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House Narrowly Passes FY2015 Funding Bill and Two-Day CR

House Narrowly Passes FY2015 Funding Bill and Two-Day CR

The House approved the FY2015 “cromnibus” spending package tonight by a vote of 219-206.  The Senate still must act on the measure so the House also passed another Continuing Resolution (CR) to extend government funding for two more days, through midnight Saturday.  The Senate quickly passed the two-day CR, averting a government shutdown tonight.

The cromnibus is a mix of a CR and an omnibus appropriations bill.  A CR provides funding for a short period of time at the previous year’s level.  An omnibus consolidates several regular full-year appropriations bills into a single legislative package.  This bill combines full year appropriations for departments and agencies in 11 of the 12 regular appropriations bills (including NASA, NOAA and DOD) with a short term CR for the 12th (the Department of Homeland Security-DHS).  Funding DHS only through February 27, 2015, is intended to signal Republican dissatisfaction with President Obama’s executive order on immigration.  Immigration is part of DHS.

The battle over the cromnibus was intense and at times its passage seemed in jeopardy.  The final vote was 219-206.   Voting in favor were 162 Republicans and 57 Democrats.  Voting against were 67 Republicans and 139 Democrats.  Five members from each party did not vote.

The rancor was over provisions agreed to by House and Senate negotiators endeavoring to reach a compromise.  The end result clearly does not please everyone.  Conservative Republicans reportedly want a stronger reaction against the President’s immigration executive order, liberal Democrats and some Republicans object to a provision weakening the Dodd-Frank financial regulations, and liberal Democrats and conservative Republicans object to changes to the campaign finance law. 

The White House supported passage, but House Minority Leader Nancy Pelosi said the House was being “blackmailed” into voting for it.

The battle now moves to the Senate.  With passage of the new two-day CR, it has until midnight Saturday to act.

The bill contains a significant budget boost for NASA — an increase of $549 million above the President’s request for a total of $18.010 billion.  NOAA’s satellite programs also fare well.

SpaceX's Fifth Cargo Mission to ISS Slips Three Days

SpaceX's Fifth Cargo Mission to ISS Slips Three Days

SpaceX and NASA announced today that the launch of the fifth operational SpaceX cargo mission to the International Space Station (ISS), SpaceX CRS-5 (SpX-5), has been delayed from December 16 to December 19.

NASA said the three-day slip will allow SpaceX “to take extra time to ensure they do everything possible on the ground to prepare for a successful launch,” adding that the Falcon rocket and Dragon spacecraft are in “good health.”  Launch will be at 1:20 pm EST.  NASA TV coverage begins at 12:15 pm EST.

That means complementary shifts in the schedule of briefings associated with the launch and berthing to ISS.   The three pre-launch news conferences will shift to December 18 (at 12:00 noon, 1:30 pm and 3:00 pm EST)) and grapple and berthing will take place on December 21.   See our calendar for more details.

SpaceX launches cargo to the ISS under a Commercial Resupply Services (CRS) contract with NASA.  Twelve Space-X CRS flights delivering 20 tons of cargo to the ISS are scheduled through the end of 2016. 

Orbital Sciences Corporation is the other company that provides CRS services to NASA.  The most recent launch of its Antares rocket and Cygnus spacecraft failed on October 28.  Orbital is purchasing launch services from the United Launch Alliance and upgrading Antares and Cygnus to allow the company to meet its own contractual commitment of delivering 20 tons of cargo to the ISS by the end of 2016, which it now expects to accomplish in seven rather than eight launches.

Vote Expected to Be Close in House Tomorrow on FY2015 CRomnibus

Vote Expected to Be Close in House Tomorrow on FY2015 CRomnibus

The House is expected to vote tomorrow (Thursday) on the FY2015 appropriations bill dubbed the “CRomnibus.”  It combines an omnibus appropriations providing full-year funding for agencies covered by 11 of the 12 regular appropriations bills (including NASA, NOAA and DOD) and a Continuing Resolution (CR) for the 12th (the Department of Homeland Security).  The vote is expected to be close because of dissatisfaction on both sides of the aisle with policy provisions (“riders”) that were added during negotiations.  Congress must pass this bill or some other funding measure before midnight tomorrow to avoid a government shutdown.

