State, Foreign Operations, and Related
Programs: FY2011 Budget and Appropriations
Marian Leonardo Lawson
Analyst in Foreign Assistance
Susan B. Epstein
Specialist in Foreign Policy
Kennon H. Nakamura
Analyst in Foreign Affairs
July 2, 2010
Congressional Research Service
7-5700
www.crs.gov
R41228
CRS Report for Congress
P
repared for Members and Committees of Congress
State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Summary
The annual State, Foreign Operations, and Related Agencies appropriations bill has been the
primary legislative vehicle through which Congress reviews the U.S. international affairs budget
and influences executive branch foreign policy making in recent years, as Congress has not
regularly considered these issues through a complete authorization process for State Department
diplomatic activities since 2003 and for foreign aid programs since 1985. Funding for Foreign
Operations and State Department/Broadcasting programs has been steadily rising since FY2002,
after a period of decline in the 1980s and 1990s. Ongoing assistance to Iraq and Afghanistan, as
well as large new global health programs and rapidly increasing assistance to Pakistan, has kept
the international affairs budget at historically high levels in recent years. The change of
Administration in 2009 did not disrupt this trend.
On February 1, 2010, President Obama submitted a budget proposal for FY2011 that requests
$58.49 billion for the international affairs budget, a 16% increase over the enacted FY2010
funding level. If $1.8 billion in “forward funding” of FY2010 priorities appropriated in FY2009
supplemental legislation is counted toward FY2010 rather than FY2009 totals, as it has been by
the Administration, the increase would be 12%. The Administration has also requested $4.46
billion in supplemental FY2010 foreign operations funds for activities in Afghanistan, Pakistan,
and Iraq and $1.7 billion for humanitarian relief and reconstruction effort in Haiti. If these
supplemental funding requests were enacted, the FY2011 request would be 3% above the FY2010
enacted level, or represent level funding if the FY2009 forward funding is attributed to the
FY2010 total.
This report focuses only on the $56.65 billion requested for programs and activities funded
through the State-Foreign Operations appropriations bill, which excludes some portions of the
International Affairs request and includes funding for certain commissions requested as part of
other budget functions. The Administration requested significant increases for building State and
USAID capacity; aid to Afghanistan, Pakistan, and Iraq; and activities under the Administration’s
Global Health, Food Security, and Global Climate Change initiatives. Programs for which the
Administration recommended reduced funding, compared with enacted FY2010 levels, are
contributions to international organizations, commissions and foundations, and peacekeeping
operations.
This report analyzes the FY2011 request, recent-year funding trends, and congressional action
related to FY2011 State-Foreign Operations legislation. The report will be updated to reflect
changes in legislative status
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Contents
Recent Developments.................................................................................................................. 1
State-Foreign Operations Overview............................................................................................. 2
Background and Trends......................................................................................................... 3
Use of Supplemental and Forward Funding ..................................................................... 4
FY2011 Budget Request.............................................................................................................. 5
FY2011 Budget Request: State Department and Related Agencies ......................................... 7
Key State Department Issues ........................................................................................... 9
FY2011 Budget Request: Foreign Operations ...................................................................... 10
Top 10 U.S. Foreign Aid Recipient Countries ................................................................ 12
Regional Distribution .................................................................................................... 12
Sector Distribution ........................................................................................................ 13
Key Foreign Operations Issues ...................................................................................... 14
Figures
Figure 1. State-Foreign Operations Appropriations, FY2000-FY2011 .......................................... 3
Figure 2. FY2011 State-Foreign Operations Request Compared to Various
Representations of FY2010 and FY2009 Appropriations .......................................................... 5
Figure 3. Composition of the State-Foreign Operations Budget Request, FY2011 ........................ 6
Figure 4. Graphic Representation of the FY2011 Request for State, Foreign Operations,
and Related Agencies, by Major Accounts................................................................................ 7
Figure 5. State Department and Related Agencies Appropriations, FY2001-FY2011 .................... 9
Figure 6. Foreign Operations Appropriations, FY2001-FY2011 ................................................. 11
Figure 7. Regional Distribution of Foreign Aid, FY2009-FY2011 Req....................................... 13
Tables
Table 1. Status of State-Foreign Operations Appropriations, FY2011 ........................................... 1
Table 2. State-Foreign Operations Appropriations, FY2001-FY2011............................................ 2
Table 3. State Department and Related Agencies Appropriations, FY2001-FY2011 ..................... 8
Table 4. Foreign Operations Appropriations, FY2001-FY2011 .................................................. 11
Table 5. Top 10 Recipients of U.S. Foreign Aid in FY2010, FY2011 Request ............................ 12
Table 6. Selected Sector Funding, FY2009 Request and FY2010 Request.................................. 14
Table C-1. State Department and Related Agencies Appropriations, FY2009-FY2011................ 20
Table D-1. Foreign Operations Appropriations, FY2009-FY2011 .............................................. 22
Table E-1. International Affairs (150) Budget Account, FY2008-FY2010 .................................. 25
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Appendixes
Appendix A. Structure of State-Foreign Operations Appropriations ........................................... 18
Appendix B. Abbreviations ....................................................................................................... 19
Appendix C. State Department and Related Agencies Appropriations ........................................ 20
Appendix D. Foreign Operations Appropriations ....................................................................... 22
Appendix E. International Affairs (150) Budget Account ........................................................... 25
Contacts
Author Contact Information ...................................................................................................... 26
Key Policy Staff........................................................................................................................ 26
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Recent Developments
On June 30, the House State-Foreign Operations Appropriations Subcommittee marked up and
approved, by voice vote, a draft FY2011 funding bill. The as yet unnumbered measure would
provide $52.66 billion, $4 billion less than the Obama Administration request but $3.89 billion
more than the FY2010 funding level. Most notably, the draft bill has left $3.9 billion requested
for Afghanistan unallocated, according to a statement made by Chairwoman Lowey on June 30.
On June 28, the chairwoman stated that the subcommittee would not appropriate funds to
Afghanistan until recent reports of aid being diverted out of the country by corrupt officials have
been adequately investigated.1
As compared with the President’s request, the marked-up bill would reduce State’s Diplomatic
and Consular programs by $678.0 million, Global Health and Child Survival by $263.0 million,
the Economic Support Fund (ESF) by $792.0 million, the Pakistan Counterinsurgency Capability
Fund (PCCF) by $300.0 million, the Global Food Security Fund by $258.4 million, and the
International Narcotics Control and Law Enforcement Programs (INCLE) by $706.0 million.
Funding levels for all of these accounts in the subcommittee bill represent an increase over the
FY2010 levels, however—except for INCLE, which would be $167.0 million below FY2010.
The subcommittee bill would increase funding over the President’s request for the Democracy
Fund by $120.0 million; Embassy Security, Construction, and Maintenance by $114.0 million;
and International Organizations and Programs (IO&P) by $47.5 million. (For more detail, see
Appendix C and Appendix D.)
Table 1. Status of State-Foreign Operations Appropriations, FY2011
Subcomittee
Conf. Rept.
Markup
Full Committee
Floor
Passed
Conference
Public Law
House Senate House Senate House Senate Agreement House Senate
Signed
6/30
On April 22, the Senate Budget Committee passed a budget resolution recommending $4 billion
less than the Administration requested for the International Affairs account, prompting strong
objections by foreign aid advocates, including a letter signed by all living former Secretaries of
State urging Congress to fully fund the Administration’s request.2
On February 1, 2010, the Obama Administration submitted its FY2011 budget request to
Congress, together with a request for supplemental FY2010 funding for foreign operations
activities. Later that month, Secretary of State Hillary Clinton testified before the House Foreign
Affairs Committee and Senate Foreign Relations Committee, and before each chamber’s State-
1 See Matthew Rosenberg, “Corruption Suspected in Airlift of Billions in Cash from Kabul,” The Wall Street Journal,
June 25, 2010.
