State, Foreign Operations, and Related
Programs: FY2013 Budget and Appropriations
Susan B. Epstein
Specialist in Foreign Policy
Marian Leonardo Lawson
Analyst in Foreign Assistance
Alex Tiersky
Analyst in Foreign Affairs
July 23, 2012
Congressional Research Service
7-5700
www.crs.gov
R42621
CRS Report for Congress
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State, Foreign Operations, and Related Programs: FY2013 Budget and Appropriations

Summary
The 112th Congress is considering FY2013 international affairs funding within the context of the
Budget Control Act (P.L. 112-25) that established discretionary spending limits for FY2012-
FY2021 and contains automatic budget reductions (sequestration) on discretionary spending to
begin on January 2, 2013.
International affairs expenditures typically amount to about 1.5% of the total federal budget.
While some foreign policy and defense experts view that share as a small price to pay for a robust
foreign affairs budget that they believe is essential to meeting national security and foreign policy
objectives, others see international affairs spending, particularly foreign aid, as an attractive target
for significant spending cuts in order to reduce deficit spending. Many expect a delay in passing
the FY2013 foreign affairs budget and most of the other appropriations bills until after the
November 2012 elections (two months into the new fiscal year), which may have more to do with
election year politics, however, than lawmakers’ differing views on foreign affairs spending.
On February 13, 2012, the Obama Administration submitted its FY2013 budget proposal. The
FY2013 request totals $54.87 billion for the State-Foreign Operations appropriations, including a
core budget proposal of $46.63 billion plus $8.24 billion for extraordinary and temporary war-
related Overseas Contingency Operations (OCO) in frontline states. The total request represents
an increase of 2.6% over the estimated FY2012 funding level for the foreign affairs accounts,
including $18.8 billion (a 4.5% increase) for State Department and Related Agencies and $36.1
billion (a 0.1% increase) for Foreign Operations. Within the budget process, the Administration is
requesting authority in addition to appropriations ($770 million) for a new account—the Middle
East and North Africa Incentive Fund (MENA IF)—to provide flexible and transparent support
for Arab Spring countries in transition toward democracy. The request includes $8.2 billion for
the front line states of Iraq, Afghanistan, and Pakistan (including $800 million for the Pakistan
Counterinsurgency Capability Fund (PCCF), even though most previously enacted PCCF funding
has not been disbursed and many lawmakers are voicing concern about U.S. relations with, and
aid to, Pakistan. For other key accounts, the Administration is seeking $7.9 billion for the Global
Health Programs (GHP) account, $770 million for global climate change activities, and $643
million for family planning and reproductive health activities, including $39 million for the
controversial U.N. Population Fund (UNFPA).
Early action by the House and Senate appropriators demonstrates differing priorities and funding
levels. The House Appropriations Committee-approved State-Foreign Operations FY2013
funding bill (H.R. 5857/H.Rept. 112-494) provides a total of $48.5 billion (including $8.3 billion
in OCO and $160 million in rescissions), while the Senate Committee bill (S. 3241/S.Rept. 112-
172) provides a total of $52.3 billion (including $2.3 billion in OCO). Both House and Senate
Committees provide more than requested for GHP, but differ significantly on funding MENA
IF—the House committee provides no funding for it, and the Senate committee recommends $1
billion. The House bill provides $461 million for international family planning and reproductive
health activities, prohibits funding for UNFPA, and includes a “Mexico City Policy” provision
prohibiting funding for organizations that perform or promote abortions. In contrast, the Senate
bill includes $700 million for international family planning, including $44.5 million for UNFPA,
and does not include “Mexico City Policy” language.
Last year was the first time the Department of State requested and Congress appropriated OCO
funds. Congress attempted to rein in FY2012 spending but still meet war-related costs in the front
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line states of Iraq, Afghanistan, and Pakistan. As a result, Congress appropriated $11.2 billion in
OCO funds, nearly 30% more than the $8.7 billion requested by the Administration. The
estimated overall FY2012 total funding level of $53.5 billion was about 10% less than the
Administration’s FY2012 request, but 10% more than the FY2011 total.
The State Department, Foreign Operations, and Related Agencies appropriations legislation, in
addition to funding U.S. diplomatic and foreign aid activities, 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. (Congress has not addressed foreign
policy issues through a complete authorization process for State Department diplomatic activities
since 2003 and since 1985 for foreign aid programs.) After a period of reductions in the late
1980s and 1990s, funding for State Department operations, international broadcasting, and
foreign aid rose steadily from FY2002 to FY2010, largely because of ongoing assistance to Iraq
and Afghanistan, new global health programs, and increasing assistance to Pakistan. Funding
declined by 11.6% in FY2011 when Congress passed a continuing resolution (P.L. 112-10)
significantly reducing U.S. government-wide expenditures, including foreign affairs. The FY2012
funding represents a 2.3% increase from the previous year, largely reflecting OCO support for
frontline states.
This report analyzes the FY2013 request and congressional action related to FY2013 State-
Foreign Operations legislation. Updates will occur to reflect congressional actions.

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Contents
Introduction...................................................................................................................................... 1
Most Recent Developments and Legislative Status......................................................................... 2
The FY2013 Request and Congressional Action............................................................................. 3
State Department FY2013 Budget Request―Key Issues.......................................................... 4
Iraq Operations: From “Transition” to Normalized Relations ............................................ 4
QDDR Implementation ....................................................................................................... 5
Human Resource Issues ...................................................................................................... 6
Palestinian Statehood and the United Nations..................................................................... 7
Foreign Operations FY2013 Budget Request―Key Issues ...................................................... 8
Middle East and North Africa Incentive Fund .................................................................... 8
Frontline States.................................................................................................................... 9
Administration Initiatives.................................................................................................. 11
International Family Planning and Abortion-Related Issues............................................. 12
Assistance for Europe, Eurasia and Central Asia (AEECA) ............................................. 13
State-Foreign Operations Background and Trends ........................................................................ 13
Overseas Contingency Operations........................................................................................... 14
10-Year Funding Trends .......................................................................................................... 16
Top 10 U.S. Foreign Aid Recipient Countries......................................................................... 18
Regional Distribution .............................................................................................................. 19
Sector Distribution................................................................................................................... 20

Figures
Figure 1. Composition of the State-Foreign Operations Budget Request, FY2013......................... 3
Figure 2. Base + Supplemental/OCO Funding, FY2002- Pending FY2013 Proposals ................. 15
Figure 3. State-Foreign Operations Appropriations, FY2003-FY2013 ......................................... 16
Figure 4. State Department and Related Agencies Appropriations, FY2003-FY2013 .................. 17
Figure 5. Foreign Operations Appropriations, FY2003-FY2013................................................... 18
Figure 6. Regional Distribution of Foreign Aid, FY2012 and FY2013 Request ........................... 20

Tables
Table 1. Status of State-Foreign Operations Appropriations, FY2013 ............................................ 3
Table 2. State-Foreign Operations Appropriations, FY2003-FY2013 ........................................... 16
Table 3. State Department and Related Agencies Appropriations, FY2003-FY2013.................... 17
Table 4. Foreign Operations Appropriations, FY2003-FY2013 .................................................... 18
Table 5. Top 10 Recipients of U.S. Foreign Aid in FY2012 and the FY2013 Request ................. 19
Table 6. Selected Sector Funding, FY2012 Request and FY2013 Request................................... 21
Table C-1. State Department, Foreign operations and Related Agencies Appropriations,
FY2011-FY2013......................................................................................................................... 24
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Table D-1. International Affairs (150) Budget Account, FY2011-FY2013 ................................... 30

Appendixes
Appendix A. Structure of State-Foreign Operations Appropriations ............................................. 22
Appendix B. Abbreviations............................................................................................................ 23
Appendix C. State Department, Foreign Operations and Related Agencies Appropriations......... 24
Appendix D. International Affairs (150) Budget Account............................................................. 30

Contacts
Author Contact Information........................................................................................................... 30
Key Policy Staff............................................................................................................................. 31

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Introduction
Facing significant pressure to reduce the federal budget deficit, some in the 112th Congress view
international affairs spending, particularly for foreign aid programs, as expenditures of limited
benefit to U.S. taxpayers and eligible for cuts.1 Others favor a more robust foreign affairs budget
for various reasons. In particular, some Members of Congress in both political parties, as well as
the previous and current Secretaries of Defense, view a solid foreign affairs budget as essential to
assisting the Defense Department in promoting U.S. national security and foreign policy interests,
perhaps even saving long-term spending by preventing the much costlier use of troops overseas.2
To address budget costs, Congress is considering the FY2013 Department of State, Foreign
Operations, and Related Agencies appropriations in the context of the Budget Control Act of
2011. (See text box below.)
This year, many political observers believe Congress will delay passing most appropriations bills,
including State-Foreign Operations, until after
the start of the new fiscal year and the fall
The Budget Control Act and the Foreign
elections. Budget experts anticipate one or
Affairs Budget
more continuing resolutions to continue
FY2013 discretionary appropriations are being
funding government programs until the “lame
considered in the context of the Budget Control Act of
duck” Congress can act on the budget.
2011 (BCA, P.L. 112-25) that established discretionary
Attempts to adjust or reverse the Budget
spending limits for FY2012-FY2021 to achieve $1.2
Control Act’s triggering of automatic spending
trillion in savings over ten years. The BCA also tasked a
reductions in January 2013 could be revisited
Joint Select Committee on Deficit Reduction to develop
a federal deficit reduction plan for Congress and the
in a post-election Congress as well.
President to enact by January 15, 2012. The failure of
Congress and the President to enact deficit
The State-Foreign Operations appropriation,
reduction legislation by that date triggered an automatic
typically about 1.5% of the total federal
spending reduction process established by the BCA,
budget in recent years, supports most
consisting of a combination of sequestration (across-the-
board cuts) and lower discretionary spending caps, to
programs and activities within the
begin on January 2, 2013. The sequestration process for
international affairs budget account, known as
FY2013 requires across-the-board spending cuts at the
Function 150, including foreign economic and
account and program level to achieve equal budget
security assistance, contributions to
reductions from both defense and nondefense funding at
international organizations and multilateral
a percentage to be announced by the Office of
Management and Budget. As a result, the FY2013 State-
financial institutions, State Department and
Foreign Operations appropriation will be considered by
U.S. Agency for International Development
Congress with the understanding that enacted funding
(USAID) operations, public diplomacy, and
levels wil likely be subject to significant cuts in the
international broadcasting programs. The bill
nondefense category under the sequestration process
unless legislation specifically repealing the sequestration
does not align perfectly with the international
provisions of the BCA is enacted by Congress before
affairs budget, however. Food aid, which is
next January.
appropriated through the Agriculture
appropriations bill, and the 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

