Pakistan Assistance
Relatively Little of the $3 Billion in Requested Assistance Is Subject to State's Certification of Pakistan's Progress on Nonproliferation and Counterterrorism Issues Gao ID: GAO-11-786R July 19, 2011Pakistan is central to U.S. efforts to disrupt, dismantle, and defeat al Qaeda and deny its resurgence in the Afghanistan-Pakistan region. The United States has sought to secure these interests through counterterrorism and counterinsurgency cooperation, as well as through a long-term partnership anchored, in part, by increased civilian and military assistance. Since fiscal year 2002, the U.S. government has provided the Pakistani government almost $21 billion in assistance and reimbursements toward these goals. However, al Qaeda and other terrorists and violent extremists continue to promote instability and use safe havens in Pakistan's western border region to plan and train for attacks against U.S. interests. At the same time, the United States continues to be concerned with the ongoing effect of A. Q. Khan's illicit transfer of nuclear technology to Iran, North Korea, and Libya. To address these and other concerns, in October 2009, Congress enacted the Enhanced Partnership with Pakistan Act of 2009, which, among other things, limits certain security-related assistance to Pakistan each fiscal year from 2011 through 2014. Before the United States can provide security-related assistance to Pakistan in each of those fiscal years, the Secretary of State must certify that Pakistan continues to cooperate with the United States on dismantling nuclear networks. Pakistan demonstrated a sustained commitment to and made significant efforts toward combating terrorism in the preceding fiscal year, and Pakistan's security forces are not subverting the political and judicial processes of Pakistan. The Act also allows the Secretary of State, under the direction of the President, to waive the limitations on security-related assistance if the Secretary determines that it is important to the national security interests of the United States to do so. The law did not set a specific date during the fiscal year to issue either a certification or a waiver. On March 18, 2011, the Department of State (State) issued its fiscal year 2011 certification. The Act also required GAO to conduct an independent analysis of the Secretary of State's certification and report to Congress on the results of its analysis. GAO is required to submit its analysis not later than 120 days after the Secretary of State makes the certification. This report responds to the GAO requirement by providing information on the amount of U.S. funding subject to the certification. To address the mandate further, we will issue a separate, classified product evaluating State's justification for certifying Pakistan's cooperation and progress. We are not making any recommendations in this report.
The Act limits the provision of security-related assistance to Pakistan through the Military Assistance Program, the Excess Defense Articles Program, and Foreign Military Financing (FMF) for fiscal years 2011-2014 and arms transfers to Pakistan for fiscal years 2012-2014 unless the Secretary of State, under the direction of the President, certifies to Congress that for each fiscal year: (1) The government of Pakistan is continuing to cooperate with the United States in efforts to dismantle nuclear supplier networks, such as providing relevant information from or direct access to Pakistani nationals associated with such networks. (2) The government of Pakistan has demonstrated a sustained commitment to and has made significant efforts toward combating terrorist groups during the preceding fiscal year, including taking into account progress made on matters such as: a. ceasing support, including by any elements within the Pakistani military or its intelligence agency, to extremist and terrorist groups; b. preventing al Qaeda, the Taliban, and associated terrorist groups, such as Lashkar-e-Taiba and Jaish-e-Mohammed, from operating in the territory of Pakistan; and c. strengthening counterterrorism and anti-money-laundering laws. (3) Pakistan's security forces are not materially and substantially subverting the political or judicial processes of Pakistan. On March 18, 2011, the Secretary of State signed a certification attesting that Pakistan continues to cooperate with the United States on dismantling nuclear networks; Pakistan demonstrated a sustained commitment to and made significant efforts towards combating terrorism in the preceding fiscal year; and Pakistan's security forces are not subverting the political and judicial processes of Pakistan. As a result of State's certification, the United States can provide security-related assistance to Pakistan in fiscal year 2011. State originally requested $296 million in fiscal year 2011 in FMF for Pakistan. According to discussions with State Department officials and our review of the law and State budget requests, the Enhanced Partnership Act could limit about $350 million in FMF that State requested for Pakistan in fiscal year 2012. That is approximately 12 percent of the administration's fiscal year 2012 request of $3 billion for total foreign assistance to Pakistan. This leaves about 88 percent, or $2,615 million that is not limited. The FMF program provides grants for Pakistan's acquisition of U.S. defense articles, services, and training, primarily for activities related to counterinsurgency and counterterrorism operations. In the past, Pakistan had used these grants to refurbish or upgrade defense articles that the United States had provided under the Excess Defense Articles program, including Cobra helicopters, armored personnel carriers, and the frigate USS McInerney.
