INSIGHTi

FY2024 Emergency Supplemental Funding
Request: Defense Appropriations
October 30, 2023
Background
On October 20, 2023, the Biden Administration submitted to Congress a request for emergency
supplemental appropriations to address “key national security priorities” for Fiscal Year 2024. In remarks
delivered on October 19, President Joe Biden characterized the request as a response to Hamas’ terrorist
attacks against Israel and the ongoing Russian invasion of Ukraine, describing the requested funds as a
way “to support [the United States’] critical partners, including Israel and Ukraine.”
In total, the President requested that Congress appropriate approximately $105.6 billion in budget
authority for the Department of Defense (DOD), Department of State (DOS), Department of Homeland
Security (DHS), and other executive departments and agencies. Funding was requested in five
attachments: 1) Ukraine; 2) Israel; 3) Humanitarian Assistance; 4) Submarine Industrial Base; and 5)
Border Supplemental Request. Although the Administration has asked Congress to provide all of this
funding through a single bill, some in Congress have proposed appropriating Israel-related funds through
separate legislation.
Of the total, $58.3 billion was requested for DOD as part of the Ukraine, Israel, and Submarine Industrial
Base attachments. Funds were requested for military personnel (MILPERS), operation and maintenance
(O&M), research, development, test, and evaluation (RDT&E), procurement, and military construction
(MILCON) accounts, as well as for purchases under the Defense Production Act of 1950 (DPA).
Table 1 provides information on requested DOD appropriations.
Table 1. Emergency Supplemental Funding Request,
Department of Defense – Military Programs
(In millions of dollars of budget authority)
Appropriation
Requested
Requested
Title
Amount
Expiration
Stated Purposes
Ukraine (Attachment 1)
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Appropriation
Requested
Requested
Title
Amount
Expiration
Stated Purposes
MILPERS
$211.6
End of FY2024
Support for personnel deploying to the European theater
of operations.
O&M
$37,303.0
End of FY2024/End of
Personnel support (e.g., temporary duty costs), operational
FY2026a
support (e.g., intelligence analysis, flying hours,
maintenance), and other unit support costs; replacement of
defense articles provided to Ukraine; reimbursement for
services provided to Ukraine; defense production capacity
expansion; and Ukraine Security Assistance Initiative
activities.
Procurement
$6,370.5
End of FY2026
Increasing production of missile systems; expanding
facilities and supporting/increasing production capacity for
critical munitions; providing ship depot maintenance for
surge ship support; cybersecurity; and classified programs.
RDT&E
$562.7
End of FY2025
Cybersecurity; other defense support; and classified
programs.
Subtotal, Ukraine
$44,447.8


Israel (Attachment 2)
O&M
$4,400.0
End of FY2025
Responding to the situation in Israel and related expenses.
These funds are requested to be made transferrable to
other O&M, Procurement, RDT&E, and Revolving and
Management Funds accounts for the purposes of: replacing
defense articles provided to Israel or other foreign
countries; reimbursing DOD components for defense
services provided to Israel; improving ammunition plants to
expand capacity and production; and acquiring critical
articles.
Procurement
$4,801.4
End of FY2026/End of
Transfer to the government of Israel for procurement of
FY27b
the Iron Dome and David’s Sling defense systems; and
improving ammunition plants to expand capacity.
RDT&E
$1,200.0
End of FY2026
Transfer to the government of Israel for the development
of the Iron Beam defense system.
DPA Purchases
$198.6
Until expended
Mitigate industrial base constraints to accelerate
production of defense equipment.
Subtotal, Israel
$10,600.0


Submarine Industrial Base (Attachment 4)
O&M
$557.8
End of FY2024
Improvements at the Navy’s four public shipyards.
Procurement
$2,448.6
End of FY2028
Support for the submarine industrial base, including
initiatives in supplier development, shipbuilder and supplier
infrastructure, workforce development, technology
advancements, and strategic sourcing.
RDT&E
$7.0
End of FY2025
Support for the submarine industrial base, including
initiatives in supplier development, shipbuilder and supplier
infrastructure, workforce development, technology
advancements, and strategic sourcing.
MILCON
$281.9
End of FY2028
Infrastructure improvements at the Navy’s four public
shipyards.

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Appropriation
Requested
Requested
Title
Amount
Expiration
Stated Purposes
Subtotal,
$3,295.3


