Order Code RL34276
FY2008 Emergency Supplemental Request for
International Affairs
December 7, 2007
Susan B. Epstein, Rhoda Margesson,
Curt Tarnoff, and Connie Veillette
Foreign Affairs, Defense, and Trade Division

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FY2008 Emergency Supplemental Request for
International Affairs
Summary
The White House has submitted emergency supplemental requests to Congress
for military operations in Iraq and Afghanistan, and international affairs programs
totaling $196.5 billion. The request was made in two installments — an estimate of
additional expenses was sent to Congress with the FY2008 regular budget request in
February 2007, and a second amended request was made on October 22, 2007. Of
the total, $6.897 billion consists of international affairs spending, relating to State
Department operations and foreign assistance programs. This report analyzes the
international affairs portion of the request and tracks related legislative activity.
On February 6, 2007, the Administration sent to Congress its regular FY2008
budget that included $35.1 billion for international affairs. At the same time, the
President sent Congress a separate FY2008 emergency supplemental request of
$3.301 billion for international affairs. On October 22, 2007, the Administration
amended its supplemental request with $3.596 billion in additional spending. The
total FY2008 emergency supplemental request for international affairs spending
amounts to $6.897 billion. While the largest portion of the total request is for State
Department operations and foreign assistance in Iraq and Afghanistan, it also
includes sizeable requests for programs in Mexico, the West Bank and Gaza, North
Korea, Sudan, and Pakistan.
The Bush Administration has increasingly requested supplemental funds for
international affairs budgets. Some budget experts and opposition party members
have criticized this Administration for relying too heavily on supplementals, saying
that many items have become routine, particularly relating to Iraq and Afghanistan,
and should be incorporated into the regular appropriations cycle. The Administration
counters that given the nature of rapidly changing overseas events and unforeseen
emergencies, it is necessary to make supplemental requests for what it claims are
unexpected and non-recurring expenses.
The House has passed a so-called “bridge fund” to provide part of the
supplemental request for military operations (H.R. 4156). The White House has
threatened to veto funding for military activities in Iraq if the legislation includes any
mention of a time line for American troops to leave Iraq. It is possible that some
international affairs supplemental funding may be included in an omnibus
appropriations bill. H.R. 2764, the State, Foreign Operations, and Related Programs
Appropriation bill, is reportedly the vehicle that may be used for an omnibus, and
could be considered by the House as early as December 11, 2007. Some
congressional leaders have said that a full supplemental may not be considered until
2008.
This report will be updated.

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Contents
International Affairs Emergency Supplemental . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
State Department Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Foreign Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Iraq Reconstruction Assistance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
Afghanistan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
The FY2008 Original and Amended Emergency Supplemental
Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
Pakistan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
The FY2008 Original and Amended Supplemental Request . . . . . . . . 11
Sudan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
FY2008 Additional Emergency Supplemental Request . . . . . . . . . . . 11
Mexico and Central America . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
West Bank and Gaza . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
North Korea . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
Other Humanitarian Assistance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Appendix A. FY2008 Emergency Supplemental Request, State Department
and Foreign Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
List of Tables
Table 1. FY2008 Emergency Supplemental State Department Request . . . . . . . . 3
Table 2. FY2008 Foreign Operations Emergency Supplemental Request . . . . . . . 4
Table 3. FY2008 Emergency Supplemental Appropriations for Iraq
Reconstruction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Table 4. Afghanistan Aid, FY2008 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Table 5. Sudan Emergency Supplemental, FY2008 . . . . . . . . . . . . . . . . . . . . . . 12

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FY2008 Emergency Supplemental Request
for International Affairs
International Affairs Emergency Supplemental
On February 6, 2007, the Administration sent to Congress its regular FY2008
budget that included $35.1 billion for international affairs. At the same time, the
President sent Congress an FY2008 emergency supplemental request of $3.301
billion for international affairs. On October 22, 2007, the Administration amended
its supplemental request with $3.596 billion in additional spending. The total
FY2008 emergency supplemental request for international affairs spending amounts
to $6.897 billion. While the largest portion of the total request is for State
Department operations and foreign assistance in Iraq and Afghanistan, it also
includes sizeable requests for programs in Mexico, the West Bank and Gaza, North
Korea, Sudan, and Pakistan. (The international affairs supplemental request is part
of a larger package totaling $196.5 billion that also includes funding for military
operations in Iraq and Afghanistan.)
The State Department estimates emergency supplemental funding needs of
$3.220 billion for Diplomatic and Consular Programs (DCP) in Iraq and Afghanistan,
Worldwide Security Upgrades in Afghanistan, staff housing in Afghanistan,
Contributions to International Organizations, and Contributions to International
Peacekeeping Activities (CIPA) for Darfur. Two-thirds ($2.1 billion) of the State
Department request is for Diplomatic and Consular Program funding for Iraq
Operations. Foreign Operations comprise $3.678 billion, including $350 million for
P.L. 480 food assistance. Nearly half of the total foreign operations package is
allocated for assistance in Iraq and Afghanistan.
The Bush Administration has increasingly requested emergency supplemental
funds for international affairs budgets. Some budget experts and opposition party
members have criticized the Administration for relying too heavily on supplementals,
and that some items, particularly relating to Iraq and Afghanistan, have become
routine and should be incorporated into the regular appropriations cycle. The
Administration counters that given the nature of rapidly changing overseas events
and unforeseen emergencies, it is necessary to make emergency supplemental
requests for what it claims are unexpected and non-recurring expenses.
State Department Operations1
In February 2007, the original FY2008 State Department portion of the
emergency supplemental request consisted of $1.882 billion for Diplomatic and
1 Prepared by Susan B. Epstein, Specialist in Foreign Policy.

