Department of State, Foreign Operations, and Related Programs (SFOPS) Supplemental Funding for Ukraine: In Brief
Department of State, Foreign Operations, and
Related Programs (SFOPS) Supplemental
Funding for Ukraine: In Brief
Updated April 26, 2024
Congressional Research Service
https://crsreports.congress.gov
R47275
SFOPS Supplemental Funding for Ukraine: In Brief
Introduction
In 2022, the Biden Administration submitted to Congress four emergency supplemental funding
requests to address the crisis caused by Russia’s renewed invasion of Ukraine. Congress, in turn,
passed four 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); the September
2022 Ukraine Supplemental Appropriations Act, 2023 (FY2023 USAA; P.L. 117-180, Div. B);
and the December 2022 Additional Ukraine Supplemental Appropriations Act, 2023 (FY2023
AUSAA; P.L. 117-328, Div. M). In 2023, the Administration submitted to Congress two requests
for FY2024 emergency supplemental funds for the U.S. response in Ukraine. Congress enacted
the Ukraine Security Supplemental Appropriations Act, 2024, as Division B of P.L. 118-50 in
April 2024.
In total, Congress has appropriated $174.2 billion for supplemental funding for Ukraine in
FY2022, FY2023, and FY2024. Such funding has supported foreign assistance for Ukraine and
other countries affected by the war, U.S. European Command operations and related support for
the U.S. military, and 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.
Of the total amount appropriated for supplemental funding for Ukraine since 2022, Congress has
appropriated $58.4 billion (approximately 34%) for Department of State, Foreign Operations, and
Related Programs (SFOPS) accounts. SFOPS funding has supported a range of activities,
including direct financial support for the Government of Ukraine, humanitarian assistance,
security assistance, and civilian agency operations in support of program administration and
oversight.
This report focuses on requested and appropriated funding for 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 War Against Ukraine: Related CRS Products.
FY2022 Emergency Supplemental Requests and Appropriations
March 2022 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
1 For CRS coverage of regular SFOPS appropriations for FY2022, FY2023, and FY2024 see CRS Report R46935,
Department of State, Foreign Operations, and Related Programs: FY2022 Budget and Appropriations, CRS Report
R47070, Department of State, Foreign Operations, and Related Programs: FY2023 Budget and Appropriations, and
CRS Report R47579, Department of State, Foreign Operations, and Related Programs: FY2024 Budget and
Appropriations.
2 See letter from OMB Acting Director Shalanda Young to Speaker of the House Nancy Pelosi, at
(continued...)
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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.
The $5 billion for SFOPS was requested 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 authority to reprogram (i.e., to move
funds within an account) both FY2022 and prior-year funds. The Administration asserted 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).3 The
legislation also included certain new authorities, primarily related to Presidential Drawdown
Authority and other security assistance (Table 2).4 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.”5 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 2022 Request and FY2022 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 sought for Ukraine and
the region.6 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 certain new authorities,
similar to those provided in the FY2022 USAA (Table 2).7 Nearly half of the appropriated
https://www.whitehouse.gov/wp-content/uploads/2022/03/COVID-and-Ukraine-Supplemental-Funding-Request-
Pelosi.pdf.
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 Presidential Drawdown Authority and security assistance provided for Ukraine, see CRS In Focus
IF12040, U.S. Security Assistance to Ukraine, by Christina L. Arabia, Andrew S. Bowen, and Cory Welt.
5 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.
6 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.
7 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.
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SFOPS funds were for the Economic Support Fund (ESF), including direct financial support for
the government of Ukraine.8 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.9 Humanitarian and security assistance each comprised nearly a quarter of the
appropriated SFOPS funds; the remaining funding was appropriated for U.S. government
agencies responding to the war and selected multilateral efforts.
FY2023 Emergency Supplemental Requests and Appropriations
September 2022 Request and FY2023 USAA
In its September 2 Continuing Resolution (CR) Appropriations Issues transmittal to Congress, the
Administration requested a total of $13.7 billion for “Critical Needs in Ukraine,” including $4.5
billion in SFOPS funding in the form of ESF for direct financial support to Ukraine.10 The
transmittal also included requested anomalies for the potential CR, as well as supplemental
funding for COVID-19, mpox, and domestic disaster assistance.11 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 the 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),12 out of a total of $12.3 billion, as well as one of the
requested authorities (Table 2).13
November 2022 Request and FY2023 AUSAA
On November 15, the Administration submitted to Congress a request for $37.7 billion in
FY2023 emergency supplemental funding for Ukraine.14 The transmittal also included a proposed
$10 billion for the COVID-19 pandemic and other public and global health activities. Of the
8 Unlike in the FY2022 USAA, which noted the use of direct financial support in the ESF appropriation itself, the
FY2022 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.”
