State, Foreign Operations, and Related
Programs: FY2009 Appropriations
Susan B. Epstein
Specialist in Foreign Policy
Kennon H. Nakamura
Analyst in Foreign Affairs
April 3, 2009
Congressional Research Service
7-5700
www.crs.gov
RL34552
CRS Report for Congress
P
repared for Members and Committees of Congress
State, Foreign Operations, and Related Programs: FY2009 Appropriations
Summary
The annual State, Foreign Operations and Related Agencies appropriations bill is the primary
legislative vehicle through which Congress reviews the U.S. international affairs budget and
influences executive branch foreign policy making in general. Funding for Foreign Operations
and State Department/Broadcasting programs has been steadily rising since FY2002, and amounts
approved for FY2004 in regular and supplemental bills reached an unprecedented level compared
with the previous 40 years, largely due to Iraq reconstruction funding. Emergency supplementals
enacted annually since September 11, 2001, also have pushed spending upward.
On March 11, 2009, President Obama signed the Omnibus Appropriations Act, 2009, into law
(P.L. 111-8). The House had introduced H.R. 1105 on February 23, 2009, passed it on February
25, and sent it to the Senate, where it was passed by voice vote on March 10. The bill included
$36.8 billion for Division H—Department of State, Foreign Operations, and Related Programs
Appropriations, 2009.
On January 31 and February 10, 2009, the House of Representatives and Senate respectively
passed H.R. 1, the American Recovery and Reinvestment Act of 2009 (Economic Stimulus
Package). The President signed the $789 billion bill on February 17, 2009, which provided $602
million additional funds for programs within the State-Foreign Operations appropriations. The
State Department estimated that the additional funding would create about 1,460 jobs in the
United States.
On February 4, 2008, President Bush sent his FY2009 budget request to Congress. The House
Appropriations State-Foreign Operations Subcommittee marked up its then-unnumbered bill on
July 16. The Chairwoman’s Mark totaled $36.62 billion, $3.82 billion more than FY2008 enacted
levels. No further action on that bill occurred. The Senate took up its State Department-Foreign
Operations appropriation bill (S. 3288) on July 18; the full Senate Appropriations Committee
reported it out the same day with $36.78 billion for FY2009. With no further progress on several
appropriations bills, on September 24, the House approved a continuing resolution (H.R. 2638)
that continued most funding through March 6, 2009, at FY2008 levels. The President signed the
bill into law (P.L. 110-329) on September 30. The 111th Congress passed another CR on March 6,
2009 (P.L. 111-6) funding the government through March 11, 2009.
On May 2, 2008, the Administration requested supplemental funds for FY2009. Congress took
action on both the pending FY2008 and newly requested FY2009 supplemental appropriations
(H.R. 2642) in May and June. Congress passed the supplemental at the end of June; the President
signed it into law (P.L. 110-252) on June 30, 2008. (For more detail, see CRS Report RL34451,
FY2008 Spring Supplemental Appropriations and FY2009 Bridge Appropriations for Military
Operations, International Affairs, and Other Purposes (P.L. 110-252), by Stephen Daggett et al.)
This report analyzes the FY2009 request, recent-year funding trends, and congressional action for
FY2009. This report will be updated to further reflect congressional action.
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State, Foreign Operations, and Related Programs: FY2009 Appropriations
Contents
Recent Developments.................................................................................................................. 1
Congressional Action .................................................................................................................. 1
Regular State-Foreign Operations Appropriations.................................................................. 1
Previous House Action.................................................................................................... 2
Previous Senate Action ................................................................................................... 2
The Economic Stimulus Package, H.R. 1, the American Recovery and Reinvestment
Act of 2009........................................................................................................................ 2
The FY2009 Supplemental Request and the Remaining FY2008 Supplemental ........................... 4
International Affairs FY2009 Budget Overview........................................................................... 4
Background and Trends......................................................................................................... 5
FY2009 Budget Request Overview ............................................................................................. 8
FY2009 Budget Request: State Department and Related Agencies............................................. 8
Civilian Stabilization Initiative .............................................................................................. 9
State Department—Administration of Foreign Affairs ......................................................... 11
Diplomatic and Consular Programs (D&CP) ................................................................. 11
Embassy Security, Construction and Maintenance (ESCM) ........................................... 11
Educational and Cultural Exchanges ............................................................................. 12
The Capital Investment Fund (CIF) ............................................................................... 12
International Organizations and Conferences....................................................................... 12
Contributions to International Organizations (CIO) ....................................................... 13
Contributions to International Peacekeeping Activities (CIPA) ...................................... 13
International Commissions .................................................................................................. 13
Related State Department Appropriations ............................................................................ 13
The Asia Foundation ..................................................................................................... 13
The International Center for Middle Eastern-Western Dialogue Trust Fund.................... 13
National Endowment for Democracy (NED) ................................................................. 14
East-West Center........................................................................................................... 14
U.S. Institute of Peace......................................................................................................... 14
Broadcasting Board of Governors ....................................................................................... 15
FY2009 Budget Request: Foreign Operations............................................................................ 16
Top Ten U.S. Foreign Aid Recipient Countries .................................................................... 18
Foreign Aid Reform ............................................................................................................ 19
FY2009 Foreign Operations Budget Details ........................................................................ 20
Major Changes.............................................................................................................. 20
Regional Distribution .................................................................................................... 20
Sector Distribution ........................................................................................................ 21
Use of Supplementals.................................................................................................... 23
Figures
Figure 1. Composition of Foreign Affairs Budget, FY2009 Request............................................. 5
Figure 2. International Affairs Appropriations, FY1999-FY2009($ Billions)................................ 7
Figure 3. State Department and Related Agencies Appropriations, FY1999-FY2009.................... 9
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State, Foreign Operations, and Related Programs: FY2009 Appropriations
Figure 4. Foreign Operations, FY1999-FY2009($ Billions) ....................................................... 18
Figure 5. Regional Distribution of Foreign Aid.......................................................................... 21
Tables
Table 1. Department of State/USAID Funding in H.R. 1, The American Recovery and
Reinvestment Act of 2009 ........................................................................................................ 3
Table 2. International Affairs Appropriations, FY1999-FY2009 ................................................... 7
Table 3. Status of State-Foreign Operations Appropriations, FY2009........................................... 8
Table 4. State Department and Related Agencies Appropriations, FY1999-FY2009 ..................... 8
Table 5. Foreign Operations Appropriations, FY1999-FY2009 .................................................. 17
Table 6. Top Ten Recipients of U.S. Foreign Aid FY2008-FY2009 ............................................ 18
Table 7. Selected Sector Funding, FY2008 Estimate and FY2009 Request................................ 22
Table 8. Funding for Iraq and Afghanistan, FY2002-FY2009..................................................... 24
Appendixes
Appendix A. Abbreviations ....................................................................................................... 25
Appendix B. Foreign Aid Country Categories............................................................................ 26
Appendix C. State Department and Related Agencies Appropriations ........................................ 29
Appendix D. Foreign Operations Appropriations ....................................................................... 32
Contacts
Author Contact Information ...................................................................................................... 36
Key Policy Staff........................................................................................................................ 36
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State, Foreign Operations, and Related Programs: FY2009 Appropriations
Recent Developments
On March 11, 2009, President Obama signed the Omnibus Appropriations Act, 2009, into law
(P.L. 111-8). The House had introduced H.R. 1105 on February 23, 2009, passed it on February
25, and sent it to the Senate, where it was passed by voice vote on March 10. The bill included
$36.8 billion for Division H—Department of State, Foreign Operations, and Related Programs
Appropriations, 2009. (For account-by-account details, see the funding tables in Appendix C and
Appendix D.)
As part of H.R. 1, The American Recovery and Reinvestment Act of 2009, the House of
Representatives and the Senate each provided funding for programs generally included in the
State-Foreign Operations appropriations legislation. In the version of H.R. 1 passed by the House
on January 29, 2009, the House provided a total of $500,000,000 for programs under the
Department of State and the United States Agency for International Development (USAID). The
Senate, in its version of H.R. 1, which it passed on February 10, 2009, provided for $602,000,000
for State and USAID programs. A House-Senate conference committee on H.R. 1 met and
recommended a compromise $789 billion bill of which $602 million was for programs generally
covered under the State-Foreign Operations appropriations. Both the House and the Senate
adopted the conference recommendations on February 13, and sent the bill to the President. The
President signed H.R. 1 on February 17, 2009.
With regard to the regular appropriations, Congress had passed two continuing resolutions
including State, Foreign Operations appropriations. Most recently, the 111th Congress passed a
continuing resolution (P.L. 111-6) to provide funding through March 11, 2009. The 110th
Congress had passed P.L. 110-329, which continued funding for most State-Foreign Operations
through March 6, 2009, at FY2008 levels. President Bush signed it into law on September 30,
2008. It included up to $5.0 million to help Liberia in debt reduction; and an increase from $631.2
million to $670.65 million of Foreign Military Financing (FMF) funds to be made available for
procurement in Israel of defense articles and services in FY2009. The measure also provided
$37.5 million for emergency repair and construction for the United States-Mexico International
Boundary and Water Commission water quantity program, with no deadline for expenditure. P.L.
110-329 also contained some FY2008 supplemental funding, as well. Among these are $9.0
million to be transferred to the Special Inspector General for Afghanistan Reconstruction to
remain available until September 2010 and $465.0 million within the Economic Support Fund
(ESF), of which $365.0 million is for Georgia for humanitarian, economic, and relief assistance,
and the remainder for hurricane relief in the Caribbean.
Congressional Action
Regular State-Foreign Operations Appropriations
The House introduced H.R. 1105 on February 23, 2009. It included $36.8 billion for the
Department of State, Foreign Operations, and Related Programs, $1.6 billion below the Bush
Administration request for FY2009. The bill contained $11.3 billion for the Department of State,
$709.5 million for international broadcasting, and $24.7 billion for Foreign Operations. The
Senate passed the bill with those same funding levels on March 10, 2009, and President Obama
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State, Foreign Operations, and Related Programs: FY2009 Appropriations
signed the bill into law on March 11, 2009. (More details will be provided in the next update of
this report.)
Previous House Action
The House passed the continuing resolution, or CR (The Department of Homeland Security Act,
2008/H.R. 2638), on September 24, 2008, by a vote of 370 to 58 with one present.
The House Appropriations Subcommittee on State, Foreign Operations, and Related Programs
marked up the international affairs (Function 150 account) regular appropriation on July 16,
2009. According to the subcommittee’s press release, the Chairwoman’s Mark totals $36.62
billion for State-Foreign Operations in FY2009, $3.82 billion more than the enacted FY2008
level, including $2.38 billion for Israel, $1.041 billion for Afghanistan, $1.5 billion for Egypt, and
$696.9 million for Jordan. The subcommittee approved $7.278 billion for global health programs
and $1.728 billion for the Development Assistance account. In addition to providing $809 million
for USAID operating expenses, this bill, combined with the FY2008 supplemental funding, will
fund 400 new USAID employees. For the Department of State, combined with the staffing
increases in the FY2008 Emergency Supplemental Act, P.L. 110-252, the legislation increases
State Department staffing by 1,061 new positions. The bill also meets the Administration’s
request of $522.4 million for educational and cultural exchanges.1
Previous Senate Action
The Senate passed the CR (H.R. 2638) on September 27, 2008, with a vote of 78 to 12.
The Senate State-Foreign Operations Subcommittee and full Appropriations Committee marked
up and reported out its bill (S. 3288/S. Rept 110-425) on July 18. It provides $36.78 billion for
State-Foreign Operations in FY2009. (For account-by-account detail, see the funding tables in
Appendix C and Appendix D.)
