The Global Climate Change Initiative (GCCI):
Budget Authority and Request, FY2010-FY2015

Richard K. Lattanzio
Analyst in Environmental Policy
April 30, 2014
Congressional Research Service
7-5700
www.crs.gov
R41845


The Global Climate Change Initiative (GCCI)

Summary
The United States supports international financial assistance for global climate change initiatives
in developing countries. Under the Obama Administration, this assistance has been articulated
primarily as the Global Climate Change Initiative (GCCI), a platform within the President’s 2010
Policy Directive on Global Development. The GCCI aims to integrate climate change
considerations into U.S. foreign assistance through a range of bilateral, multilateral, and private
sector mechanisms to promote sustainable and climate-resilient societies, foster low-carbon
economic growth, and reduce greenhouse gas emissions from deforestation and land degradation.
The GCCI is implemented through programs at three “core” agencies: the Department of State,
the Department of the Treasury, and the U.S. Agency for International Development (USAID).
Most GCCI activities at USAID are implemented through the agency’s bilateral development
assistance programs. Many of the GCCI activities at the Department of State and the Department
of the Treasury are implemented through international organizations, including the United
Nations Framework Convention on Climate Change’s Least Developed Country Fund and Special
Climate Change Fund, as well as multilateral financial institutions such as the Global
Environment Facility, the Clean Technology Fund, and the Strategic Climate Fund. The GCCI is
funded through the Administration’s Executive Budget, Function 150 account, for State, Foreign
Operations, and Related Programs.
Congress is responsible for several activities in regard to the GCCI, including (1) authorizing
periodic appropriations for federal agency programs and multilateral fund contributions, (2)
enacting those appropriations, (3) providing guidance to the agencies, and (4) overseeing U.S.
interests in the programs and the multilateral funds. Recent budget authority for the GCCI was
$945 million in FY2010, $819 million in FY2011, $858 million in FY2012, $841 million in
FY2013, and $838 million in FY2014; and has been enacted through legislation including the
Consolidated Appropriations Act, 2010 (H.R. 3288; P.L. 111-117); the Supplemental
Appropriations Act, 2010 (H.R. 4899; P.L. 111-212); the Department of Defense and Full-Year
Continuing Appropriations Act, 2011 (H.R. 1473; P.L. 112-10); the Consolidated Appropriations
Act, 2012 (H.R. 2055; P.L. 112-74); the Consolidated and Further Continuing Appropriations Act,
2013 (H.R. 933; P.L. 113-6); and the Consolidated Appropriations Act, 2014 (H.R. 3547; P.L.
113-76). The Administration’s FY2015 GCCI budget request is for $839 million. Congressional
committees of jurisdiction for the GCCI include the U.S. House of Representatives Committees
on Foreign Affairs (various subcommittees); Financial Services, Subcommittee on Monetary
Policy and Trade; and Appropriations, Subcommittee on State, Foreign Operations, and Related
Programs; and the U.S. Senate Committees on Foreign Relations, Subcommittee on International
Development and Foreign Assistance, Economic Affairs, and International Environmental
Protection; and Appropriations, Subcommittee on State, Foreign Operations, and Related
Programs.
As Congress considers potential authorizations and/or appropriations for activities administered
through the GCCI, it may have questions concerning U.S. agency initiatives and current bilateral
and multilateral programs that address global climate change. Some potential concerns may
include cost, purpose, direction, efficiency, and effectiveness, as well as the GCCI’s relationship
to industry, investment, humanitarian efforts, national security, and international leadership. This
report serves as a brief overview of the GCCI and its structure, intents, and funding history.

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The Global Climate Change Initiative (GCCI)

Contents
The Global Climate Change Initiative ............................................................................................. 1
Adaptation ................................................................................................................................. 1
Clean Energy ............................................................................................................................. 1
Sustainable Landscapes ............................................................................................................. 2
Budget Authority ............................................................................................................................. 2
FY2010 Budget Authority ......................................................................................................... 4
FY2011 Budget Authority ......................................................................................................... 4
FY2012 Budget Authority ......................................................................................................... 5
FY2013 Budget Authority ......................................................................................................... 6
FY2014 Budget Authority ......................................................................................................... 7
FY2015 Budget Request ............................................................................................................ 8
Key Issues for Congress .................................................................................................................. 8

Tables
Table A-1. Global Climate Change Initiative, Budget Authority, FY2010-FY2015...................... 11

Appendixes
Appendix. GCCI Budget Table ...................................................................................................... 11

Contacts
Author Contact Information........................................................................................................... 12

