Legal Services Corporation: Background and Funding

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Legal Services Corporation: Background

Background and Funding
Carmen Solomon-Fears
Specialist in Social Policy
February 2, 2010January 29, 2014

Congressional Research Service
7-5700
www.crs.gov
RL34016

CRS Report for Congress
Prepared for Members and Committees of Congress

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 Legal Services Corporation: Background and Funding

Summary
The Legal Services Corporation (LSC) is a private, nonprofit, federally funded corporation that
helps provide legal assistance to low-income people in civil (i.e., non-criminalnoncriminal) matters. The
primary responsibility of the LSC is to manage and oversee the congressionally appropriated
federal funds that it distributes in the form of grants to local legal services providers, which in
turn give legal assistance to low-income clients in all 50 states, the District of Columbia, the U.S.
territories of American Samoa, Guam,Guam and the Virgin Islands, the Commonwealth of Puerto Rico,
 and Micronesia (including
(which includes the Commonwealth of the Northern Mariana Islands, the Republic of
the  the
Marshall Islands, the Federated States of Micronesia, and Palau).
Although the authorization of appropriations for the LSC expired at the end of FY1980, the LSC
has operated for the past 29 years under annual appropriations laws. The LSC is currently funded
at $390 million for FY2009 (P.L. 111-8). The Obama Administration’s FY2010 budget request
included $435 million for the LSC. On June 18, 2009, the House passed legislation (H.R. 2847)
that would appropriate $440 million for the LSC for FY2010. On November 5, 2009, the Senate
passed legislation (H.R. 2847, amended) that would appropriate $400 million for the LSC for
FY2010. The conference report on the consolidated appropriations for 2010 (H.R. 3288; H.Rept.
111-366) included $420 million for the LSC for FY2010 (P.L. 111-117). Moreover, P.L. 111-117
continues existing limitations on the use of LSC funds (and non-LSC funds) except for the
restriction on the ability of LSC-funded programs to collect attorneys’ fees. Current LSC funding
now surpasses the LSC’s previous highest funding level of $400 million in FY1994 and FY1995.
Under the LSC’s competitive process, legal services providers in every jurisdiction bid to become
the LSC grantee for a designated service area in a state. During 2008, the LSC funded 137 local
programs/grantees in 918 offices employing about 4,100 attorneys. Local programs establish their
own eligibility criteria, in which clients served may not have income that exceeds 125% of the
federal poverty guidelines. In 2008, 73% of LSC clients were females and 27% were males. The
majority of LSC clients (85%) were between the ages of 18 and 59, 13% were age 60 or older,
and 2% were under the age of 18. Almost 47% of LSC clients were non-Hispanic white, 25%
were non-Hispanic black, 8% were of other races, and 20% were Hispanic. In 2008, LSC grantees
closed 889,155 cases involving issues primarily related to families (divorce, child support, etc.),
housing, income maintenance, consumer finance, and individual rights34 years under annual appropriations laws. Also, since FY1996, all of
the LSC appropriations laws have included language that restricts the activities of LSC grantees.
For FY2013, P.L. 113-6 directed LSC to re-examine its headquarters structure and identify areas
of duplication for consolidation or elimination in an effort to provide a more efficient and costsaving structure, and send more funding to those in the field in need of LSC services. LSC was
required to report these findings to the Committees on Appropriations within 90 days of
enactment. In addition, a technical change to the allocation formula for basic field grants was
included to reflect the shift in how the Census Bureau collects poverty data. The technical change
directs LSC to reallocate funding every three years based on poverty data from the U.S. Bureau of
the Census. P.L. 113-6 also provided a two-year phase-in of the changes. Although P.L. 113-6
included a total of $365 million for the LSC for FY2013, that sum does not take into account the
1.877% cut in the Commerce, Justice, Science, and Related Agencies Appropriations (which
includes the LSC), or the 0.2% across-the-board rescission included in P.L. 113-6, nor does it
include the sequestration of funds that took effect on March 1, 2013. LSC’s post-rescission, presequestration operating level for FY2013 was $358.4 million, which included the $1 million in
Hurricane Sandy Disaster Relief funds (that also was subject to sequestration) for the LSC to
provide assistance to low-income people in areas significantly affected by the super storm. LSC’s
post-rescission, post-sequestration operating level for FY2013 was $341 million.
Pursuant to P.L. 113-46 (the Continuing Appropriations Act, 2014), LSC’s funding level for
FY2014 was $341 million. P.L. 113-46 continued the FY2013 LSC appropriation level (postrescission and post-sequestration) through January 15, 2014, or whenever the FY2014 CJS
appropriations bill was signed into law, whichever came first. P.L. 113-76 (the Consolidated
Appropriations Act, 2014) included $365 million for the LSC for FY2014.
Under the LSC’s competitive process, legal services providers in every jurisdiction bid to become
the LSC grantee for a designated service area in a state. During 2012, the LSC funded 134 local
programs/grantees in 807 offices employing 3,945 attorneys. Local programs establish their own
priorities and financial eligibility criteria subject to the LSC limits that stipulate that clients
served may not have household income that exceeds 125% of the federal poverty guidelines, with
limited exceptions for some household incomes of up to 200% of those guidelines. In 2012, 71%
of LSC clients were females and 29% were males. The majority of LSC clients (84%) were
between the ages of 18 and 59, 14% were age 60 or older, and 2% were under the age of 18.
Almost 46% of LSC clients were non-Hispanic white, 27% were non-Hispanic black, almost 8%
were of other races, and 18% were Hispanic. In 2012, LSC grantees closed 809,830 cases

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 Legal Services Corporation: Background and Funding

involving issues primarily related to families (divorce, child support, etc.), housing, income
maintenance, consumer finance, and health.
Although the LSC is the largest single source of funding for the civil legal services system in the
United States, it is not the only source of funding. Local legal services programs supplement their
LSC grants with funds from a variety of governmental and private sources. LSC funding accounts
for 40% of all funding for civil legal services for the poor in the United States. This report will be
regularly updated.

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Legal Services Corporation: Background and Funding

Contents
Introduction ...................................................................................................................................... 1
Program Mechanics ......................................................................................................................... 1
Restrictions on Activities ........................................................................................................2... 3
Clients and Cases ............................................................................................................................. 3
Funding History ............................................................................................................................... 5
FY1996 ...5
FY1996................................................................................................................................... 6
FY1997-FY2001........................................................................................................................ 6
FY2002-FY2005........................................................................................................................ 7
FY2006-FY2008........................................................................................................................ 7
FY2009 ..7
FY2009.................................................................................................................................8... 9
FY2010 .................................................................................................................................... 10
FY2011 ................................................................................................................................. 11... 11
FY2012 .................................................................................................................................... 12
FY2013 .................................................................................................................................... 13
FY2014 .................................................................................................................................... 15
Distribution of LSC Funds and Non-LSC Resources .................................................................... 16 12

Figures
Figure 1. LSC Cases Closed in 20082012, by Legal Problem ................................................................. 4

Tables
Table 1. LSC Appropriations History............... for Selected Years ............................................................................ 6
Table 2. LSC: Funding for Program Components, FY2002-FY2010 FY2004-FY2014 ........................................... 11. 16
Table 3. Funding for LSC and Non-LSC Programs, by Jurisdiction, FY2008 2012 .............................. 12..... 17

Contacts
Author Contact Information ........................................................................................................... 1419

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Legal Services Corporation: Background and Funding

Introduction
The Legal Services Corporation (LSC) is a private, nonprofit, 
federally funded corporation that
 helps provide legal assistance 
to low-income people in non-criminalnoncriminal (i.e., civil) matters. The LSC

LSC is governed by an 11-member board appointed by the 
President and confirmed by the Senate, of
 whom no more than 
six members may be of the same political party. The primary responsibility

responsibility of the LSC is to manage and oversee the 
congressionally appropriated federal funds that it
 distributes in 
the form of grants to local legal services providers, which in 
turn give legal
 assistance to low-income clients in all 50 states, 
the District of Columbia, the U.S. territories of
American Samoa, Guam, Guam and the 
Virgin Islands, the Commonwealth of Puerto Rico, and
Micronesia (includingwhich includes the Commonwealth of the Northern 
Mariana Islands, the Republic of the
 Marshall Islands, the
Federated States of Micronesia, and Palau).
The federal government has administered a program of legal
services for the poor since 1966. Originally, the program was
administered through the Office of Economic Opportunity, a
now-defunct agency that had led the War on Poverty in the
mid-1960s mid1960s. In 1971, President Nixon proposed establishment
 of a 
separate corporation to deliver legal services to insulate
the  the
program from political pressure.1 Authorizing legislation
was  was
enacted in 1974 (P.L. 93-355), and the LSC came into
existence  existence
the following year. In 1977, the LSC was extended
through  through
FY1980 (P.L. 95-222). Although Congress has not
reauthorized  reauthorized
the LSC statute since FY1980, it has continued to
 fund LSC 
every year, and has included legislative language
 affecting LSC 
activities in the annual appropriations laws.

LSC Laws and
Appropriations
P.L. 93-355 (July 25, 1974)
P.L. 95-222 (Dec. 28, 1977)
P.L. 105-12 (Apr. 30, 1997)
P.L. 106-185 (Apr. 25, 2000)
P.L. 104-134 (Apr. 26, 1996)
P.L. 104-208 (Sept. 30, 1996)
P.L. 105-119 (Nov. 26, 1997)
P.L. 105-277 (Oct. 21, 1998)
P.L. 106-113 (Nov. 29, 1999)
P.L. 106-553 (Dec. 21, 2000)

Program Mechanics


P.L. 107-77 (Nov. 28, 2001)
P.L. 108-7 (Feb. 20, 2003)


P.L. 108-199 (Jan. 23, 2004)
P.L. 108-447 (Dec. 8, 2004)
P.L. 109-108 (Nov. 22, 2005)
P.L. 110-5 (Feb. 15, 2007)
P.L. 110-161 (Dec. 26, 2007)
P.L. 110-329 (Sept. 30, 2008)
P.L. 111-8 (Mar. 11, 2009)
P.L. 111-117 (Dec. 16, 2009)
P.L. 111-322 (Dec. 22, 2010)

Program Mechanics
The LSC does not provide legal services directly. Rather, it
funds local legal services providers, referred to by the LSC as
“grantees.” Grantees may include nonprofit organizations that
have as a purpose the provision of legal assistance to eligible
clients, private attorneys, groups of private attorneys or law
firms, state or local governments, and certain sub-state regional
planning and coordination agencies.

