August 17, 2017
The past several days have seen significant action on the International Affairs Budget, giving a much clearer picture of how development and diplomacy programs are faring in FY18. The Senate Appropriations Committee released its spending allocations, the House Budget Committee marked up the long-awaited FY18 Budget Resolution, and the House Appropriations Committee approved its State-Foreign Operations bill. There is still a long way to go before final spending bills are sent to the President’s desk, but this week saw significant progress when it comes to protecting America’s development and diplomacy programs.
The analysis below dives into each of these developments and also notes recent activity around efforts to reform and reorganize the State Department and USAID.
1. Senate Funding Guidance Released—International Affairs Budget Protected
This week, the Senate Appropriations Committee announced $51.2 billion in topline spending for its FY18 State-Foreign Operations (SFOPS) bill. The $51.2 billion is split between $30.4 billion in base and $20.8 billion in Overseas Contingency Operations (OCO) funding. When compared to FY17, this represents a:
It is important to note that, as has been done in the past, Appropriators cut base funding, but largely made up that funding deficit through increases in the OCO account. This shift has led to a number of long-term programs being funded through an account that was meant to be temporary in nature and USGLC continues to call on Congress and the Administration to address this issue.
The topline funding level proposed by the Senate is exponentially better than the Administration’s proposal and significantly more than the House proposal for the International Affairs Budget. USGLC President and CEO Liz Schrayer released a statement praising the Senate’s strong SFOPS allocation and urging Congress to follow the Senate’s leadership when negotiating final funding levels for the International Affairs Budget. Note: the chart below shows funding levels for the entire International Affairs Budget.
International Affairs Budget Snapshot
FY17 Enacted | FY18 Request** | FY18 House | FY18 Senate | |
Base | $38.4 billion | $28.5 billion | $36.9 billion | $32.2 billion |
OCO | $20.8 billion* | $12.0 billion | $12.0 billion | $20.8 billion |
Total | $59.1 billion | $40.5 billion | $48.9 billion | $53.0 billion |
*Includes $4.3 billion provided in the FY17 Security Assistance Appropriations Act
**Based on CBO’s re-estimate of the Administration’s request
This week the Senate Appropriations Committee also approved its FY18 Agriculture Appropriations bill. The bill provides $1.6 billion for the Food for Peace (PL 480/international food assistance) program, $200 million more than the House and equal to the FY17 enacted level. The bill funds the McGovern-Dole International Food for Education and Child Nutrition program at $206.6 million, $4.6 million (2%) more than the House and the FY17 enacted level, and includes $15 million to purchase some food aid locally or regionally. As a reminder, the Administration zeroed out the Food for Peace and McGovern-Dole programs in its budget request.
FY18 Agriculture Appropriations International Programs Snapshot
FY17 Enacted | FY18 Request | FY18 House | FY18 Senate | |
Food for Peace/P.L. 480 Title II | $1.6 billion | $0 | $1.4 billion | $1.6 billion |
McGovern-Dole | $202 million | $0 | $202 million | $207 million |
LRP | $0* | $0 | $0 | $0** |
Total | $1.8 billion | $0 | $1.6 billion | $1.8 billion |
*$5 million of McGovern-Dole funding included for local and regional procurement
**$15 million of McGovern-Dole funding included for local and regional procurement
2. House State-Foreign Operations Bill Moves Forward
This week, the House Appropriations Committee approved its FY18 State-Foreign Operations (SFOPS) bill, setting it up for a potential—but unlikely—vote on the House floor in September. See the above chart comparing the topline allocations for the International Affairs Budget.
During the markup of the bill in full Committee, members offered 16 amendments on a variety of issues, including restoring funding for UN agencies, peacekeeping, the Peace Corps, disaster assistance, and family planning programs. Other amendments centered on global environmental concerns, policy relating to Cuba, and the Mexico City Policy or Global Gag Rule. A few amendments of note:
Selected Program Highlights
Below are some additional details on program funding gleaned from the House SFOPS report.