GAO-11-786R, Pakistan Assistance: Relatively Little of the $3 Billion in Requested Assistance Is Subject to State's Certification of Pakistan's Progress on Nonproliferation and Counterterrorism Issues
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Progress on Nonproliferation and Counterterrorism Issues' which was
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GAO-11-786R:
United States Government Accountability Office:
Washington, DC 20548:
July 19, 2011:
Congressional Committees:
Subject: Pakistan Assistance: Relatively Little of the $3 Billion in
Requested Assistance Is Subject to State's Certification of Pakistan's
Progress on Nonproliferation and Counterterrorism Issues:
Pakistan is central to U.S. efforts to disrupt, dismantle, and defeat
al Qaeda and deny its resurgence in the Afghanistan-Pakistan region.
The United States has sought to secure these interests through
counterterrorism and counterinsurgency cooperation, as well as through
a long-term partnership anchored, in part, by increased civilian and
military assistance. Since fiscal year 2002, the U.S. government has
provided the Pakistani government almost $21 billion in assistance and
reimbursements toward these goals.[Footnote 1] However, al Qaeda and
other terrorists and violent extremists continue to promote
instability and use safe havens in Pakistan's western border region to
plan and train for attacks against U.S. interests.[Footnote 2] At the
same time, the United States continues to be concerned with the
ongoing effect of A. Q. Khan's illicit transfer of nuclear technology
to Iran, North Korea, and Libya.[Footnote 3]
To address these and other concerns, in October 2009, Congress enacted
the Enhanced Partnership with Pakistan Act of 2009,[Footnote 4] which,
among other things, limits certain security-related assistance to
Pakistan each fiscal year from 2011 through 2014. Before the United
States can provide security-related assistance to Pakistan in each of
those fiscal years, the Secretary of State must certify that Pakistan
continues to cooperate with the United States on dismantling nuclear
networks, Pakistan demonstrated a sustained commitment to and made
significant efforts toward combating terrorism in the preceding fiscal
year, and Pakistan's security forces are not subverting the political
and judicial processes of Pakistan. The Act also allows the Secretary
of State, under the direction of the President, to waive the
limitations on security-related assistance if the Secretary determines
that it is important to the national security interests of the United
States to do so. The law did not set a specific date during the fiscal
year to issue either a certification or a waiver. On March 18, 2011,
the Department of State (State) issued its fiscal year 2011
certification.
The Act also required GAO to conduct an independent analysis of the
Secretary of State's certification and report to Congress on the
results of its analysis. GAO is required to submit its analysis not
later than 120 days after the Secretary of State makes the
certification. This report responds to the GAO requirement by
providing information on the amount of U.S. funding subject to the
certification. To address the mandate further, we will issue a
separate, classified product evaluating State's justification for
certifying Pakistan's cooperation and progress.
We compiled and analyzed data from a number of sources to address
these objectives. To determine the statutory requirements, we analyzed
the Act and State's certification. To confirm the limitations on
security-related assistance contained in the Act, we spoke with
attorneys from State's Office of the Legal Adviser, Office of
Legislation and Foreign Assistance, and Office of Management. To
ascertain the amount of security-related assistance that is contingent
upon State's certification, we compiled and analyzed budget data from
State's fiscal year 2011 and 2012 congressional budget justifications.