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CRS-2
Consular Programs, all for operations in Iraq, and $53 million for Contributions to
International Organizations (CIO). The Administration amended this supplemental,
adding nearly $1.3 billion: $401.4 million for Diplomatic and Consular Programs
(DCP), $160 million for Embassy Security, Construction, and Maintenance (ESCM),
and $723.6 million for Contributions for International Peacekeeping Activities
(CIPA). Total emergency funds requested for FY2008 for the State Department’s
Administration of Foreign Affairs equal $3.220 billion in addition to the regular
budget request of $7.317 billion for the Administration of Foreign Affairs. (See
Table 1.)
Currently, the Mission in Iraq consists of more than 1,000 direct-hire Americans
representing 12 U.S. government agencies.2 For the Diplomatic and Consular
Programs account, the Department is requesting a total of $2,283 million, of which
$2,120.6 million is for emergency needs in Iraq. In addition, $402.6 million of
carryover funds are available, for a total of $2,523.2 million for Iraq operations. Of
this sum, $978.7 million would pay for security needs, such as local guards ($151.6
million), compound guards ($164.0 million), regional security ($167.3 million),
personal security details ($301.4 million), armored vehicles ($41.2 million), physical
and technical security, such as vehicle barriers and bomb detective dogs ($8.7
million), equipment, such as bullet proof vests, ammunition, and masks ($6.4
million), other support, such as special agents traveling to Iraq and counterterrorism
training ($28.1 million), and overhead cover protection to bolster rooftops ($110.0
million). Another $907.1 million would go toward Provincial Reconstruction Teams
(PRTs), paying salaries ($187.6 million), operations ($63.8 million), living
accommodations and medical support ($72.1 million), information technology ($60.3
million), vehicles ($3.3 million), security ($516.8 million) and leases of space in
Baghdad ($3.2 million).
The Administration is also seeking $162.4 million for worldwide security
upgrades in Afghanistan. Of this amount, $80 million would pay for securing
facilities, including overhead (roof) protection; $38 million would be for high threat
protection teams and support for the election process; $36.5 million would fund
unbudgeted security costs for other agencies; and $7.9 million would buy fully-
armored vehicles for the embassy and PRTs. Other expenses covered by the FY2008
emergency supplemental request for the Department of State include $160 million
for U.S. staff housing in Afghanistan under the Embassy Security, Construction, and
Maintenance account, $53 million for U.S. assessments for U.N. activities related to
combat terrorism, and $723.6 million for U.S. Contributions for International
Peacekeeping activities in Darfur.
2 For more information, see CRS Report RS21867, U.S. Embassy in Iraq.

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Table 1. FY2008 Emergency Supplemental State Department
Request
(millions of U.S. dollars)
Original
Amended
Total
Regular
FY2008
FY2008
FY2008
Request
Supp.
Supp.
Supp.
Activity
FY2008
Request
Request
Request
Total for Administration
of Foreign Affairs
7,317.1a
1,934.6
1,285.0
3,219.6
Diplomatic& Consular
Programs Iraq Operations
4,942.7
1,881.6
401.4
2,283.0
Worldwide Security Upgrades
—
(1,881.6)
(239.0)
(2,120.6)
(964.8)
—
(162.4)
(162.4)
Embassy Security,
Construction & Maintenance
1,599.4b
—
160.0
160.0
Contributions to International
Organizations
1,354.4
53.0
—
53.0
Contributions to International
Peacekeeping
1,107.0
—
723.6
723.6
Total
9,003.5
1,934.6
1,285.0
3,219.6
a. Includes other funds not listed in this table.
b. Includes worldwide security upgrade funds for embassies.
Foreign Operations3
The Foreign Operations portion, totaling $3.678 billion, of the supplemental
request was sent to Congress in two tranches. A $1.367 billion request accompanied
the President’s budget on February 6, 2007. An amended request for $2.311 billion,
including P.L. 480 food aid, was sent to Congress on October 22nd. Approximately
one-third of the request is made up of $2.217 billion in Economic Support Funds
(ESF) for Iraq ($797 million), Afghanistan ($834 million), West Bank and Gaza
($350 million), North Korea ($106 million), Sudan ($70 million) and Pakistan ($60
million). (See Table 2 for full request.)
Anti-narcotics emergency supplemental funding for FY2008 totals $734 million,
the largest portion allocated for Mexico and Central America ($550 million).
Migration and Refugee Assistance (MRA) totals $230 million, mainly for Iraqi and
Palestinian refugees. International Disaster and Famine Assistance (IDFA), totaling
$80 million, would fund programs in Iraq to assist internally displaced persons
3 Prepared by Connie Veillette, Specialist in Foreign Assistance.

