See below for a guest post from George Ingram, Senior Fellow at the Brookings Institution and MFAN Co-Chair. This piece originally appeared on the Brookings blog on November 13.
Conventional wisdom has it that foreign assistance is best supported by a Republican president and a Democratic Congress—Democrats are generally supportive of foreign assistance and a Republican president can convince his party’s legislators to support his foreign assistance programs. Add to that the dysfunction of recent congresses and the continued heightened partisanship, and the prospects for the newly elected 114th Congress taking constructive action on foreign assistance would appear dim.
For three reasons, I believe this pessimistic structural assessment does not reflect current reality, though it’s true that funding levels will remain a struggle and could be a target of a future budget battle.
International Crises Remind Us of the World
Turning to the old adage of “never waste a crisis,” the inward-looking turn reflected in opinion polls at the beginning of the 2014 election cycle was reversed by early fall—likely due to the Islamic State (also known as ISIS) and Ebola, which, by reminding the body politic that we ignore the world at our own peril, returned the American public to its more historical position of supporting international engagement. Further, as analyzed by the U.S. Global Leadership Coalition, “isolationism” was the big loser in the campaign. While there candidates advocating for retrenchment from international affairs, few of those articulating a “closed door” were elected and a number of the new members have international experience through the military, business, and other venues (full disclosure: I serve as honorary chairman of the U.S. Global Leadership Coalition).
Strong Leadership on Committees to Continue
The congressional committees with jurisdiction over international affairs are likely to be under the leadership of committed internationalists who understand and support foreign assistance. Where the leadership will change in the Senate, the incoming chairmen of the Senate Foreign Relations Committee and the State-Foreign Operations Appropriations Subcommittee, Senators Bob Corker and Lindsey Graham, are strong supporters of foreign assistance and they and their staffs have demonstrated interest in legislation to modernize foreign assistance policy and programs. Their predecessors, Senators Bob Menendez and Patrick Leahy, respectively, also are strong supporters of foreign assistance and likely to serve as the ranking Democrats on the committees. In the House, Nita Lowey is slated to retain her position as the ranking Democrat on the State-Foreign Operations Subcommittee and the candidates to succeed subcommittee Chair Kay Granger also are supporters of foreign assistance. On the House Foreign Affairs Committee, Chairman Henry Royce and ranking Democrat Elliot Engel will retain their positions.
Less Partisanship, but Resources Remain in Jeopardy
Most of the current issues involving foreign assistance fly under partisan radar. Sure, there will be the perennial contest around family planning policies and struggles around funding for a few less favorite accounts like the United Nations and the multilateral banks. Members will disagree on the nature of and how exactly to confront the Islamic State and Ebola, but at the end of the debates they will support U.S. policies and resources to confront these two scourges.
Just as the Obama Administration has supported and continued key Bush Administration initiatives—notably PEPFAR (the President’s Emergency Plan for Aids Relief) and the Millennium Challenge Corporation (MCC)—so, too, has the Republican Congress generally supported Obama initiatives in the foreign assistance realm.
There are ongoing and new efforts to write some of the initiatives into law, specifically in three areas. There has been strong support for legislation to authorize Power Africa; the bill has passed the House and has good support in the Senate. In recent months Obama’s Feed the Future has been the subject of serious administration/Congress/civil society deliberations to draft implementing legislation, and those discussions are expected to result in a bill with strong bipartisan support. The Foreign Assistance Transparency and Accountability Act would write into law the Administration’s policy initiatives on data transparency and evaluation. It has bipartisan support and is the subject of discussions to move the current bill in the lame-duck session or a revised draft in the new Congress. That consideration of moving the legislation to the next Congress conveys legislators’ comfort with the idea that bipartisan cooperation is possible.
There is reason for concern on the matter of resources. Not from immediate action, as both House and Senate appropriations committees have marked international affairs for fiscal year 2015 at $49.9 billion, just below the FY 2014 level of $50.6 billion and $1.6 billion shy of the administration’s request of $51.5 billion for FY 2015. The current continuing resolution is actually at $50.4 billion. And the Congress is likely to support most or part of the administration’s emergency request for Ebola of $6.4 billion.
The greater concern is for FY 2016 and 2017. Sequestration kicks back in next year and there will be efforts to protect defense, possibly at the expense of non-defense accounts. And, while the appropriators will remain advocates of foreign assistance funding, the House and Senate budget committees have traditionally not been so supportive. Incoming chairman of the Senate Budget Committee Jeff Sessions is in keeping with this mold. Back to not wasting a crisis—Ebola, the Islamic State, and the continuing uncertainty through much of the Middle East should be enough to keep members focused on the importance of the ability of the U.S. to be an active participant in world events.
The Export-Import Bank and the Overseas Private Investment Corporation
Two related international affairs matters to keep an eye on are the reauthorization of the Export-Import Bank (EXIM) and the Overseas Private Investment Corporation (OPIC). EXIM does not traditionally fall under the development rubric, but the export finance agency is slated under the administration’s plans to provide $5 billion of the $7 billion of U.S. government funding for power projects under its signature initiative Power Africa. Over the past several years EXIM has been a prime target of conservative Republicans. Rejecting the arguments that it creates jobs, levels the playing field for U.S. exporters, and pays its own way, they attack the agency as corporate welfare. Anticipating Republican control of the Senate in the new Congress, they orchestrated a temporary extension of EXIM’s authorities to June 2015, so reauthorization of EXIM will likely be a donnybrook battle for the new session.
Reauthorization of OPIC is less controversial. A temporary extension is in the continuing resolution and will be carried forward in whatever replaces the continuing resolution (it expires December 11), either a new continuing resolution into early next year or an omnibus appropriations bill for the entire fiscal year 2015. A permanent reauthorization has been part of the Power Africa legislation and could be carried there or in other legislation.
Engage the Congress
Bottom line: it’s worth our time to engage with the 114th Congress, as there will be opportunities to improve our foreign assistance policies and programs and funding levels will need our support.