Objections to the CRomnibus reportedly range from conservative Republicans who feel it does not send a strong enough message to the President protesting his executive order on immigration to liberal Democrats and some Republicans who object to changes in the Dodd-Frank financial services regulations to liberal Democrats who object to changes in campaign finance laws.  (The Department of Homeland Security includes immigration.  The proposal to provide it only with a CR and not a full-year appropriation like everyone else is to signal Republican ire at the Obama immigration executive order, but some Republicans want to go further.)

Although appropriations bills are not supposed to include policy provisions, only funding, they often do.  That is especially true at the end of a Congress where members are trying one last time to get favored legislation passed and the only bill likely to clear Congress and be signed by the President is an appropriations bill.  

It is still possible that no agreement on funding will be reached and the government will shut down at midnight tomorrow, but that still is considered very unlikely.  If the CRomnibus does not pass the House tomorrow, House Speaker John Boehner reportedly plans to bring a three-month CR for the entire government to the floor for a vote, pushing funding decisions over into the Republican-controlled 114th Congress.  If the CRomnibus does pass the House, a very short term CR may be needed to give the Senate time to act, but that presumably would be only for a couple of days.

None of the concerns appear to be directed at provisions regarding NASA, NOAA or DOD.

We’ll provide updates as they are available.

NASA Gets Big Increase in FY2015 Omnibus, NOAA Satellites Do OK

NASA Gets Big Increase in FY2015 Omnibus, NOAA Satellites Do OK

House and Senate appropriators introduced the long-awaited compromise version of the FY2015 appropriations bill late today.  If approved as expected, NASA will get a significant increase compared to the President’s request, and NOAA satellite programs will fare well overall, with GOES-R and JPSS fully funded.

As expected, the bill combines 11 of the 12 regular appropriations bills, funding all of those departments and agencies for the rest of FY2015 (through September 30, 2015).  The 12th bill, for the Department of Homeland Security (DHS), is funded only temporarily, through February 27, 2015, as a protest against President Obama’s executive order on immigration.   This combination of a Continuing Resolution (CR) for DHS and an omnibus for the rest of the government is sometimes referred to as a “cromnibus.”  It is designated as “Senate amendment to H.R. 83.”   NASA and NOAA are part of Division B, the Commerce-Justice-Science (CJS) portion.

The total for NASA in the compromise accord is $18.010 billion, a $549 million increase over the request of $17.461 billion.  Despite the significant increase, some programs were cut, including:. 

  • Space Technology, which gets $596 million instead of $706 million.
  • commercial crew, which will receive $805 million instead of $848 million.  Senate language that would have required adherence to certain regulations regarding cost and pricing data is not included, but the compromise requires technical and financial quarterly reports to Congress for each awardee.
  • Space Operations (including the International Space Station), which gets $3.828 billion instead of $3.905 billion

 But many others get increases.  Among the big winners are —

  • planetary science, receiving $1.438 billion instead of $1.280 billion, including not less than $100 million for a Europa mission
  • astrophysics, $684 million instead of $607 million, including $70 million for SOFIA
  • aeronautics, $651 million instead of $551 million
  • Orion, $1.194 billion instead of $1.053 billion
  • SLS, $1.700 billion instead of $1.380 billion

More information is in our fact sheet on NASA’s FY2015 budget request.

NOAA’s satellite programs also fare well.  The two premier programs — GOES-R and JPSS — are fully funded.   The Senate had proposed transferring two other programs, DSCOVR and Jason-3, to NASA, but that was not adopted and both programs are funded in NOAA’s budget at or close to their requested levels.  COSMIC-2 received its full request of $6.8 million.

The House-passed CJS bill and the version approved by the Senate Appropriations Committee both zeroed NOAA’s $15 million request for the Solar Irradiance, Data and Rescue (SIDAR) program that pulls together plans for launching three instruments — Total Solar Irradiance Sensor (TSIS), Advanced Data Collection System (A-DCS), and Search and Rescue Satellite-Aided Tracking (SARSAT).  SIDAR fared better in the compromise omnibus bill, getting half its requested funding, $7.3 million.  Report language accompanying the bill says it is to support hosting TSIS-1 on the International Space Station (ISS) and maintaining international partnerships on A-DCS and SARSAT.  It notes that hosting TSIS-1 on ISS was not part of the President’s FY2015 budget request and asks for a report on those plans.

More information is in our fact sheet on NOAA’s FY2015 budget request.