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CRS-4
(IDPs). The request also includes $5 million for the Afghanistan Presidential
Protection Service from the Nonproliferation, Anti-terrorism, Demining and Related
Programs (NADR) account. A $350 million request for P.L. 480 food aid would
support programs in the Horn of Africa, Kenya, Sudan, and a $30 million
contingency fund to anticipate future needs elsewhere.
Table 2. FY2008 Foreign Operations Emergency Supplemental
Request
(millions of U.S. dollars)
FY2008
FY2008
FY2008
Total
Regular
Original
Amended
Supp.
Country/Account
Request
Request
Request
Request
Afghanistan
1,067.1a
855.0
ESF
693.0
339.0
495.0
834.0
NADR
21.7
0.0
5.0
5.0
USAID Operating Expenses
—
16.0
0.0
16.0
Iraq
391.8a
1,276.8
ESF
298.0
772.0
25.0
797.0
INCLE
75.8
159.0
0.0
159.0
IDFA
—
0.0
80.0
80.0
MRA
—
35.0
160.0
195.0
USAID Operating Expenses
—
45.8
0.0
45.8
Mexico — Central America
220.4a
550.0
Initiative
INCLE
31.7
0.0
550.0
550.0
West Bank/Gaza
77.0a
410.0
INCLE
3.5
0.0
25.0
25.0
MRA
—
0.0
35.0
35.0
ESF
63.5
0.0
350.0
350.0
Pakistan
785.0a
60.0
ESF
382.9
0.0
60.0
60.0
North Korea
2.0
106.0
ESF
2.0
0.0
106.0
106.0
Sudan
679.2a
145.0
ESF
245.9
0.0
70.0
70.0
PL480
245.0
0.0
75.0
75.0
Horn of Africa/Kenya
—
110.0
PL480
7.0
0.0
110.0
110.0
Southern Africa
—
135.0
PL480
—
0.0
135.0
135.0
PL480 — Unallocated
1,219.4
0.0
30.0
30.0
Total
4,439.9
1,366.8
2,311.0
3,677.8
Notes: Figures do not include State Department Operations. Acronyms: ESF-Economic Support
Fund; INCLE-International Narcotics Control and Law Enforcement; IDFA-International Disaster and
Famine Assistance; MRA-Migration and Refugee Assistance; NADR-Nonproliferation, Anti-terrorism,
Demining, and Related Programs; and PL480-Food for Peace; USAID-U.S. Agency for International
Development.
a. Country totals include other accounts for which supplemental funds were not requested.