Global Health
As we reported last week, the House bill protects Global Health programs compared to the Administration’s proposal, but still cuts overall funding by approximately 5%. A few accounts to note:
Global Health Funding*
FY16 Final | FY17 Enacted | FY18 Request | FY18 House | |
Bilateral PEPFAR | $4.32 billion | $4.32 billion | $3.85 billion | $4.32 billion |
Global Fund | $1.35 billion | $1.35 billion | $1.125 billion | $1.35 billion |
USAID HIV/AIDS | $330 million | $330 million | $0 | $330 million |
Malaria | $674 million | $755 million | $424 million | $505 million |
Tuberculosis | $236 million | $241 million | $178 million | $241 million |
Maternal/Child Health | $750 million | $815 million | $750 million | $815 million |
Vulnerable Children | $22 million | $23 million | $0 | $23 million |
Nutrition | $125 million | $125 million | $79 million | $125 million |
Family Planning | $608 million | $608 million | $0 | $461 million |
NTDs | $100 million | $100 million | $75 million | N/A |
Global Health Security | $73 million | $143 million | $0 | $10 million |
Total | $8.5 billion | $8.72 billion | $6.48 billion | $8.32 billion |
*State Department and USAID Global Health accounts only, except for family planning.
Development and Economic Assistance
The House bill cuts economic and development assistance across the board, although less than the Administration had requested. The Committee also rejects the Administration’s proposal to consolidate several accounts into a new Economic Support and Development Fund, noting that any decision to consolidate accounts should be made after the State Department and USAID complete their reorganization plan and authorizing committees have a chance to weigh in. The report similarly rejects the Administration’s proposal “to eliminate or significantly reduce development programs in the least developed countries” and states the Committee’s intent that these programs continue.
Development and Economic Assistance Funding
FY16 Final | FY17 Enacted | FY18 Request | FY18 House | |
Development Assistance (DA) | $2.78 billion | $3.0 billion | $0 | $2.78 billion |
Economic Support Fund (ESF) | $4.3 billion | $4.68 billion | $4.94 billion | $3.4 billion |
Assistance to Europe, Eurasia and Central Asia (AEECA) | $930 million | $902 million | $0 | $692 million |
Democracy Fund | $151 million | $211 million | $0 | $211 million |
Millennium Challenge Corporation (MCC) | $901 million | $905 million | $800 million | $800 million |
Peace Corps | $410 million | $410 million | $398 million | $398 million |
Humanitarian Assistance
The House bill proposes steep cuts to humanitarian assistance compared to total FY17 spending, although less than those proposed by the Administration. Notably, the Committee leaves open the possibility that additional funding could be added for famine relief as the appropriations process moves forward.
Humanitarian Assistance Funding
FY16 Final | FY17 Enacted | FY18 Request | FY18 House | |
Disaster Aid (IDA) | $2.79 billion | $4.4 billion | $2.51 billion | $2.82 billion |
Refugees (MRA) | $3.06 billion | $3.4 billion | $2.75 billion | $3.11 billion |
Emergency Refugees | $50 million | $50 million | $0 | $0 |
Total | $5.9 billion | $7.8 billion | $5.3 billion | $5.93 billion |
Peacekeeping
The House bill cuts funding for UN and non-UN peacekeeping operations compared to FY17 levels. Consistent with the Administration’s request, the House bill limits assessed contributions for UN Peacekeeping to the 25% statutory cap. It also supports the Administration’s efforts to reduce the U.S. assessment rate and curb the number and duration of peacekeeping missions.
Peacekeeping Funding
FY16 Final | FY17 Enacted | FY18 Request | FY18 House | |
UN Operations | $2.46 billion | $1.91 billion | $1.2 billion | $1.5 billion |
Non-UN Ops | $601 million | $659 million | $301 million | $460 million |
Total | $3.06 billion | $2.52 billion | $1.5 billion | $1.96 billion |
International Security Assistance
The House bill cuts security assistance from current levels. In particular, it provides $6.1 billion for Foreign Military Financing (FMF), a 4% ($226 million) cut from FY17 levels but $965 million more than the Administration requested. It also rejects the Administration’s proposal to change FMF assistance from grants to loans, noting the Committee could consider such authority on a country-by-country basis in the future.