P.L. 108-199 (Jan. 23, 2004)
P.L. 108-447 (Dec. 8, 2004)
P.L. 109-108 (Nov. 22, 2005)
P.L. 110-5 (Feb. 15, 2007)
P.L. 110-161 (Dec. 26, 2007)
P.L. 110-329 (Sept. 30, 2008)

During 2008, the LSC funded 137 local programs in 918
P.L. 111-8 (Mar. 11, 2009)
offices employing about 4,100 attorneys. These numbers are
P.L. 111-117 (Dec. 16, 2009)
reduced from 1994, when 320 local programs employed about
4,500 attorneys. Each local program is governed by its own
board of directors, of which a majority are attorneys and one-third are eligible clients. Local
112-10 (April 15, 2011)
P.L. 112-55 (Nov. 18, 2011)
P.L. 112-175 (Sept. 28, 2012)
P.L. 113-2 (Jan. 29, 2013)
P.L. 113-6 (Mar. 26, 2013)
P.L. 113-46 (Oct. 17, 2013)
P.L. 113-76 (Jan. 17, 2014)

1

Center for Law and Social Policy. Securing Equal Justice for All: A Brief History of Civil Legal Assistance in the
United States, by Alan W. Houseman and Linda E. Perle, Revised January 2007, p. 19, http://www.clasp.org/admin/
site/publications/files/0158.pdf. See also President Nixon, Special Message to the Congress Proposing Establishment
of a Legal Services Corporation, May 5, 1971, http://www.presidency.ucsb.edu/ws/index.php?pid=2998.

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Legal Services Corporation: Background and Funding

programs establish their own eligibility criteria, under which a client’s household income may not
exceed 125% of the federal poverty guidelines.2 Each local program must spend an amount equal
to at least 12.5% of its basic grant to encourage private attorneys to provide pro bono legal aid to
During 2012, the LSC funded 134 local programs in 807 offices employing about 3,945
attorneys. These numbers are reduced from 1994, when 320 local programs employed about
4,500 attorneys. Each local program is governed by its own board of directors, of which a
majority are attorneys and one-third are eligible clients. Local programs establish their own
priorities and financial eligibility criteria subject to the LSC limits that stipulate that clients
served may not have household income that exceeds 125% of the federal poverty guidelines, with
limited exceptions for some household incomes of up to 200% of those guidelines.2 Each local
program must spend an amount equal to at least 12.5% of its basic grant to encourage private
attorneys to provide pro bono legal aid to the poor.
Since April 1996 (P.L. 104-134), LSC grantees (i.e., legal services agencies/providers/programs)
have been selected on a competitive basis.3 Under the LSC’s competitive process, legal services
providers in every jurisdiction bid to become the LSC grantee for a designated service area in a
state. Pursuant to its 1998 State Planning Initiative, the LSC has sought to streamline its delivery
system. During the competition process, the LSC evaluates applications according to established
quality standards and awards grants to those providers judged best qualified to provide highquality legal services in accordance with applicable legal requirements. Federal regulations (Title
45 C.F.R. Part 1634) stipulate the procedures to be followed in awarding LSC grants. Grants are
made for one to three years. Multi-year awardees must submit reports and grant renewal forms as
part of the annual grant renewal process.
Before the implementation of the 1998 State Planning Initiative, LSC grantees often were
unaware of other LSC grantees in the state. Work and training collaborations and other
cooperative endeavors were rare among LSC grantees in the same state, and practically
nonexistent among LSC grantees in other states. Further, most legal services programs only had
superficial relationships and minimal contact with law firms and local judges. In anticipation of
reduced federal funding, the LSC first encouraged and later directed grantees to form partnerships
with the judiciary, private bar associations, and with each other. The 1998 State Planning
Initiative was the means by which the LSC sought to ensure that LSC funds were efficiently and
effectively used to provide legal services to poor persons in all areas of the states and
jurisdictions. Pursuant to the 1998 Initiative, the LSC made participation in statewide civil legal
services delivery systems a condition of receipt of LSC funding.4
It is generally agreed that poor persons in need of legal assistance have benefitted from the LSC’s
statewide delivery system approach. The LSC has done this by requiring federally funded legal
services providers to coordinate their work with other persons and organizations within a state,
including groups historically considered funding “competitors” (other nonprofit organizations and
non-LSC legal services programs) or “unlikely partners” (judges, legislators, bar leaders).5

Restrictions on Activities
Since its inception, the legal services program has been controversial, and Congress has imposed
restrictions on activities of local attorneys. The authorizing statute contains restrictions against
lobbying, political activities, class actions except under certain conditions, and cases involving
abortion, school desegregation, and draft registration or desertion from the military. Additional

2

In 20072

In 2013, 125% of the federal poverty guidelines was $25,813is $29,438 for a household of four (higher in Alaska and Hawaii).
This system supplanted the previous system of presumptive refunding for LSC grantees. The LSC is prohibited from
granting any preference to current or previous grantees of LSC funds (Section §503(e) of P.L. 104-134, enacted April
 26, 
1996).
4
Legal Services Corporation. State Planning—A Five Year Overview, 2005, pp. 1-7, http://www.lsc.gov/pdfs/
030194_sp5yrrprt.pdf.
5
Ibid., p. 8.
3

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Legal Services Corporation: Background and Funding

Restrictions on Activities
Since its inception, the legal services program has been controversial, and Congress has imposed
restrictions on activities of local attorneys. The authorizing statute contains restrictions against
lobbying; political activities; class actions except under certain conditions; assisted suicide
activities; and cases involving abortion, school desegregation, and draft registration or desertion
from the military. Additional restrictions have been included in appropriations laws each year. 
Under the current appropriations
 law, LSC grantees may not
•

engage in partisan litigation related to redistricting;

•

attempt to influence regulatory, legislative, or adjudicative action at the federal,
state, or local level (however, a few activities are permissible using non-LSC
funding);

•

attempt to influence oversight proceedings of the LSC;

•

initiate or participate in any class action suit;

•

represent certain categories of aliens, except that both LSC and non-LSC funds
may be used to represent aliens who have been victims of domestic violence or
child abuse;

•

conduct advocacy training on a public policy issue or encourage political
activities, strikes, or demonstrations;

•

engage in litigation related to abortion;

•

represent clients in eviction proceedings if the eviction was based on drug-related
activities;

•

represent federal, state, or local prisoners in litigation;

•

participate in efforts to reform a federal or state welfare system;

•

engage in activities related to assisted suicide, euthanasia, or mercy killing; or

•

solicit clients.

LSC grantees must establish priorities, and staff must agree in writing not to engage in activities
outside these priorities. Moreover, federal law prohibits the LSC from receiving nonfederal funds,
and grantees are prohibited from receiving non-LSC funds, unless the source of funds is told in
writing that these funds may not be used for any activities prohibited by the LSC Act or the
appropriations law.6

Clients and Cases

LSC Cases Closed
FY2002: 978,834
FY2003: 935,793


Legal services provided through LSC funds are available only in civil
 matters to individuals with 
household incomes of less than 125% of
 the federal poverty guidelines. The LSC places primary 
emphasis on
 the provision of routine legal services. Legal services cases deal with
 a variety of 
issues, including family-related issues (divorce,
 separation, child custody, support, adoption, 
spousal abuse, child
 abuse or neglect); housing issues (evictionslandlord/tenant matters, foreclosures); 
welfare or
 other income maintenance program issues (access to health care,
unemployment compensation benefit claims); consumer and finance

FY2004: 901,067
FY2005: 906,338
FY2006: 895,488
FY2007: 906,507
FY2008: 889,155

6

Supplemental Security Income,
6
For additional information, see CRS Report R40679, Legal Services Corporation: Restrictions on Activities. Note:
The prohibition against claiming or collecting attorneys’ fees was eliminated by Section 533 of P.L. 111-117 (the Consolidated

Consolidated Appropriations Act, 2010).

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issues (consumer fraud, debt collection); and individual rights (employment, health, juvenile, and
education).
During 2008, legal services attorneys closed 889,155 cases. Family issues such as divorce and
separation, custody and visitation, domestic abuse, and child support were the substance of about
35% of cases handled Supplemental Nutrition Assistance Program, unemployment compensation benefit claims);
consumer and finance issues (debt collection, bankruptcy); and other issues such as health
coverage and employment matters.
During 2012, legal services attorneys closed 809,830 cases. Family
issues such as divorce and separation, custody and visitation, domestic
abuse, and child support were the substance of 34.3% of cases handled
by field offices; housing issues, including eviction cases, comprised about
26
26.1% of cases; income maintenance issues represented another 11% 12.1%
of cases; and consumer
 finance (12.2%), health (3.5%), employment (3%), education (0.8%), and individual rights
(1.5%) issues comprised 21comprised 11.2% of cases. Issues related
to health coverage (3.4%), employment (2.9%), juveniles (1.6%),
individual rights (2.1%), education (0.7%), and other miscellaneous
categories (5.3%) comprised 16.3% of cases. Most of the cases handled 
by LSC are resolved through
 advice and referral. In 20082012, only about 13
8.5% of cases were resolved in court, primarily because
 they involved 
family law issues (e.g., protective orders, child support, etc.) in which 
court action
was required by state law.7
Figure 1. LSC Cases Closed in 2008, by Legal Problem

Other, 15.8%

Consumer/Finance,
12.2%

Income Maintenance,
11.1%

Family, 35.1%
Housing , 25.8%

Source: Figure prepared by the Congressional Research Service was required by state law.7

LSC Cases Closed
2002: 978,834
2003: 935,793
2004: 901,067
2005: 906,338
2006: 895,488
2007: 906,507
2008: 889,155
2009: 920,447
2010: 932,406
2011: 899,817
2012: 809,830

Figure 1. LSC Cases Closed in 2012, by Legal Problem

Source: Figure prepared by the Congressional Research Service, based on data from the Legal Services
Corporation.

