(It is very close to things Kerry has recommended in many countries (Lebanon, Iraq, and the West Bank to name three) for years. If anything, he likely sold Biden on the idea of both the scope of the aid and the explicit message that ultimately this is their battle. )
The bill is an attempt to support Pakistan in moving towards stability. Kerry has spoken about how this bill started when Biden was chair of the SFRC. In a Pakistani article, he spoke of how it started when Biden, Hagel and Kerry oversaw the election in Pakistan. Their idea was that help rebuilding the infrastructure, education etc as friendly support of what was the new elected government.
This really is an ambitious bill - here is a Newsweek article describing it's importance.
President Obama is on the verge of signing legislation that would grant $7.5 billion in new aid to Pakistan over the next five years, most of it in the form of economic assistance designed to strengthen the alliance and induce Pakistan to move more aggressively against the Taliban and Al Qaeda.
Embedded in the legislation is a clear-cut goal: to reduce the overweening influence of the Pakistani Army on the nation's politics and to bolster the longer-term prospects of a moderate, democratic civilian regime. The principal sponsors of this legislation, Sens. John Kerry and Richard Lugar, believe that supporting the civilian government of Prime Minister Asif Ali Zardari—who replaced the latest of many Pakistani military regimes only 20 months ago—can help solidify the emergence of a stable democracy and a prosperous economy. In effect, this law seeks to break with a past that in the eyes of many Pakistanis proves that the U.S. has been a fickle friend, willing to back dictators in Islamabad when they served American interests.
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The Kerry-Lugar legislation is ambitious—to say the least—in its attempt to transform the U.S.-Pakistan relationship. This is especially the case given the fragility of the present civilian regime, the inefficacy of Pakistan's institutions of governance, and the cupidity of its military establishment. Not surprisingly, the military establishment can be counted on to marshal every possible argument against any diminution of its long-held prerogatives. It has already started to stoke nationalist fervor by insinuating that the U.S. is behaving like a neocolonial power. The Obama administration cannot allow the Pakistani military to derail this new course of action, its objections and hypernationalist posturing notwithstanding.
Without a steady abandonment of support for homegrown Islamist radicals, and a gradual strengthening of civilian institutions, the prospect of endemic political instability and violence in Pakistan and the region looms large. Such an outlook would bode ill for restoring even a semblance of political order in Afghanistan and would herald a return to the untold horrors of a Taliban-dominated country.
http://www.newsweek.com/id/217022This last week, the military in Pakistan created an uproar over the "conditions", distorting them - and, in fact, completely making stuff up. Yesterday, Kerry and Berman met with a Pakistani diplomat and wrote an "explanation" which made it clear what the intent of the bill was. This satisfied the Pakistani government and Obama signed it today.
Here is an article that speaks both of that letter and explains the bill.
White House spokesman Robert Gibbs. in a statement announcing the law had been signed, said it was the "tangible manifestation of broad support for Pakistan in the U.S."
Gibbs said Obama wants to engage Pakistan on the basis of a strategic partnership "grounded in support for Pakistan's democratic institutions and the Pakistani people."
"This act formalizes that partnership, based on a shared commitment to improving the living conditions of the people of Pakistan through sustainable economic development, strengthening democracy and the rule of law, and combating the extremism that threatens Pakistan and the United States."
http://www.reuters.com/article/GCA-Afghanistan-Pakistan/idUSTRE59E6XL20091015Here's a little audio clip
http://talkradionews.com/2009/10/kerry-explains-addition-to-aid-bill/