NASA, NOAA and most of the rest of the government are currently funded by a CR that expires at midnight on Thursday, December 11.   Because negotiations on this compromise bill took longer than planned, and ordinarily there is a three-day waiting period in the House for members to read a bill and other procedural steps in the Senate, Congress may not complete action on it before that deadline.   A very short-term CR may be passed to cover a couple of days while Congress completes work on this bill.

Orbital to Buy At Least One Launch for Cygnus from ULA

Orbital to Buy At Least One Launch for Cygnus from ULA

Orbital Sciences Corporation gave more details today about its plans to fulfill its Commercial Resupply Services (CRS) contract with NASA to send cargo to the International Space Station (ISS) in the wake of its October Antares rocket failure.

Antares exploded 15 seconds after liftoff on October 28, 2014, destroying its Cygnus cargo spacecraft filled with cargo destined for the ISS.   It was Orbital’s third operational cargo flight to the ISS.  An investigation is ongoing, but Orbital Chairman, President and CEO David Thompson indicated last month that the AJ26 rocket engines are the likely culprit.  Orbital was already in the process of deciding to switch to a different rocket engine, but still has not announced which one it has selected.  The AJ26 is a Russian NK-33 engine built in the 1970s and imported to the United States and refurbished by Aerojet Rocketdyne.

Thompson said last month that his company would purchase launch services from another company to take Cygnus spacecraft to the ISS and still meet its contractual commitment to deliver 20 tons of cargo by the end of 2016.   An upgraded version of Cygnus capable of handling more tonnage already was in development and Orbital will combine the cargo that was to be launched on five more missions into just four.

Today, Orbital announced that the United Launch Alliance’s (ULA’s) Atlas V rocket is its choice for at least one Cygnus mission in the fourth quarter of 2015, with an option for a second in 2016 if needed.  Between the greater lift capability of the Atlas V compared to Antares, and the more commodious Cygnus, the mass to ISS will increase by 35 percent.

Meanwhile, the company is proceeding with its plans to replace the AJ26 engines with something new, though the announcement today still did not identify what it is.  Three launches of the upgraded Antares are planned in 2016.  The upgraded Antares with the new Cygnus will increase the mass to ISS by 20 percent over the original Antares and Cygnus.

Antares is launched from the Mid-Atlantic Regional Spaceport (MARS) at NASA’s Wallops Flight Facility on Wallops Island, VA.  The October 28 explosion damaged the pad and surrounding structures, though not as badly as many feared.  Orbital said today that repairs will be completed and the pad recertified by the end of 2015.

Orbital, which is in the middle of a merger with ATK, said in its statement today that its revised approach to meeting the CRS contract commitments “is not expected to create any material adverse financial impacts in 2015 or future years…” 

The CRS contract is for services provided to NASA using spacecraft and launch vehicles developed under NASA’s Commercial Orbital Transportation Services (COTS) program, colloquially known as “commercial cargo.”  COTS was a public-private partnership where both the government and the private sector invested in developing these new capabilities with a goal of reduced costs to the government compared to a traditional contracting mechanism.  Skeptics are closely watching how Orbital and NASA cope with the Antares accident and whether the federal government must shoulder any of the costs.

 

Photos Show Orion After Splashdown

Photos Show Orion After Splashdown

NASA has released photos of its Orion capsule floating in the Pacific at the end of its Exploration Flight Test-1 (EFT-1) mission on Friday.  The capsule was recovered by a NASA-U.S. Navy team and will be on display for the media today (Monday, December 8) at Naval Base San Diego.

Orion was successfully launched on Friday, December 5, from Cape Canaveral, FL on a Delta IV rocket, after a one-day delay.  It splashed down in the Pacific about four-and-a-half hours later after two Earth orbits.  The purpose of the launch was primarily to test Orion’s heat shield.  Although the spacecraft is being designed to carry people, no one was aboard this version, which is only a test model that is not equipped with life support systems, for example.  The first launch of an Orion carrying a crew is not expected until at least 2021.

Orion was recovered aboard the USS Anchorage, which is seen in the background of this photo of Orion floating in the Pacific at the end of its two-orbit mission. Two of the orange Crew Module Uprighting System (CMUS) airbags are shown in the photo.  In one of the few glitches in the test, one CMUS underinflated and another did not inflate.  They are used to turn the capsule right side up if it lands upside down in the water and fortunately were not needed.   More photos are posted on NASA’s Orion website.