We conducted this work between July 2010 and July 2011 in accordance
with all sections of GAO's Quality Assurance Framework that are
relevant to our objectives. The framework required that we plan and
perform the engagement to obtain sufficient and appropriate evidence
to meet our stated objectives and to discuss any limitations in our
work. We believe that the information and data we obtained, and the
analysis we conducted, provide a reasonable basis for any findings.
Background:
Since 2002, the United States has provided Pakistan with increasing
levels of security, democratic, economic, and development assistance,
as well as reimbursements. As shown in figure 1, U.S. assistance
increased 151 percent, from $1.06 billion in fiscal year 2002 to $2.65
billion in fiscal year 2010. In the same period, U.S. reimbursements
to Pakistan have increased 28 percent, from $1.17 billion in fiscal
year 2002 to $1.50 billion in fiscal year 2010. The Act authorizes
$1.5 billion in democratic, economic, and development assistance to
Pakistan each year for fiscal years 2010 through 2014. The United
States has provided assistance for a broad range of activities. For
example, the United States has provided $4.78 billion through the
Economic Support Fund, which is used for projects such as
rehabilitating and constructing public schools and improving energy,
agricultural, and water infrastructure. The United States has also
provided $2.16 billion in Foreign Military Financing (FMF), which
helps develop the professionalism and capabilities of Pakistan's
military. The United States also provided Excess Defense Articles to
Pakistan between 2002 and 2010; however, this assistance has been
provided in the form of equipment rather than funds. Therefore, we did
not include it in figure 1.
Figure 1: U.S. Assistance to Pakistan, Fiscal Years 2002-2010:
[Refer to PDF for image: stacked vertical bar graph]
Assistance Reimbursements
Fiscal year: 2002;
Assistance: $1.060 billion;
Reimbursements: $1.169 billion.
Fiscal year: 2003;
Assistance: $517 million;
Reimbursements: $1.247 billion.
Fiscal year: 2004;
Assistance: $417 million;
Reimbursements: $705 million.
Fiscal year: 2005;
Assistance: $735 million;
Reimbursements: $964 million.
Fiscal year: 2006;
Assistance: $1.080 billion;
Reimbursements: $862 million.
Fiscal year: 2007;
Assistance: $936.447;
Reimbursements: $732 million.
Fiscal year: 2008;
Assistance: $963;
Reimbursements: $901 million.
Fiscal year: 2009;
Assistance: $2.192 billion;
Reimbursements: $865 million.
Fiscal year: 2010;
Assistance: $2.655 billion;
Reimbursements: $1.499 billion.
Source: GAO analysis of State Department and Congressional Research
Service data.
[End of section]
The Enhanced Partnership Act also authorizes funds as necessary for
security assistance and places limitations on certain security-related
assistance. The Act defines security-related assistance as (1) grant
assistance to carry out section 23 of the Arms Export Control Act
[Footnote 5] and (2) assistance under chapter 2 of part II of the
Foreign Assistance Act of 1961.[Footnote 6] According to the Act,
security-related assistance does not include (1) assistance authorized
to be appropriated or otherwise made available under any provision of
law that is funded from accounts within budget function 050 (National
Defense),[Footnote 7] and (2) amounts appropriated or otherwise
available to the Pakistan Counterinsurgency Capability Fund (PCCF)
established under the Supplemental Appropriations Act, 2009.[Footnote
8] While the Military Assistance Program is subject to the
certification, it was discontinued in 1982.
The Enhanced Partnership Act Limits Certain Assistance to Pakistan
unless State Certifies Pakistan's Cooperation or Waives the Limitation:
The Act limits the provision of security-related assistance to
Pakistan through the Military Assistance Program, the Excess Defense
Articles Program, and FMF for fiscal years 2011-2014 and arms
transfers to Pakistan for fiscal years 2012-2014 unless the Secretary
of State, under the direction of the President, certifies to Congress
that for each fiscal year:
(1) The government of Pakistan is continuing to cooperate with the
United States in efforts to dismantle nuclear supplier networks, such
as providing relevant information from or direct access to Pakistani
nationals associated with such networks.