2 The letter is accessible at http://www.usglc.org/USGLCdocs/
Secretaries%20of%20State%20Letter%20to%20Congress%20April%202010.pdf.
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Foreign Operations Appropriations Subcommittee. Hearings on aspects of the international affairs
budget request were held throughout March and April.
State-Foreign Operations Overview
The State-Foreign Operations appropriations
Forward Funding
bill funds most programs and activities within
There is disagreement among appropriators and the
the international affairs budget account,
Administration about how to treat certain funds
known as Function 150, including foreign
provided under the FY2009 supplemental (P.L. 111-32)
to address in advance a portion of the FY2010
economic and military assistance,
international affairs request. Unless otherwise noted, the
contributions to international organizations
numbers in this report reflect funding enacted in each
and multilateral financial institutions, State
fiscal year, so this “forward funding” is accounted for in
Department and U.S. Agency for International
FY2009 totals. Throughout this report, footnotes will
Development (USAID) operations, public
indicate when these funds are relevant to the analysis and
how the comparative analysis would change if these funds
diplomacy, and international broadcasting
were attributed to FY2010. Affected accounts include
programs. However, the bill does not align
Diplomatic & Consular Programs; Embassy Security,
perfectly with the international affairs budget.
Construction & Maintenance; Global Health & Child
Food aid, which is appropriated through the
Survival; International Narcotics Control & Law
Agriculture appropriations bill, and the
Enforcement; and Foreign Military Financing.
International Trade Commission and Foreign
Claims Settlement Commission, both funded through the Commerce-Science-Justice
appropriation, are international affairs (Function 150) programs not funded through the State-
Foreign Operations appropriations bill. Furthermore, a number of international commissions that
are not part of the Function 150, such as the International Boundary and Water Commission, are
funded through the State-Foreign Operations bill. A chart illustrating the organizational structure
of the State-Foreign Operations appropriations bill is provided in Appendix A.
This report focuses only on accounts funded through the State-Foreign Operations appropriations
bill, but provides appropriations figures for the entire international affairs (Function 150) budget
in Appendix E.
Table 2 and Figure 1 show State-Foreign Operations appropriations for the past decade in both
current and constant dollars.
Table 2. State-Foreign Operations Appropriations, FY2001-FY2011
(in billions of current and 2011 constant dollars, including supplemental appropriations)
FY10
FY11
FY01 FY02 FY03 FY04 FY05 FY06 FY07 FY08
FY09
Est.
Req.
Current
$ 23.22 24.25 31.72 48.34 34.23 34.25 37.28 40.47 50.50 48.77 56.65
Constant
2011
$ 29.40 30.22 38.51 57.04 38.95 37.64 39.89 41.77 52.07 49.05 56.65
Source: Summary and Highlights, International Affairs Function 150, FY2011 and CRS calculations.
Notes: Figures include all enacted appropriations, regular and supplemental. The $1.8 billion for State/and
Foreign Operations that was considered forward funding for FY2010 in P.L. 111-32, the Supplemental
Appropriations Act, 2009, is included in the FY2009 total.
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Figure 1. State-Foreign Operations Appropriations, FY2000-FY2011
60
50
40
llions
bi 30
n
$, i 20
S
U
10
0
1
2
3
4
5
6
7
8
9
st.
eq.
FY0
FY0
FY0
FY0
FY0
FY0
FY0
FY0
FY0
0 e
11 r
FY1
FY
current US$
constant 2010 US$
Source: Summary and Highlights, International Affairs Function 150, FY2011, and CRS calculations.
Background and Trends
U.S. national security, commercial, and humanitarian interests are the rationale for most
international affairs activities. During the Cold War, foreign aid and diplomatic programs had a
primarily anti-communist focus, while concurrently pursuing other U.S. policy interests, such as
promoting economic development, advancing U.S. trade, expanding access to basic education and
health care, promoting human rights, and protecting the environment. In the 1990s, with the Cold
War ended, distinct policy objectives 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.
A defining change in focus came following the September 11, 2001, terrorist attacks in the United
States. Since then, U.S. foreign aid and diplomatic programs have emphasized national security
objectives, frequently cast in terms of contributing to efforts to counterterrorism. In 2002,
President Bush released a 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 U.S. assistance to 28 “front-line” states—countries that
cooperated with the United States in the war on terrorism or faced terrorist threats themselves.3
Large reconstruction programs in Afghanistan and Iraq exemplified the emphasis on using foreign
aid to combat terrorism. State Department efforts focused extensively on diplomatic security and
3 According to the State Department, these “front-line” states in 2002 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.
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
finding more effective ways of presenting American views and culture through public diplomacy,
particularly in Muslim communities.
The Obama Administration has carried forward many Bush foreign aid initiatives, including
USAID’s Development Leadership Initiative (DLI), the Millennium Challenge Corporation, and
robust assistance to Iraq, Afghanistan, and Pakistan. The Obama Administration has also largely
sustained Bush Administration investments in global health and HIV/AIDS treatment, though its
Global Health Initiative shifts the emphasis away from a focus on discrete diseases and toward
comprehensive health systems. In the FY2011 request, the Administration further defines its
international priorities, with an emphasis on building State Department and USAID capacity,
supporting multilateral food security and global climate change initiatives, and shifting
responsibility for assistance programs in Iraq and elsewhere from military to civilian authorities.
Use of Supplemental and Forward Funding
Year-to-year comparison of funding levels has become increasingly complicated due to the use of
supplemental appropriations. Supplemental resources for State and Foreign Operations programs,
once used primarily to respond to unanticipated emergencies or natural disasters, became a
significant and continuous source of funds for ongoing international activities during the Bush
Administration, especially for programs related to reconstruction efforts and corresponding to
ongoing military operations in Iraq and Afghanistan. Some criticized this practice, which kept
significant funds separate from the annual budget cycle and made future-year planning difficult.
The Obama Administration has requested $4.46 billion in supplemental funds for FY2010, to
meet needs in Afghanistan and Pakistan related to the December 2009 strategy shift, and in Iraq,
where the U.S. military drawdown corresponds with a surge in U.S. civilian assistance. An
additional $1.7 billion in State-Foreign Operations funds were requested in March for relief and
reconstruction in Haiti, following the devastating January 2010 earthquake.
Year-to-year comparison has also been complicated by recent use of forward funding
mechanisms, whereby appropriations legislation may provide funding for multiple fiscal years.
One FY2008 supplemental,4 for example, included $3.68 billion within a section titled “Bridge
Fund Supplemental Appropriations for Fiscal Year 2009,” essentially providing a FY2009
supplement before the FY2009 base appropriation was enacted. These funds were clearly
designated as FY2009 funds, to be obligated between October 2008 and September 2009. Less
clear, however, is the appropriate designation for $1.8 billion5 included in an FY2009
supplemental appropriations measure6 that House and Senate appropriators considered forward
funding of priorities identified in the FY2010 request, but which were not clearly designated as
FY2010 funds in the enacting legislation and accompanying report.7 In the FY2011
4 P.L. 110-252.
5 The Administration cites $1.8 billion as the forward-funded level in the CBJ, while House appropriators reportedly
count $2.4 billion intended as forward funding. The discrepancy apparently relates to the treatment of the Pakistan
Counterinsurgency Contingency Fund and a portion of Foreign Military Financing funds to Mexico. Until the House
produces legislation for FY2011, clarifying their approach to accounting for these funds, “forward funding” in this
report will refer only to the $1.8 billion detailed in the CBJ.
6 P.L. 111-32.
7 Reports accompanying the House-passed and Senate committee-approved FY2010 State-Foreign Operations
appropriations bills (H.Rept. 111-187 and S.Rept. 111-44, respectively) indicate what each subcommittee considered
forward funding for FY2010. The legislative language was rolled into an omnibus bill; the statement accompanying the
omnibus legislation (H.Rept. 111-366) did not include the forward-funding language, but did note that the reports were
(continued...)