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The Global Climate Change Initiative (GCCI)

The Global Climate Change Initiative
On September 22, 2010, President Obama signed the Presidential Policy Directive on Global
Development.1 The directive called for the elevation of foreign development assistance as a
national priority and outlined an integrated approach to development, diplomacy, and national
security. The Global Climate Change Initiative (GCCI)—one of the three main pillars to the 2010
directive2—aims to integrate climate change considerations into relevant foreign assistance
through a range of bilateral, multilateral, and private mechanisms to promote sustainable and
resilient societies, foster low-carbon economic growth, and reduce greenhouse gas emissions
from deforestation and land degradation. The GCCI is divided into three main programmatic
initiatives, or categories: (1) adaptation assistance, (2) clean energy assistance, and (3) sustainable
landscapes assistance.
Adaptation
Adaptation programs aim to assist low-income countries with reducing their vulnerability to
climate change impacts and building climate resilience. Bilateral and regional programs at the
Department of State and USAID target the more vulnerable countries in Africa, Asia, and Latin
America and strive to address climate risks in areas including infrastructure, agriculture, health,
and water services; to develop capacity for countries to use the best science and analysis for
decision making; and to promote sound governance to carry out these decisions. Multilateral
initiatives supported by the United States include the Least Developed Country Fund3 and the
Special Climate Change Fund,4 which focus on climate resilience and food security provisions in
countries with the greatest needs; and the Strategic Climate Fund: Pilot Program for Climate
Resilience,5 which is tasked with coordinating comprehensive strategies in several of the most
vulnerable countries to support actions that respond to the potential risks of a changing climate.
Clean Energy
Clean energy programs aim to reduce greenhouse gas emissions from energy generation and
energy use by accelerating the deployment of clean energy technologies, policies, and practices.
The United States delivers much of its assistance for clean energy deployment through
multilateral trust funds. These funds are primarily housed in international financial institutions
(e.g., the World Bank); are currently supported by the financial contributions of donor country
governments; and provide financial assistance for projects implemented by a variety of
organizations, including U.N. agencies, multilateral development banks, nongovernmental

1 See White House Fact Sheet: U.S. Global Development Policy at http://www.whitehouse.gov/the-press-office/2010/
09/22/fact-sheet-us-global-development-policy.
2 The GCCI was one of three main initiatives to the 2010 Global Development Policy that also included the Global
Health Initiative and Global Food Security.
3 For more information on this program, see the United Nations Framework Convention on Climate Change website at
http://unfccc.int/cooperation_and_support/financial_mechanism/least_developed_country_fund/items/3660.php.
4 For more information on this program, see the United Nations Framework Convention on Climate Change website at
http://unfccc.int/cooperation_and_support/financial_mechanism/special_climate_change_fund/items/3657.php.
5 For more information on this program, see CRS Report R41302, International Climate Change Financing: The
Climate Investment Funds (CIFs)
.
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organizations, and national institutions. These funds take advantage of existing large-scale
greenhouse gas reduction opportunities and establish investment channels for larger private sector
financing. They include the Clean Technology Fund,6 which aims to spur large-scale clean energy
investments in lower-income countries with rapidly growing emissions; the Global Environment
Facility,7 which provides incremental funding8 for energy and infrastructure projects that support
global environmental benefits; and the Strategic Climate Fund: Program for Scaling-Up
Renewable Energy in Low Income Countries,9 which endeavors to assist the poorest countries
expand energy access and stimulate economic growth through the scaled-up deployment of
renewable energy strategies. Bilateral efforts at the Department of State and U.S. Agency for
International Development (USAID) seek to complement the multilateral investments by helping
to shape development policy and regulatory environments in the recipient countries.
Sustainable Landscapes
Sustainable landscape programs aim to reduce greenhouse gas emissions from deforestation and
forest degradation. Bilateral and regional programs at the Department of State and USAID
support country-driven policies for forest governance, forest cover and land use change
monitoring systems, law-based resource management and land tenure, and on-the-ground efforts
to halt deforestation and foster sustainable forest-based livelihoods. Multilateral initiatives
include the Strategic Climate Fund: Forest Investment Program,10 which tries to address the
circumstances that lead to deforestation and increased greenhouse gas emissions in select lower-
income countries by improving regulation and enforcement, mobilizing private financing, and
securing the social and economic benefits of sound forest management; and the Global
Environment Facility, which provides incremental funding for projects that support global
environmental benefits such as biodiversity and sustainable land use.
Budget Authority
The Global Climate Change Initiative is funded through programs at the Department of State, the
Department of the Treasury, and USAID (i.e., GCCI “core” agencies). Funds for these programs
are appropriated in the Administration’s Executive Budget, Function 150 account, for State,
Foreign Operations, and Related Programs. Recent trends in GCCI budget authority have seen it
fluctuate between $820 million and $950 million since FY2010,11 and it currently accounts for

