.
Legislative Branch: FY2016 Appropriations
Ida A. Brudnick
Specialist on the Congress
May 13June 8, 2015
Congressional Research Service
7-5700
www.crs.gov
R44029
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Summary
The legislative branch appropriations bill provides funding for the Senate; House of
Representatives; Joint Items; Capitol Police; Office of Compliance; Congressional Budget Office
(CBO); Architect of the Capitol (AOC); Library of Congress (LOC), including the Congressional
Research Service (CRS); Government Publishing Office (GPO); Government Accountability
Office (GAO); and Open World Leadership Center.
The legislative branch FY2016 budget request of $4.528 billion was submitted on February 2,
2015. By law, the President includes the requests submitted by the legislative branch in the annual
budget without change. A budget amendment was transmitted by the President to Congress on
April 14, 2015.
The House and Senate Appropriations Committees’ Legislative Branch Subcommittees held
hearings in February and March to consider the FY2016 legislative branch requests.
The House subcommittee held a markup of its bill on April 23, 2015. The full committee met on
April 30, 2015, and agreed to (1) a manager’s amendment; (2) an amendment establishing a
House Technology Task Force; and (3) an amendment increasing the funding for Open World
(offset from funding from the Architect of the Capitol, Capitol Power Plant). All were adopted by
voice vote. One additional amendment was defeated (21- - 29) and two were withdrawn. The bill
would provide $3.341 billion (not including Senate items), equivalent to the FY2015 level. It was
ordered reported by voice vote (H.R. 2250, H.Rept. 114-110).
The House Rules Committee met on May 18 to discuss a structured rule for H.R. 2250. The rule
made in order three amendments. The committee voted, 9 - 4, to report the rule (H.Res. 271,
H.Rept. 114-120). H.Res. 271 was agreed to in the House (242 - 179) the next day.
H.R. 2250 was considered in the House on May 19. The three amendments included (1)
eliminating funding for Open World, which was agreed to (224 - 199); (2) prohibiting the use of
any funds for delivering printed copies of the Congressional Pictorial Directory, which was
agreed to (voice vote); and (3) providing for a 1% across-the-board reduction, with some
exceptions, which was not agreed to (172 - 250). The bill, as amended, was agreed to (357 - 67).
Legislative branch funding peaked in FY2010, and the FY2016 House-passed).
Legislative branch funding peaked in FY2010, and the FY2016 House-reported bill currently
remains below the FY2009 level of $4.501 billion. The Consolidated and Further Continuing
Appropriations Act, 2015 (P.L. 113-235, Division H, enacted December 16, 2014) provides
$4.300 billion, an increase of $41.7 million (1.0%) from the FY2014 funding level of $4.259
billion. The FY2013 act funded legislative branch accounts at the FY2012 enacted level, with
some exceptions (also known as “anomalies”), less across-the-board rescissions that applied to all
appropriations in the act, and not including sequestration reductions implemented on March 1.
The FY2012 level represented a decrease of $236.9 million (-5.2%) from the FY2011 level,
which itself represented a $125.1 million decrease (-2.7%) from FY2010.
The smallest of the appropriations bills, the legislative branch comprises approximately 0.4% of
total discretionary budget authority.