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Congressional Budget Justification (CBJ), the Administration included these funds in FY2010
accounts totals in many instances, while the Congressional Budget Office is treating them as
FY2009 appropriations, as does this report.
The inclusion of supplemental funds and the accounting used for forward funds can significantly
affect year-to-year comparisons of appropriations levels. For example, the FY2011 request is
almost the same as the FY2010 total if the FY2010 supplemental requests and forward funding
are included in the FY2010 column, but represents a 16% increase if the supplemental request is
excluded and the forward funding is counted in FY2009 rather than FY2010. Figure 2 compares
the FY2011 State-Foreign Operations budget request with various representations of FY2010 and
FY2009 appropriations.
Figure 2. FY2011 State-Foreign Operations Request Compared to Various
Representations of FY2010 and FY2009 Appropriations
(in billions of current U.S.$)
0
10
20
30
40
50
60
70
FY2011 Req.
56.65
FY2010 w/FF & Supp. Req.
56.77
FY2010 w/Supp. Req.
54.94
FY2010 w/FF
50.60
FY2010 Base
48.77
FY2009 w/FF & Supp.
50.50
FY2009 w/ Supp.
48.67
FY2009 Base
36.62
Base
Forward Fund
Enacted Supp.
Requested Supp.
Source: State Department data; CRS calculations.
Note: FF = forward funding. These figures reflect the composition of the State-Foreign Operations
appropriations bill, not the 150 budget account. FY2009 supplemental funding legislation includes P.L. 110-252,
P.L. 111-5, and P.L. 111-32.
FY2011 Budget Request
On February 1, 2010, the Obama Administration sent its FY2011 international affairs (Function
150 account) budget request to Congress, corresponding to a total of $56.65 billion requested for
the Department of State, foreign operations, and related programs. This represents a 16% increase
(...continued)
to be used as guidance.
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
from estimated FY2010 funding (3% if requested supplemental funds are included),8 and 4.5% of
the total discretionary budget authority requested by the Administration for FY2011. Figure 3
provides a breakout of the request by assistance type.
Figure 3. Composition of the State-Foreign Operations Budget Request, FY2011
State Admin.
International
Other
22%
Orgs.
MCC
1%
7%
International
2%
Broadcasting
Multilateral Aid
1%
6%
USAID Admin.
3%
Military Aid
12%
Bilateral
Economic Aid
46%
Source: Fiscal Year 2011 Budget of the United States Government and CRS calculations.
Figure 4 shows the major accounts in the bill in proportion to the whole request, and indicates for
each account whether the requested funding level represents an increase or decrease over the
FY2010-enacted appropriation level. Just five accounts—Diplomatic and Consular Programs,
Economic Support Fund, Global Health and Child Survival, Foreign Military Financing, and
Development Assistance—make up more than 60% of the total funding requested. With the
exception of Global Health, which would increase by 9%, the requests for each of these accounts
represent increases of more than 15% over the FY2010-enacted level. For a full listing of funds
requested for State, Foreign Operations and Related Agency accounts, see Appendix C and
Appendix D.
8 If the $1.8 billion in “forward funds” are included in the FY2010 total, rather than FY2009, the FY2011 request
represents a 12% increase over the FY2010-enacted level, or a 4% decrease from the enacted plus requested
supplemental level.
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Figure 4. Graphic Representation of the FY2011 Request for State, Foreign
Operations, and Related Agencies, by Major Accounts
Source: FY2011 State-Foreign Operations Congressional Budget Justification; CRS calculations.
Notes: Accounts for which the amount requested was less than 0.5% of the total request are represented in
aggregate as “other.” WB = World Bank; AEECA = Assistance to Europe, Eurasia, and Central Asia.
* No funds have been enacted for the Pakistan Counterinsurgency Fund or the Global Food Security Fund in
FY2010, making a comparison to FY2010 not applicable. If FY2009 supplemental funds for the Pakistan
Counterinsurgency Fund are considered forward funding for FY2010, the increase from FY2010-enacted to
FY2011-requested would be 58%.
FY2011 Budget Request: State Department and Related Agencies
The Administration’s FY2011 budget request for the Department of State, international
broadcasting, and related agencies is $17.25 billion, an 8% increase over the FY2010-enacted
level of $15.95 billion, including the mandatory Foreign Service Retirement Fund.9 However, the
9 If forward funding of $374.38 million for Diplomatic and Consular Programs and $90.9 million for Embassy Security,
Construction & Maintenance, provided in the Supplemental Appropriations Act of 2009 (P.L. 111-32), are included in
the FY2010 total, the FY2011 increase would be 5%.
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Administration has also requested $2.08 billion in supplemental FY2010 funds for State
operations and related accounts, which, if enacted, would make the FY2010 appropriation higher
than the FY2011 request. The supplemental request would allow the Department to increase the
civilian surge in Afghanistan in FY2010 and begin building permanent consulates outside of
Baghdad before the start of the FY2011 budget year.
Related agencies funded in the State portion of the bill include the Broadcasting Board of
Governors (BBG), contributions to International Organizations (CIO), including the United
Nations (U.N.), U.N. Peacekeeping (CIPA), and funding for several International Commissions
and the U.S. Institute for Peace. Also included are funding for The Asia Foundation, the National
Endowment for Democracy, and several other independent non-profit educational and exchange
organizations which help advance U.S. interests. (For a description of all the accounts within the
State Department segment of the bill, see CRS Report R40482, State, Foreign Operations
Appropriations: A Guide to Component Accounts, by Curt Tarnoff and Kennon H. Nakamura.)
Table 3 and Figure 5 show appropriations for the State Department and related agencies over the
past decade in both current and constant dollars.
Table 3. State Department and Related Agencies Appropriations, FY2001-FY2011
(discretionary budget authority in billions of current and 2011 constant dollars)
FY11
FY01 FY02 FY03 FY04 FY05 FY06 FY07 FY08 FY09 FY10
est. Req.
Current
$ 6.91 7.71 8.05 9.29 10.78 11.12 10.90 13.57 16.18
15.95 17.25
Constant
2011
$
8.75 9.61 9.77 10.96 12.27 12.22 11.66 14.00 16.66
16.17 17.25
Source: The Department of State Congressional Budget Justifications, FY2001-FY2011, and CRS calculations.
Notes: Figures include al enacted appropriations, regular and supplemental. The FY 2010 estimate does not
include any supplemental funds, as none have been enacted as of the date of this report. The $465.3 million for
State/Related Agencies accounts that was forward funding for FY2010 priorities in P.L. 111-32, the Supplemental
Appropriations Act, 2009, is included in the FY2009 total rather than the FY2010 estimate.
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Figure 5. State Department and Related Agencies Appropriations, FY2001-FY2011
18
16
14
ons 12
lli 10
in bi
8
$,
6
S
U
4
2
0
1
2
3
4
5
6
.
07
8
9
t.
req
FY0
FY0
FY0
FY0
FY0
FY0
FY
FY0
FY0
FY10 es FY11
Current $
Constant 2010 $
Source: The Department of State Congressional Budget Justifications, FY2001-FY2011, and CRS calculations.
Key State Department Issues
In reviewing the FY2011 State Department budget request, the following issues stand out as
being Administration priorities or representing significant changes from existing policy or
funding levels.
Support Missions in Front-Line States
The FY2011 request includes significant funding to support U.S. missions in Iraq, Afghanistan,
and Pakistan, where additional logistics support, security, and information technology are needed
to keep up with increasing staff levels and program responsibilities. The Administration requested
$1.85 billion to support the U.S. mission in Iraq, for the abovementioned purposes as well as
support for Provincial Reconstruction Teams, exchange programs, and the Special Inspector
General for Iraq Reconstruction. The Administration is requesting $754 million to support 1,500
civilian staff from various agencies in Afghanistan, and $102 million for operational support of
public diplomacy activities in Pakistan.