1 This was reflected by the House passage of its Budget Resolution (H.Con.Res. 112) that recommended reducing the
foreign affairs budget in FY2013 by 10% as compared with FY2012 funding levels.
2 Woodrow Wilson Center for Scholars, NewSecurityBeat, Panetta: Diplomacy and Development Part of Wider
Strategy to Achieve Security; Will they Survive Budget Environment?, by Schuyler Null, Oct 13, 2011. See
http://www.newsecuritybeat.org/2011/10/from-wilson-center-leon-panetta-support.html.
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bill. Furthermore, a number of international commissions that are not part of 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. Abbreviations of terms used throughout this report are in Appendix
B. The report focuses on the accounts funded through the State-Foreign Operations appropriations
bill (see Appendix C for data), and it also provides appropriations figures for the entire
international affairs (Function 150) budget in Appendix D.
Most Recent Developments and Legislative Status
In order of the most recent events, congressional activity related to the State-Foreign Operations
appropriations include the following as summarized in Table 1 below:
• On May 24, 2012, the Senate Appropriations Committee approved by a vote of
29-1 its FY2013 State-Foreign Operations appropriations bill (S. 3241/S.Rept.
112-172). The bill provides a total of $52.3 billion, including $2.3 billion in
Overseas Contingency Operations (OCO) funds. This is 5% below the $54.9
billion requested and 2% below the FY2012 estimated level. For the State
Department and Related Agencies, the Senate sets FY2013 funding at $16.3
billion, including $1.6 billion for OCO. It funds Foreign Operations at $36.0
billion, including $709.8 million in OCO funds.
• On May 17, 2012, the House Appropriations Committee approved by voice vote
its FY2013 State-Foreign Operations appropriations bill (H.R. 5857/H.Rept. 112-
494) totaling $40.3 billion for regular funding and $8.2 billion for OCO. In total,
the bill’s $48.5 billion is 12% less than requested and 9% below the FY2012
estimated levels. Within the total, the bill provides $15.8 billion for the
Department of State and Related Agencies accounts, including $2.9 billion in
OCO funding and $32.9 billion for Foreign Operations accounts, including $5.4
billion in OCO funding
• On April 25, using the caps in the March 29, 2012, House-passed budget
resolution (H.Con.Res. 112) for guidance, the House Appropriations Committee
approved its initial subcommittee allocations. The House allocation for the State-
Foreign Operations subcommittee is $48.38 billion, including $8.2 billion in
OCO funds, or almost 12% below the Administration’s request and nearly 9%
below the Senate allocation. The allocation gap could create a significant
challenge in reconciling any FY2013 legislation drafted by the House and Senate
subcommittees.
• On April 19, using the FY2013 budget authority caps in the Budget Control Act
of 2011 (P.L. 112-25) as guidance, the Senate Appropriations Committee adopted
its initial FY2013 subcommittee allocations. The Senate allocated $53.02 billion
for the State-Foreign Operations subcommittee, or 3% less than the
Administration’s request. This includes $3.2 billion in OCO funds.
• On February 13, 2012, the Obama Administration submitted its FY2013 budget
request to Congress, seeking an increase of 2.6% above the estimated FY2012
level for the Department of State-Foreign Operations and Related Agencies.
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Table 1. Status of State-Foreign Operations Appropriations, FY2013
Conference
Signed
302(b)
Subcommittee
Committee
Agreement
Into
Allocation
Action
Action Floor
Passage
Approved
Law
House Senate House Senate
House Senate House Senate House Senate
4/25 4/19 5/9 5/22 5/17 5/24





$48.38 $53.02
n/a
n/a $48.54 $52.39




The FY2013 Request and Congressional Action
On February 13, 2012, the Obama Administration submitted its FY2013 budget proposal. The
Administration’s priorities on foreign affairs funding for FY2013 do not differ significantly from
the congressional priorities indicated by the enacted FY2012 funding levels. The FY2013 request
totals $54.9 billion for the State-Foreign Operations appropriations, including a core budget
proposal of $46.6 billion plus $8.2 billion for extraordinary and temporary war-related Overseas
Contingency Operations (OCO) in frontline states. The total request represents an increase of
2.6% over the estimated FY2012 funding level for State-Foreign Operations, including a 4.5%
increase in State Department and Related Agencies accounts and a 0.1% increase in Foreign
Operations accounts. Within the budget, the Administration is requesting authority and $770
million in funds for a new bilateral economic aid account—the Middle East and North Africa
Incentive Fund (MENA IF)—to provide flexible and transparent support for Arab Spring
countries in transition toward democracy. Within the security aid category, the Administration is
seeking $800 million for the Pakistan Counterinsurgency Capability Fund (PCCF), even though
most past PCCF funding has not been disbursed and many lawmakers are voicing concern about
U.S.-Pakistan relations, in general, and aid to Pakistan, specifically. Figure 1 provides a breakout
of the FY2013 request by funding category.
Figure 1. Composition of the State-Foreign Operations Budget Request, FY2013

Source: Fiscal Year 2013 Budget of the United States Government and CRS calculations. Note: Numbers total
101% due to rounding.
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The FY2013 request seeks a slight increase of State Department Administration of Foreign
Affairs funding as a share of the total request, from 25% in FY2012 to 26% requested for
FY2013, a slight decrease from 40% in FY2012 to 39% requested for FY2013 for bilateral
economic aid, and a small increase from 19% in FY2012 to 19.5% in the FY2013 request for
security assistance funding. These three categories make up more than 85% of the total State-
Foreign Operations funding requested. For a full listing of funds requested for State, Foreign
Operations and Related Agency accounts, by account, see Appendix C. (For a description of all
the accounts, see CRS Report R40482, State, Foreign Operations Appropriations: A Guide to
Component Accounts, by Curt Tarnoff and Alex Tiersky.)
State Department FY2013 Budget Request―Key Issues
The State Department and Related Agencies portion of the international affairs budget request
includes funding for State Department operations, International Organizations (including U.S.
assessed dues to the U.N. system) and International Peacekeeping activities, International
Broadcasting, and entities such as the National Endowment for Democracy (NED) and the U.S.
Institute of Peace (USIP).
The State Department and Related Agencies accounts would, under the Administration request,
see a 4.5% boost in FY2013 to a total of $18.8 billion. This amount includes $14.1 billion for
Administration of Foreign Affairs, which provides for the personnel, operations and programs of
the Department as well as the construction and maintenance of its facilities around the world. The
FY2013 request is focused on supporting several key efforts, including the unprecedented
military-to-civilian transition in Iraq and ongoing State Department-led efforts in the other
“frontline states” of Afghanistan and Pakistan; internal reorganizations under the Quadrennial
Diplomacy and Development Review (QDDR); and ongoing efforts addressing personnel issues.
These issues are highlighted below.
Iraq Operations: From “Transition” to Normalized Relations
In what U.S. officials have called the largest military-to-civilian transition since the Marshall
Plan,3 the Department of State has become the lead agency for all U.S. programs in Iraq, after the
departure of U.S. military forces in late 2011. The State Department is pursuing a wide-ranging
policy agenda while also seeking to execute the unprecedented scope of responsibilities it took
over from the U.S. military forces that were withdrawn, ranging from air transport, to
environmental cleanup, to medical support.
For FY2013, the first post-transition fiscal year, the Administration is requesting 23% less
funding than the estimated FY2012 level for State Operations in Iraq: $2.7 billion, including $2.3
billion in OCO.4 Officials have suggested that this lower funding level reflects the
Administration’s intent to ‘normalize’ the U.S. presence in Iraq. Its original plans in the FY2012
request for $3.7 billion included funds for an embassy branch office in Diyala that is not included

3 Special Briefing, Thomas Nides, Deputy Secretary for Management and Resources, and Rajiv Shah,
USAID Administrator, Washington, DC, February 13, 2012, available at http://www.state.gov/s/dmr/remarks/2012/
183842.htm.
4 The Administration’s FY2013 request totals a combined $4.78 billion for State Department operations and bilateral
aid in Iraq.
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in the FY2013 request, as well as funding for another office in Mosul that is now postponed.
Factors cited by the State Department as cost-saving include a planned 25% reduction in the State
Department presence in Iraq by the fall of 2012, reductions in security and sustainment contracts,
and anticipated completion of construction that was funded in FY2012.
The House appropriations bill includes a total of $2.8 billion for State Department operations in
the three front-line states (Iraq, Afghanistan, and Pakistan); funding for increased security for
staff in these states is provided, but funding for increased staff is not. The Senate Appropriations
Committee bill states that new funding, in addition to carryover balances, provide a total of $2.1
billion for Department of State operations in Iraq in FY2013, a level it deems adequate under
State’s revised operational assumptions.
QDDR Implementation
The FY2013 budget request is the first that reflects reforms outlined in the QDDR. The QDDR,
completed in the fall of 2010 and modeled on the Defense Department’s Quadrennial Defense
Reviews, identified several reforms intended to shift diplomatic resources towards the highest
priority countries and programs. Among the reforms spelled out in the QDDR were the
establishment of a new Bureau of Energy Resources and elevation of the Office of the
Coordinator for Counterterrorism to a Bureau. Both occurred in 2011 without any specific
authorization or additional funding from Congress. Additionally, activities of the Office of the
Coordinator for Reconstruction and Stabilization were subsumed in the renamed Bureau of
Conflict and Stabilization Operations.
Funding for the State Department’s operations in support of the Counterterrorism mission has
increased from $3.2 million in FY2011, when the Office of Counterterrorism was an element of
the Office of the Secretary of State, to $19 million for the new Bureau of Counterterrorism in the
FY2013 request (an increase of $2.4 million over the FY2012 levels). The Administration is
requesting funds for an additional 12 new positions within the Bureau, in addition to the 70 U.S.
direct-hires and 30 contract staff already in place. Neither the House or Senate bill mentions the
Bureau of Counterterrorism, but could still provide funding for new hires within the Diplomatic
and Consular Programs (D&CP) account.
Bureau of Energy Resources
The Bureau of Energy Resources (ENR) is similarly seeking 22 additional direct-hire positions in
the FY2013 budget request, at a cost of $5.4 million (out of a total $16.9 million budget request
for ENR). The Bureau, announced in late 2011, seeks the additional funding to grow its capacity
“to strengthen market incentives to transform the future of energy supplies, deepening the
Department’s human resource expertise on energy matters, and institutionalizing improved
capabilities to engage more broadly and deeply on U.S. global energy priorities.”5 The
Administration’s funding request also includes plans for the Bureau to establish four regional
hubs in Istanbul, Singapore, Johannesburg, and Rio de Janeiro, to engage regional partners and
promote energy-issue involvement at posts and in State’s regional bureaus. The House
Appropriations Committee recommendation does not include the additional $5.4 million and 22
new positions specifically for the Bureau of Energy Resources. The Senate Appropriations