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Contents
FY2016 Consideration: Overview of Actions.................................................................................. 1
Status of FY2016 Appropriations: Dates of Action, Bill Numbers, and Reports ...................... 1
Submission of FY2016 Budget Request on February 2, 2015, and Budget
Amendment on April 14, 2015 ............................................................................................... 12
Senate and House Hearings on the FY2016 Budget Requests .................................................. 2
House Appropriations Committee Subcommittee on Legislative Branch Markup ................... 3
House Appropriations Committee Markup................................................................................ 3
Congressional Caps on Legislative Branch Funding: 302(b) Reports....................................... 4
House Rules Committee Consideration of a Special Rule ........................................................ 4
House Floor Consideration ........................................................................................................ 5
Funding in Prior Years: Brief Overview .......................................................................................... 45
FY2016 Legislative Branch Funding Issues .................................................................................... 78
Senate ........................................................................................................................................ 78
Overall Funding................................................................................................................... 78
Senate Committee Funding ................................................................................................. 78
Senators’ Official Personnel and Office Expense Account ................................................. 78
House of Representatives .......................................................................................................... 89
Overall Funding................................................................................................................... 89
House Committee Funding.................................................................................................. 89
Members’ Representational Allowance ............................................................................... 89
Support Agency Funding ........................................................................................................... 9 10
U.S. Capitol Police .............................................................................................................. 9 10
Office of Compliance ........................................................................................................ 1011
Congressional Budget Office (CBO) ................................................................................ 1011
Architect of the Capitol ..................................................................................................... 1112
Library of Congress (LOC) ............................................................................................... 1213
Government Publishing Office (GPO) .............................................................................. 1415
Government Accountability Office (GAO) ....................................................................... 1415
Open World Leadership Center ......................................................................................... 1516
John C. Stennis Center for Public Service Training and Development ............................. 1819
General Provisions................................................................................................................... 1819
Introduction to Summary Tables and Appendix ...................................................................... 1920
Tables
Table 1. Status of Legislative Branch Appropriations, FY2016 ...................................................... 1
Table 2. Dates of House and Senate Hearings on Legislative Branch Requests.............................. 2
Table 3. Legislative Branch Funding Since FY2004: Current and Constant Dollars ...................... 67
Table 4. Legislative Branch Appropriations: Funding Levels by Agency or Entity ...................... 2021
Table 5. Senate Appropriations ...................................................................................................... 2122
Table 6. House of Representatives Appropriations ........................................................................ 2223
Table 7. Capitol Police Appropriations .......................................................................................... 2324
Table 8. Architect of the Capitol Appropriations ........................................................................... 23
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Table A-1. Overview of Legislative Branch Appropriations: FY1998-FY2015 ............................ 25
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Appendixes
Appendix. Fiscal Year Information and Resources........................................................................ 2526
Contacts
Author Contact Information........................................................................................................... 27
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FY2016 Consideration: Overview of Actions
The first section of this report provides an overview of the consideration of FY2016 legislative
branch appropriations, with subsections covering each action, including
•
the initial submission of the request on February 2, 2015;
•
hearings held by the House and Senate Legislative Branch Subcommittees;
•
the House subcommittee markup on April 23, 2015;
•
the House Appropriations Committee markup on April 30, 2015; and
•
adoption of 302(b) suballocations;
•
consideration of a structured rule in the House Rules Committee on May 18,
2015 (H.Res. 271); and
•
consideration and passage of H.R. 2250 in the House on May 19, 2015.
It is followed by a section on prior year actions and funding, which contains historical tables.
The report then addresses the FY2016 budget requests, hearings, and requested administrative
language or other major funding issues for individual legislative branch agencies and entities.
Finally, Table 4 through Table 8 list enacted funding levels for FY2015 and requested levels for
FY2016, while the Appendix lists House, Senate, and conference bills and reports; public law
numbers; and enactment dates since FY1998.
Status of FY2016 Appropriations: Dates of Action, Bill Numbers,
and Reports
Table 1. Status of Legislative Branch Appropriations, FY2016
Conference Report
Approval
Committee Markup
House
4/30/15
Senate
House
Report
House
Passage
Senate
Report
Senate
Passage
Conference
Report
House
Senate
Public Law
H.R. 2250,
H.Rept. 114110
4/30/15H.R. 2250,
H.Rept. 114110
5/19/15
(357-67)
Senate
Report
Senate
Passage
Conference
Report
House
Senate
Public Law
Source: Congressional Research Service examination of congress.gov data.
Note: In recent years, the House has held a subcommittee markup prior to the full committee markup. The
House subcommittee held its markup on April 23, 2015.
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Submission of FY2016 Budget Request on February 2, 2015, and
Budget Amendment on April 14, 2015
The Budget for Fiscal Year 2016 was submitted on February 2, 2015. It contains a request for
$4.528 billion in new budget authority for legislative branch activities.1
1
Office of Management and Budget, Appendix, Budget of the United States Government, FY2016 (Washington: GPO,
2014), pp. 13-44, available at https://www.whitehouse.gov/sites/default/files/omb/budget/fy2016/assets/leg.pdf.