(2) The government of Pakistan has demonstrated a sustained commitment
to and has made significant efforts toward combating terrorist groups
during the preceding fiscal year, including taking into account
progress made on matters such as:
a. ceasing support, including by any elements within the Pakistani
military or its intelligence agency, to extremist and terrorist groups;
b. preventing al Qaeda, the Taliban, and associated terrorist groups,
such as Lashkar-e-Taiba and Jaish-e-Mohammed, from operating in the
territory of Pakistan; and:
c. strengthening counterterrorism and anti-money-laundering laws.
(3) Pakistan's security forces are not materially and substantially
subverting the political or judicial processes of Pakistan.
On March 18, 2011, the Secretary of State signed a certification
attesting that Pakistan continues to cooperate with the United States
on dismantling nuclear networks; Pakistan demonstrated a sustained
commitment to and made significant efforts towards combating terrorism
in the preceding fiscal year; and Pakistan's security forces are not
subverting the political and judicial processes of Pakistan (see
enclosure I). State transmitted the certification to Congress with a
classified memorandum of justification to support the certification on
March 29, 2011. We will further assess the certification and the
accompanying memorandum of justification in a separate, classified
product. Our classified report will evaluate State's justification for
making the certification.
As a result of State's certification, the United States can provide
security-related assistance to Pakistan in fiscal year 2011.[Footnote
9] State originally requested $296 million in fiscal year 2011 in FMF
for Pakistan.[Footnote 10] Enclosure II provides additional
information on U.S. assistance to Pakistan for fiscal year 2011. After
fiscal year 2012 begins, State cannot provide security-related
assistance--regardless of when the funds were appropriated--until it
issues a certification for fiscal year 2012.
In Fiscal Year 2012 the Act Could Limit 12 Percent of State's Request
for U.S. Assistance to Pakistan:
According to discussions with State Department officials and our
review of the law and State budget requests, the Enhanced Partnership
Act could limit about $350 million in FMF that State requested for
Pakistan in fiscal year 2012.[Footnote 11] That is approximately 12
percent of the administration's fiscal year 2012 request of $3 billion
for total foreign assistance to Pakistan (see fig. 2). This leaves
about 88 percent, or $2,615 million that is not limited. The FMF
program provides grants for Pakistan's acquisition of U.S. defense
articles, services, and training, primarily for activities related to
counterinsurgency and counterterrorism operations. In the past,
Pakistan had used these grants to refurbish or upgrade defense
articles that the United States had provided under the Excess Defense
Articles program, including Cobra helicopters, armored personnel
carriers, and the frigate USS McInerney. Enclosure III provides
additional information on items Pakistan purchased with FMF grants
through December 31, 2010.
Figure 2: U.S. Foreign Assistance to Pakistan That State Requested for
Fiscal Year 2012 and the Amount Potentially Affected by the
Certification:
[Refer to PDF for image: pie-chart]
Programs not subject to certification:
Economic Support Fund: $1.36 billion;
Pakistan Counterinsurgency Capability Fund: $1.1 billion;
International Narcotics Control and Law Enforcement: $125 million;
Nonproliferation, Antiterrorism, Demining and Related Programs: $23
million;
International Military Education and Training: $5 million;
Global Health and Child Survival: $2 million.
Programs subject to certification:
Foreign Military Financing: $350 million.
Source: GAO analysis of the State Department's Congressional Budget
Justification for fiscal year 2012.
[End of figure]
The Act does not limit the provision of assistance for programs funded
by the other 88 percent of State's request for Pakistan in fiscal year
2012. This includes about $1.36 billion in Economic Support Funds
$1.10 billion for the PCCF, and $155 million in four other programs.
State plans to use Economic Support Funds for democratic governance,
economic growth, and humanitarian assistance programs in Pakistan.
PCCF is used to build and maintain the capability of Pakistan's
security forces to conduct operations along the border with
Afghanistan. The other four programs provide a variety of assistance,
including building the capacity of civilian law enforcement and
increasing women's and children's access to health care.