LSC grantees have closed about 1 million cases annually for the last several years. In addition,
they have handled another 4 million legal service “matters” such as helpingLSC grantees help self-represented (i.e.,
 pro se) litigants obtain the information they need to 
pursue their lawsuits, disseminating legal
disseminate legal services materials in communities and give discussion
forums, refer, referring clients to appropriate services, and providing
provide mediation assistance.8
7


Legal Services Corporation, Legal Services Corporation 2012 Fact Book, June 2013, http://www.lsc.gov/sites/
lsc.gov/files/LSC/lscgov4/2012Fact%20Book_FINAL.pdf.
8
Legal Services Corporation 2012 Fact Book, June 2013. This report can be found at http://www.lsc.gov/sites/lsc.gov/
files/LSC/lscgov4/2012Fact%20Book_FINAL.pdf.

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4

 Fact Book 2008, August 2009, https://grants.lsc.gov/
Easygrants_Web_LSC/Implementation/Modules/Login/Controls/PDFs/factbook2008forRIN.pdf.
8
Testimony before the House Judiciary Committee Subcommittee on Commercial and Administrative Law Submitted
(continued...)

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Legal Services Corporation: Background and Funding

According to the LSC Fact Book for 2008,2012,9 LSC clients were of all races and ethnic groups. LSC
clients include the working poor, veterans, family farmers, people with disabilities, battered
women, women seeking divorces or child
 support, and victims of natural disasters. In
Race and Ethnicity
2008, 73% of LSC clients were females and
of LSC Clients, 2008
27 2012, 71%
of LSC clients were females and 29% were males. Approximately 8584% of LSC
 clients were between the ages of 18 and 59,
White, not Hispanic
46.5%
Black, not Hispanic
24.9%
13% were age 60 or older, and about 2% were
Hispanic
20.4%
under age 18.
Native American
Asian or
Pacific Islander
Other

2.3%
1.6%


between the ages of 18 and 59, 14% were age 60 or older, and about 2% were under age 18.
In 2005, LSC staff were directed by the LSC
to  to
Race and Ethnicity
document the extent to which the civil legal
4.3%
needs of  needs of
of LSC Clients, 2012
low-income persons were not being
 met. In 
September 2009, the report was updated. The new 
White, not Hispanic
46.4%
report confirms the findings of the
 earlier report. The 
Black, not Hispanic
27.1%
LSC found that (1) 50% of potential clients 
Hispanic
18.3%
requesting legal assistance were
 denied assistance 
Native American
2.6%
because the LSC did not have the resources to help 
Asian or Pacific Islander
2.5%
Other
3.1%
them; (2) at least 80% of
 persons who were eligible 
for LSC services do not get access to either a legal 
services attorney or
 a private attorney (pro bono or paid) when they need such assistance; and (3) 
there is one legal
 services attorney for every 6,415 low-income persons—the comparable number 
for the general
 population is one attorney for every 429 persons, a difference of 15 to 1.910

Funding History
When the LSC was first established, its initial goal was to provide all low-income people with at
least “minimum access” to legal services, defined as the equivalent of one legal services attorney
for every 5,000 poor persons. This goal was briefly achieved in FY1980, but not maintained due
to inflation and subsequent budget cuts. For example, in FY2004, the LSC estimated an
appropriation of $683 million would have been needed for minimum access; however, the LSC
received $335 million in appropriations that year. According to a 2009 LSC study (cited above),
there is one legal services attorney for every 6,415 poor persons.
Funds for the LSC are included in the annual appropriation for Science, the Departments of State,
Justice, and Commerce, and Related Agencies (House) and Commerce, Justice, Science, and
Related Agencies (SenateCJS). Table 1 shows LSC appropriations for selected years from FY1976
 (the 
first full year of LSC operations) to FY2009. Current funding remains below the LSC’s
highest funding level of $400 million in FY1994 and FY1995FY2014. Current funding ($365 million)11 is 7% above the
FY2013 LSC funding level ($341 million). LSC funding accounts for less
 than half (40%) of all 
funding for civil legal services for the poor in the United States (discussed
 in more detail later in this report).

(...continued)
by LSC President Helaine M. Barnett, March 31, 2004, http://www.lsc.gov/government/
testimony_detail_T116_R2.php.
9
this report).
9
The 2012 Fact Book reflects actual data with no extrapolations or estimates. Most of the data are derived from the
Grant Activity Reports that all LSC-funded programs are required to submit to the LSC in February and March of each
year reflecting activity in the previous calendar year. The remaining data are collected from budget and funding records
of LSC-funded programs.
10
Legal Services Corporation, “Documenting the Justice Gap in America—The Current Unmet Civil Legal Needs of
Low-Income Americans,” September 2005, available at http://www.lsc.gov/press/documents/
LSCJusticeGap_FINAL_1001.pdf. See also Legal Services Corporation, “Documenting the Justice Gap in America—
The Current Unmet Civil Legal Needs of Low-Income Americans,” September 2009, available at http://www.lsc.gov/
pdfs/documenting_the_justice_gap_in_america_2009.pdf.
11
P.L. 113-46 (the FY2014 continuing resolution) continued funding for the LSC at its FY2013 level (post-rescission
and post-sequestration) except that it did not provide any new disaster relief funds (nearly $1 million in FY2013). P.L.
113-76 (the FY2014 consolidated appropriations) included $365 million for the LSC for FY2014.

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Table 1. LSC Appropriations History
($ in millions for Selected Years
(in millions of dollars)
FY

$

FY

$

FY

$

FY

$

FY

$

1976

92

1991

328

1997

283

2003

337

2009

390

1980

300

1992

350

1998

283

2004

335

2010

420

1984

275

1993

357

1999

300

2005

331

2011

404

1988

306

1994

400

2000

304

2006

327

2012

348

1989

309

1995

400

2001

329

2007

349

2013

341a

1990

317

1996

278

2002

329

2008

351

2014

365b

Source: Table prepared by the Congressional Research Service.
a.

The LSC appropriation for FY2013 was initially $365 million. P.L. 113-6 also required a 1.877% rescission
and an additional 0.2% rescission. Moreover, P.L. 112-25 (the Budget Control Act of 2011) triggered a
sequestration of funds that took effect on March 1, 2013. The FY2013 figure after both rescissions was
$358.4 million (includes the $1 million in Hurricane Sandy Disaster Relief funds (P.L. 113-2)). The FY2013
figure after both rescissions and sequestration (the $1 million in Sandy relief funds for the LSC was reduced
to $950,000 pursuant to sequestration) was $341 million.

b.

P.L. 113-46 (the Continuing Appropriations Act, 2014) continued LSC’s FY2013 appropriation level (postrescission and post-sequestration) through January 15, 2014, or whenever the FY2014 CJS appropriations
bill was signed into law, whichever came first. P.L. 113-76 (the Consolidated Appropriations Act, 2014)
included $365 million for the LSC for FY2014Source: Table prepared by the Congressional Research Service.

FY1996
From its inception through FY1995, LSC appropriations gradually increased. However, for
FY1996, Congress funded the LSC at $278 million, for a reduction of almost 31% from the
previous year. In its FY1996 budget resolution, the House assumed a three-year phase-out of the
LSC, recommending appropriations of $278 million in FY1996, $141 million in FY1997, and
elimination by FY1998. The House Budget Committee stated in its report (H.Rept. 104-120):
Too often, ... lawyers funded through federal LSC grants have focused on political causes
and class action lawsuits rather than helping poor Americans solve their legal problems.... A
phase out of federal funding for the LSC will not eliminate free legal aid to the poor. State
and local governments, bar associations, and other organizations already provide substantial
legal aid to the poor.

The FY1996 appropriation for the LSC entirely eliminated funding for supplemental legal
assistance programs, including Native American and migrant farm worker support, national and
state support centers, regional training centers, and other national activities.

FY1997-FY2001
The phase-out of the LSC envisioned by the House budget resolution did not occur. Instead,
between FY1996 and FY2001, LSC funding was gradually increased. For FY1997, Congress
funded the LSC at $283 million (P.L. 104-208). For FY1998, Congress again funded the LSC at
$283 million (P.L. 105-119). For FY1999, Congress funded the LSC at $300 million (P.L. 105277). For FY2000, Congress funded the LSC at $305 million, but also included a provision in the
legislation that mandated a 0.38% government-wide rescission of discretionary budget authority


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for FY2000. The funding for the LSC for FY2000 was thereby decreased to $304 million (P.L.
106-113).
For FY2001, the Clinton Administration requested $340 million for the LSC. The Clinton
Administration had requested $340 million every year since FY1997, in an effort to partially
restore the 1996 cutback in funding. P.L. 106-553 included $330 million for LSC for FY2001,
and was signed by President Clinton on December 21, 2000. P.L. 106-554 mandated a 0.22%
government-wide rescission of discretionary budget authority for FY2001 for almost all

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government agencies. Thus, the $330 million appropriation for LSC for FY2001 was reduced to
$329.3 million.

FY2002-FY2005
For FY2002 through FY2005, the Bush Administration requested $329.3 million in annual
appropriations for the LSC. In a 2001 Special Report, LSC indicated that in carrying out the LSC’s 
vision of an effective and efficient
 statewide system of delivering legal services to the poor, 
grantees had been merging and
 reconfiguring their legal services programs to better use every 
federal dollar allocated to them.12  10
The House report (H.Rept. 107-139) indicated concern about 
the LSC overruling, without appeal,
 certain configurations implemented by grantees via the state 
planning process. The House report
 directed the LSC to review the state planning process and 
report back to the committee with a
 proposal that outlined the reconfiguration standards and the 
process for states to appeal LSC’s
 decisions. P.L. 107-77 included $329.3 million for LSC for 
FY2002.
For FY2003, Congress funded the LSC at $336.6 million (P.L. 108-7); this funding level included
a $9.5 million allotment to offset decennial Census funding reallocations (i.e., to partially
compensate some service areas for smaller LSC funding levels for FY2003 than the area received
for FY2002 as a result of the change in state poverty populations based on census data for 2000),
and a mandated 0.65% government-wide rescission.
For FY2004, Congress funded the LSC at $335.3 million (P.L. 108-199); this funding level
included a 0.59% across-the-board government-wide rescission and an additional 0.465%
uniform rescission applicable only to funding for the Commerce, Justice, State, and Related
Agencies appropriation (which included the LSC).
For FY2005, Congress funded the LSC at $330.8 million (P.L. 108-447); this funding level
included a provision that allowed the LSC to spend up to $1 million of prior-year funding
balances for a school student loan repayment pilot program, a 0.8% across-the-board governmentwide rescission, and an additional 0.54% uniform rescission applicable only to funding for the
Commerce, Justice, State, and Related Agencies appropriation (which included the LSC).