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By law, the legislative branch request is submitted to the President and included in the budget
without change.2
A budget amendment was transmitted by the President to Congress on April 14, 2015, also
without change. The amendment decreased the overall Senate request by $2.5 million, with
smaller decreases for the two joint offices with funding disbursed by the Secretary of the Senate.3
Senate and House Hearings on the FY2016 Budget Requests
Table 2 lists the dates of hearings of the legislative branch subcommittees in 2015. Prepared
statements of witnesses were posted on the subcommittee websites.
Table 2. Dates of House and Senate Hearings on Legislative Branch Requests
House of Representatives
Senate
—
March 12, 2015
House of Representatives
February 25, 2015
—
U.S. Capitol Police
February 25, 2015
March 12, 2015
Office of Compliance
—
—
Congressional Budget Office
—
March 10, 2015
Architect of the Capitol
February 26, 2015
March 17, 2015
Library of Congress, including the
Congressional Research Servicea
February 26, 2015
March 17, 2015
—
—
February 25, 2015
March 10, 2015
—b
—
Senate
Government Publishing Office
Government Accountability Office
Members/Public Witnesses
Source: Congressional Research Service examination of House and Senate Appropriations Committee websites.
Note:
a.
The Open World Leadership Center was discussed during the House hearing on the Library of Congress,
but no Open World staff provided testimony.
b.
The House subcommittee announced that it would accept programmatic and language submissions from
Members through March 18, 2015.
2
1
Office of Management and Budget, Appendix, Budget of the United States Government, FY2016 (Washington: GPO,
2014), pp. 13-44, available at https://www.whitehouse.gov/sites/default/files/omb/budget/fy2016/assets/leg.pdf.
2
Pursuant to 31 U.S.C. 1105, “Estimated expenditures and proposed appropriations for the legislative branch and the
judicial branch to be included in each budget ... shall be submitted to the President ... and included in the budget by the
President without change.” Division C of the FY2012 Consolidated Appropriations Act (P.L. 112-74) added language
to 31 U.S.C. 1107 relating to budget amendments, stating: “The President shall transmit promptly to Congress without
change, proposed deficiency and supplemental appropriations submitted to the President by the legislative branch and
the judicial branch.”
3
The other decreases were for the Joint Economic Committee (-$28,000) and the Office of Congressional Accessibility
Services (-$7,000). A decrease for the U.S. Tax Court (-$200,000), which appears within the legislative branch budget
request but is funded through the Financial Services and General Government Appropriations Act, was also included in
this amendment. Available at https://www.whitehouse.gov/sites/default/files/omb/assets/budget_amendments/
amendment_04_14_15.pdf.
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Source: Congressional Research Service examination of House and Senate Appropriations Committee websites.
Note:
a.
The Open World Leadership Center was discussed during the House hearing on the Library of Congress,
but no Open World staff provided testimony.
b.
The House subcommittee announced that it would accept programmatic and language submissions from
Members through March 18, 2015.
House Appropriations Committee Subcommittee on Legislative
Branch Markup
On April 23, 2015, the House Appropriations Committee Subcommittee on Legislative Branch
held a markup of the FY2016 bill. The subcommittee recommended $3.341 billion, not including
Senate items. No amendments were offered.
House Appropriations Committee Markup
On April 30, 2015, the House Appropriations Committee held a markup of the FY2016 bill. At
$3.341 billion (not including Senate items, which are determined by the Senate), the bill would
provide the same level of funding as in FY2015.
Three amendments were adopted, all by voice vote, including
•
a manager’s amendment which addressed report language related to committee
room renovations, encouraging the Capitol Police to relax enforcement of
sledding restriction on Capitol Hill, and communications and coordination
between the Capitol Police and the Washington Metropolitan Area Transit
Authority and other first responders;
•
an amendment offered to the report by Representative Wasserman Schultz
directing the House Chief Administrative Officer to establish a House
Technology Task Force, which is to identify opportunities to enhance
coordination of information technology efforts; and
•
an amendment offered by Representative Fortenberry increasing funding for the
Open World Leadership Center by $4.7 million, offset by a reduction to the
Capitol Power Plant. The amendment would also insert language limiting any
funds supporting Russian participants to those “engaging in free market
development, humanitarian activities, and civic engagement, and ... not ...
officials of the central government of Russia.”
