United States Government Accountability Office

February 2012

GAO Report to Congressional Committees

GAO-12-432R

Uncertain Political 

and Security Situation 

Challenges U.S. 

Efforts to Implement a 

Comprehensive 

Strategy in Yemen
 GAO-12-432R U.S. Assistance to Yemen

February 29, 2012

Congressional Committees

Subject: Uncertain Political and Security Situation Challenges U.S. Efforts to Implement a 

Comprehensive Strategy in Yemen

Yemen is an important U.S. partner in the fight against terrorism and violent extremism. 

According to U.S. officials, al Qaeda in the Arabian Peninsula (AQAP)—which is based in 

Yemen—is one of the top national security threats facing the United States. AQAP has shown 

the intent and capability to carry out attacks against U.S. targets both in Yemen and in the 

United States, including the September 2008 bombing of the U.S. embassy in the Yemen 

capital, Sanaa, and the failed attempts to blow up a U.S.-bound airplane in December 2009 and 

to send packages containing explosives on two separate airplanes bound for the United States 

in October 2010. Further, Yemen faces severe economic and social challenges, such as 

escalating unemployment at a time when over half of the population is under 18 years old. 

These challenges have not only made the country internally unstable, they have also created an 

attractive environment for recruiting militants. As a result, in recent years, U.S policymakers 

have dedicated greater attention and resources to addressing threats emanating from Yemen.

Recognizing both the variety of threats emanating from Yemen, as well as the significant 

increase in U.S. assistance to Yemen, a Senate report directed the Comptroller General to, 

among other things, review this assistance.1

 

1

Senate Report 111-201, which related to the Ike Skelton National Defense Authorization Act of 2011, 

Pub. L. No. 111-383, Jan.7, 2011, directed the Comptroller General to report on several questions 

pertaining to Yemen. Given the country’s political unrest and deteriorating security situation throughout 

2011, we worked with the appropriate congressional committees to agree upon a two-phased reporting 

process. In this first phase, we assessed assistance strategies and plans, as well as amounts and types. 

We agreed to perform additional work at a later date as the security situation allows and in consultation 

with the appropriate congressional committees. 

 This report describes (1) U.S. strategies and 

activities for assistance to Yemen and (2) the amounts and types of assistance that the U.S. 

government has provided to Yemen since fiscal year 2007. This description does not include 

information related to any covert activities that the United States may fund in Yemen. To 

address these objectives, we analyzed budget and financial data from the Department of State 

(State), the U.S. Agency for International Development (USAID), and the Department of 

Defense (DOD), which have provided the vast majority of U.S. assistance to Yemen. In 

addition, we reviewed governmentwide and agency-specific documents related to assistance to 

Yemen and interviewed relevant officials from each agency. Enclosure I contains additional 

information on our scope and methodology.

United States Government Accountability Office

Washington, DC 20548
Page 2 GAO-12-432R U.S. Assistance to Yemen

We conducted this performance audit from August 2011 to February 2012 in accordance with 

generally accepted government auditing standards. Those standards require that we plan and 

perform the audit to obtain sufficient, appropriate evidence to provide a reasonable basis for our 

findings and conclusions based on our audit objectives. We believe that the evidence obtained 

provides a reasonable basis for our findings and conclusions based on our audit objectives.

Summary

According to senior State officials, the overarching U.S. policy goal in Yemen is to create a 

stable and secure state. To achieve that goal, the U.S. assistance strategy has for years

included both a security element focused on counterterrorism activities and a civilian element 

focused on development activities. In 2009, in response to the increasing economic, social, and 

political challenges facing Yemen, the U.S. government undertook a comprehensive review of 

its policy toward Yemen. This review led to a whole-of-government strategy that still includes 

both security and civilian assistance, but that, according to U.S. officials, is more integrated than 

in prior years. The strategy seeks to simultaneously address security needs as well as the 

underlying economic, social, and political grievances that can lead to violent extremism. U.S. 

officials told us that assistance activities under this strategy have had to adjust to the changing 

security situation on the ground. Further, officials told us they have recently begun reviewing 

the strategy itself in light of the political changes under way in Yemen. 

Since fiscal year 2007, U.S. agencies have allocated more than $642 million in security2 and 

civilian assistance to Yemen. Specifically, DOD, State, and USAID have allocated 

approximately $326 million for security assistance and more than $316 million for civilian 

assistance. Allocations reached their peak in fiscal year 2010, after a failed bomb attack on a 

U.S.-bound airline by a Yemeni-trained Nigerian citizen in December 2009. In fiscal year 2011, 

however, allocations declined sharply due primarily to the political turmoil in Yemen and the 

difficulty of implementing training and equipping programs in such an environment, according to 

U.S. officials. 

Background

Yemen is the most impoverished country in the Middle East and North Africa region, faced with 

numerous economic and social challenges. With a mostly mountainous interior, the country has 

a scarcity of natural resources and is facing both severe water and fuel shortages. Oil is 

Yemen's primary export, but oil production is in a steady decline. U.S. officials estimate that at 

least 43 percent of the population lives on less than $2 per day. More than half of the 

population of 23 million is under 18 years of age, and, according to UN estimates, the total 

population is projected to double before the year 2040. At the same time, the UN estimates that 

the unemployment rate for youth is 53 percent, and the overall illiteracy rate in Yemen is over 47 

percent. USAID’s 2010-2012 Yemen Country Strategy reports that the capacity of the Yemeni 

government to provide services is weak and is further undermined by widespread corruption 

and the growing population pressure. Moreover, internal conflicts have created over 400,000 

 

2

State and DOD officials told us that there is no consensus about whether some funding accounts that 

support security cooperation or security sector reform should be labeled “assistance”. For the purposes 

of this report, however, we consider those accounts that funded overt security-related activities in Yemen 

to be security assistance. Specifically, these funding accounts include: Foreign Military Financing, 

International Narcotics Control and Law Enforcement, International Military Education and Training, 

Nonproliferation, Antiterrorism, Demining and Related Programs, and Section 1206 Authority. 
Page 3 GAO-12-432R U.S. Assistance to Yemen

internally displaced persons throughout Yemen in need of not only basic government services 

but also humanitarian assistance.

These economic and social challenges are exacerbated by the political tensions Yemen has 

experienced for years. Since shortly after the unification of North Yemen and South Yemen in 

1990, the government has countered secessionist movements in the south. In addition, the 

government has had long-standing conflicts with various tribes, most notably with the Houthi 

tribe in the north. Beginning in early 2011, mass protests against the 33-year regime of 

President Ali Abdullah Saleh added to the unrest in the country (see fig. 1). Many of these 

protests ended in bloodshed when government troops fired on the protestors or clashed with 

troops that had sided with the protestors. In late November, after repeated vows to step aside, 

Saleh signed an agreement put forth by the Gulf Cooperation Council3 laying out a transfer of 

power to his Vice President and calling for elections within 90 days. Protests have continued, 

however, over the agreement’s immunity provision for Saleh and his subordinates. 