The Economic Stimulus Package, H.R. 1, the American Recovery
and Reinvestment Act of 2009
On January 31, 2009, the House of Representatives passed H.R. 1, the American Recovery and
Reinvestment Act of 2009, an $819 billion bill to stimulate the economy. Of the total, the House
version of H.R. 1 contained $500 million of funding for programs generally covered under the
State-Foreign Operations appropriations. On February 10, 2009, the Senate amended and passed
H.R. 1. The Senate’s $838 billion version of the legislation contained $602 million for programs
generally covered under the State-Foreign Operations appropriations legislation. The conference
committee on H.R. 1 recommended a $789 billion bill of which $602 million was for programs
generally covered under the State-Foreign Operations appropriations legislation. The House and
Senate adopted the conference recommendations on February 13, and on February 17, the
1 State and Foreign Operations Subcommittee Approves Fiscal Year 2009 Appropriations Bill, News from
Congresswoman Nita M. Lowey, Chairwoman, State and Foreign Operations Appropriations Subcommittee, July 16,
2008.
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President signed H.R. 1. The State Department estimated that the additional funding would create
about 1,460 jobs in the United States.
Table 1. Department of State/USAID Funding in H.R. 1, The American Recovery and
Reinvestment Act of 2009
Senate-Amended Bill,
House-Passed Bill, H.R. 1
H.R. 1
H.R. 1 Enacted
TITLE XI – STATE,
FOREIGN OPERATIONS,
AND RELATED
PROGRAMS
DEPARTMENT OF
STATE
ADMINISTRATION OF
FORIEGN AFFAIRS
Diplomatic and
$90,000,000 to remain available
$90,000,000 to remain
Consular Programs
until Sept. 30, 2010 for urgent
available until Sept. 30, 2010
(D&CP)
domestic facilities
for urgent domestic facilities
requirements for passport and
OF WHICH
training functions.
$20,000,000 for passport and visa
facilities and system support and
$65,000,000 for consolidated
security training facility .
Capital
$276,000,000 for Computer
$228,000,000 to remain available
$290,000,000 to remain
Investment Fund
Enhancements
to Sept. 30, 2010.
available to Sept. 30, 2010.
OF WHICH
For information technology
For immediate information
security and upgrades to support
technology security and
$120,000,000 for Design and
mission critical operations:
upgrades to support mission
construction of a backup information
Provided that the Secretary of
critical operations of which up
management facility in the U.S.
State and the Administrator of
to $38,000,000 shall be
USAID shall coordinate
transferred to, and merged with
$98,527,000 to carry out State
information technology systems,
funds under the heading
Department responsibilities under the
where appropriate, to increase
“Capital Investment Fund” of
Comprehensive National Cybersecurity
efficiencies and eliminate
USAID. Funds are available
Initiative
redundancies, to include co-
provided that the Secretary of
location of backup information
State and the Administrator of
management facilities.
USAID shall coordinate
information technology
systems, where appropriate, to
increase efficiencies and
eliminate redundancies to
include co-location of backup
information management
facilities.
Office of the Inspector
$1,500,000 to remain available
$2,000,000 to remain available
General
until Sept. 30, 2011 for oversight
until Sept. 30 2010 for
requirements.
oversight requirements.
INTERNATIONAL
COMMISSIONS
U.S.-Mexico International
$224,000,000
$224,000,000 to remain available
$220,000,000 to remain
Boundary Water Commission
until Sept. 30, 2010.
available until Sept. 30, 2010
To fund the Commission’s Water
To fund the Commission’s Water
To fund the Commission’s
Quality Program to meet immediate
Quality Program to meet
Water Quality Program to meet
repair and rehabilitation requirements.
immediate repair and
immediate repair and
rehabilitation requirements.
rehabilitation requirements.
OF WHICH
OF WHICH
Provided that up to $2,000,000
maybe transferred and merged
$2,000,000
$2,000,000
with funds for salaries and
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Senate-Amended Bill,
House-Passed Bill, H.R. 1
H.R. 1
H.R. 1 Enacted
expenses.
For increases in the Commission’s
For increases in the Commission’s
For increases in the
Salaries and Expenses Account to staff
Salaries and Expenses Account to
Commission’s Salaries and
increased work on the boundaries.
staff increased work on the
Expenses Account to staff
boundaries.
increased work on the
boundaries.
UNITED STATES
AGENCY FOR
INTERNATONAL
DEVELOPMENT (USAID)
Capital Investment Fund
$58,000,000 to remain available
until Sept. 30, 2010. For
information technology
modernization programs and the
implementation of the Global
Acquisition System
Office of the Inspector
$500,000 to remain available until
General
Sept. 30, 2011.
For additional oversight
requirements
The FY2009 Supplemental Request and the
Remaining FY2008 Supplemental
On May 2, 2008, the George W. Bush Administration sent an FY2009 supplemental budget
request to Congress amending its FY2009 regular request by a total of $5.12 billion for
international affairs accounts—$2.24 billion for the Department of State and $2.88 billion for
foreign assistance. The Supplemental Appropriation Act, 2008 (P.L. 110-252) was signed on June
30, 2008, with a total of $6.15 billion in FY2008 supplementals and $3.94 billion in FY2009
supplementals for State, Foreign Operations and Related Agencies. While Division J of the
Consolidated Appropriations Act, FY2008 (P.L. 110-161, signed December 26, 2007) contained
both regular appropriations and $2.4 billion for FY2008 supplemental funding for international
affairs, the Administration stated that $5.4 billion of the FY2008 supplemental request ($2.2
billion for the Department of State and $3.2 billion for foreign assistance) was lacking. (For
account-by-account detail, see the tables in Appendix C and Appendix D. Also, for more
information on the current supplemental appropriations, see CRS Report RL34451, FY2008
Spring Supplemental Appropriations and FY2009 Bridge Appropriations for Military Operations,
International Affairs, and Other Purposes (P.L. 110-252), by Stephen Daggett et al.)
International Affairs FY2009 Budget Overview
The international affairs budget, also known as Function 150, funds a variety of U.S. government
programs and activities, including foreign economic and military assistance, contributions to
international organizations and multilateral financial institutions, State Department and U.S.
Agency for International Development (USAID) operations, public diplomacy, and international
broadcasting programs. Figure 1 provides a percentage breakout of the FY2009 budget request,
including international food aid that is appropriated in the Department of Agriculture
appropriations bill.
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Background and Trends
The rationale for foreign affairs programs has transitioned from a largely anti-communist
orientation for some 40 years following World War II to a more recent focus on anti-terrorism in
the post September 11, 2001 environment. During the Cold War, foreign aid and diplomatic
programs also pursued a number of other U.S. policy goals, such as reducing high rates of
population growth, promoting economic development in general, advancing U.S. trade interests,
expanding access to basic education and health care, promoting human rights, and protecting the
environment. In the 1990s, other goals included stopping nuclear weapons proliferation, curbing
the production and trafficking of illegal drugs, expanding peace efforts in the Middle East,
achieving regional stability, protecting religious freedom, and countering trafficking in persons.
Figure 1. Composition of Foreign Affairs Budget, FY2009 Request
Narcotics
Public
Other
4%
Food Aid
Diplomacy
2%
3%
3%
Multilateral
Development/Hu
5%
manitarian
33%
International
Orgs
8%
Security/Econo
mic
10%
State
Department
Military Aid
Operations
13%
19%
Source: Fiscal Year 2009 Budget of the U.S. Government and CRS calculations.
Note: The total figure of $39.50 billion includes $157.1 million for mandatory retirement accounts.
A defining change in focus came following the September 11 terrorist attacks in the United States.
Since then, U.S. foreign aid and diplomatic programs have taken on a more strategic sense of
importance, and have been frequently cast in terms of contributing to the war on terrorism. In
2002, President Bush released his National Security Strategy that for the first time established
global development as the third pillar of U.S. national security, along with defense and
diplomacy. Development was again underscored in the Administration’s re-statement of the
National Security Strategy released on March 16, 2006.
Also in 2002, foreign assistance budget justifications began to highlight the war on terrorism as
the top foreign aid priority, emphasizing amounts of U.S. assistance to 28 “front-line” states—
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countries that cooperate with the United States in the war on terrorism or face terrorist threats
themselves.2 Large reconstruction programs in Afghanistan and Iraq are also part of the emphasis
on using foreign aid to combat terrorism. State Department efforts focus extensively on outreach
in strategically important countries, diplomatic security, and finding new and more effective ways
of presenting American views and culture through public diplomacy.
In the context of the post 9/11 environment, the Bush Administration announced significant
initiatives relating to diplomacy and foreign aid. A new transformational diplomacy initiative,
announced in 2006, repositioned diplomats to global trouble spots, created regional public
diplomacy centers, localized small posts outside of foreign capitals, and trained diplomats in new
skills. (See CRS Report RL34141, Diplomacy for the 21st Century: Transformational Diplomacy,
by Kennon H. Nakamura and Susan B. Epstein for more information.) Also announced in 2006
was the creation of a new position at the State Department, the Director of Foreign Assistance
(DFA), who serves concurrently as USAID Administrator. Heading up this new “F bureau” at
State, the DFA created a new Strategic Framework for Foreign Assistance with the objectives of
providing more coordination, coherence, transparency, and accountability for aid programs. (See
CRS Report RL34243, Foreign Aid Reform: Issues for Congress and Policy Options, by Susan B.
Epstein and Connie Veillette for more information.)
Other presidential initiatives address development and global health concerns. The Millennium
Challenge Corporation is an aid delivery concept, proposed by President Bush in 2002,
authorized by Congress (Title VI, Division D of P.L. 108-199), and established in early 2004. It is
intended to concentrate significantly higher amounts of U.S. resources in a few low- and low-
middle income countries that have demonstrated a strong commitment to political, economic, and
social reforms. The President initially promised $5 billion annually by FY2006, although funds
requested and appropriated have never reached this level.
With regard to global health issues, President Bush announced in 2003 a five-year, $15 billion
commitment to combat HIV/AIDS. Known as the President’s Emergency Plan for AIDS Relief,
or PEPFAR, the initiative has focused significant funds in 15 focus countries, largely in Africa.3
Subsequently, the President launched a new initiative in mid-2005 aimed specifically at malaria
(President’s Malaria Initiative, or PMI), pledging $1.2 billion in additional resources through
2010. These initiatives, which have benefitted African nations, have contributed to fulfilling the
Administration’s pledge to double aid to Africa in the 2004-2010 period. In May 2007, the
President announced a second phase commitment on HIV/AIDS of an additional $30 billion
through FY2013.
Beyond these recently emerging foreign policy goals relating to terrorism and global health
concerns, other prominent objectives have continued since the early 1990s including supporting
peace in the Middle East through assistance to Israel, Egypt, Jordan, and the Palestinians;
fostering democratization and stability for countries in crisis, like Bosnia, Haiti, Rwanda,
Kosovo, Liberia, and Sudan; facilitating democratization and free market economies in Central
Europe and the former Soviet Union; suppressing international narcotics production and
2 According to the State Department, these “front-line” states included Afghanistan, Algeria, Armenia, Azerbaijan,
Bangladesh, Colombia, Djibouti, Egypt, Ethiopia, Georgia, Hungary, India, Indonesia, Jordan, Kazakhstan, Kenya,
Oman, Pakistan, Philippines, Poland, Russia, Saudi Arabia, Tajikistan, Tunisia, Turkey, Turkmenistan, Uzbekistan, and
Yemen.