In legislation introduced on April 2, 2009, Congress had considered
subjecting PCCF funds to the certification. However, the final Act
excluded PCCF as a part of security-related assistance subject to the
certification. The PCCF funds equipment, training, and other support
for Pakistani forces engaged in eliminating insurgent sanctuaries in
Pakistan.
Similarly, the Act does not limit the provision of Coalition Support
Funds (CSF), which the Department of Defense has provided to Pakistan
as reimbursements for its efforts to combat terrorism along the border
with Afghanistan. Since fiscal year 2002, the United States has
reimbursed Pakistan about $8.9 billion under CSF.[Footnote 12] The
Department of Defense provides CSF to partner countries for costs
incurred in direct support of U.S. military operations.
We are not making any recommendations in this report.
We provided the Department of State a draft of this report. State
provided technical comments on our draft, which we have incorporated
as appropriate.
We are sending copies of this report to the Secretary of State and
congressional committees specified in the Enhanced Partnership with
Pakistan Act of 2009. In addition, the report will be available at no
charge on the GAO website at [hyperlink, http://www.gao.gov].
If you or your staff have any questions about this report, please
contact Charles Michael Johnson, Jr., at (202) 512-7331 or
johnsoncm@gao.gov or Joseph A. Christoff at (202) 512-8979 or
christoffj@gao.gov. Contacts for our Offices of Congressional
Relations and Public Affairs may be found on the last page of this
report. GAO contacts and staff acknowledgments are listed in enclosure
IV.
Sincerely,
Signed by:
Jacquelyn L. Williams-Bridgers, Managing Director:
International Affairs and Trade:
Enclosures: 4:
List of Committees:
The Honorable Carl Levin:
Chairman:
The Honorable John McCain:
Ranking Member:
Committee on Armed Services:
United States Senate:
The Honorable John F. Kerry:
Chairman:
The Honorable Richard G. Lugar:
Ranking Member:
Committee on Foreign Relations:
United States Senate:
The Honorable Daniel Inouye:
Chairman:
The Honorable Thad Cochran:
Ranking Member:
Subcommittee on Defense:
Committee on Appropriations:
United States Senate:
The Honorable Patrick Leahy:
Chairman:
The Honorable Lindsey Graham:
Ranking Member:
Subcommittee on State, Foreign Operations, and Related Programs:
Committee on Appropriations:
United States Senate:
The Honorable Buck McKeon:
Chairman:
The Honorable Adam Smith:
Ranking Member:
Committee on Armed Services:
House of Representatives:
The Honorable Ileana Ros-Lehtinen:
Chairman:
The Honorable Howard L. Berman:
Ranking Member:
Committee on Foreign Affairs:
House of Representatives:
The Honorable C.W. Bill Young:
Chairman:
The Honorable Norman D. Dicks:
Ranking Member:
Subcommittee on Defense:
Committee on Appropriations:
House of Representatives:
The Honorable Kay Granger:
Chairwoman:
The Honorable Nita M. Lowey:
Ranking Member:
Subcommittee on State, Foreign Operations, and Related Programs:
Committee on Appropriations:
House of Representatives:
[End of section]
Enclosure I: The Secretary of State's Certification Relating to
Pakistan, March 18, 2011:
This enclosure shows the Secretary of State's signed certification.
Certification Relating To Pakistan Under Section 203 Of The Enhanced
Partnership With Pakistan Act Of 2009 (P.L. 111-73):
Pursuant to the authority vested in me as Secretary of State,
including by section 203 of the Enhanced Partnership with Pakistan Act
(Public Law 111-73), I hereby certify that:
(1) the Government of Pakistan is continuing to cooperate with the
United States in efforts to dismantle supplier networks relating to
the acquisition of nuclear weapons-related materials, such as
providing relevant information from or direct access to Pakistani
nationals associated with such networks;
(2)the Government of Pakistan during the preceding fiscal year has
demonstrated a sustained commitment to and is making significant
efforts towards combating terrorist groups consistent with the
purposes of assistance described in section 201, including taking into
account the extent to which the Government of Pakistan has made
progress on matters such as:
(A) ceasing support, including by any elements within the Pakistan
military or its intelligence agency, to extremist and terrorist
groups, particularly to any group that has conducted attacks against
United States or coalition forces in Afghanistan, or against the
territory or people of neighboring countries;
(B) preventing al Qaeda, the Taliban, and associated terrorist groups,
such as Lashkar-e-Taiba and Jaish-e-Mohammed, from operating in the
territory of Pakistan, including carrying out cross-border attacks
into neighboring countries, closing terrorist camps in the Federally
Administered Tribal Areas, dismantling terrorist bases of operations
in other parts of the country, including Quetta and Muridke, and
taking action when provided with intelligence about high-level
terrorist targets; and;
(C) strengthening counterterrorism and anti-money laundering laws; and;
(3) the security forces of Pakistan are not materially and the
substantially subverting the political or judicial processes of
Pakistan.