Figure 1: Recent Yemeni Political Events (2011-2012) 

Various U.S. agencies have worked with the government of Yemen to try to address these 

economic, social, and political challenges. In particular, State and USAID have led 

development and humanitarian activities while State and DOD have conducted counterterrorism 

activities. Amidst the political turmoil of 2011, the Yemeni government struggled to address the 

terrorist challenges throughout the country, although it increased its cooperation with the United 

States on intelligence sharing and counterterrorism operations, according to U.S. officials. 

U.S. Assistance Strategy Emphasizes Both Security and Civilian Assistance 

U.S. assistance strategy and activities support the U.S. goal of a stable and secure Yemen. In 

2009, the U.S. government undertook a comprehensive review of its policy toward Yemen. The 

result was an integrated strategy that emphasizes both security and civilian assistance. 

According to State officials, this assistance strategy is twofold as follows: 

 

3

The Cooperation Council for The Arab States of the Gulf, or Gulf Cooperation Council, was established 

in 1981 between the countries of Bahrain, Kuwait, Oman, Qatar, Saudi Arabia, and United Arab Emirates. 

According to the Council’s charter, its objectives include effecting coordination, integration and interconnection between member states in all fields in order to achieve unity between them. The Gulf 

Cooperation Council is a regional common market with a defense planning council as well. 
Page 4 GAO-12-432R U.S. Assistance to Yemen

• Strengthen Yemen’s ability to promote security and minimize threats. DOD security 

assistance activities have been focused on building Yemeni counterterrorism capacity. 

According to DOD officials, DOD’s activities have helped its Yemeni counterparts take 

direct counterterrorism action, increase their border security, and build both airlift and 

maritime capacity. However, they also said that in 2011 DOD suspended the majority of 

its security-related activities due to the deteriorating security situation. For example, 

DOD officials told us they had to stop the large training component of their assistance, 

because it was no longer safe to keep the trainers in Yemen. 

• Mitigate economic crisis and governance deficiencies. USAID has led the 

implementation of civilian assistance activities. Prior to 2010, USAID activities focused 

on sector-based development interventions, such as separate programs for health or 

education, in five remote, impoverished, rural governorates. Given the deteriorating 

security context and the escalating development challenges, USAID determined that a 

new stabilization approach was necessary, transitioning to more integrated activities 

addressing the key grievances and drivers of instability in targeted, disadvantaged 

communities. Under this strategy, for example, the Community Livelihoods Program 

brings programs for health, education, and poverty reduction together under one 

implementation mechanism. In addition, USAID shifted the geographic focus of its 

programs. According to USAID officials, the deteriorating security situation denied 

program implementers access to certain areas, and they could not travel or establish a 

long-term presence in more remote locales. As a result, USAID began to focus 

assistance activities on large urban areas, which were more secure and accessible. 

Officials added that the collapse of government services, decline in economic activity, 

and other drivers of instability were also greatest in these areas, providing USAID the 

greatest potential for maximizing the impact of its interventions. 

Given Yemen’s ongoing political unrest and security situation, U.S. officials told us they are 

monitoring developments as they relate to future assistance activities. State and USAID officials 

said that the overall twofold U.S. assistance strategy continues to guide their planning, but that 

under a directive from the National Security Council, they have also recently begun a new 

interagency strategic development process. They expect this process to last several months 

and will allow agencies to react to the situation on the ground following the recent February 

2012 presidential elections. DOD officials also said that once DOD is able to fully resume 

security assistance activities in Yemen, it will continue to work toward its goal of building 

Yemeni counterterrorism capacity. However, both State and DOD officials expressed some 

concerns about future security assistance activities, including identifying who will be the key 

U.S. partners in the Yemeni security forces. Until 2011, the United States trained and equipped 

specialized security forces focused on counterterrorism that members of the Saleh family led. 

While the implementing mechanism for the Gulf Cooperation Council political transition 

agreement calls for the reorganization of the armed services, it is unclear how or when the 

military will be reorganized and who will lead it. 

U.S. Agencies Have Allocated More Than $642 Million in Security and Civilian Assistance 

to Yemen Since Fiscal Year 2007, Peaking in 2010

Against the backdrop of security threats and worsening economic and humanitarian conditions, 

DOD, State, and USAID have allocated more than $642 million in security and civilian 

assistance to Yemen since fiscal year 2007 (see fig. 2). Security assistance has focused largely 

on counterterrorism and border security activities, including training and the provision of 

transport planes and helicopters, spare parts, and ammunition. Civilian assistance has sought to 
Page 5 GAO-12-432R U.S. Assistance to Yemen

address economic, social, and political inequities largely through development and humanitarian 

activities targeted at vulnerable populations. (See enclosure II for more detailed information on 

U.S. security and civilian assistance since fiscal year 2007.)

Figure 2: Total Allocations of U.S. Assistance to Yemen, Fiscal Years 2007–2011 

As shown in figure 2, allocations of U.S. assistance peaked in fiscal year 2010. U.S. officials 

told us the significant increase in fiscal year 2010 was largely in response to the attempted

bombing of a U.S.-bound airplane on Christmas Day, 2009. In fiscal year 2011, however, 

overall allocations declined significantly. State and DOD officials said this decline was due 

primarily to the political turmoil in Yemen and the difficulty of providing training in an insecure 

environment. While many civilian assistance activities continued operating in 2011, DOD 

officials suspended the majority of security assistance activities. Despite continued political 

unrest and security concerns, agencies plan to provide significant security and civilian 

assistance to Yemen in both fiscal years 2012 and 2013.4

 

Concluding Observations 

Terrorist threats emanating from Yemen have been a concern to U.S. policymakers for more 

than a decade. To help the government of Yemen counteract the threat posed by AQAP as well 

as other crises, the United States has provided assistance in a variety of areas, including 

security assistance to Yemeni military and counterterrorism units. To mitigate the effects of 

economic and humanitarian crises facing Yemen, State and USAID have provided 

 

4

While the 2012 Appropriations Acts have passed Congress and were signed into law by the President, 

the agencies have decided allocations for some, but not all, of the relevant accounts for Yemen. The 

fiscal year 2012 numbers we include in enclosure II remain as estimates. Agency budget requests for 

fiscal year 2013 include increases in both bilateral security and civilian assistance over fiscal year 2011 

actual allocations.
Page 6 GAO-12-432R U.S. Assistance to Yemen

development, humanitarian, and other assistance. While the United States continued to provide 

assistance through 2011, and remains committed to assisting Yemen in 2012, instability in 

Yemen forced U.S. agencies to adjust and, in some cases, reduce, their planned assistance, 

according to U.S. officials. Significant uncertainties, however, persist regarding the outcome of 

the ongoing political transition in Yemen and the identity of future U.S. partners in Yemeni 

security forces. These uncertainties may present challenges to U.S. agencies in developing

appropriate assistance plans and delivering assistance in support of U.S. policy goals.