Reform and Reorganization
The House bill builds on the requirement in the FY17 Omnibus that requires the Secretary of State to submit a report to the Appropriations Committees before taking action to reorganize the State Department or USAID per the Administration’s March 2017 executive order. Unlike the Omnibus, the House bill requires the report to be submitted to “appropriate congressional committees”, which includes authorizing as well as appropriations committees. The bill also directs the report to include detailed justifications and cost-savings projections for any reorganization plans.
Next Steps
House Republican leadership has announced it is packaging four spending bills as a “national security minibus” for a vote before the August recess. The minibus will include the FY18 Defense, Energy and Water, Legislative Branch, and Military Construction-VA bills. With this announcement and the upcoming August recess, the State-Foreign Operations (SFOPS) bill will not see further action until at least September.
And while the Senate released its guidance on topline spending levels for the 12 appropriations bills as reported above, we are not likely to see the full State-Foreign Operations bill until the fall.
3. House Budget Resolution Introduced—Steep Cut to the International Affairs Budget
After months of delay, House Budget Committee Chairwoman Diane Black (R-TN) released the FY18 Budget Resolution this week, which was approved by the Committee on a largely party-line vote of 22-14. The resolution sets out $511 billion for non-defense discretionary spending, which is about $5 billion below the Budget Control Act (BCA) cap for FY18. It provides $48.3 billion for the International Affairs Budget, including $36.3 billion in base and $12 billion in OCO funding.
This $48.3 billion topline for the International Affairs Budget represents an 18% ($10.8 billion) cut compared to total FY17 enacted funding and is roughly $600 million less than the House Appropriations Committee’s allocation. Traditionally the budget resolution provides important guidelines for topline spending, but given that the House Appropriations Committee has already approved its own allocations, the resolution holds less weight in this regard.
The Republican Study Committee (RSC) also released its budget this week. In the past, the RSC’s budget has been considered as an amendment when the budget resolution moves to the House floor. The RSC’s budget mirrors the Administration’s budget request and calls for a reduction in foreign assistance. Notably, the budget would:
4. Reform Update – Deputy Secretary Sullivan Testifies, Former Diplomats Speak Out
In reform and reorganization news, on Monday Deputy Secretary of State John Sullivan testified before the Senate Foreign Relations Committee on the FY18 State Department Authorization bill and the Department’s reorganization plans. Senators on both sides of the aisle pressed Sullivan for details on the reforms under consideration, specifics on the process, and the role of Congress. Throughout the hearing, Sullivan reiterated that there are “no predetermined outcomes” when it comes to the review process. In response to concerns expressed by multiple Senators about the potential merger of USAID into State and the shift of both the Consular Affairs (CA) and Population, Refugees, and Migration (PRM) Bureaus into the Department of Homeland Security, Sullivan stated that this is not an intention of the Department. The Foreign Relations Committee is expected to mark up its FY18 State Department Authorization next week, but is unlikely to consider any significant reform proposals until the Administration’s review is complete.
On Sunday, 58 former diplomats and national security advisors from Republican and Democratic administrations sent a letter to Secretary Tillerson urging him to sustain and strengthen PRM’s role and mission at the State Department. The letter argues that, “the elimination of PRM’s assistance functions would have profound and negative implications for the Secretary of State’s capacity to influence policy issues of key concern to the United States.”
Next week, another reform proposal will be put forward. On Monday, Senators Todd Young (R-IN) and Jeanne Shaheen (D-NH), co-chairs of the CSIS Congressional Task Force on Reform and Reorganization of U.S. Development Assistance, will participate in an event to release the Task Force’s report identifying actionable recommendations to improve the efficiency, effectiveness, and accountability of U.S. foreign assistance programs.