Supplemental Funding for Ukraine: Department of State, Foreign Operations, and Related Programs (SFOPS)
link to page 2 link to page 3 
INSIGHTi
Supplemental Funding for Ukraine:
Department of State, Foreign Operations, and
Related Programs (SFOPS)
Updated May 26, 2022
As of May 26, 2022, the Biden Administration has 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. On May 21, 2022,
Congress enacted the Additional Ukraine Supplemental Appropriations Act (AUSAA, P.L. 117-128),
which included $18.946 billion for SFOPS accounts.
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
https://crsreports.congress.gov
IN11877
CRS INSIGHT
Prepared for Members and
Committees of Congress
link to page 2 link to page 3 Congressional Research Service
2
The remaining USAA funds 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 support of
other U.S. government agency responses to Russia’s 2022 invasion of Ukraine.
April 28 Emergency Supplemental Funding Request
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. The
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, 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.
Congress enacted the AUSAA on May 21, 2022. The measure included $18.946 billion for SFOPS
appropriations accounts (Table 1), out of a total of $40.1 billion, as well as new authorities (Table 2). The
remaining AUSAA funds 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 support of other U.S. government agency responses to Russia’s invasion of Ukraine.
Table 1. SFOPS Emergency Supplemental Appropriations for Ukraine:
Administration Requests and Enacted Appropriations
(In millions of U.S. current dollars)
March 2
USAA
April 28
AUSAA
Appropriations Account
Request
Enacted
Request
Enacted
Dept. of State Diplomatic Programs
—
125.00
—
190.00
Dept. of State Capital Investment Fund
—
—
—
10.00
Dept. of State Office of Inspector General
—
4.00
—
4.00
Embassy Security, Construction, and
—
—
—
110.00
Maintenance
U.S. Agency for Global Media
—
25.00
—
—
USAID Operating Expenses
—
25.00
—
17.00
USAID Office of Inspector General
—
4.00
—
1.00
International Disaster Assistance
2,000.00
2,650.00
700.00
4,348.00
Transition Initiatives
—
120.00
—
—
Economic Support Fund
1,750.00
647.00
8,760.00
8,766.00
Assistance for Europe, Eurasia and Central
—
1,120.00
—
—
Asia
Migration and Refugee Assistance
750.00
1,400.00
150.00
350.00
International Narcotics Control and Law
—
30.00
400.00
400.00
Enforcement (INCLE)
Nonproliferation, Anti-terrorism, Demining
—
—
100.00
100.00
and Related Programs (NADR)
Foreign Military Financing (FMF)
500.00
650.00
4,000.00
4,000.00
Congressional Research Service
3
March 2
USAA
April 28
AUSAA
Appropriations Account
Request
Enacted
Request
Enacted
European Bank for Reconstruction and
—
—
500.00
500.00
Development
Global Agriculture and Food Security
—
—
150.00
150.00
Program
Total
5,000.00
6,800.00
14,760.00
18,946.00
Source: Letter from OMB Acting Director Shalanda Young; P.L. 117-103; Addendum A: Detailed Funding Request,
Assistance to Ukraine; P.L. 117-128.
Table 2. Selected SFOPS Authorities: Administration Requests and Enacted
March 2 Request
USAA Enacted
Amend Section 506(a)(1) of the Foreign Assistance Act of
Amended Section 506(a)(1) to raise the drawdown authority
1961 (FAA, P.L. 87-195) to raise the maximum value of
to a total of $3.0 bil ion.
defense article drawdowns by $1.2 bil ion (the original cap
was $100 mil ion).
Amend Section 614 (special authority to provide assistance
Amended Section 614(a)(4)(A)(i ) of the FAA to increase
in situations of vital national security interest) of the FAA to
authority from $250 mil ion to $500 mil ion. Also amended
increase authority by $250 mil ion.
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).
Authority to “reprogram FY2022 and prior-year funds for
Provides transfer authorities among accounts, which are “in
Ukraine regardless of existing appropriations directives.”
addition to any other transfer authority provided by law.”
April 28 Request
AUSAA Enacted
Amend Section 506(a)(1) of the FAA to raise the drawdown
Amends Section 506(a)(1) to raise the drawdown maximum
maximum by $5.0 bil ion.
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.
Source: Letter from OMB Acting Director Shalanda Young; P.L. 117-103; Addendum A: Detailed Funding Request,
Assistance to Ukraine; P.L. 117-128.
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
Although USAA was passed with little disagreement among Members, 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”
or should be “offset with cuts” to prioritize domestic concerns. Others raised concerns that the
supplemental funds for Ukraine would not have adequate oversight and proposed amendments to the
Congressional Research Service
4
measure: one 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 would have established
a new Office of the Special Inspector General for Ukrainian Military, Economic, and Humanitarian Aid.
Though neither amendment was adopted, oversight may continue to be a focus of congressional interest
as the Administration starts committing AUSAA funds to various purposes in Ukraine and the
surrounding region.
Author Information
Emily M. Morgenstern
Analyst in Foreign Assistance and Foreign Policy
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff
to congressional committees and Members of Congress. It operates solely at the behest of and under the direction of
Congress. Information in a CRS Report should not be relied upon for purposes other than public understanding of
information that has been provided by CRS to Members of Congress in connection with CRS’s institutional role.
CRS Reports, as a work of the United States Government, are not subject to copyright protection in the United
States. Any CRS Report may be reproduced and distributed in its entirety without permission from CRS. However,
as a CRS Report may include copyrighted images or material from a third party, you may need to obtain the
permission of the copyright holder if you wish to copy or otherwise use copyrighted material.