FY2006-FY2008
For FY2006, the Bush Administration requested $318.3 million for the LSC. P.L. 109-108
included $330.8 million for the LSC for FY2006—the same amount originally passed by the
12

Legal Services Corporation, A Special Report to Congress, State Planning & Reconfiguration, September 2001, pp.
2-3, 10.

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House, instead of $358.5 million, as passed by the Senate. P.L. 109-108 also included a general
rescission equal to 0.28% of funding for the Science, State, Justice, Commerce, and Related
Agencies appropriation (which includes the LSC). P.L. 109-148 included a 1% government-wide
rescission on discretionary programs. Thus, the LSC appropriation for FY2006 was lowered to
$326.6 million.
For FY2007, the Bush Administration requested $310.9 million for the LSC. P.L. 110-5 included
language that specified that the LSC would be funded at $348.6 million for FY2007. P.L. 110-5

10

Legal Services Corporation, A Special Report to Congress, State Planning & Reconfiguration, September 2001, pp.
2-3, 10.

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incorporated the fourth continuing resolution for FY2007 (H.J.Res. 20), which included
provisions to fund most of the government agencies, including the LSC, through FY2007.
For FY2008, the Bush Administration requested $311 million for the LSC. The Administration’s
budget request included $289 million for basic field programs and requiresrequired independent audits;
almost $13 million for management and administration; $5 million for client self-help and
information technology; and $3 million of the Office of the Inspector General.
For FY2008, the Senate Appropriations Committee recommended $390 million for the LSC (S.
1745), a $41.4 million increase above the FY2007 LSC appropriation, and $79.1 million above
the Administration’s FY2008 budget request for the LSC. During the Senate debate on the bill
(H.R. 3093), an amendment by Senator Bingaman was passed to permit LSC-funded legal
services programs to provide legal assistance to “H2B” workers—temporary foreign workers
employed in the forestry industry—in matters directly related to their employment. LSC-funded
programs are currently prohibited from serving H2B workers. The Senate-passed bill provided
$390 million for the LSC for FY2008.
For FY2008, the House Appropriations Committee recommended $377 million for the LSC, a
$28.4 million increase above the FY2007 LSC appropriation, $66.1 million above the
Administration’s FY2008 budget request for the LSC, and $13 million below the Senate-passed
bill. The House-passed bill (H.R. 3093) included $377 million for the LSC for FY2008.
Pursuant to a continuing appropriations resolution (H.J.Res. 52), enacted September 29, 2007, the
LSC operated at FY2007 funding levels through November 16, 2007 (P.L. 110-92). Pursuant to a
second continuing appropriations resolution in the FY2008 Department of Defense appropriation
(H.R. 3222), enacted November 13, 2007, the LSC operated at FY2007 funding levels through
December 14, 2007 (P.L. 110-116). Pursuant to a third continuing appropriations resolution
(H.J.Res. 69), enacted December 14, 2007, the LSC operated at FY2007 funding levels through
December 21, 2007 (P.L. 110-137). Pursuant to a fourth continuing appropriations resolution
(H.J.Res. 72), the LSC operated at FY2007 funding levels through December 31, 2007 (P.L. 110137).
P.L. 110-161, the Consolidated Appropriations Act, 2008 (H.R. 2764—enacted December 26,
2007), included $350.5 million for the LSC for FY2008. This amount iswas $1.9 million above the
FY2007 appropriation for the LSC and $39.6 million above the Administration’s FY2008 budget
request for the LSC. However, it iswas below the amounts that were passed by the House and the
Senate. The FY2008 appropriation for the LSC includesincluded $332.4 million for basic field programs
and required independent audits, $12.5 million for management and administration, $2.1 million
for client self-help and information technology, $3.0 million for the Office of the Inspector
General, and $0.5 million for loan repayment assistance. According to the LSC, pursuant to P.L.
110-161, LSC-funded legal services programs can nowwere authorized to provide limited representation to

to temporary forestry workers.

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FY2009
For FY2009, the Bush Administration requested $311.0 million for the LSC.1113 The
Administration’s budget request included $290.1 million for basic field programs and required
11
Each year the LSC submits its own budget request to Congress. In most years, the LSC budget request is
(continued...)

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independent audits; $12.8 million for management and administration; $5.0 million for client selfhelp and information technology; and $3.0 million for the Office of the Inspector General.
For FY2009, the House Appropriations Committee approved $390 million for the LSC. The
House committee-approved draft bill provided 11% more than the FY2008 LSC appropriation
and 25% more than the FY2009 request for the LSC. It included $367 million for basic field
programs and required independent audits, $16 million for management and administration, $3
million for client self-help and information technology, $3 million for the Office of the Inspector
General, and $1 million for loan repayment assistance.
For FY2009, the Senate Appropriations Committee, like the House committee, also approved
$390 million for the LSC. However, the Senate committee bill (S. 3182) included $369 million
for basic field programs and required independent audits, $13 million for management and
administration, $3.8 million for client self-help and information technology, $3.2 million for the
Office of the Inspector General, and $1 million for loan repayment assistance.
P.L. 110-289, the Housing and Economic Recovery Act of 2008 (enacted July 30, 2008), included
a provision that provides $30 million for pre-foreclosure and legal counseling through a new
grant program. Under the new program, the Neighborhood Reinvestment Corporation, a
congressional chartered nonprofit organization, is required to make grants to housing counselors
to hire LSC attorneys to assist homeowners who have legal issues directly related to the
homeowner’s foreclosure, delinquency, or short sale.1214
P.L. 110-315, the College Opportunity and Affordability Act of 2008 (enacted August 14, 2008),
included a provision that authorizesauthorized $10 million for the U.S. Department of Education to
distribute as loan repayment assistance grants (up to $6,000 per year, $40,000 for a lifetime) to
full-time civil legal aid lawyers who agree to remain employed as such for at least three years.1315
Although the loan repayment program was authorized, funding for the program has not yet been
appropriated.
P.L. 110-329, the Consolidated Security, Disaster Assistance, and Continuing Appropriations Act,
2009 (enacted September 30, 2008), among other things, required that the LSC continue to
operate at FY2008 funding levels (i.e., $350.5 million) until March 6, 2009, or until LSC’s
regular FY2009 appropriation is enacted.
P.L. 111-8, the Omnibus Appropriations Act, 2009 (enacted March 11, 2009), includes $390.0
million for the LSC for FY2009. This amount is $39.5 million above the FY2008 appropriation
for the LSC and $79.0 million above the Bush Administration’s FY2009 budget request for the
LSC. The FY2009 appropriation for the LSC includes $365.8 million for basic field programs and
required independent audits, $16.0 million for management and administration, $3.0 million for
(...continued)

13
Each year the LSC submits its own budget request to Congress. In most years, the LSC budget request is
significantly higher than the amount that appears in the President’s annual budget. For FY2009, the LSC requested an
appropriation of $471.4 million, a 52% increase over the President’s budget request of $311 million for the LSC. The
reasons cited for the significant increase included legal problems of existing and new clients stemming from the recent
crises in the mortgage and housing industries, the ongoing impact of natural disasters, and widespread domestic
violence, along with recent LSC findings that there is significant unmet need among America’s poorest populations
with regard to civil legal assistance.
12
See sections14
See Sections 2305 and 2401 of P.L. 110-289.
13
See section15
See Section 431 of P.L. 110-315.

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Legal Services Corporation: Background and Funding

P.L. 111-8, the Omnibus Appropriations Act, 2009 (enacted March 11, 2009), included $390.0
million for the LSC for FY2009. This amount is $39.5 million above the FY2008 appropriation
for the LSC and $79.0 million above the Bush Administration’s FY2009 budget request for the
LSC. The FY2009 appropriation for the LSC included $365.8 million for basic field programs
and required independent audits, $16.0 million for management and administration, $3.0 million
for client self-help and information technology, $4.2 million for the Office of the Inspector 
General,
 and $1.0 million for loan repayment assistance.

FY2010
For FY2010, the Obama Administration requested $435 million for the LSC.1416 This amount iswas
$45 million (11.5%) above the FY2009 appropriation of $390 million for the LSC. The
Administration’s budget request included $410.4 million for basic field programs and required
independent audits; $17 million for management and grants oversight; $3.4 million for client selfhelp and information technology; $3.2 million for the Office of the Inspector General; and $1
million for loan repayment assistance. The Obama Administration also proposed that LSC
restrictions on class action suits and attorneys’ fees be eliminated.
For FY2010, the House Appropriations Committee approved $440 million for the LSC (H.Rept.
111-149). The House bill (H.R. 2847) providesprovided almost 13% more than the FY2009 LSC
appropriation and 1% more than the Administration’s FY2010 budget request for the LSC. The
House approved $440 million for the LSC on June 18, 2009. The House voted to continue
existing limitations on the use of LSC funds (and non-LSC funds) except for the restriction on the
ability of LSC-funded programs to collect attorneys’ fees. The House bill also included funds for
a loan repayment assistance program to help legal services programs recruit and retain talented
attorneys.
For FY2010, the Senate Appropriations Committee approved $400 million for the LSC (S.Rept.
111-34). The Senate version of the bill (H.R. 2847) providesprovided about 3% more than the FY2009
LCS appropriation and 8% less than the Administration’s FY2010 request for the LSC. The
Senate passed H.R. 2847 on November 5, 2009. The Senate-passed version of the bill included
$400 million in funding for the LSC and would continuecontinued existing limitations on the use of federal
funds but would eliminate funds
but eliminated the restrictions on the use of non-federalnonfederal funds except in litigation
involving  involving
abortion and cases involving prisoners.1517 The conference agreement on H.R. 3288
 (consolidated 
appropriations for 2010—H.Rept. 111-366), which includesincluded $420 million for the
 LSC for 
FY2010, was passed by the House on December 10, 2009, and by the Senate on
 December 13, 2009.
P.L. 111-117, the Consolidated Appropriations Act, 2010 (enacted December 16, 2009), includes
$420.0 million for the LSC for FY2010. The FY2010 appropriation for the LSC includes
2009.