Growth in Foreign Service Capacity
The Administration is requesting $9.55 billion for Diplomatic & Consular Programs (D&CP) in
FY2011, $1.32 billion more than the FY2010-enacted total of $8.23 billion. In addition, nearly
$1.9 billion in FY2010 supplemental funds have been requested for this account.10 D&CP funds
most State Department salaries and expenses, and growth in the FY2010 and the FY2011 request
reflects the Administration’s strategic plan to increase Foreign Service capacity by 25% over
FY2008 levels by FY2014. Secretary of State Clinton has described the strategy as a means to
10 The Supplemental Appropriations Act of 2009, P.L. 111-32, forward funded $374.38 million for Diplomatic and
Consular Programs for FY2010. If these funds are included in the FY 2010 total, the FY2011 increase would be $943.6
million.
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reduce the State Department’s reliance on contractors, which she believes will improve
accountability and save money in the long-term. The FY2011 request would fund 599 new
positions, including 410 Foreign Service Officers and 189 Civil Service personnel, and expand
and improve training in critical languages.
Retention of Consular Fees
The State Department seeks authority in the FY2011 request to retain all passport and consular
fees, some of which are currently retained by the Treasury. The Administration views this as a
mechanism to cover the full cost of consular services more efficiently. Congress, however, may
object to this new source of funding, which would operate outside of the regular appropriations
process and could no longer be used to off-set expenditures in the budgeting process. If the
request is granted, State anticipates an additional $2.59 billion in available fees, a 45% increase
over the FY2010 estimate.
Proposed Reductions in Funding
The Administration has proposed reductions in funding for voluntary contributions to
international organizations and foundations, among others. The request for international
organizations is $1.6 billion, a 5% decrease from FY2010, reflecting reduced or eliminated
contributions to several U.N. organizations, including the U.N. High Commission on Refugees,
U.N. Development Fund for Women, U.N. Development Program, U.N. Children’s Fund
(UNICEF), and the U.N. Population Fund (UNFPA). Contributions to several foundations
supported by the bill have been reduced from FY2010 levels as well. The Asia Foundation
request is 17% lower than the FY2010 level, at $15.7 million; the East-West Center faces a 50%
reduction, to $11.4 million; and the National Endowment for Democracy would see an 11% cut,
to $105 million.
FY2011 Budget Request: Foreign Operations
The Foreign Operations budget comprises the majority of U.S. foreign assistance programs, both
bilateral and multilateral. (See Appendix D for Foreign Operations accounts and funding levels.)
The annual State-Foreign Operations Appropriations bill funds most U.S. bilateral development
assistance programs, with the main exception being food assistance appropriated through the
Agriculture Appropriations bill (for which $1.89 billion was appropriated in FY2010 and the
same amount requested for FY2011). These funds are managed primarily by USAID and the State
Department, together with several smaller independent foreign assistance agencies such as the
Millennium Challenge Corporation, the Peace Corps, and the Inter-American and African
Development Foundations. The legislation also supports U.S. contributions to major multilateral
financial institutions, such as the World Bank and U.N. entities, and includes funds for the
Export-Import Bank and Overseas Private Investment Corporation, 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.11
11 For a description of all the accounts within the Foreign Operations section of the bill, see CRS Report R40482, State,
Foreign Operations Appropriations: A Guide to Component Accounts, by Curt Tarnoff and Kennon H. Nakamura.
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The foreign operations budget request for FY2011 totals $39.4 billion, representing a 20%
increase from the estimated FY2010 level of $32.8 billion, excluding forward funding from the
Supplemental Appropriations Act of 2009.12 The Administration has also requested $4.10 billion
in supplemental foreign operations funds for FY2010. Table 4 and Figure 6 provide funding
levels for foreign operations over the past decade, including enacted supplemental appropriations,
in both current and constant dollars. If the FY2011 request is enacted, foreign operations funding
will have increased by 142% in current dollars, and by 91% in constant dollars, from FY2001 to
FY2011.
Table 4. Foreign Operations Appropriations, FY2001-FY2011
(discretionary budget authority in billions of current and constant 2011dollars)
FY10 FY11
FY01 FY02 FY03 FY04 FY05 FY06 FY07 FY08 FY09
est.
req.
Current
$ 16.31 16.54 23.67 39.05 23.45 23.13 26.38 26.89 34.32 32.82 39.40
Constant
2011
$
20.65 20.61 28.74 46.08 26.69 25.42 28.23 27.75 35.48 33.28 39.4
Source: The Foreign Operations Congressional Budget Justifications, FY2001-FY2011, and CRS calculations.
Notes: Figures include al enacted appropriations, regular and supplemental. The FY 2010 estimate does not
include any supplemental funds, as none have been enacted as of the date of this report. The $1.37 billion for
Foreign Operations accounts that the Administration considers forward funding for FY2010 in P.L. 111-32, the
Supplemental Appropriations Act, 2009, is included in the FY2009 total.
Figure 6. Foreign Operations Appropriations, FY2001-FY2011
50
45
s 40
n 35
io
ill 30
b 25
n
, i 20
$
S 15
U 10
5
0
1
02
03
04
05
6
07
08
09
t.
FY0
FY
FY
FY
FY
FY0
FY
FY
FY
10 es
11 req.
FY
FY
Current $
Constant 2009 $
Source: The Foreign Operations Congressional Budget Justification, FY2001-FY2011, and CRS calculations.
12 Appropriations Act, 2009, is included in the FY2010 estimate rather than the FY2009 total, the increase is 15%. If
the requested foreign operations supplemental appropriations are added as well, the increase is 7%. If both the
supplemental request and forward funding are included in the FY2010 total, the increase is 3%.
Congressional Research Service
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Top 10 U.S. Foreign Aid Recipient Countries
Prior to the wars in Afghanistan and Iraq, Israel and Egypt typically received the largest amounts
of U.S. foreign aid every year since the Camp David Peace Accords in 1978.13 The reconstruction
efforts in Iraq and Afghanistan moved those countries into the top five, though assistance to Iraq
has declined significantly in the past couple of years, with the completion of many reconstruction
activities. Meanwhile, a combination of security assistance and economic aid designed to limit
the appeal of Islamic extremist organizations has moved Pakistan up the list in recent years.
Table 5. Top 10 Recipients of U.S. Foreign Aid in FY2010, FY2011 Request
(in millions of current $)
FY2010 Est.
FY2010 Supp. Req.
FY2011 Request
Estimated
Requested
Requested
Country
Allocation Country Allocation Country Allocation
Israel $2,775.0
Iraq $2,087.4
Afghanistan
$3,923.7
Afghanistan $2,624.1
Afghanistan $2,004.0
Pakistan $3,053.6
Egypt $1,555.7
Pakistan $370.0
Israel $3,000.0
Pakistan
$1,457.9
Egypt $1,558.0
Jordan $693.0
Iraq
$729.3
Kenya $687.7
Kenya $714.0
Nigeria $614.7
Jordan $682.7
Mexico $582.7
Nigeria $647.7
South
Africa
$577.7
South
Africa
$586.1
Ethiopia $533.2
Ethiopia $583.5
Note: FY2010 figures are preliminary estimates from the State Department/F Bureau and do not include
requested supplemental funds. They do, however, include forward funding for FY2010, in the GHCS and FMF
accounts, that was provided through FY2009 supplemental appropriations legislation.
In the FY2011 request, Afghanistan tops the list at nearly $4 billion, followed by Pakistan at $3
billion. This is in addition to significant supplemental funds—$2 billion and $370 million,
respectively—requested for these countries for FY2010. Israel and Egypt would continue to
receive significant funds, primarily for Foreign Military Financing, at $3 billion and $1.56 billion,
respectively. Jordan would also continue to rank high on the list, with $682.7 million requested.