Agency Comments 

We provided a draft of this report to DOD, State, and USAID for review. None provided formal 

comments, although each one provided technical comments, which we have incorporated 

where appropriate.

- - - - - 

We are sending copies of this report to the appropriate congressional committees, the 

Secretaries of Defense and State, and the Administrator of USAID. The report is available at no 

charge on the GAO website at http://www.gao.gov. 

If you or your staff members have any questions about this report, please contact me at (202) 

512-7331 or johnsoncm@gao.gov. Contact points for our Offices of Congressional Relations 

and Public Affairs may be found on the last page of this report. GAO staff who made key 

contributions to this report are listed in enclosure IV. 

Charles Michael Johnson, Jr.

Director, International Affairs & Trade

Enclosures (4) 
Page 7 GAO-12-432R U.S. Assistance to Yemen

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 Howard P. 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
Enclosure I

Page 8 GAO-12-432R U.S. Assistance to Yemen

Scope and Methodology

To describe U.S. strategies and activities for assistance to Yemen, we reviewed relevant 

documents from the Department of State (State) and the U.S. Agency for International 

Development (USAID) including Mission Strategic and Resource Plans and Operational Plans 

for fiscal years 2007–2012. We also interviewed relevant officials from State, USAID, and the 

Department of Defense (DOD) in Washington, D.C. 

To describe the amounts and types of assistance that the U.S. government has provided to

Yemen since fiscal year 2007, we analyzed budget and financial data, including Congressional 

Budget Justifications, from State, DOD, and the USAID Mission in Sanaa. In particular, State 

provided data on the status of allocations, obligations, unobligated balances, and disbursements 

as of September 30, 2011, for all of the funding accounts that support civilian assistance in 

Yemen, as well as those security assistance accounts that State administers (Foreign Military 

Financing; International Narcotics Control and Law Enforcement; International Military 

Education and Training; and Nonproliferation, Antiterrorism, Demining and Related Programs). 

State collected the data directly from each account’s manager if it was a State-implemented 

account and from the USAID Mission if it was a USAID-implemented account. DOD collected 

and provided data on the security-related accounts that DOD implements. All data are on overt 

activities and are nominal numbers that have not been adjusted for inflation. Recognizing that 

different agencies may use slightly different accounting terms, we provided each agency with 

the definitions from GAO’s A Glossary of Terms Used in the Federal Budget Process (GAO-05-

734SP ) and requested that each agency provide the relevant data according to those 

definitions. To assess the reliability of the data provided, we requested and reviewed 

information from officials from each agency regarding the agency’s underlying financial data 

system(s) and the checks, controls, and reviews used to ensure the accuracy and reliability of 

the data provided. For purposes of this report, we determined that the data provided were 

sufficiently reliable.

For the detailed account information we include in this report’s enclosures, we chose a selection 

of accounts that included consideration of these factors: (1) the overall level of assistance 

provided to Yemen since fiscal year 2007 (2) significant shifts or changes in funding levels 

between fiscal years, and (3) category or type of assistance (i.e., security, civilian, bilateral, and 

humanitarian, etc.).

We conducted this performance audit from August 2011 to February 2012 in accordance with 

generally accepted government auditing standards. Those standards require that we plan and 

perform the audit to obtain sufficient, appropriate evidence to provide a reasonable basis for our 

findings and conclusions based on our audit objectives. We believe that the evidence obtained 

provides a reasonable basis for our findings and conclusions based on our audit objectives.
 

Page 9 GAO-12-432R U.S. Assistance to Yemen

Overview: U.S. Security Assistance to Yemen

U.S. Agencies Provided Over $326 million from Fiscal 

Years 2007 through 2011

From fiscal year 2007 through fiscal year 2011, total allocations of security assistance to 

Yemen were over $326 million (see fig. 3). In 2010, security assistance to Yemen more 

than doubled as part of an effort to combat AQAP and, according to DOD officials, was 

primarily in response to the failed bomb attack on a U.S.-bound airplane by a Yemenitrained terrorist. The main goal of security assistance has been to build the Yemeni 

government’s CT capacity. Section 1206 Authority provided the majority of this 

assistance through fiscal year 2010, but provided no funds in 2011 due to the 

deteriorating security situation, according to DOD officials. 

Figure 3: Allocations of U.S. Security Assistance to Yemen, Fiscal Years 

2007-2012 

a

Fiscal year 2012 estimates for Section 1206 are not currently available.

According to U.S. officials, security assistance to Yemen includes programs funded 

through the following appropriation accounts managed either jointly or separately by 

DOD and State.2

Contingency Security Assistance

(Dollar figures are total amounts allocated for fiscal years 2007-2011): 

• Section 1206 Authority ($249 million) 

Bilateral Security Assistance

• Foreign Military Financing (FMF) ($48.9 million)

• Nonproliferation, Antiterrorism, De-mining, and Related Programs (NADR) ($20.5 

million) 

• International Military Education and Training (IMET) ($5.2 million) 

• International Narcotics Control and Law Enforcement (INCLE) ($3.2 million)

 

1

For the purposes of this report, we use the term “contingency” to refer to accounts that are 

managed globally and do not typically request funds on a bilateral, country-specific basis 2

State and DOD officials told us that there is no consensus about whether some funding accounts 

that support security cooperation or security sector reform should be labeled “assistance”. For the 

purposes of this report, however, we consider these accounts security assistance. These accounts 

do not include any covert, classified assistance that the United States may have provided.

Security Assistance Background

DOD and State provided security 

assistance to Yemen primarily in the form 

of counterterrorism and border security 

training and equipment. The major sources 

of funding for security assistance come

from Section 1206 Authority and Foreign 

Military Financing, with a large increase 

estimated for International Narcotics 

Control and Law Enforcement funds in 

fiscal year 2012. DOD and State estimate 

over $36 million in bilateral security 

assistance for fiscal year 2012 but have not 

yet determined the level of assistance from 

Section 1206 Authority. 

Contingency Security Assistance1

Funding from Section 1206 Authority 

makes up the contingency security 

assistance going to Yemen and is intended 

to address U.S. military priorities and 

urgent and emergent counterterrorism and 

stabilization needs. From 2006—when the 

1206 Authority was established—through 

2010, Yemen was the largest overall 

recipient of 1206 funds globally. 

Bilateral Security Assistance

This assistance is made up of a number of 

accounts and programs with various goals. 

However, State and DOD officials told us 

that the central focus of bilateral security

assistance in Yemen has been to enable 

and assist the counterterrorism strategy 

currently in place. 

