Order Code RL34278
FY2008 Supplemental Appropriations for
Global War on Terror Military Operations,
International Affairs, and Other Purposes
Updated December 19, 2007
Stephen Daggett, Coordinator, Susan B. Epstein, Rhoda
Margesson, Curt Tarnoff, Pat Towell, and Connie Veillette
Foreign Affairs, Defense, and Trade Division
FY2008 Supplemental Appropriations for Global War on
Terror Military Operations, International Affairs, and
Other Purposes
Summary
The Administration has requested a total of $196.5 billion in emergency
supplemental appropriations for FY2008, of which $189.3 billion is for military
operations in Iraq, Afghanistan, and elsewhere, $6.9 billion is for international
affairs, and $325 million is for other programs. To date, Congress has appropriated
$16.8 billion requested for Mine Resistant Ambush Protected (MRAP) vehicles, but
much of the remainder has been caught up in debate over Iraq policy.
On December 17, the House approved an omnibus FY2008 appropriations bill,
H.R. 2764, that provides $485 billion in regular and emergency appropriations for
non-defense programs, including international affairs, plus $31 billion in emergency
supplemental defense appropriations for Operation Enduring Freedom (OEF). On
December 18, the Senate took up the bill and, by a vote of 70-25, adopted an
amendment by Senator McConnell to provide $70 billion in emergency supplemental
defense appropriations without limits on where the money can be used. The House
is expected to consider to amended bill on December 19.
If the House approves and the President signs a bill with $70 billion for defense
operations, the Defense Department would be able to sustain current operations in
Iraq, Afghanistan, and elsewhere without additional funding until about the end of
July 2008. It would leave unresolved, however, the status of $100 billion in funding
requested for defense programs, mainly for repair, replacement, and upgrades of
equipment. The omnibus appropriations bill also includes about $2.7 billion in
emergency supplemental appropriations for international affairs.
This CRS report tracks congressional action on legislation to provide FY2008
supplemental appropriations for military operations, international affairs, and related
purposes. It also reviews briefly the availability of funds to carry on Army and
Marine Corps operations in advance of supplemental appropriations. This report will
be updated as congressional action proceeds.
Contents
Most Recent Developments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
How Long Omnibus Appropriations Would Extend Army and Marine Corps
Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Supplemental Funding for International Affairs in the Omnibus
Appropriations Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
FY2008 Defense Supplemental/Bridge Fund Alternatives . . . . . . . . . . . . . . . . . . 4
Overview of FY2008 Supplemental Defense, International Affairs, and Other
Funding Requests . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Emergency Spending Designation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Possible Additional Supplemental Appropriations . . . . . . . . . . . . . . . 10
Congressional Action on Supplemental Appropriations to Date . . . . . 10
Highlights of the FY2008 Defense Supplemental Request . . . . . . . . . . . . . . . . . 10
Why War-Related Supplemental Requests Have Grown . . . . . . . . . . . . . . . 11
Selected Elements of the Amended Defense Request . . . . . . . . . . . . . . . . . 14
International Affairs Emergency Supplemental . . . . . . . . . . . . . . . . . . . . . . . . . . 15
State Department Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
Foreign Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
Iraq Reconstruction Assistance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
Afghanistan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
The FY2008 Original and Amended Emergency Supplemental
Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
Pakistan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
The FY2008 Original and Amended Supplemental Request . . . . . . . . 26
Sudan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
FY2008 Additional Emergency Supplemental Request . . . . . . . . . . . 26
Mexico and Central America . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
West Bank and Gaza . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
North Korea . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
Other Humanitarian Assistance . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
Appendix A. FY2008 Emergency Supplemental Request, State Department and
Foreign Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
List of Tables
Table 1. FY2008 Supplemental Defense Appropriations Proposals . . . . . . . . . . . 5
Table 2. Initial and Amended FY2008 Supplemental Defense,International
Affairs and Other Funding Requests* . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
Table 3. Regular and Supplemental/Bridge Appropriations for the Department
of Defense, FY2000 to FY2008 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
Table 4. War-Related Supplemental Appropriations/Bridge Funds by
Account, FY2005-FY2008 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
Table 5. War-Related Supplemental Appropriations/Bridge Funds by
Functional Category, FY2006-FY2008 . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
Table 6. FY2008 Emergency Supplemental State Department Request . . . . . . . 17
Table 7. FY2008 Foreign Operations Emergency Supplemental Request . . . . . . 19
Table 8. FY2008 Emergency Supplemental Appropriations for Iraq
Reconstruction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
Table 9. Afghanistan Aid, FY2008 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
Table 10. Sudan Emergency Supplemental, FY2008 . . . . . . . . . . . . . . . . . . . . . 27
FY2008 Supplemental Appropriations for
Global War on Terror Military Operations,
International Affairs, and Other Purposes
Most Recent Developments
On December 17, the House approved an omnibus FY2008 appropriations bill,
H.R. 2764, that provides $485 billion in regular and emergency appropriations for
non-defense programs, including international affairs, and that includes an additional
$31 billion in emergency defense appropriations for Operation Enduring Freedom
(OEF). On December 18, the Senate took up the bill and, by a vote of 70-25,
adopted an amendment by Senator McConnell to provide $70 billion in emergency
supplemental defense appropriations without limits on where the money can be used.
The House is expected to consider the amended bill on December 19. If Congress
approves, and the President signs, an omnibus appropriations bill with $70 billion for
defense, the Defense Department may be able to sustain operations in Iraq,
Afghanistan, and elsewhere without additional funding until about the end of July
2008.