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Iraq Reconstruction Assistance4
To date, nearly $42 billion in U.S. funds have been appropriated to support all
facets of Iraq reconstruction. Almost all this funding has been appropriated in annual
supplemental legislation. For FY2008, the Administration made no request for
security assistance in its regular Defense budget proposal, but asked for roughly $392
million under State/Foreign Operations appropriations. In both the House and
Senate versions of H.R. 2764, the FY2008 State/Foreign Operations appropriations,
Congress rejected the Administration request for Iraq. Therefore, funding for Iraq
reconstruction in FY2008 is expected to come entirely from an emergency
supplemental measure.
The Administration’s FY2008 emergency supplemental appropriations request,
revised on October 22nd, includes $4.9 billion in funding for Iraq reconstruction.
Reconstruction aid has two main components — security aid funded with
Department of Defense (DOD) appropriations and political/economic/social sector
assistance funded with State/Foreign Operations appropriations.
The request for DOD reconstruction appropriations totals about $3.7 billion. It
would chiefly fund the training and equipping of Iraqi troops under the Iraq Security
Forces Fund (ISFF) and reconstruction grants provided under the Commander’s
Emergency Response Program (CERP). The CERP allows military civil affairs
officers to support a wide variety of economic activities at the local level, from
renovating health clinics to digging wells to painting schools, provided in the form
of small grants. CERP also funds some infrastructure efforts no longer supported
with other U.S. assistance, such as repair or provision of electric generators and
construction of sewer systems. Commanders are able to identify needs and dispense
aid with few bureaucratic encumbrances.
The recent budget revision added a $100 million request to the Iraq Freedom
Fund account for the Task Force to Improve Business and Stability Operations in
Iraq. The Task Force, funded at $50 million under the previous supplemental
appropriations legislation, seeks to stimulate the economy and create employment for
Iraqi citizens by rehabilitating some of the roughly 200 state-owned enterprises that
comprised a large portion of the Iraqi economy prior to the U.S. occupation. News
reports have suggested some difficulty with the program, resulting from the lack of
electricity, the insecure environment, and a lack of enthusiasm from U.S. companies
that had been expected to invest in the facilities, among other reasons.5
Under the State/Foreign Operations appropriations budget, the FY2008
emergency supplemental request directs $1.2 billion toward Iraq — $797 million in
the Economic Support Fund (ESF), $159 million in the International Narcotics and
Law Enforcement (INCLE), and $195 million in the Migration and Refugee
4 Prepared by Curt Tarnoff, Specialist in Foreign Affairs. For more detailed discussion of
the U.S. program of assistance to Iraq, see CRS Report RL31833, Iraq: Reconstruction
Assistance.
5 “U.S. Falters in Bid to Boost Iraqi Business,” Washington Post, August 24, 2007; “In Iraq,
One Man’s Mission Impossible,” CNN Money.com, September 4, 2007.

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CRS-6
Assistance (MRA), and $80 million in the International Disaster and Famine
Assistance (IDFA) accounts. ESF is the primary source of funding for the assistance
provided by the Provincial Reconstruction Teams (PRTs), which have grown under
the surge to more than 25, including 15 newly established ePRTs embedded with
U.S. combat battalions and concentrated mostly in Baghdad and Anbar province.
The ePRTs are intended to help stabilize areas secured by U.S. and Iraqi forces.
PRTs are expected to help stabilize an area by supporting local small-scale,
employment-generating, economic projects, using ESF-funded community
development grants, job training and micro-loan programs, among other activities.
PRTs also utilize ESF to increase the capacities of local government officials to
spend Iraqi-owned capital funds allocated by the Iraqi government for infrastructure
programs. At the national level, ESF supports Ministerial capacity development,
agriculture and private sector reform, and the strengthening of democratization
efforts.
The recent budget revision added another $25 million to the ESF supplemental
request and proposes authorization language to allow the Administration to establish
a new Iraq enterprise fund based on the model created for east Europe and the former
Soviet Union. Enterprise funds are U.S. government-funded private sector-run
bodies that primarily provide loans or equity investments to small and medium
business. In the former communist countries, enterprise funds also encouraged
growth of the private sector, including support for mortgage lending markets and
establishment of private equity funds. The most successful example, the Polish
Fund, made many profitable investments, helping companies grow that otherwise
were unable to obtain financial support in the period just after the fall of communism.
Some of the funds, however, have been much less successful, either by taking on
poor investment risks, or unable to locate promising businesses because of the poor
business climate or competition from other private sector funding sources. Some
observers question the usefulness of the funds because their ostensible development
purpose seems often to conflict with pressures for economic profit.
The INCLE account largely would support rule of law and corrections programs.
The Administration request is expected to fund prison construction, something that
Congress has sometimes cut from previous requests. The request is also intended to
extend judicial reform and anticorruption efforts to the provinces. The MRA request
would address the continuing refugee crisis in the region; an estimated 2.0 million
Iraqis have fled the country and another 2.2 million have been displaced due to
sectarian violence and instability. The IDFA program would provide medical care,
food, shelter and other relief to refugees and displaced people.
FY2008 emergency funds are also requested for operational costs (not included
in the reconstruction aid total or in Table 3) for staffing and administering
reconstruction programs: $679 million for PRT and $45.8 million for USAID
operations.

