This report discusses the political context and congressional consideration of various funding and other restrictive legislative language applying to military operations in Indochina between 1970 and 1973. Table 1 includes funding restrictions on military operations and Table 2 includes other non-funding approaches. Those provisions that were enacted are listed first followed by provisions that were not enacted but where there was a roll call vote in either house. Vietnam War Policy Context for Congressional Legislation

During the 1970-1973 period, Congress considered a variety of proposals to restrict U.S. military operations in Indochina and require a withdrawal of troops from Vietnam in response to the growing controversy in the United States over U.S. military involvement in Vietnam during the 1965-1969 period. According to Department of Defense statistics, U.S. troop levels fell from 539,000 in June 1969 to 415,000 in June 1970, 239,000 in June 1971, 47,000 in June 1972, and 21,500 in January 1973. In 1974, a non-funding bill was passed to cap personnel levels in Indochina at 4,000 by mid-1975 (2,500 of whom could be members of the armed forces), and at 3,000 by the end of 1975 (1,500 of whom could be members of the armed forces). U.S. ground troops withdrew by June 30, 1970, but U.S. bombing of North Vietnamese and Khmer Rouge forces in Cambodia continued. The "Cooper-Church" amendment, enacted into law in January 1971, prohibited the reintroduction of U.S. ground forces into Cambodia. The restrictive bills passed in June and July 1973 terminated funding for the bombing in Cambodia on August 15, 1973, and bombing stopped on that date. President Nixon and other Administration officials hinted publicly in March 1973 that the United States would intervene militarily if North Vietnam violated the cease-fire agreement. These indications of Nixon's policy intention no doubt influenced the legislation proposed and passed by Congress in mid-1973 to cut off funding for combat operations "in or over or from off the shore of North Vietnam, South Vietnam...."
For a CRS Report that compares Congressional funding cutoffs of U.S. military forces to use of the War Powers Act, see CRS Report RS20775, Congressional Use of Funding Cutoffs Since 1970 Involving U.S. Military Forces and Overseas Deployments , by [author name scrubbed]. Prohibiting the Obligation or Expenditure of Funds

The proposals to cut off funds generally prohibit obligating or expending funds in a particular bill or bills after Congress has appropriated the funds. In other cases, the funding cutoff was contingent upon certain conditions or events taking place, such as the negotiation by the President of a cease-fire, the release of U.S. prisoners of war (POWs), or a presidential determination that personnel can be withdrawn safely (entries 12, 13, 14, 16). Congress also considered and passed a repeal of the August 10, 1964, Gulf of Tonkin Resolution that gave congressional approval to "take all necessary measures" to repel an armed attack against the United States in January 1971, but military operations continued in Vietnam for another two years (entry 22). Appendix. 15628
In concert with the declared objectives of the President of the United States to avoid the involvement of the United States in Cambodia after July 1, 1970, and to expedite the withdrawal of American forces from Cambodia, it is hereby provided that unless specifically authorized by law hereafter enacted, no funds authorized or appropriated pursuant to this act or any other law may be expended after July 1, 1970 for the purpose of:
(1) retaining United States forces in Cambodia;
(2) paying the compensation or allowances of, or otherwise supporting, directly or indirectly, any United States personnel in Cambodia who furnish military instruction to Cambodian forces or engage in any combat activity in support of Cambodian forces;
(3) entering into or carrying out any contract or agreement to provide military instruction in Cambodia or to provide persons to engage in any combat activity in support of Cambodian forces; or
(4) conducting any combat activity in direct support of Cambodian forces; nothing contained in this section shall be deemed to impugn the constitutional power of the President as Commander in Chief, including the exercise of that constitutional power which may be necessary to protect the lives of U.S. armed forces wherever deployed; nothing contained in this section shall be deemed to impugn the constitutional powers of the Congress including the power to declare war and to make rules for the government and regulation of the armed forces of the United States. Non-Funding Restrictions on Military Operations
22.
The main body of this report is a series of tables and an Appendix that summarize and cite bill language that was intended to end or restrict U.S. military operations in Vietnam and Indochina, Somalia, and Kosovo. The report covers enacted provisions as well as those where there were roll call votes but the provision was not ultimately enacted. The first table outlines proposals that restrict funding and the second table describes other types of restrictions.
The other legislation discussed in this report either cut off funding or called on the President to take certain military actions, such as troop withdrawals. The cutoffs generally prohibited the obligation or expenditure of funds that Congress had appropriated, and they applied to military activities ranging from combat operations to initial deployments in specified countries. Some legislative language cut off funding for certain military operations but permitted exceptions, such as the withdrawal of U.S. troops, or was contingent upon meeting certain conditions, such as the release of prisoners of war. Other language prohibited continued funding unless military operations were authorized.
Congress also considered non-funding approaches that urged the President to withdraw forces, negotiate or terminate military operations, seek congressional authorization for military operations, or set a date for U.S. troop withdrawals. Another approach was congressional repeal of the August 1964 Tonkin Gulf Resolution, which authorized the President to use military force in Vietnam.
Language attempting to restrict later conflicts continued to use these two main categories of approaches, funding and non-funding, adding new elements and criteria to the restrictions as the conflicts themselves evolved.
In the case of Indochina, a major demarcation was the signing of the Vietnam peace accords and a cease-fire agreement between the United States and North Vietnam in January 1973 that required the total withdrawal of U.S. troops by March 1973. Congress continued to provide funds for U.S. troops as levels fell from a peak of 539,000 in June 1969 to 21,500 in January 1973. In 1974, a non-funding bill was passed to cap personnel levels in Indochina at 3,000 by the end of the year.
In response to the invasion of Cambodia from April to June 1970, Congress enacted the Cooper-Church amendment in January 1971, which prohibited using any appropriated funds to introduce ground troops into Cambodia. Legislation enacted in 1973—after the cease-fire agreement—that cut off funds for combat "in or over or from off the shores of North Vietnam, South Vietnam, Laos or Cambodia" was designed to prevent President Nixon from reintroducing troops or bombing if the North Vietnamese violated the cease-fire. The 1973 legislation also terminated funding for the U.S. bombing of Khmer Rouge forces in Cambodia by August 15, 1973. The U.S. bombing did end on that date.