Submarine
Industrial Base
DOD Total
$58,343.1

Source: CRS analysis of Office of Management and Budget, Letter to Speaker Pro Tempore of the House of
Representatives, October 20, 2023 at https://www.whitehouse.gov/wp-content/uploads/2023/10/Letter-regarding-critical-
national-security-funding-needs-for-FY-2024.pdf.
Notes: Security-related appropriations requested for non-DOD accounts—for example, the $7.2 bil ion requested for
Foreign Military Financing and the $2 mil ion requested for the Intel igence Community Management Account—are not
included in this table.
a. The request would make $12 bil ion of this total available until the end of FY2026 for Ukraine Security Assistance
Initiative activities. An additional amount of up to $18 bil ion of this total would remain available until the end of
FY2026 and would be made transferrable to O&M, Procurement, RDT&E, and Revolving and Management Funds
accounts.
b. $801.4 mil ion of this total is requested to remain available until the end of FY2026 to improve ammunition plants,
and the remaining $4 bil ion is requested to remain available until the end of FY2027 for transfer to the government
of Israel.
Discussion
Of the total DOD funding requested, $44.5 billion (76%) was requested for purposes related to Ukraine,
$10.6 billion (18%) for purposes related to Israel, and $3.3 billion (6%) for purposes related to the
submarine industrial base. According to a letter from the Director of the Office of Management and
Budget accompanying the request, requested funds would “invest over $50 billion in the American
defense industrial base.”
The Biden Administration has requested that all funding included in this request be designated as
emergency requirements pursuant to section 251(b)(2)(A)(i) of the Balanced Budget and Emergency
Deficit Control Act of 1985 (P.L. 99-177), meaning that appropriations for these requirements would not
be counted against spending caps established by the Fiscal Responsibility Act of 2023 (P.L. 118-5). The
Administration has also asked that some requested funds be made transferable between different
appropriations accounts at the discretion of DOD (see below).
Ukraine
Since February 2022, the United States has provided more than $43.9 billion of security assistance to the
government of Ukraine. In its FY2024 supplemental request, the Administration requested $30 billion for
the Defense-Wide O&M account to support this ongoing security assistance effort: $12 billion to fund the
Ukraine Security Assistance Initiative (USAI)—a program to procure defense equipment for provision to
Ukraine—and $18 billion to replace equipment already provided to Ukraine from DOD stocks. The
Administration has also requested authority for DOD to transfer up to $4 billion of this $30 billion
between USAI and the funds provided to replace U.S. equipment.
In addition, the supplemental request would provide approximately $6.4 billion for DOD procurement,
including $3.6 billion for Army, Navy, and Marine Corps procurement accounts to expand facilities and
provide other support for increasing the production of Ukraine-related weapons and munitions, and $2.6
billion for Air Force procurement accounts to fund classified programs. It would also provide $563
million for Army, Navy, Air Force, and Defense-Wide RDT&E accounts to fund cybersecurity,

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unspecified defense support, and classified programs. Another $212 million would be provided for Army,
Marine Corps, Air Force, and Space Force MILPERS accounts to fund deployments to Europe.
The request also contains language that would authorize DOD to transfer up to $4 billion between
appropriations provided for in the Ukraine portion of the request.
Israel
The Administration request for Israel is $10.6 billion, including $5.2 billion for transfers to the
Government of Israel and $5.4 billion to remain in DOD accounts.
The $5.2 billion for transfers includes $4.0 billion for the Defense-Wide procurement account to be made
available for transfer to Israel “for the procurement of the Iron Dome and David’s Sling defense systems”
and $1.2 billion for the Defense-Wide RDT&E account to be made available for transfer to Israel “for the
development of the Iron Beam defense system.”
The $5.4 billion to remain in DOD accounts includes $801.4 million for ammunition procurement, $198.6
million “to mitigate industrial base constraints” through Defense Production Act purchases, and $4.4
billion that could be transferred among Defense-Wide O&M, procurement, and RDT&E appropriations
for several purposes (including replenishing U.S. defense equipment, reimbursing DOD for defense
services to Israel; expanding munitions production; and producing unspecified critical defense articles).
To allow for the obligation of requested funds for these intended purposes, the request includes language
to amend several existing laws. The request would amend the Department of Defense Appropriations Act,
2005 (P.L. 108-287, §12001) to permit the transfer of previously prohibited categories of defense articles
to the Government of Israel and temporarily waive limitations on the total value of defense stockpiles
located in Israel and set aside for Israel’s use per 22 U.S.C. §2321h(b). The request would also authorize
the Secretary of Defense to provide fewer than 30 days’ notice to Congress when transferring defense
articles to Israel in extraordinary circumstances.
Submarine Industrial Base
The condition of the submarine industrial base—the portion of the defense industrial base involved in the
construction and sustainment of submarines—has occasioned concern from some DOD officials and
Members of Congress, who say it lacks sufficient capacity to meet U.S. military requirements and
accomplish the objectives of the AUKUS pact. The request includes approximately $2.1 billion for the
Shipbuilding and Conversion, Navy account (a procurement account), $394 million for the Other
Procurement, Navy account, and $7 million for the Navy RDT&E account to “support the submarine
industrial base… through initiatives in supplier development, shipbuilder and supplier infrastructure,
workforce development, technology advancements, and strategic sourcing.” It would also provide
approximately $840 million for Navy O&M and MILCON accounts to fund infrastructure improvements
at the Navy’s four public shipyards, which maintain the U.S. submarine fleet.

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Author Information

Cameron M. Keys
Luke A. Nicastro
Analyst in Defense Logistics and Resource Management
Analyst in U.S. Defense Infrastructure Policy
Policy





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