3 PEPFAR countries include Botswana, Cote d’Ivoire, Ethiopia, Kenya, Mozambique, Namibia, Nigeria, Rwanda,
South Africa, Tanzania, Uganda, Zambia, Vietnam, Guyana, and Haiti.
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trafficking through assistance to Colombia and the Andean region; and alleviating famine and
mitigating refugee situations in places throughout the world.
The international affairs budget can be divided into two components—State Department and
Foreign Operations. Both components are analyzed separately in the rest of this report. Taken
together, the international affairs budget has fluctuated in real terms in response to changing
global events. Table 2 and Figure 2 show appropriations for the last decade in both current and
constant dollars.
Table 2. International Affairs Appropriations, FY1999-FY2009
(discretionary budget authority in billions of current and 2009 constant dollars)
FY99 FY00 FY01 FY02 FY03 FY04a FY05 FY06 FY07 FY08 est. FY09 req.
Current
$
22.35 22.57 23.22 24.25 31.72 48.34 34.23 34.25 38.67
42.46
39.50
Constant
2009
$ 29.06 28.61 28.76 29.48 37.56 55.62 37.99 36.77 40.63
43.43
39.50
Source: Summary and Highlights, International Affairs Function 150, FY2009 and CRS calculations.
Note: Amounts do not include mandatory Foreign Service retirement accounts that total $157 million in
FY2009. The FY2009 column reflects amounts requested by the Administration. Figures for FY2008 are State
Department estimates. FY1999 excludes $17.61 billion for the International Monetary Fund. All figures include
regular and supplemental appropriations, including those in FY2008 within the recently passed supplemental
Appropriation Act, 2008 (P.L. 110-252). FY2009 supplemental funds enacted by P.L. 110-252 totaling $3.94
billion are not included in the table.
a. Reconstruction programs in Iraq peaked in FY2004.
Figure 2. International Affairs Appropriations, FY1999-FY2009($ Billions)
60
50
40
30
20
10
0
FY99 FY00 FY01 FY02 FY03 FY04 FY05 FY06 FY07 FY08 FY09
est.
req.
Current $
Constant 2009 $
Source: Summary and Highlights, International Affairs Function 150, FY2009 and CRS Calculations.
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FY2009 Budget Request Overview
On February 4, 2008, the President sent his FY2009 regular international affairs (Function 150
account) budget request to Congress. The request seeks a total of $39.5 billion for both the
Department of State and foreign operations. This represents an increase from the previous year of
8.5% (excluding recent supplementals) at a time when much of the rest of the budget request is
flat. Included in the FY2009 request is a new program referred to as the Civilian Stabilization
Initiative (CSI) to help stabilize and transition countries from war to peace. The Omnibus
Appropriations Act, FY2009 (H.R. 1105), was introduced in congress on February 23, 2009. The
House passed it on February 25, 2009, and the Senate passed it on March 10 without an
amendment. It was signed into law (P.L. 111-8) on March 11, 2009.
Table 3. Status of State-Foreign Operations Appropriations, FY2009
Subcomtee
Conf. Rept
markup
passed
House House Senate Senate Conf.
Public Law
House
Senate Rept
passed Rept
Passed Rept
House Senate signed
7-16-08 7-18-08
S.Rept.
P.L.
111-8,
signed
110-
3/11/09
425
FY2009 Budget Request: State Department and
Related Agencies
The Administration’s FY2009 budget request for the Department of State is $11.456 billion,
representing a 5.6% increase over the FY2008 estimate, including rescissions and supplementals
enacted in the consolidated appropriation (P.L. 110-161). For international broadcasting, the
FY2009 request of $699.5 million represents a 2.6% increase over the FY2008 estimate,
including rescissions and supplementals. Related agencies, which are funded in the State and
Foreign Operations Appropriations bill, include the Broadcasting Board of Governors (BBG), and
U.S. assessed contributions to United Nations (U.N.), International Organizations, and U.N.
Peacekeeping. Also included are funding for the Asia Foundation, the National Endowment for
Democracy, and several other small educational and exchange organizations, as well as resources
for international commissions, and the U.S. Institute of Peace. Table 4 and Figure 3 show
appropriations for the last decade in both current and constant dollars.
Table 4. State Department and Related Agencies Appropriations, FY1999-FY2009
(discretionary budget authority in billions of current and 1999 constant dollars)
FY99 FY00 FY01 FY02 FY03 FY04 FY05 FY06 FY07 FY08
est. FY09
req.
Current
$ 6.91 6.16 6.91 7.71 8.05 9.29 10.78 11.12 10.90
12.46
11.22
Constant
8.98 7.81 8.56 9.37 9.53 10.69 11.96 11.94 11.45
12.74
11.22
2009 $
Source: The Department of State Congressional Budget Justifications, FY2001 - FY2009 and CRS calculations.
Notes: Amounts do not include mandatory Foreign Service retirement accounts that total $123 million in FY2009.
Figures include regular and supplemental appropriations. Figures for FY2009 are requested amounts. Figures for
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FY2008 are State Department estimates. FY2008 includes supplemental appropriations passed June 30, 2008, in P.L.
110-252. Enacted FY2009 supplemental funds of $1.07 billion are not included in the table.
Figure 3. State Department and Related Agencies Appropriations, FY1999-FY2009
($ Billions)
14
12
10
8
6
4
2
0
FY99 FY00 FY01 FY02 FY03 FY04 FY05 FY06 FY07 FY08 FY09
est.
req.
Current $
Constant 2009 $
Source: The Department of State Congressional Budget Justifications, FY2001 - FY2009 and CRS calculations.
Civilian Stabilization Initiative
More than a year ago, in the President’s January 2007 State of the Union Address, he mentioned
the idea of establishing a civilian reserve corps (CRC) to be available for work in countries
experiencing conflict or post-conflict crises. In subsequent testimony before the House Foreign
Affairs Committee, Secretary Rice stated that the Department did not have the personnel or the
skill sets required to implement the CRC at that time, but perhaps the Defense Department could
help in the short run.4 In the FY2007 supplemental (P.L. 110-28), Congress provided $50 million
for establishing the CRC, but included language requiring authorization to spend the money. This
year the Administration is requesting $248.6 million for the Civilian Stabilization Initiative,
including CRC, in FY2009.
DOD’s expanding role in traditional civilian overseas activities over the years has led some
observers to comment that DOD is not ideally suited, by expertise or training, to perform some of
these missions. For example, some observers claim that police training missions are best
performed by civilian law enforcement personnel. Others suggest that local-level economic
reconstruction initiatives may be more effective when integrated into a broader economic
reconstruction and development strategy, guided by civilian experts. Some nongovernmental
organizations (NGOs), in turn, have expressed concerns that working closely with the military
could affect how the NGOs are perceived by host populations.
4 FY2008 budget Testimony by Secretary of State Rice before the House Foreign Affairs Committee, February 7, 2007.
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For almost two decades, some analysts have judged that the United States needs a broader array
of civilian personnel, readily available and trained to work with the military, to deal with the
many needs of states emerging from conflict, as well as to prevent conflict. Without such civilian
personnel, observers maintain that tasks such as civil administration, policing, political institution
building, humanitarian relief, and early reconstruction or construction of physical infrastructure
have fallen by default to ad hoc arrangements and to military forces, which as a whole are neither
structured nor trained for them. The Bush Administration has moved incrementally to develop a
small operational civilian capability that, as stated in the February 2008 announcement of a
Civilian Stabilization Initiative (CSI), would serve as “a counterpart to the U.S. military, ready
and capable to stabilize countries in the transition from war to peace.”5
In mid-2004, the Bush Administration established the State Department Office of the Coordinator
for Reconstruction and Stabilization (S/CRS) as the first step in operationalizing the State
Department and other civilian agencies to undertake reconstruction and stabilization missions,
either alone or with the military. Congress endorsed the creation of S/CRS in 2004 (Consolidated
Appropriations Act for FY2005, H.R. 4818, P.L. 108-447, signed into law December 8, 2004.
Section 408, Division D) and defined its responsibilities. Since then, S/CRS has worked to
establish the basic concepts, mechanisms, and capabilities necessary to carry out reconstruction
and stabilization missions. Among its principal tasks has been the development of the CRC to
undertake reconstruction and stabilization missions.
Senators Lugar and Biden have introduced legislation repeatedly since 2004 to support the
creation of civilian capabilities and fund their activities, including a permanent authorization for
S/CRS, the authorization and funding of a readiness response corps, and the establishment of a
conflict response fund. The latest version of this bill is S. 613, the Reconstruction and
Stabilization Civilian Management Act of 2007, reported by the Senate Foreign Relations
Committee on April 10, 2007 (S.Rept. 110-50). On February 27, 2008, the House Foreign Affairs
Committee approved a similar bill, H.R. 1084. Both bills include the authorization for CRC
required by Congress before the Administration can spend the $50 million appropriated in the
FY2007 supplemental appropriations bill. Title 16, the Reconstruction and Stabilization Civilian
Management Act of 2008, of H.R. 5658/S. 3001, The Duncan Hunter National Defense
Authorization Act for Fiscal Year 2009, also contains measures to authorize a Response
Readiness Corps and the CRC. On September 27, 2008, Congress cleared this bill for the
President. The President signed the Defense Authorization Act on October 14, 2008, with the
legislation designated as P.L. 110-417.
With its FY2009 budget request of $248.6 million for CSI, the Bush Administration presented its
plans for a 4,250 - person Civilian Response Corps, to be developed over the next few years. The
Corps would consist of a 250-member interagency Active Response Corps (ARC) of government
personnel who could deploy immediately to a crisis, and a 2,000 - member Standby Response
Corps (SRC) of government personnel who could respond next. Those personnel would come
from all 15 U.S. government civilian agencies. The third component would be a 2,000-member
CRC of citizens who could provide the expertise needed for policing, rule of law, public
administration, and infrastructure assistance. The Administration requested $248.6 million for
FY2009 to organize, train, equip, and deploy CSI. After receiving an appropriations of up to $75
million in initial funding for the Active and Standby components in the Supplemental
5 The Budget in Brief FY2009, United States Department of State, p. 63.
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Appropriations Act of 2008, P.L. 110-252), on July 16, in ceremonies at the Department of State,
the Secretary formally launched the interagency Civilian Response Corps.
State Department—Administration of Foreign Affairs
The State Department’s mission is to advance and protect the worldwide interests of the United
States and its citizens through the staffing of overseas missions, the conduct of U.S. foreign
policy, the issuance of passports and visas, and other responsibilities. Currently, the State
Department coordinates with the activities of more than 40 U.S. government agencies in 268
posts in over 180 countries around the world. The State Department employs approximately
30,000 people, about 60% of whom work abroad. The Administration of Foreign Affairs includes
funds for salaries and expenses, educational and cultural exchanges, and embassy construction
and security. For FY2009, the Administration is seeking $8.217 billion, an increase of more than
$690.7 million (a 9.2% increase) over the FY2008 estimate. Highlights follow.
Diplomatic and Consular Programs (D&CP)
The D&CP account funds overseas operations (e.g., motor vehicles, local guards,
telecommunications, medical), activities associated with conducting foreign policy, passport and
visa applications, regional bureaus, under secretaries, and post assignment travel. Beginning in
FY2000, the State Department’s Diplomatic and Consular Program account included State’s
salaries and expenses, as well as the technology and information functions of the former U.S.
Information Agency (USIA) and the functions of the former Arms Control and Disarmament
Agency (ACDA).