Date: 03/18/11:
Signed by:
Hillary Rodham Clinton:
Source: State Department.
[End of section]
Enclosure II: U.S. Assistance to Pakistan that State Requested for
Fiscal Year 2011:
This enclosure provides information on the Administration's request
for assistance to Pakistan in fiscal year 2011.[Footnote 13] As shown
in figure 3, the administration requested about $296 million for FMF,
almost 10 percent of the $3 billion in assistance that State requested
for Pakistan in fiscal year 2011. State could provide FMF funds to
Pakistan on March 18, 2011, when the Secretary of State certified that
(1) Pakistan cooperated with the United States on dismantling nuclear
networks, (2) Pakistan had demonstrated a commitment to and made
efforts toward combating terrorism in the preceding fiscal year, and
(3) Pakistan's security forces had not subverted political and
judicial processes.
Figure 3: U.S. Assistance to Pakistan That State Requested for Fiscal
Year 2011:
[Refer to PDF for image: pie-chart]
Programs not subject to certification:
Economic Support Fund: $1.322 billion;
Pakistan Counterinsurgency Capability Fund: $1.2 billion;
International Narcotics Control and Law Enforcement: $140 million;
Nonproliferation, Antiterrorism, Demining and Related Programs: $25
million;
International Military Education and Training: $4 million;
Global Health and Child Survival: $2 million.
Programs subject to certification:
Foreign Military Financing: $296 million.
Source: GAO analysis of the State Department's Congressional Budget
Justification for fiscal year 2011.
[End of figure]
The remaining amounts--which are not limited by the certification
requirement in the Act--included about $1.3 billion in Economic
Support Funds, $1.2 billion for the Pakistan Counterinsurgency
Capability Fund and about $236 million for four other programs.
[End of section]
Enclosure III: Items Purchased by Pakistan with FMF Grants:
This enclosure provides information on Pakistan's purchases using FMF
grants since fiscal year 2001. As we reported in February 2011,
Congress had appropriated $2.11 billion for FMF grants to Pakistan
since fiscal year 2002.[Footnote 14] Pakistan used about $1.86 billion
of the $2.11 billion to acquire various defense articles, services, or
training, as of December 31, 2010.[Footnote 15]Figure 4 provides a
list of items purchased by Pakistan with FMF grants.
Figure 4: Items Purchased by Pakistan with FMF Grants as of December
31, 2010:
[Refer to PDF for image: illustrated table and 3 associated
photographs]
Description and (quantity): P-3C avionics maritime patrol aircraft
upgrades and related support (7 aircraft);
Year(s)[A]: 2003, 2005, 2006, 2008;
Value: $507.6 million.
Description and (quantity): F-16 mid-life updates (35 jets);
Year(s)[A]: 2006;
Value: $476.4 million.
Description and (quantity): TOW IIA anti-tank missile launchers and
missiles (121 launchers, 6,212 missiles);
Year(s)[A]: 2005, 2007, 2010;
Value: $215.5 million.
Description and (quantity): Harris radios (2,335 radios);
Year(s)[A]: 2004, 2005, 2007, 2010;
Value: $213.1 million.