IN11877 · VERSION 4 · UPDATED
INSIGHTi
Supplemental Funding for Ukraine:
Department of State, Foreign Operations, and
Related Programs (SFOPS)
Updated May 26, 2022
As of May 26, 2022, the Biden Administration has 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. On May 21, 2022,
Congress enacted the Additional Ukraine Supplemental Appropriations Act (AUSAA, P.L. 117-128),
which included $18.946 billion for SFOPS accounts.
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
https://crsreports.congress.gov
IN11877
CRS INSIGHT
Prepared for Members and
Committees of Congress
link to page 2 link to page 3 Congressional Research Service
2
The remaining USAA funds 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 support of
other U.S. government agency responses to Russia’s 2022 invasion of Ukraine.
April 28 Emergency Supplemental Funding Request
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. The
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, 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.
Congress enacted the AUSAA on May 21, 2022. The measure included $18.946 billion for SFOPS
appropriations accounts (Table 1), out of a total of $40.1 billion, as well as new authorities (Table 2). The
remaining AUSAA funds 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 support of other U.S. government agency responses to Russia’s invasion of Ukraine.
Table 1. SFOPS Emergency Supplemental Appropriations for Ukraine:
Administration Requests and Enacted Appropriations
(In millions of U.S. current dollars)
March 2
USAA
April 28
AUSAA
Appropriations Account
Request
Enacted
Request
Enacted
Dept. of State Diplomatic Programs
—
125.00
—
190.00
Dept. of State Capital Investment Fund
—
—
—
10.00
Dept. of State Office of Inspector General
—
4.00
—
4.00
Embassy Security, Construction, and
—
—
—
110.00
Maintenance
U.S. Agency for Global Media
—
25.00
—
—
USAID Operating Expenses
—
25.00
—
17.00
USAID Office of Inspector General
—
4.00
—
1.00
International Disaster Assistance
2,000.00
2,650.00
700.00
4,348.00
Transition Initiatives
—
120.00
—
—
Economic Support Fund
1,750.00
647.00
8,760.00
8,766.00
Assistance for Europe, Eurasia and Central
—
1,120.00
—
—
Asia
Migration and Refugee Assistance
750.00
1,400.00
150.00
350.00
International Narcotics Control and Law
—
30.00
400.00
400.00
Enforcement (INCLE)
Nonproliferation, Anti-terrorism, Demining
—
—
100.00
100.00
and Related Programs (NADR)
Foreign Military Financing (FMF)
500.00
650.00
4,000.00
4,000.00
Congressional Research Service
3
March 2
USAA
April 28
AUSAA
Appropriations Account
Request
Enacted
Request
Enacted
European Bank for Reconstruction and
—
—
500.00
500.00
Development
Global Agriculture and Food Security
—
—
150.00
150.00
Program
Total
5,000.00
6,800.00
14,760.00
18,946.00
Source: Letter from OMB Acting Director Shalanda Young; P.L. 117-103; Addendum A: Detailed Funding Request,
Assistance to Ukraine; P.L. 117-128.
Table 2. Selected SFOPS Authorities: Administration Requests and Enacted
March 2 Request
USAA Enacted
Amend Section 506(a)(1) of the Foreign Assistance Act of
Amended Section 506(a)(1) to raise the drawdown authority
1961 (FAA, P.L. 87-195) to raise the maximum value of
to a total of $3.0 bil ion.
defense article drawdowns by $1.2 bil ion (the original cap
was $100 mil ion).
Amend Section 614 (special authority to provide assistance
Amended Section 614(a)(4)(A)(i ) of the FAA to increase
in situations of vital national security interest) of the FAA to
authority from $250 mil ion to $500 mil ion. Also amended
increase authority by $250 mil ion.
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).
Authority to “reprogram FY2022 and prior-year funds for
Provides transfer authorities among accounts, which are “in
Ukraine regardless of existing appropriations directives.”
addition to any other transfer authority provided by law.”
April 28 Request
AUSAA Enacted
Amend Section 506(a)(1) of the FAA to raise the drawdown
Amends Section 506(a)(1) to raise the drawdown maximum
maximum by $5.0 bil ion.
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.
Source: Letter from OMB Acting Director Shalanda Young; P.L. 117-103; Addendum A: Detailed Funding Request,
Assistance to Ukraine; P.L. 117-128.
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
Although USAA was passed with little disagreement among Members, 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”
or should be “offset with cuts” to prioritize domestic concerns. Others raised concerns that the
supplemental funds for Ukraine would not have adequate oversight and proposed amendments to the
Congressional Research Service
4
measure: one 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 would have established
a new Office of the Special Inspector General for Ukrainian Military, Economic, and Humanitarian Aid.
Though neither amendment was adopted, oversight may continue to be a focus of congressional interest
as the Administration starts committing AUSAA funds to various purposes in Ukraine and the
surrounding region.
Author Information
Emily M. Morgenstern
Analyst in Foreign Assistance and Foreign Policy
Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan shared staff
to congressional committees and Members of Congress. It operates solely at the behest of and under the direction of
Congress. Information in a CRS Report should not be relied upon for purposes other than public understanding of
information that has been provided by CRS to Members of Congress in connection with CRS’s institutional role.
CRS Reports, as a work of the United States Government, are not subject to copyright protection in the United
States. Any CRS Report may be reproduced and distributed in its entirety without permission from CRS. However,
as a CRS Report may include copyrighted images or material from a third party, you may need to obtain the
permission of the copyright holder if you wish to copy or otherwise use copyrighted material.
IN11877 · VERSION 4 · UPDATED