The following slides will include more 

detailed information on Section 1206

Authority, Foreign Military Financing, and 

International Narcotics Control and Law 

Enforcement. Detailed tables for remaining 

accounts can be found in enclosure III. 

Enclosure II
Page 10 GAO-12-432R U.S. Assistance to Yemen

Enclosure II

Status of Funds: Section 1206 Authority

• From fiscal year 2007 through fiscal year 2010, State and DOD 

allocated a total of $249 million in Section 1206 assistance for 

Yemen (see fig. 4 and table 1).5 DOD reported that all allotted funds had been obligated and $244 million had been disbursed. Funds 

remaining for disbursement from the unliquidated obligation total $4 

million. 

• According to DOD officials, 1206 funds were not allocated to Yemen 

in fiscal year 2008 because other countries such as Pakistan took 

priority. Additionally, no allocation was made in fiscal year 2011 

due to the political unrest that began early that year. Further, DOD 

put the delivery of a CN-235 aircraft and some other equipment on hold until U.S. officials determine that delivery is appropriate. 

• State and DOD have not yet determined any 1206 allocation to 

Yemen for fiscal year 2012; funds for this account are requested globally, rather than on a country-specific basis. DOD officials said that a decision has not yet been reached about whether funds will

be allotted to Yemen, but they are developing contingency plans for 

that possibility. 

Figure 4: 1206 Assistance to Yemen, Fiscal Years 2007-2012 

a

State and DOD have not yet determined any allocation to Yemen for FY 2012. 1206 funds are 

requested globally, rather than on a country-specific basis. 

 

3

Expired funds may also be used for certain contract modifications.

4

National Defense Authorization Act for Fiscal Year 2006, Pub. L. No. 109-163, Jan. 6, 2006. 5

Figures here may differ slightly from table below due to rounding errors. 

Security Assistance

Section 1206 Background

State and DOD jointly administer 

Section 1206 assistance. Funded 

from the DOD operation and 

maintenance account, Section 1206 

funds remain available for 1 year for 

obligation. Once the period of 

availability for new obligations 

expires, the funds are available for 

an additional 5 years to liquidate the 

obligations.3 

The National Defense Authorization 

Act for fiscal year 2006, as 

amended, established the authority 

for Section 1206 programs to train 

and equip foreign military and 

nonmilitary maritime forces, such as 

coast guards, to conduct 

counterterrorist operations or to 

support military and stability 

operations in which the U.S. armed 

forces are a participant.4 

Beginning in fiscal year 2009, 

Section 1206 funding became a 

significant source of U.S. security 

assistance to Yemen. The majority 

of Section 1206 assistance, over 60 

percent, was allocated in fiscal year 

2010. These funds were used to 

enhance the counterterrorism (CT) 

capability of Yemeni Special 

Operations Forces and to provide 

small airplanes and helicopters and 

other aircraft support to the Yemeni 

Air Force to enable it to support 

Yemeni CT units.
Page 11 GAO-12-432R U.S. Assistance to Yemen

Table 1: 1206 Programs by Fiscal Year of Allocation from 2007 through 2010, as of 9/30/11

(Dollars in millions)

DESCRIPTION Value of defense 

articles and training 

Fiscal year 2007

Counterterrorism Units and Mobile Training Teams: This program was intended to 

enhance Yemen’s border security capability. It included equipment such as cargo 

transport vehicles, infantry light armored vehicles, light tactical wheeled vehicles, spare 

parts, crisis action center equipment, and transportation. $26

Fiscal year 2009

Aerial Surveillance Counterterrorism initiative: This program was designed to build 

the capacity of the Yemini Air Force to conduct CT operations by providing aerial 

surveillance capability for internal stability and combating terrorism within and at its 

borders. It included helicopter spare parts and surveillance cameras.

$5.9

Counterterrorism Initiative for Increased Border Security: This program was 

designed to provide the Yemeni Border Security Force with the capability to deter, 

detect, and detain terrorists along the Yemen, Saudi Arabia, and Oman borders. It

included trucks, radio systems and operations/maintenance training. $25.4

Coast Guard Patrol Maritime Security Counterterrorism Initiative: This program is 

intended to enhance Yemeni Coast Guard capability to provide internal stability and CT 

within its territorial waters. It is intended to help build the capacity of Yemen’s maritime 

security forces to conduct CT operations by providing equipment and training to the 

Yemeni Coast Guard to improve its ability to identify, detain, and apprehend terrorists, 

and to respond to terrorist incidents within its area of responsibility. Some training 

and/or deliveries are still pending for this program. $30.1

Explosive Ordnance Disposal Counterterrorism Initiative: This program is intended 

to assist Yemen's Ministry of Defense in improving its improvised explosive device 

ordnance mitigation and response to counter resurgence in terrorist activity. Some 

training and/or deliveries are still pending for this program. $5.8

Fiscal year 2010

Special Operations Force Counterterrorism Enhancement Package: This program 

is intended to improve tactical effectiveness of Yemeni Special Operations Force 

(YSOF). The program was intended to build the capacity of Yemen’s national military 

forces to conduct CT operations by providing equipment and training to enhance the 

YSOF’s mobility, situational awareness, survivability, communications, and tactical 

proficiency in support of YSOF’s CT mission. It includes vehicles, weapons, 

ammunition, and night vision goggles. Some training and/or deliveries are still pending 

for this program. $34.5

Rotary-Wing Medium Lift: This program is intended to help build the capacity of 

Yemen’s national military forces to conduct CT operations by providing equipment and 

training to increase Yemen’s rotary-wing medium-lift capability. This program is 

intended to allow the Yemen Air Force to transport small units to participate in day- or 

night-time operations at high altitude. It includes Huey II helicopters (4), spare parts, 

maintenance and training. Some training and/or deliveries are still pending for this 

program. $82.8

Fixed-Wing Tactical Heavy Lift: This program is intended to provide equipment and 

training to improve the operational reach and reaction time of CT forces. Includes a 

CASS CN-235 aircraft for 51 troops, parts, tools, and maintenance. Some training 

and/or deliveries are still pending for this program. $38

Source: GAO analysis of DOD data.
Page 12 GAO-12-432R U.S. Assistance to Yemen

Enclosure II

• From fiscal year 2007 through fiscal year 2011, State allocated a 

total of $49 million from this account for Yemen (see fig. 5).9 State 

reported that all allocated funds had been obligated and $21 million 

had been disbursed. Funds remaining for disbursement from the 

unliquidated obligation balance total $28 million.

• According to DOD officials, the security situation on the ground in 

2011 led to discussions about what would be appropriate to provide 

to Yemen. DOD put a hold on some deliveries but resumed 

delivering nonlethal items in September 2011. 

• The estimated fiscal year 2012 funding would keep FMF funding to 

Yemen steady at $20 million. Actual funding may vary from the 

amount estimated. 

