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Shaman, you simply do not get the budgeting process.  The President is trying to predict what a war will cost.  These are usually drastically off.  Passing the funding through supplement funding legislation gets you the actual price, as opposed to a random guess, usually then followed by more funding legislation. 


Simply writing this into the budget before hand is irrelevant because you cannot predict the price of war... hence why war funding is done the way it was done.


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