9 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.
10 Office of Management and Budget, FY 2023 Continuing Resolution (CR) Appropriations Issues, September 2, 2022.
11 The World Health Organization and the Centers for Disease Control and Prevention announced changing monkeypox
terminology to mpox in November 2022.
12 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.
13 Additional funds were provided in the FY2023 USAA for DOD ($7.8 billion) and Department of Energy ($35
million) appropriations accounts.
14 See letter from OMB Director Shalanda Young to Speaker of the House Nancy Pelosi, Attachment 2. Ukraine
Assistance Needs at https://www.whitehouse.gov/wp-content/uploads/2022/11/FY-2023-Supplemental-funding-
request-for-COVID-19-and-Ukraine.pdf.
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funds requested for the Ukraine response, the Administration requested $14.5 billion for SFOPS
accounts. The Administration requested the majority of SFOPS funding—$13.045 billion—for
the Economic Support Fund to support a range of activities. These activities include direct budget
support ($9.9 billion), economic stabilization and recovery ($1.5 billion), and energy security
($1.1 billion), among others. Other SFOPS funds were requested for security assistance ($905
million), humanitarian assistance ($500 million), and the Transition Initiatives program ($50
million). As with prior requests, the Administration also proposed amending certain authorities,
including those related to Presidential Drawdown Authority and other security assistance (Table
2). The Administration argued that such authorities would increase its flexibility to “match
resources with evolving needs.”
Congress enacted the Additional Ukraine Supplemental Appropriations Act, 2023 (FY2023
AUSAA; P.L. 117-328, Div. M) as part of the Consolidated Appropriations Act, 2023. The
FY2023 AUSAA includes a total of $47.3 billion, of which $16.565 billion is for SFOPS
accounts (Table 1). The legislation also included certain new authorities, primarily related to
Presidential Drawdown Authority and other security assistance (Table 2). The majority (80%) of
appropriated SFOPS funds were for economic assistance through the Economic Support Fund and
Assistance for Europe, Eurasia, and Central Asia accounts; Congress directed that such funds may
be made available for direct financial support to the Government of Ukraine. The remaining
SFOPS funds were for humanitarian and transition assistance (15%), security assistance (3%),
and agency operations and oversight (1%).
In addition to amounts Congress has designated for Ukraine and countries and populations
affected by the war in Ukraine, FY2023 AUSAA includes funds that may be used for other
populations. For example, of the $937.9 million appropriated for International Disaster
Assistance, not less than $300 million is to be made available “to respond to humanitarian needs
in Ukraine and in countries impacted by the situation in Ukraine ... and for assistance for other
vulnerable populations and communities.” Presumably, this structure would allow USAID to use
the remaining funds in the account (up to $637.9 million) for disaster responses not related to the
war in Ukraine. A similar structure was used for the Diplomatic Programs, Migration and Refugee
Assistance, and International Narcotics Control and Law Enforcement accounts.
FY2024 Emergency Supplemental Requests and Appropriations
August 2023 Request
On August 10, 2023, the Administration submitted to Congress a request for nearly $24 billion in
FY2024 emergency supplemental funding for Ukraine and other international needs, of which
$7.55 billion would be for SFOPS accounts to address Ukraine and countries affected by the war
in Ukraine.15 The Administration noted that such funds would be critical to sustain the U.S.
response in Ukraine through the first three months of the fiscal year. The transmittal also included
proposed funds for other international needs, such as multilateral assistance, as well as those
related to the U.S. border and migration, of which $3.5 billion would be for SFOPS accounts. Of
the SFOPS funds requested for the Ukraine response, the Administration requested nearly half—
$3.36 billion—for the Economic Support Fund for “three additional months of direct budget
15 See letter from OMB Director Shalanda Young to Speaker of the House Kevin McCarthy, Attachment 1. Ukraine
and Other International Needs at https://www.whitehouse.gov/wp-content/uploads/2023/08/Final-Supplemental-
Funding-Request-Letter-and-Technical-Materials.pdf.