Figure 5: FMF Assistance to Yemen, Fiscal Years 2007-2012 

Notes : FMF funds are obligated at the same time they are apportioned. 

a

 

6 According to agency officials, pursuant to authority generally provided in the annual Department of 

State, Foreign Operations and Related Programs Appropriations Act, certain funds that have been 

deobligated remain available for obligation for an additional four years from the date on which the 

availability of such funds would otherwise expire if the funds are initially obligated before they would 

have expired. 

Figures in table may not sum correctly due to rounding error. 

7 Annual appropriations for FMF generally have contained language that states that FMF funds shall 

be obligated upon apportionment. For the most recent appropriations containing this language see 

the Consolidated Appropriations Act, 2012, Pub. L. No. 112-74, Dec. 23, 2011. 8 Expired funds may also be used for certain contract modifications.

9 Figures here may differ slightly from table below due to rounding errors. 

Security Assistance

FMF Background

State administers FMF funding, 

with significant input from the 

embassies, DOD, and the regional 

military commands. DOD’s Defense 

Security Cooperation Agency 

executes the program. This 

funding is available for obligation 

for 1 year6 and is considered 

obligated upon apportionment 

based on annual appropriations bill 

language.

7

 Once the period of 

availability for new obligations 

expires, the funds are available for 

an additional 5 years to liquidate 

the obligations.

8

 The funds remain 

entirely within the U.S. government 

until the point at which payments 

are made to defense companies for 

goods and services rendered. 

FMF provides grants and loans to 

foreign governments and 

international organizations for the 

acquisition of U.S. defense 

equipment, services, and training. 

In Yemen, FMF funds help 

Yemen’s Air Force to sustain its 

two C-130H aircraft, as well as a 

handful of its serviceable F-5 

fighter aircraft. The United States 

also has provided Yemen’s Coast 

Guard with fast response boats 

(Archangel and Defender Class) 

using FMF grants. FMF funds also 

are used to supplement training for 

Yemen’s Ministry of Interior Forces, 

specifically from the U.S.-funded 

Counter Terrorism Unit inside the 

Central Security Force. 

Status of Funds: Foreign Military Financing 
Page 13 GAO-12-432R U.S. Assistance to Yemen

Enclosure II

Status of Funds: International Narcotics 

Control and Law Enforcement

• From fiscal year 2007 through fiscal year 2011, State allocated a 

total of $3.3 million from this account for Yemen (see fig. 6). Of that 

amount, State reported that $1.5 million had been obligated, and $.4 

million had been disbursed. Funds remaining for disbursement from 

the unliquidated obligation balance total $1 million. From the fiscal 

year 2011 funding, $1.8 million remains to be obligated. 

• As of September 2011, State had not yet obligated or expended 

fiscal year 2011 INCLE funds due to political instability and the 

Embassy’s ordered departure status from March-September 2011. 

 

• The estimated fiscal year 2012 assistance would significantly 

increase INCLE funding to Yemen for programs that are intended to

support efforts towards the development of a more responsive, 

professional, and accountable criminal justice system. Actual funding 

may vary from the amount estimated. 

Figure 6: INCLE Assistance to Yemen, Fiscal Years 2007-2012

a

Figures in table may not sum correctly due to rounding error. 

 

10 Expired funds may also be used for certain contract modifications.

Security Assistance

INCLE Background

State administers INCLE funding

and uses it to assist the 

Government of Yemen in 

developing its law enforcement and 

judicial capacity. These funds are 

generally available for obligation for 

2 years. Once the period of 

availability for new obligations 

expires, the funds are available for 

an additional 5 years to liquidate 

the obligations.10 

INCLE funding levels from fiscal 

years 2007 to 2011 were relatively 

low compared with the funding 

level requested for fiscal year 2012. 

State expects the 2012 funds to 

provide technical assistance, 

training, and equipment to Yemen’s 

civilian law enforcement and 

judicial institutions. Specifically, 

State intends the funds to support 

efforts to enhance the Yemeni 

government’s delivery of basic 

policing and justice services that 

respond to citizens’ crime and 

public safety concerns, particularly 

in underserved regions, and that 

combat the influence of AQAP. 

 
Page 14 GAO-12-432R U.S. Assistance to Yemen

Enclosure II

From fiscal year 2007 to fiscal year 2011, total allocations of civilian assistance to Yemen 

were over $316 million (see fig. 7). Civilian assistance funds a variety of programs and 

activities meant to aid vulnerable populations and address the underlying drivers of 

instability in Yemen. Reflecting the increased focus on a whole-of-government approach, 

a significant increase in these funds appears in fiscal year 2010. In fiscal year 2011, 

funding dipped slightly but remained relatively high compared with years prior to 2010. 

Estimated figures for fiscal year 2012 are not currently available for humanitarian and 

contingency accounts but do include figures for accounts under development assistance. 

However, USAID and State officials noted that it’s likely that funding will be provided 

through those accounts in fiscal year 2012, as there will remain a need to fund activities 

such as aiding internally displaced persons, increasing institutional capacities, and 

assisting in any electoral technical assistance during any political transition. 

Figure 7: Allocations of U.S. Civilian Assistance to Yemen, Fiscal Years 2007-2012 

a

Humanitarian and other contingency accounts do not request funds on a country-specific basis, so no 

2012 estimates are available at this time. 

According to U.S. officials, civilian assistance to Yemen includes programs funded 

through the following appropriation accounts (Dollar figures are total amounts allocated 

for fiscal years 2007-2011): 

Development Assistance

• Economic Support Fund (ESF) ($61.8 million)

• Development Assistance (DA) ($52.1 million)

• Global Health and Child Survival- USAID (GHCS) ($22.9 million)

Humanitarian Contingency Assistance11

• Migration and Refugee Assistance (MRA) ($50.6 million)

 

• Food for Peace (FFP) ($37.3 million)

• International Disaster Assistance (IDA) ($31.7 million)

• Emergency Refugee and Migration Assistance Fund (ERMA) ($11.4 million)

Other Contingency Assistance 

• Section 1207 Authority ($18.9 million)

• Complex Crises Fund (CCF) ($12.8 million)

• Transition Initiatives (TI) ($9.3 million)

• Middle East Partnership Initiative (ESF) ($3.5 million)

• Conflict Management and Mitigation (USAID). (Via ESF) ($2.6 million)

• USAID/DCHA/DG (Via DF) ($ 1.2 million)

• Conflict Management and Mitigation (USAID). (Via DA) ($ 0.7 million)

 

11DOD provides some humanitarian assistance through its Overseas Humanitarian Disaster 

Assistance Civil Aid office which is not included here. 

Civilian Assistance 

Background

The U.S. government, through USAID 

and State, provides civilian assistance to 

Yemen, including: 

Development Assistance 

These bilateral accounts primarily fund 

programs designed by USAID to meet 

the goals of its country strategy. Most 

recently, funds have been drawn upon 

for various activities under two 

overarching programs, the Community 

Livelihoods Project (CLP) and the 

Responsive Governance Project (RGP). 