Iraq, which dropped out of the top 10 list in FY2010 (though a request for more than $2 billion in
FY2010 supplemental funds is pending), would be the fifth largest recipient of aid in FY2011,
under the Administration request. Assistance to the other top recipients—Kenya, Nigeria,
Ethiopia, and South Africa—is targeted primarily at HIV/AIDS and other health programs.
Regional Distribution
As shown in Figure 7, under the FY2011 proposal, Africa and South Central Asia would receive
the most U.S. foreign assistance, with about $7.6 billion requested for each. The aid to Africa
13 For more information on historic aid trends, see CRS Report R40213, Foreign Aid: An Introduction to U.S.
Programs and Policy, by Curt Tarnoff and Marian Leonardo Lawson.
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
primarily supports HIV/AIDS and other health-related programs while nearly $7 billion of the
$7.6 billion in aid to South Central Asia is requested for Afghanistan and Pakistan. These figures
do not include the large FY2010 supplemental request, which would provide $2.12 billion for
Afghanistan and Pakistan, continuing a trend of increases in and for the region in recent years.
Aid to the Near East region, which shows a slight decrease in FY2010, would be almost constant
if the $517 million in supplemental funds requested for Iraq are enacted. Western Hemisphere
totals would increase significantly if the requested $2.8 billion in supplemental funds for Haiti are
enacted.
Figure 7. Regional Distribution of Foreign Aid, FY2009-FY2011 Req.
9
8
$
S 7
6
rrent U 5
u
4
of c 3
ons
lli 2
bi 1
0
Africa
EAP
EE
NE
SCA
WH
FY2009 Actual
FY2010 Est.
FY2011 Req.
Source: Foreign Operations Congressional Budget Justification, FY2011.
Note: FY2010 figures represent the Administrations request. EAP=East Asia and Pacific; EE=Europe and Eurasia;
NE=Near East; SCA=South and Central Asia; WH=Western Hemisphere.
Sector Distribution
Over the years, Congress has expressed interest in various discrete aid sectors, such as education,
trade, maternal and child health, and biodiversity, that are funded across multiple accounts and/or
agencies. Administrations have begun presenting their respective budget requests with a section
showing what portion of the request would address some of these “key interest areas.” Unlike the
account funding tables in the budget request, however, the key interest area breakout does not
show prior year allocations, limiting year-to-year comparison to requested funds rather than
actual funding. This provides an indication of the Administration’s interests and priorities, but not
necessarily those of congressional appropriators.
Table 6 compares the FY2010 and FY2011 budget requests for key interest areas identified by
the Administration. In keeping with the Administration’s major initiatives, the FY2011 request for
several non-HIV/AIDS health activities increased significantly over the FY2010 request, as did
the request for global climate change, food security, and microfinance programs. The
Administration also emphasized two new focus areas, adding neglected tropical diseases and
nutrition to the key interests list. Meanwhile, pandemic flu appears to be a lower Administration
priority than last year, along with basic education, biodiversity, and Trans-Saharan Counter
Terrorism (an initiative from the Obama Administration’s first budget request).
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Table 6. Selected Sector Funding, FY2009 Request and FY2010 Request
(millions of current U.S. dollars)
Sector
FY2010 Req.
FY2011 Req.
% Change
Avian/Pandemic Influenza
$125
$75
-40%
Basic Education
$1,001
$844
-16%
Biodiversity $184
$114
-38%
Clean Energy
($203, included
within the
$217
Global Climate
-6%
Change request
in FY2011)
Family Planning/Reproductive
Health
$593 $716
+21%
Food Security
$1,363
$1,644
+21%
Global Climate Change
$579
$1,391
+140%
Higher Education
$188
$249
+32%
HIV/AIDS $5,609
$5,850
+4%
Malaria $585
$680
+16%
Maternal and Child Health
$954
$983
+3%
Microenterprise and
Microfinance
$168 $230
+37%
Neglected Tropical Diseases
—
$155
N/A
Nutrition —
$231
N/A
Other Public Health Threats
$128
$225
+76%
Polio $32
$33
+3%
Trade Capacity Building
$316
$323
+2%
Trafficking in Persons
$32
$36
+13%
Trans-Sahara Counter-
Terrorism
$80 $61
-24%
Tuberculosis $191
$251
+31%
Water $176
$256
+45%
Source: U.S. Department of State Foreign Operations Congressional Budget Justification, FY2010 and FY2011,
and CRS calculations.
Note: Totals for Water, Basic Education, Child & Maternal Health, and Food Security do not include related
funding through the P.L. 480/Food for Peace program, which is funded through Agriculture appropriations.
Key Foreign Operations Issues
In reviewing the FY2011 Foreign Operations budget request, the following issues stand out as
being Administration priorities or representing significant changes from existing policy or
funding levels.
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
USAID Capacity Building
USAID continues to expand its Foreign Service staff through the Development Leadership
Initiative (DLI), established in 2008 to double the number of Foreign Service officers at USAID
in order to more effectively implement assistance programs that have expanded significantly in
recent years. As with personnel increases at State, the Administration views this plan as an
investment that will lead to reduced reliance on contractors and greater accountability and cost
savings over time. The Administration is requesting $1.48 billion for USAID Operating Expenses
for FY2011, a 6% increase over the enacted FY2010 level. Of that amount, $354.8 million is
designated for recruiting and hiring 200 new Foreign Service Officers at USAID, as well as
supporting the annualized recurring costs of DLI positions filled since FY2008.
Military/Civilian Balance
The Department of Defense (DOD) greatly expanded its foreign aid activities in the wake of the
Iraq and Afghanistan invasions, when high levels of security and economic aid flowed into those
countries even while instability and relatively low personnel capacity limited the role of civilian
aid agencies. As conditions on the ground have stabilized and both State and USAID have begun
building their capacity, both the Secretary of State and Secretary of Defense have expressed
support for stronger civilian control of these activities. The FY2011 foreign operations request
addresses this issue by including funding for activities that were previously funded through the
Defense Appropriations bill. The Complex Crisis Fund, for which $100 million was requested for
FY2011, will replace funding for reconstruction, security, and stabilization activities previously
provided through DOD’s Section 1207 authority. Similarly, the Pakistan Counterinsurgency
Capability Fund, for which $1.2 billion is requested for FY2011, moves ongoing activities to
improve the capabilities of Pakistan’s security forces from DOD control to the purview of the
Secretary of State. For Iraq, $314.6 million has been included in the International Narcotics
Control and Law Enforcement (INCLE) account request for FY2011 (along with $517.4 million
requested for this purpose in the FY2010 supplemental) to enable State to take control of Iraqi
police training programs now funded through the DOD. Secretary of State Clinton has claimed
that this shift from military to civilian control will allow the defense budget for Iraq to decrease
by $16 billion.14
Front-Line States
As demonstrated in Table 5, most of the increase proposed for FY2011 over FY2010 funding
levels would continue to flow to countries of strategic interest in the fight against terrorism. The
request included $12.22 billion, or 34% of the total bilateral aid request, for “front-line” states.15
For Afghanistan, $3.92 billion is requested for FY2011, in addition to the FY2010 pending
supplemental request of $1.78 billion, primarily to increase U.S. civilian resources to balance the
recent troop surge. In Pakistan, $3.05 billion is requested for FY2011, in addition to the FY2010
supplemental request for $344 million. The funds will largely be targeted at building the capacity
of the government of Pakistan and supporting infrastructure and economic development projects
that provide tangible benefits to communities and reduce the appeal of extremism. For Iraq, $729
14 Secretary Clinton’s testimony before the Senate Foreign Relations Committee, Hearing on “Foreign Policy Priorities
in the FY2011 International Affairs Budget,” February 24, 2010.
