《國(guó)防撥款法》：背景與國(guó)會(huì)議題選擇

1、Contents HYPERLINK l _bookmark0 Introduction 1 HYPERLINK l _bookmark1 Legislative Activity 1 HYPERLINK l _bookmark2 Selected Actions 1 HYPERLINK l _bookmark6 Bill Overview 4 HYPERLINK l _bookmark20 Background 7 HYPERLINK l _bookmark21 Strategic Context 7 HYPERLINK l _bookmark22 Budgetary Context 8 H

2、YPERLINK l _bookmark24 FY2021 Defense Budget Request 10 HYPERLINK l _bookmark27 Selected Policy Matters 12 HYPERLINK l _bookmark28 COVID-19 12 HYPERLINK l _bookmark29 Overseas Contingency Operations (OCO) 14 HYPERLINK l _bookmark30 Border Wall and Related Matters 15 HYPERLINK l _bookmark31 Border Ba

3、rrier Construction 15 HYPERLINK l _bookmark32 Counter-Narcotics Support 17 HYPERLINK l _bookmark33 Transfer Authorities 18 HYPERLINK l _bookmark35 Confederate Names 19 HYPERLINK l _bookmark36 Authorizations for the Use of Military Force (AUMFs) 20 HYPERLINK l _bookmark37 Afghanistan Security Forces

4、Fund (ASFF) 21 HYPERLINK l _bookmark38 Iran 21 HYPERLINK l _bookmark39 Military Personnel 22 HYPERLINK l _bookmark40 End-Strength 22 HYPERLINK l _bookmark42 Pay Raise 24 HYPERLINK l _bookmark43 Childcare Program 24 HYPERLINK l _bookmark44 Selected Acquisition Matters 25 HYPERLINK l _bookmark45 Softw

5、are and Digital Technology Pilot Programs 25 HYPERLINK l _bookmark46 Mid-Tier Acquisition and Rapid Prototyping Programs 26 HYPERLINK l _bookmark47 Strategic Nuclear Forces 27 HYPERLINK l _bookmark49 Long-Range, Precision Strike Weapons 29 HYPERLINK l _bookmark51 Missile Defense Programs 31 HYPERLIN

6、K l _bookmark53 Military Space Programs 33 HYPERLINK l _bookmark55 Ground Combat Systems 35 HYPERLINK l _bookmark57 Navy Shipbuilding 37 HYPERLINK l _bookmark59 Military Aircraft Programs 40 HYPERLINK l _bookmark61 Outlook 42Figures HYPERLINK l _bookmark5 Figure 1. Days between Start of Fiscal Year

7、and Enactment of Annual Defense HYPERLINK l _bookmark5 Appropriations Act, FY1977-FY2021 4 HYPERLINK l _bookmark23 Figure 2. Outlays by Budget Enforcement Category and Revenues, FY2001-FY2030 HYPERLINK l _bookmark23 (Projected) 9 HYPERLINK l _bookmark25 Figure 3. Portion of FY2021 Presidents Nationa

8、l Defense Budget Request within the HYPERLINK l _bookmark25 Scope of the Defense Appropriations Act 11 HYPERLINK l _bookmark26 Figure 4. Department of Defense Budget Authority, FY1948-FY2025 (Projected) 12Tables HYPERLINK l _bookmark3 Table 1. FY2021 Defense Appropriations Act: Selected Dates and Ac

9、tions 3 HYPERLINK l _bookmark7 Table 2. FY2021 Defense Appropriations Act Funding Summary 5 HYPERLINK l _bookmark9 Table 3. Requested and Enacted Amounts in Annual Defense Appropriations Acts, HYPERLINK l _bookmark9 FY2012-FY2021 6 HYPERLINK l _bookmark34 Table 4. General and Special Transfer Author