For D&CP’s FY2009 budget, the Administration is requesting $5,364.3 million, $37.6 million
more than the estimated FY2008 level of $5,326.7 million, including rescissions and
supplementals. The D&CP account includes an increase in personnel of 1,149 positions above
attrition, with 500 of these positions designated for a new “Critical Skills and Strategic
Relationship for Global Engagement” category. Within the FY2009 request, $1,162.8 million is
designated for worldwide security upgrades (for increased security personnel, maintenance, and
ongoing salaries). This represents a 20% increase over the FY2008 estimated level of $968.5
million.
Embassy Security, Construction and Maintenance (ESCM)
This account supports the maintenance, rehabilitation, and replacement of facilities to provide
appropriate, safe, secure and functional facilities for U.S. diplomatic missions abroad. Early in
1998, Congress had enacted $403.6 million for this account for FY1999. However, following the
embassy bombings in Africa in August 1998, Congress agreed to more than $1 billion (including
a supplemental appropriation of about $627 million) for the Security and Maintenance account by
establishing a new subaccount referred to as Worldwide Security Upgrades. This subaccount
funds the bricks and mortar type of security needs overseas.
For FY2009, the Administration seeks $841.3 million for regular ESCM and $948.4 million for
worldwide security upgrades, for a total account level of $1,789.7 million, a 25.5% increase over
the FY2008 estimated level, including rescissions.
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Educational and Cultural Exchanges
This account funds programs authorized by the Mutual Educational and Cultural Exchange Act of
1961, such as the Fulbright Academic Exchange Program, as well as leadership programs for
foreign leaders and professionals. Government exchange programs came under close scrutiny in
past years for being excessive in number and duplicative. After the September 11th attacks, the
Department of State began to emphasize public diplomacy activities in Arab and Muslim
populations. The Bush Administration is requesting $522.4 million for exchanges in FY2009.
This represents a 4.2% increase over the FY2008 estimate.
Within the D&CP account, Congress, in the FY2008 consolidated appropriation, designated
$360.9 million for public diplomacy. The Administration is requesting $394.8 million for this
subaccount for FY2009.
The Capital Investment Fund (CIF)
CIF was established by the Foreign Relations Authorization Act of FY1994/95 (P.L. 103-236) to
provide for purchasing information technology and capital equipment that would ensure the
efficient management, coordination, operation, and utilization of State’s resources.
The FY2009 budget request includes $71.0 million for CIF, which is 19.1% higher than the
FY2008 estimate of $59.6 million, after rescissions.
International Organizations and Conferences
In recent years, U.S. contributions to the United Nations and its affiliated agencies (Contributions
to International Organizations—CIO) and peacekeeping activities (Contributions to International
Peacekeeping Account—CIPA) have been affected by a number of issues. These have included
the withholding of funds related to international family planning policies; issues related to
implementation of the Iraq Oil for Food Program, and the findings and recommendations of the
Volcker Committee Inquiry into that program; alleged and actual findings of sexual exploitation
and abuse by personnel in U.N. peacekeeping operations in the field and other misconduct by
U.N. officials at U.N. headquarters in New York and at other U.N. headquarters venues; and
efforts to develop, agree to, and bring about meaningful and comprehensive reform of the United
Nations organization, in most of its aspects.
Since 2004, congressional attention has often been directed to ways to ensure comprehensive
U.N. reform, through legislative proposals fashioned after extensive hearings. Current legislative
issues include followup and oversight of reforms initiated by the United Nations membership in
September 2005 and throughout its fall General Assembly session and the possibility of
increasing the 25% statutory cap on U.S. contributions to U.N. peacekeeping assessments to
27.1%.6
6 For more information, see CRS Report RL33611, United Nations System Funding: Congressional Issues, by Marjorie
Ann Browne and Kennon H. Nakamura.
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Contributions to International Organizations (CIO)
CIO provides funds for U.S. membership in numerous international organizations and for
multilateral foreign policy activities that transcend bilateral issues, such as human rights.
Maintaining a membership in international organizations, the Administration argues, benefits the
United States by advancing U.S. interests and principles while sharing the costs with other
countries. Payments to the United Nations and its affiliated agencies, the Inter-American
Organization, as well as other regional and international organizations, are included in this
account.
The President’s FY2009 request totals $1,529.4 million for this account, representing a 13.8%
increase over the estimated FY2008 level of $1,343.4 million, after rescissions.
Contributions to International Peacekeeping Activities (CIPA)
The United States supports multilateral peacekeeping efforts around the world through payment
of its share of the U.N. assessed peacekeeping budget. The President’s FY2009 request totals
$1,497.0 million. This represents an 11.4% decline from the FY2008 estimated level of $1,690.5
million, including supplementals and rescissions. This account received $468.0 million in the
FY2008 emergency supplemental, $390.0 million of which was designated for the U.N. mission
in Darfur.
International Commissions
The International Commissions account (in the State Department budget, but not in the 150
account) includes the U.S.-Mexico Boundary and Water Commission, the International Fisheries
Commission, the International Boundary Commission, the International Joint Commission, and
the Border Environment Cooperation Commission. The FY2009 request of $110.0 million
represents a 29.1% decrease over the FY2008 estimate of $155.1 million.
Related State Department Appropriations
The Asia Foundation
The Asia Foundation is a private, nonprofit organization that supports efforts to strengthen
democratic processes and institutions in Asia, open markets, and improve U.S.-Asian cooperation.
The Foundation receives both government and private sector contributions. Government funds for
the Asia Foundation are appropriated to, and pass through, the State Department. The
Administration request for FY2009 is $10 million, the same as requested a year earlier, but 35.1%
below the estimated FY2008 appropriated level of $15.4 million (with rescissions).
The International Center for Middle Eastern-Western Dialogue Trust Fund
Through funded research, collaborative studies, training, conferences, and policy discussions, the
Center, a U.S. NGO, seeks to encourage mutual understanding among people who share a
Western European tradition, and the peoples of Southeast Europe, the Near and Middle East, and
Central Asia, who share cultural and religious traditions of those areas of the world. Conferees
added language in the FY2004 conference agreement for the Consolidated Appropriations Act,
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FY2004, to establish a permanent trust fund for the International Center for Middle Eastern-
Western Dialogue. The act (P.L. 108-199) authorized $6.9 million for perpetual operation of the
Center, which is to be located in Istanbul, Turkey. From FY2004 to FY2006, appropriations
provided $18.75 million as seed money. The Center’s funds each year are the total amount of
interest and earnings from the Trust. The Administration requested spending $875,000 of interest
and earnings from the Trust Fund for program funding in FY2009. For FY2008, the
Administration requested appropriation authority to spend $875,000 of interest and earnings from
the Trust Fund to be used for programming activities and conferences at the Center, but got
$868,000 after rescissions. The FY2009 request is for $875,000.
National Endowment for Democracy (NED)
The National Endowment for Democracy, a private nonprofit organization established during the
Reagan Administration, supports programs to strengthen democratic institutions in more than 90
countries around the world. NED proponents assert that many of its accomplishments are possible
because it is not a government agency. NED’s critics claim that it duplicates U.S. government
democracy programs and either could be eliminated or could operate entirely with private
funding.
The Administration’s FY2009 budget request of $80 million for NED is the same as its FY2005,
FY2006, FY2007 and FY2008 requests. The FY2009 NED request, located within the State
Department portion of the international affairs budget request, represents an 19.4% decrease from
the enacted $99.2 million (after rescissions) for FY2008. The 109th Congress created a
Democracy Fund in the FY2006 Foreign Operations Appropriations (P.L. 109-102) where
Congress locates the NED appropriation.
East-West Center
The Center for Cultural and Technical Interchange between East and West (East-West Center),
located in Honolulu, Hawaii, was established in 1960 by Congress to promote understanding and
cooperation among the governments and peoples of the Asia/Pacific region and the United States.
The Administration’s FY2009 request is for $10 million for the East-West Center, a decrease of
48.2% from the FY2008 funding estimate of $19.3 million (including rescissions). The FY2007
actual funding level is $19 million.
At one time, Congress also appropriated funds for the North-South Center. The Center for
Cultural and Technical Interchange between North and South (North-South Center) is a national
educational institution in Miami, Florida, closely affiliated with the University of Miami. It was
established to promote better relations, commerce, and understanding among the nations of North
America, South America and the Caribbean. The North-South Center began receiving a direct
subsidy from the federal government in 1991. Congress has not funded the North-South Center
since FY2001, noting that it should be funded by the private sector.
U.S. Institute of Peace
The U.S. Institute of Peace (USIP) was established in 1984 by the U.S. Institute of Peace Act,
(Title XVII of the Defense Authorization Act of 1985 P.L. 98-525). USIP’s mission is to promote
international peace through activities such as educational programs, conferences and workshops,
professional training, applied research, and dialogue facilitation in the United States and abroad.
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Prior to the FY2005 budget, USIP funding came from the Labor, HHS, Education and Related
Agencies appropriation. In the FY2005 budget process, it was transferred to the Commerce,
Justice, State and related agencies appropriation primarily for relevancy reasons.
For FY2009, the Administration is requesting $33 million, up $8.2 million (33%) from the
FY2008 estimated level of $24.79 million, after rescissions.
Broadcasting Board of Governors
The United States International Broadcasting Act of 19947 reorganized within USIA all U.S.
government international broadcasting, including Voice of America radio and television (VOA),
Broadcasting to Cuba, Radio Free Europe/Radio Liberty (RFE/RL), Radio Free Asia (RFA), and
the Middle East Broadcasting Network. The 1994 act established the Broadcasting Board of
Governors (BBG) to oversee all U.S. government broadcasting; abolished the Board for
International Broadcasting (BIB), the administering body of RFE/RL; and recommended that
RFE/RL be privatized by December 31, 1999. This recommendation was repealed in 1999 by P.L.
106-113.
In 1999 the functions and staff of the United States Information Agency (USIA) and the Arms
Control and Disarmament Agency (ACDA) were incorporated into the Department of State.
Congress, however, also left the U.S. civilian international broadcasting function outside of State
and kept the function under an independent agency, the Broadcasting Board of Governors (BBG)
to maintain broadcasting’s independence and integrity.8 The BBG funds the VOA radio and
television, Broadcasting to Cuba, RFE/RL, RFA, and the Middle East Broadcasting Networks
(including Alhurra, Alhurra-Iraq, Alhurra-Europe, and Radio Sawa). BBG programming is
broadcast to the world through radio, television, the Internet, and other media in 60 languages.
The Administration’s FY2009 funding request for the BBG is $699.5 million or $17.5 million
above the FY2008 appropriated figure of $682.0, a 3 percent increase. The BBG budget is
composed of three elements: the International Broadcasting Operations, Broadcasting to Cuba,
and Broadcasting Capital Improvements.
The FY2009 request for the International Broadcasting Operations portion, the largest of the three
parts of the BBG budget, is $653.8 million. This is $17.5 million below the FY2008 estimated
funding of $671.3 million or a reduction of about 3 percent. Even with reduced funding, the
Administration proposes to enhance VOA broadcasts to Somalia and the Horn of Africa, and start
a new RFE/RL surrogate Azerbaijani broadcast to Iran. The Administration also seeks to
strengthen VOA, RFE/RL, and RFA Internet capability, and improve Alhurra’s television
7 Title III of the Foreign Relations Authorization Act, Fiscal Years 1994 and 1995; P.L. 103-236.
8 The Statement of Managers in Conference Report 105-825, which accompanied H.R. 4328, Making Omnibus
Consolidated and Emergency Supplemental Appropriations for Fiscal Year 1999, contained two paragraphs discussing
Congressional intent regarding all of Division G, the Foreign Affairs Reform and Restructuring Act of 1998. Earlier on
April 28, 1998, the Congress cleared for the White House, H.R. 1757, the Foreign Affairs Reform and Restructuring
Act of 1998. On October 21, 1998, the President signed H.R. 4328, and vetoed H.R. 1757. Both bills pertained to the
abolition of the same foreign affairs agencies, and the transfer of the agency’s functions, personnel and appropriations
to the Department of State. The Conference Report, 105-432, which accompanied the bill, H.R. 1757, contains a more
detailed discussion than Report 105-825, of the intentions of Congress regarding the relationship between U.S.-
supported international broadcasting activities and the Department of State. See Conference Report 105-432, pp. 125-
130.