 

Orion test spacecraft in Pacific Ocean off Baja California at end of EFT-1 mission, December 5, 2014.  Photo credit:  NASA

The EFT-1 mission was conducted by Lockheed Martin, Orion’s manufacturer, which contracted for the Delta IV launch from United Launch Alliance.  NASA is buying the resulting data from Lockheed Martin.  NASA estimates the cost of the EFT-1 mission at $370 million, which is only for the launch and non-reusable parts of the spacecraft.  It plans to use the capsule for another test flight, so its cost is not included in the estimate.

NASA is engaged in a media blitz surrounding the mission under the theme “Journey to Mars.”   While Orion is being designed to someday send humans to Mars, such flights are in the long term future.   President Obama’s National Space Policy calls for humans to orbit, not land on, Mars in the 2030s and many are skeptical that is achievable with the budgets envisioned for NASA for the indefinite future.  Landing on Mars is an even more expensive and technically challenging level of effort than simply orbiting, since a spacecraft is needed that can descend through the atmosphere, land safely, support humans for many months, ascend and return to Earth.  The Mars Curiosity rover — famous for its “7 minutes of terror” during landing — weighs only one ton, a fraction of what a spacecraft carrying humans would weigh.

President Obama did not release a statement after the EFT-1 test, but his science adviser, John Holdren, praised the mission although the statement was as much about broad Administration space policy, including its priority of developing commercial crew systems to take astronauts back and forth to the International Space Station (ISS), as Orion. 

Orion originally was part of President George W. Bush’s Constellation program to send astronauts back to the Moon by 2020 and to Mars thereafter.  President Obama proposed cancelling the Constellation program in 2010 (as part of the FY2011 budget process), igniting a firestorm of controversy.  Both Republicans and Democrats in Congress opposed cancelling Constellation and were not enthusiastic about commercial crew.  In the end, Congress and the President compromised in the 2010 NASA Authorization Act where Congress agreed to the commercial crew initiative (though it has not provided the amount of funding the President wants) and to cancelling Constellation, but in return for NASA building a new large rocket, the Space Launch System (SLS), and a Multi-Purpose Crew Vehicle (MPCV) to enable humans to travel beyond low Earth orbit.  Orion was selected as the MPCV so is one of the few elements of the Constellation program to survive.  The first destination for SLS/Orion remains controversial — President Obama wants to send astronauts to an asteroid, but the concept has not generated much support.

Republican and Democratic leaders of the House Science, Space and Technology Committee also praised the EFT-1 mission in separate statements.  That committee’s Space Subcommittee will hold a hearing on the status of Orion and SLS on Wednesday.

 

What's Happening in Space Policy December 8-12, 2014

What's Happening in Space Policy December 8-12, 2014

Here is our list of space policy-related events for the week of December 8-12, 2014 and any insight we can offer about them.  The House and Senate are in session.

During the Week

This well could be the final week of the 113th Congress.  If it can pass an appropriations bill to fund the government after December 11, when the current Continuing Resolution (CR) expires, and the FY2015 National Defense Authorization Act (NDAA), this Congress will close up shop.  The new 114th Congress, with Republicans in control of both the House and Senate, is expected to convene on January 6, 2015.

If all goes according to the plans of House and Senate leadership, this week Congress will pass a “cromnibus.” That’s a combination of a CR and an omnibus appropriations bill.  The idea is that Congress will pass an omnibus appropriations bill combining 11 of the 12 regular appropriations bills (including Defense and Commerce-Justice-Science) to fund most government agencies through September 30, 2015.   The exception is funding for the Department of Homeland Security (DHS), which includes immigration.   As a protest against President Obama’s immigration executive order, DHS would be funded only by a CR for a short period of time, probably through some time in January when Republicans control both the House and Senate and they have more power to engage the Obama White House.  A cromnibus could be good news for DOD, NASA and NOAA, providing money for the rest of FY2015.  NASA, in particular, could get a significant increase compared to President Obama’s request if the end result follows what the House passed in May and the Senate Appropriations Committee approved in June.

Some Tea Party Republicans want their leaders to take a stronger stance against the President’s immigration executive order, but at the moment it appears that House and Senate Republican leaders are more concerned about avoiding a government shutdown than scoring political points on immigration.  They seem content to wait three weeks until they control the Senate as well as the House to fight that battle.