5 State Department FY2013 Congressional Budget Justification, Vol. 1: Department of State Operations, p 141.
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Committee report does not mention this Bureau. Funding within the D&CP could support these
new hires, however.
Bureau of Conflict and Stabilization Operations
The Administration’s FY2013 request for the Bureau of Conflict and Stabilization Operations
(CSO) totals $56.5 million, an 86% increase over FY2012 levels. Staffing levels will drop by 64
positions as part of a restructuring that seeks to make the Bureau more agile and expeditionary,
with a greater emphasis on creating a flexible response capacity with a smaller staff. The
proposed change is intended to produce greater deployment capacity, but with significantly less
overhead. In addition, the Civilian Response Corps (CRC) model has been modified from a
standing group of experts who deployed less than half the time, to a structure that funds experts
only when they are deployed; as part of this reorganization, the FY2012 high of 144 CRC
members will be reduced by 76 members.6
The House Appropriations Committee’s FY2013 proposal replicates its FY2012 action for
Conflict and Stabilization Operations, continuing to provide authority for the Secretary of State to
transfer up to $35 million of the funds appropriated under the D&CP heading to CSO. It also
provides $8.5 million in OCO funding, as it did in FY2012. The Senate Appropriations
Committee proposal includes no funding for Conflict and Stabilization Operations, but does
authorize up to $56.5 million (the amount requested) to be transferred from Diplomatic &
Consular Program funding to this account, as well as an additional $10 million from the Complex
Crisis Fund, as requested by the Administration.
Human Resource Issues
The Administration’s FY2013 request for additional human resources D&CP is a total of $2.5
billion, or $71.2 million above its FY2012 request. Of the FY2013 request, $24.9 million is
requested to bolster State’s staffing by 121 new positions (including those mentioned in the above
sections) in a continuation of State’s multi-year hiring efforts to fill human resources gaps and
bolster new programs and organizations under the ‘Diplomacy 3.0’ initiative. Secretary Clinton
originally sought to increase the number of Foreign Service Officers (FSO) by 25% from 2008-
2014. With the proposed FY2013 funding, State would reach 18% growth since 2008, through the
hiring of an additional 82 FSOs. The proposed funding would also permit State to hire an
additional 39 civil servants. In the context of constrained budgeting, the Department postponed its
goal of 25% growth in the Foreign Service to future years beyond 2014.7
The Administration also seeks $81.4 million for the third and final phase of implementing its
Overseas Comparability Pay (OCP) for FSOs. According to the Department of State, prior to
2009 Foreign Service employees transferring abroad experienced a 23.1% cut in basic pay from

6 For background information, see CRS Report RL32862, Peacekeeping/Stabilization and Conflict Transitions:
Background and Congressional Action on the Civilian Response/Reserve Corps and other Civilian Stabilization and
Reconstruction Capabilities, by Nina M. Serafino.
7 The 2014 goal of a 25% increase in the Foreign Service was originally postponed in the FY 2012 budget request,
which nonetheless included funding for 197 new State Department positions at a cost of $66.7 million, including 130
(86 overseas, 44 domestic) Foreign Service and 67 Civil Service positions. The Administration had requested funds to
support 500-600 new positions in the three years prior to FY2012.
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what they had been receiving as locality pay for serving in Washington, DC.8 This situation was
compounded by lowered employer contributions by the Department to the Federal Thrift Savings
Plan. Entry and mid-level Foreign Service employees were particularly affected, according to
State officials, who have suggested that this issue could affect diplomatic readiness by increased
attrition and recruitment challenges, and is “critical for the Department’s Foreign Service
competitiveness in the workplace.” 9
Congress has approved two prior OCP adjustments since 2009, reducing the pay differential by
nearly 70%. The FY2013 request would provide for a third and final tranche of funds to bring the
comparability pay level to the Washington, DC locality pay rate.
On the above human resources issues, the House Appropriations Committee recommendation
includes no funding for hiring above attrition in FY2013. The Committee also rejected the
Department’s requested extension of authority for overseas comparability pay, stating that “the
authority to grant overseas comparability pay is a matter within the jurisdiction of the
authorization committee and should be considered in the context of legislation addressing the
authorities and compensation rules governing the Foreign Service.” The Senate Appropriations
Committee also did not include the overseas comparability pay authority or funding in its FY2013
proposal.
Palestinian Statehood and the United Nations
In October 2011, the United Nations Educational, Scientific and Cultural Organization
(UNESCO) voted to admit Palestine as a full member, prolonging a U.S. policy debate that is
being played out, in part, in the State-Foreign Operations appropriations process. The United
States has long opposed any path to Palestinian statehood outside of a negotiated agreement with
Israel, and U.S. law prohibits American funding, which is assessed at 22% of the UNESCO
budget, to any U.N. agency that accepts the Palestinians as a full member. U.S. assessed
contributions to UNESCO within the State Department’s Contributions to International
Organizations (CIO) account have been withheld since the vote. The Administration, which
supports U.S. participation in UNESCO, is seeking in its FY2013 request almost $80 million
for UNESCO to pay U.S. assessed contributions for calendar year 2012, explaining that it would
work with Congress to get authority to waive the restriction.
The House committee report states that the House specifically is withholding U.S. contributions
to UNESCO within the CIO account. The report also includes language prohibiting the
disbursement of Economic Support Funds (ESF) assistance to the Palestinian Authority if, after
enactment of the legislation, the Palestinians gain full membership in the United Nations or any
U.N. entity outside of a negotiated Israeli-Palestinian agreement. The Senate legislation does not
recommend funding for UNESCO within the CIO account, which it says is prohibited by law, and
also includes the same ESF restriction, as well as an explicit prohibition on U.S. funding to
UNESCO and other U.N. entities that grant full membership status to the Palestinian Authority.
Both proposals include less funding than requested for the International Organizations and

8 Locality pay is provided to most civilian Federal employees in the United States based on the location in which they
serve. The Federal Employees Pay Comparability Act of 1990, which took effect in 1994, sought to achieve pay
comparability between federal and non-federal jobs. It adds to the base pay of almost all federal employees a “locality”
adjustment that reflects the costs of attracting talent in a given geographical area.
9 State Department FY2013 Congressional Budget Justification, Vol. 1: Department of State Operations, p. 54.
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Programs (IO&P) account through which a small ($880,000) amount is requested for U.S.
voluntary contributions to UNESCO for International Contributions for Scientific, Educational,
and Cultural Activities (UNESCO/ICSECA) for FY22013.
Foreign Operations FY2013 Budget Request―Key Issues
The Foreign Operations budget comprises the majority of both bilateral and multilateral U.S.
foreign assistance programs. The main exception is food assistance, which is appropriated
through the Agriculture Appropriations bill. Foreign Operations accounts 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, as well as
the Inter-American and African Development Foundations, the Overseas Private Investment
Corporation (OPIC), and the Trade and Development Agency (TDA). The Foreign Operations
budget also encompasses 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 whose activities
are regarded more as trade promotion than foreign aid. On occasion, the budget replenishes U.S.
financial commitments to international financial institutions, such as the World Bank and the
International Monetary Fund.
The Foreign Operations budget request for FY2013 totals $36.1 billion, representing a 0.1%
increase from the enacted FY2012 level of $35.5 billion.
For FY2013, the Foreign Operations budget request continues to emphasize the Administration’s
ongoing foreign assistance initiatives—the Global Health Initiative, Food Security Initiative, and
the Global Climate Change Initiative—as well as funding for the “front line” war-related states of
Iraq, Afghanistan and Pakistan. In addition, the request calls for a new regional funding account
to respond to political transitions in the Middle East and North Africa. House and Senate
committee action to date indicate that these priorities may not be shared by all in Congress. In
addition to funding levels, policy issues such as restrictions on funding for international family
planning programs and conditions on aid to certain countries and entities are expected to be a
focus of the congressional foreign aid funding debate. These key issues are highlighted below.
Middle East and North Africa Incentive Fund
With recent popular uprisings leading to the fall of governments in the Middle East and North
Africa, the use of foreign assistance as a democracy promotion tool has received significant
scrutiny. In particular, the fall of the Mubarak regime in Egypt, long a top U.S. aid recipient, and
the U.S. role in ousting Muammar Gaddafi in Libya, have raised a number of policy questions
about the appropriate U.S. role in foreign political transitions. Members of the 112th Congress
have expressed interest in supporting popular uprisings against undemocratic regimes, yet are
concerned about accountability and potential unintended consequences of providing assistance to
entities that may pursue actions counter to U.S. policy interests.
To support effective U.S. engagement in the evolving situation in the Middle East, the
Administration is proposing in its FY2013 budget request the creation of a $770 million Middle
East and North Africa Incentive Fund (MENA IF). Of the requested funds, some would support
existing programs: $65 million would be base funding for the Middle East Partnership Initiative
(MEPI) and $5 million would be for the Office of Middle East Programs (OMEP) regional
activities. These programs are currently funded through regional Economic Support Funds. The
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remaining $700 million would be unallocated funds intended to provide incentives for beneficiary
countries to move toward democracy, while allowing for State Department flexibility and
transparency in supporting Arab Spring countries in transition, eliminating the need to transfer
funds from other programs and accounts to meet evolving circumstances. The Administration has
stated that the funds would be allocated in close consultation with Congress, but has suggested
that the funds could be used for humanitarian relief, contributions to U.N. peacekeeping
activities, or bilateral loan forgiveness, among other possibilities, depending on the
circumstances.
Some Members of Congress have expressed concerns about the proposed MENA IF, which some
believe would give the Administration too much discretion and Congress too little opportunity for
oversight. The House committee bill provides no funding for a new account, but would allocate
$175 million within the Economic Support Fund (ESF) account and $25 million in the Foreign
Military Finance account for “Middle East Response,” including the funding of MEPI and OMEP
and no less than $50 million for Jordan, leaving $75 million unallocated and “flexible.” In sharp
contrast, the Senate Committee report includes $1 billion for MENA IF – about 30% more than
the $770 million requested. The bill would increase MEPI funding to $70.0 million.
Frontline States
As a result of their strategic significance in the so-called Global War on Terror, Afghanistan, Iraq
and Pakistan, referred to by the Administration as the “frontline states,” have consistently been
top U.S. aid recipients over the past decade. For FY2013, the Administration is requesting $6.8
billion (including OCO), or about 19% of the foreign operations budget, for aid to these three
countries.10
Iraq
For FY2013, the Administration is seeking $2.1 billion in foreign operations funds for Iraq, of
which the great majority, $1.8 billion, is designated as OCO. This is 22% more than the FY2012
enacted level. The Department’s FY2013 request for Iraq includes $1 billion for the Police
Development Program (PDP), the State Department’s largest single program in Iraq. The
Administration states that the funding reflects the transition to full State Department authority of
the PDP, which is described in State’s budget justification as the cornerstone of U.S. security
engagement and assistance in Iraq. In the spring of 2012, the PDP came under scrutiny when
news reports suggested that the program was being reduced significantly and might be abandoned
altogether.11 The U.S. Embassy in Baghdad forcefully rejected this notion in a statement calling
the program a “vital part of the U.S.-Iraqi relationship and an effective means of standing by our
Iraqi friends.”12 Still, doubts remain among some foreign policy observers regarding the
program’s ultimate efficacy in the face of numerous obstacles including security challenges and
Iraqi indifference.