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production capability. These new initiatives total $8.5 million. In the other portions of the BBG,
the Administration’s FY2009 request is $34.4 million for Cuba Broadcasting and $11.3 million
for Broadcasting Capital Improvements, an increase above FY2008 of $635,000.
While realizing the importance and necessity of voice broadcasting especially in some areas of
the world, the BBG notes that one of its highest priorities is to strengthen its capabilities in
television and the Internet to accommodate the changing nature of communications in the world.9
It proposes reallocating language service radio staff to Web positions and shifting radio
transmission funding to the Internet programs and television broadcasting.10 In order to fund these
new initiatives with a reduced resource-request, the Administration proposes to eliminate
RFE/RL’s South Slavic (Serbian, Bosnian, and Macedonian) and Albanian language
programming, and reduce funding in several other areas.11 In FY2008, BBG proposed to reduce
or eliminate radio broadcasting in a number of services, including Cantonese, Ukrainian, Tibetan,
Portuguese to Africa, Romanian, and Kazakh, as well as broadcasts in Hindi, Russian, English,
Croatian, Greek, and Thai. This effort was stopped by an infusion of $12 million in emergency
supplemental funding in the Consolidated Appropriations Act, 2008 (P.L. 110-161). The FY2009
request assumes that this funding support would not continue in FY2009, and proposes to
implement most of the language service reductions proposed in the FY2008 request by September
30, 2008.12 The recent fighting between Russia and Georgia refocused attention on BBG plans to
end Voice of America (VOA) radio broadcasting to these countries. Critics of the reallocation of
resources to other areas and new technologies point to the fighting and the coverage in the
Russian press as an example of the need for such broadcasting. BBG states that broadcasting
hours were increased to Georgia through the use of VOA-FM, Radio Free Europe/Radio Liberty
(RFE/RL), and the use of the Internet.
FY2009 Budget Request: Foreign Operations
The Foreign Operations budget comprises the majority of U.S. foreign assistance programs, both
bilateral and multilateral. (See tables at the back of this report for Foreign Operations accounts
and funding levels.) The annual Foreign Operations Appropriations bill funds all U.S. bilateral
development assistance programs, managed mostly by USAID and the State Department, together
with several smaller independent foreign aid agencies such as the Millennium Challenge
Corporation, the Peace Corps, and the Inter-American and African Development Foundations. It
supports U.S. obligations to major multilateral financial institutions, such as the World Bank, and
United Nations activities, such as UNICEF. The Foreign Operations appropriation also includes
funds for the Export-Import Bank, whose activities are regarded more as trade promotion than
foreign aid. On occasion, the bill replenishes U.S. financial commitments to international
financial institutions, such as the World Bank and the International Monetary Fund. International
food aid, such as the P.L. 480 Food for Peace program, however, is funded in the Agriculture
Appropriations bill, although it is also considered foreign aid. The FY2009 request for food aid
programs totals $1.326 billion.
9 Broadcasting Board of Governors, “Internet Programing,” Fiscal Year 2009 Budget Request, Washington, D.C. p. 1.
10 Ibid.
11 Broadcasting Board of Governors, “Executive Summary,” Fiscal Year 2009 Budget Request, Washington, D.C. p. 4.
12 Ibid.
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The regular foreign operations budget request for FY2009 totals $26.1 billion13 in foreign
assistance programs, representing a 8.8% increase from the previous year’s enacted level of $24.0
billion, excluding recent supplemental funds. This increase is larger than the overall FY2009
budget increase of 4.9%, and continues the general trend of foreign aid increases since September
11, 2001. Table 5 and Figure 4 provide funding levels, including supplementals and rescissions,
for foreign operations since FY1999 in both current and constant dollars. Since 1999, foreign aid
funding increased by nearly 86% in current dollars, but by 43% in constant dollars.
Table 5. Foreign Operations Appropriations, FY1999-FY2009
(discretionary budget authority in billions of current and constant dollars)
FY08
FY09
FY99 FY00 FY01 FY02 FY03 FY04 FY05 FY06 FY07 est.
req.
Current
$ 15.44 16.41 16.31 16.54 23.67 39.05 23.45 23.13 26.38 27.22 26.14
Constant
20.08 20.80 20.20 20.11 28.03 44.93 26.03 24.83 27.71 27.84 26.14
2009 $
Source: The Foreign Operations Congressional Budget Justification, FY2001-FY2009 and CRS calculations.
Notes: Figures for FY2009 are requested amounts. Amounts do not include mandatory Foreign Service
retirement accounts that total $34.6 million in FY2009. Figures for FY2008 are Administration estimates.
Current dollars for FY2004 include $18.4 billion for Iraq Relief and Reconstruction Fund (IRRF). Without IRRF,
the current dollars for that year would have been $20.65 billion, $18.28 billion in constant dollars. For FY2003,
IRRF amounted to $2.5 billion, so FY2003 current dollars without IRRF would have totaled $21.17 billion with
current dollars being $19.28 billion. FY1999 excludes $17.61 billion for the IMF. All figures, except FY2009
request, include regular and supplemental appropriations, including supplemental funding in P.L. 110-252, passed
in June 2008. The Act also provided FY2009 supplemental funds of $2.64 billion for Foreign Operations, not
included in the table.
13 This does not include the mandatory Foreign Service Retirement and Disability Account, that totals $36 million for
FY2008. The account is included in tables at the end of this report. Note that additional funds are being considered by
Congress in a supplemental appropriation bill (H.R. 2642).
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Figure 4. Foreign Operations, FY1999-FY2009($ Billions)
50
45
40
35
30
25
20
15
10
5
0
FY99 FY00 FY01 FY02 FY03 FY04 FY05 FY06 FY07 FY08 FY09
est.
req.
Current $
Constant 2009 $
Source: The Foreign Operations Congressional Budget Justification, FY2001-FY2009 and CRS calculations.
Top Ten U.S. Foreign Aid Recipient Countries
Prior to 9/11 and the wars in Iraq and Afghanistan, Israel and Egypt typically received the first
and second largest amounts of U.S. foreign aid. In recent years, after supplementals are added,
Iraq or Afghanistan have moved Egypt to third or fourth place. Except for FY2004 when funding
to Iraq jumped to more than $18 billion, Israel and Egypt typically are at the top of the list for
receiving the most aid from the United States in recent years. See Table 6 for top U.S. aid
recipients from FY2008 to the FY2009 request.
Table 6. Top Ten Recipients of U.S. Foreign Aid FY2008-FY2009
(appropriation allocations; in billions of current $)
FY2009 Requesta
Israel $2.55
Egypt 1.50
Afghanistan 1.05
Pakistan 0.83
South Africa
0.58
Kenya 0.57
Colombia 0.54
Jordan 0.53
Mexico 0.50
Nigeria 0.49
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FY2008 Estimateb
Afghanistan $2.79
Israel 2.38
Egypt 1.70
Iraq 1.56
Jordan 0.94
Pakistan 0.80
Kenya 0.59
South Africa
0.57
Colombia 0.54
Nigeria 0.49
Ethiopia 0.46
a. Israel, Iraq, Afghanistan, Pakistan, Jordan, and Mexico will receive supplemental funds in P.L. 110-252, which
will likely change this list with FY2009 funding enacted.
b. Includes FY2008 Supplemental Appropriations, including those in P.L. 110-252, enacted on June 30, 2008.
Foreign Aid Reform
Since the terrorist attacks of September 11, 2001, the role of foreign assistance as a tool of foreign
policy has come into sharper focus. President George W. Bush elevated global development as a
third pillar of national security, with defense and diplomacy, as articulated in the U.S. National
Security Strategy of 2002, and reiterated in 2006. At the same time that foreign aid is being
recognized as playing an important role in U.S. foreign policy, it has also come under closer
scrutiny by Congress, largely in response to a number of presidential initiatives, and by critics
who argue that the U.S. foreign aid infrastructure dates back to the Cold War era, is cumbersome
and fragmented, and that a national aid strategy is lacking.
In recent years, several initiatives have heightened congressional interest in, and caused a re-
examination of, U.S. foreign assistance policy and programs, including organizational structure.
In January 2006, Secretary of State Rice announced an initiative to bring coordination and
coherence to U.S. aid programs. The Secretary created a new State Department position—
Director of Foreign Assistance (DFA)—the occupant of which serves concurrently as
Administrator of the U.S. Agency for International Development. A new Bureau of Foreign
Assistance (F Bureau) was created to coordinate assistance programs, led by the DFA, who in
2006, developed a Strategic Framework for Foreign Assistance to align U.S. aid programs with
strategic objectives. The Framework guided the writing of the FY2008 and FY2009 budget
requests.
This year a number of Members of Congress and nongovernmental organizations have indicated
an interest in exploring greater reforms including the establishment of a national strategy on U.S.
foreign aid policy, elevating the importance of foreign aid as a foreign policy tool to more closely
align with that of diplomacy and defense, and rewriting the Foreign Assistance Act of 1961 to
change the emphasis from the Cold War era to the post-9/11 era, among other things.
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FY2009 Foreign Operations Budget Details
Despite a proposed 8.8% increase in the Bush Administration’s FY2009 regular foreign aid
budget request, most of the additional funds are concentrated in a few areas. The FY2009 budget
continues to focus on the war on terrorism and reconstruction in Afghanistan and Iraq, as well as
assistance to front-line states. Other areas that would see significant increases include two of the
President’s cornerstone initiatives—the Millennium Challenge Corporation (up 44%) and the
President’s Malaria Initiative (up 9.3%). The President’s Emergency Plan for AIDS Relief
(PEPFAR), which in the past also addressed treatment and prevention of malaria, increased by
.5%. Africa and the Near East continue to see higher levels of assistance than other regions, but
for Africa, most of the funds are concentrated in HIV/AIDS programs, with other types of
assistance, such as basic education, decreasing. For the Near East, the aid increases are primarily
for Iraq reconstruction. (See Appendix D for account-by-account funding levels for FY2007,
FY2008 estimates, and the FY2009 request.)
Major Changes
The Bush Administration’s FY2009 foreign aid request would increase the Millennium Challenge
Corporation by 44%, the International Narcotics Control and Law Enforcement by116%, the
Andean Counterdrug Program by 27%, and Debt Restructuring by 368%. Smaller increases in the
budget request include the Child Survival and Health Programs (CSH) up 16%, the Economic
Support Fund (ESF) up 5.5%, Peace Corps up 3.8%, the Global HIV/AIDS Initiative (GHAI) up
2.5%, and Nonproliferation, Anti-Terrorism, Demining, and Related Programs (NADR) up 3.3%.
The Administration’s FY2009 foreign aid budget request would reduce some programs from the
FY2008 level, including International Disaster Assistance (IDA), down 30.6%, Migration and
Refugee Assistance (MRA), down 25.3%, and Peacekeeping Operations (PKO), down 5.4%. The
Administration has requested FY2009 supplemental funds which include additional funding for
IDA, MRA, and PKO, however.