The omnibus appropriations bill does not include provisions attached to earlier
legislation requiring the withdrawal of U.S. forces from Iraq. On November 14, the
House approved a bill, H.R. 4156, that would appropriate $50 billion for U.S.
military operations in Iraq, Afghanistan, and elsewhere in FY2008, with enough
money to in Army and Marine Corps operating accounts to sustain military
operations in Iraq and elsewhere through April 2008. It also required the President
to commence the withdrawal of U.S. forces from Iraq within 30 days of enactment
of the legislation and to provide within 60 days a plan for withdrawing most troops
from Iraq by December 15, 2008; limited the mission of remaining U.S. forces in Iraq
to force protection, training, and pursuit of international terrorists; prohibited
deployment of units that are not fully trained and equipped; and extended
prohibitions on torture to all U.S. government agencies.
On November 16, by a vote of 53-45, with 60 votes required, the Senate refused
to close debate on a motion to proceed to consideration of H.R. 4156 as passed by the
House. The Senate also rejected, by a vote of 45-53, a motion to proceed to
consideration of H.R. 2340, a substitute offered by Senator McConnell, to provide
$70 billion for the Defense Department without requiring withdrawal from Iraq.
Meanwhile, in a November 15 press Pentagon press conference, Secretary of
Defense Robert Gates warned that the Army and Marine Corps will have to begin
implementing steps to limit operations unless Congress approves additional funding
CRS-2
soon.1 Without additional money, he said, the Army, will have to cease operations
at all Army bases by mid-February 2008, which would require furloughs of about
100,000 government employees and a like number of contractor personnel. Plans
would have to begin to be implemented in mid-December, he said. On November
20, the Defense Department announced that it was transferring $4.5 billion of funds
to the Army and to the Joint IED Defeat Organization to extend their operations. The
Army, DOD said, will still only be able to operate with available funds, including the
transfer, February 23.
Earlier, on November 8, the House and Senate approved a conference agreement
on the FY2008 defense appropriations bill, H.R. 3222.2 The President signed the bill
into law, P.L. 110-116, on November 13. The bill provides $460 billion for baseline
Defense Department activities in FY2008 and an additional $11.6 billion for Mine
Resistant Ambush Protected (MRAP) vehicles. Except for the MRAP money,
however, the bill does not include funding to cover additional costs associated with
ongoing military operations in Iraq, Afghanistan, and elsewhere. Congress also
provided $5.2 billion for MRAPs in the first FY2008 continuing resolution (H.J.Res.
52, P.L. 110-92), that the President signed on September 29. The FY2008 Defense
Appropriations Act also provides $27.4 billion for Army Operation and Maintenance,
which may be used to finance both peacetime activities and military operations
abroad.
On October 22, the White House sent Congress an amendment to the FY2008
budget requesting an additional $45.9 billion for military operations, economic and
reconstruction assistance, embassy security, and other activities mainly related to
ongoing conflicts in Iraq, Afghanistan, and elsewhere. The request included $42.3
billion for the Department of Defense for military operations and $3.6 billion for
international affairs programs.3 These requests were in addition to amounts that the
Administration requested for similar purposes in its original FY2008 budget,
submitted in February 2007. In all, the Administration has requested $196.5 billion
in supplemental appropriations for FY2008, including $189.3 billion for the Defense
Department for overseas military operations and related activities, $6.9 for
international affairs programs, and $325 million for counter-terrorism activities of
some other agencies.
1 Department of Defense, “DoD News Briefing with Secretary of Defense Gates and
Chairman of the Joint Chiefs of Staff Adm. Mullen from the Pentagon Briefing Room,
Arlington, Va.,†November 15, 2007 at [http://www.defenselink.mil/transcripts
/transcript.aspx?transcriptid=4089].
2 See CRS Report RL33999, Defense: FY2008 Authorization and Appropriations, by Pat
Towell, Stephen Daggett, and Amy Belasco.
3 For the overall request see White House Office of Management and Budget, “FY 2008
Emergency Budget Amendments: Operation Iraqi Freedom, Operation Enduring Freedom,
and Selected Other International Activities,†October 22, 2007, on line at [http://www
.whitehouse.gov/omb/budget/amendments/amendment_10_22_07.pdf]. For an overview of
the defense request, see Department of Defense, FY2008 Global War on Terror Amendment,
October 2007, on line at [http://www.defenselink.mil/comptroller/defbudget
/fy2008/Supplemental/FY2008_October_Global_War_On_Terror_Request.pdf].
CRS-3
How Long Omnibus Appropriations Would Extend
Army and Marine Corps Operations4
The House-passed omnibus appropriations bill would provide $31 billion for
Operation Enduring Freedom. While the money in the bill is not available directly
for Iraq (except for $1.6 billion for force protection equipment) or for day-to-day
peacetime military activities, it is, to some extent, "fungible," and it would indirectly
extend the amount of time for which available funds would finance operations in
Iraq. The money appropriated for OEF would substitute for funds that would
otherwise have to come from amounts in the regular FY2008 Defense Appropriations
Act (P.L. 110-116) or from transfers of funds from other accounts. To the extent the
additional OEF money in the omnibus frees up other money, the other amounts can
be used to finance day-to-day peacetime operations and also operations in Iraq. CRS
estimates that funding in the regular FY2008 Defense Appropriations Act, plus
planned transfers of funds to the Army, would finance day-to-day peacetime military
activities and operations in Iraq until about the end of March or the beginning of
April if OEF operations are financed from funds in the omnibus appropriations act.5
The $70 billion substitute that the Senate approved on December 18 would
sustain military operations longer. The amendment includes $35.2 billion for Army
operation and maintenance and $4.0 billion for Marine Corps operation and
maintenance. If this version is approved by the House and signed into law, it would
increase FY2008 Army O&M funding from $27.4 billion in the regular FY2008
Defense Appropriations Act to $62. 5 billion. At a monthly obligation rate of slightly
under $6.5 billion, which is what the Army now assumes, this would provide funding
for 9.7 months of FY2008, or until the end of July, 2008
4 For a full discussion of how long available funds will sustain operations in FY2008, and
of alternatives for extending operations, see CRS Report RL34275, How Long Can the
Defense Department Finance FY2008 Operations in Advance of Supplemental
Appropriations?, by Amy Belasco, Stephen Daggett, and Pat Towell.