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CRS-7
Table 3. FY2008 Emergency Supplemental Appropriations
for Iraq Reconstruction
(millions of U.S. dollars)
International Affairs (Budget Function 150 Accounts)
Administration Request
Economic Support Fund (ESF)
797.0
International Narcotics Control and Law
159
Enforcement (INCLE)
Migration and Refugee Assistance (MRA)
195
International Disaster and Famine Assistance
80.0
(IDFA)
TOTAL 150 Account
1,231.0
Department of Defense (Budget Function 050 Accounts)
Iraq Security Forces Fund (ISFF)
3,000
Commander’s Emergency Response Program
609.7a
(CERP)
Iraq Freedom Fund (for Task Force to Improve
100.0
Business)
TOTAL 050 Account
3,709.7
GRAND TOTAL
4,940.b
150 & 050
Sources: Department of State and Department of Defense FY2008 Congressional Budget
Justifications.
a. The total CERP request of $1,219.4 million is for both Iraq and Afghanistan. The amount included
here assumes that half will be used in Iraq.
b. Not included are $45.8 million in USAID operational expenses (OE) for Iraq programs and $679
million for PRT OE.
Afghanistan6
Background. Afghanistan’s political transition was completed with the
convening of a parliament in December 2005, but in 2006 insurgent threats to
Afghanistan’s government escalated to the point that some experts began questioning
the success of U.S. stabilization efforts. In the political process, a new constitution
was adopted in January 2004, successful presidential elections were held on October
9, 2004, and parliamentary elections took place on September 18, 2005. The
parliament has become an arena for factions that have fought each other for nearly
three decades to debate and peacefully resolve differences. Afghan citizens have
started to enjoy new personal freedoms, particularly in the northern and western
6 Prepared by Rhoda Margesson, Specialist in International Humanitarian Policy, and
Kenneth Katzman, Specialist in Middle Eastern Affairs.

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CRS-8
regions of the country, that were forbidden under the Taliban. Women are
participating in economic and political life, including as ministers, provincial
governors, and senior levels of the new parliament. The next elections are planned
for 2009.
The insurgency led by remnants of the former Taliban regime escalated in 2006,
after several years in which it appeared the Taliban was mostly defeated. U.S. and
NATO military commanders have had recent successes in counter-insurgency
operations, but the Taliban continues to present a considerable threat to peace and
security in parts of Afghanistan. Slow reconstruction, corruption, and the failure to
extend Afghan government authority into rural areas and provinces, particularly in
the south and east, have contributed to the Taliban resurgence. In recent months,
political leadership in the more stable northern part of the country have registered
concerns about distribution of reconstruction funding. In addition, narcotics
trafficking is resisting counter-measures, and independent militias remain throughout
the country, although many have been disarmed. Also, the Afghan government and
U.S. officials have said that some Taliban commanders are operating from Pakistan,
putting them outside the reach of U.S./NATO forces in Afghanistan. In 2007, the
Administration unveiled a new initiative, Reconstruction Opportunity Zones (ROZ)
in Afghanistan and the border regions with Pakistan to stimulate economic activity
in underdeveloped, isolated regions.
The United States and partner stabilization measures focus on strengthening the
central government and its security forces and on promoting reconstruction while
combating the renewed insurgent challenge. As part of this effort, the international
community has been running PRTs to secure reconstruction. Despite these efforts,
weak provincial governance is seen as a key obstacle to a democratic Afghanistan
and continues to pose a threat to reconstruction and stabilization efforts.
The FY2008 Original and Amended Emergency Supplemental
Request. The Administration requested a total of $355 million in the FY2008
emergency supplemental funds for Afghanistan in February 2007. These included
ESF ($339 million) and security requirements for USAID ($16 million). The
Administration amended the FY2008 supplemental request, increasing it by $483.4
million (for a total request of $838.4 million), which includes several provisions
intended to continue U.S. efforts to stabilize Afghanistan and continue economic
reconstruction efforts, but most of the increase is for embassy operations and
security.7 (See Table 4.)
Key elements of the FY2008 emergency supplemental request include $495
million in Economic Support Funds (ESF) for democratic governance and
reconstruction efforts to continue security and development strategy (an increase of
$156 million over the original FY2008 emergency supplemental request of $339
million), which would be allocated as follows:
7 Funding figures obtained from the FY2008 Revised Emergency Proposal dated October
22, 2007; the proposed Budget for Fiscal Year 2008 (“Additional 2007 and 2008
Proposals”) submitted in February 2007; and the Supplemental Appropriations Justification
Fiscal Year 2008 prepared by the Department of State and USAID.

