Department of State, Foreign Operations, and
Related Programs (SFOPS) Supplemental
Funding for Ukraine: In Brief
October 7, 2022
Congressional Research Service
https://crsreports.congress.gov
R47275
SFOPS Supplemental Funding for Ukraine: In Brief
Introduction
As of October 1, 2022, the Biden Administration has submitted to Congress three emergency
supplemental funding requests to address the crisis caused by Russia’s renewed invasion of
Ukraine in 2022. Congress, in turn, has enacted three emergency supplemental measures—the
March 2022 Ukraine Supplemental Appropriations Act, 2022 (FY2022 USAA, P.L. 117-103, Div.
N); the May 2022 Additional Ukraine Supplemental Appropriations Act, 2022 (FY2022 AUSAA,
P.L. 117-128); and the September 2022 Ukraine Supplemental Appropriations Act, 2023 (FY2023
USAA, P.L. 117-180, Div. B). To date, Congress has appropriated a total of $66 billion for
supplemental funding for Ukraine in FY2022 and FY2023.
The Administration requests and subsequent appropriations have included funding for a range of
activities. In addition to foreign assistance for Ukraine and other countries affected by the war,
Ukraine appropriations include supplemental funding for U.S. European Command operations
and related support for the U.S. military. They also include funding for administration and
operations of other U.S. government agencies that have responded to Russia’s 2022 invasion of
Ukraine, including funding for legal enforcement, sanctions implementation, and Ukrainian
refugee and entrant assistance.
This report focuses on requested and appropriated funding for Department of State, Foreign
Operations, and Related Programs (SFOPS) appropriations accounts and replaces CRS Insight
IN11877, Supplemental Funding for Ukraine: Department of State, Foreign Operations, and
Related Programs (SFOPS).1
For more information on security assistance to Ukraine, including the use of presidential
drawdown authority, see CRS In Focus IF12040, U.S. Security Assistance to Ukraine. For CRS
coverage on other issues relating to Russia’s war against Ukraine, see CRS Report R47054,
Russia’s 2022 Invasion of Ukraine: Related CRS Products.
March 2 Emergency Supplemental Request and FY2022 USAA
On March 2, 2022, the Biden Administration submitted to Congress a request for $5 billion in
emergency supplemental funding for SFOPS appropriations accounts to address the crisis caused
by Russia’s 2022 invasion of Ukraine.2 Such funds were requested 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 to “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.
1 For CRS coverage of regular SFOPS appropriations for FY2022 and FY2023, see CRS Report R46935, Department
of State, Foreign Operations, and Related Programs: FY2022 Budget and Appropriations, and CRS Report R47070,
Department of State, Foreign Operations, and Related Programs: FY2023 Budget and Appropriations.
2 See letter from OMB Acting Director Shalanda Young to Speaker of the House Nancy Pelosi, at
https://www.whitehouse.gov/wp-content/uploads/2022/03/COVID-and-Ukraine-Supplemental-Funding-Request-
Pelosi.pdf.
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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 FY2022 USAA on March 15, 2022. The measure included a total of $13.6
billion, $6.8 billion of which was for 12 SFOPS appropriations accounts (Table 1). The
legislation also included new authorities (Table 2).3 SFOPS funds were appropriated to support a
range of activities in Ukraine and “in countries impacted by the situation in Ukraine.” The
majority of the $6.8 billion (60%) was enacted for humanitarian assistance, including “the
provision of emergency food and shelter,” both for displaced Ukrainians and “for other vulnerable
populations and communities.”4 The remaining SFOPS funds comprised economic assistance—
including direct financial support for the government of Ukraine—security assistance, and
support to U.S. government agencies responding to the war.
April 28 Emergency Supplemental Funding Request and AUSAA
The Administration’s April 28 request to Congress called for $14.76 billion in emergency
supplemental funding for SFOPS accounts, out of a total of $33 billion requested for Ukraine and
the region.5 The SFOPS request included funding for purposes beyond the March 2 request,
including to “help food insecure countries around the world” and to “work through the
international financial institutions to support Ukraine and other countries impacted by the crisis.”
As with the March 2 request, the Administration also proposed amending certain authorities.
