American lawmakers say they haven't been briefed on plans, as some in Pakistan describe the administration as 'confused.'
Democrats and Republicans are finding little common ground, leading some Senators to say an independent investigator is needed.
Gen. Ray Odierno, along with other top defense officials, argued that releasing the images of alleged detainee abuse would endanger US troops abroad.
The money was intended to be spent quickly. But in the three months since the bill was passed, only a few programs have received a significant bump.
Sgt. John Russell was charged with murder Tuesday. He was finishing his third tour in Iraq.