Additional amendments, one defeated and two withdrawn, included
•
an amendment offered by Representative Wasserman Schultz directing the House
Chief Administrative Officer to issue a solicitation for, and select, a food services
contractor who provides a livable wage. The amendment was defeated, 21 yeas
and 29 nays;
•
an amendment offered and withdrawn by Representative Quigley related to the
publication of a list of nonconfidential CRS products; and
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an amendment offered and withdrawn by Representative Honda related to the
Office of Compliance and reports on discrimination based on sex and gender
identification.
The bill was ordered reported by voice vote (H.R. 2250, H.Rept. 114-110).
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Congressional Caps on Legislative Branch Funding: 302(b) Reports
After allocation of a total spending ceiling (referred to as a 302(a) allocation),4 the House and
Senate Appropriations Committees generally consider separate budget allocations for their
subcommittees, including the legislative branch. These suballocations (referred to as 302(b)
suballocations) include discretionary and mandatory funds. This process is derived from the
Congressional Budget Act of 1974. Total levels are established by the House and Senate budget
resolutions, and they may be influenced by additional legislation (e.g., the Budget Control Act of
2011, P.L. 112-25).
The House Appropriations Committee met to mark up its proposed suballocations on April 22,
2015. A motion to amend the suballocations was defeated 20-29, and the committee approved
them by voice vote. In its Report on the Suballocation of Budget Allocations for Fiscal Year 2016
(H.Rept. 114-97), issued April 29, the House Appropriations Committee indicated that it has
allocated $4.435 billion in total budget authority for the legislative branch, including $4.300
billion in discretionary spending and $135 million in mandatory spending.5 This is equivalent to
0.4% of “general purpose” (i.e., not including “Global War on Terror”) discretionary spending,
and 0.2% of total (all discretionary and mandatory) spending allocated to the House
Appropriations Committee subcommittees.
In its May 21, 2015, report, Allocation to Subcommittees of Budget Totals from the Concurrent
Resolution for Fiscal Year 2016, the Senate Appropriations Committee indicated that it has
allocated $4.444 billion in total budget authority for the legislative branch, including $4.309
billion in discretionary spending ($9.0 million more than the House allocation) and $135 million
in mandatory spending (equivalent to the House allocation).6
House Rules Committee Consideration of a Special Rule
The House Rules Committee met on May 18, to discuss a structured rule for H.R. 2250.
Of the 22 amendments proposed (including two withdrawn and three submitted after the
deadline), the rule made in order three.
The committee had two related roll call votes:
4
302(a) and 302(b) refer to the section of the Congressional Budget Act of 1974 (P.L. 93-344) addressing the
allocation of totals and reports by committees.
5
U.S. Congress, House Committee on Appropriations, Report on the Suballocation of Budget Allocations for Fiscal
Year 2016, 114th Cong., 1st sess., April 29, 2015, H.Rept. 114-97 (Washington: GPO, 2015), p. 2.
6
U.S. Congress, Senate Committee on Appropriations, Allocation to Subcommittees of Budget Totals from the
Concurrent Resolution for Fiscal Year 2016, 114th Cong., 1st sess., May 21, 2015, S.Rept. 114-55 (Washington: GPO,
2015), p. 3.
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1. The committee voted, 4 - 8, not to make in order and provide the appropriate
waivers for an amendment (#20, offered by Representative Polis) related to food
services contractors.
2. The committee voted, 9 - 4, to report the rule (H.Res. 271, H.Rept. 114-120).
H.Res. 271 was agreed to in the House (242 - 179) the next day.
House Floor Consideration
H.R. 2250 was debated in the House on May 19.
The House considered three amendments, including
1. an amendment offered by Representative Ratcliffe (H.Amdt. 239) eliminating
funding for Open World, and transferring the $5.7 million provided in the Housereported bill to the spending reduction account, which was agreed to (224 - 199);
2. an amendment offered by Representative Flores (H.Amdt. 240) prohibiting any
funds for delivering printed copies of the Congressional Pictorial Directory,
which was agreed to (voice vote); and
3. an amendment offered by Representative Blackburn (H.Amdt. 241) providing for
a 1% across-the-board reduction—with exceptions for the Capitol Police,
“Architect of the Capitol—Capitol Police Buildings, Grounds and Security,” and
funding for the House Office of the Sergeant at Arms—which was not agreed to
(172 - 250).
The bill, as amended, was agreed to (357 - 67).