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support to Ukraine, and $50 million for global food security programming.”16 Other requested
SFOPS funding for the Ukraine response would support the Administration’s humanitarian ($2.0
billion), security assistance ($1.16 billion), transition and development ($804 million), and
diplomatic ($28 million) priorities. The Administration also requested a new Countering Russian
Malign Actors in Africa Fund that would seek to increase security assistance, bolster democratic
institutions, and counter disinformation in African countries deemed vulnerable to Russian
influence, in particular that from the Wagner Group (Table 1). As with prior SFOPS supplemental
requests for U.S. assistance for Ukraine, the Administration also proposed amending certain
authorities, including those related to Presidential Drawdown Authority and other security
assistance (Table 2).17
October 2023 Request and the Ukraine Security Supplemental Appropriations
Act, 2024
On October 20, the Administration submitted to Congress a request for $106 billion in FY2024
emergency supplemental funding for four stated priorities: (1) supporting Israel in the wake of the
Hamas attacks; (2) continuing U.S. support for Ukraine “as it defends its sovereignty”; (3)
investing in deterrence in the Indo-Pacific; and (4) bolstering security at the U.S. Southwest
border.18 Of the requested funds, $16.30 billion was requested for SFOPS accounts to address
Ukraine and countries affected by the war in Ukraine.19 The Administration also proposed a total
of $9.15 billion for humanitarian assistance accounts, but it did not designate how much of such
funds would be used for Ukraine and vulnerable populations affected by the war in Ukraine
versus needs related to “Israel and in areas impacted by the situation in the West Bank and Gaza”
(Table 1).20 Proposed funding would aim to provide support through the end of FY2024, though
it was unclear whether the request was meant to replace or add to the August 10 request (FY2025
budget materials later referred only to the October request, suggesting it was a replacement).
As with the August 10 request, nearly half—$11.78 billion—of the funds requested for the
Ukraine response were for the Economic Support Fund for direct financial support for the
Government of Ukraine. According to the Administration, the proposed funding would provide “a
glidepath from $1.1 billion per month in direct budget support to $825 million per month,” which
reflects an estimate of Ukraine’s financing gap for 2024 and takes into account contributions from
other donors, including the European Union and Japan.21 Other requested SFOPS funding for the
Ukraine response would support the Administration’s recovery and development ($2.25 billion),
security assistance ($2.16 billion), and diplomatic priorities ($60 million). As with prior SFOPS
16 Ibid., p. 31. The Administration also requested that $10 million in ESF be made available for transfer to USAID’s
Operating Expenses account “to support critical operational requirements, including staffing and associated support in
Ukraine and the region.”
17 Ibid., pp. 39-42.
18 See letter from OMB Director Shalanda Young to the Honorable Patrick McHenry, pp. 1-3, at
https://www.whitehouse.gov/wp-content/uploads/2023/10/Letter-regarding-critical-national-security-funding-needs-
for-FY-2024.pdf.
19 Ibid, Attachment 3: Humanitarian Assistance.
20 This approach is common for both Administration requests and appropriations for humanitarian assistance accounts.
Funding for such accounts is historically requested and appropriated as a lump sum and is allocated by the
Administration in consultation with Congress based on humanitarian need and U.S. priorities. The Administration
requested a further $850 million in MRA in Attachment 5 of the October request; such funds would be designated for
“humanitarian needs in the Western Hemisphere to promote access to regular pathways to migration and international
protection, including support for integration and regularization.” Letter from OMB Director Shalanda Young to the
Honorable Patrick McHenry, Attachment 5, p. 65.
21 Ibid., p. 42.
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supplemental requests for U.S. assistance for Ukraine, the Administration also proposed
amending certain authorities, including those related to Presidential Drawdown Authority and
other security assistance. The Administration also proposed legislative language that would allow
for reprogramming FY2024 and prior year SFOPS appropriations notwithstanding existing
legislative directives (Table 2).