5 The Army projects that O&M money will last for 21 weeks of the fiscal year, or until
February 23, 2008 at a weekly obligation rate of $1.5 billion. The House-passed omnibus
appropriations bill would provide $17.8 billion for Army operation and maintenance to
cover the full year costs of Army operations in Afghanistan and elsewhere, or about $342
million per week ($17.8 billion ÷ 52 weeks = $342 million per week) . That would, in turn,
reduce requirements for funding from other sources to $1.158 billion power per week to
finance peacetime activities and Iraq operations ($1.5 billion - $342 million = $1.158 billion
per week). The FY2008 Defense Appropriations Act provides $27.4 billion for Army
operation and maintenance (O&M). In addition, the Defense Department plans, subject to
approval by the four congressional defense committees, to transfer $4.1 billion of other
FY2008 appropriated funds to the Army, for a total of $31.5 billion in Army O&M. But at
a weekly rate of $1.158 billion, the available funds would sustain operations for more than
27 weeks or until about April 8, 2008. This is a rough calculation, however. One possible
problem with it is that the Army may not be able to obligate funds for Afghanistan fast
enough to lower the average obligation rate for other operations to $1.158 billion a month.
If so, the amount of time the OEF money would extend Army operations elsewhere would
be somewhat less than six weeks. An alternative method of estimating the impact of the $31
billion supplemental reaches a similar conclusion based on the rate at which funds were
obligated last year. See CRS Report RL34275 for a discussion.
CRS-4
Supplemental Funding for International Affairs in
the Omnibus Appropriations Bill
The FY2008 state department, foreign operations appropriations bill is one of
11 regular FY2008 appropriations bills that are incorporated into the omnibus
appropriations bill, H.R. 2764. The bill provides not only regular FY2008
appropriations for international affairs, but also emergency supplemental funds,
including part of the $6.9 billion that the Administration has requested.
In all, emergency supplemental funding for international affairs in the House-
passed omnibus bill totals $2.385 billion, of which $1.262 billion is for State
Department operations and $1.123 billion is for foreign operation. The Senate did
not amend the House-passed amounts. (For a discussion of FY2008 supplemental
appropriations for international affairs, see CRS Report RL34276, FY2008
Emergency Supplemental Appropriations for International Affairs, by Susan Epstein,
Rhoda Margesson, Curt Tarnoff, and Connie Veillette.)
Supplemental funds for State Department accounts include
! $781.6 million for Diplomatic and Consular Programs — $575.0
million for operations and $206.6 million for worldwide security
protection;
! $468.0 million for Contributions to International Peacekeeping;
! $12.0 million for international broadcasting.
Supplemental funds for foreign operations accounts include
! $115 million for Global Health & Child Survival;
! $110 million for International Disaster Assistance;
! $20.8 million for USAID Operating Expenses;
! $542.6 million for Economic Support Fund;
! $200 million for Migration and Refugee Assistance;
! $100 million for Foreign Military Financing; and
! $35 million for Peacekeeping Operations.
For a summary table that compares funding in the House bill to the request, see
Appendix A. For a discussion of funding for specific programs compared to the
request, see “International Affairs Emergency Supplemental†section, below.
FY2008 Defense Supplemental/
Bridge Fund Alternatives
Table 1 provides a summary of the main FY2008 defense supplemental
appropriations or “bridge fund†proposals, including the Administration request, the
November 14, House-passed bridge fund, H.R. 4156; the December 17 House-passed
Operation Enduring Freedom supplemental in the FY2008 omnibus appropriations
CRS-5
bill, H.R. 2763; and the Senate-passed McConnell $70 billion bridge fund as
approved in the Senate on December 18.
Table 1. FY2008 Supplemental Defense Appropriations Proposals
(amounts in millions of dollars)
House-Passed
Operation Enduring
Senate-Passed
House-Passed
Freedom Emergency
McConnell
Amended
Bridge Fund
Appropriations
Substitute
Request
H.R. 4156
H.R. 2764 Division L H.R. 2764 Division L
Percent
Percent
Percent
of
of
of
Amount
Amount
Request
Amount
Request
Amount
Request
Military Personnel
17,839.5
1,003.4
5.6%
330.5
1.9%
1,072.2
6.0%
Army
12,317.6
713.7
5.8%
311.5
2.5%
782.5
6.4%
Navy
791.7
95.6
12.1%
-- --
95.6
12.1%
Marine Corps
1,790.0
56.1
3.1%
19.1
1.1%
56.1
3.1%
Air Force
1,415.9
138.0
9.7%
--
--
138.0
9.7%
Army
Reserve
299.2
-- -- -- -- -- --
Navy
Reserve
70.0
-- -- -- -- -- --
Marine Corps Reserve
15.4
--
--
--
--
--
--
Air Force Reserve
3.0
--
--
--
--
--
--
Army National Guard
1,136.7
--
--
--
--
--
--
Operation and Maintenance
84,310.4
37,399.2
44.4%
21,441.7
25.4%
50,233.3
59.6%
Army
54,933.4
27,429.5
49.9%
17,798.0
32.4%
35,152.4
64.0%
Navy
6,252.7
2,071.6
33.1%
350.0
5.6%
3,664.0
58.6%
Marine Corps
4,674.7
2,429.3
52.0%
2,010.7
43.0%
3,965.6
84.8%
Air Force
10,809.7
3,582.6
33.1%
800.0
7.4%
4,778.0
44.2%
Defense-Wide
6,402.8
1,330.5
20.8%