10、ity Limits in the DOD Appropriations Act, HYPERLINK l _bookmark34 2021: Legislative Comparison 18 HYPERLINK l _bookmark41 Table 5. Summary of Military Personnel End-Strength, FY2021 23 HYPERLINK l _bookmark48 Table 6. Selected Long-Range, Nuclear-Armed Weapons Systems 28 HYPERLINK l _bookmark50 Tabl

11、e 7. Selected Long-Range Strike Weapons Systems 30 HYPERLINK l _bookmark52 Table 8. Selected Missile Defense Programs 32 HYPERLINK l _bookmark54 Table 9. Selected Military Space Programs 34 HYPERLINK l _bookmark56 Table 10. Selected Ground Combat Systems 35 HYPERLINK l _bookmark58 Table 11. Selected

12、 Shipbuilding Programs 38 HYPERLINK l _bookmark60 Table 12. Selected Military Aircraft Programs 41 HYPERLINK l _bookmark63 Table A-1. Hearings of the House Appropriations Committee Defense Subcommittee HYPERLINK l _bookmark63 (HAC-D), 2020 44 HYPERLINK l _bookmark65 Table A-2. Hearings of the Senate

13、 Appropriations Committee Defense Subcommittee HYPERLINK l _bookmark65 (SAC-D), 2020 44 HYPERLINK l _bookmark67 Table B-1. Budget Data Sources for Appropriations Tables 45Appendixes HYPERLINK l _bookmark62 Appendix A. Hearings of the House and Senate Appropriations Committees, Defense HYPERLINK l _b

14、ookmark62 Subcommittees, 2020 44 HYPERLINK l _bookmark66 Appendix B. Budget Data Sources for Appropriations Tables 45ContactsAuthor Information 52IntroductionThe annual Department of Defense Appropriations Act primarily provides funding for most activities of the Department of Defense (DOD), includi

15、ng the Departments of the Army, Navy (including Marine Corps), and Air Force (including Space Force); Office of the Secretary of Defense; and Defense Agencies. The legislation also appropriates funding for certain intelligence activities, including the Intelligence Community Management Account (for

16、staffing expenses related to the National and Military Intelligence Programs) and the Central Intelligence Agency Retirement and Disability System Fund (a mandatory account that provides payments of benefits).The act does not provide funding for DOD-related military construction and family housing p

17、rograms, Army Corps of Engineers (Civil Works) programs, or the TRICARE for Life program of medical insurance for military retirees. Funding for military construction and family housing programs is provided in the Military Construction and Veterans Affairs, and Related Agencies Act. Funding for Army

18、 Corps of Engineers (Civil Works) programs is provided in the Energy and Water Development and Related Agencies Appropriations Act. Funding for TRICARE for Life is appropriated automatically each year (10 U.S.C. 1111-1117).Appropriations ProcessFor more information on the defense appropriations proc

19、ess, see CRS In Focus IF10514, Defense Primer: Defense Appropriations Process, by James V. Saturno and Brendan W. McGarry. For more information on the federal budget process, see CRS Report R46240, Introduction to the Federal Budget Process, by James V. Saturno.This report provides an overview of th

20、e Department of Defense Appropriations Act, 2021, and serves as a reference to other CRS products that provide additional information, context, and analysis relevant to certain aspects of the legislation. The following section provides an overview of congressional action on the legislation. The subs

21、equent section summarizes the budgetary and strategic context within which Congress debated the President Trumps FY2021 budget request. Other sections describe the legislations treatment of certain policy issues and major components of the request, including selected weapons acquisition programs.Leg

22、islative ActivitySelected ActionsOn February 10, 2020, President Donald J. Trump submitted an FY2021 budget request that included $753.5 billion for national defense-related activities, including discretionary and mandatory programs.1 Of that amount, the portion falling within the scope of the annua

23、l defense appropriations bill totaled $690.2 billion.21 Government Publishing Office, Budget of the United States Government, FY2021, Analytical Perspectives, Table 24- 1, Budget Authority and Outlays by Function, Category, and Program, at https:/ HYPERLINK /content/pkg/BUDGET-2021-PER/pdf/BUDGET-20