Also, the Senate is expected to pass the compromise version of the FY2015 National Defense Authorization Act (NDAA), which passed the House last week.  It has a number of national security space provisions, including prohibiting the purchase of Russian RD-180 rocket engines after the current contract expires unless certain conditions are met.

Also coming up this week is the 9th Eilene M. Galloway Symposium on Critical Issues in Space Law on Wednesday.  This year’s theme is “Non-Traditional Commercial Space Activities: Legal and Poiicy Challenges, Opportunities and Ways Forward.”   

That’s the same day the Space Subcommittee of the House Science, Space and Technology Committee will hold a hearing on the status of NASA’s Orion and Space Launch System programs.

Those and other events we know about as of Sunday evening are listed below.

Monday, December 8

Tuesday, December 9

Wednesday, December 10

Wednesday-Thursday, December 10-11

Thursday, December 11

Thursday-Friday, December 11-12

Orion EFT-1 Lifts Off

Orion EFT-1 Lifts Off

In contrast to all the issues that cropped up yesterday, today’s launch of the Orion Exploration Flight Test-1 (EFT-1) mission went off without a hitch.

The United Launch Alliance (ULA) Delta IV Heavy rocket lifted off on time at 7:05 am Eastern Standard Time (EST) from Cape Canaveral Air Force Station.  Orion is now in its preliminary orbit.  Its second stage will fire again in a little over an hour to raise the apogee (highest point) to 3,600 miles.   Orion will then descend through the atmosphere and splashdown in the Pacific four hours and 23 minutes after the launch.  

EFT-1 is primarily a test of Orion’s heatshield.  The spacecraft will be recovered and returned to its manufacturer, Lockheed Martin, to determine how well the heat shield materials withstood the heat of reentry.  NASA is buying the data from Lockheed Martin.

Government Clears ATK-Orbital Merger

Government Clears ATK-Orbital Merger

The Department of Justice and the Federal Trade Commission today agreed to the merger of ATK and Orbital Sciences Corporation.  The companies expect to complete the transaction in February 2015.

ATK and Orbital announced a “merger of equals” in April 2014. At the time, they expected the deal to close this month, but a variety of factors — including the launch failure of Orbital’s Antares rocket in October — delayed it slightly. Last month ATK signaled that it wanted to proceed, but the shareholder vote has been postponed until January 27, 2015.

In a joint press release, the two companies said they were informed by the Federal Trade Commission (FTC) that the FTC and the Justice Department have terminated the waiting period under the Hart-Scott-Rodino antitrust act effective today.

They expect the merger to close immediately after ATK spins off its sporting goods business, which will become a new, separate company, Vista Outdoor Inc.  That is expected in February “subject to the satisfaction of remaining closing conditions” including shareholder approval.

House Passes Final FY2015 NDAA, Including RD-180 Cutoff, Money for New Engine

House Passes Final FY2015 NDAA, Including RD-180 Cutoff, Money for New Engine

The House passed the compromise National Defense Authorization Act (NDAA) for FY2015 today by a vote of 300-119.  The Senate is expected to the pass the bill next week.  It includes restrictions on the future use of Russia’s RD-180 rocket engine for the Atlas V rocket and authorizes $220 million to begin development of a U.S. alternative.

The House passed its version of the bill on May 22 and the Senate Armed Services Committee (SASC) approved a version on June 2.  The bill never made it to the floor of the Senate for a vote, however.  Instead, House and Senate members negotiated the final version (H.R. 3979) behind closed doors over the past several months.

The bill authorizes $585 billion for the Department of Defense (DOD) — $521 billion in base spending plus $64 billion for Overseas Contingency Operations (e.g. for the war in Afghanistan).

The bill has an entire subtitle devoted to a broad range of concerns about national security space programs (Subtitle A of Title XVI), including several provisions about space launch. Among them is a restriction on the use of Russian RD-180 engines for the United Launch Alliance’s (ULA’s) Atlas V rocket.  ULA’s Atlas V and Delta IV are Evolved Expendable Launch Vehicles (EELVs).

Section 1608 prohibits the Secretary of Defense (SecDef) from awarding or renewing a contract under the EELV program if it carries out space launch activities using rocket engines designed or manufactured in Russia.  The language does provide waiver authority if needed for national security or if launch services could not be obtained at a fair and reasonable price otherwise.