483.0
7.5%
2,117.0
33.1%
Inspector
General
4.4
-- -- -- -- -- --
Army Reserve
196.7
61.2
31.1%
--
--
77.7
39.5%
Navy Reserve
83.4
47.5
56.9%
--
--
41.7
49.9%
Marine Corps Reserve
68.2
26.2
38.4%
--
--
46.2
67.7%
Air Force Reserve
24.3
8.1
33.3%
--
--
12.1
50.0%
Army National Guard
757.0
378.4
50.0%
--
--
327.0
43.2%
Air National Guard
103.3
34.4
33.3%
--
--
51.6
50.0%
Drug Interdiction &
257.6
-- -- --
192.6
74.8%
Counter-Drug Activities
Afghanistan Security Forces
2,700.0
500.0
18.5%
2,530.0
93.7%
1,350.0
50.0%
Fund
Iraq Security Forces Fund
3,000.0
500.0
16.7%
-- --
1,500.0
50.0%
Iraq Freedom Fund
207.5
3,168.0
1526.7%
-- --
3,747.3
1805.9%
Joint IED Defeat Fund
4,269.0
1,638.5
38.4%
4,269.0
100.0%
4,269.0
100.0%
Procurement
67,321.4
5,141.8
7.6%
2,345.0
3.5%
6,059.9
9.0%
Army
Aircraft
2,125.5
302.2
14.2%
-- --
943.6
44.4%
Missile
641.8
-- -- -- -- -- --
Weapons & Tracked
7,289.7
1,574.2
21.6%
1,176.0
16.1%
1,429.4
19.6%
Combat Vehicles
Ammunition
513.6
154.0
30.0%
-- 154.0
30.0%
Other Procurement Army
34,931.6
1,976.1
5.7%
524.8
1.5%
2,027.8
5.8%
Navy
CRS-6
Aircraft
3,908.5
25.3
0.6%
-- --
48.5
1.2%
Missile
318.3
-- -- -- -- -- --
Ammunition Navy &
609.9
-- -- -- --
304.9
50.0%
Marine Corps
Other Procurement Navy
1,870.6
88.3
4.7%
--
--
91.5
4.9%
Marine Corps
5,519.7
729.2
13.2%
644.2
11.7%
703.3
12.7%
Air Force
Aircraft
3,946.2
147.8
3.7%
-- --
51.4
1.3%
Missile
1.8
-- -- -- -- -- --
Ammunition
104.4
-- -- -- -- -- --
Other Procurement Air
4,621.7
42.1
0.9%
-- --
30.7
0.7%
Force
Defense-Wide
768.2
102.6
13.4%
-- --
274.7
35.8%
Rapid Acquisition Fund
150.0
-- -- -- -- -- --
Defense Health Program
1,137.4
649.0
57.1%
114.6
10.1%
575.7
50.6%
Research, Development,
3,872.2
-- -- -- -- -- --
Test, & Evaluation
Military Construction
2,426.8
-- -- -- -- -- --
Family Housing
11.8
-- -- -- -- -- --
Revolving & Management
1,962.8
-- -- -- --
1,000.0
50.9%
Funds
Grand Total in Bill
189,316.4
50,000.0
26.4%
31,030.7
16.4%
70,000.0
37.0%
Sources: Request from Department of Defense, Fiscal Year (FY) 2008 Amendment Global War on Terror Request:
Exhibits for FY2008, October 2007. Bridge fund amounts by CRS from text of H.R. 4156 as passed by the House; H.R.
2764 from House Rules Committee; McConnell substitute from Senate Amendment 3874 of December 18, 2007.
On Iraq and related policy matters, H.R. 4156 contained the following
provisions:
! States the sense of Congress that the war in Iraq should end as
quickly and safely as possible and troops brought home;
! Extends prohibitions on the use of torture by Defense Department
personnel to other government agencies;
! Prohibits the use of funds in the bill to deploy any unit abroad unless
the President certifies 15 days in advance that the unit is “fully
mission capable;â€
! Requires the President within 30 days to begin an immediate and
orderly redeployment of U.S. forces from Iraq;
! States that the withdrawal from Iraq should be accompanied by a
comprehensive strategy to work with neighbors and the international
community to bring stability to Iraq;
! Sets December 15, 2008, as a goal for completing the transition of
U.S. armed forces to a limited presence, though the date is not a firm
deadline;
CRS-7
! Restricts missions after the transition to protecting U.S. facilities,
armed forces, and civilians; providing limited training and related
assistance to Iraqi security forces; and engaging in targeted counter-
terrorism operations against al Qaeda and other terrorist
organizations in Iraq;
! Requires quarterly reports beginning February 1, 2008, on plans to
achieve the transition of the U.S. mission in Iraq;
! Says that congressional consideration of additional funding shall not
begin until the first quarterly report on the transition of U.S. forces
is submitted;
! Requires by February 15, 2008, a comprehensive regional stability
plan for the Middle East;
! Requires additional quarterly reports, beginning on January 15, 2008
and continuing through the remainder of the fiscal year, that would
establish performance measures for military and political stability in
Iraq and specify a timetable for achieving the goals.
If Congress approves the $70 billion McConnell substitute, debate over Iraq
policy will not appear to be tied to any essential funding bill until the middle of 2008.
The House and Senate would normally begin action on FY2009 defense authorization
and appropriations bills by May of 2008 – well before funding for Army and Marine
Corps operations provided in the omnibus appropriations bill would run out.
Overview of FY2008 Supplemental Defense,
International Affairs, and Other Funding Requests
Taken together, the Administration has requested a total of $196.5 billion in
“additional†or “supplemental†appropriations for military operations, international
affairs, and other activities in FY2008. Most of the money was requested in the
Administration’s original budget for FY2008, submitted in February 2007. The
request included $141.7 billion for military operations abroad, $3.3 billion in
emergency funds for international affairs programs, and $325 million in emergency
funding for other agencies, including the Department of Energy for counter-
proliferation programs, the Coast Guard, and the Department of Justice.