6 For more information on this program, see CRS Report R41302, International Climate Change Financing: The
Climate Investment Funds (CIFs)
.
7 For more information on this program, see CRS Report R41165, International Environmental Financing: The Global
Environment Facility (GEF)
.
8 “Incremental” funding refers to costs associated with transforming a project with national benefits into one with
global environmental benefits. Global Environment Facility (GEF) grants aim to cover the difference or “increment”
between a less costly, more polluting option and a costlier, more environmentally sound option. In this way, GEF
funding is structured to “supplement” base project funding and provide for the environmental components in national
development agendas.
9 For more information on this program, see CRS Report R41302, International Climate Change Financing: The
Climate Investment Funds (CIFs)
.
10 For more information on this program, see CRS Report R41302, International Climate Change Financing: The
Climate Investment Funds (CIFs)
.
11 While the GCCI was instituted as a development initiative during the Obama Administration’s first budget
(continued...)
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approximately 1.7% of total programming in the International Affairs Function 150 account.12
Recent budget authority for the GCCI was reported as $945 million in FY2010, $819 million in
FY2011, $858 million in FY2012, $841 million in FY2013, and $838 million in FY2014.13 The
Administration’s FY2015 GCCI budget request is for $839 million.14 Some additional funds for
international climate change financing flow through programs at complementary agencies within
the federal government (e.g., the Department of Energy, the Environmental Protection Agency,
the Department of Agriculture); however, these allocations are defined outside the scope of the
GCCI and are not included in this report. Budget authority for GCCI programming from FY2010
to FY2015 is presented by agency and account in Table A-1.
Congress is responsible for several activities in regard to the GCCI, including (1) authorizing
periodic appropriations for federal agency programs and multilateral fund contributions, (2)
enacting those appropriations, (3) providing guidance to the agencies, and (4) overseeing U.S.
interests in the programs.
Congressional committees of jurisdiction for international climate change programs at the
Department of State, the Department of the Treasury, and USAID include the following:
• the U.S. House of Representatives Committee on Foreign Affairs (various
subcommittees);
• the U.S. House of Representatives Committee on Financial Services,
Subcommittee on Monetary Policy and Trade;
• the U.S. House of Representatives Committee on Appropriations, Subcommittee
on State, Foreign Operations, and Related Programs;