Congress enacted the Ukraine Security Supplemental Appropriations Act, 2024, as Division B of
P.L. 118-50 in April 2024. The bill included a total of $60.8 billion, of which $11.6 billion was for
SFOPS accounts (Table 1). The legislation also included certain new authorities, primarily related
to Presidential Drawdown Authority and other security assistance (Table 2). The majority (82%)
of appropriated SFOPS funds were for economic assistance through ESF and Assistance for
Europe, Eurasia, and Central Asia accounts; Congress directed that up to $7.8 billion in ESF
funds may be made available for direct financial support to the Government of Ukraine.22 The
remaining SFOPS funds were for foreign military financing (14%), other security assistance and
transition assistance (3%), and agency operations and oversight (1%).
In Division A of P.L. 118-50—the Israel Security Supplemental Appropriations Act, 2024—
Congress enacted a further $9.15 billion in humanitarian assistance accounts “to address
humanitarian needs, including the provision of emergency food and shelter, of vulnerable
populations and communities.” Congress did not make clear how much of this funding, if any, it
intends to be made available for Ukraine and countries affected by the war in Ukraine.
Outlook
For FY2022 and FY2023, congressional support for emergency supplemental funding for Ukraine
generally had been broad and bipartisan. Debate of each bill was largely affected by the
legislative vehicle to which the measure had been attached and by selected domestic
considerations. Congressional priorities for, and discourse surrounding, aid to Ukraine have in
some ways shifted in during the 118th Congress, with greater differences of opinion regarding the
provision of aid to Ukraine and a greater emphasis on oversight of funds previously appropriated
for the Ukraine response. Such shifts have been particularly evident during consideration of
FY2024 appropriations.
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.23 Some Members advocated for more funding for defense purposes, while
others recommended a greater emphasis on humanitarian and economic assistance for Ukrainians
in need.24 The requested funds to combat COVID-19 also affected consideration of the broader
22 Section 507 of Division B directs the President to “enter into an arrangement with the Government of Ukraine
relating to the repayment by Ukraine to the United States of economic assistance provided to Ukraine by the United
States to respond to the situation in Ukraine, and for related expenses, that are made available under the headings
‘Economic Support Fund’ and ‘Assistance for Europe, Eurasia and Central Asia’ in title IV of this division.” Following
provisions, though, outline processes through which the President may cancel such indebtedness.
23 Catie Edmonson and Emily Cochrane, “The Biden administration asks Congress for $10 billion to support Ukraine,”
New York Times, March 3, 2022.
24 Tony Romm, “Democrats, Republicans eye large Ukraine aid package, new punishments against Russia,”
Washington Post, March 1, 2022.
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SFOPS Supplemental Funding for Ukraine: In Brief
appropriations measure; some lawmakers questioned the need and requested further justification
for new COVID-19-related funding.25
Considered as a stand-alone bill, the FY2022 AUSAA sparked debate, particularly in the Senate,
about the measure’s overall funding level and oversight mechanisms. Eleven Senators voted
against the FY2022 AUSAA, with some citing concerns that the bill “neglects priorities at
home”26 or should be “offset with cuts”27 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 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;28 another proposal would have established a new Office of the Special
Inspector General for Ukrainian Military, Economic, and Humanitarian Aid.29 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, mpox (then referred to as monkeypox), and domestic disaster relief, as well
as general government funding issues and the utility of continuing resolutions (CRs).30 Similarly,
as Congress considered the FY2023 AUSAA as part of the Consolidated Appropriations Act,
2023, it was not a primary focus of debate.31
In the 118th Congress, some Members have revived debate on oversight and accountability
mechanisms that surfaced during consideration of the FY2022 AUSAA. Some Members have
introduced legislation seeking to enhance oversight of U.S. funding for Ukraine, including
through a Special Inspector General (H.R. 855/S. 541 and H.R. 2445/S. 651) and increased
reporting from existing Offices of Inspector General (H.R. 4554). Others have sought further
information through hearings on the topic,32 official travel,33 and formal and informal
communications with both executive branch agencies and oversight bodies such as the Offices of
Inspector General and Government Accountability Office.
25 See, for example, Letter from Sen. Mitt Romney et al. to President Joseph R. Biden, March 2, 2022.
26 Sen. Josh Hawley, “Hawley Blasts $40 billion in Ukraine Aid: ‘Not in America’s Interests,’” press release, May 16,
2022.
27 Sen. Mike Braun, “Senator Braun Statement on $40 Billion Ukraine Spending Package,” press release, May 18,
2022.