Description and (quantity): TPS-78 radar systems (6 systems);
Year(s)[A]: 2004;
Value: $96.9 million.
Description and (quantity): Technical support team at Shahbaz Air
Force Base;
Year(s)[A]: 2010;
Value: $82.1 million.
Description and (quantity): C-130E transport aircraft refurbishments
(6 aircraft);
Year(s)[A]: 2003;
Value: $75.9 million.
Description and (quantity): USS McInerney frigate refurbishment;
Year(s)[A]: 2010;
Value: $58.8 million.
Description and (quantity): Cobra helicopter refurbishments and
support (12 helicopters);
Year(s)[A]: 2003, 2004;
Value: $53.5 million.
Description and (quantity): Self-propelled M-109A5 howitzers (115
howitzers);
Year(s)[A]: 2006;
Value: $52.5 million.
Description and (quantity): Aircraft training;
Year(s)[A]: 2002;
Value: $7.6 million.
Description and (quantity): Frigate training;
Year(s)[A]: 2010;
Value: $6.0 million.
Description and (quantity): 20 mm ammunition (600,000 cartridges);
Year(s)[A]: 2009, 2010;
Value: $5.2 million.
Description and (quantity): Helicopter spare parts;
Year(s)[A]: 2004;
Value: $2.6 million.
Description and (quantity): Electronic warfare equipment (signal
jammers expendable chaff, flares etc.);
Year(s)[A]: 2002;
Value: $1.9 million.
Description and (quantity): PVS-7 night vision devices (300 devices);
Year(s)[A]: 2004;
Value: $1.5 million.
Description and (quantity): Aircraft spare parts;
Year(s)[A]: 2003[B];
Value: $1.3 million.
Description and (quantity): Total committed:
Value: $1.858 billion.
Source: GAO analysis of Department of Defense data.
[A] This represents the year(s) officials from both the U.S. and
Pakistani governments signed the agreement and the initial payment was
deposited for the defense articles, services, and training.
[B] This case was initially implemented in 1984 and was amended in
2003.
[End of figure]
[End of section]
Enclosure IV: GAO Contacts and Staff Acknowledgments:
GAO Contacts:
Charles Michael Johnson, Jr., (202) 512-7331 or Johnsoncm@gao.gov:
Joseph A. Christoff, (202) 512-8979 or Christoffj@gao.gov:
Staff Acknowledgments:
Major contributors to this report were Judith McCloskey, Assistant
Director; Jeffrey Phillips, Assistant Director; Eugene Beye, Rhonda
Horried, William Horton, Brandon Hunt, Alicia Loucks, Michael
Rohrback, and Adam Vogt.
Related GAO Products:
Department of State's Report to Congress and U.S. Oversight of
Civilian Assistance to Pakistan Can Be Further Enhanced. [hyperlink,
http://www.gao.gov/products/GAO-11-310R]. Washington, D.C.: February
17, 2011.
Accountability for U.S. Equipment Provided to Pakistani Security
Forces in the Western Frontier Needs to Be Improved. [hyperlink,
http://www.gao.gov/products/GAO-11-156R]. Washington, D.C.: February
15, 2011.
Combating Terrorism: Planning and Documentation of U.S. Development
Assistance in Pakistan's Federally Administered Tribal Areas Need to
Be Improved. [hyperlink, http://www.gao.gov/products/GAO-10-289].
Washington, D.C.: April 15, 2010.
Afghanistan and Pakistan: Oversight of U.S. Interagency Efforts.
[hyperlink, http://www.gao.gov/products/GAO-09-1015T]. Washington,
D.C.: September 9, 2009.
Securing, Stabilizing, and Developing Pakistan's Border Area with
Afghanistan: Key Issues for Congressional Oversight. [hyperlink,
http://www.gao.gov/products/GAO-09-263SP]. Washington, D.C.: February
23, 2009.
Combating Terrorism: Increased Oversight and Accountability Needed
over Pakistan Reimbursement Claims for Coalition Support Funds.
[hyperlink, http://www.gao.gov/products/GAO-08-806]. Washington, D.C.:
June 24, 2008.