(...continued)
submission to Congress for FY2010, the United States has actively contributed congressionally appropriated funds for
international climate assistance for many years. However, it should be noted that prior contributions to climate
assistance were often accounted for and defined in different ways. Thus, it may be difficult to compare past spending
patterns and priorities against those of the current Administration. The Office of Management and Budget (OMB) has
reported FY2009 budget authority for activities defined as international climate change assistance for the three core
agencies as approximately $323 million. See OMB, Federal Climate Change Expenditure Reports to Congress, June
2010, at http://www.whitehouse.gov/sites/default/files/omb/assets/legislative_reports/FY2011_Climate_Change.pdf;
account level budget authority from FY2009 Base Enacted (P.L. 111-8); FY2009 Bridge Enacted (P.L. 110-252);
FY2009 Stimulus Enacted (P.L. 111-5); FY2009 Supp. Enacted (P.L. 111-32).
12 Estimate based on the FY2014 International Affairs, Function 150 account appropriation from P.L. 113-76, net of
rescissions, of $49.2 billion for State and Foreign Operations programming at the Departments of State, Treasury, and
USAID. Considering that the International Affairs budget generally accounts for approximately 3% of U.S.
discretionary spending, the GCCI accounts for less than 0.1% of all U.S. discretionary spending. For more detail on
recent Department of State, Foreign Operations, and Related Programs budgets, see CRS Report R43043, State,
Foreign Operations, and Related Programs: FY2014 Budget and Appropriations
, by Susan B. Epstein, Alex Tiersky,
and Marian L. Lawson.
13 Beginning with FY2010, the State Department began reporting international climate change assistance on its foreign
aid website, ForeignAssistance.gov, at http://www.foreignassistance.gov/InitiativeLanding.aspx. This reporting is
coupled with the U.S. Office of Management and Budget, FY2014 Federal Climate Change Expenditures Report to
Congress
, August 2013. Many GCCI activities are funded at agency sub-account levels, with allocations left to the
discretion of the agencies, under congressional consultation. Thus obligations and/or outlays could change from the
enacted budget authority as offices, bureaus, and/or missions update priorities in their operational budgets.
14 U.S. Department of State, Congressional Budget Justification, Foreign Operations, Appendix 2, Fiscal Year 2015.
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• the U.S. Senate Committee on Foreign Relations, Subcommittee on International
Development and Foreign Assistance, Economic Affairs, and International
Environmental Protection; and
• the U.S. Senate Committee on Appropriations, Subcommittee on State, Foreign
Operations, and Related Programs.
FY2010 Budget Authority
H.R. 3288, the Consolidated Appropriations Act, 2010, was enacted December 16, 2009, as P.L.
111-117. It included appropriations for the Department of State, Foreign Operations, and Related
Programs (Division F) that support Global Climate Change Initiative programming. Many GCCI
activities are funded by allocations at the sub-account level and were left undefined in P.L. 111-
117. Allocations for FY2010 GCCI sub-account programmatic activities in this report are as
reported by agencies on the U.S. Department of State’s “Foreign Assistance” website.15
Appropriations enacted in P.L. 111-117 related to GCCI activities include the following:
• $86.5 million for the Global Environment Facility (of which the U.S. Department
of State estimates that $37 million was allocated toward projects related to global
climate change activities, with the remainder allocated to projects related to
biodiversity, international waters, ozone protection, organic pollutants, etc.);
• $300.0 million for the Clean Technology Fund;
• $75.0 million for the Strategic Climate Fund (including the Pilot Program for
Climate Resilience and the Forest Investment Program); and
• larger account level appropriations at the Department of State, USAID, and the
Department of the Treasury, including “Development Assistance” at $2,520
million; “Assistance for Europe, Eurasia and Central Asia” at $741.6 million;
“Economic Support Fund” at $6,344 million (with another $2,490 million
enacted in FY2010 Supplemental Appropriations (H.R. 4899; P.L. 111-212);
“Department of the Treasury, Debt Restructuring” at $60 million; and
“International Organizations and Programs” at $394 million. From these larger
accounts, agencies reported $533 million in sub-account level bilateral and
regional development programming allocated for GCCI activities.
See the Appendix for a breakdown of the FY2010 budget authority.
FY2011 Budget Authority
H.R. 1473, the Department of Defense and Full-Year Continuing Appropriations Act, 2011, was
enacted April 15, 2011, as P.L. 112-10. It included appropriations for the Department of State,
Foreign Operations, and Related Programs (Title IX) that support Global Climate Change
Initiative programming. Many GCCI activities are funded by allocations at the sub-account level
and were left undefined in P.L. 112-10. Allocations for FY2011 GCCI sub-account programmatic

15 http://www.foreignassistance.gov/.
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activities in this report are as reported by agencies on the U.S. Department of State’s “Foreign
Assistance” website.
Appropriations enacted in P.L. 112-10 related to GCCI activities include the following:
• $89.8 million for the Global Environment Facility (of which the Global
Environment Facility reports that approximately 51% is allocated toward projects
related to global climate change activities, with the remainder allocated to
projects related to biodiversity, international waters, ozone protection, organic
pollutants, etc.);
• $184.6 million for the Clean Technology Fund;
• $49.9 million for the Strategic Climate Fund (including the Pilot Program for
Climate Resilience, the Forest Investment Program, and the Program for Scaling-
Up Renewable Energy in Low Income Countries); and
• larger account level appropriations at the Department of State, USAID, and the
Department of the Treasury, including “Development Assistance” at $2,520
million; “Assistance for Europe, Eurasia and Central Asia” at $696 million;
“Economic Support Fund” at $5,946 million; “Department of the Treasury, Debt
Restructuring” at $50 million; and “International Organizations and Programs” at
$354 million.16 From these larger accounts, agencies reported $539 million in
sub-account level bilateral and regional development programming allocated for
GCCI activities.
See the Appendix for a breakdown of the FY2011 budget authority.
FY2012 Budget Authority
H.R. 2055, the Consolidated Appropriations Act, 2012, was enacted December 23, 2011, as P.L.
112-74. It included appropriations for the Department of State, Foreign Operations, and Related
Programs (Division I) that support Global Climate Change Initiative programming. Many GCCI
activities are funded by allocations at the sub-account level and were left undefined in P.L. 112-
74. Allocations for FY2012 GCCI sub-account programmatic activities in this report are as
reported by agencies on the U.S. Department of State’s “Foreign Assistance” website.
Appropriations enacted in P.L. 112-74 related to GCCI activities include the following:
• $89.8 million for the Global Environment Facility (of which the Global
Environment Facility reports that approximately 51% is allocated toward projects
related to global climate change activities, with the remainder allocated to
projects related to biodiversity, international waters, ozone protection, organic
pollutants, etc.);
• $184.6 million for the Clean Technology Fund;