16

Each year the LSC submits its own budget request to Congress. In most years, the LSC budget request is
significantly higher than the amount that appears in the President’s annual budget. For FY2010, the LSC requested an
appropriation of $485.1 million, an 11.5% increase over the President’s budget request of $435 million for the LSC.
The reasons cited for the significant increase included legal problems of existing and new clients stemming from the
recent crises in the mortgage and housing industries, the ongoing impact of natural disasters, and widespread domestic
violence, along with recent LSC findings that there is significant unmet need among America’s poorest populations
with regard to civil legal assistance.
17
S.Rept. 111-34 (page 143) deletes Section 504(d) of P.L. 104-134 (pertaining to the use of nonfederal funds for
activities prohibited by the LSC), but also stipulates that no funds (federal or nonfederal) can be used for activities
specified in Section 504(a)(14) or Section 504(a)(15) of P.L. 104-134 (respectively, these two sections pertain to
abortion litigation and litigation involving persons incarcerated in a federal, state, or local prison).

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P.L. 111-117, the Consolidated Appropriations Act, 2010 (enacted December 16, 2009), included
$420.0 million for the LSC for FY2010. The FY2010 appropriation for the LSC included $394.4
million for basic field programs and required independent audits, $17.0 million for management
and administration, $3.4 million for client self-help and information technology, $4.2 million for
the Office of the Inspector General, and $1.0 million for loan repayment assistance. P.L. 111-117
14

Each yearcontinued existing limitations on the use of LSC funds (and non-LSC funds) except for the
restriction on the ability of LSC-funded programs to collect attorneys’ fees.

FY2011
For FY2011, the Obama Administration requested $435 million for the LSC.18 This amount was
$15 million (3.6%) above the FY2010 appropriation of $420 million for the LSC. The
Administration’s budget request included $407 million for basic field programs and required
independent audits, $20 million for management and grants oversight, $3 million for client selfhelp and information technology, $4 million for the Office of the Inspector General, and $1
million for loan repayment assistance. The Obama Administration also proposed that LSC
restrictions on class action suits and attorneys’ fees be eliminated. (The restriction on attorneys’
fees was eliminated pursuant to P.L. 111-117.)
On July 22, 2010, the Senate Appropriations Committee approved $430 million for the LSC for
FY2011 (S.Rept. 111-229; S. 3636), which represented a 2.4% increase over FY2010 funding and
a 1.1% decrease below the Administration’s budget request. The Senate Appropriations
Committee recommendation for the LSC provided $401.7 million for basic field programs, to be
used for competitively awarded grants and contracts; $20.0 million for management and
administration; $3.0 million for client self-help and information technology; $4.3 million for the
Office of the Inspector General; and $1.0 million for loan repayment assistance.
The Senate Appropriations Committee report stipulated that implementation of the recent
recommendations of the Government Accountability Office (GAO) and the LSC Inspector
General for the LSC must be a priority of the LSC. In addition, the Senate Appropriations
Committee bill continued existing limitations on the use of federal funds, but lifted restrictions on
the use of nonfederal funds except in litigation involving abortion or litigation on behalf of
prisoners.
Although the House Appropriations Subcommittee approved a $440 million FY2011 budget for
the LSC on June 29, 2010, the full House Appropriations Committee did not act on the proposal.
Neither the full Senate or House passed a regular appropriations bill that included funding for the
LSC for FY2011 during the 111th Congress. Instead, several continuing resolutions were passed.19
18

Each year, the LSC submits its own budget request to Congress. In most years, the LSC budget request is
significantly higher than the amount that appears in the President’s annual budget. For FY2010FY2011, the LSC requested an
appropriation of $485.1484.9 million, an 11.5% increase over the President’s FY2011 budget request of $435 million for the 
LSC.
 The reasons cited for the significant increase included legal problems of existing and new clients stemming from the

the recent crises in the mortgage and housing industries, the ongoing impact of natural disasters, and widespread domestic
violencethe economic
downturn, along with recent LSC findings that there is significant unmet need among America’s poorest populations
with regard to civil legal assistance.
15
S.Rept. 111-34 (page 143) deletes section 504(d) of P.L. 104-134 (pertaining to the use of non-federal funds for
activities prohibited by the LSC), but also stipulates that no funds (federal or non-federal) can be used for activities
specified in section 504(a)(14) or section 504(a)(15) of P.L. 104-134 (respectively, these two sections pertain to
abortion litigation and litigation involving persons incarcerated in a federal, state, or local prison).

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continues existing limitations on the use of LSC funds (and non-LSC funds) except for the
restriction on the ability of LSC-funded programs to collect attorneys’ fees.

FY2011
For FY2011, the Obama Administration requested $435 million for the LSC.16 This amount is $15
million (3.6%) above the FY2010 appropriation of $420 million for the LSC. The
Administration’s budget request included $407 million for basic field programs and required
independent audits, $20 million for management and grants oversight, $3 million for client selfhelp and information technology, $4 million for the Office of the Inspector General, and $1
million for loan repayment assistance. The Obama Administration also proposed that LSC
restrictions on class action suits and attorneys’ fees be eliminated. (The restriction on attorneys’
fees was eliminated pursuant to P.L. 111-117. For further information, see CRS Report R40679,
Legal Services Corporation: Restrictions on Activities.)
It is important to note that since FY1996, all of the LSC appropriations laws have included
language stipulating the provisions restricting the activities of LSC grantees enacted in previous
LSC appropriations laws.17 (See the earlier section titled “Restrictions on Activities.”) Table 2
shows LSC appropriations for FY2001-FY2010, by component of funding.
Table 2. LSC: Funding for Program Components, FY2002-FY2010
($ in millions)
LSC Program
Components

FY2002

FY2003

FY2004

FY2005

FY2006

FY2007

FY2008

FY2009

FY2010

Basic field programs

310.0

308.0

316.4

312.4

308.4

330.8

332.5

365.8

394.4

12.4

13.2

13.0

12.8

12.7

12.7

12.5

16.0

17.0

Client self-help and
information
technology

4.4

3.4

1.3

1.3

1.2

2.1

2.1

3.0

3.4

Office of the
Inspector General

2.5

2.6

2.6

2.5

2.5

3

3

4.2

4.2

0

9.4

1.8

1.8

1.8

0

0

0

0

Management and
administration

Offset for censusbased reallocations

16

Each year, the LSC submits its own budget request to Congress. In most years, the LSC budget request is
significantly higher than the amount that appears in the President’s annual budget. For FY2011, the LSC requested an
appropriation of $484.9 million, an 11.5% increase over the President’s FY2011 budget request of $435 million for the
LSC. The reasons cited for the significant increase included legal problems of existing and new clients stemming from
the recent crises in the mortgage and housing industries, the ongoing impact of natural disasters, and the economic
downturn, along with recent LSC findings that there is significant unmet need among America’s poorest populations
with regard to civil legal assistance.
17
Although the authorizing statute contains some restrictions on LSC activities, many more restrictions were added by
P.L. 104-134 in 1996. Other restrictions and modifications or clarifications were added in 1997 (P.L. 105-119) and
1998 (P.L. 105-277). All LSC appropriation laws enacted after 1996 have included language referencing the
restrictions in prior appropriation laws.

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LSC Program
Components
Student loan
repayment program
Total

FY2002

FY2003

FY2004

FY2005

FY2006

FY2007

FY2008

FY2009

FY2010

0

0

0

0

0

0

0.5

1.0

1.0

329.3

336.6

335.3

330.8

326.6

348.6

350.5

390.0

420.0

Source: Table prepared by the Congressional Research Service.
Note: These data reflect appropriations after all rescissions; numbers may not add to total due to rounding.

Distribution of LSC Funds and Non-LSC Resources
LSC funds appropriated for basic field programs are distributed to the states and jurisdictions on a
per capita basis, according to U.S. Bureau of the Census data18 on the number of “poor” persons
in each service area.19 Grantees within each state or jurisdiction then compete among themselves
for funding.
Although the LSC is the largest single source of funding for the civil legal services system in the
United States, it is not the only source of funding. Local legal services programs supplement their
LSC grants with funds from a variety of governmental and private sources. Non-LSC funding
sources include state and local grants; state Interest on Lawyers’ Trust Accounts (IOLTAs)
programs;20 federal programs such as the Title XX Social Services Block Grant, the Older
Americans Act, the Violence Against Women Act, and Community Development Block Grants;
and private grants from entities such as the United Way, foundations, and national, state, and local
bar associations. In addition, private attorneys accept referrals to provide legal services to the
poor, primarily through LSC-funded pro bono programs.21
As shown in Table 3, in 2008, LSC funding accounted for about 40% of the $881.0 million spent
in the United States for civil legal services for the poor.22
Table 3. Funding for LSC and Non-LSC Programs, by Jurisdiction, FY2008
State
Alabama
Alaska
Arizona
Arkansas
California
18

LSC
Funding

Number
of LSC
Programs

Non-LSC
Funding

Total
Funding

LSC Funding
as % of Total

6,391,069
1,309,799
10,002,746
3,965,429
45,972,139

1
1
3
2
11

1,004,547
1,562,390
5,046,865
1,957,345
44,104,270

7,395,616
2,872,189
15,049,611
5,922,774
90,076,409

86.4
45.6
66.5
67.0
51.0

The census data is based on the most recent decennial census—currently, the year 2000.