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CRS-9
! $275 million would be used to strengthen provincial governance and
responsiveness to the Afghan people. Funding would support a wide
range of programs, preparation activities for the 2009 election and
ongoing programs, such as the National Solidarity Program ($40
million), the Afghanistan Reconstruction Fund ($25 million), and
the Provincial Governance Fund ($50 million);
! $50 million would be used as part of an effort to invest in basic
social services, such as health and education, particularly in rural
areas; and
! $170 million would be made available for economic growth and
infrastructure, including the development of power sector projects
($115 million); road projects ($50 million) focused on those
segments that are of strategic military importance and provide key
connections between the central and provincial government capitals;
and funding to support Reconstruction Opportunity Zones ($5
million) in designated economically isolated areas and create
employment alternatives.
In addition to the ESF funding, the request includes:
! $162.4 million to support Diplomatic and Consular Programs (DCP)
in Afghanistan as part of a worldwide security upgrade in the Global
War on Terror. Allocations of this request would go for security
operations ($38 million); secure facilities ($80 million); other
agencies’ unbudgeted security costs ($36.5 million); and fully
armored vehicles ($7.9 million);
! $160 million to support embassy security, construction and
maintenance, mainly housing for U.S. mission staff in Afghanistan;
! $5 million in Non-proliferation, Anti-terrorism, Demining and
Related Programs (NADR) to support the Afghan leadership through
the Presidential Protection Service;
! $53 million for Contributions to International Organizations (CIO)
to pay U.S. assessments toward the U.N. Assistance Mission in
Afghanistan (UNAMA) and the U.N. Assistance Mission in Iraq
(UNAMI), both of which are paid for out of the U.N. regular budget
(and the United States’ obligation is 22 percent); and
! $16 million for FY2008 security requirements for USAID operations
in Afghanistan. This item was part of the FY2008 emergency
supplemental request.

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Table 4. Afghanistan Aid, FY2008
(millions of U.S. dollars)
Regular
Original
Amended
Total
FY2008
FY2008
FY2008
FY2008
Activity
budget
Supp
Supp
Supp
(appropriation account)a
Request
Request
Request
Request
Infrastructure aid (ESF)
693.0
339.0
495.0
495.0
U.S. mission security (DCP)
—
—
162.4
162.4
U.S. Embassy Security,
—
—
160.0
160.0
Construction, Maintenance
USAID mission security (OE)
—
16.0
—
16.0
Nonproliferation (NADR)
21.7
—
5.0
5.0
Narcotics/ Law Enforce. (INCLE)
274.8
—
—
—
Health (CSH)
65.9
—
—
—
Military Education (IMET)
1.7
—
—
—
Total
989.5
355.0
822.4
838.4
Source: FY2007 and FY2008 budget materials.
Notes: Data in this table reflect ongoing and FY2008 proposed funding for programs the same as or
similar to those requested in the FY2007 supplemental. The total line does not represent total aid or
mission operations for Afghanistan. Excluded from this table is proposed funding requested for FBI
operations in Afghanistan. P.L. 480 - Title II emergency food aid funds are included in a total
appropriation of $200 million available for missions in Afghanistan and parts of Africa.
Acronyms: ESF - Economic Support Fund, MRA-Migration and Refugee Assistance, DCP-
Diplomatic and Consular Programs, OE-Operating Expenses, NADR-Nonproliferation, Anti-terrorism,
Demining, and Related Programs, and INCLE-International Narcotics Control and Law Enforcement,
IDFA-International Disaster and Famine Assistance, CSH - Child Survival and Health, and IMET -
International Military Education and Training.
Pakistan8
The Federally Administered Tribal Areas (FATA) are considered strategically
important to combating terrorism while continued terrorist and militant activities in
the frontier region remain a threat to U.S interests in Afghanistan. The Government
of Pakistan has developed a FATA Sustainable Development Plan to be implemented
over 10 years. In support of this plan, the State Department and the U.S. Agency for
International Development have put forward a five-year $750 million development
assistance strategy for the frontier region (a pledge of $150 million per year) that
8 Prepared by Rhoda Margesson, Specialist in International Humanitarian Policy.

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CRS-11
complements the Government of Pakistan’s plan.9 The Frontier Strategy objectives
are to improve economic and social conditions in the Federally Administered Tribal
Areas in order to address the region’s use by terrorists and militants. Programs
would include governance, health and education services, and economic
development, such as agricultural productivity, infrastructure rehabilitation, credit,
and vocational training.
On November 4, 2007, President Musharraf imposed emergency rule and
suspended Pakistan’s constitution. In light of these events, the Administration
announced a review of U.S. assistance.
The FY2008 Original and Amended Supplemental Request. The
Administration did not request funding for Pakistan in its original FY2008
emergency supplemental request in February 2007. The FY2008 regular budget
request asked for $90 million for the frontier region development plan, which left a
gap of $60 million in the overall U.S. pledge of $150 million. The FY2008
additional supplemental request for $60 million in Economic Support Fund would
address this funding gap and meet the full pledge as follows: Investment in
governance and planning ($13 million); health and education programs ($15 million);
and local economic development ($32 million). The $60 million emergency
supplemental request is in addition to the $785 million requested in the regular
FY2008 budget from various accounts.
Sudan10
The Administration seeks a total of $868.6 million in emergency supplemental
funds for Sudan, most of which would be for humanitarian and peacekeeping support
in the Darfur region. No funding was requested for Sudan in the original FY2008
emergency supplemental, but the country is scheduled to receive $321 million for
assistance in the regular FY2008 budget.
FY2008 Additional Emergency Supplemental Request. Major
elements of the FY2008 additional emergency supplemental include:
! A $70 million request in ESF funds for Sudan to support upcoming
national elections that are to take place before July 2009, according
to the 2005 Comprehensive Peace Agreement between north and
south Sudan. Part of the effort will focus on strengthening political
parties, drafting the electoral law, supporting an electoral
commission, promoting civic education, and supporting election-
related institutions and processes. The United Nations estimates that
the elections could cost nearly $400 million because of the logistical
hurdles in conducting elections in a post-conflict environment;
9 For more detail on Pakistan, see CRS Report RL33498, Pakistan-U.S. Relations.
10 Prepared by Rhoda Margesson, Specialist in International Humanitarian Policy.