Combating Terrorism: U.S. Oversight of Pakistan Reimbursement Claims
for Coalition Support Funds. [hyperlink,
http://www.gao.gov/products/GAO-08-932T]. Washington, D.C.: June 24,
2008.
Combating Terrorism: U.S. Efforts to Address the Terrorist Threat in
Pakistan's Federally Administered Tribal Areas Require a Comprehensive
Plan and Continued Oversight. [hyperlink,
http://www.gao.gov/products/GAO-08-820T]. Washington, D.C.: May 20,
2008.
Preliminary Observations on the Use and Oversight of U.S. Coalition
Support Funds Provided to Pakistan. [hyperlink,
http://www.gao.gov/products/GAO-08-735R]. Washington, D.C.: May 6,
2008.
Combating Terrorism: The United States Lacks Comprehensive Plan to
Destroy the Terrorist Threat and Close the Safe Haven in Pakistan's
Federally Administered Tribal Areas. [hyperlink,
http://www.gao.gov/products/GAO-08-622]. Washington, D.C.: April 17,
2008.
Nonproliferation: U.S. Efforts to Combat Nuclear Networks Need Better
Data on Proliferation Risks and Program Results. [hyperlink,
http://www.gao.gov/products/GAO-08-21]. Washington, D.C.: October 31,
2007.
[End of section]
Footnotes:
[1] The $21 billion amount includes about $12 billion in U.S.
assistance and about $9 billion in reimbursements for Pakistan's
counterterrorism efforts in direct support of U.S. military operations.
[2] See the recent GAO report on terrorist safe havens: GAO, Combating
Terrorism: U.S. Government Should Improve Its Reporting on Terrorist
Safe Havens, [hyperlink, http://www.gao.gov/products/GAO-11-561]
(Washington, D.C.: June 3, 2011).
[3] Between the mid-1980s and 2004, A.Q. Khan, a Pakistani nuclear
scientist, used an international supplier network to illicitly provide
equipment and knowledge needed to enrich uranium for nuclear weapons.
[4] Pub. L. No. 111-73, 123 Stat. 2060 (Oct. 15, 2009), hereafter
referred to as the Enhanced Partnership Act or the Act.
[5] Section 23 of the Arms Export Control Act authorizes FMF.
[6] Chapter 2 of Part II of the Foreign Assistance Act of 1961
authorizes the Military Assistance Program and the Excess Defense
Articles Program.
[7] The National Defense function includes the military activities of
the Department of Defense, the nuclear-weapons related activities of
the Department of Energy, the National Nuclear Security
Administration, the national security activities of several other
agencies such as the Selective Service Agency, and portions of the
activities of the Coast Guard and the Federal Bureau of Investigation.
[8] PCCF funds equipment, training, and other support for Pakistani
forces engaged in eliminating insurgent sanctuaries in Pakistan.
[9] Congress appropriated $50 million in FMF for Pakistan in the
Supplemental Appropriations Act, 2010. State did not provide these
funds to Pakistan prior to the beginning of fiscal year 2011 and
therefore could not provide these funds until it issued the
certification.
[10] State said in its technical comments, that as of July 14, 2011,
it had not notified Congress of the specific fiscal year 2011 FMF
amount for Pakistan.
[11] In technical comments, State noted that FMF from prior years
might also be available in fiscal year 2012.
[12] Congressional Research Service, Pakistan: U.S. Foreign
Assistance, R41856, (Washington, D.C.: June 2011).
[13] We used State's congressional budget justification for fiscal
year 2011 because State has not notified Congress of its specific
fiscal year 2011 amount for Pakistan.
[14] GAO, Department of State's Report to Congress and U.S. Oversight
of Civilian Assistance to Pakistan Can Be Further Enhanced,
[hyperlink, http://www.gao.gov/products/GAO-11-310R] (Washington,
D.C.: Feb. 17, 2011).
[15] The term "used" indicates that the United States and Pakistan
signed an agreement and deposited the initial payment for defense
articles, services, and training.
[End of section]
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