Congress enacted the FY2022 AUSAA on May 21, 2022. The $40.1 billion measure included
$18.946 billion for SFOPS appropriations accounts (Table 1), as well as new authorities (Table
2).6 Nearly half of the appropriated SFOPS funds were for the Economic Support Fund (ESF),
including direct financial support for the government of Ukraine.7 A portion of ESF was also
designated “to prevent and respond to food insecurity,” in addition to emergency food assistance
provided via humanitarian assistance accounts.8 Humanitarian and security assistance each
comprised nearly a quarter of the appropriated SFOPS funds; the remaining funding was
3 The FY2022 USAA also included $6.5 billion for Department of Defense (DOD) appropriations accounts, $100
million for Food for Peace international food aid, and about $172 million in funding for administration and operations
of other U.S. government agencies that have responded to Russia’s 2022 invasion of Ukraine.
4 For more on the humanitarian and refugee crisis caused by the war, see CRS Insight IN11882, Humanitarian and
Refugee Crisis in Ukraine, by Rhoda Margesson and Derek E. Mix.
5 See letter from OMB Acting Director Shalanda Young to Speaker of the House Nancy Pelosi, at
https://www.whitehouse.gov/wp-content/uploads/2022/04/FY_2022_Emergency_Supplemental_Assistance-to-
Ukraine_4.28.2022.pdf.
6 The FY2022 AUSAA also included $20.1 billion for DOD appropriations accounts, $900 million for carrying out
U.S. refugee and entrant assistance activities in support of Ukrainian nationals, and $195 million in funding for
administration and operations of other U.S. government agencies that have responded to Russia’s 2022 invasion of
Ukraine.
7 Unlike in the FY2022 USAA, which noted the use of direct financial support in the ESF appropriation itself, the
AUSAA made such funds available in the General Provisions: Section 507(a) stated that ESF funds “may be made
available for direct financial support for the Government of Ukraine, and such funds shall be matched, to the maximum
extent practicable, by sources other than the United States Government.”
8 In a June 2022 Fact Sheet, the State Department noted, “The U.S. Government is investing $760 million to combat the
effects of high food, fuel, and fertilizer prices – now being driven up by Putin’s war – in those countries that need it
most.” U.S. Embassy in Ukraine, “President Biden and G7 Leaders Announce Further Efforts to Counter Putin’s Attack
on Food Security,” press release, June 28, 2022.
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appropriated for U.S. government agencies responding to the war and selected multilateral
efforts.
September 2 Emergency Supplemental Funding Request and
FY2023 USAA
As part of its September 2 Continuing Resolution (CR) Appropriations Issues transmittal to
Congress, the Administration requested a total of $11.7 billion for “Critical Needs in Ukraine,”
including $4.5 billion in SFOPS funding in the form of ESF for direct financial support to
Ukraine.9 The transmittal also included requested anomalies for the potential CR as well as
supplemental funding for COVID-19, monkeypox, and domestic disaster assistance. In addition
to the proposed funding, the SFOPS request for Ukraine included amending certain authorities,
such as a proposed expansion of countries eligible for Foreign Military Financing funding beyond
NATO countries.
Congress enacted the Ukraine Supplemental Appropriations Act, 2023 (FY2023 USAA, P.L. 117-
180, Div. B), on September 30, 2022, as part of its FY2023 CR that funds the government
through December 16, 2022. The measure provides the requested $4.5 billion in ESF for direct
financial support for Ukraine (Table 1),10 out of a total of $12.3 billion, as well as one of the
requested authorities (Table 2).11
Table 1. SFOPS Emergency Supplemental Appropriations for Ukraine:
Administration Requests and Enacted Appropriations
(In millions of U.S. current dollars)
FY2022
FY2022
FY2023
March 2
USAA
April 28
AUSAA
Sept. 2
USAA
Appropriations Account
Request
Enacted
Request
Enacted
Request
Enacted
Dept. of State Diplomatic
—
125.00
—
190.00
—
—
Programs
Dept. of State Capital
—
—
—
10.00
—
—
Investment Fund
Dept. of State Office of
—
4.00
—
4.00
—
—
Inspector General
Embassy Security,
—
—
—
110.00
—
—
Construction, and
Maintenance
U.S. Agency for Global Media
—
25.00
—
—
—
—
USAID Operating Expenses
—
25.00
—
17.00
—
—
USAID Office of Inspector
—
4.00
—
1.00
—
—
General
9 Office of Management and Budget, FY 2023 Continuing Resolution (CR) Appropriations Issues, September 2, 2022.
10 Notably, Section 1302(a) directs that ESF funds “shall” be made available for direct financial support for the
Government of Ukraine. In the FY2022 USAA and AUSAA, Congress directed that such funds “may” be made
available. According to the House Office of the Legislative Counsel, “The term ‘shall’ means that an action is required;
the term ‘may’ means that it is permitted but not required.” House Office of the Legislative Counsel, Drafting
Legislation, at https://legcounsel.house.gov/holc-guide-legislative-drafting#VIIB.