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CRS-12
! $75 million for additional food assistance (P.L. 480, Title II) in the
Darfur region of Sudan and for those displaced in Eastern Chad; and
! $723.6 million in support of the U.N. Assistance Mission in Darfur
(UNAMID). The U.N. assessment for the Darfur peacekeeping
force is estimated to be $3.4 billion in 2008. (The U.S. share will be
approximately $884 million.) The President has already requested
$391.1 million for the existing U.N. mission in Sudan (UNMIS), but
based on the 2007-2008 U.N. peacekeeping budget, the U.S. share
will be $280 million in FY2008. This leaves approximately $160
million for UNAMID, which represents a shortfall of $724 million.
Table 5. Sudan Emergency Supplemental, FY2008
(millions of U.S. dollars)
FY2008
FY2008
FY2008
FY2008
Original
Amended
Supp
Activity
Regular
Supp
Supp
Request
(appropriation account)a
Request
Request
Request
Total
PL480, Title II food aid
—
—
75.0
75.0
AMIS (PKO)
41.4
—
—
—
U.N. peacekeeping mission/Darfur
—
—
723.6
723.6
(CIPA)
Economic Support Fund (ESF)
245.9
—
70.0
70.0
Foreign Military Financing (FMF)
0.1
—
—
—
Military Education/Training (IMET)
0.3
—
—
—
Narcotics Control/Law Enforce.
24.0
—
—
—
(INCLE)
Nonprolif./Anti-terrorism/Demining
4.0
—
—
—
Total
$315.7
$0.0
$868.6
$868.6
Source: FY2007and FY2008 budget materials. In addition, as part of the FY2007 supplemental
request, the Administration requested transfer authority from CIPA to PKO.
Notes: Data in this table reflect ongoing funding for programs similar to those requested in the
FY2006 and FY2007 supplementals. The Total line does not represent total aid or mission
operations for Sudan. FY2007 ERMA funds include a total appropriation of $30 million available
for places such as Somalia, Chad, West Bank/Gaza, Iraq and Sri Lanka. The funds could also support
planning for Darfur refugee flows to Chad. PKO funds include an additional appropriation of $128
million to support anticipated peacekeeping in Africa, including Darfur.
Acronyms: IDFA-International Disaster and Famine Assistance, MRA-Migration and Refugee
Assistance, AMIS-African Union Mission, PKO-Peacekeeping Operations, CIPA-Contributions to
International Peacekeeping Activities, DCP-Diplomatic and Consular Programs, ESF-Economic
Support Fund.