19

In other words, if a specific state has 12% of the U.S. poverty population, that state generally would receive about
12% of the LSC funding amount allocated for local legal services programs.
20
These funds represent interest earned on sums deposited by clients with attorneys for short periods of time.
21
In 2008, approximately 36,000 private attorneys accepted referrals to help LSC clients.
22
Legal Services Corporation, Legal Services Corporation Fact Book 2008, August 2009, https://grants.lsc.gov/
Easygrants_Web_LSC/Implementation/Modules/Login/Controls/PDFs/factbook2008forRIN.pdf.

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State
Colorado
Connecticut
Delaware
District of Columbia
Florida
Georgia
Hawaii
Idaho
Illinois
Indiana
Iowa
Kansas
Kentucky
Louisiana
Maine
Maryland
Massachusetts
Michigan
Minnesota
Mississippi
Missouri
Montana
Nebraska
Nevada
New Hampshire
New Jersey
New Mexico
New York
North Carolina
North Dakota
Ohio
Oklahoma
Oregon
Pennsylvania
Rhode Island
South Carolina
South Dakota
Tennessee

LSC
Funding
3,652,360
2,510,388
645,563
999,250
19,138,324
9,346,744
1,615,005
1,406,165
12,194,108
5,468,579
2,390,194
2,319,730
6,267,511
8,174,746
1,375,222
3,973,707
5,466,702
9,771,150
3,705,231
5,326,377
5,793,058
1,404,379
1,477,438
2,054,121
706,841
7,005,564
4,142,386
25,828,654
9,956,235
1,010,696
10,770,476
5,670,197
3,685,556
12,712,462
1,078,675
5,659,072
1,900,907
7,350,782

Texas
Utah
Vermont
Virginia
Washington
West Virginia

30,161,864
1,995,174
607,175
6,093,972
6,648,388
2,890,210

Congressional Research Service

Number
of LSC
Programs
1
1
1
1
7
2
2
1
3
1
1
1
4
4
1
1
4
6
5
2
4
1
1
1
1
6
1
7
1
1
6
2
1
8
1
1
2
4
3
1
1
6
1
1

Non-LSC
Funding
9,612,933
738,948
582,564
1,450,252
19,644,504
14,162,194
5,517,378
954,685
19,029,266
3,093,466
5,822,688
6,027,645
11,600,142
5,506,883
4,831,543
18,442,066
1,766,614
13,936,372
14,364,126
3,059,155
12,182,075
1,962,672
806,918
692,426
172,530
42,010,077
2,381,466
64,991,724
12,536,437
978,085
47,784,601
5,858,296
4,764,828
26,258,559
2,770,103
4,956,674
813,738
12,343,509

Total
Funding
13,265,293
3,249,336
1,228,127
2,449,502
38,782,828
23,508,938
7,132,383
2,360,850
31,223,374
8,562,045
8,212,882
8,347,375
17,867,653
13,681,629
6,206,765
22,415,773
7,233,316
23,707,522
18,069,357
8,385,532
17,975,133
3,367,051
2,284,356
2,746,547
879,371
49,015,641
6,523,852
90,820,378
22,492,672
1,988,781
58,555,077
11,528,493
8,450,384
38,971,021
3,848,778
10,615,746
2,714,645
19,694,291

LSC Funding
as % of Total
27.5
77.3
52.6
40.8
49.3
39.8
22.6
59.6
39.1
63.9
29.1
27.8
35.1
59.7
22.2
17.7
75.6
41.2
20.5
63.5
32.2
41.7
64.7
74.8
80.4
14.3
63.5
28.4
44.3
50.8
18.4
49.2
43.6
32.6
28.0
53.3
70.0
37.3

22,362,294
1,937,900
64,567
11,008,894
15,433,796
4,659,954

52,524,158
3,933,074
671,742
17,102,866
22,082,184
7,550,164

57.4
50.7
90.4
35.6
30.1
38.3

13

 .
Legal Services Corporation: Background and Funding

State
Wisconsin
Wyoming
Guam
Micronesia
Puerto Rico
Virgin Islands
Total (States and DC)
Total (States, DC, and
Territories)

LSC
Funding
4,991,219
658,722
312,133
1,624,748
16,754,963
313,062
335,642,461

Number
of LSC
Programs
2
1
1
1
2
1
132

Non-LSC
Funding
6,021,488
0
614,178
695,250
4,093,509
1,347,133
519,572,452

Total
Funding
11,012,707
658,722
926,311
2,319,998
20,848,472
1,660,195
855,214,913

LSC Funding
as % of Total
45.3
100.0
33.7
70.0
80.4
18.9
39.2

354,647,367

137

526,322,522

880,969,889

40.3

Source: Table prepared by the Congressional Research Service, using data from the Legal Services Corporation,
Legal Services Corporation Fact Book 2008, August 2009, This report can be found at https://grants.lsc.gov/
Easygrants_Web_LSC/Implementation/Modules/Login/Controls/PDFs/factbook2008forRIN.pdf. Compilation of
state and territory program data is based on information from the LSC website, http://www.lsc.gov/map/
index.php.

Author Contact Information
Carmen Solomon-Fears
Specialist in Social Policy
csolomonfears@crs.loc.gov, 7-7306

Congressional Research Service

1419
There were seven temporary appropriations for the LSC for FY2011: (1) P.L. 111-242 (H.R. 3081) continued
appropriations for the LSC at the FY2010 enacted level (i.e., $420 million ) until December 3, 2010; (2) P.L. 111-290
(H.J.Res. 101) continued appropriations for the LSC at the FY2010 enacted level until December 18, 2010; (3) P.L.
111-317 (H.J.Res. 105) continued appropriations for the LSC at the FY2010 enacted level until December 21, 2010; (4)
(continued...)

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11

 Legal Services Corporation: Background and Funding

On April 14, 2011, H.R. 1473, the Department of Defense and Full-Year Continuing
Appropriations Act, 2011, was passed by the House and Senate. It was signed into law (P.L. 11210) by President Obama on April 15, 2011. P.L. 112-10 included funding of $405 million for the
LSC for FY2011. However, the act also included a 0.2% across-the-board rescission. So, the
funding for the LSC for FY2011 was about $404.2 million.

FY2012
For FY2012, the Obama Administration requested $450.0 million for the LSC.20 This amount was
$45.8 million (11.3%) above the FY2011 appropriation of $404.2 million for the LSC. The
Administration’s FY2012 budget request included $420.2 million for basic field programs and
required independent audits, $19.5 million for management and grants oversight, $5.0 million for
client self-help and information technology, $4.4 million for the Office of the Inspector General,
and $1.0 million for loan repayment assistance. The Obama Administration also proposed that
LSC restrictions on class action suits and attorneys’ fees be eliminated.21
On July 20, 2011, the House Committee on Appropriations recommended $300 million for the
LSC for FY2012 (H.Rept. 112-169; H.R. 2596). This amount was 33.3% less than the
Administration’s FY2012 budget request and 25.8% less than the FY2011-enacted amount. The
committee also encouraged the LSC Inspector General to conduct annual audits of LSC grantees
to make sure that they are not using LSC funds in violation of the prohibition against engaging in
political activities or any of the other restrictions on LSC activities. The committee recommended
that funds be withdrawn from any LSC grantee found to be engaging in political activity.
On September 15, 2011, the Senate Committee on Appropriations recommended $396.1 million
for the LSC for FY2012 (S.Rept. 112-78; S. 1572). This amount was 32.2% more than the
amount recommended by the House Committee on Appropriations, 12.0% less than the
Administration’s FY2012 budget request, and 2.0% less than the FY2011-enacted amount. The
Senate Committee on Appropriations’ recommendation for the LSC for FY2012 included $370.5
million for basic field programs and required independent audits, $17.0 million for management
and grants oversight, $3.4 million for client self-help and information technology, $4.2 million for
the Office of the Inspector General, and $1.0 million for loan repayment assistance. The
committee also (1) directed the LSC to continue its collaboration with the Department of Justice
to conduct a national study of the cost-effectiveness of a legal services program patterned after
existing state models; (2) encouraged the LSC to have its grantees improve and/or increase
(...continued)
P.L. 111-322 (H.R. 3082) continued appropriations for the LSC at the FY2010 enacted level until March 4, 2011; (5)
P.L. 112-4 (H.J.Res. 44) continued appropriations for the LSC at the FY2010 enacted level until March 18, 2011; (6)
P.L. 112-6 (H.J.Res. 48) continued appropriations for the LSC at the FY2010 enacted level until April 8, 2011; (7) P.L.
112-8 continued appropriations for the LSC at the FY2010 enacted level (i.e., $420 million ) until April 15, 2011.
20
Each year, the LSC submits its own budget request to Congress. In most years, the LSC budget request is
significantly higher than the amount that appears in the President’s annual budget. For FY2012, the LSC requested an
appropriation of $516.550 million, a 14.8% increase over the President’s FY2012 budget request of $450 million. The
reasons cited for the significant increase included legal problems of existing and new clients stemming from the
economic downturn and slow recovery, continued crises in the mortgage and housing industries, and the ongoing
impact of natural disasters, along with recent LSC findings that there is significant unmet need among America’s
poorest populations with regard to civil legal assistance.
21
The restriction on attorneys’ fees was eliminated pursuant to P.L. 111-117 (§533). For further information, see CRS
Report R40679, Legal Services Corporation: Restrictions on Activities, by Carmen Solomon-Fears.

