"In consultation with the business community and my top economic advisers, it is clear that the financial system, although improved from where it was in September, is still fragile," Mr. Obama said. "I felt that it would be irresponsible for me, with the first $350 billion already spent, to enter into the administration without any potential ammunition should there be some sort of emergency or weakening of the financial system."
One of Mr. Obama's top economic advisers said the public has a "right to be angry" about the bailout. In a letter to Congress, Lawrence Summers, Mr. Obama's pick to head the National Economic Council, wrote that the incoming team would usher in a number of changes and conditions to TARP, including a "sweeping effort" to address foreclosures and reduce mortgage payments for "responsible homeowners." Mr. Summers promised additional efforts to spur consumer and business lending and tougher restrictions for entities that accept government money.
Mr. Summers wrote that firms receiving "exceptional" government assistance would be subject to tighter restrictions on dividends and limits on the types of companies they can acquire. Mr. Summers also wrote that the incoming administration would also strengthen oversight of TARP, which has been criticized by two independent bodies as lacking transparency.
The letter was short of specifics and instead laid out broad goals. That might not be enough to placate some lawmakers, particularly those Democrats who have said they'll seek a detailed accounting of how TARP money will be spent.
Mr. Obama plans to meet with Senate Democrats on Capitol Hill on Tuesday. He has also begun calling congressional leadership as well as rank-and-file members to gin up support for the release of the second half, congressional aides say.
The decision to request the money even before Mr. Obama takes office suggests a continuing unease about the state of the U.S. economy and financial markets. Banks are being hit on many fronts, including big losses in consumer loans such as credit cards, home mortgages and home-equity lines. The biggest banks are also being hurt on their Wall Street businesses, forcing them to take more losses on such holdings as mortgage-related securities.
While Obama officials did not cite specific problems on the horizon, there's a concern within the incoming and outgoing administrations that further deterioration could trigger a government response. Mr. Summers called the need for the second round of funds "imminent and urgent."
Timothy Geithner, Mr. Obama's Treasury secretary-nominee, has been pushing the Obama team to request the funds as soon as possible, arguing that the administration should not begin its term without those resources, a Bush administration official said.
The letter from Mr. Summers is an attempt to refocus and restart TARP. Both Democrats and Republicans are angry over how the funds were spent and are not inclined to release any more money. Mr. Obama said he, too, is "disappointed with the absence of clarity, the lack of transparency, the failure to track how the money's been spent and the failure to take bold action with respect to areas like housing, consumer credit, so that we can maintain credit."
Messrs. Summers and Geithner have been negotiating with lawmakers to satisfy their concerns. In the Senate, Republicans who originally supported the plan may be unwilling to support another round.
Some Senate Democrats remain skeptical, as well. "I voted against the bailout because I thought it lacked accountability and transparency. Unfortunately, that turned out to be the case," said Sen. Bill Nelson, a Florida Democrat. "Before I approve use of the rest of the money, I'm going to need to see a detailed plan for how it would be spent."
Senate Democrats are trying to find 50 votes to thwart any resolution disapproving the funds.
Some of the holdouts are expected to demand a detailed plan to prevent foreclosures. Lawmakers and economists have said for months that the crisis won't be tamped down before home values stop falling. Mr. Summers wrote that the Obama team would seek to "reduce mortgage payments for economically stressed but responsible homeowners" and rework bankruptcy laws. The letter provided few details on how the administration intends to prevent foreclosures.