28 S.Amdt. 5040.
29 S.Amdt. 5041.
30 See, for example, Kevin Freking and Lisa Mascaro, “GOP gives thumbs down to Biden’s $47B emergency request,”
Associated Press, September 7, 2022; Mychael Schnell, “House GOP calls for ‘no’ vote on CR,” The Hill, September
28, 2022.
31 Reportedly Congress primarily focused debate on domestic issues related to immigration (so-called Title 42 policy)
and overall federal spending. See, for example, Aidan Quigley and Laura Weiss, “Schumer: Senate closing in on
omnibus amendments deal,” CQ, December 21, 2022; Emily Brooks, “McCarthy dings omnibus in lengthy speech,”
The Hill, December 23, 2022.
32 See, for example, the House Foreign Affairs Committee hearing entitled Oversight, Transparency, and
Accountability of Ukraine Assistance, March 29, 2023, at https://foreignaffairs.house.gov/hearing/oversight-
transparency-and-accountability-of-ukraine-assistance/.
33 See, for example, Sen. Joe Manchin, “Manchin Leads Bipartisan Senate Delegation to Ukraine and Poland,” press
release, April 12, 2023, at https://www.manchin.senate.gov/newsroom/press-releases/manchin-leads-bipartisan-senate-
delegation-to-ukraine-and-poland#:~:text=
Senators%20Manchin%2C%20Murkowski%20and%20Kelly%20visited%20Ukraine&text=
The%20Congressional%20Delegation%20met%20with,and%20the%20rebuild%20of%20Ukraine.
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U.S. assistance for Ukraine was reportedly a point of contention as Congress approached the start
of FY2024 with a number of Members signaling that they would not vote for any funding
measure for FY2024 that included funding for Ukraine.34 The October 7, 2023, attack by Hamas
on Israel and its aftermath has also affected congressional discourse surrounding U.S. assistance
for Ukraine. In the wake of the Administration’s request for supplemental funding, some
Members had stated their support for an appropriations package that includes funding for both
Israel and Ukraine, noting that addressing such conflicts “requires a worldwide approach rather
than trying to take parts of it out.”35 Others, however, suggested that the conflicts “are two
distinct events that deserve two distinct responses.”36 Similar debates may shape congressional
consideration of future assistance for Ukraine.
With FY2024 supplemental appropriations enacted, Members may continue their oversight of
U.S. support for Ukraine and countries affected by the war in Ukraine. Oversight agencies,
including Offices of Inspector General and the Government Accountability Office, have
published numerous reports relating to such assistance that may assist Members in their oversight.
Members may also choose to hold hearings and pursue oversight through formal and informal
communications, including letters to the Administration and meetings with agency principals,
among others. Congress may also consider Ukraine funding and authorities as it begins work on
FY2025 appropriations legislation.
34 Alexander Bolton and Al Weaver, “Senate Republicans eye short-term funding bill without Ukraine money to avert
shutdown,” The Hill, September 29, 2023.
35 Kelly Garrity, “McConnell supports packaging aid to Ukraine and Israel together,” Politico, October 22, 2023.
36 Kevin Roberts and J.D. Vance, “Don’t hold up Israel aid to further Ukraine War funding,” The Hill, October 19,
2023.