The language also exempts engines that were ordered under the block buy contract that the Air Force signed with ULA in December 2013 or under any contract signed before February 1, 2014 where the engines were fully paid for by the contractor or covered by a legally binding commitment that the contractor pay for them.

U.S. reliance on Russian rocket engines to launch many U.S. national security satellites became a significant issue this spring after Russia annexed Crimea, beginning a downward spiral in U.S.-Russian geopolitical relationships.  ULA and the Air Force insist that it is “business as usual” with the Russian company that builds the engines, but they have also acknowledged that it is time for the U.S. to build its own new liquid rocket engine.  ULA President Tory Bruno recently framed it as a business decision, not a geopolitical one, however.

The bill also requires the SecDef to develop a new U.S. liquid rocket engine (actually a propulsion system) by 2019.  The bill authorizes $220 million in FY2015, while noting that it “is not an authorization of funds for development of a new launch vehicle.”  (It is important to note that authorization bills only recommend funding levels, they do not actually provide any money.  Only appropriations bills give agencies money to spend.  Congress has not completed action on any of the FY2015 appropriations bills yet.)

In response to a query about its reaction to the language in the bill, ULA said by email that “any effort to cut-off the RD-180 before a new reliable engine is available would result in billions of increased costs to the U.S. taxpayer and will leave the nation with a huge gap in national security capabilities.”   ULA announced a partnership with Blue Origin in September to build a U.S. alternative to the RD-180.

The bill also –

  • Requires the Secretary of the Air Force (SecAF) to notify Congress of any change in the EELV acquisition plan and schedule.
  • Requires the Government Accountability Office (GAO) to report to Congress by June 1, 2015 on the advisability of the SecDef requiring new entrants (like SpaceX) to “establish or maintain business systems that comply” with DOD’s “data requirements and cost accounting standards … including certified cost or price date.”
  • Directs the SecAF to use competitive procedures in awarding the contract for the 5th Operationally Responsive Space launch and ensure DOD’s competitive space launch opportunity policies are followed.
  • Increases by one in FY2015 and another one in FY2015-2017, the number of rocket cores for which space launch providers certified under the EELV program may submit proposals.

To mention just a few of the other issues addressed in the bill, it restricts spending to 50 percent of the authorized amount for several programs — Weather Satellite Follow-on System, Space Based Infrared System (SBIRS) Space Data Exploitation, hosted payload and SBIRS wide field of view testbed, and protected tactical demonstration and protected military satellite communications testbed – until certain certifications or reports are provided to Congress.

It also prohibits use of funds authorized in the bill to store one of DOD’s existing weather satellites (Defense Meteorological Satellite Program –DMSP) until DOD certifies that it plans to launch the satellite and storing it is the most cost effective approach to meeting DOD requirements.  That issue pertains to the last DMSP satellite, DMSP-20, which the Air Force appears ambivalent about launching, but the storage costs are high.  It has been in storage for many years already.  The DMSPs were supposed to be replaced by National Polar-orbiting Operational Environmental Satellite System (NPOESS).  DOD has been trying to decide the future of its weather satellite program since NPOESS was cancelled in 2010.  It launched DMSP-19 earlier this year, but its plans for DMSP-20 are unsettled.

The bill also requires –

  • the SecDef to request a study by the Defense Science Board of the effectiveness of the ground and space sensor system architecture for space situational awareness.
  • the SecAF to brief Congress on requirements and investments needed to modernize DOD space launch facilities.
  • the SecDef to report to Congress assessing the ability of the United States to deter and defeat any adversary’s act of aggression in outer space.
  • the SecDef to report to Congress on whether its satellite communications organizational structure is efficient and effective and assess the merits of designating the Commander of Air Force Space Command’s Missile Systems Center as the single acquisition agent for wideband satellite communications.

The text of the bill and the joint explanatory statement are posted on the websites of the House Armed Services Committee and the Senate Armed Services Committee.

Editor’s Note:  H.R. 3979 initially was a bill regarding volunteer firefighters and emergency responders that passed the House and Senate earlier this year.  It then became a bill on emergency unemployment compensation.  The text of the compromise version of the NDAA was inserted into that bill (replacing what was there), a procedure referred to as using it as a “legislative vehicle” for passing something else.  The goal is to speed legislative action by amending a bill that has already passed both chambers.  It is not uncommon.