10 For information on U.S. spending in Iraq, Afghanistan and Pakistan over the last decade, see CRS Report RL33110,
The Cost of Iraq, Afghanistan, and Other Global War on Terror Operations Since 9/11, by Amy Belasco.
11 Tim Arango, “U.S. May Scrap Costly Efforts to Train Iraqi Police,” The New York Times, May 13, 2012.
12 U.S. Embassy: “Police Development Program is a Vital Part of the U.S.-Iraqi Relationship”, Press Release, U.S.
Embassy Baghdad, May 13, 2012, http://iraq.usembassy.gov/may1312poldevelop.html.
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The House legislation does not provide specific funds for Iraq, but expresses support for the PDP
while requiring the Administration to report on revised personnel, scope, and costs of the program
to reflect a review conducted earlier this year. The House report (H.Rept. 112-494) states that
appropriations provided within the International Narcotics Control and Law Enforcement
(INCLE) program will continue funding the PDP program. The Senate Appropriations Committee
provides $635 million13 in foreign operations funds for Iraq, but does not include funding for the
PDP, citing its largely unsuccessful implementation due to Iraqi disinterest and inadequate
planning by the Department of State.
Afghanistan
For FY2013, the Administration is requesting $2.5 billion in foreign operations funds for
Afghanistan, of which almost half, or $1.2 billion, is designated as OCO. This is 7.6% more than
the FY2012 enacted level. According to the Administration, the increase reflects a surge in
infrastructure programs and other investments in economic growth, as well as the ramping up of
justice sector programs in anticipation of the transition of these programs from the Department of
Defense to civilian management. The House legislation does not specify total funding for
Afghanistan and specifies that assistance to Afghanistan will be withheld until certification that
adequate security is in place for civilian aid workers. The Senate bill includes $1.8 billion14 in
foreign operations funds for Afghanistan, asserting that less funding than requested is needed as
the Afghan government is taking control of more programs.
Pakistan
The Administration’s FY2013 budget requests $2.2 billion in foreign operations funds for
Pakistan, including $800 million for the Pakistan Counterinsurgency Capability Fund (PCCF)
designated as OCO. This is about 6% more than the FY2012 enacted level. According to the
Administration, the request reflects a modest increase in civilian assistance focused on energy,
economic growth, stabilization, education and health, but remains well below the levels
authorized in the Enhance Partnership With Pakistan Act of 2009. The House legislation does not
specify an aid level for Pakistan, and prohibits all economic and security assistance if Pakistan is
uncooperative in anti-terrorism and other efforts. The Senate bill includes $842.3 million15 in
foreign operations funds for Pakistan, including $50 million for the PCCF (reflecting the
significant unobligated funds still in the pipeline, rather than lack of support for the activities
funded) and continues existing aid restrictions. The Senate bill also includes new conditions on
aid to Pakistan, including withholding $33 million in Foreign Military Financing (FMF) to
Pakistan until the Secretary of State certifies that Dr. Shakil Afridi has been released from prison
and cleared of all charges related to providing assistance to the United States in locating Osama
bin Laden.16

13 Includes OCO and USAID Operating Expenses.
14 Including OCO and USAID Operating Expenses.
15 Including OCO and USAID Operating Expenses.
16 For more detail on U.S. aid to Pakistan, see CRS Report R41856, Pakistan: U.S. Foreign Assistance; for more
information about U.S. conditions/restrictions on aid to Pakistan, see CRS Report R42116, Pakistan: U.S. Foreign Aid
Conditions, Restrictions, and Reporting Requirements; both are updated regularly.
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Administration Initiatives
Global Health Initiative
The budget request includes roughly $7.9 billion for the Administration’s Global Health Initiative
(GHI) through State-Foreign Operations appropriations, compared to the FY2012 enacted level of
$8.2 billion. The proposed cut of approximately $300.0 million is the largest foreign operations
account reduction requested, in dollar terms, and would represent the end of a decade-long
growth trend in global health funding.17 Compared to the FY2012-enacted amount, the request
includes decreases for each global health activity area, except for a 1.2% increase in funding for
international family planning and reproductive health and a 57% increase in funding ($1.7 billion)
for the Global Fund to Fight HIV, Tuberculosis and Malaria (Global Fund). The most significant
proposed reductions are for bilateral HIV/AIDS activities. The Administration asserts that current
goals can be attained at the lower funding level as a result of program efficiencies and reduced
drug costs.
Both House and Senate would provide more than the request. The House legislation provides $8
billion for global health, slightly more than the request, which includes $1.3 billion for a U.S.
contribution to the Global Fund. The Senate proposes $8.5 billion for the GHI, 8% more than was
requested, including $1.7 billion for the Global Fund, and 4% more than the FY2012 level.
Food Security
Feed the Future (FtF), the Obama Administration’s food security initiative announced in 2010,
continues to be a priority for the Administration. The FY2013 request is for $1.1 billion in
Foreign Operations funds for related programs. FtF is the outgrowth of a pledge made by the
President at a G-8 summit in 2009 to provide at least $3.5 billion over three years (FY2010-
FY2012) to address root causes of global hunger.18 The initiative also emphasizes the benefits of
working multilaterally and in partnership with other stakeholders to leverage resources.19 The
FY2013 request includes $134 million for the multi-donor Global Agriculture and Food Security
Program (GAFSP), managed by the World Bank.
The House proposal for FY2013 includes language supporting the goals of FtF, but does not
specify a funding level, with the exception of $99.8 million allocated for GAFSP. The Senate
proposal recommends that $1.2 billion in assistance from all accounts in the act be made available
for agricultural and food security, including $200 million specifically appropriated for GAFSP.
Climate Change
The FY2013 request for programs supporting the Global Climate Change Initiative (GCCI) is
$770 million, a 1% increase from the $760.9 million enacted estimate for FY2012. Funds for
GCCI activities flow through a number of appropriations accounts, including ESF, DA, IO&P and

17 For more on the GHI and its history, see CRS Report R41851, U.S. Global Health Assistance: Background and
Issues for the 112th Congress, by Tiaji Salaam-Blyther.
18 Fore more information on this initiative, see CRS Report R41612, The Obama Administration’s Feed the Future
Initiative, by Charles E. Hanrahan.
19 An additional $18 billion was pledged by other donors at the summit.
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several multilateral funds. The initiative supports 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 World Bank Trust Funds, which the Administration
promotes as a cost effective approach, claiming that every dollar of U.S. contribution to these
funds leverages four to five dollars from other donor countries and 6 to 10 times that amount
from other sources.20
The House and Senate have taken notably different positions on GCCI in their FY2013 proposals.
The House legislation does not mention the GCCI and recommends zero funding for the Clean
Technology Fund and Strategic Climate Fund, while providing just half of the requested funds for
the Global Environment Facility (GEF). The Senate Committee chose not to provide a minimum
funding level for climate change programs as a whole, but recommends that $111 million be spent
on Sustainable Landscapes, a pillar of the GCCI. The Senate also indicates strong support for the
multilateral climate change funds, providing $139.4 million for the GEF, $100.0 million for the
Strategic Climate Fund and $300.0 million for the Clean Technology Fund – exceeding the
Administration’s request for each account.
International Family Planning and Abortion-Related Issues21
The Administration requested $643 million for family planning and reproductive health activities
in FY2013. These activities have generated contentious debate in Congress for over three
decades, primarily over policy rather than funding concerns, resulting in frequent clarification and
modification of family planning laws and policies. Recent congressional debate centers around
two key issues: (1) implementation of the “Mexico City policy” and (2) U.S. funding of the U.N.
Population Fund (UNFPA). The Mexico City policy, issued by President Reagan in 1984,
required foreign NGOs receiving USAID family planning assistance to certify that they would
not perform or actively promote abortion as a method of family planning, even if such activities
were undertaken with non-U.S. funds. The policy has been rescinded and reissued by past and
current Administrations. It was most recently rescinded by President Obama in January 2009. The
proposed FY2013 House legislation includes language that would codify the Mexico City Policy.
The Senate bill does not include such language.
Previous Administrations have also suspended grants to UNFPA due to evidence of coercive
family planning practices in China, citing violations of the “Kemp-Kasten” amendment, which
bans U.S. assistance to organizations that support or participate in the management of coercive
family planning programs. Past and current Administrations have disagreed as to whether UNFPA
engages in such activities. The George W. Bush Administration suspended U.S. contributions to
UNFPA from FY2002 to FY2008 following a State Department investigation of family planning
programs in China. President Obama resumed U.S. contributions to the organization in 2009, and
has requested $39 million for UNFPA for FY2013. The proposed FY2013 House legislation
includes $461 million for family planning and reproductive health activities and prohibits funding
for UNFPA, while the Senate legislation includes $700 million for family planning and