24、21-PER-8-5-1.pdf /www. HYPERLINK /content/pkg/BUDGET-2021-PER/pdf/BUDGET-2021-PER-8-5-1.pdf /content/pkg/BUDGET-2021-PER/pdf/BUDGET-2021-PER-8-5-1.pdf.2 U.S. Congress, House Committee on Appropriations, Consolidated Appropriations Act, 2021, H.R. 133 / Public Law 116260, Legislative Text and Explana

25、tory Statement Book 1 of 2, Divisions A-F, committee print, 117th Cong., 1st sess., March 2021, 43-750 (Washington, DC: GPO, 2021), p. 765, at https:/ HYPERLINK /content/pkg/CPRT- /content/pkg/CPRT- 117HPRT43749/pdf/CPRT-117HPRT43749.pdf.The House Committee on Appropriations reported a version of th

26、e FY2021 defense appropriations bill, and the Senate Committee on Appropriations released draft legislation. These bills had some common and other differing provisions.On July 8, 2020, the House Appropriations Committees Defense Subcommittee marked up and approved by voice vote its version of the De

27、partment of Defense Appropriations Bill, 2021.3 On July 14, the House Appropriations Committee, by a vote of 30-22, approved its version of the bill.4 On July 16, the committee reported the bill (H.R. 7617) and accompanying report (H.Rept. 116-453). The legislation became a vehicle for a package of

28、six appropriations acts. On July 31, by a vote of 217-197,5 the House passed the Defense, Commerce, Justice, Science, Energy and Water Development, Financial Services and General Government, Labor, Health and Human Services, Education, Transportation, Housing, and Urban Development Appropriations Ac

29、t, 2021 (H.R. 7617). The House bill included an amended version of the Department of Defense Appropriations Act, 2021, as Division A.Continuing ResolutionsFor background and analysis on continuing resolutions, see CRS Report R46582, Overview of Continuing Appropriations for FY2021 (P.L. 116-159), by

30、 James V. Saturno and Kevin P. McNellis and CRS Report R45870, Defense Spending Under an Interim Continuing Resolution: In Brief, coordinated by Pat Towell.On October 1, 2020, with no FY2021 regular appropriations bills enacted by the start of the fiscal year, Congress enacted the Continuing Appropr

31、iations Act, 2021 and Other Extensions Act (P.L. 116-159) to fund government agencies through December 11. The continuing resolution funded most DOD programs and activities at FY2020 levels, with certain exceptions (or anomalies). The exceptions permitted the procurement of the first Columbia-class

32、ballistic missile submarine in FY2021 under a two-boat contract and extended an authority provided in Section 3610 of the CARES Act (P.L. 116-136) that allows DOD to reimburse contractors for paid leave, including sick leave.6 Congress passed four additional FY2021 continuing resolutions, for a tota

33、l of five, before enacting regular appropriations to fund government agencies through the remainder of the fiscal year.7The Senate Appropriations Committee did not mark up or report a version of the Department of Defense Appropriations Bill, 2021. On November 10, 2020, Senator Richard Shelby, chair

34、of the Senate Committee on Appropriations, released drafts of all 12 annual appropriations bills along with draft accompanying explanatory statements.8 According to committee press statements, the3 House Appropriations Committee, “Appropriations Subcommittee Approves Fiscal Year 2021 Defense Funding

35、 Bill,” press release, July 8, 2020, at /news/press-releases/appropriations-subcommittee- approves-fiscal-year-2021-defense-funding-bill. The subcommittee released the text and a summary of its version of the defense appropriations bill.4 House Appropriations Committee, “Appropriations Committee App

36、roves Fiscal Year 2021 Defense Funding Bill,” press release, July 14, 2020, at /news/press-releases/appropriations-committee- approves-fiscal-year-2021-defense-funding-bill.5 See Roll no. 178, at /Votes/2020178.6 For a list of these anomalies, see CRS Report R46582, Overview of Continuing Appropriat