Subsequently, on July 31, the White House sent Congress a budget amendment
requesting $5.3 billion for Mine Resistant Ambush Protected (MRAP) vehicle
procurement and deployment. And on October 22, the White House sent Congress
a budget amendment requesting an additional $45.9 billion in FY2008 for military
operations abroad and for a variety of international affairs programs. In all, the
Administration has now asked for a total of $189.3 billion in FY2008 for military
operations, $6.9 billion in supplemental funding for a variety of international affairs
programs, and $325 million for other agencies. Table 2 provides a summary of
supplemental requests in February, July, and October.
CRS-8
Table 2. Initial and Amended FY2008 Supplemental Defense,
International Affairs and Other Funding Requests*
(amounts in millions of dollars)
Initial
July
February
MRAP
October
Total
Request Amendment Amendment
Request
Department of Defense (Including Other Agency Intelligence Amounts)
Military Personnel
17,070.3
-- 700.5
17,770.8
Operation and Maintenance
71,415.3
748.0
8,729.5
80,892.8
Procurement
32,880.3
4,562.0
26,598.5
64,040.8
Research and Development
1,957.3
30.0
603.3
2,590.6
Military Construction
907.9
-- 955.6
1,863.5
Iraq Freedom Fund/Joint IED Defeat
4,108.0
--
369.0
4,477.0
Defense Health Program
1,023.8
--
--
1,023.8
Iraq and Afghan Security Forces
4,700.0
--
1,000.0
5,700.0
Working Capital Fund
1,681.4
--
--
1,681.4
Subtotal Department of Defense
135,744.3
5,340.0
38,956.4
180,040.7
Non-DoD Classified & Additional Funds
5,920.6
--
3,355.0
9,275.6
Total Defense-Related
141,664.9
5,340.0
42,311.4
189,316.3
International Affairs
Department of Agriculture
P.L. 480 Food Aid
--
--
350.0
350.0
Department of State and International Affairs
Diplomatic and Consular Programs
1,881.6
--
401.4
2,283.0
Embassy Security, Construction, & Maintenance
--
--
160.0
160.0
Contributions to International Organizations
53.0
--
--
53.0
Contributions for International Peacekeeping
--
--
723.6
723.6
Migration and Refugee Assistance
35.0
--
195.0
230.0
International Narcotics Control & Law
Enforcement [details in brackets are non-additive]
159.0
575.0
734.0
[Iraq Criminal Justice Programs]
[159.0]
--
--
[159.0]
[Mexico Counternarcotics and Law
Enforcement]
-- --
[500.0]
[500.0]
[Central America Counternarcotics and Law
Enforcement]
-- --
[50.0]
[50.0]
[Palestinian Authority Security Capabilities
--
--
[25.0]
[25.0]
Economic Support Fund [details in brackets are
non-additive]
1,111.0
1,106.0
2,217.0
[Iraq Reconstruction]
[772.0]
--
--
[772.0]
[Afghanistan Reconstruction]
[339.0]
--
[495.0]
[834.0]
[Iraq Private Sector Assistance]
--
--
[25.0]
[25.0]
[Pakistan Tribal Areas Plan]
--
--
[60.0]
[60.0]
[North Korea Assistance]
--
--
[106.0]
[106.0]
[Palestinian Authority]
--
--
[350.0]
[350.0]
[Sudan Elections]
--
--
[70.0]
[70.0]
Nonproliferation, Anti-Terrorism, Demining, and
Related Programs
--
--
5.0
5.0
International Disaster and Famine Assistance
--
--
80.0
80.0
AID Operating Expenses, Security
61.8
--
--
61.8
Total, International Affairs
3,301.4
--
3,596.0
6,897.4
Other Agencies
Department of Energy
CRS-9
Defense Nuclear Nonproliferation
63.0
--
--
63.0
Department of Homeland Security
Coast Guard Operating Expenses
120.0
--
--
120.0
Department of Justice
Iraq and Afghanistan Training and Investigations
4.1
--
--
4.1
Afghanistan Marshall Training and Assistance
14.9
--
--
14.9
FBI Counterterrorism Intelligence & Training
101.1
--
--
101.1
DEA Operation Breakthrough & Other
8.5
--
--
8.5
Bureau of Alcohol, Tobacco, Firearms, and
Explosives Iraq Operations
4.0
--
--
4.0
Federal Prison System Counterterrorism
9.1
--
--
9.1
Total, Other Agencies
324.7
--
--
324.7
Grand Total, All Requests
145,291.0
5,340.0
45,907.4
196,538.4
Sources: February request from Office of Management and Budget, Budget of the U.S. Government: Appendix,
February 2007, pp. 1141-1178. Amendments from Office of Management and Budget, “FY2007 and FY2008
Supplementals, Amendments, and Releases,†at [http://www.whitehouse.gov/omb/budget/amendments.htm].
*Note: Amounts shown in brackets “[...]†are non-additive details of total amounts shown for each account.
Emergency Spending Designation. The Administration has requested all
of these funds, including the amounts in the February budget and in the subsequent
July and October budget amendments, with legislative language that would designate
the amounts as “emergency†spending.6 The intention is to exempt the funds from
caps on spending in the FY2008 congressional budget resolution. Section 204 of the
resolution, S.Con.Res. 21, provides that amounts designated as necessary to meet
emergency requirements “shall not be counted†against caps on discretionary
spending act in the House and shall not be subject to points of order for exceeding
spending limits in the Senate.
Technically, however, the terms “emergency†or “emergency appropriationsâ€
may not apply to all of the money Congress may ultimately provide, particularly for
ongoing war-related expenses. While S.Con.Res. 21 exempts emergency amounts
from caps on spending, it also includes a restrictive definition of emergency spending
that might permit a point of order to be raised in the Senate against a measure that
designates funds for ongoing activities, including the war, as an emergency.7 Instead,
the budget resolution permits limits on overall funding to be adjusted by up to $124.2
billion for “overseas deployments and related activities.†That designation, rather
than “emergency†appropriations, may be invoked to permit some of the requested
6 The “emergency†language is requested as a general provision in OMB’s February budget
appendix, and the President’s cover letter conveying the October 22 request designates all
of the requested funds as emergency appropriations.