20 FY2013 Budget Request, U.S. Department of the Treasury International Programs, p. 6.
21 Luisa Blanchfield contributed this section. For more information on international planning issues, see CRS Report
R41360, Abortion and Family Planning-Related Provisions in U.S. Foreign Assistance Law and Policy, by Luisa
Blanchfield.
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reproductive health, including $44.5 million for UNFPA. Both the House and Senate bills include
the Kemp-Kasten amendment.
Assistance for Europe, Eurasia and Central Asia (AEECA)
The Administration proposes that the AEECA account, a remnant of the Support for Eastern
European Democracy (SEED) Act of 1989 and the Freedom Support Act of 1992, be dissolved in
FY2013 to reflect the end of an era of special focus on former Soviet and Eastern bloc states
transitioning to democracy and free market economies. While the request includes $420.9 million
in funding for programs currently funded through AEECA, an 18% cut from FY2012 funding of
$513.9 million, funding for the programs that had been under AEECA would come from ESF,
GHP, and INCLE accounts in FY2013 and beyond. The House legislation adopts this approach,
merging AEECA funds with ESF, GHP and INCLE, while stating that the change is not intended
to signal diminished support for the region or for the role of the Coordinator of U.S. Assistance to
Europe and Eurasia. The Senate proposal also includes a provision that funds from ESF and other
accounts may be used to provide assistance to countries that are eligible for AEECA assistance.
Neither House or Senate proposals provide a minimum funding level for AEECA-eligible
countries.
State-Foreign Operations Background and Trends
U.S. national security, trade promotion, and humanitarian interests are rationales 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. After the early 1990s, with
the Cold War ended, distinct policy objectives—including 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—replaced the Cold War-influenced foreign policy objectives.
A defining change in focus came following the 9/11 terrorist attacks in the United States. Since
then, many U.S. foreign aid and diplomatic programs have emphasized national security
objectives, frequently cast in terms of contributing to efforts to counter terrorism. 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 2006 and 2010 National Security
Strategy.
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.22
Large reconstruction programs in Afghanistan and Iraq began to dominate the foreign aid budget

22 According to the State Department, these “frontline” 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. Today, the term generally refers only to Iraq, Afghanistan and Pakistan.
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and exemplified the emphasis on using foreign aid as a tool of national security. State Department
efforts focused extensively on diplomatic security and finding more effective ways of presenting
American views and culture through public diplomacy, particularly in Muslim communities. At
the same time, the Bush Administration vastly increased aid to combat HIV/AIDS globally, with
the creation of the President’s Emergency Plan for AIDS Relief (PEPFAR), and explored a new
approach to development assistance with creation of the Millennium Challenge Corporation
(MCC), which supports the development strategies of countries that have demonstrated good
governance.23
The Obama Administration has carried forward many Bush foreign aid initiatives, including the
MCC, massive global health funding (though the Obama Administration’s Global Health
Initiative is broader in scope than PEPFAR), and robust assistance to the frontline states of Iraq,
Afghanistan, and Pakistan. Funding for these, rather than being in supplemental appropriations
requests, however, have been requested within Overseas Contingency Operations (OCO) in
regular appropriations bills.
The Obama Administration completed the first ever Quadrennial Diplomacy and Development
Review (QDDR) in the fall of 2010. Within that context, the U.S. Agency for International
Development (USAID) was named the leading government agency for development assistance.
The QDDR also identified several reforms for the Department of State that have been
implemented, including establishment of the Bureau of Energy and elevating the Office of the
Coordinator for Stabilization and Reconstruction to the Bureau of Conflict and Stabilization
Operations.
Overseas Contingency Operations
In its FY2012 budget proposals, the Department of State proposed a significant change in how
funding for the “front line states” of Iraq, Afghanistan, and Pakistan are viewed in budgetary
terms. It requested that the use of OCO funds, through which war-related Defense appropriations
had flowed for years, be extended to include “extraordinary, but temporary, costs of the
Department of State and USAID in the front line states of Iraq, Afghanistan and Pakistan.”24
Congress not only adopted the OCO designation in the FY2012 State-Foreign Operations
appropriations legislation, but expanded it to include funding for additional accounts and
countries.
The OCO designation gained increased significance in August 2011 with enactment of the Budget
Control Act of 2011 (BCA), as previously discussed, specifying that funds designated as OCO do
not count toward the budget caps established by the act. OCO designation makes it possible to
keep war-related funding from crowding out core international affairs activities within the budget
allocation. The Office of Management and Budget (OMB) recently determined, however, that
OCO funds are not exempt from the BCA automatic across-the-board reductions that are to occur
January 2, 2013.
The OCO approach is reminiscent of the use of supplemental international affairs appropriations
for much of the past decade. Significant emergency supplemental funds for foreign operations

23 For more on MCC, see CRS Report RL32427, Millennium Challenge Corporation, by Curt Tarnoff.
24 The Department of State, Executive Budget Summary Function 150 & Other International Programs, FY2012, p. 2.
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were appropriated in FY2002-FY2010 for activities in Iraq, Afghanistan, and elsewhere, and were
not counted toward subcommittee budget allocations. (See Figure 2 below.) The Obama
Administration criticized this practice, asserting that after several years such activities should no
longer be considered emergencies, and pledged to request funds for these activities through the
regular budget process starting in FY2010. This resulted in a sharp increase in base funding in
FY2010, yet supplemental international affairs funds were still requested and enacted for that
year, largely in response to the earthquake in Haiti, but also for activities in Afghanistan, Iraq and
Pakistan. The FY2011 funding cycle was the only one in the last decade in which all international
affairs funding was appropriated as part of the base budget, before the OCO approach was
adopted for FY2012. Unlike supplementals that often have been submitted to Congress separate
from regular funding requests, OCO allows all the funding to be considered simultaneously in the
regular appropriations process.
Figure 2. Base + Supplemental/OCO Funding, FY2002- Pending FY2013 Proposals
60
50
$
S 40
t U
OCO For. Ops.
ren
30
OCO State
ns of cur 20
lio
Supplemental
bil
10
Base
0
02
03
4
5
6
07
08
09
10
1
2
q.
use
FY
FY
FY0 FY0 FY0 FY
FY
FY
FY
FY1 FY1 3 Re
enate
3 Ho S
FY1 FY1 FY13

Source: CRS appropriations reports; S. 3241; H.R. 5857; FY2013 International Affairs Congressional Budget
Justification; CRS calculations.
For FY2013, the Administration has again used this approach, requesting that $8.24 billion, or
about 15% of the international affairs request, be designated as OCO. This amount is 5% less than
was requested for OCO in FY2012, and about 26% less than the $11.2 billion that Congress
enacted for that year. The House legislation designates $8.3 billion as OCO, similar to the
Administration request, but designates proportionately more of the funds within foreign
operations accounts and less within State operations accounts. The Senate bill designates $2.3
billion as OCO, or 72% less than requested, largely because it provides no funding for the Iraq
Police Development program, as mentioned above, and would fund disaster assistance and
migration and refugee assistance accounts entirely through the base budget.
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10-Year Funding Trends
Over the last decade, State Department-Foreign Operations funding has generally trended upward
until 2011, with the exception of a spike in FY2004 that reflected large reconstruction funds for
Iraq and Afghanistan. This changed in FY2011when Congress significantly reduced foreign
affairs spending to help meet deficit reduction goals. The FY2012 estimate and FY2013 request
in current dollars level off largely due to congressional efforts to reduce deficit spending, and
after adjusting for inflation, both in constant dollars are below the FY2009 overall funding level.
Table 2 and Figure 3 below show State-Foreign Operations appropriations for the past decade in
both current and constant dollars.
Table 2. State-Foreign Operations Appropriations, FY2003-FY2013
(in billions of current and 2013 constant dollars)
FY12
FY13

FY03 FY04 FY05 FY06 FY07 FY08 FY09 FY10 FY11
est.
req.
Current
$
31.72 48.34 34.23 34.25 37.28 40.47 50.50 55.11 48.72 53.50 54.87
Constant

2013
$
40.60 60.43 41.42 40.07 42.50 44.52 55.05 59.52 51.16 54.57 54.87
Source: The Department of State, Summary and Highlights, International Affairs Function 150, FY2004-FY2013
and CRS calculations.
Notes: Figures include all enacted appropriations: regular, OCO, supplementals, and rescissions. Constant
dollars are adjusted for inflation using FY2013 total non-defense deflators, Fiscal Year 2013 Historical Tables,
Budget of the U.S. Government, Office of Management and Budget, p. 212.

Figure 3. State-Foreign Operations Appropriations, FY2003-FY2013

Source: Summary and Highlights, International Affairs Function 150, FY2004-FY2013, and CRS calculations.
Table 3 and Figure 4 show appropriations for the State Department and related agencies over the
past decade in both current and constant dollars. Note that while there was a spike in foreign aid
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in 2004, there was only a slight increase in State Department funding that year as diplomacy
funding lagged. In recent years, however, the State Department and related agencies funding
trends upward at a steeper rate than the overall foreign affairs spending, reflecting an interest by
both the George W. Bush and Obama Administrations to increase human resource capacity at the
Department of State.
Table 3. State Department and Related Agencies Appropriations, FY2003-FY2013
(discretionary budget authority in bil ions of current and 2013 constant dol ars)
FY12 FY13

FY03 FY04 FY05 FY06 FY07 FY08 FY09 FY10 FY11
est.
req.
Current
$ 8.05 9.29 10.78 11.12 10.90 13.57 16.1 17.62 15.93 17.99 18.80
Constant
2013
$
10.3 11.61 13.04 13.01 12.43 14.93 17.55 19.03 16.73 18.35 18.80
Source: The Department of State Congressional Budget Justifications, FY2004-FY2013, and CRS calculations.
Notes: Figures include all enacted appropriations: regular, OCO, supplementals, and rescissions. Constant
dollars are adjusted for inflation using FY2013 total non-defense deflators, Fiscal Year 2013 Historical Tables,
Budget of the U.S. Government, Office of Management and Budget, p. 212.

