The House passed the conference agreement on May 5 (368-58), followed by the Senate on May 10 (100-0). President Bush signed the bill ( P.L. 109 - 13 ) on May 11. As approved, the $82 billion conference agreement is roughly the same as the President's overall request, but with numerous changes in funding allocations and policy provision, including the attachment of immigration legislation. P.L. Overview and Context of the FY2005 Supplemental

The FY2005 supplemental is the fifth of the Bush administration to focus on the global war on terrorism and homeland security. As emergency funding, these requests have not been subject to limits on spending in annual budget resolutions. That total is over 45% higher than the $64.9 billion provided to DOD in the FY2004 Supplemental. Foreign Policy Request

The President's request for $6.3 billion in FY2005 supplemental funding would support a broad range of foreign policy activities:
U.S. diplomatic costs in Iraq Afghanistan reconstruction and counternarcotics programs Darfur humanitarian relief and peace implementation aid for Sudan War on Terrorism assistance, including funds for Jordan and Pakistan Palestinian aid Ukraine assistance U.N. peacekeeping contributions Broadcasting programs in the Middle East Tsunami recovery and reconstruction

			Other Supplemental Requests

The Administration's supplemental request also included several additional items addressing homeland security and global war on terrorism matters:
Defense Nuclear Nonproliferation—$110 million for the deployment of radiation detection equipment and the training of law enforcement personnel at four overseas posts designed to provide officials with the means to detect, deter, and interdict illicit trafficking in nuclear and other radioactive materials. If not dealt with in the FY2005 supplemental under an "emergency" designation, however, these foreign policy items could be added to pending FY2006 international affairs appropriation requests that seek 13% higher spending compared with enacted levels for FY2005. This would place additional pressure on the Administration to defend an already sizable foreign policy increase that some believe will be closely scrutinized by Congress. Within the Defense request, some members questioned whether funds for the Army's modularity initiative launched in the fall of 2003 to create 10 additional brigades that would be more deployable individually fits the emergency criteria. The Defense Department request was in addition to the $25 billion already provided in the FY2005 DOD appropriations act ( P.L. 108 - 287 ) for war-related costs in the initial months of the fiscal year. The conference bill retains the Sense of the Senate language calling on the Administration to submit future war costs in the Defense Department's regular appropriations act, a provision also included in the FY2004 Supplemental, and reiterates a requirement that DOD report its costs for Iraq and Afghanistan, semi-annually as required in the FY2004 supplemental and the FY2005 DOD Appropriations Act. 108 - 106 ). The total request included several major types of expenses as shown in Table 4 :
Recurring costs for military operations a 17% increase from $60.2 billion in FY2004 to $70.5 billion in FY2005; Investment costs, a six-fold growth from $3 billion in FY2004 to almost $18 billion in FY2005 to replace equipment damaged or lost in battles, recapitalize equipment for units returning to the United States who leave their equipment behind, and buy additional equipment for units to improve capability or add force protection; Support for other nations , a five-fold increase from $2 billion to $11.5 billion including funds to train and equip Afghan and Iraqi security forces, funds to pay for cooperative operations in the war on terrorism by Jordan and Pakistan (coalition support), DOD counterdrug programs in Afghanistan, administrative costs in Iraq, and the Commanders Emergency Response Fund (CERP), a program providing funds directly to unit commanders to distribute for local needs. 1268 provides $5.78 billion in new appropriations for State Department, foreign aid, tsunami relief, and other foreign policy activities. Police training—$400 million. H.R.
On February 14, 2005, President Bush submitted an $81.9 billion supplemental appropriation request for FY2005 (subsequently amended to total $82.04 billion) to provide funds for ongoing military operations in Iraq and Afghanistan, the "global war on terror," reconstruction in Afghanistan, Tsunami relief and rehabilitation, and other activities. As the fifth supplemental of the Bush Administration to focus on the "global war on terrorism" and homeland security, these supplemental funds for FY2005 would be in addition to the $25.7 billion received in August 2004 as part of the FY2005 DOD Appropriations Act to cover war-related costs for the initial months of the fiscal year (P.L. 108-287).
The Administration's request included $74.96 billion for the Department of Defense, $5.6 billion for reconstruction and other foreign aid, $950 million for Tsunami relief, and $770 million for other activities. If enacted as an emergency appropriation, as requested, the funds would not be subject to limits in annual budget resolutions but would add to the size of the U.S. budget deficit. Taking into account the funds already provided, DOD's request would bring its FY2005 total appropriation to about $100 billion, which is over 45% higher than the amount provided in the FY2004 supplemental (P.L. 108-106).
While OMB Director Joshua Bolten argued that the request was an emergency for "known and urgent requirements," that could not be met with existing funds, some Members questioned whether this characterization fit some elements in the request. Some questioned whether the $5 billion requested by the Defense Department for the Army's initiative to re-organize Army units was an unanticipated emergency since it was announced in the fall of 2003; others argued that the initiative was a war-related expense because it was expected to relieve war-induced stress on Army forces. For foreign aid and Iraq diplomatic facilities, the issue was whether the requests represented true emergencies or could wait for later consideration. If not dealt with in the FY2005 supplemental under an "emergency" designation, however, these foreign policy items could be added to the pending FY2006 international affairs appropriation bills and would place additional pressure on the Administration to defend an already sizable foreign policy increase proposed for next year.
Another controversial issue was the Administration's proposal to place policy authority and control of funding with the Defense Department rather than the State Department to train and equip Afghan and Iraqi security forces. The Administration also requested $400 million for contingency funds related to the war on terror and $200 million in aid to the Palestinian Authority, both of which raised concerns.
The conference agreement on H.R. 1268 passed the House on May 5 (368-58) and the Senate on May 10, providing $82 billion in supplemental funding, the same overall amount requested, but with many changes in program allocations and the additional of immigration legislation. President Bush signed the measure on May 11, when it became P.L. 109-13.