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Table 1. SFOPS Emergency Supplemental Appropriations for Ukraine:
Administration Requests and Enacted Appropriations
(In millions of dollars of budget authority)
FY2022
FY2023
FY2024
March 2,
FY2022
April 28,
FY2022
Sept. 2,
FY2023
Nov. 15,
FY2023
Aug. 10,
Oct. 20,
FY2024
Appropriations
2022
USAA
2022
AUSAA
2022
USAA
2022
AUSAA
2023
2023
USSAAc
Account
Request
Enacted
Request
Enacted
Request
Enacted
Request
Enacted
Requesta
Requestb
Enacted
Dept. of State
—
125.0
—
190.0
—
—
—
147.1d
28.2
60.0
60.0
Diplomatic Programs
Dept. of State Capital
—
—
—
10.0
—
—
—
—
—
—
—
Investment Fund
Dept. of State Office of
—
4.0
—
4.0
—
—
—
5.5
—
5.0
8.0
Inspector General
Embassy Security,
—
—
—
110.0
—
—
—
—
—
—
—
Construction, and
Maintenance
U.S. Agency for Global
—
25.0
—
—
—
—
—
—
—
—
—
Media
USAID Operating
—
25.0
—
17.0
—
—
—
5.0
—
39.0
39.0
Expenses
USAID Office of
—
4.0
—
1.0
—
—
—
8.0
—
10.0
10.0
Inspector General
International Disaster
2,000.0
2,650.0
700.0
4,348.0
—
—
250.0
937.9d
1,300.0
5,655.0e
—f
Assistance
Transition Initiatives
—
120.0
—
—
—
—
50.0
50.0
25.0
25.0
25.0
Economic Support Fund
1,750.0
647.0
8,760.0
8,766.0
4,500.0
4,500.0
13,045.0
12,966.5
3,360.0
11,775.0
7,899.0
Assistance for Europe,
—
1,120.0
—
—
—
—
—
350.0
778.8
2,228.0
1,575.0
Eurasia and Central Asia
Migration and Refugee
750.0
1,400.0
150.0
350.0
—
—
250.0
1,535.1d
700.0
3,495.0e
—f
Assistance
CRS-9
link to page 11 link to page 11 link to page 12 link to page 12
FY2022
FY2023
FY2024
March 2,
FY2022
April 28,
FY2022
Sept. 2,
FY2023
Nov. 15,
FY2023
Aug. 10,
Oct. 20,
FY2024
Appropriations
2022
USAA
2022
AUSAA
2022
USAA
2022
AUSAA
2023
2023
USSAAc
Account
Request
Enacted
Request
Enacted
Request
Enacted
Request
Enacted
Requesta
Requestb
Enacted
International Narcotics
—
30.0
400.0
400.0
—
—
300.0
375.0d
63.0
360.0
300.0
Control and Law
Enforcement (INCLE)
Nonproliferation, Anti-
—
—
100.0
100.0
—
—
105.0
105.0
94.0
100.0
100.0
terrorism, Demining and
Related Programs
(NADR)
Foreign Military
500.0
650.0
4,000.0
4,000.0
—
—
500.0
80.0
1,000.0
1,700.0
1,600.0
Financing (FMF)
European Bank for
—
—
500.0
500.0
—
—
—
—
—
—
—
Reconstruction and
Development
Global Agriculture and
—
—
150.0
150.0
—
—
—
—
—
—
—
Food Security Program
Countering Russian
200.0
—
—
Malign Actors in Africa
Fund
Total
5,000.0
6,800.0
14,760.0
18,946.0
4,500.0
4,500.0
14,500.0
16,565.0
7,549.0
25,452.0
11,616.0
Sources: 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; Letter from OMB Director Shalanda Young, Attachment 2. Ukraine Assistance Needs; P.L. 117-328;
Letter from OMB Director Shalanda Young, Attachment 1. Ukraine and Other International Needs; Letter from OMB Director Shalanda Young, Attachment 3:
Humanitarian Assistance; P.L. 118-50.
a. The request also included funds requested for three SFOPS accounts that were not specifically designated for the Ukraine response or broader Russian aggression.
These included the International Infrastructure Fund, Contribution to the International Bank for Reconstruction and Development, and Contribution to the
International Development Association.
b. The request also included funds requested for SFOPS accounts that were not specifically designated for the Ukraine response. These included Emergencies in the
Diplomatic and Consular Services, Contribution to the International Bank for Reconstruction and Development, and Contribution to the International Development
Association. Additional funds were also requested for the Diplomatic Programs, Migration and Refugee Assistance, Economic Support Fund, and Foreign Military
Financing accounts for purposes not related to Ukraine or countries affected by the war in Ukraine.
CRS-10
c. Ukraine Security Supplemental Appropriations Act, 2024.
d. Four SFOPS accounts in the FY2023 AUSAA (P.L. 117-328, Div. M) included monies not specifically designated for Ukraine. Of the $147.1 mil ion for Diplomatic
Programs, not less than $60 mil ion was designated to respond to the situation in Ukraine; of the $937.9 mil ion for International Disaster Assistance, not less than
$300 mil ion was designated; of the $1,535.0 mil ion for Migration and Refugee Assistance, not less than $620 mil ion was designated; and of the $375.0 mil ion for
International Narcotics and Law Enforcement, not less than $300 mil ion was designated. Presumably the non-designated funds in each account may be used for
purposes beyond the Ukraine response.
e. For both International Disaster Assistance and Migration and Refugee Assistance requests in the October 20, 2023, request, the Administration notes that such
funds would be to provide assistance for vulnerable people in Ukraine and those affected by the war in Ukraine as well as provide support for Israelis and “displaced
and conflict-affected civilians, including Palestinian refugees in Gaza and the West Bank.” The request does not provide specific amounts for each of these priorities;
as such, the total request for both IDA and MRA are included in the table.
f.