7 Section 206(a)(6)(A) requires that emergency funding must be
“(i) necessary, essential, or vital (not merely useful or beneficial);
“(ii) sudden, quickly coming into being, and not building up over time;
“(iii) an urgent, pressing, and compelling need requiring immediate action;
“(iv) ... unforeseen, unpredictable, and unanticipated; and
‘(v) not permanent, temporary in nature.â€
CRS-10
spending to be considered without raising a point of order for exceeding budget
limits in the Senate.8
Possible Additional Supplemental Appropriations. Supplemental
appropriations bills frequently provide substantially more money than the White
House requests, and bills sometimes become vehicles for significant legislative
initiatives as well. The FY2007 supplemental, for example, H.R. 2206, P.L. 110-28,
included substantial amounts for disaster relief, farm programs, low-income energy
assistance, and the SCHIP children’s health insurance program. It also included a
measure to increase the minimum wage.
It was widely expected that the appropriations committee would include
additional “emergency†funds for Hurricane Katrina recovery and for other purposes
in any FY2008 supplemental appropriations bill for the war. With the prospect that
the war supplemental would be delayed until January or later, however, appropriators
decided not to wait to address hurricane recovery and other issues, and instead
provided funding for several non-defense programs in the second FY2008 continuing
resolution (CR).
Congressional Action on Supplemental Appropriations to Date. The
second CR, which funds activities of the government from November 17 through
December 14, 2007, was attached to the FY2008 defense appropriations bill, H.R.
3222, P.L. 110-116, which the President signed into law on November 13. The
continuing resolution includes $2.9 billion in additional funds for veterans health
programs, $3 billion in community development funds for Louisiana to help residents
return to their homes, $2.9 billion for the Federal Emergency Management Agency
Disaster Relief Fund, and $500 million for wildfire management.
As noted above, Congress has also already provided $16.8 billion for MRAPs.
The FY2008 continuing resolution, H.J.Res. 52, P.L. 110-92, that was signed into
law on September 29, provides $5.2 billion for production and deployment of Mine
Resistant Ambush Protected (MRAP) vehicles for the Army and Marine Corps. This
is almost all of the amount that was requested in the Administration’s July 31 budget
amendment. The FY2008 defense appropriations bill, H.R. 3222, P.L. 110-116, that
was signed into law on includes $11.6 billion for MRAPs, all designated as
emergency appropriations.
Highlights of the FY2008 Defense
Supplemental Request
The $189.3 billion requested for military operations in FY2008 continues a
trend of perennially larger and larger amounts of money being provided to the
Defense Department through supplemental appropriations that are over and above
8 Moreover, an "emergency" designation by the President is no longer required. The
President was, in the past, required to agree with Congress to designate funds as
"emergency" appropriations in order to avoid triggering an automatic cut in spending if
outlays exceeded statutory limits. But legislative caps on spending expired after FY2002.
CRS-11
also-increasing “base†budgets for defense. In all, supplemental appropriations for
DOD, together with war-related “bridge†funds provided as separate titles of regular
annual defense appropriations bills since FY2005, have grown from $62.6 billion in
FY2003, the year of the Iraq invasion, to $101.9 billion in FY2005, to $124.0 billion
in FY2006, to $171.3 billion in FY2007, and now still higher (see Table 3).
Table 3. Regular and Supplemental/Bridge
Appropriations for the Department of Defense,
FY2000 to FY2008
(budget authority in millions of dollars)
Supplemental/
Total DOD
Regular
Bridge
Appropriations
Appropriations
Appropriations
FY2000
290,339
281,785
8,554
FY2001
318,678
299,320
19,358
FY2002
344,904
328,668
16,236
FY2003
437,714
375,133
62,581
FY2004
447,933
378,406
69,527
FY2005
506,864
404,945
101,919
FY2006
593,780
469,753
124,027
FY2007
608,252
430,600
171,289
FY2008 (request)
672,289
482,973
189,316
Source: CRS from Office of Management and Budget and House and Senate
Appropriations Committee data.
Why War-Related Supplemental Requests Have Grown9
The increases in funding for the war cannot be attributed to the pace of military
operations. Though the number of troops deployed in Iraq and Afghanistan has
fluctuated over time, and there has been a “surge†of troops into Iraq in recent
months, overall troop levels have remained relatively stable. Instead, the increases
are due in large part to the growth of investments to repair or replace equipment lost
or worn out in military operations and also to upgrade equipment across the entire
force.
As Table 4 shows, the largest increases in funding have been for weapons
procurement, which has grown from about $19 billion in FY2005 to a requested $64
billion in the amended FY2008 request. Operation and maintenance funding has
grown also, much of that to repair equipment. And there have been increases, as
well, in funding to train and equip Afghan and Iraqi military forces. Supplementals
have also been used to finance costs of reorganizing the Army into a modular,
9 For a much more extensive discussion of trends in supplemental appropriations, see CRS
Report RL33110, The Cost of Iraq, Afghanistan, and Other Global War on Terror
Operations Since 9/11, by Amy Belasco, particularly the section entitled “Trends in War
Funding.†Also see CRS Report RL33999, Defense: FY2008 Authorization and
Appropriations, by Pat Towell, Stephen Daggett, and Amy Belasco, particularly the section
entitled “Issues in the FY2008 Global War on Terror Request.â€
CRS-12
brigade-centered force and to pay for initial costs of increasing the Army and Marine
Corps by 92,000 troops by 2011.