11 Additional funds were provided in the FY2023 USAA for DOD ($7.8 billion) and Department of Energy ($35
million) appropriations accounts.
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SFOPS Supplemental Funding for Ukraine: In Brief
FY2022
FY2022
FY2023
March 2
USAA
April 28
AUSAA
Sept. 2
USAA
Appropriations Account
Request
Enacted
Request
Enacted
Request
Enacted
International Disaster
2,000.00
2,650.00
700.00
4,348.00
—
—
Assistance
Transition Initiatives
—
120.00
—
—
—
—
Economic Support Fund
1,750.00
647.00
8,760.00
8,766.00
4.500.00
4.500.00
Assistance for Europe,
—
1,120.00
—
—
—
—
Eurasia and Central Asia
Migration and Refugee
750.00
1,400.00
150.00
350.00
—
—
Assistance
International Narcotics
—
30.00
400.00
400.00
—
—
Control and Law
Enforcement (INCLE)
Nonproliferation, Anti-
—
—
100.00
100.00
—
—
terrorism, Demining and
Related Programs (NADR)
Foreign Military Financing
500.00
650.00
4,000.00
4,000.00
—
—
(FMF)
European Bank for
—
—
500.00
500.00
—
—
Reconstruction and
Development
Global Agriculture and Food
—
—
150.00
150.00
—
—
Security Program
Total
5,000.00
6,800.00 14,760.00 18,946.00
4,500.00
4,500.00
Source: Letter from OMB Acting Director Shalanda Young; P.L. 117-103; Addendum A: Detailed Funding
Request, Assistance to Ukraine; P.L. 117-128; FY2023 Continuing Resolution (CR) Appropriations Issues; P.L.
117-180.
Table 2. Selected SFOPS Authorities: Administration Requests and Enacted
March 2 Request
FY2022 USAA Enacted
Amend Section 506(a)(1) of the Foreign Assistance Act
Amended Section 506(a)(1) to raise the drawdown
of 1961 (FAA, P.L. 87-195) to raise the maximum value
authority to a total of $3.0 bil ion.
of defense article drawdowns by $1.2 bil ion (the
original cap was $100 mil ion).
Amend Section 614 (special authority to provide
Amended Section 614(a)(4)(A)(i ) of the FAA to
assistance in situations of vital national security
increase authority from $250 mil ion to $500 mil ion.
interest) of the FAA to increase authority by $250
Also amended Section 614(a)(4)(C) to adjust existing
mil ion.
limitations to higher dol ar amounts.
Amend Sections 516(f) and 516(g)(1) of the FAA (on
Allows for the President to transfer EDA to “Ukraine
excess defense articles [EDA]). (The Administration did and to allies and partners in Europe” pursuant to
not cite such sections specifically in its request but
Section 516 without regard to the notification
proposed waiving both the notification requirement and requirements in Sections 516(f)(1) and 516(g).
the $500 mil ion limit on the provision of EDA).
Authority to “reprogram FY2022 and prior-year funds
Provides transfer authorities among accounts, which
for Ukraine regardless of existing appropriations
are “in addition to any other transfer authority
directives.”
provided by law.”
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SFOPS Supplemental Funding for Ukraine: In Brief
March 2 Request
FY2022 USAA Enacted
April 28 Request
AUSAA Enacted
Amend Section 506(a)(1) of the FAA to raise the
Amends Section 506(a)(1) to raise the drawdown
drawdown maximum by $5.0 bil ion.
maximum to $11.0 bil ion.
Amend Section 614 of the FAA to increase authority by Amends Section 614(a)(4)(A)(i ) of the FAA to increase
$500 mil ion.
authority to $1.0 bil ion. Also amends Section
614(a)(4)(C) to adjust existing limitations to higher
dol ar amounts.
Amend Section 7035(b)(5) of the Department of State,
N/A
Foreign Operations, and Related Programs
Appropriations Act, 2022 (P.L. 117-103, Div. K) to
increase the Special Defense Acquisition Fund
obligations cap by $1.0 bil ion.