Division A of P.L. 118-50, the Israel Security Supplemental Appropriations Act, 2024, included a total of $9.15 bil ion in humanitarian assistance accounts—$5.655
bil ion for International Disaster Assistance and $3.495 for Migration and Refugee Assistance—"to address humanitarian needs, including the provision of emergency
food and shelter, of vulnerable populations and communities.”
CRS-11
SFOPS Supplemental Funding for Ukraine: In Brief
Table 2. Selected SFOPS Authorities: Administration Requests and Enacted
March 2, 2022, 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 of the FAA (special authority to
Amended Section 614(a)(4)(A)(i ) of the FAA to
provide assistance in situations of vital national security
increase authority from $250 mil ion to $500 mil ion.
interest) to increase authority by $250 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
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.”
April 28, 2022, Request
FY2022 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, 2022, 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.
November 15, 2022, Request
FY2023 AUSAA Enacted
Amend Section 2606(a) of the FY2022 USAA to
N/A
authorize FMF loans for “major Non-North Atlantic
Treaty Organization allies” (an expansion from “North
Atlantic Treaty Organization (NATO) allies”) and
increase the authorization ceiling on loan and
guaranteed loan gross principal obligations to $8 bil ion.
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 $10.7 bil ion for FY2023.
drawdown maximum to $14.5 bil ion for FY2023.
Congressional Research Service
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SFOPS Supplemental Funding for Ukraine: In Brief
Amend Sections 614(a)(4)(A)(i ), 614(a)(4)(C),
Amends Sections 552(c)(2) and 506(a)(2) to increase
552(c)(2), and 506(a)(2) of the FAA to increase
respective funding caps. The act does not amend
respective funding caps. According to the request, such
Sections 614(a)(4)(A)(i ) or 614(a)(4)(C) as was
actions would increase flexibility for assistance to
requested.
Ukraine.
August 10, 2023, Request
Amend Section 506(a)(1) of the FAA to raise the
drawdown maximum to $1.1 bil ion for FY2024.
Amend Section 2606(a) of the FY2022 USAA to
authorize FMF loans for “major non-NATO allies” (an
expansion from the “North Atlantic Treaty
Organization (NATO) allies”) and increase the
authorization ceiling on loan and guaranteed loan gross
principal obligations to $8 bil ion.
Amend Section 614 of the FAA to increase authority by
$250 mil ion.
October 20, 2023, Request
Ukraine Security Supplemental Appropriations
Act, 2024
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 $7.0 bil ion for FY2024.
drawdown maximum to $7.8 bil ion for FY2024.
Amend Section 2606(a) of the FY2022 USAA to
Amends Section 2606(a) of the FY2022 USAA to
authorize FMF loans for “major non-NATO allies” (an
authorize FMF loans for “North Atlantic Treaty
expansion from the “North Atlantic Treaty
Organization (NATO) allies, major non-NATO allies,
Organization [NATO] allies”) and increase the
and the Indo-Pacific region” and increases the
authorization ceiling on loan and guaranteed loan gross
authorization ceiling on loan and guaranteed loan gross
principal obligations to $8 bil ion.
principal obligations to $8 bil ion.
Amend Section 614 of the FAA to increase authority
caps.
Authorize reprogramming FY2024 and prior year
SFOPS appropriations for assistance for Ukraine
“without regard to any minimum amounts specifically
designated in such Acts.”
Sources: 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; Letter from OMB Director Shalanda Young,
Attachment 2. Ukraine Assistance Needs; P.L. 117-328; Letter from OMB Director Shalanda
Young, Attachment 1. Ukraine and Other International Needs; Letter from OMB Director
Shalanda Young, Attachment 3: Humanitarian Assistance; P.L. 118-50.
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.
Congressional Research Service
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SFOPS Supplemental Funding for Ukraine: In Brief
Author Information
Emily M. McCabe
Specialist in Foreign Assistance and Foreign Policy
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Congressional Research Service
R47275 · VERSION 12 · UPDATED
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