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CRS-13
Mexico and Central America11
The emergency supplemental request includes $550 million to meet the first
installment of a reportedly $1 billion-plus anti-narcotics package for the Mexico and
Central America Security Initiative. Composed entirely of funds from the
International Narcotics Control and Law Enforcement Account (INCLE), the
initiative is to address criminal gang and drug trafficking activities and to support
improved justice systems and rule of law programs. Mexico would see $500 million
of the initial package for border security technology and transport for law
enforcement and to improve judicial and prison systems. Countries in Central
America would receive $50 million to improve border security, deter the smuggling
of drugs, arms, and persons, and improve the justice sector and gang prevention
programs. Regular funding for Mexico totaled $65.4 million in FY2007 and a
requested $45.1 million in FY2008. The countries of Central America received
$134.8 million in FY2007 and are proposed to receive $146.5 million in FY2008.
West Bank and Gaza12
The FY2008 emergency supplemental request includes $375 million to support
the Palestinian Authority (PA) government. The focus is on rule of law, economic
growth, and governance issues. The supplemental request is in addition to $77
million requested in the regular FY2008 budget and comes after a new PA
government was formed without Hamas control. Consisting largely of ESF funds,
$40 million is to address governance issues, $20 million would improve health care
services, $130 million is to support job creation, infrastructure, trade and investment,
and agriculture programs, and $150 million would consist of budget support in the
form of a cash transfer. An additional $25 million in INCLE funds would be used
to train and equip the Presidential Guards and National Security Force, and $35
million in MRA funds would be for Palestinian refugees in the West Bank and Gaza
and in refugee camps in Lebanon.
North Korea13
The Administration proposes $106 million in ESF funds for North Korea as a
result of commitments made as part of the Six Party Talks. In February 2007, North
Korea agreed to shut down and eventually abandon the Yongbyon nuclear facility,
to allow International Atomic Energy Agency monitors back in the country and to
disable all existing nuclear facilities. In return, the United States and other Six Party
Talks members (South Korea, China, Russia and Japan) agreed to provide 1 million
metric tons of heavy fuel oil, or the equivalent in other assistance, as North Korea
11 Prepared by Connie Veillette, Specialist in Foreign Assistance. For more information, see
CRS Report RL34215, Mexico’s Drug Cartels, and CRS Report RL32724 Mexico-U.S.
Relations: Issues for Congress.
12 For more information, see CRS Report RL34074 The Palestinian Territories: Background
and U.S. Relations, and CRS Report RS22370 U.S. Foreign Assistance to the Palestinians.
13 For more information, see CRS Report RL33590 North Korea’s Nuclear Weapons
Development and Diplomacy.

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CRS-14
meets its commitments. The U.S. share is one-quarter of the 1 million metric tons,
or equivalent assistance. The total cost for the U.S. commitment is $131 million.
The President authorized $25 million in FY2007 supplemental funds, leaving $106
million that would be provided with the FY2008 supplemental funding.
Other Humanitarian Assistance14
Although proposed aid packages for specific countries anticipate and identify
some humanitarian needs, the Administration also seeks funding for what its claims
are unmet or unforeseen humanitarian needs. Total funding is provided by account
with details on countries and activities:
! $350 million in additional P.L. 480 - Title II assistance to meet
emergency food needs in the Darfur region of Sudan ($75 million)
and elsewhere worldwide, including places such as southern Africa
($135 million), and the Horn of Africa and Kenya ($110 million);
! Contingency funding ($30 million) is requested for possible needs
elsewhere, including West Bank/Gaza and South Asia;
! $80 million for International Disaster and Famine Assistance (IDFA)
to support humanitarian assistance to internally displaced
populations in Iraq and their host communities; and
! $230 million for Migration and Refugee Assistance (MRA) for
anticipated and unanticipated refugee and migration emergencies.
$195 million is requested for humanitarian assistance to Iraqi
refugees. (This is an increase of $160 million for Iraqi refugees; $35
million was requested in the earlier version of the FY2008
emergency supplemental request.) In addition, $35 million is
requested for the emergency needs of Palestinian refugees in Gaza
and West Bank, and for Palestinian refugee camps in Lebanon.
14 Prepared by Rhoda Margesson, Specialist in International Humanitarian Policy.

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CRS-15
Appendix A. FY2008 Emergency Supplemental Request, State Department and Foreign
Operations
(millions of U.S. dollars)
FY2008 Base
FY2008 Original
FY2008 Second
FY08 Supp.
FY08 Supp.
FY08 Supp.
Account
Request
Supp. Request
Supp. Request
FY2008 Total
House
Senate
Final
State Department
Diplomatic & Consular Programs
4,942.7
1,881.6
401.4
2,283.0
Embassy Security, Construction, Maintenance
792.5
—
160.0
160.0
Contributions to International Organizations
1,354.4
53.0
—
53.0
Contributions to International Peacekeeping
1,107.0
—
723.6
723.6
Total, State Department
8,196.6
1,934.6
1,285.0
3,219.6
Foreign Operations
Economic Support Fund
3,319.6
1,111.0
1,106.0
2,217.0
International Narcotics Control/Law Enforcement
634.6
159.0
575.0
734.0
Nonproliferation, Anti-Terrorism, Demining
464.0
—
5.0
5.0
Migration and Refugee Assistance
773.5
35.0
195.0
230.0
International Disaster & Famine Relief
297.3
—
80.0
80.0
USAID Operating Expenses
609.0
61.8
—
61.8
Total, Foreign Operations
6,098.0
1,366.8
1,961.0
3,327.8
Total, State and Foreign Operations
7,205.0
1,366.8
2,684.6
4,051.4
P.L. 480 Food Aid
1,319.4
—
350.0
350.0
Notes: Table does not include all accounts in the State Department, Foreign Operations, and Related Programs appropriations bills. Accounts listed above are those for which emergency
supplemental funds are requested

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