Table 4. War-Related Supplemental Appropriations/
Bridge Funds by Account, FY2005-FY2008
(amounts in millions of dollars)
Amended
Enacted
Enacted
Enacted
Request
FY2005
FY2006
FY2007
FY2008
Military Personnel
18,696.7
16,423.3
17,746.1
17,770.7
Operation and Maintenance
46,520.9
59,230.0
72,257.7
80,892.8
Procurement
18,762.6
20,373.8
42,025.5
64,040.8
Research and Development
587.3
125.2
635.8
2,590.6
Military Construction
1,128.1
214.8
1,670.2
1,863.5
IFF/JIEDDO
3,800.0
3,318.1
4,759.1
4,477.0
Defense Health Program
893.6
1,153.6
2,091.2
1,023.8
Iraq and Afghan Security Forces
6,985.0
4,915.1
12,948.7
5,700.0
Working Capital Fund
3,021.7
3,033.1
1,120.5
1,681.4
Subtotal
100,395.8
108,787.0
155,254.8
180,040.6
Non-DoD Classified/Other Emergency
492.4
5,740.3
14,244.8
9,275.6
Total
100,888.3
114,527.3
169,499.6
189,316.3
Sources: FY2007 and FY2008 from Department of Defense, FY2008 Global War on Terror
Amendment, October 2007; FY2006 from Department of Defense, FY2007 Emergency Supplemental
Request for the Global War on Terror, February 2007; FY2005 CRS from House and Senate
Appropriations Committee data.
Table 5 shows the trend in funding according to functional categories that the
Defense Department has used. DOD’s functional breakdown shows large increases
in funding for force protection and smaller increases in support to foreign security
forces. The largest increases, however, have been for what the Defense Department
refers to as “reconstitution.â€
CRS-13
Table 5. War-Related Supplemental Appropriations/
Bridge Funds by Functional Category, FY2006-FY2008
(amounts in millions of dollars)
Amended
Enacted
Enacted
Request
FY2006
FY2007
FY2008
Continuing the Fight
Operations (Includes Plus-Up)
67,158.0
76,148.4
76,868.7
Force Protection
5,358.5
13,349.8
30,461.0
IED Defeat
3,318.1
4,400.0
4,269.0
Military Intelligence Program
1,499.7
3,443.7
3,706.0
Iraq Security Forces
3,007.0
5,542.9
3,000.0
Afghan Security Forces
1,908.0
7,406.4
2,700.0
Coalition Support
1,200.0
1,422.2
1,700.0
CERP
923.0
956.4
1,219.4
Military Construction
214.8
940.0
1,694.5
Factory Restart
--
50.0
100.0
Provincial Reconstruction Teams
5,000.0
100.0
--
Reconstituting the Force
Reconstitution
19,199.8
36,349.1
46,366.8
Enhancing Ground Forces
BCTs / RCT
--
3,647.1
1,557.2
Grow the Force
--
1,498.8
--
Restore the Force
--
--
5,403.9
Strengthening the Army Guard and Reserve
--
--
994.2
Non-DOD Classified & Additional Requests
5,740.3
14,244.8
9,275.6
Total
114,527.2
169,499.6
189,316.3
Sources: FY2007 and FY2008 from Department of Defense, FY2008 Global War on Terror
Amendment, October 2007; FY2006 from Department of Defense, FY2007 Emergency Supplemental
Request for the Global War on Terror, February 2007.
Traditionally, the term “reconstitution†has been used to refer to repairing and
replacing equipment lost or worn out in combat in order to restore the force to
approximately its pre-war condition. Secretary of Defense Rumsfeld, however,
preferred to use the term “reset†to describe what was needed. To reset the force
meant to return the force, not to its prewar condition, but to the condition that it
would have been in had planned changes in the force been carried on in the absence
of a conflict. The intent was not to add to funding requirements, but to refine and
perhaps reduce them. Secretary Rumsfeld argued, for example, that there was not
necessarily a need to restore stocks of Army prepositioned equipment to prewar
levels because plans to reduce overseas deployments might reduce prepositioning
requirements. Early in the war, the Defense Department did not support Army
requests for funding to reconstitute the force in because of debates over what was
needed, and Congress insisted on adding funds for new equipment.
Now, however, the Defense Department has resumed using the term
“reconstitution,†but the concept appears to encompass much more than just restoring
the force. Instead, it appears to include substantial upgrades to the force, especially
for the Army and Marine Corps. The upgrades include measures to fix preexisting
CRS-14
shortfalls in some kinds of equipment, to add substantially to transportation and
communications equipment in combat units to reflect lessons about the way units
have operated in the war, to more fully equip later deploying units with the same
equipment used in the theater in order to improve training, and to more fully equip
Guard and reserve units that, in the past, were outfitted with older equipment retired
from the active duty force, but that have now become part of the rotation base for
overseas operations and, so are seen to need newer weapons and support systems.
Taken together, these steps to upgrade the force explain much of the increase in
spending.
Congress has generally supported steps to upgrade ground forces, in particular,
though legislators have questioned some of the requested increases in equipment
funding. In action on the FY2007 war supplemental, for example, several legislators
raised questions about the rationale for an Air Force request for two F-35 Joint Strike
Fighters, on which production is just beginning, to replace F-15 and F-16 aircraft lost
in combat operations, and a Navy request for one V-22 tilt rotor aircraft to replace
lost helicopters. In the end, the Administration withdrew those requests in a budget
amendment that realigned funding to reflect costs of the troop surge.10
Selected Elements of the Amended Defense Request
Funding for MRAPs is the largest single item in the amended defense request,
and Congress has already responded by providing virtually all of the money
requested. A few other elements of the amended request stand out.
! Costs of the troop surge: The October 22 budget amendment
includes $6.3 billion to cover costs of maintaining five additional
Army brigade combat teams (BCTs) and one Marine regimental
combat team (RCT) in Iraq through December 2007 and then
returning to pre-surge levels. The budget assumes that the additional
units will be withdrawn beginning in January and that the force will
be reduced to the pre-surge level of 15 brigades by July.
! Other Iraq- and Afghanistan-related increases: The October 22
budget amendment includes $1 billion in additional money for Iraqi
security forces and $100 million to expand a program to reopen
factories in Iraq. It also includes $242 million for the Commanders
Emergency Response Program11 for Afghanistan. And it includes
$956 million, in addition to $739 million requested in February, to
construct facilities and roads in Iraq and Afghanistan.
