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INSIGHTi
Supplemental Funding for Ukraine:
Department of State, Foreign Operations, and
Related Programs (SFOPS)
Updated May 6, 2022
As of April 28, 2022, the Biden Administration had submitted to Congress two emergency supplemental
funding requests to address the crisis caused by Russia’s invasion of Ukraine. The first, submitted on
March 2, 2022, included $5 billion for Department of State, Foreign Operations, and Related Programs
(SFOPS) appropriations accounts, among other funding. On March 15, 2022, Congress enacted the
Ukraine Supplemental Appropriations Act (USAA, P.L. 117-103, Div. N), which provided $6.8 billion for
SFOPS accounts. The Administration’s second supplemental funding request, submitted to Congress on
April 28, called for an additional $14.75 billion in SFOPS funding related to Ukraine. Reports suggest
Congress may pursue another emergency supplemental funding package, though it remains to be seen
what that package may include and whether domestic priorities affect its consideration.
March 2 Emergency Supplemental Funding Request and USAA
The Administration’s March 2 emergency supplemental funding request for Ukraine included $5 billion
for SFOPS accounts as part of a broader package that would have provided a total of $10 billion for
Ukraine and $22.5 billion for response activities related to the Coronavirus Disease 2019 (COVID-19)
pandemic.
According to the request, the $5 billion for SFOPS would have been divided among four appropriations
accounts to “bolster U.S. security and economic assistance to Ukraine as well as regional allies and
partners” and “support lifesaving humanitarian assistance, including emergency food assistance, and
additional support for vulnerable populations and communities.” The Administration also proposed
increased flexibility for SFOPS funding through changes to existing authorities, new transfer authorities
to move funds between SFOPS accounts, and the authority to reprogram (i.e., to move funds within an
account) both FY2022 and prior-year funds. The Administration asserted in the request that these changes
would afford it “maximum flexibility in supporting Ukraine, our European allies and partners, and other
emergent global needs.”
Congress enacted the USAA on March 15, 2022. The measure included $6.8 billion for SFOPS
appropriations accounts (Table 1), out of a total of $13.6 billion, as well as new authorities (Table 2).
Congressional Research Service
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IN11877
CRS INSIGHT
Prepared for Members and
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Table 1. SFOPS Emergency Supplemental Appropriations for Ukraine:
March 2 Request and USAA
(In millions of U.S. current dollars)
Appropriations Account
March 2 Request
USAA Enacted
Dept. of State Diplomatic Programs
—
125.00
Dept. of State Office of Inspector General
—
4.00
U.S. Agency for Global Media
—
25.00
USAID Operating Expenses
—
25.00
USAID Office of Inspector General
—
4.00
International Disaster Assistance
2,000.00
2,650.00
Transition Initiatives
—
120.00
Economic Support Fund
1,750.00
647.00
Assistance for Europe, Eurasia and Central Asia
—
1,120.00
Migration and Refugee Assistance
750.00
1,400.00
International Narcotics Control and Law Enforcement (INCLE)
—
30.00
Foreign Military Financing (FMF)
500.00
650.00
Total
5,000.00
6,800.00
Source: Letter from OMB Acting Director Shalanda Young, P.L. 117-103.
Table 2. Selected SFOPS Authorities: March 2 Request and USAA
March 2 Request
USAA Enacted
Amend Section 506(a)(1) the Foreign Assistance Act of 1961 Amended Section 506(a)(1) to raise the drawdown authority
(FAA, P.L. 87-195) to raise the drawdown maximum by $1.2
to a total of $3.0 bil ion.
bil ion.
Amend Section 614 of the FAA to increase authority by
Amended Section 614(a)(4)(A)(i ) of the FAA to increase
$250 mil ion.
authority from $250 mil ion to $500 mil ion. Also amended
Section 614(a)(4)(C) to adjust existing limitations to higher
dol ar amounts.
Amend Sections 516(f) and 516(g)(1) of the FAA (on excess
Allows for the President to transfer EDA to “Ukraine and to
defense articles [EDA]). (The Administration did not cite
allies and partners in Europe” pursuant to Section 516
such sections specifically in its request but proposed waiving
without regard to the notification requirements in Sections
both the notification requirement and the $500 mil ion limit
516(f)(1) and 516(g).
on the provision of EDA).
Reprogram regardless of Appropriations Directives. The
Provides transfer authorities among accounts, which are “in
Administration requested the authority to “reprogram
addition to any other transfer authority provided by law.”
FY2022 and prior-year funds for Ukraine regardless of
existing appropriations directives.”
Source: Letter from OMB Acting Director Shalanda Young, P.L. 117-103.
Note: For more information on the use of Sections 506(a)(1) and 614(a)(4)(A)(i ) of the FAA, see CRS In Focus IF12040,
U.S. Security Assistance to Ukraine, by Christina L. Arabia, Andrew S. Bowen, and Cory Welt.
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April 28 Emergency Supplemental Funding Request
The Administration’s April 28 request to Congress calls for $14.76 billion in emergency supplemental
funding for SFOPS accounts, out of a total of $33 billion requested for Ukraine and the region. The
SFOPS request includes
$8.76 billion in Economic Support Fund monies, to include $7.5 billion for “direct
macroeconomic support for the Government of Ukraine,” up to $760 million for “food
security and agricultural development programs,” and $500 million for economic and
development assistance;
$4.5 billion in security assistance, including $4.0 billion for FMF, $400 million for
INCLE, and $100 million for Nonproliferation, Antiterrorism, Demining and Related
Programs (NADR);
$850 million in global humanitarian assistance accounts, including $700 million in
International Disaster Assistance and $150 million in Migration and Refugee Assistance;
and
$650 million in the Department of the Treasury’s International Programs accounts,
including $500 million for the European Bank for Reconstruction and Development and
$150 million for the Global Agriculture and Food Security Program.
As with the March 2 request, the Administration also proposes amending certain authorities, including
raising Section 506(a)(1) drawdown authority by $5.0 billion (to a total of $8.0 billion) and increasing
Section 614 authority by $500 million (to a total of $1.0 billion), among others.
Outlook
Reports suggest there is relatively broad congressional support for further emergency supplemental
funding for Ukraine but that differing views over proposed supplemental funding for COVID-19, as well
as on other domestic issues, may affect its consideration. Some Members may advocate for a stand-alone
Ukraine emergency supplemental in an effort to pass the measure more quickly; others may see the bill’s
urgency as creating an opportunity to provide emergency funding to address a broader range of issues.
A key consideration for Congress is how much funding and decisionmaking flexibility to grant the
executive branch. Congress accepted the majority of the changes to SFOPS authorities requested by the
Administration on March 2 in the USAA, and provided more funding than was requested. Whether or not
lawmakers will respond in a similar manner to the April 28 request remains to be seen. Congress may
choose to enact the additional supplemental funding but not any of the requested authorities, or,
conversely, provide more flexible authorities for the use of previously appropriated funds without
providing new funding. Congress also may choose to grant certain authorities on a time-limited basis,
such that they apply only to the funds enacted in the supplemental package. This approach would grant
executive agencies some additional flexibilities to address this crisis—and potentially set precedent for
future such emergencies—but not change statute in the long term. Another possibility is that Congress
may accept the proposed changes in full and without a time limitation, with potentially broader
implications for the allocation and congressional oversight of assistance for years to come.
Congressional Research Service
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Author Information
Emily M. Morgenstern
Analyst in Foreign Assistance and Foreign Policy
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