37、ions for FY2021 (P.L. 116- 159), by James V. Saturno and Kevin P. McNellis, p. 15.7 The five continuing resolutions were: P.L. 116-159, P.L. 116-215, P.L. 116-225, P.L. 116-226, and P.L. 116-246. For more information, see CRS.gov, Appropriations Status Table, Continuing Resolutions tab, at https:/ H

38、YPERLINK /AppropriationsStatusTable/Index /www. HYPERLINK /AppropriationsStatusTable/Index /AppropriationsStatusTable/Index.8 The 12 draft bills and explanatory statements are on the Senate Appropriations Committees website linked to the majority press release at https:/ HYPERLINK /news/committee-re

39、leases-fy21-bills-in-effort-to- /news/committee-releases-fy21-bills-in-effort-to-release of the draft bills was intended to further negotiations on annual appropriations between the House and the Senate.9On December 21, 2020, by a vote of 327-85, the House agreed to a Senate amendment comprising fou

40、r appropriations acts, including the Department of Defense Appropriations Act, 2021, as part of the Consolidated Appropriations Act, 2021 (Division C of H.R. 133). On the same day, by a vote of 92-6, the Senate agreed to an amended version of the House-passed legislation. On December 27, 2020, Presi

41、dent Trump signed the bill into law (P.L. 116-260) (see HYPERLINK l _bookmark3 Table 1).Table 1. FY2021 Defense Appropriations Act: Selected Dates and ActionsHouseSenatePublic LawBillReport #, Date ReportedVote # (yeas,nays), Date PassedConf. Rept. #, Vote #, Date PassedBillReport #, Date ReportedVo

42、te # (yeas,nays), Date PassedConf. Rept. #, Vote #, Date PassedP.L. #, Date SignedH.R.H.Rept.178,DraftDraft7617116-453,(y217-tex HYPERLINK l _bookmark4 tareport,(Div.07/16/20n197),11/10/20 HYPERLINK l _bookmark4 aA)07/31/20H.R.250,NoH.R.289,NoP.L. 116-133(y327-conference133(y92-n6),conference260,(Di

43、v.n85),report(Div.12/21/20report12/27/20C)12/21/20submitted;C)submitted;JES releasedJES releasedby Houseby HouseRulesRulesCommittee.Committee.Source: CRS analysis of C; House Appropriations Committee, “Appropriations Subcommittee Approves Fiscal Year 2021 Defense Funding Bill,” press release, July 8

44、, 2020, at /news/press-releases/appropriations-subcommittee-approves-fiscal-year-2021- defense-funding-bill; House Appropriations Committee, “Appropriations Committee Approves Fiscal Year 2021 Defense Funding Bill,” press release, July 14, 2020, at /news/press- releases/appropriations-committee-appr

45、oves-fiscal-year-2021-defense-funding-bill; and Senate Appropriations Committee, “Committee Releases FY21 Bills in Effort to Advance Process, Produce Bipartisan Results,” press release, November 10, 2020, at https: HYPERLINK /news/committee-releases-fy21-bills-in- /www.ap HYPERLINK /news/committee-r

46、eleases-fy21-bills-in- /news/committee-releases-fy21-bills-in- effort-to-advance-process-produce-bipartisan-results.Notes: JES is joint explanatory statement.a.The Senate Appropriations Committee did not mark up or report a version of the bill. On November 10, 2020, the chair of the Senate Committee

47、 on Appropriations, Senator Richard Shelby, released drafts of all 12 annual appropriations bills along with draft accompanying explanatory statements and 302(b) subcommittee allocations.advance-process-produce-bipartisan-results.9 Ibid. See also the statement from Senate Appropriations Committee Vi

48、ce Chair Senator Patrick Leahy, “Senate Approps Vice Chair Leahy Statement On The Release Of The FY 2021 Senate Appropriations Bills,” November 10, 2020, at https:/ HYPERLINK /news/minority/senate-approps-vice-chair-leahy-statement-on-the- /news/minority/senate-approps-vice-chair-leahy-statement-on-