Figure 4. State Department and Related Agencies Appropriations, FY2003-FY2013

Source: The Department of State Congressional Budget Justifications, FY2004-FY2013, and CRS calculations.
Table 4 and Figure 5 show appropriations for the Foreign Operations (foreign aid) portion of the
foreign affairs budget over the past decade in both current and constant dollars. Because Foreign
Operations typically makes up about two-thirds of the State-Foreign Operations appropriations, it
shows a similar trend as the overall State-Foreign Operations budget. Unlike the State
Department trend line which continues upward in FY2012 and FY2013, foreign aid funding
levels off in those years.
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Table 4. Foreign Operations Appropriations, FY2003-FY2013
(discretionary budget authority in bil ions of current and constant 2013 dol ars)

FY12 FY13
FY03 FY04 FY05 FY06 FY07 FY08 FY09 FY10 FY11
est.
req.
Current
$
23.67 39.05 23.45 23.13 26.38 26.89 32.82 37.49 33.3 36.03 36.07
Constant
2013 $
30.30 48.81 28.37 27.06 30.07 29.58 35.77 40.49 34.97 36.75 36.07
Source: The Foreign Operations Congressional Budget Justifications, FY2004-FY2013, and CRS calculations.
Notes: Figures include all enacted appropriations: regular, OCO, supplementals, and rescissions. Constant
dollars are adjusted for inflation using FY2013 total non-defense deflators, Fiscal Year 2013 Historical Tables,
Budget of the U.S. Government, Office of Management and Budget, p. 212.

Figure 5. Foreign Operations Appropriations, FY2003-FY2013

Source: The Foreign Operations Congressional Budget Justification, FY2004-FY2013, and CRS calculations.
Top 10 U.S. Foreign Aid Recipient Countries
Prior to 9/11 and 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 1978.25 The
reconstruction efforts in Iraq and Afghanistan moved those countries into the top five, though
assistance to Iraq has declined significantly in recent years with the completion of many
reconstruction activities. Meanwhile, a combination of security assistance and economic aid
designed to limit the appeal of extremist organizations has moved Pakistan up the list in recent
years. Funding for Iraq, Afghanistan, and Pakistan includes temporary OCO appropriations.

25 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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Table 5. Top 10 Recipients of U.S. Foreign Aid in FY2012 and the FY2013 Request
(in millions of current U.S. $)
FY2012
FY2013 Request
Estimated
Requested
Country
Allocation Country Allocation
Israel $3,075
Israel $3,100
Afghanistan $2,327
Afghanistan $2,505
Pakistan $2,102
Pakistan $2,228
Iraq $1,683
Iraq $2,045
Egypt $1,557
Egypt $1,563
Jordan $676
Jordan $671
Kenya $652
Nigeria
$599
Nigeria $625
Tanzania
$571
Ethiopia $580
South
Africa
$489
Tanzania $531
Kenya $460
Source: Congressional Budget Justification Summary Tables, FY2013, Country/Account Summary (spigots)
FY2012 estimates and FY2013 request tables.
Notes: These lists consist of funding only from the 150 International Affairs Function. If funding from the
defense budget were included, Pakistan, for example would rank second for both FY2012 and the FY2013
request. Numbers include Overseas Contingency Operations (OCO) funding.
The top five recipient countries in the FY2013 request are the same as the top five aid recipients
of the allocated FY2012 funds. Israel tops the list at $3,100 million in Foreign Military Financing
(FMF), Afghanistan ranks second, with $2,505 million requested, of which $1,237.9 million is
designated as OCO funds. Nearly three-quarters of aid requested for Afghanistan is within ESF.
Pakistan ranks third at $2,228 million, including $800 million for PCCF and $928 million within
ESF. Iraq moves up from sixth in FY2010 to fourth in FY2012 and in the FY2013 request. Of the
$2,045 million for Iraq, $1,750 million is OCO money. (See Table 5 above.)
Regional Distribution
As shown in Figure 6, under the FY2013 budget request, aid to Africa would decline by 10%
from the current level to $6.4 billion; U.S. aid to the Near East would increase by 12% to $9.0
billion, largely due to support for the Arab Spring; and aid to South Central Asia would increase
by 6% to $5.3 billion. Aid to Africa primarily supports HIV/AIDS and other health-related
programs while 88% of the aid to South Central Asia is requested, largely for war-related costs, in
Afghanistan and Pakistan. The Near East region continues to be dominated by assistance to Israel
($3.1 billion), Iraq ($2.0 billion), Egypt ($1.6 billion), and Jordan ($0.7 billion). The Western
Hemisphere’s projected relative decline in FY2013 is attributable to a reduction in funding of
ESF and INCLE for Colombia. Europe and Eurasia’s 14% decline is largely due to
Congressional Research Service
19

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State, Foreign Operations, and Related Programs: FY2013 Budget and Appropriations

progress made by many countries in the region and other more pressing global priorities.26 Aid to
East Asia and Pacific remains relatively low and consistent with past years’ levels.
Figure 6. Regional Distribution of Foreign Aid, FY2012 and FY2013 Request
$9.0
$8.0
$7.0
$6.0
$5.0
$4.0
$3.0
$2.0
billions of current U.S. $
$1.0
$0.0
Africa
EAP
EE
NE
SCA
WH
FY2012
FY2013 request

Source: Foreign Operations Congressional Budget Justification, FY2013.
Note: FY2012 figures include estimated funding including Overseas Contingency Operation funds. FY2013
figures represent the Administrations request, including Overseas Contingency Operations funds. 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,
building trade capacity, 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.” The Administration does not provide allocation data, limiting comparisons to
year-to-year requested funds rather than comparing requested funds to previous enacted levels.
Comparing past and present requested levels do provide an indication of the Administration’s
interests and priorities, but not those of congressional appropriators.
Table 6 compares the FY2012 and FY2013 budget requests for key interest areas identified by
the Administration. Out of 23 sectors listed, the Administration’s FY2013 request is less than last
year’s request for all except five. Perhaps surprisingly, two of the Administration’s major
initiatives—Food Security and Global Climate Change―show declines in the FY2013 request.
Other sectors with reduced funding requests include Sustainable Landscapes (helping manage
forests and ecosystems to reduce greenhouse effects), Neglected Tropical Diseases, Nutrition,

26 Executive Budget Summary, Function 150 and Other International Programs, Fiscal Year 2012, p. 86.
Congressional Research Service
20

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State, Foreign Operations, and Related Programs: FY2013 Budget and Appropriations

Maternal and Child Health, Higher Education, Clean Energy, and Basic Education. The
Administration is emphasizing increased funding for two focus areas that were new in FY2012:
Gender Funding (up by 330% over last year’s request) and Science, Technology, and Innovation
(up 85% over last year’s request).
Table 6. Selected Sector Funding, FY2012 Request and FY2013 Request
(millions of current U.S. $)
Sector
FY2012 req.
FY2013 req.
% Change
Avian/Pandemic Influenza
$60
$53
-12%
Basic Education
$740
$570
-23%
Biodiversity $79
$100
+27%
Clean Energy
$195
$149
-24%
Family Planning/Reproductive
$769 $643 -16%
Health
Food Security
$1,100
$1,091
-1%
Gender Funding
$391
$1,680
+330%
Global Climate Change
$215 $190 -12%
Adaptation
Higher Education
$233
$175
-25%
HIV/AIDS $5,992
$5,680
-5%
Malaria $691
$619
-10%
Maternal and Child Health
$1,191
$847
-29%
Microenterprise and
$155 $195 +26%
Microfinance
Neglected Tropical Diseases
$163
$104
-36%
Nutrition $226
$156
-31%
Polio $40
$37
-8%
Science, Tech. & Innovation
$333
$617
+85%
Sustainable Landscapes
$241
$131
-46%
Trade Capacity Building
$216
$201
-7%
Trafficking in Persons
$37
$38
+3%
Trans-Sahara Counter-
$53 $44 -17%
Terrorism
Tuberculosis $254
$232
-9%
Water $294
$274
-7%
Source: U.S. Department of State Foreign Operations Congressional Budget Justification, FY2012 and FY2013,
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.


Congressional Research Service
21

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Appendix A. Structure of State-Foreign Operations Appropriations

Source: The Congressional Research Service.
CRS-22

---

State, Foreign Operations, and Related Programs: FY2013 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
MENA IF
Middle East North Africa Incentive Fund
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

Congressional Research Service
23

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Appendix C. State Department, Foreign Operations and Related
Agencies Appropriations
Table C-1. State Department, Foreign operations and Related Agencies Appropriations, FY2011-FY2013
(millions of current U.S. $)
FY2011
FY2012 estimate
FY2013 House
FY13 Senate

actuala
(P.L. 112-74)
FY2013 request
(H.R. 5857)
(S. 3241)

Total Core OCO Total Core OCO Total Core OCO Total Core OCO Total
Title I. State Department
11,384.83
9,018.01
4,513.34 13,531.35
9,747.77 4,361.65 14,109.42
8,733.80 2,785.65 11,519.45 10,112.86 1,481.90 11,594.76
Administration of Foreign
Affairs, Subtotal
Diplomatic & Consular
8,717.07
6,529.13
4,389.06
10,918.19
7,068.62
4,311.75
11,380.37
6,276.05
2,707.73
8,983.78
7,437.47
1,426.00
8,863.47
Program
Capital Investment Fund
59.38
59.38

59.38
83.30

83.30
59.38

59.38
90.00

90.00
Embassy Security,
1,630.95
1,537.00
33.00
1,570.00
1,637.72

1,637.72
1,526.20
10.80
1,537.00
1,637.72

1,637.72
Construction & Maintenance
Conflict Stabilization
35.20
21.82
8.50
30.32
56.50

56.50

8.50
8.50
0.00

0.00
Operations
Ed. & Cultural Exchanges
599.55
583.20
15.60
598.80
586.96

586.96
586.96

586.96
625.00

625.00
Office of Inspector General
104.79
61.90
67.18
129.08
65.62
49.90
115.52
60.15
58.62
118.77
67.00
55.90
122.90
Representation Allowances
7.84
7.30