Regional Distribution
Comparing the FY2009 request to the FY2008 funding estimates, Figure 5 shows that U.S.
foreign assistance would increase to all regions except East Asia and Pacific (EAP), which would
decline by 18.7% and Europe (EUR), which would decline by 6.4%. The EAP decline is due in
part to accounting—the Administration moved some funds to the Department of State budget and
others to USAID’s global programs. The decline in aid to Europe reflects the graduation from
development assistance of 11 countries in the region and the critical need for aid elsewhere in the
world.
The Western Hemisphere (WH) region would receive more U.S. aid in the FY2009 request than
any other region—up by 39.7% over the FY2008 estimates. The increase is largely due to the
Mérida Initiative which, for Mexico, includes $477.8 million in the FY2009 request, up from
$26.6 million the year before. Without Mérida, the funding level would be similar to that of the
previous year.
Africa would benefit from a 2% increase in FY2009, with no increase over the FY2008 level in
Global HIV/AIDS (GHAI) funds. (In FY2008, GHAI funds to Africa increased by 39%, with
other programs reduced.) South and Central Asia would see a increase of nearly 3.3% in FY2009,
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20
State, Foreign Operations, and Related Programs: FY2009 Appropriations
largely due to increased ESF assistance to Pakistan. The Near East would receive a 5.1%
increase, mainly due to Iraq assistance.
Figure 5. Regional Distribution of Foreign Aid
6
s
n 5
llio
4
Bi
in
. $ 3
S
t U. 2
n
rre 1
Cu
0
Africa
EAP
EUR
NE
SCA
WH
FY2007
FY2008
FY2009
Source: Foreign Operations Congressional Budget Justification, FY2009.
Note: EAP=East Asia and Pacific; EUR=Europe and Eurasia; NE=Near East; SCA=South and Central Asia;
LAC=Latin American and Caribbean=Western Hemisphere.
Sector Distribution
Over the years, Congress has expressed interest in various aid sectors, such as education,
democracy, human rights, trade, maternal and child health, family planning and reproductive
health, agriculture and environment. Table 7 provides FY2008 funding estimates and the FY2009
budget request for many of these sectors. Some sectors are cut significantly by the FY2009
request, as listed below, while others receive sizeable increases. Increases in counter narcotics
programs in the regular budget request are up 54.3%, for example. Establishment of the Mérida
Initiative, a program that supports Mexico and Central America in combating drug activity
throughout the region, is the primary reason for the large increase in the counter narcotics sector.
In addition to the FY2009 request for Merida funds, the FY2008 supplemental request includes
$500 million for Mexico and $50 million for Central America for the Mérida Initiative.
Another key country receiving increased counter-narcotics support is Pakistan, under the
President’s commitment to support the Federally Administered Tribal Areas.14 The FY2009
budget reflects decreases in global health-related programs, including a decline in funding for
tuberculosis, maternal and child health, family planning and reproductive health, and water
supply and sanitation.15 The FY2009 request also decreases funding levels for education and civil
society.
14 Foreign Operations Congressional Budget Justification for FY2009, Department of State, p. 791.
15 Ibid., pp. 815, 818, 820, and 822.
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State, Foreign Operations, and Related Programs: FY2009 Appropriations
Table 7. Selected Sector Funding, FY2008 Estimate and
FY2009 Request
(millions of current U.S. dollars)
Sector
FY2008 Estimate
FY2009 Request
% Change
Good Governance
371.3
533.3
43.6%
Rule of law and Human Rights
396.1
475.2
20.0%
Health 7,168.1
6,837.9
–4.6%
Counter-narcotics 897.7
1,385.4
54.3%
Education 850.5
757.9
–10.9%
Trade and Investment
177.2
237.5
34.0%
Agriculture 413.3
522.5
26.4%
Environment 329.4
333.2
1.2%
Counter-terrorism 170.5
191.1
12.1%
Civil Society
436.1
398.0
–8.7%
Source: U.S. Department of State Foreign Operations Congressional Budget Justification, FY2009, p. 783, and
CRS calculations.
Mérida Initiative
In October 2007, the United States and Mexico announced the Mérida Initiative, a multi-year
proposal for $1.4 billion in U.S. assistance to Mexico and Central America aimed at combating
drug trafficking, gangs, and organized crime. The first year of funding for this initiative—$500
million for Mexico and $50 million for Central American countries—is included in the
Administration’s FY2008 supplemental appropriation request. In latest legislative actions, on
June 19 and 26, 2008, the House and Senate approved compromise language on the FY2008
supplemental, H.R. 2642, that would provide $465 million in FY2008 supplemental and FY2009
supplemental assistance for the Mérida Initiative, with softened human rights conditions
compared to earlier House and Senate versions. For Mexico, $400 million would be provided,
with $352 million in FY2008 supplemental assistance (within the INCLE, FMF, and ESF
accounts) and $48 million in FY2009 supplemental assistance (within the INCLE account). For
Central America, $65 million would be provided for Central America, Haiti, and the Dominican
Republic (within the INCLE, NADR, ESF, and FMF accounts), with Haiti and the Dominican
Republic receiving $2.5 million each in FY2008 INCLE funding and none for FY2009.
The FY2009 budget request also includes another $550 million—$450 million for Mexico and
$100 million for Central American countries—within the INCLE account.16
HIV/AIDS
In launching in 2003 the President’s Emergency Plan for AIDS Relief (PEPFAR), President Bush
pledged to provide this five-year initiative with a total of $15 billion by FY2008. Congress
16 For more detail on this issue, see CRS Report RS22837, Merida Initiative: U.S. Anticrime and Counterdrug
Assistance for Mexico and Central America, by Colleen W. Cook and Clare Ribando Seelke, updated regularly.
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State, Foreign Operations, and Related Programs: FY2009 Appropriations
appropriated an estimated $5.97 billion in FY2008 which met total pledged funding over the five
year period. On May 30, 2007, President Bush announced a follow-on plan to provide a total of
$30 billion through FY2013. The FY2009 request of $6.0 billion begins the new five-year $30
billion program. Of the $6.0 billion requested, $4.8 billion is within the Department of State
budget and $439.1 million is within USAID’s budget. The remaining funds are within the
Department of Health and Human Services.17
Malaria
The President’s Malaria Initiative was announced in 2006 to provide an increased focus on
malaria, pledging that the United States would spend an additional $1.2 billion over a five-year
period (FY2006-FY2010). Congress appropriated $122 million in FY2006 and $248 million in
FY2007. The President’s request for FY2008 is $388 million, keeping the pledge on target.
Including supplementals and rescissions, Congress provided $352 million for PMI in FY2008.
The FY2009 request is $385 million, within the Child Survival and Health Programs account.
MCC
In announcing the creation of the new independent Millennium Challenge Corporation (MCC),
the President pledged $5 billion annual funding by FY2006. In fact, requests have never topped
$3 billion a year. Congress has consistently cut the MCC request with some Members expressing
concern that the program was slow to get started, and has not disbursed much of its existing
funding. In the FY2008 Consolidated Appropriations Act (P.L. 110-161, H.R. 2764), Congress
provided $1.544 billion, almost half of the Administration’s request. The FY2009 MCC budget
request is for $2.225 billion, reflecting a 44% increase over the FY2008 level.18
Use of Supplementals
Supplemental resources for Foreign Operations programs, which in FY2004 exceeded regular
Foreign Operations funding, have become a significant source of funds for U.S. international
activities, especially those related to reconstruction efforts in Iraq and Afghanistan. Supplemental
appropriations bills have often been used as vehicles to provide additional funding to respond to
unanticipated emergencies or natural disasters.
There has been some criticism that the Administration has relied too heavily on supplementals,
keeping funds off budget and difficult for year-to-year comparisons or future-year planning.
Some supplemental appropriations, particularly those relating to Iraq, should be incorporated into
the regular appropriations cycle if they are going to be on an annual basis, according to critics.
The Administration counters that given the nature of rapidly changing overseas events and
unforeseen emergencies, it is necessary to make supplemental requests for unexpected and non-
recurring expenses.
17 For more information see CRS Report RL33396, The Global Fund to Fight AIDS, Tuberculosis, and Malaria:
Progress Report and Issues for Congress, by Tiaji Salaam-Blyther, updated regularly.
18 For more information on MCC, see CRS Report RL32427, Millennium Challenge Account, by Curt Tarnoff, updated
regularly.
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State, Foreign Operations, and Related Programs: FY2009 Appropriations
Iraq and Afghanistan Share of Total Aid Budget
Including both base budgets and supplemental appropriations, the share of U.S. bilateral foreign
assistance going to Iraq and Afghanistan has increased sharply since FY2002. Foreign aid to
Afghanistan mushroomed from $590 million in FY2003 to $1.799 billion the next year. For Iraq,
assistance consisted of small sums to support Iraqi opposition groups in the early 2000s, but
picked up precipitously in FY2004 to more than $17 billion, and then fell to $1.6 billion in
FY2006 and roughly $2.2 billion in FY2007. Table 8 tracks funding to both countries from
FY2002 through the FY2009 and includes both regular budgets and supplemental funds. Amounts
for FY2009 represent requested amounts.
FY2007 regular and supplemental funding for Iraq and Afghanistan together comprises about
16% of total foreign aid spending. The share of the FY2008 budget is just under 13%. The
FY2009 aid requested for Iraq and Afghanistan, before supplementals, is 5.3%.
Table 8. Funding for Iraq and Afghanistan, FY2002-FY2009
(millions of current U.S. dollars)
FY02 FY03 FY04 FY05 FY06 FY07 FY08 FY09
Iraq
25.0 2,890.0 17,849.5
27.7 1,657.7 2,159.9 844.5 397.0
Afghan.
686.1 589.6 1,798.7 2,674.1 967.8 1,827.8 2,795.9 1,054.0
Source: U.S. Department of State, Foreign Operations Congressional Budget Justifications, FY2004 through
FY2008, and CRS calculations. Figures here do not include Department of Defense funds. For more information,
see CRS Report RL31833, Iraq: Reconstruction Assistance, by Curt Tarnoff, and CRS Report RL30588,
Afghanistan: Post-Taliban Governance, Security, and U.S. Policy, by Kenneth Katzman.
Note: Figures for FY2008 include supplemental funding in P.L. 110-252; also enacted in P.L. 110-252, but not
included above, are FY2009 supplemental funds of $107 million for Iraq and $455 million for Afghanistan.
Congressional Research Service
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State, Foreign Operations, and Related Programs: FY2009 Appropriations
Appendix A. Abbreviations
Funding Accounts:
ACI
Andean Counterdrug Initiative
CSH
Child Survival and Health
DA Development
Assistance
DF Democracy
Fund
ERMA
Emergency Refugee and Migration Assistance
ESF
Economic Support Fund
FMF Foreign
Military
Financing
FSA
Freedom Support Act—Assistance to the Independent States of the Former Soviet Union
GHAI
Global HIV/AIDS Initiative
IDFA
International Disaster and Famine Assistance
IMET
International Military Education and Training
INCLE
International Narcotics Control and Law Enforcement
MCC Millennium
Challenge
Corporation
MRA
Migration and Refugee Assistance
NADR
Non-proliferation, Anti-Terrorism, Demining, and Related Programs
PEPFAR
President’s Emergency Plan For AIDS Relief
PKO Peacekeeping
Operations
PL 480
Food aid
PMI
President’s Malaria Initiative
SEED
Support for Eastern European Democracy Act—Assistance for Eastern Europe and the Baltic States
TI Transition
Initiatives
Other:
DFA
Director of Foreign Assistance
AFR Africa
EAP
East Asia and Pacific
EUR
Europe and Eurasia
LAC
Latin America and Caribbean
NE Near
East
SCA
South and Central Asia
USAID
U.S. Agency for International Development
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State, Foreign Operations, and Related Programs: FY2009 Appropriations
Appendix B. Foreign Aid Country Categories
Rebuilding: Countries in or emerging from internal or external conflict.