15 See footnote 3 for a list of “front-line” states.
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
million is requested for FY2011, on top of $517 million requested in FY2010 supplemental funds,
to support the aforementioned civilian takeover of security training programs.
Global Health
The Administration has requested $8.5 billion in the Global Health and Child Survival account
for Global Health Initiative (GHI) activities in FY2011. The request represents a 9.4% increase
over the FY2010-enacted level, or 8.7% if $50 million the Administration considers forward
funding from the FY2009 supplemental is counted toward the FY2010 total. The six-year, $63
billion GHI is intended to be a comprehensive approach to global health problems that builds on
the previous Administration’s focus on global HIV/AIDS, tuberculosis and malaria, but prioritizes
building strong and sustainable health systems through an emphasis on maternal and pediatric
programs, as well as strategic coordination. Some advocates for HIV/AIDS programs have
expressed concern about the shift in focus, noting that funding requested for HIV/AIDS programs
in FY2011, while slightly above the FY2010 level, is less than amounts authorized by Congress
and, some argue, inadequate to sustain U.S. global commitments. However, Ambassador Eric
Goosby, the U.S. Global AIDS Coordinator, has stated that GHI maternal health programs will
include significant activities addressing HIV/AIDS, which is the leading cause of death
worldwide for women of child bearing age.16
Food Security
Food security, first addressed as a key issue in the FY2010 budget request, continues to be a
priority for the Obama Administration, which requested $1.64 billion for related programs in the
FY2011 budget. This amount does not include P.L. 480 food assistance funds, provided through
the Agriculture appropriation. The Administration’s new Global Hunger and Food Security
Initiative is intended to address root causes of food insecurity and proposes to target funding to
countries with widespread hunger, an agriculture-based economy, and comprehensive strategies
for food security already in place. The request also emphasizes the benefits of working
multilaterally and in partnership with other stakeholders to leverage resources. The request
includes $408.4 million for the new multi-donor Global Food Security Trust Fund, managed by
the World Bank, which will support large-scale transportation and irrigation infrastructure,
commercial financing, and research.
Climate Change
The Administration has requested $1.39 billion in FY2011 to support activities relating to climate
change, with an emphasis on adaptation, deployment of clean energy technologies, and reduction
of greenhouse gas emissions through sustainable landscapes. A significant portion of this climate
change funding would be channeled through international financial institutions. The $400 million
requested for contribution to the International Clean Technology Fund represents a 33% increase
over the FY2010-enacted level. The request also includes $235 million for the International
Strategic Climate Fund, a 213.3% increase over the estimated FY2010 contribution. Secretary of
the Treasury Timothy Geithner has explained this emphasis on multilateral funding, both for
16 Testimony of Ambassador Eric Goosby, United States Global AIDS Coordinator, before the House Appropriations
Subcommittee on State-Foreign Operations, March 23, 2010.
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
climate change and food security, as a fiscally responsible approach intended to leverage
commitments from other donors and increase the impact of U.S. funds.17
17 Remarks of Treasury Secretary Timothy Geithner, testifying before the House Appropriations Subcommittee on
State-Foreign Operations, March 25, 2010.
Congressional Research Service
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Appendix A. Structure of State-Foreign Operations Appropriations
Source: CRS.
CRS-18
State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Appendix B. Abbreviations
Funding Accounts:
ACI
Andean Counterdrug Initiative
AEECA
Assistance for Europe, Eurasia, and Central Asia
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
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
TI Transition
Initiatives
Other:
DFA
Director of Foreign Assistance
AFR Africa
EAP
East Asia and Pacific
EE
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: FY2011 Budget and Appropriations
Appendix C. State Department and Related
Agencies Appropriations
Table C-1. State Department and Related Agencies Appropriations, FY2009-FY2011
(in millions of current U.S. $)
FY2010
FY2010
Change
Enacted
Supp.
from
H.R.
Request,
FY2010
FY2010
FY2011
3288/div F Afghanistan/
Supp.
enacted to
House
FY2009
P.L. 111-
Pakistan/
Request,
FY2011
FY2011
Subcomm.
Totala
117
Iraq
Haiti
Request
Req.
Mark
Title I. State Department
Administration of Foreign
Affairs, Subtotal
10,932.9
11,024.5 1,824.0 149.5
12,377.5 +12.3% 11,683.0
Diplomatic & Consular
Program
7,153.1
8,227.0 1,807.0
65.0 9,545.2 +16.0% 8,864.2
Capital Investment Fund
323.0
139.0
144.1
+3.7%
139.0
Embassy Security, Construction
& Maintenance
2,669.4
1,724.1
84.5 1,681.5
-2.5% 1,795.5
Civilian Stabilization Initiative 45.0 120.0
184.0 +53.3%
60.0
Office of Inspector General
121.2
102.0
3.0
120.2
+17.8%
120.2
Ed. & Cultural Exchange
Programs
538.0
635.0
633.2 -0.3% 635.0
Special Inspector General for
Afghanistan Reconstruction
— — 14.0 N/A —
Representation
Al owances 8.2
8.2
8.2 0% 8.2
Protection of Foreign
Missions & Officials
22.8
28.0
27.2 -2.9%
28.0
Emergency-Diplomatic &
Consular Services
29.0
10.0
11.0 -10.0% 10.0
Buying Power and
Maintenance
5.0 8.5
— N/A 0.0
Repatriation
Loans
1.4 1.5
1.5 0% 1.5
Payment American Institute
Taiwan
16.8
21.2
21.4 +0.9% 21.4
Foreign Service Retirement
[157.1]
[158.9]
[158.9]
0%
[158.9]
International
Organizations, Subtotal
3,992.9
3,807.5
0.0
96.5 3,777.7
-0.8% 3,721.8
Contributions to Int’l Orgs
1,604.4
1,682.5
1,595.4
-5.2%
1,595.4
Contributions to International
Peacekeeping
2,388.5
2,125.0
96.5 2,182.3
+2.7% 2,126.4
International
Commissionsb
337.0
142.9
0.0 0.0 130.3 -8.8% 136.2
Int’l
Boundary;/U.S.-Mexico 295.5 76.3
74.3 -2.8% 74.3
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
FY2010
FY2010
Change
Enacted
Supp.
from
H.R.
Request,
FY2010
FY2010
FY2011
3288/div F Afghanistan/
Supp.
enacted to
House
FY2009
P.L. 111-
Pakistan/
Request,
FY2011
FY2011
Subcomm.
Totala
117
Iraq
Haiti
Request
Req.
Mark
American
Sections
11.6 12.6
12.4 -1.6% 12.4
International
Fisheries
29.9 54.0
43.6 -19.1% 49.6
International
Broadcasting, Subtotal
715.5
746.4
0.0 5.2 768.7 +3.0% 757.4
Broadcasting
Operations
704.2 733.8
5.2 755.1 +2.9%
n.a.
Cuba Broadcasting
[34.8]
[30.5]
n.a.
Capital
Improvements
11.3 12.6
13.6 +7.9%
n.a.
