The Budget According to McCain: Part I

McCain's Earmark Sleight-of-Hand
The McCain campaign has been vague about where, exactly, the candidate will cut spending. But one theme has emerged consistently: McCain will save money by eliminating earmarks:

McCain (April 15): I will veto every bill with earmarks, until the Congress stops sending bills with earmarks. ... The great goal is to get the American economy running at full strength again. ... And one very direct way to achieve that is by taking the savings from earmark, program review, and other budget reforms.

McCain (April 16): I can show you $35 billion just in the last two years of pork-barrel projects that should be eliminated that would certainly help pay for a lot of that [proposed tax cuts]. And $65 billion that's already on the books.

McCain (April 20): Two years in a row, last two years, the president of the United States has signed in a law, two big-spending, pork-barrel-laden bills worth $35 billion. That increases the budget, the baseline of the budget. In the years before that, $65 billion. You do away with those, there's $100 billion right there, before you look at any agency of government.

McCain is apparently claiming that he can save $100 billion simply by eliminating earmarks, past and present. Let's start with a simple overview of earmarks, which are line items inserted by lawmakers into legislation funding the federal government. Estimates of earmarked spending vary. For fiscal 2008, the budget watchdog group Taxpayers for Common Sense said there was $18.3 billion earmarked in spending bills. Citizens Against Government Waste came in at $17.2 billion. The Office of Management and Budget tallied earmarks at a mere $16.9 billion. In 2006, the Congressional Research Service, which used a different definition of "earmark" for each of the 11 spending bills it studied in that year, came up with over $67 billion.

But contrary to popular belief -- this is the first of several bits of information readers may be surprised by -- cutting earmarks wouldn't necessarily cut government spending, according to independent budget experts from across the political spectrum. Jeff Patch, a budget fellow at the libertarian Cato Institute (and also a former McCain volunteer) told FactCheck.org that "earmarks just direct funds from executive agencies to specific projects or companies." That is, while there are still a few pet projects slipped into legislation in the dark of night that do increase the federal budget, earmarks often simply tell agencies how to spend money that they are already getting. So while earmarks may drive up the cost of government slightly (by, for example, awarding no-bid contracts in a legislator's home district), cutting earmarks alone is "not sufficient for cutting wasteful spending," Patch said. The Brookings Institution's Paul Cullinan, research director of the Budgeting for National Priorities Project, agrees, saying that earmarks "might be an allocation issue" rather than a spending issue. And Scott Lilly, a senior fellow with the liberal Center for American Progress, told us that "there's no evidence that if you took earmarks out, federal spending would go down."

And (surprise #2) McCain now says that many earmarks aren't really wasteful spending at all. For example, in 2006 the Congressional Research Service counted 75 percent (or $15.7 billion) of the 2006 foreign operations budget as earmarks. That figure includes $4.3 billion in aid to Israel and Egypt. Another $16.1 billion was earmarked for military construction and veterans affairs, and $9.4 billion more was earmarked for defense spending. That's $41 billion – or more than two-fifths of the amount of earmark spending McCain cites. But McCain has no plans to cut those particular earmarks. Douglas Holtz-Eakin, McCain's chief economic adviser, told FactCheck.org that "if you don't have earmarks, a lot of those things would be funded under regular order, if they have merit."

So if all this savings isn't coming from earmark cuts, then where will it come from? Holtz-Eakin tells us (surprise #3) that it will come from cuts in the annual budget:

Holtz-Eakin: So what he's talked about is going forward, just not signing bills that have earmarks in them, period. That's his pledge. And then, also going forward, cut discretionary spending, and that's simply a pledge to reduce the amount of spending. And it's not that it's going to be tied to going back to specific projects that began as earmarks. It's that we're going to scrub defense, non-defense spending alike, reform procurement, evaluate programs, take the time-out, the one-year pause, and look at everything and then cut the budget going forward. Which, ultimately, hopefully, we'll get $100 billion out of the annual baseline.

When we asked specifically whether the $100 billion in spending cuts had anything to do with eliminating earmarks, Holtz-Eakin told us: "It can't. I mean, by definition, every dollar is up for grabs every year."