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I used to work within the acquisition system - on the sides of it, not as a procurement specialist, but enough into it that I did the training and all. It was a legal issue for us to even be able to pull money from one defense fund into another. I reported a supervisor once for misappropriation of funds - and that was all within the defense budget.
If congress approves a set amount for the defense budget, pulling it from highway funding isn't really an option unless congress allows it to be an option.
(I've no doubt they would, but that's a separate matter.)
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