As required by the pay law, President Bush cited a national emergency as a justification for not paying the raise that would have been paid otherwise, which would have averaged 8.6 percent. The order said that a national emergency has existed since September 11, 2001, and that the “growth in federal requirements is straining the federal budget.” Paying the default raise, at a cost of $8.8 billion, “would interfere with our nation’s ability to pursue the war on terrorism,” the order said.