Facing an uncertain future of negotiations on the rest of the federal budget, House Democratic leaders are struggling to gather support for their $733 billion plan for Pentagon spending.

Bloomberg Government reports that House Democratic leaders see this level of Pentagon spending as a necessary part of getting Republicans on board with the level of domestic spending they want. The plan is not that simple, however. Some progressive Democrats want less Pentagon spending and more domestic spending, while Republicans are split — some want Congress to control spending and maintain budget caps, while others want higher Pentagon spending at all costs. Meanwhile, these negotiations are happening outside of the required framework of a budget.

Without serious process reforms and a fundamental re-framing of how politicians think about spending, these types of negotiations — in which “I’ll vote for your spending, if you vote for mine” is the norm — will only continue.