49、the- release-of-the-fy-2021-senate-appropriations-bills-.The law was enacted 87 days after the start of the FY2021 fiscal year. HYPERLINK l _bookmark5 Figure 1 shows the dates of enactment for the annual defense appropriations act since FY1977, when the federal government transitioned to a fiscal ye

50、ar beginning October 1, 1976.Figure 1. Days between Start of Fiscal Year and Enactment of Annual Defense Appropriations Act, FY1977-FY2021(in days)Source: CRS analysis of dates of enactment of public law from CRS Report 98-756, Defense Authorization and Appropriations Bills: FY1961-FY2020, and P.L.

51、116-260.Defense Authorizations and AppropriationsFor historical information on defense authorizations and appropriations, see CRS Report 98-756, Defense Authorization and Appropriations Bills: FY1961-FY2020, by Nese F. DeBruyne and Barbara Salazar Torreon.Bill OverviewOf the FY2021 budget request fo

52、r national defense, the portion falling within the scope of the Department of Defense Appropriations Act, 2021, totaled $690.17 billion. The request was $8.17 billion (1.2%) less than the FY2020 enacted amount, which included emergency funding for expenses related to Hurricanes Michael and Florence,

53、 flooding, and earthquakes that occurred in FY2019, and for the federal response to the outbreak of the Coronavirus Disease 2019 (COVID-pandemic.1010 U.S. Congress, House Committee on Appropriations, Consolidated Appropriations Act, 2021, H.R. 133 / Public Law 116260, Legislative Text and Explanator

54、y Statement Book 1 of 2, Divisions A-F, committee print, 117th Cong., 1st sess., March 2021, 43-750 (Washington, DC: GPO, 2021), p. 765, at https:/ HYPERLINK /content/pkg/CPRT- /content/pkg/CPRT- 117HPRT43749/pdf/CPRT-117HPRT43749.pdf. FY2020 enacted amount of $12.36 billion in emergency funding inc

55、ludes $1.77 billion for natural disaster relief in P.L. 116-93 and $10.59 billion for COVID-19 response in P.L. 116- 127 and P.L. 116-136.The original House-passed Department of Defense Appropriations Act, 2021 would have provided $686.72 billion in budget authority in FY2021$11.62 billion (1.7%) le

56、ss than the FY2020 enacted amount and $3.45 billion (0.5%) less than the FY2021 request.11The Senate Appropriations Committee-released draft of its Department of Defense Appropriations Bill, 2021, would have provided $688.07 billion in budget authority in FY2021$10.27 billion (1.5%) less than the FY

57、2020 enacted amount and $2.11 billion (0.3%) less than the FY2021 request.12The enacted legislation provided $688.06 billion in budget authority for FY2021$10.28 billion (1.5%) less than the FY2020 enacted amount and $2.11 billion (0.3%) less than the FY2021 request (see HYPERLINK l _bookmark7 Table

58、 2).13Table 2. FY2021 Defense Appropriations Act Funding Summary(in billions of dollars of budget authority)TitleFY2020EnactedFY2021RequestFY2021House-passedFY2021Senate committee- draftedFY2021EnactedMilitary Personnel142.45150.52149.36149.62149.44Operation and Maintenance199.42196.63196.70194.8019

59、2.21Procurement133.88130.87133.63133.30136.53Research and Development104.43106.22104.35104.08107.14Revolving and Management Funds1.561.351.352.601.47DHP and Other DOD Programs36.3234.7235.3235.3736.02Related Agencies1.041.15General Provisions-3.800.03-3.56-1.49-4.55Subtotal, Base Budget6

60、15.32621.52618.29619.42619.41OCO70.6768.6568.4468.6568.65Emergency12.36 HYPERLINK l _bookmark8 aTotal698.34690.17686.72688.07688.06Source: House Appropriations Committee report (H.Rept. 116-453) to accompany H.R. 7617, Comparative Statement of New Budget (Obligational) Authority for FY2020 and Budge