Related Appropriations,
Subtotal
184.6
211.0
0.0 0.0 180.4 -14.5% 177.3
Asia
Foundation
16.0 19.0
15.7 -17.4% 19.0
U.S. Institute of Peace
31.0
49.2
46.6
-5.3%
46.6
Center for Middle East-West
Dialogue-Trust & Program
0.9
0.9
0.8
-11.1% 0.8
Eisenhower Exchange
Programs
0.5
0.5
0.5 0% 0.5
Israeli Arab Scholarship
Program
0.2
0.4
0.4 0% 0.4
East-West
Center
21.0 23.0
11.4 -50.4%
0
National Endowment for
Democracy
115.0 118.0
105.0 -11% 110.0
Other Commissions
13.2 13.0
0.0 0.0 13.2 +1.5% 13.5
Preservation of America’s
Heritage
0.6
0.6
0.6 0% 0.6
Int’l Religious Freedom
4.0 4.3
4.4 +2% 4.4
Security and Cooperation In
Europe
2.6
2.6
2.7 +4% 2.7
Cong.-Exec. on People’s
Republic of China
2.0
2.0
2.0 0% 2.0
U.S.-China Economic and
Security Review
4.0
3.5
3.5 0% 3.8
State/Broadcasting/Related
Agencies, TOTAL
16,176.1
15,945.3
1,824.0
251.2 17,247.8
+8.2% 16,489.2
Sources: U.S. Department of State budget documents, House and Senate Appropriations Committees, and CRS
calculations.
Note: n.a. = not available.
a. Includes funds from P.L. 111-8, P.L. 110-252, P.L. 111-5, and P.L. 111-32.
b. These activities are funded through the State-Foreign Operations bill, but are not part of Function 150 of
the budget.
Congressional Research Service
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Appendix D. Foreign Operations Appropriations
Table D-1. Foreign Operations Appropriations, FY2009-FY2011
(millions of current U.S. $)
Change
FY2010
FY2010
from
Enacted
Supp.
FY2010
H.R.
Request,
FY2010
enacted
FY2011
3288/div Afghanistan/
Supp.
to
House
FY2009
F P.L.
Pakistan/
Request, FY2011
FY2011 Subcomm.
Totala
111-117
Iraq
Haiti
Request
Req.
Mark
Title II. USAID Admin.,
Subtotal
1,258.0 1,650.3
0.0
1.5 1,695.5 +2.7%
1,654.5
USAID Operating Expenses
1,059.2
1,388.8
1,476.0
+6.3
1,410.0
Civilian Stabilization Initiative
30.0
30.0
—
N/A
25.0
USAID Capital Investment
Fund 122.3
185.0
173.0
-6.5%
173.0
USAID Inspector General
46.5
46.5
1.5
46.5
0%
46.5
Title III. Bilateral
Economic Assistance,
Subtotal
21,456.4 21,861.2
1,820.0 1,107.1
24,576.4 +12.4% 23,209.2
Global Health and Child
Survival, State + USAID
7,339.0
7,779.0
8,513.0
+9.4%
8,250.0
GHCS (State Dept.)
[5,159.0]
[5,359.0]
[5,500.0]
+2.6%
[5,525.0]
GHCS (USAID)
[2,180.0]
[2,420.0]
[3,013.0]
+24.5%
[2,725.0]
Development Assistance
2,000.0
2,520.0
2,980.9
+18.3%
2,770.0
International Disaster &
Famine Assistance
820.0
845.0
350.7
860.7
+1.9%
845.0
Transition Initiatives
50.0
55.0
48.0
-12.7%
50.0
Complex Crises Fund
0.0
50.0
100.0
+100%
55.0
Development Credit Authority
– Admin
8.0
8.6
8.3
-3.5%
8.3
Development Credit Authority
Subsidy [54.0]
[25.0]
[35.0]
+40%
_
Economic Support Fund
7,116.9
6,344.0
1,820.0
749.3
7,812.0
+23.1%
7,020.0
Assistance for Europe; Eurasia
& Central Asia (AEECA)
922.0
741.6
716.4
-3.4%
700.0
Fund for Ireland
15.0
17.0
—
N/A
15.0
Democracy Fund
116.0
120.0
—
N/A
120.0
Migration & Refugee
Assistance 1,674.5
1,693.0
1,605.4
-5.2%
1,643.0
Emergency Refugee and
Migration 40.0
45.0
45.0
0%
45.0
Independent Agencies, Subtotal
1,270.0
1,558.0
1,778.7
+14.2%
1,603.9
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Change
FY2010
FY2010
from
Enacted
Supp.
FY2010
H.R.
Request,
FY2010
enacted
FY2011
3288/div Afghanistan/
Supp.
to
House
FY2009
F P.L.
Pakistan/
Request, FY2011
FY2011 Subcomm.
Totala
111-117
Iraq
Haiti
Request
Req.
Mark
Inter-American
Foundation
22.5 23.0
22.8
-0.9%
22.8
African Development
Foundation 32.5
30.0
30.0
0%
30.0
Peace Corps
340.0
400.0
446.2
+11.6%
446.2
Millennium Challenge
Corporation 875.0
1,105.0
1,279.7
+15.8
1,105.0
Department of Treasury, Subtotal
85.0
85.0
108.0
+27.1%
84.0
Treasury Department
Technical Assistance
25.0
25.0
7.1
38.0
+52%
28.0
Debt Restructuring
60.0
60.0
70.0
+16.7%
56.0
Title IV. Military/Security
Assistance,
Subtotal 10,062.7
6,985.5 817.4
143.5
9,962.9
+42.6%
8,899.8
International Narcotics
Control & Law Enforcement
1,876.5
1,597.0
757.4
143.5
2,136.0
+33.8%
1,430.0
Andean Counterdrug Program
[315.0]
—
—
N/A
_
Nonproliferation, Anti-
Terrorism, Demining
631.5
754.0
757.6
+0.4%
737.0
International Military Education
& Training
93.0
108.0
110.0
+1.9%
106.0
Foreign Military Financing
6,231.5
4,195.0 60.0
5,473.3
+30.5%
5,446.9
Peacekeeping
Operations 530.2
331.5
286.0
-13.7%
279.9
Pakistan Counterinsurgency
Fund
700.0 —
1,200.0
N/A 900.0
Title V. Multilateral
Assistance, Subtotal
1,845.5
2,437.7
0
212.0
3,307.8
+35.7%
2,708.0
World Bank: Global
Environment Facility
80.0
86.5
175.0
+102.3% 143.0
International Clean Technology
Fund —
300.0
400.0
+33.3%
300.0
Strategic Climate Fund
—
75.0
235.0 +213.3%
150.0
World Bank: Int’l.
Development Association
1,115.0
1,262.5
1,285.0
+1.8%
1,235.0
IADB: Enterprise for Americas
MIF 25.0
25.0
25.0
0%
24.0
IADB: Inter-American
Investment Corporation
0.0
4.7
21.0
+346.8%
21.0
Asian Development Fund
105.0
105.0
115.3
+9.8%
105.0
Asian Development Bank
106.6
N/A
_
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Change
FY2010
FY2010
from
Enacted
Supp.
FY2010
H.R.
Request,
FY2010
enacted
FY2011
3288/div Afghanistan/
Supp.
to
House
FY2009
F P.L.
Pakistan/
Request, FY2011
FY2011 Subcomm.
Totala
111-117
Iraq
Haiti
Request
Req.
Mark
African Development Bank
—
—
—
N/A
–
African Development Fund
150.0
155.0
155.9
+0.6%
153.0
European Bank for
Reconstruction &
Development
—
—
—
N/A
_
International Fund for
Agricultural Development
18.0
30.0
30.0
0%
29.0
Global Food Security Fund
—
—
408.4
N/A
150.0
International Organizations &
Programs 352.5
394.0
350.6
-11.0%
398.0
Haiti Response/Debt Reliefb
212.0
Title VI. Export Aid,
Subtotal -299.2
-113.9
-142.7
-25.3%
-186.2
Export-Import Bank (net)c
-177.0
2.4
-9.5
-495.8%
-52.0
Overseas Private Investment
Corporation (net)d
-173.0
-171.5
-189.4
-10.4%
-189.4
Trade & Development Agency
50.8
55.2
56.2
+1.8%
55.2
Foreign Operations, Total
34,323.4 32,820.8
2,637.4
1,464.1 39,399.9
+20.0%
36,285.3
State/Broadcasting/Related
Agencies, Total
16,176.1 15,945.3 1,824.0
251.2
17,247.8
+8.2%
16,489.2
General Provisions
16.6
-118.8
State-Foreign Operations,
Total 50,499.5
48,766.1
4,461.4
1,715.3
56,664.3
+16.2%
52,655.7
Source: U.S. Department of State budget documents, House and Senate Appropriations Committees, and CRS
calculations.
a. Includes funds from P.L. 111-8, P.L. 110-252, P.L. 111-5, and P.L. 111-32
b. These funds are requested for contributions to the Inter-American Development Bank, the International
Development Association, and the International Fund for Agricultural Development to cancel debts owed
by Haiti and for disaster response activities fol owing the January 12 earthquake. These contributions are
part of a multi-donor debt cancellation deal to which the U.S. has agreed.
c. Appropriated funds are for expenses of the Inspector General. Administration expenses and loan program
funds are covered by Bank receipts.
d. These figures represent anticipated OPIC receipts, minus amounts requested for administrative expenses
and credit funding.
