I hate to look a gift horse in the mouth, since the rest of this document sounds great, but this is a statement that will worry conservatives and rightly so. However Bush seems at least as preoccupied with finally making sure that foreign aid recipients are moving their countries in the direction of freedom.
The rest of this document is "stick", the $$ are a "carrot". If he can use the carrot to prod other countries toward greater liberty we will reap big dividends. We don't spend that much on foreign aid.