16 The larger account figures reflect the 0.2% rescission across all non-defense accounts for FY2011 funds, in
accordance with Section 1119(a) of P.L. 112-10.
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• $49.9 million for the Strategic Climate Fund (including the Pilot Program for
Climate Resilience, the Forest Investment Program, and the Program for Scaling-
Up Renewable Energy in Low Income Countries);
• larger account level appropriations at the Department of State, USAID, and the
Department of the Treasury, including “Development Assistance” at $2,520
million; “Assistance for Europe, Eurasia and Central Asia” at $627 million;
“Economic Support Fund” at $5,763 million; “Department of the Treasury, Debt
Restructuring” at $12 million; and “International Organizations and Programs” at
$349 million. From these larger accounts, agencies reported $493 million in sub-
account level bilateral and regional development programming allocated for
GCCI activities; and
• provisions for funding transfers were included, such that in consultation with the
Secretary of the Treasury, the Secretary of State may transfer up to $200 million
of the funds made available under the “Economic Support Fund” to funds
appropriated under the headings ‘‘Multilateral Assistance, Funds Appropriated to
the President, International Financial Institutions’’ for additional payments to
such institutions, facilities, and funds. Using these provisions, the Department of
State transferred funds to the Department of Treasury, which allocated $30
million to the Global Environment Facility (of which $15 million is considered
GCCI funding), $45 million to the Clean Technology Fund, and $25 million to
the Strategic Climate Fund during FY2012.
See the Appendix for a breakdown of the FY2012 budget authority.
FY2013 Budget Authority
H.R. 933, the Consolidated and Further Continuing Appropriations Act, 2013, was enacted March
26, 2013, as P.L. 113-6. Under P.L. 113-6, appropriations for the Department of State, Foreign
Operations, and Related Programs (Division F, Title VII) that support Global Climate Change
Initiative programming were funded through a continuing resolution at the same level as in
FY2012, with several changes specified as provisions in the legislation. FY2013-enacted account
level estimates were subject to the budget sequestration process as established by the Budget
Control Act of 2011 (P.L. 112-25) and the American Taxpayer Relief Act (P.L. 112-240). The
enacted State-Foreign Operations funding for FY2013 was reduced by approximately 5% through
sequestration, and those reductions were applied at the program, project, and activity level. As in
prior years, many GCCI activities are funded by allocations at the sub-account level and were left
undefined in P.L. 113-6. Allocations for FY2013 GCCI sub-account programmatic activities in
this report are as reported by agencies in the U.S. Office of Management and Budget, FY2014
Federal Climate Change Expenditures Report to Congress
, August 2013. This reporting is minus
the reductions pursuant to the Budget Control Act of 2011 (P.L. 112-25) sequestration order, and
accounting for any known and applicable reprogramming, transfers, or other related adjustments.
Appropriations enacted in P.L. 113-6 related to GCCI activities (post-sequestration and
rescissions estimates) include the following:
• $124.84 million for the Global Environment Facility (of which the Global
Environment Facility reports that approximately 51% is allocated toward projects
related to global climate change activities, with the remainder allocated to
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projects related to biodiversity, international waters, ozone protection, organic
pollutants, etc.);
• $175.28 million for the Clean Technology Fund;
• $47.37 million for the Strategic Climate Fund (including the Pilot Program for
Climate Resilience, the Forest Investment Program, and the Program for Scaling-
Up Renewable Energy in Low Income Countries);
• larger account level appropriations at the Department of State, USAID, and the
Department of the Treasury, including “Development Assistance” at $2,718
million; “Economic Support Fund” at $5,583 million; “Department of the
Treasury, Debt Restructuring” at $11 million; and “International Organizations
and Programs” at $331 million. From these larger accounts, agencies reported
$472 million in sub-account level bilateral and regional development
programming allocated for GCCI activities; and
• provisions for funding transfers, as they existed in P.L. 112-74, were retained in
P.L. 113-6. Using these provisions, the Department of State transferred funds to
the Department of Treasury, which allocated $20.9 million to the Clean
Technology Fund, and $62.8 million to the Strategic Climate Fund during
FY2013.
See the Appendix for a breakdown of the FY2013 budget authority.
FY2014 Budget Authority
H.R. 3547, the Consolidated Appropriations Act, 2014, was enacted January 17, 2014, as P.L.
113-76. It included appropriations for the Department of State, Foreign Operations, and Related
Programs (Division K) that support Global Climate Change Initiative programming. Many GCCI
activities are funded by allocations at the sub-account level and were left undefined in P.L. 113-
76. Allocations for FY2014 GCCI sub-account programmatic activities in this report are as
reported by agencies in the U.S. Office of Management and Budget, FY2014 Federal Climate
Change Expenditures Report to Congress
, August 2013, as “FY2014 Proposed Budget
Authority.”
Appropriations enacted in P.L. 113-76 related to GCCI activities include the following:
• $143.75 million for the Global Environment Facility (of which the Global
Environment Facility reports that approximately 51% is allocated toward projects
related to global climate change activities, with the remainder allocated to
projects related to biodiversity, international waters, ozone protection, organic
pollutants, etc.);
• $184.63 million for the Clean Technology Fund;
• $49.90 million for the Strategic Climate Fund (including the Pilot Program for
Climate Resilience, the Forest Investment Program, and the Program for Scaling-
Up Renewable Energy in Low Income Countries);
• larger account level appropriations at the Department of State, USAID, and the
Department of the Treasury, including “Development Assistance” at $2,705
million, “Economic Support Fund” at $4,640 million, and “International
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Organizations and Programs” at $334 million. From these larger accounts,
agencies reported $482 million in sub-account level bilateral and regional
development programming allocated for GCCI activities; and
• provisions for funding transfers were included, such that in consultation with the
Secretary of the Treasury, the Secretary of State may transfer $50 million of
funds appropriated under the heading “Economic Support Fund” to funds
appropriated under the heading “Multilateral Assistance, International Financial
Institutions.” Funding transfers have yet to be finalized.
See the Appendix for a breakdown of the FY2014 proposed budget authority.
FY2015 Budget Request
The President’s FY2015 budget request for the Global Climate Change Initiative is $839.0
million, including the following:
• $348.5 million for international climate change programming at USAID;
• $157.8 million for international climate change programming at the Department
of State; and
• $332.7 million for international climate change programming at the Department
of the Treasury, including $136.6 million for the Global Environment Facility (of
which approximately $68.3 million would be considered GCCI funding), $201.3
million for the Clean Technology Fund, and $63.2 million for the Strategic
Climate Fund.
See the Appendix for a breakdown of the FY2015 request.
Key Issues for Congress
As Congress considers potential authorizations and/or appropriations for initiatives administered
through the Department of State, the Department of the Treasury, USAID, and other agencies
with international programs, it may have questions concerning the purpose, direction, efficiency,
and effectiveness of U.S. agency initiatives and current bilateral and multilateral programs that
address global climate change.
Some issues that may raise concerns over providing assistance include the following:
Fiscal Constraints. Budget constraints may lead to questions about sustaining
high levels of support for international development assistance in general, and
international climate change assistance in particular. The burden is exacerbated
during times of economic downturn, when the federal government is hard-
pressed to generate fiscal resources to adequately address domestic challenges
and maintain basic levels of public services and quality of life. Some have
suggested that retaining available funds for immediate domestic priorities, such
as fostering renewed economic growth and creating jobs, should take precedence
over global concerns for which many Americans feel less urgency and
responsibility.
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Potential for Misuse. National and international institutions that dispense
financial assistance have sometimes been criticized for inefficient and bloated
bureaucracies; their lack of transparency about project procurement practices and
operating costs; and the proportion of their funds misused or lost through
instances of graft, corruption, and other political inefficiencies.17 Some suggest
revisiting operational guidance of these institutions before further appropriations
are made.
Uncertain Results. Questions remain regarding the overall effectiveness of
international financial assistance in spurring economic development and reform
in lower-income countries, and, more specifically, in addressing issues of climate
change and the environment. Many studies have examined the effects of
international assistance provided to lower-income countries, including both
bilateral and multilateral mechanisms, and have returned mixed results, making it
difficult to reach firm conclusions that may support continued contributions.
Uncertainties in Climate Science. Prevailing scientific research on the current
and future impacts of greenhouse gas emissions on the global climate exhibits
varying degrees of analytical uncertainty. The lack of definitiveness in some data
and in certain model projections has been offered by some as a reason to
postpone and/or reconsider both domestic and international climate change
assistance policies and programs.
Some issues that may support providing assistance include the following:
Commercial Interests. Some maintain that international climate change
assistance benefits U.S. businesses, as support for low-emission economic
growth may increase trade, commerce, and economic activity in the global
marketplace for U.S. goods and services. Increased assistance may allow some
U.S. industries to make competitive inroads into rapidly expanding markets,
improve the advancement and commercialization of U.S. technologies, mobilize
greater investment in related domestic sectors, and enhance job creation in the
United States. Decreased funding may cede American influence in global markets
to other economic powers still engaged with lower-income countries on
environmental and natural resource issues (e.g., the European Union, China).
Investment Efficiencies. Some argue that the costs of responding to tomorrow’s
climate-related catastrophes, instabilities, conflicts, and technological needs may
be significantly higher than the costs of working today to prevent them. Some
economists note that lower-income countries account for nearly all of the recent
growth in global emissions and represent the cheapest near-term opportunity to
mitigate GHG pollution as part of a cost-effective global solution.
Natural Disaster Preparedness. Some claim that international climate change
assistance is a means to support natural disaster preparedness around the globe.
Assistance for adaptation activities to help “climate-proof” developing countries’
infrastructure and other sectors may help avoid future capital and other losses;