7.30
7.48

7.48
7.30

7.30
7.30

7.30
Protection of Foreign Missions
27.94
27.00

27.00
28.20

28.20
27.00

27.00
35.00

35.00
& Officials
Emergency-Diplomatic &
19.35
9.30

9.30
9.50

9.50
9.30

9.30
9.50

9.50
Consular Services
Repatriation Loans
1.57
1.45

1.45
1.80

1.80
1.45

1.45
1.80

1.80
International Center
0.51
0.52

0.52
5.97

5.97



5.97

5.97
Payment American Institute
21.78
21.11

21.11
37.20

37.20
21.11

21.11
37.20

37.20
Taiwan
Foreign Service Retirement
158.90
158.90

158.90
158.90

158.90
158.90

158.90
158.90

158.90
(mandatory)
International
3,462.58
3,277.88
101.30
3,379.18
3,668.50
0.00
3,668.50
3,138.95
101.30
3,240.25
3,396.24
101.30
3,497.54
Organizations, Subtotal
CRS-24

---

FY2011
FY2012 estimate
FY2013 House
FY13 Senate

actuala
(P.L. 112-74)
FY2013 request
(H.R. 5857)
(S. 3241)

Total Core OCO Total Core OCO Total Core OCO Total Core OCO Total
Contributions to Int’l Orgs
1,578.65
1,449.70
101.30
1,551.00
1,570.00

1,570.00
1,310.77
101.30
1,412.07
1,389.74
101.30
1,491.04
Contributions to International
1,883.93
1,828.18

1,828.18
2,098.50

2,098.50
1,828.18

1,828.18
2,006.50

2,006.50
Peacekeeping
International Commissions
132.64
124.16
0.00
124.16
122.10
0.00
122.10
120.34
0.00
120.34
132.40
0.00
132.40
Int’l Boundary/U.S.-Mexico
69.66
76.17

76.17
77.10

77.10
76.18

76.18
78.20

78.20
American Sections
12.58
11.69

11.69
12.20

12.20
11.69

11.69
13.50

13.50
International Fisheries
50.40
36.30

36.30
32.80

32.80
32.47

32.47
40.70

40.70
International
738.76
747.13
4.40
751.53
720.15
0.00
720.15
747.13
0.00
747.13
733.05
0.00
733.05
Broadcasting, Subtotal
Broadcasting Operations
732.31
740.10
4.40
744.50
711.56

711.56
740.10

740.10
724.20

724.20
Capital Improvements
6.45
7.03

7.03
8.59

8.59
7.03

7.03
8.85

8.85
Related Appropriations,
198.00
183.77
8.40
192.17
169.22
0.00
169.22
177.18
0.00
177.18
309.55
0.00
309.55
Subtotal
Asia Foundation
17.86
17.00

17.00
15.40

15.40
15.40

15.40
17.00

17.00
U.S. Institute of Peace
39.40
30.59
8.40
38.99
37.40

37.40
37.40

37.40
38.23

38.23
Center for Middle East-West
1.30
0.84

0.84
0.80

0.80
0.80

0.80
0.80

0.80
Dialogue-Trust & Program
Eisenhower Exchange
0.30
0.50

0.50
0.45

0.45
0.45

0.45
0.45

0.45
Programs
Israeli Arab Scholarship
0.42
0.38

0.38
0.37

0.37
0.37

0.37
0.37

0.37
Program
East-West Center
20.96
16.70

16.70
10.80

10.80
0.00

0.00
16.70

16.70
National Endowment for
117.76
117.76

117.76
104.00

104.00
122.76

122.76
236.00

236.00
Democracy
Other Commissions
13.00
11.84
0.00
11.84
12.18
0.00
12.18
11.67
0.00
11.67
11.95
0.00
11.95
Preservation of America’s
0.60
0.63

0.63
0.60

0.60
0.60

0.60
0.63

0.63
Heritage
Int’l Religious Freedom
4.30
3.00

3.00
3.50

3.50
3.00

3.00
3.25

3.25
Security & Cooperation
2.60
2.72

2.72
2.58

2.58
2.58

2.58
2.58

2.58
Europe
Cong.-Exec. on People’s
2.00
2.00

2.00
2.00

2.00
2.00

2.00
2.00

2.00
Republic of China
CRS-25

---

FY2011
FY2012 estimate
FY2013 House
FY13 Senate

actuala
(P.L. 112-74)
FY2013 request
(H.R. 5857)
(S. 3241)

Total Core OCO Total Core OCO Total Core OCO Total Core OCO Total
U.S.-China Economic and
3.50
3.49

3.49
3.50

3.50
3.49

3.49
3.49

3.49
Security Review
State/Broadcasting/Related 15,929.81 13,362.79 4,627.44 17,990.23 14,439.92 4,361.65 18,801.57 12,929.07 2,886.95 15,816.02 14,696.05 1,583.20 16,279.25
Agencies, TOTAL
Title II. U.S. Agency for
1,528.44
1,268.50
259.50
1,528.00
1,448.45
84.00
1,532.45
1,195.91
258.41
1,454.32
1,472.10
109.80
1,581.90
International Development
USAID Operating Expenses
1,347.30
1,092.30
255.00
1,347.30
1,263.05
84.00
1,347.05
1,015.71
258.41
1,274.12
1,281.10
109.80
1,390.90
Conflict Stabilization
4.99


—


—


—


—
Operations
USAID Capital Investment
129.74
129.70

129.70
134.90

134.90
129.70

129.70
140.00

140.00
Fund
USAID Inspector General
46.41
46.50
4.50
51.00
50.50

50.50
50.50

50.50
51.00

51.00
Title III. Bilateral
21,205.03 18,353.94 3,218.56 21,572.50 20,339.52 1,037.87 21,377.39 17,247.24 2,678.81 19,926.05 22,382.20
600.00 22,982.20
Economic Assistance,
Subtotal
Global Health Programs
7,832.31
8,167.86

8,167.86
7,854.00

7,854.00
8,017.71

8,017.71
8,478.97

8,478.97
(GHP), State + USAID
GHP (State Dept.)
[5,334.31] [5,542.86]
[5,542.86] [5,350.00]
[5,350.00] [5,542.86]


[5550]

[5550]
GHP (USAID)
[2,498.00] [2,625.00]
[2,625.00] [2,504.00]
[2,504.00] [2,474.85]


[2928.97]

[2928.97]
Development Assistance
2,519.95
2,519.95

2,519.95
2,525.50

2,525.50
2,519.95

2,519.95
3,050.00

3,050.00
International Disaster &
863.27
825.00
150.00
975.00
960.00

960.00
772.60
150.00
922.60
1,250.00

1,250.00
Famine Assistance
Transition Initiatives
54.89
50.14
6.55
56.69
57.60

57.60
50.14
6.55
56.69
59.00

59.00
Complex Crises Fund
39.92
10.00
30.00
40.00
50.00

50.00
—

—
50.00

50.00
Development Credit Authority
8.28
8.30

8.30
8.20

8.20
8.20

8.20
8.20

8.20
–Admin
Development Credit Authority
[30.00]
[40.0]

[40.00]
[40.0]

[40.00]
[40.0]


[40.0]

—
Subsidy
Economic Support Fund
5,931.71
2,994.75
2,801.46
5,796.21
4,848.57
1,037.87
5,886.44
2,916.72
2,293.26
5,209.98
4,524.33
600.00
5,124.33
Assistance for Europe; Eurasia
695.74
626.72

626.72









& Central Asia (AEECA)b
Middle East and North Africa




770.00

770.00



1,000.00

1,000.00
Incentive Fund
CRS-26

---

FY2011
FY2012 estimate
FY2013 House
FY13 Senate

actuala
(P.L. 112-74)
FY2013 request
(H.R. 5857)
(S. 3241)

Total Core OCO Total Core OCO Total Core OCO Total Core OCO Total
Democracy Fund
114.77
114.77

114.77



119.77

119.77
230.00

230.00
Migration & Refugee
1,694.60
1,646.10
229.00
1,875.10
1,625.40

1,625.40
1,454.40
229.00
1,683.40
2,300.00

2,300.00
Assistance
Emergency Refugee and
49.90
27.20

27.20
50.00

50.00
47.00

47.00
50.00

50.00
Migration
Independent Agencies













Inter-American Foundation
22.45
22.50

22.50
18.10

18.10
18.10

18.10
23.50

23.50
African Development
29.44
30.00

30.00
24.00

24.00
24.00

24.00
31.00

31.00
Foundation
Peace Corps
374.25
375.00

375.00
374.50

374.50
375.00

375.00
400.00

400.00
Millennium Challenge
898.20
898.20

898.20
898.20

898.20
898.20

898.20
898.20

898.20
Corporation
Department of Treasury



—


—


—


—
Treasury Department
25.45
25.45
1.55
27.00
25.45

25.45
25.45

25.45
29.00

29.00
Technical Assistance
Debt Restructuring
49.90
12.00

12.00
250.00

250.00
—

—


—
Title IV. Military/Security
8,413.96
7,269.82
3,097.27 10,367.09
7,941.23 2,761.00 10,702.23
7,308.85 2,474.35
9,783.20
8,599.23
—
8,599.23
Assistance, Subtotal
International Narcotics
1,593.81
1,061.10
943.61
2,004.71
1,456.50
1,050.00
2,506.50
1,061.10
1,297.00
2,358.10
1,484.62

1,484.62
Control & Law Enforcement
Nonproliferation, Anti-
738.52
590.11
120.66
710.77
635.67

635.67
590.11
75.35
665.46
695.67

695.67
Terrorism, Demining
International Military Education
105.79
105.79

105.79
102.64

102.64
102.64

102.64
103.02

103.02
& Training
Foreign Military Financing
5,374.23
5,210.00
1,102.00
6,312.00
5,472.32
911.00
6,383.32
5,210.00
1,102.00
6,312.00
5,849.82

