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