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 Legal Services Corporation: Background and Funding

private attorney pro bono participation; and (3) directed LSC to conduct a study of the
implementation and costs of a legal aid fellowship program that would provide incentives for
retirees and/or recent law school graduates to commit to working in legal services programs for a
specified period of time. The committee also recommended that all the restrictions on the use of
private funds for the LSC, except those associated with abortion-related cases and representation
of prisoner cases, be eliminated.22 The restrictions on the use of public funds for the LSC
remained in effect.
On November 1, 2011, the Senate passed a bill (H.R. 2112) that included funding of $348 million
for the LSC for FY2012. On November 17, 2011, both the House and the Senate passed the
conference report on H.R. 2112 (H.Rept. 112-284). Among other things, it funded the LSC at
$348 million for FY2012. The conference report included the existing restrictions on LSC
activities. H.R. 2112 (the Consolidated and Further Continuing Appropriations Act, 2012) was
signed into law (P.L. 112-55) by President Obama on November 18, 2011.
The FY2012 appropriation for the LSC, $348 million, was 13.9% less than the FY2011 LSC
appropriation, 22.7% less than the Administration’s budget request, 16% more than the House
committee’s recommendation, and 12.1% less than the amount passed by the Senate. The FY2012
appropriation for the LSC included $322.4 million for basic field programs and required
independent audits, $17.0 million for management and grants oversight, $3.4 million for client
self-help and information technology, $4.2 million for the Office of the Inspector General, and
$1.0 million for loan repayment assistance. It also included the existing restrictions on LSC
activities.

FY2013
For FY2013, the Obama Administration requested $402.0 million for the LSC.23 This amount was
$54.0 million (15.5%) above the FY2012 appropriation of $348.0 million for the LSC. The
Administration’s FY2013 budget request included $376.8 million for basic field programs and
required independent audits, $17.0 million for management and grants oversight, $3.0 million for
client self-help and information technology, $4.2 million for the Office of the Inspector General,
and $1.0 million for loan repayment assistance. The Obama Administration also proposed that
LSC restrictions on class action suits and attorneys’ fees be eliminated.24
On April 19, 2012, the Senate Committee on Appropriations recommended $402 million for the
LSC for FY2013 (S.Rept. 112-158; S. 2323). This amount was the same as the Administration’s
22

According to the Senate committee report (S.Rept. 112-78, pp. 123-124), the recommendation that would in effect
allow LSC grantees to use private sources of funding for LSC activities (with the exceptions mentioned above) that
cannot be funded with public sources of funds is intended to “level the playing field between legal aid attorneys and
their counterparts in the private sector and open potentially crucial sources of additional revenue to legal aid providers
in a year in which State and private funding sources are decreasing.”
23
Each year, the LSC submits its own budget request to Congress. In most years, the LSC budget request is
significantly higher than the amount that appears in the President’s annual budget. For FY2013, the LSC requested an
appropriation of $470.0 million, a 16.9% increase over the President’s FY2013 budget request of $402 million. The
reasons cited for the significant increase included legal problems of existing and new clients stemming from the slow
recovery, continued crises in the mortgage and housing industries, the decline in non-LSC resources available for legal
services programs, and the ongoing impact of natural disasters, along with recent LSC findings that there is significant
unmet need among America’s poorest populations with regard to civil legal assistance.
24
The restriction on attorneys’ fees was eliminated pursuant to P.L. 111-117 (§533).

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 Legal Services Corporation: Background and Funding

FY2013 budget request and 15.5% more than the FY2012-enacted amount. S. 2323 deleted
restrictions concerning the use of non-federal funding for LSC activities except for activities
regarding class action law suits; abortion litigation; and litigation on behalf of federal, state, or
local prisoners.
On April 26, 2012, the House Committee on Appropriations recommended $328 million for the
LSC for FY2013. This amount was 18.4% less than the amount recommended by the Senate
Committee on Appropriations and the Administration’s FY2013 budget request, and 5.7% less
than the FY2012-enacted amount. The committee also encouraged the LSC Inspector General to
conduct annual audits of LSC grantees to make sure that they are not using LSC funds in
violation of the prohibition against engaging in political activities or any of the other restrictions
on LSC activities. The committee recommended that funds be withdrawn from any LSC grantee
found to be engaging in political activity. In addition, the committee included a technical change
to the allocation formula for basic field grants. Currently the allocation for LSC grantees in each
geographic area is based on poverty statistics from the ‘‘most recent decennial census.’’ The
Census Bureau has since stopped collecting poverty data in the decennial census and instead
collects those data in the American Community Survey (ACS). The committee recommended that
the formula be altered to reflect this shift. Since ACS data are released more frequently, the
committee recommendation allows reallocation of LSC funding every three years. On May 10,
2012, the House passed the FY2013 CJS Appropriations bill (H.R. 5326), which included $328
million for the LSC as well as the revised Census Bureau language. It also included the existing
restrictions on LSC activities. One House amendment that would have eliminated all funding for
the LCS and another House amendment that would have cut the funding for the LSC to $200
million for FY2013 were rejected.
On September 28, 2012, President Obama signed into law the Continuing Appropriations
Resolution, 2013 (P.L. 112-175). The act continued appropriations for the agencies and bureaus
funded under the annual CJS bill at 0.612% above the FY2012-enacted levels until March 27,
2013, or until the FY2013 CJS bill was passed by Congress and signed into law by the President.
LSC funds were available to the extent and in the manner provided in the FY2012 LSC
appropriation.
On December 7, 2012, in its request for disaster assistance funding, the Obama Administration
requested $1 million for LSC-funded programs in the areas affected by Hurricane Sandy to
provide storm-related services to the low-income client population. On December 12, 2012, the
Senate Appropriations Committee introduced a supplemental disaster aid bill that also included
$1 million in disaster assistance for LSC-funded programs in the areas affected by Hurricane
Sandy. On January 29, 2013, President Obama signed into law the Hurricane Sandy Disaster
Relief Bill (H.R. 152, P.L. 113-2). It included $1 million for the LSC to provide assistance to lowincome people in areas significantly affected by the super storm.
On March 26, 2013, President Obama signed into law the Consolidated and Further Continuing
Appropriations Act, 2013 (P.L. 113-6). It included a total of $365 million for the LSC. Note that
this amount does not include the 1.877% cut in the Commerce, Justice, Science, and Related
Agencies Appropriations (which includes the LSC) or the 0.2% across-the-board rescission
specified in Section 3004 of the law, nor does it account for the sequestration of funds that took
effect on March 1, 2013, as triggered by the Budget Control Act of 2011 (P.L. 112-25). P.L. 113-6
directed LSC to re-examine its headquarters structure and identify areas of duplication for
consolidation or elimination in an effort to provide a more efficient and cost-saving structure, and
send more funding to those in the field in need of LSC services. LSC is required to report these

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 Legal Services Corporation: Background and Funding

findings to the Committees on Appropriations within 90 days of enactment. In addition, a
technical change to the allocation formula for basic field grants was included to reflect the shift in
how the Census Bureau collects poverty data. The technical change directed LSC to reallocate
funding every three years based on poverty data from the U.S. Bureau of the Census. P.L. 113-6
also provided a two-year phase-in of the changes.
LSC’s post-rescission, pre-sequestration operating level for FY2013 was $358.4 million, which
included the $1 million in Hurricane Sandy Disaster Relief funds (which also was subject to
sequestration) for the LSC to provide assistance to low-income people in areas significantly
affected by the super storm. LSC’s post-rescission, post-sequestration operating level for FY2013
was $341 million.

FY2014
For FY2014, the Obama Administration requested $430.0 million for the LSC.25 The
Administration’s FY2014 budget request included $400.3 million for basic field programs and
required independent audits, $19.5 million for management and grants oversight, $3.5 million for
client self-help and information technology, $4.2 million for the Office of the Inspector General,
$1.5 million for a Pro Bono Innovation Fund, and $1.0 million for loan repayment assistance. The
Obama Administration also proposed that LSC restrictions on class action suits and attorneys’
fees be eliminated.26
On July 17, 2013, the House Committee on Appropriations recommended $300 million for the
LSC for FY2014. This recommendation included $271.9 million for basic field programs and
required independent audits, $17.0 million for management and grants oversight, $3.4 million for
client self-help and information technology, $4.2 million for the Office of the Inspector General,
$2.5 million for a Pro Bono Innovation Fund, and $1.0 million for loan repayment assistance.
On July 18, 2013, the Senate Committee on Appropriations approved $430 million for the LSC
for FY2014. This amount is identical to the President’s FY2014 budget request and is $90 million
more than LSC’s operating level for FY2013 (i.e., $341 million).27
Pursuant to P.L. 113-46 (the Continuing Appropriations Act, 2014), LSC’s funding level for
FY2014 was $341 million. P.L. 113-46 continued LSC’s FY2013 appropriation level (postrescission and post-sequestration) through January 15, 2014, or whenever the FY2014 CJS
appropriations bill was signed into law, whichever came first. P.L. 113-76 (the Consolidated
Appropriations Act, 2014) included $365 million for the LSC for FY2014.

25

Each year, the LSC submits its own budget request to Congress. In most years, the LSC budget request is
significantly higher than the amount that appears in the President’s annual budget. For FY2014, the LSC requested an
appropriation of $486.0 million, a 13% increase over the President’s FY2014 budget request of $430 million for the
LSC. The reasons cited for the increase include the decline in some non-LSC funding sources, and LSC’s calculation of
the resources necessary to provide the same level of service that LSC grantees provided in 2007, the year before the
recession began, along with LSC findings that there is significant unmet need among America’s poorest populations
with regard to civil legal assistance. LSC’s budget request also includes an additional $5 million for a new grant
program to encourage innovations in pro bono legal services.
26
The restriction on attorneys’ fees was eliminated pursuant to P.L. 111-117 (§533).
27
The FY2013 funding amount includes the $1 million in Hurricane Sandy Disaster Relief funds (which was reduced
to $950,000 pursuant to sequestration).