September 2 Request
FY2023 USAA Enacted
Amend Section 2606(a) of the FY2022 USAA to
N/A
authorize FMF loans for “countries impacted by the
situation in Ukraine” (an expansion from “North
Atlantic Treaty Organization (NATO) allies”).
Amend Section 506(a)(1) of the FAA to raise the
Amends Section 506(a)(1) of the FAA to raise the
drawdown maximum to $3.7 bil ion for FY2023.
drawdown maximum to $3.7 bil ion for FY2023.
Source: Letter from OMB Acting Director Shalanda Young; P.L. 117-103; Addendum A: Detailed Funding
Request, Assistance to Ukraine; P.L. 117-128; FY2023 Continuing Resolution (CR) Appropriations Issues; P.L.
117-180.
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.
Outlook
Congressional support for emergency supplemental funding for Ukraine generally has been broad
and bipartisan. Debate of each bill, though, has been affected by the legislative vehicle to which
the measure has been attached and by selected domestic considerations.
Congress debated the FY2022 USAA within the context of the Consolidated Appropriations Act,
2022 (P.L. 117-103), as well as the Biden Administration’s request for supplemental funding to
combat COVID-19. News organizations reported bipartisan congressional support for emergency
supplemental funding for Ukraine, but there appeared to be disagreement over how such funds
should be allocated.12 Some Members advocated for more funding for defense purposes, while
others recommended a greater emphasis on humanitarian and economic assistance for Ukrainians
in need.13 The requested funds to combat COVID-19 also affected consideration of the broader
appropriations measure; some lawmakers questioned the need and requested further justification
for new COVID-19-related funding.14
12 Catie Edmonson and Emily Cochrane, “The Biden administration asks Congress for $10 billion to support Ukraine,”
New York Times, March 3, 2022.
13 Tony Romm, “Democrats, Republicans eye large Ukraine aid package, new punishments against Russia,”
Washington Post, March 1, 2022.
14 See, for example, Letter from Senator Mitt Romney et al. to President Joseph R. Biden, March 2, 2022.
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SFOPS Supplemental Funding for Ukraine: In Brief
Considered as a stand-alone bill, AUSAA sparked debate, particularly in the Senate, about the
measure’s overall funding level and oversight mechanisms. Eleven Senators voted against the
AUSAA, with some citing concerns that the bill “neglects priorities at home”15 or should be
“offset with cuts”16 to prioritize domestic concerns. Others raised concerns that the supplemental
funds for Ukraine would not have adequate oversight and proposed amendments to the measure.
One Senator’s proposal would have expanded the Office of the Special Inspector General for
Afghanistan Reconstruction (SIGAR) to become the Office of the Special Inspector General for
Afghanistan Reconstruction and Ukrainian Military, Economic, and Humanitarian Aid; another
Senator’s proposal would have established a new Office of the Special Inspector General for
Ukrainian Military, Economic, and Humanitarian Aid.17 Neither amendment was adopted in the
final law.
The FY2023 USAA was not a primary subject of debate as Congress considered the CR package.
Members instead focused debate on the broader supplemental request, which included proposed
funds for COVID-19, monkeypox, and domestic disaster relief, as well as general government
funding issues and the utility of CRs.18
As the war in Ukraine continues and Congress works to finalize FY2023 appropriations
legislation, Congress may have opportunities to debate additional funding to address the crisis.
Additional funding or authorization language may be enacted in stand-alone supplemental
measures or as part of a larger appropriations package in December, when the current CR expires.
Some Members also may seek to revive debate on oversight and accountability mechanisms that
featured during consideration of the AUSAA.
Author Information
Emily M. Morgenstern
Analyst in Foreign Assistance and Foreign Policy
15 Senator Josh Hawley, “Hawley Blasts $40 billion in Ukraine Aid: ‘Not in America’s Interests,’” press release, May
16, 2022.
16 Senator Mike Braun, “Senator Braun Statement on $40 Billion Ukraine Spending Package,” press release, May 18,
2022.
17 S.Amdt. 5040 and S.Amdt. 5041, respectively.
18 See, for example, Kevin Freking and Lisa Mascaro, “GOP gives thumbs down to Biden’s $47B emergency request,”
AP News, September 7, 2022; Mychael Schnell, “House GOP calls for ‘no’ vote on CR,” The Hill, September 28, 2022.
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Disclaimer
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