17 William Easterly and Tobias Pfutze, “Where Does the Money Go? Best and Worst Practices in Foreign Aid,”
Journal of Economic Perspectives, vol. 22, no. 2 (Spring 2008). For more on foreign aid reform, also see CRS Report
R40102, Foreign Aid Reform: Studies and Recommendations, by Susan B. Epstein and Matthew C. Weed; and CRS
Report R40756, Foreign Aid Reform: Agency Coordination, by Marian L. Lawson and Susan B. Epstein.
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minimize the redirection of resources to ad hoc disaster response and urgent
humanitarian needs; and avoid chronic humanitarian crises, such as food
shortages, particularly for the resource poor in the least developed countries.18
National Security. Some defend international climate change assistance as a way
to address and mitigate risks to national security. According to a 2008 National
Intelligence Assessment, the impacts of global climate change may worsen
problems of poverty, social tensions, environmental degradation, and weak
political institutions across the developing world.19 Some see international
climate change assistance as a means to help make lower-income countries less
susceptible to these threats, for the benefit of both the country and the security
interests of the United States.
International Leadership. Finally, some see the promotion of international
climate change assistance to lower-income countries as a method through which
to increase U.S. leadership in global environmental issues. Through such
leadership, the United States may be able to influence and set important
international economic and environmental policies, practices, and standards.20