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 Legal Services Corporation: Background and Funding

It is important to note that since FY1996, all of the LSC appropriations laws have included
language stipulating the retention of provisions restricting the activities of LSC grantees enacted
in previous LSC appropriations laws.28 (See the earlier section titled “Restrictions on Activities.”)
Table 2 shows LSC appropriations for FY2004-FY2014, by component of funding.
Table 2. LSC: Funding for Program Components, FY2004-FY2014
(in millions of dollars)

Basic
Field
Programs

Management
and
Administration

Client SelfHelp and
Information
Technology

Office of
the
Inspector
General

Offset for
CensusBased
Reallocations

Student
Loan
Repayment
Program

Pro
Bono
Innovation
Fund

Total

FY2004

316.4

13.0

1.3

2.6

1.8

0

0

335.3

FY2005

312.4

12.8

1.3

2.5

1.8

0

0

330.8

FY2006

308.4

12.7

1.2

2.5

1.8

0

0

326.6

FY2007

330.8

12.7

2.1

3.0

0

0

0

348.6

FY2008

332.5

12.5

2.1

3.0

0

0.5

0

350.5

FY2009

365.8

16.0

3.0

4.2

0

1.0

0

390.0

FY2010

394.4

17.0

3.4

4.2

0

1.0

0

420.0

FY2011

378.6

17.0

3.4

4.2

0

1.0

0

404.2

FY2012

322.4

17.0

3.4

4.2

0

1.0

0

348.0

FY2013

316.1

15.8

3.2

3.9

0

0.9

0

341.0

FY2014

335.7

18.0

3.5

4.4

0

1.0

2.5

365.0

Source: Table prepared by the Congressional Research Service.
Notes: These data reflect appropriations after all rescissions; numbers may not add to total due to rounding.
The FY2013 total includes the $1 million in Hurricane Sandy Disaster Relief funds (reduced to $950,000 pursuant
to sequestration). With respect to FY2014, P.L. 113-46 (the Continuing Appropriations Act, 2014) continued
LSC’s FY2013 appropriation level (post-rescission and post-sequestration) through January 15, 2014, or
whenever the FY2014 CJS appropriations bill was signed into law, whichever came first. P.L. 113-76 (the
Consolidated Appropriations Act, 2014) included $365 million for the LSC for FY2014.

Distribution of LSC Funds and Non-LSC Resources
LSC funds appropriated for basic field programs are distributed to the states and jurisdictions on a
per capita basis, according to U.S. Census Bureau data29 on the number of “poor” persons in each

28
Although the authorizing statute contains some restrictions on LSC activities, many more restrictions were added by
P.L. 104-134 in 1996. Other restrictions and modifications or clarifications were added in 1997 (P.L. 105-119) and
1998 (P.L. 105-277). All LSC appropriation laws enacted after 1996 have included language referencing the
restrictions in prior appropriation laws.
29
Until recently, the distribution of LSC funds was based on census data that used the most recent decennial census.
However, the distribution of LSC funding for 2010, 2011, and 2012 has continued to be based on census data from the
year 2000.

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 Legal Services Corporation: Background and Funding

service area.30 Grantees within each state or jurisdiction then compete among themselves for
funding.
In the 2010 decennial census, the Census Bureau did not use the “long form” and did not collect
data on personal income. In lieu of the “long form,” the Census Bureau developed the American
Community Survey (ACS), an ongoing survey that provides data every year on income and
benefits, family and relationships, and other kinds of data, which provides a more timely picture
of poverty and other demographic information. Due to these changes in the data sets obtained by
the 2010 decennial census, LSC funding can no longer be distributed according to the provisions
of the current appropriations act that funds the LSC. On September 19, 2011, the LSC Board
recommended that (1) the determination of the number of individuals in poverty in each
geographic area would be made by the U.S. Census Bureau, without any reference to the
decennial census as the basis for that determination; (2) LSC funding would be reallocated among
geographic areas every three years based on updated poverty population determinations by the
Census Bureau; and (3) the first reallocation would be phased in over two years, in FY2013 and
FY2014. P.L. 113-6 included a technical change to the allocation formula for basic field grants to
reflect the shift in how the Census Bureau collects poverty data. The technical change directs
LSC to reallocate funding every three years based on poverty data from the U.S. Bureau of the
Census. P.L. 113-6 also provided a two-year phase-in of the changes.
Although the LSC is the largest single source of funding for the civil legal services system in the
United States, it is not the only source of funding. Local legal services programs supplement their
LSC grants with funds from a variety of governmental and private sources. Non-LSC funding
sources include state and local grants; state Interest on Lawyers’ Trust Accounts (IOLTAs)
programs;31 federal programs such as the Title XX Social Services Block Grant, the Older
Americans Act, the Violence Against Women Act, and Community Development Block Grants;
and private grants from entities such as the United Way, foundations, and national, state, and local
bar associations. In addition, private attorneys accept referrals to provide legal services to the
poor, primarily through LSC-funded pro bono programs.32
As shown in Table 3, in 2012 LSC funding accounted for about 40% of the $882.9 million spent
in the United States for civil legal services for the poor.33

Table 3. Funding for LSC and Non-LSC Programs, by Jurisdiction, 2012

State

LSC Funding

Number of
LSC
Programs

Non-LSC
Funding

Total Funding

LSC Funding
as
% of Total

Alabama

7,334,551

1

1,438,361

8,772,912

83.6%

Alaska

1,255,719

1

2,099,897

3,355,616

37.4%

30

In other words, if a specific state has 12% of the U.S. poverty population, that state generally would receive about
12% of the LSC funding amount allocated for local legal services programs.
31
These funds represent interest earned on sums deposited by clients with attorneys for short periods of time.
32
In 2012, approximately 33,000 private attorneys accepted referrals to help LSC clients.
33
Legal Services Corporation, Legal Services Corporation 2012 Fact Book, June 2013, http://www.lsc.gov/sites/
lsc.gov/files/LSC/lscgov4/2012Fact%20Book_FINAL.pdf.

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 Legal Services Corporation: Background and Funding

State

LSC Funding

Number of
LSC
Programs

Non-LSC
Funding

Total Funding

LSC Funding
as
% of Total

Arizona

10,163,827

3

4,711,250

14,875,077

68.3%

Arkansas

3,778,472

2

3,846,881

7,625,353

49.6%

California

46,132,716

11

56,386,024

102,518,740

45.0%

Colorado

3,479,399

1

8,539,690

12,019,089

28.9%

Connecticut

2,683,946

1

299,660

2,983,606

90.0%

Delaware

609,456

1

550,662

1,160,118

52.5%

District of Columbia

987,533

1

795,864

1,783,397

55.4%

Florida

19,297,053

7

22,215,607

41,512,660

46.5%

Georgia

9,201,851

2

11,903,864

21,105,715

43.6%

Hawaii

1,640,993

1

9,634,562

11,275,555

14.6%

Idaho

1,362,846

1

1,171,702

2,534,548

53.8%

Illinois

11,494,632

3

25,948,631

37,443,263

30.7%

Indiana

5,673,861

1

2,924,448

8,598,309

66.0%

Iowa

2,282,152

1

4,869,343

7,151,495

31.9%

Kansas

2,247,751

1

3,684,940

5,932,691

37.9%

Kentucky

5,854,278

4

11,200,294

17,054,572

34.3%

Louisiana

7,962,813

4

5,504,927

13,467,740

59.1%

Maine

1,494,710

1

5,647,477

7,142,187

20.9%

Maryland

3,822,055

1

20,430,272

24,252,327

15.8%

Massachusetts

5,445,502

4

5,423,906

10,869,408

50.1%

Michigan

9,408,859

5

13,495,928

22,904,787

41.1%

Minnesota

3,694,606

5

11,361,482

15,056,088

24.5%

Mississippi

5,255,885

3

1,631,438

6,887,323

76.3%

Missouri

5,748,683

4

13,150,278

18,898,961

30.4%

Montana

1,352,483

1

1,716,811

3,069,294

44.1%

Nebraska

1,463,821

1

3,775,859

5,239,680

27.9%

Nevada

2,048,764

1

999,419

3,048,183

67.2%

675,222

1

196,158

871,380

77.5%

New Jersey

6,370,641

6

22,166,874

28,537,515

22.3%

New Mexico

3,767,323

1

2,231,101

5,998,424

62.8%

New York

24,569,908

7

67,132,296

91,702,204

26.8%

North Carolina

10,716,348

1

11,451,465

22,167,813

48.3%

North Dakota

1,001,895

1

1,057,885

2,059,780

48.6%

10,870,442

5

33,822,290

44,692,732

24.3%

Oklahoma

5,602,459

1

6,606,013

12,208,472

45.9%

Oregon

3,660,432

1

3,312,430

6,972,862

52.5%

New Hampshire

Ohio

Congressional Research Service

18

 Legal Services Corporation: Background and Funding

State

LSC Funding

Number of
LSC
Programs

Non-LSC
Funding

Total Funding

LSC Funding
as
% of Total

Pennsylvania

12,286,201

8

23,205,447

35,491,648

34.6%

Rhode Island

1,052,136

1

2,345,965

3,398,101

31.0%

South Carolina

5,324,929

1

5,066,360

10,391,289

51.2%

South Dakota

1,735,675

2

695,001

2,430,676

71.4%

Tennessee

7,214,162

4

13,399,081

20,613,243

35.0%

Texas

31,075,144

3

31,491,256

62,566,400

49.7%

Utah

1,918,498

1

2,036,447

3,954,945

48.5%

604,192

1

122,261

726,453

83.2%

Virginia

5,958,604

6

12,027,283

17,985,887

33.1%

Washington

7,651,726

1

16,545,379

24,197,105

31.6%

West Virginia

2,927,950

1

7,034,592

9,962,542

29.4%

Wisconsin

5,298,331

2

6,033,355

11,331,686

46.8%

Wyoming

762,117

1

325,550

1,087,667

70.1%

Guam

340,072

1

882,876

1,222,948

27.8%

Micronesia

1,553,623

1

556,697

2,110,320

73.6%

Puerto Rico

16,229,722

2

3,863,295

20,093,017

80.8%

304,344

1

1,255,329

1,559,673

19.5%

Total (states and
DC)

334,223,552

131

523,663,966

857,887,518

39.0%

Total (states, DC,
and territories)

352,651,313

134

530,222,163

882,873,476

39.9%

Vermont

Virgin Islands

Source: Table prepared by the Congressional Research Service, using data from the Legal Services Corporation,
Legal Services Corporation 2012 Fact Book, June 2013. This report can be found at http://www.lsc.gov/sites/lsc.gov/
files/LSC/lscgov4/2012Fact%20Book_FINAL.pdf

Author Contact Information
Carmen Solomon-Fears
Specialist in Social Policy
csolomonfears@crs.loc.gov, 7-7306

Congressional Research Service

19

 