5,849.82
Peacekeeping Operations
304.39
302.82
81.00
383.82
249.10

249.10
345.00

345.00
391.10

391.10
Pakistan Counterinsurgency
297.22

800.00
800.00

800.00
800.00


—
50.00

50.00
Capability Fund (PCCF)
Global Security Fund

—
50.00
50.00
25.00

25.00
—

—
25.00

25.00
Title V. Multilateral
2,299.47
2,971.10

2,971.10
2,952.65

2,952.65
2,237.54
—
2,237.54
3,345.95
—
3,345.95
Assistance, Subtotal
World Bank: Global
89.82
89.82

89.82
129.40

129.40
64.70

64.70
139.40

139.40
Environment Facility
CRS-27

---

FY2011
FY2012 estimate
FY2013 House
FY13 Senate

actuala
(P.L. 112-74)
FY2013 request
(H.R. 5857)
(S. 3241)

Total Core OCO Total Core OCO Total Core OCO Total Core OCO Total
International Clean Technology
184.63
184.63

184.63
185.00

185.00
—

—
300.00

300.00
Fund
Strategic Climate Fund
49.90
49.90

49.90
50.00

50.00
—

—
100.00

100.00
World Bank: Int’l.
1,232.53
1,325.00

1,325.00
1,358.50

1,358.50
1,325.00

1,325.00
1,358.50

1,358.50
Development Association
Int. Bank Recon & Dev

117.36

117.36
186.96

186.96
58.68

58.68
186.96

186.96
Inter-Amer. Dev. Bank -

75.00

75.00
102.02

102.02
51.01

51.01
113.50

113.50
capital
IADB: Enterprise for Americas
24.95
25.00

25.00
—

—
—

—
25.73

25.73
MIF
IADB: Inter-American
20.96
4.67

4.67


—
—

—


—
Investment Corporation
Asian Development Fund

100.00

100.00
115.25

115.25
100.00

100.00
115.25

115.25
Asian Development Bank -
106.37
106.59

106.59
106.80

106.80
53.29

53.29
106.80

106.80
capital
African Development Fund
109.78
172.50

172.50
195.00

195.00
172.50

172.50
195.00

195.00
African Development Bank -

32.42

32.42
32.42

32.42
16.21

16.21
32.42

32.42
capital
International Fund for
29.44
30.00

30.00
30.00

30.00
19.85

19.85
32.24

32.24
Agricultural Development
Global Food Security Fund
99.80
135.00

135.00
134.00

134.00
99.80

99.80
200.00

200.00
International Organizations &
351.29
348.71

348.71
327.30

327.30
276.50

276.50
375.00

375.00
Programs
Multilateral Debt Reliefc

174.50

174.50
—

—
—

—
65.15

65.15
Title VI. Export Aid,
(149.40)
(413.01)

(413.01)
(493.62)

(493.62)
(522.01)
—
(522.01)
(493.62)
—
(493.62)
Subtotal
Export-Import Bank (net)d
2.58
(266.00)

(266.00)
(359.10)

(359.10)
(368.10)

(368.10)
(359.10)

(359.10)
Overseas Private Investment
(201.88)
(197.01)

(197.01)
(192.12)

(192.12)
(203.91)

(203.91)
(192.12)

(192.12)
Corporation (net)d
Trade & Development Agency
49.90
50.00

50.00
57.60

57.60
50.00

50.00
57.60

57.60
Foreign Ops TOTAL
33,297.50 29,450.35
6,575.33 36,025.68 32,188.23 3,882.87 36,071.10 27,467.53 5,411.57 32,879.10 35,305.86 709.80 36,015.66
State-Broadcasting-Related,
15,929.81
13,362.79
4,627.44
17,990.23
14,439.92
4,361.65
18,801.57
12,929.07
2,886.95
15,816.02
14,696.05
1,583.20
16,279.25
TOTAL
CRS-28

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FY2011
FY2012 estimate
FY2013 House
FY13 Senate

actuala
(P.L. 112-74)
FY2013 request
(H.R. 5857)
(S. 3241)

Total Core OCO Total Core OCO Total Core OCO Total Core OCO Total
State-Foreign Operations,
49,227.31 42,813.14 11,202.77 54,015.91 46,628.15 8,244.52 54,872.67 40,396.60 8,298.52 48,695.12 50,001.91 2,293.00 52,294.91
TOTAL
Title VII. General Provisions
(505.88)
(513.70)
—
(513.70)
—
—
—
(105.70)
(54.00)
(159.70)
—

—
(Rescissions)
State-Foreign Ops Total,
48,721.43 42,299.44 11,202.77 53,502.21 46,628.15 8,244.52 54,872.67 40,290.90 8,244.52 48,535.42 50,001.91 2,293.00 52,294.91
Net of Rescissions
Title VIII. Overseas
While listed in a separate title in FY2013 legislation, OCO-designated funding has been listed here in the OCO columns above, in the appropriate account lines, to allow for
Contingency Operations
easier year-to-year and bill-to-bill comparison of account totals.
Source: FY2011, FY2012, and FY2013 request data are from the FY13 CBJ; FY13 House data are from H.Rept. 112-494; Senate data are from S.Rept. 112-172.
Notes: Shaded columns indicate fiscal year totals. Figures in brackets are subsumed in the larger account above and are not counted against the total. Figures in
parentheses are negative numbers.
a. FY2011 figures reflect a 0.2% across-the-board rescission included in P.L. 112-10.
b. Although no funding was requested through the AEECA account for FY2013, funding for many programs and activities currently supported by this account was
requested in the ESF, GHP and INCLE accounts.
c. Includes MDRI funds both for the World Bank IDA and the African Development Bank.
d. Figures are net of offsetting receipts.
CRS-29

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State, Foreign Operations, and Related Programs: FY2013 Budget and Appropriations

Appendix D. International Affairs (150) Budget
Account
Table D-1. International Affairs (150) Budget Account, FY2011-FY2013
(in millions of current dollars)
FY2011
FY2012
FY2013
FY2013
FY2013

Actuala
Estimate
Request
House
Senate
State-Foreign Operations,
excluding commissionsb 48,575.79
53,366.21
54,738.39
48,403.41
52,150.56
Commerce-Justice-Science





Foreign Claim Settlement
Commission 2.16
2.00
2.14
2.00
2.14
Int’l Trade Commission
81.70
80.00
82.8.0
83.00
82.8.0
Agriculture





P.L. 480 and McGovern-Dole
1,696.10
1,650.00
1,584.00
1,330.00
1,650.00
Total International Affairs
(150) 50,355.75
55,098.21
56,407.33
49,818.41

53,885.50
Source: FY2013 International Affairs Congressional Budget Justification; H.Rept. 112-494; S.Rept. 112-172;
H.Rept. 112-463; S.Rept. 112-158; S.Rept. 112-163; CRS calculations.
a. Funding levels in this column reflect the 0.2% rescission across al non-defense accounts for FY 2011 funds
b. While funding for certain international commissions are appropriated in State-Foreign Operations bill, they
are not part of the International Affairs Function 150 Account. The State-Foreign Operations totals reflect
rescissions.




Author Contact Information

Susan B. Epstein
Alex Tiersky
Specialist in Foreign Policy
Analyst in Foreign Affairs
sepstein@crs.loc.gov, 7-6678
atiersky@crs.loc.gov, 7-7367
Marian Leonardo Lawson

Analyst in Foreign Assistance
mlawson@crs.loc.gov, 7-4475



Congressional Research Service
30

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State, Foreign Operations, and Related Programs: FY2013 Budget and Appropriations

Key Policy Staff

Area of Expertise
Name
Phone E-mail
General: Foreign Operations Policy Issues
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
Alex Tiersky 7-7367 atiersky@crs.loc.gov
Issues/Budget
Afghanistan Assistance
Rhoda
7-0425 rmargesson@crs.loc.gov
Margesson
Curt Tarnoff 7-7656 ctarnoff@crs.loc.gov
Africa Assistance
Alexis Arieff
7-2459 aarieff@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 Lum 7-7616 tlum@crs.loc.gov
Broadcasting, International
Matthew
7-4589 mweed@crs.loc.gov
Weed
Central Asia Assistance
Jim Nichol
7-2289 jnichol@crs.loc.gov
Civilian Stabilization/Civilian Response Corps
Nina
7-7667 nserafino@crs.loc.gov
Serafino
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
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
Marian
7-4475 mlawson@crs.loc.gov
Lawson
Foreign Aid Reform
Susan
7-6678 sepstein@crs.loc.gov
Epstein
Foreign Aid Reform—USAID operations
Curt Tarnoff 7-7565 ctarnoff@crs.loc.gov
Health Programs, including HIV/AIDS, Malaria,
Tiaji Salaam
7-7677 tsalaam@crs.loc.gov
Tuberculosis, Child and Maternal
Marian
7-4475 mlawson@crs.loc.gov
Lawson
Congressional Research Service
31

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State, Foreign Operations, and Related Programs: FY2013 Budget and Appropriations

Area of Expertise
Name
Phone E-mail
Humanitarian/Disaster Assistance
Rhoda
7-0452 rmargesson@crs.loc.gov
Margesson
International Affairs Budget
Susan
7-6678 sepstein@crs.loc.gov
Epstein
Marian
7-4475 mlawson@crs.loc.gov
Lawson
Alex Tiersky 7-7367 atiersky@crs.loc.gov
International Crime & Narcotics
Liana Wyler
7-6177 lwyler@crs.loc.gov
International Organizations/UN Funding
Marjorie
7-7695 mbrowne@crs.loc.gov
Browne
Luisa
7-0856 lblanchfield@crs.loc.gov
Blanchfield
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/debt relief
Marty Weiss 7-5407 mweiss@crs.loc.gov
Overseas Private Investment Corporation
James
7-7751 jjackson@crs.loc.gov
Jackson
Pakistan assistance
Susan
7-6678 sepstein@crs.loc.gov
Epstein
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
Matt Weed
7-4589 mweed@crs.loc.gov
Refugee Aid
Rhoda
7-0452 rmargesson@crs.loc.gov
Margesson
Russia/East Europe Assistance
Curt Tarnoff 7-7656 ctarnoff@crs.loc.gov
Terrorism John
Rollins
7-5529
jrollins@crs.loc.gov
U.S. Institute of Peace
Matt Weed
7-4589 mweed@crs.loc.gov
U.S. Contributions to U.N. Agencies
Marjorie
7-7695 mbrowne@crs.loc.gov
Browne



Congressional Research Service
32

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