18 Both the World Bank and U.S. Geological Survey estimate that every dollar spent on disaster preparedness saves $7
in disaster response. The World Bank, Natural Disasters: Counting the Cost, March 2, 2004, at
http://go.worldbank.org/NQ6J5P2D10.
19 National Intelligence Council, National Intelligence Assessment on the National Security Implications of Global
Climate Change to 2030, Statement for the Record by Dr. Thomas Fingar, Deputy Director of National Intelligence for
Analysis, National Intelligence Council,
before the U.S. Congress, House Permanent Select Committee on Intelligence
& House Select Committee on Energy Independence and Global Warming
, June 25, 2008, at http://www.dni.gov/nic/
special_climate2030.html.
20 For more information on the political issues involved in the international climate change negotiations, see CRS
Report R40001, A U.S.-Centric Chronology of the United Nations Framework Convention on Climate Change, by Jane
A. Leggett.
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The Global Climate Change Initiative (GCCI)

Appendix. GCCI Budget Table
Table A-1. Global Climate Change Initiative, Budget Authority, FY2010-FY2015
(US$ in thousands)
FY2010
FY2011
FY2012
FY2013
FY2014
FY2015
Agency Account
Actuala
Actual
Actual
Estimateb
Proposedc
Request
Department

of State
201,500 124,500 133,000 126,000 133,000 157,800
Economic Support

Fundd 157,500
89,000
96,000
91,000
94,000
120,600
International
Organizations and

Programse
44,000
35,500
37,000
35,000
39,000
37,200
Department

of the
Treasury

438,000 296,000 376,500 380,275 356,405 332,719
Debt Restructuring
(Tropical Forest

Conservation Act)f 26,000
16,400
12,000 11,392
-
-
International
Organizations and
Programs (Clean

Technology Fund)g 300,000
184,600
229,600 196,283 184,630
201,253
International
Organizations and
Programs (ESF