Congressional Research Service
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Appendix E. International Affairs (150) Budget
Account
Table E-1. International Affairs (150) Budget Account, FY2008-FY2010
(in millions of current U.S. $)
Change
FY2011
FY2010
from
House
Supp.
FY2010
FY2010
Subcomm.
Request,
Supp.
Enacted to
Mark
FY2009
FY2010
Afghanistan/
Request,
FY2011
FY2011
Totala
Enactedb
Pakistan/Iraq
Haiti
Request
Req.
State-
Foreign
Operations,
excluding
commissionsc 50,149.3 48,610.2
4,461.4 1,715.3 56,504.2 +16.2% 52,642.5
Commerce-
Justice-
Science
Foreign Claim
Settlement
Commission
1.8 2.1
2.2 +4.7%
unavailable
Int’l Trade
Commission
75.0 81.9
87.0 +6.2% 86.1
Agriculture
P.L. 480 &
McGovern-
Dole
2,420.9 1,899.5
1,899.5
0% 1,956.5
Total
International
Affairs (150)
52,647.0 50,593.7
4,461.4 1,715.3 58,492.9
+15.6%
Source: U.S. Department of State budget documents, House and Senate Appropriations Committees, and CRS
calculations.
a. Includes funds from P.L. 111-8, P.L. 110-252, P.L. 111-5, and P.L. 111-32.
b. P.L. 111-32, the Supplemental Appropriations Act, 2009, included $1.8 billion that the Administration
considers forward funding for FY2010. Those funds are included in the FY 2009 column of this table. If the
funds are included in the FY2010 total, rather than FY2009, the FY2011 request represents a 12% increase
over the FY2010-enacted level.
c. While funding for international commissions are appropriated in State-Foreign Operations bill, they are not
part of the International Affairs Function 150 Account.
Congressional Research Service
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Author Contact Information
Marian Leonardo Lawson
Kennon H. Nakamura
Analyst in Foreign Assistance
Analyst in Foreign Affairs
mlawson@crs.loc.gov, 7-4475
knakamura@crs.loc.gov, 7-9514
Susan B. Epstein
Specialist in Foreign Policy
sepstein@crs.loc.gov, 7-6678
Key Policy Staff
Area of Expertise
Name
Phone
E-mail
General: Foreign Operations Policy Issues/Budget
Susan
7-6678 sepstein@crs.loc.gov
Epstein
Marian
7-4475 mlawson@crs.loc.gov
Lawson
Curt Tarnoff 7-7656
ctarnoff@crs.loc.gov
General: State Dept & Foreign Service Issues/Budget
Ken
7-9514 knakamura@crs.loc.gov
Nakamura
Afghanistan Assistance
Rhoda
7-0425 rmargesson@crs.loc.gov
Margesson
Curt Tarnoff 7-7656
ctarnoff@crs.loc.gov
Africa Assistance
Ted Dagne
7-7646
tdagne@crs.loc.gov
Agency for International Development
Susan
7-6678 sepstein@crs.loc.gov
Epstein
Marian
7-4475 mlawson@crs.loc.gov
Lawson
Curt Tarnoff 7-7656
ctarnoff@crs.loc.gov
Asia Assistance
Thomas
7-7616 tlum@crs.loc.gov
Lum
Broadcasting, International
Ken
7-9514 knakamura@crs.loc.gov
Nakamura
Central Asia Assistance
Jim Nichol
7-2289
jnichol@crs.loc.gov
Civilian Stabilization/Civilian Response Corps
Nina
7-7667 nserafino@crs.loc.gov
Serafino
Debt Relief
Marty Weiss 7-5407
mweiss@crs.loc.gov
Development Assistance (bilateral)
Susan
7-6678 sepstein@crs.loc.gov
Epstein
Curt Tarnoff 7-7656
ctarnoff@crs.loc.gov
Marian
7-4475 mlawson@crs.loc.gov
Lawson
Congressional Research Service
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Area of Expertise
Name
Phone
E-mail
Disaster/Humanitarian Aid/Refugees
Rhoda
7-0425 rmargesson@crs.loc.gov
Margesson
DOD and Foreign Assistance
Nina
7-7667 nserafino@crs.loc.gov
Serafino
Export-Import Bank
James
7-7751 jjackson@crs.loc.gov
Jackson
Family Planning Programs
Luisa
7-0856 lblanchfield@crs.loc.gov
Blanchfield
Health Programs, including HIV/AIDS, Malaria,
Tiaji Salaam
7-7677
tsalaam@crs.loc.gov
Tuberculosis, Child and Maternal
Kellie Moss
7-7314
kmoss@crs.loc.gov
Human Rights
Ken
7-9514 knakamura@crs.loc.gov
Nakamura
International Affairs Budget
Susan
7-6678 sepstein@crs.loc.gov
Epstein
International Crime & Narcotics
Liana Wyler
7-6177
lwyler@crs.loc.gov
International Organizations/UN Funding
Ken
7-9514 knakamura@crs.loc.gov
Nakamura
Marjorie
7-7695 mbrowne@crs.loc.gov
Browne
Iraq Reconstruction
Curt Tarnoff 7-7656
ctarnoff@crs.loc.gov
Latin America Assistance
Mark
7-7689 msullivan@crs.loc.gov
Sullivan
Microenterprise Curt
Tarnoff
7-7656
ctarnoff@crs.loc.gov
Middle East Assistance
Jeremy
7-8687 jsharp@crs.loc.gov
Sharp
Military Assistance
Richard
7-7675 rgrimmett@crs.loc.gov
Grimmett
Millennium Challenge Corporation
Curt Tarnoff 7-7656
ctarnoff@crs.loc.gov
Multilateral Development Banks
Jonathan
7-7682 jsanford@crs.loc.gov
Sanford
Marty Weiss 7-5407
mweiss@crs.loc.gov
Overseas Private Investment Corporation
James
7-7751 jjackson@crs.loc.gov
Jackson
Peace Corps
Curt Tarnoff 7-7656
ctarnoff@crs.loc.gov
Peacekeeping
Marjorie
7-7695 mbrowne@crs.loc.gov
Browne
Nina
7-7667 nserafino@crs.loc.gov
Serafino
Public Diplomacy
Ken
7-9514 knakamura@crs.loc.gov
Nakamura
Matthew
7-4589 mweed@crs.loc.gov
Weed
Refugee Aid
Rhoda
7-0452
rmargesson@crs.loc.gov
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State, Foreign Operations, and Related Programs: FY2011 Budget and Appropriations
Area of Expertise
Name
Phone
E-mail
Margesson
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
7-0856 lblanchfield@crs.loc.gov
Blanchfield
U.S. Institute of Peace
Ken
7-6678 knakamura@crs.loc.gov
Nakamura
U.N. Voluntary Contributions
Marjorie
7-7695 mbrowne@crs.loc.gov
Browne
Congressional Research Service
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