These are the main implementing 

mechanisms for USAID’s stabilization 

strategy; the CLP attempts to improve 

standards of living, reduce poverty and 

unemployment, and improve access to 

public services, while the RGP aims to 

strengthen government institutions and 

improve the delivery of public services 

while encouraging more citizen 

participation in the government 

processes. 

 

Humanitarian Contingency Assistance 

State and USAID provide humanitarian 

assistance to populations including 

internally displaced persons (IDP), 

refugees, and other individuals affected 

by the conflict in the north and fighting 

between Yemeni forces and militant 

groups in the south. Current U.S.

funding supports shelter, food aid, 

emergency relief supplies, safe water 

supplies, sanitation assistance, camp 

coordination and management, 

protection, health and nutrition, and 

medical supplies.

Other Contingency Assistance 

Funds under this category have various 

specific purposes; however, they are 

generally used to provide aid during 

times of crisis, instability, or other similar 

circumstances. 

The following slides will include more 

detailed information on some of the 

accounts receiving the largest levels of 

funding, including ESF, DA, GHCS, 

MRA, and FFP. Detailed figures for 

remaining accounts can be found in 

enclosure III. 

Overview: U.S. Civilian Assistance to Yemen

U.S. Agencies Provided Over $316 million from Fiscal 

Years 2007 through 2011
Page 15 GAO-12-432R U.S. Assistance to Yemen

Enclosure II

• From fiscal year 2007 through fiscal year 2011, USAID allocated a 

total of $52 million from this account for Yemen (see fig. 8).13 Of that 

amount, USAID reported that all allocated funds had been obligated

and $22 million had been disbursed. Funds remaining for 

disbursement from the unliquidated obligations total $30 million. 

• Officials noted that problems with operational security, 

implementation capacity, and ongoing political instability in Yemen in 

2011 created a difficult environment for providing assistance which 

contributed to delays in the implementation and operation of some 

programs. 

• According to State and USAID officials, no funds were requested 

from DA in fiscal years 2011 or 2012 because funds drawn from ESF 

would allow for more programming flexibility and be more appropriate 

for intended uses. 

Figure 8: DA Assistance to Yemen, Fiscal Years 2007-2012 

 

12 Expired funds may also be used for certain contract modifications. 13 Figures here may differ slightly from table below due to rounding errors. 

Civilian Assistance

DA Background

USAID administers DA-funded 

programs in Yemen. These funds 

are available for obligation for 2 

years. Once the period of 

availability for new obligations 

expires, the funds are available 

for an additional 5 years to 

liquidate the obligations.

12

DA funded programs support 

U.S. engagement with developing 

countries on critical global issues 

such as efforts to improve food 

security and to address the 

causes and impacts of climate 

change. For example, in Yemen,

USAID sponsored two women’s 

political platform development 

workshops promoting female 

political participation in public 

policy that were attended by 75 

women activists and leaders 

representing diverse political 

parties and affiliations.

Status of Funds: Development Assistance
Page 16 GAO-12-432R U.S. Assistance to Yemen

Enclosure II

Status of Funds: Economic Support Fund 

• From fiscal year 2007 through fiscal year 2011, USAID allocated a 

total of $62 million from this account for Yemen (see fig. 9).15 Of that 

amount, USAID reported that $35 million had been obligated and 

$29 million had been disbursed. Funds remaining for disbursement 

from the unliquidated obligations total $6.3 million. From the fiscal 

year 2011 funding, $27 million remains to be obligated. 

• Officials noted that problems with operational security, 

implementation capacity, and ongoing political instability in Yemen 

in 2011 created a contentious environment for providing assistance 

which contributed to delays in the implementation and operation of 

some programs. 

• The estimated fiscal year 2012 funding for ESF includes ongoing 

support for programs aligned with USAID’s country strategy in 

Yemen. Actual funding may vary from the amount estimated. 

Figure 9: ESF Assistance to Yemen, Fiscal Years 2007-2012 

 

14Expired funds may also be used for certain contract modifications.

15Figures here may differ slightly from table below due to rounding errors. 

Civilian Assistance

ESF Background

USAID and State offices administer 

ESF-funded programs in Yemen. 

These funds are available for 

obligation for 2 years. Once the 

period of availability for new 

obligations expires, the funds are 

available for an additional 5 years to 

liquidate the obligations14

The ESF advances U.S. interests by 

helping countries meet short- and 

long-term political, economic, and 

security needs. USAID and State 

address these needs through a 

range of activities, from countering 

terrorism and extremist ideology to 

increasing the role of the private 

sector in the economy; assisting in 

the development of effective, 

accessible, independent legal 

systems; supporting transparent and 

accountable governance; and the 

empowerment of citizens. For 

example, in Yemen funds have gone 

to programs such as a 4-year, $17

million agreement to provide support 

in education through the Basic 

Education Support and Training 

Project. 
Page 17 GAO-12-432R U.S. Assistance to Yemen

Enclosure II

Status of Funds: Global Health and Child 

Survival-USAID 

• From fiscal year 2007 through fiscal year 2011, USAID allocated a 

total of $23 million from this account for Yemen (see fig. 10).17 Of 

that amount, USAID reported that $14 million had been obligated and $6 million had been disbursed. Funds remaining for 

disbursement from the unliquidated obligations total $8 million. From the fiscal year 2011 funding, $9 million remains to be 

obligated. 

• Officials noted that problems with operational security, 

implementation capacity, and ongoing political instability in Yemen

in 2011 created a difficult environment for providing assistance 

which contributed to delays in the implementation and operation of 

some programs. 

• The estimated fiscal year 2012 funding for GHCS includes ongoing 

support for programs aligned with USAID’s country strategy in 

Yemen. Actual funding may vary from the amount estimated. 

Figure 10: GHCS Assistance to Yemen, Fiscal Years 2007-2012 

 

16Expired funds may also be used for certain contract modifications.

17Figures here may differ slightly from table below due to rounding errors. 

Civilian Assistance

GHCS Background

USAID administers GHCS-funded 

programs in Yemen. These funds

are available for obligation for 2 

years. Once the period of 

availability for new obligations 

expires, the funds are available for 

an additional 5 years to liquidate the 

obligations16

The GHCS account funds healthrelated foreign assistance. 

Investments in global health 

strengthen fragile or failing states, 

promote social and economic 

progress, and support the rise of 

capable partners that can help to 

solve regional and global problems. 