! Additional funds for reconstitution: Aside from MRAPs, the largest
element of the October budget amendment is an addition of
10 See Office of Management and Budget, “FY2007 Supplemental Revisions: Department
of Defense (Global War on Terror),†March 9, 2007. The amendment is available on line
at [http://www.whitehouse.gov/omb/budget/amendments/amendment_3_9_07.pdf].
11 CERP allows field commanders to provide money for relatively small, local development
projects.
CRS-15
$8.8 billion to the $37.6 billion requested in February to repair,
replace, and replenish equipment and supplies. The budget
amendment includes $1 billion to improve Navy P-3 aircraft radar
detection equipment and smaller amounts for a wide range of other
programs.
! Restock inventories of equipment in non-deploying units: Under the
title “Restore the Force,†in addition to funds for reconstitution, the
October budget amendment includes $5.4 billion to restock
equipment inventories of combat support and combat service
support (CS/CSS) units that have had equipment taken away in order
to equip deployed and next-to-deploy combat and support units.
Defense Department officials have said that is only part of the
amount needed to make up shortfalls of inventories due to cross-
leveling of equipment as units have prepared to deploy.12
! Other requests: The budget amendment includes $2.5 billion for a
variety of other initiatives. These include $762 million for fuel price
increases; $416 million to accelerate the date for completing
construction of facilities to replace the Walter Reed Army hospital
from May 2011 to October 2010; $504 million for to improve other
Army medical facilities and services; and about $800 million for
soldier and family support programs, including programs to support
soldiers returning from combat tours.
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
12 Source: Oral communication from Department of Defense Comptroller official, October
23, 2007.
CRS-16
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 Operations13
In February 2007, the original FY2008 State Department portion of the
emergency supplemental request consisted of $1.882 billion for Diplomatic and
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 6.)
Currently, the Mission in Iraq consists of more than 1,000 direct-hire Americans
representing 12 U.S. government agencies.14 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).
13 Prepared by Susan B. Epstein, Specialist in Foreign Policy.
14 For more information, see CRS Report RS21867, U.S. Embassy in Iraq.
CRS-17
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.
Table 6. 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.
CRS-18
Foreign Operations15
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 7 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
(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.
15 Prepared by Connie Veillette, Specialist in Foreign Assistance.
CRS-19
Table 7. 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.
CRS-20
Iraq Reconstruction Assistance16
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.17
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
16 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.
17 “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.
CRS-21
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 8) for staffing and administering
reconstruction programs: $679 million for PRT and $45.8 million for USAID
operations.
CRS-22
Table 8. 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
4,940b
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.
Afghanistan18
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
18 Prepared by Rhoda Margesson, Specialist in International Humanitarian Policy, and
Kenneth Katzman, Specialist in Middle Eastern Affairs.
CRS-23
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.19 (See Table 9.)
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:
19 Funding figures obtained from the FY2008 Revised Emergency Proposal dated October
22, 2007; the proposed Budget for Fiscal Year 2008 (“Additional 2007 and 2008
Proposalsâ€) submitted in February 2007; and the Supplemental Appropriations Justification
Fiscal Year 2008 prepared by the Department of State and USAID.
CRS-24
! $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.
CRS-25
Table 9. 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.
Pakistan20
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
20 Prepared by Rhoda Margesson, Specialist in International Humanitarian Policy.
CRS-26
complements the Government of Pakistan’s plan.21 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.
Sudan22
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;
! $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
21 For more detail on Pakistan, see CRS Report RL33498, Pakistan-U.S. Relations.
22 Prepared by Rhoda Margesson, Specialist in International Humanitarian Policy.
CRS-27
! $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 10. 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.
CRS-28
Mexico and Central America23
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 Gaza24
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 Korea25
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
23 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.
24 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.
25 For more information, see CRS Report RL33590 North Korea’s Nuclear Weapons
Development and Diplomacy.
CRS-29
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 Assistance26
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.
26 Prepared by Rhoda Margesson, Specialist in International Humanitarian Policy.
CRS-30
Appendix A. FY2008 Emergency Supplemental Request,
State Department and Foreign Operations
(millions of U.S. dollars)
FY08
FY08
FY08
Omnibus
Omnibus
Omnibus
FY2008 Base
FY2008 Original
FY2008 Second
FY2008 Total
Supp Funds
Supp Funds
Supp Funds
Account
Request
Supp. Request
Supp. Request
Supp Funds
House
Senate
Final
State Department
Diplomatic & Consular Programs
4,942.7
1,881.6
401.4
2,283.0
781.6
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
468.0
Board for International Broadcasting
618.8
— —
—
12.0
Total, State Department
8,196.6
1,934.6
1,285.0
3,219.6
1,261.6
CRS-31
FY08
FY08
FY08
Omnibus
Omnibus
Omnibus
FY2008 Base
FY2008 Original
FY2008 Second
FY2008 Total
Supp Funds
Supp Funds
Supp Funds
Account
Request
Supp. Request
Supp. Request
Supp Funds
House
Senate
Final
Foreign Operations
Economic Support Fund
3,319.6
1,111.0
1,106.0
2,217.0
542.6
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
200.0
International Disaster Assistance*
297.3
—
80.0
80.0
110.0
USAID Operating Expenses
609.0
61.8
—
61.8
20.8
Global Health/Child Survival
— — —
—
115.0
Foreign Military Financing
— — —
—
100.0
Peacekeeping Operations
— — —
—
35.0
Total, Foreign Operations
6,098.0
1,366.8
1,961.0
3,327.8
1,123.4
Total, State and Foreign Operations
14,294.6
3,301.4
3,246.0
6,547.4
2,385.0
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.
* The International Disaster Assistance account was previously called International Disaster and Famine Assistance