Statutory Transfer)
-
-
-
-
50,000
-
International
Organizations and
Programs (Global
Environment

Facility)h 37,000
45,000
60,000
62,500
72,000
68,282
International
Organizations and
Programs (Strategic

Climate Fund)i
75,000 50,000 74,900 110,100 49,900 63,184
USAID

305,700
398,400
348,500
335,000
349,000
348,450
Development

Assistancej 280,032
368,400
322,500
308,000
317,000
321,400
Economic Support

Fundk 25,668
30,000
26,000
27,000
32,000
27,050
Total
945,200
818,900
858,000
841,275
838,405
838,969
Sources: U.S. Department of State, Congressional Budget Justification, Volume 2, Foreign Operations, Fiscal
Years 2010-2015; U.S. Office of Management and Budget, FY2014 Federal Climate Change Expenditures Report to
Congress
, August 2013; the U.S. Administration’s foreign assistance website, http://www.foreignassistance.gov/;
and CRS correspondence with the Departments of State and the Treasury.
Notes:
a. FY2010, FY2011, and FY2012, as reported by the Department of State on http://www.foreignassistance.gov.
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b. FY2013, as reported by the Office of Management and Budget. Estimated Budget Authority for FY2013
reflects the amount the program has available for the year calculated as the appropriated amount minus the
reductions pursuant to the Budget Control Act of 2011 (P.L. 112-25) sequestration order issued on March
1, 2013, and accounting for any known and applicable reprogramming, transfers, or other adjustments.
c. FY2014, as reported by the Office of Management and Budget.
d. Economic Support Fund account (ESF) includes sub-account programmatic activities to support international
climate change activities, including funding for the Office of Oceans and International Environmental and
Scientific Affairs (which contributes funds for adaptation programming at the U.N. Least Developed
Countries Fund (LDCF) and the U.N. Special Climate Change Fund (SCCF), clean energy programming at
the Major Economies Forum/Clean Energy Ministerial and Climate Renewables and Efficiency Deployment
Initiative, and the Global Methane Initiative, and sustainable landscape programming at the Forest Carbon
Partnership Facility), and the Office of Western Hemisphere (which contributes to the Energy and Climate
Partnership of the Americas). Prior to FY2013, some of the programming for the ESF was categorized under
the Assistance for Europe, Eurasia, and Central Asia account (AEECA).
e. International Organizations and Programs account (IO&P) includes sub-account programmatic activities to
support international climate change activities, including contributions to the International Panel on Climate
Change, U.N. Framework Convention on Climate Change, and the Montreal Protocol Multilateral Fund.
f.
Debt Restructuring account (DR) includes sub-account programmatic activities to support international
climate change activities in sustainable landscapes programming including funding for the Tropical Forest
Conservation Act.
g. Clean Technology Fund (CTF) (one of the two World Bank entrusted Climate Investment Funds) is a
multilateral environmental trust fund that supports climate change activities in clean energy programming.
Established in 2008. The United States has contributed funds annual y since 2010.
h. Global Environment Facility (GEF) is a multilateral environmental trust fund that supports climate change
activities in clean energy and sustainable landscapes programming. Established in 1991. The United States
has contributed funds annual y since 1993. Only a portion of GEF funds—as determined through GEF
programming decisions—is al ocated to climate change activities; the remaining al ocation supports other
environmental sectors (e.g., biodiversity, oceans, ozone, chemicals). The figures in the above table only
present the GEF “climate change” allocation.
i.
Strategic Climate Fund (SCF) (one of the two World Bank entrusted Climate Investment Funds) includes
three programs: (1) Pilot Program for Climate Resilience (PPCR) is a multilateral environmental trust fund
that supports climate change activities in adaptation programming. Established in 2008. The United States
has contributed funds annually since 2010. (2) Forest Investment Program (FIP) is a multilateral
environmental trust fund that supports climate change activities in sustainable landscapes programming.
Established in 2008. The United States has contributed funds annual y since 2010. (3) Scaling Up Renewable
Energy Program (SREP) is a multilateral environmental trust fund that supports climate change activities in
clean energy programming. Established in 2008. The United States did not contribute funds in 2010 because
the program was not yet operational.
j.
Development Assistance account (DA) includes sub-account programmatic activities to support USAID
bilateral and regional climate change activities.
k. Economic Support Fund account (ESF) includes sub-account programmatic activities to support USAID/DOS
bilateral and regional climate change activities.

Author Contact Information

Richard K. Lattanzio

Analyst in Environmental Policy
rlattanzio@crs.loc.gov, 7-1754


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