In 2011, the Community Livelihoods 

Project used GHCS funds to provide

11 Yemen Ministry of Health Mobile 

Medical Teams with essential 

equipment, medical supplies, and 

materials. The teams provide 

needed primary health care services 

to over 4,000 patients per month. 
Page 18 GAO-12-432R U.S. Assistance to Yemen

Enclosure II

Status of Funds: Migration and Refugee 

Assistance 

• From fiscal year 2007 through fiscal year 2011, State allocated a total of 

$51 million from this account for Yemen (see fig. 11).18 State reported that 

all allocated funds had been obligated and that $48 million had been

disbursed. Funds remaining for disbursement from the unliquidated 

obligations total $2 million. 

• According to State officials, some factors that might contribute to higher 

levels of disbursement from some humanitarian accounts such as MRA, 

include the fact these programs are focused on humanitarian interventions, 

which require a quick response by partners, have a specific set of 

interventions with standard approaches, are focused on IDPs and conflict 

victims, and have a more experienced/established set of implementers and 

staff.

• Although the fiscal year 2012 budget request for MRA does not identify a 

country-specific amount for Yemen, it does indicate that it includes support 

for Yemeni IDPs and conflict victims affected by the civil war in northern 

Yemen. This assistance will continue to focus primarily on providing 

shelter, food and water, medical care, protection services, and other 

emergency assistance. 

Figure 11: MRA Assistance to Yemen, Fiscal Years 2007-2012 

Note: MRA funds are not appropriated or allotted at the country level, and funding is determined 

internally each year. There are therefore no unobligated balances for Yemen.

a

Figures in table may not sum correctly due to rounding error. 

b

 

18Figures here may differ slightly from table below due to rounding errors. 

According to agency officials, MRA funds are requested globally, rather than on a country-specific 

basis. State has not yet determined any MRA allocation to Yemen for fiscal year 2012.

Civilian Assistance

MRA Background

State administers MRA funding.

These funds are generally

considered “no year” money and 

remain available until expended. 

The MRA supports programs of 

international humanitarian 

organizations such as the UN High 

Commissioner for Refugees 

(UNHCR), as well as 

nongovernmental organization 

partners to address pressing

humanitarian needs. These funds 

support programs that meet basic 

needs to sustain life and provide 

protection and assistance to the 

most vulnerable, particularly women 

and children and the elderly.

In Yemen, U.S. humanitarian 

partners provide protection services, 

basic assistance, and education to 

IDPs, conflict victims, and refugees 

and migrants from the Horn of Africa 

who have fled to Yemen. In 2011, 

UNHCR reported assisting over 

460,000 IDPs in Yemen, and does 

not expect a large number of returns 

in 2012 due to ongoing unrest and 

security concerns, as well as a lack 

of infrastructure or services in IDPs’ 

areas of origin. 
Page 19 GAO-12-432R U.S. Assistance to Yemen

Enclosure II

Status of Funds: Food for Peace 

• From fiscal year 2007 to fiscal year 2011, USAID allocated a total of 

$37 million from this account for Yemen (see fig.12). USAID 

reported that entire amount as obligated and disbursed. This rate of 

disbursement is higher than that of other accounts reviewed over 

this period. A USAID official noted that a large amount of FFP 

assistance is disbursed by simply purchasing and transporting food, 

which increases the rate of disbursement funds. 

• Food for Peace activities assisted IDPs and conflict-affected 

Yemenis in fiscal year 2011 by providing 17,430 metric tons of food 

assistance to address continuing food needs of those most 

impacted by the conflict in the North. 

• USAID does not allot FFP funds at the country level, and funding is 

determined internally each year. Therefore, no fiscal year 2012 

estimates for Yemen are currently available. 

Figure 12: FFP Assistance to Yemen, Fiscal Years 2007-2012 

a

USAID has not yet determined any allocation to Yemen for FY 2012. FFP funds are requested 

globally, rather than on a country-specific basis. 

Civilian Assistance

FFP Background

USAID administers FFP funding. 

The funds are considered “no year” 

money and remain available until 

expended. 

Title II of the Food for Peace Act 

authorizes the provision of direct 

donation of U.S. agricultural 

commodities for emergency relief 

and development around the world 

and funds nonemergency,

development-oriented resources to 

help address the underlying causes 

of food insecurity.

According to USAID, FFP and its 

implementing partners support a 

humanitarian response program for 

meeting existing needs in the north 

resulting from the protracted conflict 

between Yemini forces and alHouthi opposition. This conflict has 

displaced some hundreds of 

thousands of people and affected at 

least a million people. IDPs have 

had limited access to food, shelter, 

education, and health care.
Enclosure III

Page 20 GAO-12-432R U.S. Assistance to Yemen

Additional U.S. Assistance to Yemen, By Year of Appropriation

Bilateral Security Assistance (IMET, NADR)

Security Assistance

International Military Education and Training (IMET) 

$ in thousands FY 07 FY 08 FY 09 FY 10 FY 11 

Allocated 1,006 945 1,000 1,153 1,100

Unobligated balance 0 0 0 0 0 

Unliquidated obligations 288 336 396 250 899

Disbursed 718 609 604 903 201

Note: According to State officials, IMET expenditures are not finalized until all course costs are paid, which may be years after 

the fiscal year of obligation. 

Nonproliferation, Antiterrorism, De-mining, and Related Programs (NADR) 

There are several programs below funded through the Department of State’s NADR appropriations account. For 

the purposes of our report they are listed individually here. 

Antiterrorism Assistance - NADR 

$ in thousands FY 07 FY 08 FY 09 FY 10 FY 11

Allocated 1,197 744 790 2,000 2,500

Unobligated balance 0 5 26 52 2,500

Unliquidated obligations 421 94 336 126 0 

Reprogrammed 0 0 0 1,550 0 

Disbursed 776 645 428 272 0 

Note: According to State officials, due to internal political unrest in Yemen, it was not viable for ATA to continue conducting 

training there in 2011. Accordingly, $1,550,000 of FY 10 NADR-ATA bilateral funding was reprogrammed. The provision of 

training and equipment over the last several years in Yemen has become increasingly difficult to implement due to Yemen’s 

complicated security environment. Consequently, $5,000 of FY 08 NADR/ATA Yemen funding, $26,000 of FY 09 NADR/ATA 

Yemen funding, and $52,000 of FY 10 NADR/ATA Yemen funding was not obligated and has expired.

