Published: July 24, 2008
WASHINGTON — The Bush administration plans to shift nearly $230 million in aid to Pakistan
from counterterrorism programs to upgrading that country’s aging F-16
attack planes, which Pakistan prizes more for their contribution to its
military rivalry with India than for fighting insurgents along its
Afghan border.
Some members of Congress have greeted the proposal
with dismay and anger, and may block the move. Lawmakers and their
aides say that F-16s do not help the counterterrorism campaign and defy
the administration’s urgings that Pakistan increase pressure on
fighters of Al Qaeda and the Taliban in its tribal areas.
The
timing of the action caught lawmakers off guard, prompting some of them
to suspect that the deal was meant to curry favor with the new
Pakistani prime minister, Yousaf Raza Gilani, who will meet with
President Bush in Washington next week, and to ease tensions over the
11 members of the Pakistani paramilitary forces killed in an American
airstrike along the Afghan border last month.
The financing for
the F-16s would represent more than two-thirds of the $300 million that
Pakistan will receive this year in American military financing for
equipment and training.
Last year, Congress specified that those
funds be used for law enforcement or counterterrorism. Pakistan’s
military has rarely used its current fleet of F-16s, which were built
in the 1980s, for close-air support of counterterrorism missions,
largely because the risks of civilian casualties would inflame
anti-government sentiments in the Federally Administered Tribal Areas.
State Department officials say the upgrades would greatly enhance the
F-16s’ ability to strike insurgents accurately, while reducing the risk
to civilians. The officials, who spoke on condition of anonymity
because Congress was weighing the plan, said the timing was driven by
deadlines of the American contractor, Lockheed Martin.
Having
the United States pay for the upgrades instead of Pakistan would also
free up cash that Pakistan’s government could use to help offset rising
fuel and food costs, which have contributed to an economic crisis
there, the State Department officials said.
Under the original
plan sent to Congress in April, the administration intended to use up
to $226.5 million of the aid to refurbish two of Pakistan’s P-3
maritime patrol planes, buy it new airfield navigation aids and
overhaul its troubled fleet of Cobra attack helicopters. The State
Department notified Congress last week that the administration had
changed its mind and would apply the funds to the F-16s.
Lawmakers
immediately bridled at the shift, questioning whether the
counterterrorism money could be spent more effectively. “We need to
know if this is the best way to help Pakistan combat Al Qaeda and the
Taliban,” Senator Patrick J. Leahy, a Vermont Democrat who heads the appropriations subcommittee on State Department and foreign operations, said in a statement.
Representative Nita M. Lowey,
a New York Democrat who heads the House appropriations subcommittee on
foreign operations, said in a statement, “It is incumbent on the State
Department and Pakistan to demonstrate clearly how these F-16s would be
used to fight Al Qaeda and the Taliban in order to get Congressional
support.”
In a two-page notification to Congress, the State
Department said that upgrading the avionics, targeting and radar
systems of Pakistan’s older F-16s would “increase the survivability of
the aircraft in a hostile environment” and make the “F-16s a more
valuable counterterrorism asset that operates safely during day and
night operations.” The notification said the modernized systems would
also increase the accuracy of the F-16s’ support of Pakistani ground
troops, lessening the risks of civilian casualties.
Many
Congressional officials remain unconvinced. “Using F-16s this way is
like hitting a fly with a sledgehammer,” said one senior Senate
Democratic aide, who spoke on condition of anonymity because of the
current negotiations. It remains unclear whether any lawmaker will
block or postpone the financing, and risk harming relations with
Pakistan any further.
Even if approved, the upgraded F-16s
would not be available until 2011, said one House aide who had been
briefed on the issue, and who spoke on condition of anonymity, raising
the question whether the funds could be spent on counterterrorism
equipment that could be employed more quickly.
Pakistan agreed
to buy about 70 F-16s in the 1980s, and about 40 were delivered before
Congress cut off all aid and military sales in 1990, citing Pakistan’s
secret development of nuclear weapons.
A new deal was struck
after the Sept. 11 attacks to allow Pakistan to buy newer models, in
part to reward Pakistan’s cooperation in fighting terrorism. In 2006,
Pakistan was a major recipient of American arms sales, including the
$1.4 billion purchase of up to 36 new F-16C/D fighter aircraft and $640
million in missiles and bombs. The deal included a package for $891
million in upgrades for Pakistan’s older F-16s.
At that time, the
United States agreed to use $108 million of its annual security aid to
Pakistan to retrofit the older F-16s with equipment to make them
comparable to the newer models that will be delivered in the next
several years. But the administration promised Congress that the
Pakistani government would pay for the rest of the upgrades with its
own funds. With Pakistan now facing economic hardships, top Pakistani
leaders appealed to senior State Department officials to help defray
the costs of the ongoing upgrades.
The debate over the F-16
financing comes at a time when Congress has grown increasingly
frustrated with the administration’s Pakistan policy, arguing it has
been weighted too heavily on security assistance. The United States has
given more than $10 billion in military aid to Pakistan since the Sept.
11 attacks, when President Pervez Musharraf
agreed to become an ally in the campaign against terrorism. Of that
amount, $5.5 billion was specifically intended to reimburse the
counterinsurgency efforts by the Pakistani Army, but Congressional
auditors have said that Pakistan did not spend much of that money on
counterinsurgency.
Senior administration officials, including
top military officers, are also voicing increasing exasperation with
Pakistan’s efforts to combat militants in the mountainous region along
the border with Afghanistan. “We need Pakistan to put more pressure on
that border,” Adm. Mike Mullen, the chairman of the Joint Chiefs of Staff, said on “The NewsHour With Jim Lehrer” on PBS on Tuesday.