Afghanistan Lebanon
Colombia Liberia
Cote d’Ivoire
Nepal
Democratic Republic of the Congo
Sierra Leone
Haiti
Somalia
Iraq
Sudan
Kosovo
Transforming: Low or lower-middle income, meeting performance criteria.
Benin Mali
Bolivia Mongolia
Brazil Mozambique
Bulgaria Namibia
East Timor
Nicaragua
El Salvador
Philippines
Gambia Samoa
Ghana Sri
Lanka
Honduras Tanzania
India Thailand
Lesotho Uruguay
Madagascar Vanuatu
Sustaining Partnership: Upper-middle income; aid sustains partnerships.
Argentina Marshall
Islands
Bahamas Mauritius
Bahrain Mexico
Belize Oman
Botswana Panama
Chile Poland
Costa Rica
Portugal
Croatia Qatar
Cyprus Russia
Czech Republic
Saudi Arabia
Eastern Caribbean
Seychel es
Equatorial Guinea
Singapore
Estonia Slovakia
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State, Foreign Operations, and Related Programs: FY2009 Appropriations
Gabon Slovenia
Greece South
Africa
Hungary Taiwan
Ireland
Trinidad & Tobago
Israel Turkey
Kuwait United
Arab
Emirates
Latvia
Developing: Low or lower-middle income, not yet meeting performance criteria.
Albania Laos
Algeria Macedonia
Angola Malawi
Armenia Maldives
Azerbaijan Mauritania
Bangladesh Moldova
Bosnia and Herzegovina
Montenegro
Burkina Faso
Morocco
Burundi Niger
Cambodia Nigeria
Cameroon Pakistan
Cape Verde
Papua New Guinea
Central African Republic
Paraguay
Chad Peru
Comoros
Republic of the Congo
Djibouti Romania
Dominican Republic
Senegal
Ecuador Serbia
Egypt Solomon
Islands
Ethiopia Suriname
Fiji Swaziland
Georgia Tajikistan
Guatemala Togo
Guinea Tonga
Guinea-Bissau Tunisia
Guyana Turkmenistan
Indonesia Uganda
Jamaica Ukraine
Jordan Uzbekistan
Kazakhstan Vietnam
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State, Foreign Operations, and Related Programs: FY2009 Appropriations
Albania Laos
Kenya Yemen
Kyrgyz Republic
Zambia
Restrictive: Significant freedom and human rights issues; legislative and/or Secretarial-
designated limitations on assistance.
The Restrictive country category includes those countries that have restrictions on the receipt of
U.S. assistance either by statute or Secretarial determination. The State Department does not
provide a list of restrictive countries, although the FY2008 Foreign Operations Congressional
Budget Justification lists certain countries with no categorization: Belarus; Burma; China; Cuba;
Iran; Libya; North Korea; Venezuela; West Bank and Gaza; and Zimbabwe.
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Appendix C. State Department and Related Agencies Appropriations
(millions of current dollars)
Enacted
Enacted
FY2008
FY2009
FY2009 as
FY2007
FY2008
Supp
Supp
FY2009
% +/-
FY2009
Enacted
Actuala
Estimatea
P.L. 110-252 P.L. 110-252
Request
FY2008 est.
Senate
2009
Title I State Department and Related Agencies
Diplomatic & Consular Program
$5,201.6
$5,322.7
$1,465.7
$744.9
$5,364.3
0.7%
$4.152.5
$4,243.3
Public
Diplomacy
($329.7)
($575.0)
—
—
Worldwide Security Upgrades
($778.4)
($968.5)
($1,162.8)
20.0%
$1,137.5
$1,117.0
Capital Investment Fund
$58.1
$59.6
$71.0
19.1%
$71.0
$71.0
Embassy
security/constr/maintenance
$1,490.9 $1,425.6 $160.0
$41.3 $1,789.7
25.5%
$1,630.0 $1,706.5
Worldwide security upgrades
($898.6)
($670.5)
($948.4)
41.4%
($830.0)
($770.0)
Civilian Stabilization Initiative
—
—
$248.6
—
$115.0
$45.0
Office
of
Inspector
General
$31.4 $33.7
$57.0 $35.5 5.3%
$40.0 $37.0
Ed & cultural exchange programs
$465.7
$501.3
$522.4
4.2%
$545.3
$538.0
Representation
allowances
$8.2 $8.1
$8.2 1.2%
$8.2 $8.2
Protection of foreign missions & officials
$9.3
$22.8
$18.0
–21.1%
$12.0
$22.8
Emergency-diplomatic & consular services
$13.4
$8.9
$19.0
113.5%
$9.0
$9.0
Buying
Power
and
Maintenance
— — — — — — — $5.0
Repatriation
loans
$1.3 $1.3
$1.4 3.7%
$1.4 $1.4
Payment American Institute Taiwan
$15.8
$16.2
$16.8
3.7%
$16.8
$16.8
Foreign Service Retirement Fund (mandatory)
$126.4
$158.9
$122.5
—
$157.1
$157.1
Total,
Administration
of
Foreign
Affairs
$7,422.1 $7,559.1 $1,868.0 $843.2 $8,217.4
9.2%
$8,035.9 $7,978.1
International Organ. & Conf.
Contributions to international organizations
$1,201.3
$1,343.4
$53.0
$75.0
$1,529.4
13.8%
$1,529.4
$1,529.4
Contributions to international peacekeeping
$1,418.3
$1,690.5 $333.6 $150.5
$1,497.0 11.4%
$1,650.0
$1,517.0
Total International Organ. & Conf.
$2,619.6
$3,033.9
$386.6
$225.5
$3,026.4
–0.2%
$3,179.4
$3,046.4
CRS-29
Enacted
Enacted
FY2008
FY2009
FY2009 as
FY2007
FY2008
Supp
Supp
FY2009
% +/-
FY2009
Enacted
Actuala
Estimatea
P.L. 110-252 P.L. 110-252
Request
FY2008 est.
Senate
2009
Total International Commissions
$67.3
$155.1
—
—
$110.0
–29.1%
$125.9
$117.1
Related Appropriations
Int’l
Cntr
for
Middle
East-West
Dialogue-Trust
— — — — — — — —
Int’l Cntr for Middle East-West Dialogue Program
$0.7
$0.9
—
—
$0.9
—
$0.9
$0.9
Asia
Foundation
$13.8 $15.4 —
— $10.0 –35.1%
$16.0 $16.0
National Endowment for Democracyb $74.0
—
—
$80.0
–19.4%
$120.0
$115.0
East-West
Center
$19.0 $19.3 —
— $10.0 –48.2%
$22.0 $21.0
Eisenhower
Exchange
$0.5 $0.5 — — $0.5 — $0.5 $0.5
Israeli Arab Scholarship
$0.4
$0.4
—
—
$0.4
—
$0.4
$0.4
Total
Related
Appropriations
$108.4 $36.5 —
— $101.8 –25.0%
$159.8 $153.8
Total State Department
$10,217.4
$10,784.6
$1,991.6
$1,068.7
$11,455.6
5.6%
$12,225.3
$11,295.4
International Broadcasting
Broadcasting
Operations
$649.1 $671.3 $2.0 $6.0 $688.2
2.5%
$682.1 $698.2
Capital
Improvements
$7.6 $10.7 —
— $11.3 6.6%
$11.3 $11.3
Broadcasting to Cuba
($33.6)
($38.7)
—
—
($34.4)
2.1%
—
—
Total
International
Broadcasting
$656.7 $682.0 $2.0
$6.0 $699.5
2.6%
$682.1 $709.5
Related Independent Agencies
Comm for Preservation America’s Heritage Abroad
$0.5
$0.5
—
—
$0.6
20.0%
$0.6
$0.6
Commission on International Religious Freedom
$3.0
$3.3
—
—
$4.0
21.2%
$4.0
$4.0
Commission on Security and Cooperation in Europe
$2.0
$2.4
—
—
$2.6
8.3%
$2.6
$2.6
Congress-Executive Comm. People’s Rep. of China
$6.0
$2.4
—
—
$2.0
—
$2.0
$2.0
US-China Economic & Security Review Comm
$3.0
$4.0
—
—
$4.0
—
$1.0
$4.0
US Senate Interparliamentary Groups
$0.1
$0.1
—
—
—
—
$0.2
$0.2
US Institute of Peace
$22.1
$24.8
—
—
$33.0
33.1%
$31.0
$31.0
CRS-30
Enacted
Enacted
FY2008
FY2009
FY2009 as
FY2007
FY2008
Supp
Supp
FY2009
% +/-
FY2009
Enacted
Actuala
Estimatea
P.L. 110-252 P.L. 110-252
Request
FY2008 est.
Senate
2009
Total Related Independent Agencies
$36.7
$37.5
— —
$46.2 33.1%
$41.4 $44.4
TOTAL Title I State/Broadcasting/Related Agencies
$10,910.8
$11,504.1
$1,993.6
$174.7
$12,201.3
6.1%
$12,235.7
$12,049.1
a. FY2007 actuals and FY2008 estimates include regular and supplementals included in Div. J, P.L. 110-161, as wel as a rescission of 0.81% for FY2008.
b. The National Endowment for Democracy is in the Foreign Operations portion of the bill under the Democracy Fund.
CRS-31
Appendix D. Foreign Operations Appropriations19
(millions of current dollars)
Enacted
Enacted
FY2009
FY2009
FY2007
FY2008
FY2008 Supp
Supp
FY2009
FY2009 as %
Actuala
estimatea
P.L. 110-252
P.L. 110-252
Request
+/- FY2008
Senate
Enacted 2009
Export-Import Bank (net)
$38.0
($0.1)
—
—
($40.0)
150.0%
($40.0)
($40.0)
Overseas Private
Investment Corporation
(net) ($192.0)
($166.6)
—
—
($170.0)
3.0%
($170.0)
($170.0)
Trade & Development
Agency $50.4
$49.9
—
—
$50.8
1.6%
$50.8
$50.8
Subtotal, Title II Export
Aid ($103.6)
($116.8)
— —
($159.2) 2.4%
($159.2)
($159.2)
Child Survival & Health
(Global Health)b
$1,901.4 [$1,829.2]
—
75.0
$1,577.8
15.9% $1,961.0 $1,955.0
Development
Assistance
$1,508.8 $1,623.6
—
200.0 $1,639.1
1.0%
$1,850.0 $1,800.0
International Disaster &
Famine Assistance
$526.4
$429.7
220.0
200.0
$298.1
-30.6%
$450.0
$350.0
Transition Initiatives
$39.6
$44.6
—
—
$40.0
-10.3%
$50.0
$50.0
Development Credit
Authority $7.9
$8.1
—
—
$7.6
-6.1%
$9.0
$8.0
Development Credit
Authority
Subsidy
[$21.0]
[$21.0] — — [$21.0] — [$25.0] —
USAID Operating Expenses
$635.5
$650.7
150.5
93.0
$767.2
17.9%
$817.2
$808.6
Foreign Service Retirement
and
Disability
— — $34.6 — —
Civilian Stabilization
Initiative
— — — — — — — $30.0
19 Note that the titles in the FY2009 Omnibus bill differ from those traditionally followed; title II in the omnibus, for example, is United States Agency for International
Development. All account funding levels and totals in this table are consistent with the enacted bill.