Counterterrorism Financing - NADR 

$ in thousands FY 07 FY 08 FY 09 FY 10 FY 11

Allocated 300 298 100 375 0 

Unobligated balance 0 0 0 0 0 

Unliquidated obligations 0 0 0 0 0 

Disbursed 300 298 100 375 0 

Export Control and Related Border Security Assistance - NADR 

$ in thousands FY 07 FY 08 FY 09 FY 10 FY 11

Allocated 350 500 410 820 1,000

Unobligated balance 0 0 0 0 0 

Unliquidated obligations 0 0 99 220 1,000

Disbursed 350 500 311 600 0 

Conventional Weapons Destruction - NADR 

$ in thousands FY 07 FY 08 FY 09 FY 10 FY 11

Allocated 0 0 0 0 1,000

Unobligated balance 0 0 0 0 0 

Unliquidated obligations 0 0 0 0 500

Disbursed 0 0 0 0 500
Enclosure III

Page 21 GAO-12-432R U.S. Assistance to Yemen

Humanitarian Demining Program - NADR 

$ in thousands FY 07 FY 08 FY 09 FY 10 FY 11

Allocated 375 0 400 1,000 0 

Unobligated balance 0 0 0 0 0 

Unliquidated obligations 0 0 0 0 0 

Disbursed 375 0 400 1,000 0 

Small Arms Light Weapons Destruction - NADR 

$ in thousands FY 07 FY 08 FY 09 FY 10 FY 11

Allocated 525 0 0 0 0 

Unobligated balance 0 0 0 0 0 

Unliquidated obligations 0 0 0 0 0 

Disbursed 525 0 0 0 0 

Note: Beginning in FY 2011, funding for the Humanitarian Demining and Small Arms/Light Weapons Programs 

are consolidated under Conventional Weapons Destruction.

Terrorist Interdiction Program - NADR 

$ in thousands FY 07 FY 08 FY 09 FY 10 FY 11

Allocated 257 992 425 600 0 

Unobligated balance 0 0 0 0 0 

Unliquidated obligations 0 0 0 0 0 

Disbursed 257 992 425 600 0 

Global Threat Reduction - NADR 

$ in thousands FY 07 FY 08 FY 09 FY 10 FY 11

Allocated 0 0 100 1,230 2,257

Unobligated balance 0 0 0 0 0 

Unliquidated obligations 0 0 0 0 1,801

Disbursed 0 0 100 1,230 456

Humanitarian Contingency Assistance (IDA, ERMA) 

Civilian Assistance

International Disaster Assistance (IDA)

$ in thousands FY 07 FY 08 FY 09 FY 10 FY 11

Allocated 0 0 599 10,928 20,212

Unobligated balance 0 0 0 0 265

Unliquidated obligations 0 0 50 1,507 18,466

Disbursed 0 0 549 9,421 1,481

According to State officials, one of the IDA programs implementing partners experienced setbacks in starting their 

project in Yemen in 2011 and as a result they modified their technical approach to accommodate the shortened 

food assistance duration. The difference of $265,445 was the amount that they requested their budget be reduced 

by for fiscal year 2011 in order to carry out the modified program in the remaining life of the project.
Enclosure III

Page 22 GAO-12-432R U.S. Assistance to Yemen

Emergency Response and Migration Assistance (ERMA)

$ in thousands FY 07 FY 08 FY 09 FY 10 FY 11

Obligated 650 2,950 0 7,800 0 

Unobligated balance 0 0 0 0 0 

Unliquidated obligations 0 0 0 0 0 

Disbursed 650 2,950 0 7,800 0 

According to State officials, Emergency Response and Migration Assistance is not appropriated or allotted at the country level, 

and funding is determined internally each year. There are therefore no unobligated balances in those accounts for Yemen.

Other Contingency Assistance (CCF, 1207, TI, MEPI, USAID/CMM, 

USAID/DCHA/DG)

Complex Crises Fund (CCF)

$ in thousands FY 07 FY 08 FY 09 FY 10 FY 11

Allocated 0 0 0 12,807 0 

Unobligated balance 0 0 0 0 0 

Unliquidated obligations 0 0 0 6,995 0 

Disbursed 0 0 0 5,812 0 

Section 1207 Authority (1207)

$ in thousands FY 07 FY 08 FY 09 FY 10 FY 11

Allocated 8,845 0 0 10,034 0 

Unobligated balance 0 0 0 0 0 

Unliquidated obligations 5,052 0 0 7,769 0 

Disbursed 3,793 0 0 2,265 0 

Note: According to State officials, funding from the original FY 07 allocation was obligated and disbursed in FY 08, FY 09, FY 10, 

and FY 11.Due to the late appropriation in FY 10, the 1207 program did not obligate any funds from the FY 10 allocation during 

that fiscal year. All funding was carried over to FY 11, at which point USAID/OTI received the funds and began the obligation 

process.

Transition Initiatives (TI)

$ in thousands FY 07 FY 08 FY 09 FY 10 FY 11

Allocated 0 0 0 5,492 3,850

Unobligated balance 0 0 0 0 0 

Unliquidated obligations 0 0 0 174 3,395

Disbursed 0 0 0 5,318 455

MEPI: Bilateral Funding 

$ in thousands FY 07 FY 08 FY 09 FY 10 FY 11

Obligated 1,055 167 1,958 332 To be 

determined

Unobligated balance 0 0 0 0 0 

Note: According to State officials, these numbers only reflect MEPI bilateral projects. MEPI oversees many projects that are 

multi-country or regional in nature, making it very difficult to disaggregate participant costs accurately which are therefore not 

captured here. State's ability to obligate funds in Yemen has been hampered by the ongoing security situation. As such, they 

have reported that it is impossible to predict at this time how much FY 11 funding MEPI will obligate in Yemen.
Enclosure III

Page 23 GAO-12-432R U.S. Assistance to Yemen

Conflict Management and Mitigation

(USAID/CMM) (via ESF) 

$ in thousands FY 07 FY 08 FY 09 FY 10 FY 11

Allocated/Allotted 0 200 1,200 1,200 0 

Unobligated balance 0 0 0 0 0 

Unliquidated Obligations 0 0 407 923 0 

Disbursed 0 200 793 277 0 

Conflict Management and Mitigation

(USAID/CMM) (via DA) 

$ in thousands FY 07 FY 08 FY 09 FY 10 FY 11

Allocated/Allotted 300 0 400 0 0 

Unobligated balance 0 0 0 0 0 

Unliquidated obligations 58 0 0 0 0 

Disbursed 242 0 400 0 0 

USAID/DCHA/DG (via DF) 

$ in thousands FY 07 FY 08 FY 09 FY 10 FY 11

Allocated/Allotted 0 0 0 0 1,250

Unobligated balance 0 0 0 0 1,250

Unliquidated obligations 0 0 0 0 0 

Disbursed 0 0 0 0 0 

Sources: GAO analysis of USAID and State data.
Enclosure IV

Page 24 GAO-12-432R U.S. Assistance to Yemen

GAO Contact and Staff Acknowledgments

GAO Contact

Charles Michael Johnson, Jr., (202) 512-7331, or johnsoncm@gao.gov

Staff Acknowledgments

Major contributors to this report were Jason Bair, Assistant Director; Judith Williams; Brian 

Tremblay; and Bruce Kutnick. Martin de Alteriis, Debbie Chung, Marie Mak, Mary Moutsos, and 

Pierre Toureille also provided assistance.

(320859)
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