CRS-32
Enacted
Enacted
FY2009
FY2009
FY2007
FY2008
FY2008 Supp
Supp
FY2009
FY2009 as %
Actuala
estimatea
P.L. 110-252
P.L. 110-252
Request
+/- FY2008
Senate
Enacted 2009
USAID Capital Investment
Fund
$69.3 $87.3 — — $171.0 95.9%
$35.8 $35.8
USAID
Inspector
General
$39.3
$37.7 4.0 1.0
$40.6 7.7%
$42.6
$42.6
IG Supplemental FY2008 in
P.L. 110-329
$9.0
International Fund for
Ireland
$13.4
$14.9
— — — — $15.0
Food
Security
— — — — — —
$150.0
—
Economic Support Fund
$5,117.7
$2,975.0
1,882.5
1,124.8
$3,153.7
5.5%
$3,098.9
$3,007.0
ESF Supplemental FY2008
in P.L. 110-329
$465.0
Eastern
Europe
and
Eurasia
$650.0
Eastern Europe & Baltic
States (SEED)
$462.9
$293.6
—
—
$275.6
-6.1%
$661.7
—
Independent States Former
Soviet Union (FSA)
$452.0
$396.5
—
—
$346.1
-12.7%
c —
Inter-American Foundation
$19.3
$20.8
—
—
$20.0
-3.8%
$25.0
$22.5
African Development
Foundation $22.8
$29.8
—
—
$30.0
0.6%
$35.0
$32.5
Peace Corps
$319.7
$330.8
—
—
$343.5
3.8%
$337.0
$340.0
Millennium Challenge
Corporation
$1,752.3
$1,544.4 — —
$2,225.0 44.1%
$254.0
$875.0
Global Health and Child
Survival (State Dept.)
$3,246.5 [$4,661.9]
—
— $4,779.0
2.5% $4,779.0 $5,159.0
Democracy
Fund $354.1
$162.7 76.0 — — — $117.5
$116.0
International Narcotics
Control & Law
Enforcement
$724.6 $553.9 390.3 199.0
$1,202.1 116.0%
$925.0 $875.0
Andean Counterdrug
$721.5
$324.8 — — $406.8 27.2%
$315.0
$315.0
CRS-33
Enacted
Enacted
FY2009
FY2009
FY2007
FY2008
FY2008 Supp
Supp
FY2009
FY2009 as %
Actuala
estimatea
P.L. 110-252
P.L. 110-252
Request
+/- FY2008
Senate
Enacted 2009
Program
Migration & Refugee
Assistance
$963.5
$1,023.2 315.0 350.0 $764.0 -25.3%
$1,100.0 $931.0
Emergency Refugee &
Migration Assistance Fund
$110.0
$44.6
31.0
—
$45.0
0.9%
$50.0
$40.0
Nonproliferation, Anti-
Terrorism,
Demining $463.5 $483.1 13.7
4.5 $499.0
3.3%
$564.0 $525.0
Treasury Department
Technical
Assistance $22.6
$20.2 — — $29.0 43.6%
$29.0
$25.0
Debt Restructuring
$64.4
$30.1
—
—
$141.0
368.4%
$85.0
$60.0
Subtotal, Title III
Bilateral Economic
Assistance
$19,506.3
$17,592.5 3,083.0 2,247.3
$18,795.2
6.9%
$17,741.7
$18,068.0
International Military
Education
&
Training $85.9 $85.2 — — $90.5 62.2%
$91.5 $91.0
Foreign Military Financing
$4,825.8
$4,551.9 137.5 302.5
$4,812.0 5.2%
$4,479.0 $4,635.0
Peacekeeping Operations
$453.3
$261.4 — 95.0
$247.2 -5.4%
$257.2
$250.2
Subtotal, Title IV
Military Assistance
$5,365.0 $4,898.5
137.5
397.5 $5,149.7 5.1%
$4,827.7
$4,976.2
World Bank: Global
Environment Facility
$79.2 $81.1 —
— $80.0 -1.4%
$100.0
$80.0
International Clean
Technology
Fund
— — — —
$400.0
—
$200.0
—
World Bank: Int’l.
Development Association
$940.5
$942.3
—
—
$1,277.0
35.5%
$1,177.0
$1,115.0
World Bank: Multilateral
Investment
Guarantee
Fund
— — — — — — — —
IADB: Enterprise for
Americas
MIF
$1.7
$24.8 — — $25.0 0.8%
— $25.0
IADB: Inter-American
— — — — — — $25.0
—
CRS-34
Enacted
Enacted
FY2009
FY2009
FY2007
FY2008
FY2008 Supp
Supp
FY2009
FY2009 as %
Actuala
estimatea
P.L. 110-252
P.L. 110-252
Request
+/- FY2008
Senate
Enacted 2009
Investment Corporation
Asian Development Bank:
Asian
Development
Fund
$99.0 $74.5 — — $115.2 54.8%
$101.2
$105.0
African
Development
Bank
$3.6
$2.0
— — — —
[$146.1]
—
African Development Fund
$134.3
$134.6
—
—
$156.1
16.0%
$146.1
$150.0
European Bank for
Reconstruction &
Development
— $0.0
— — — — — —
International Fund for
Agricultural Development
$14.9
$17.9
—
—
$18.0
6.0%
$18.0
$18.0
International Organizations &
Programs
$303.9
$316.9 — — $276.9 12.6%
$364.0
$352.5
Subtotal, Title V
Multilateral Assistance
$1,273.2
$1,594.1
— —
$2,348.2 62.2%
$2,131.3
$1,845.5
Foreign
Operations
$26,080.2
$24,471.0 3,220.5 2,644.8
$26,133.9
7.0%
$24,541.5
$24,730.7
State & Broadcasting
Total
$10,896.2
$11,504.1 1,993.6 1,074.7
$12,201.3
5.5%
$12,235.7
$12,049.1
State Dept, Foreign Ops
& Related Agencies Total $36,976.4
$35,975.1
5,214.1
3,719.5
$38,335.2
6.6%
$36,777.2
$36,779.8
P.L. 480 Food Aidd
$1,664.7 $1,210.2
850.0
395.0 $1,225.9
1.2%
$1,225.9 1,225.9
Source: U.S. Department of State budget documents; House and Senate Appropriations Committees; and CRS calculations.
Note: Figures may not total due to rounding.
a. Includes regular and supplemental appropriations. For FY2008, included supplementals are only those in Div. J P.L. 110-161.
b. The amount reflected here is an approximation of the portion of GHP that correlates with the CSH account in USAID.
c. Senate bill combines FSA and SEED. Funds included in $661.7 above.
d. P.L. 480 is appropriated in the Agriculture Appropriations measure. Figure includes the Emerson Humanitarian Trust and Dole-McGovern program.
CRS-35
State, Foreign Operations, and Related Programs: FY2009 Appropriations
Author Contact Information
Susan B. Epstein
Kennon H. Nakamura
Specialist in Foreign Policy
Analyst in Foreign Affairs
sepstein@crs.loc.gov, 7-6678
knakamura@crs.loc.gov, 7-9514
Key Policy Staff
Area of Expertise
Name
Phone
E-mail
General: Foreign Operations Policy
Susan Epstein
7-6678
sepstein@crs.loc.gov
Issues/Budget
Curt Tarnoff
7-7656
ctarnoff@crs.loc.gov
State Dept & Foreign Service Issues
Ken Nakamura
7-9514
knakamura@crs.loc.gov
Afghanistan Assistance
Rhoda Margesson
7-0425
rmargesson@crs.loc.gov
Africa Assistance
Ted Dagne
7-7646
tdagne@crs.loc.gov
Agency for International Development
Susan Epstein
7-6678
sepstein@crs.loc.gov
Curt Tarnoff
7-7656
ctarnoff@crs.loc.gov
Asia Assistance
Thomas Lum
7-7616
tlum@crs.loc.gov
Broadcasting, International
Ken Nakamura
7-9514
knakamura@crs.loc.gov
Central Asia Assistance
Jim Nichol
7-2289
jnichol@crs.loc.gov
Debt Relief
Marty Weiss
7-5407
mweiss@crs.loc.gov
Development Assistance (bilateral)
Susan Epstein
7-6678
sepstein@crs.loc.gov
Curt Tarnoff
7-7656
ctarnoff@crs.loc.gov
Disaster/Humanitarian Aid/Refugees
Rhoda Margesson
7-0425
rmargesson@crs.loc.gov
DOD and Foreign Assistance
Nina Serafino
7-7667
nserafino@crs.loc.gov
Export-Import Bank
James Jackson
7-7751
j ackson@crs.loc.gov
Family Planning Programs
Luisa Blanchfield
7-0856
lblanchfield@crs.loc.gov
Health Programs, including HIV/AIDS,
Tiaji Salaam
7-7677
tsalaam@crs.loc.gov
Malaria, Tuberculosis, Child and
Maternal
Kellie Moss
7-7314
kmoss@crs.loc.gov
Human Rights
Ken Nakamura
7-9514
knakamura@crs.loc.gov
International Affairs Budget
Susan Epstein
7-6678
sepstein@crs.loc.gov
International Crime & Narcotics
Liana Wyler
7-6177
lwyler@crs.loc.gov
International Organizations/UN
Ken Nakamura
7-9514
knakamura@crs.loc.gov
Funding
Iraq Reconstruction
Curt Tarnoff
7-7656
ctarnoff@crs.loc.gov
Latin America Assistance
Mark Sullivan 7-7689
msullivan@crs.loc.gov
Congressional Research Service
36
State, Foreign Operations, and Related Programs: FY2009 Appropriations
Area of Expertise
Name
Phone
E-mail
Microenterprise Curt
Tarnoff
7-7656
ctarnoff@crs.loc.gov
Middle East Assistance
Jeremy Sharp
7-8687
jsharp@crs.loc.gov
Military Assistance
Richard Grimmett 7-7675
rgrimmett@crs.loc.gov
Millennium Challenge Account
Curt Tarnoff 7-7656
ctarnoff@crs.loc.gov
Multilateral Development Banks
Jonathan Sanford
7-7682
jsanford@crs.loc.gov
Marty Weiss
7-5407
mweiss@crs.loc.gov
Overseas Private Investment
James Jackson
7-7751
j ackson@crs.loc.gov
Corporation
Peace Corps
Curt Tarnoff
7-7656
ctarnoff@crs.loc.gov
Peacekeeping
Marjorie Browne
7-7695
mbrowne@crs.loc.gov
Nina Serafino
7-7667
nserafino@crs.loc.gov
Public Diplomacy
Ken Nakamura
7-9514
knakamura@crs.loc.gov
Refugee Aid
Rhoda Margesson
7-0452
rmargesson@crs.loc.gov
Russia/East Europe Assistance
Curt Tarnoff
7-7656
ctarnoff@crs.loc.gov
Terrorism John
Rollins
7-5529
jrollins@crs.loc.gov
U.N. Population Fund (UNFPA)
Luisa Blanchfield
7-0856
lblanchfield@crs.loc.gov
U.S. Institute of Peace
Ken Nakamura
7-6678
knakamura@crs.loc.gov
U.N. Voluntary Contributions
Marjorie Browne
7-7695
mbrowne@crs.loc.gov
Congressional Research Service
37