Funding in Prior Years: Brief Overview
FY2015
FY2015 funding was provided in Division H of the Consolidated and Further Continuing
Appropriations Act, 2015 (P.L. 113-235), which was enacted on December 16, 2014. The $4.300
billion provided by the act represented an increase of $41.7 million (1.0%) from FY2014 and
$164.9 million (-3.7%) less than the request.
FY2014
Neither a legislative branch appropriations bill, nor a continuing appropriations resolution (CR),
containing FY2014 funding was enacted prior to the beginning of the fiscal year on October 1,
2013. A funding gap, which resulted in a partial government shutdown, ensued for 16 days. The
funding gap was terminated by the enactment of a CR (P.L. 113-46) on October 17, 2013. The CR
provided funding through January 15, 2014.67 Following enactment of a temporary continuing
7
The legislative branch previously experienced a funding gap in FY1996 (November 14-18, 1995).
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resolution on January 15, 2014 (P.L. 113-73), a consolidated appropriations bill was enacted on
January 17 (P.L. 113-76), providing $4.259 billion for the legislative branch for FY2014.
4
302(a) and 302(b) refer to the section of the Congressional Budget Act of 1974 (P.L. 93-344) addressing the
allocation of totals and reports by committees.
5
U.S. Congress, House Committee on Appropriations, Report on the Suballocation of Budget Allocations for Fiscal
Year 2016, 114th Cong., 1st sess., April 29, 2015, H.Rept. 114-97 (Washington: GPO, 2015), p. 2.
6
The legislative branch previously experienced a funding gap in FY1996 (November 14-18, 1995).
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FY2013
FY2013 funding of approximately $4.061 billion was provided by P.L. 113-6, which was signed
into law on March 26, 2013.78 The act funded legislative branch accounts at the FY2012 enacted
level, with some exceptions (also known as “anomalies”), and not including across-the-board
rescissions required by Section 3004 of P.L. 113-6. Section 3004 was intended to eliminate any
amount by which the new budget authority provided in the act exceeded the FY2013
discretionary spending limits in Section 251(c)(2) of the Balanced Budget and Emergency Deficit
Control Act, as amended by the Budget Control Act of 2011 and the American Taxpayer Relief
Act of 2012. Subsequent to the enactment of P.L. 113-6, OMB calculated that additional
rescissions of 0.032% of security budget authority and 0.2% of nonsecurity budget authority
would be required. The act did not alter the sequestration reductions implemented on March 1,
which reduced most legislative branch accounts by 5.0%.89 The accompanying OMB report
indicated a dollar amount of budget authority to be canceled in each account containing
nonexempt funds.910
FY2012 and Prior
Division G of the FY2012 Consolidated Appropriations Act (P.L. 112-74) provided $4.307 billion
for the legislative branch. This level was $236.9 million (-5.2%) below the FY2011 enacted level.
P.L. 112-10 provided $4.543 billion for legislative branch operations in FY2011. This level
represented a $125.1 million decrease from the $4.668 billion provided in the FY2010 Legislative
Branch Appropriations Act (P.L. 111-68) and the FY2010 Supplemental Appropriations Act (P.L.
111-212). The FY2009 Omnibus Appropriations Act provided $4.402 billion. In FY2009, an
additional $25.0 million was provided for the Government Accountability Office (GAO) in the
American Recovery and Reinvestment Act of 2009.1011 P.L. 111-32, the FY2009 Supplemental
Appropriations Act, also contained funding for a new Capitol Police radio system ($71.6 million)
and additional funding for the Congressional Budget Office (CBO) ($2.0 million).1112
As seen in Table 3, the legislative branch budget in constant dollars remains below the FY2004
level.
7
8
FY2013 level from the CBO cost estimate for “Continuing Appropriations Resolution, 2014 (H.J.Res. 59), Including
the Amendment Reported by the House Committee on Rules on September 18, 2013 (H.Res. 352) Discretionary
spending (in millions of dollars)” (http://www.cbo.gov/sites/default/files/cbofiles/attachments/hjres59amendment.pdf),
which lists a total for legislative branch budget authority of $4.061 billion, noting that it “includes effects of the 2013
sequestration.” This bill contained a small anomaly for the legislative branch.
89
White House, President Obama, Sequestration Order for Fiscal Year 2013 Pursuant to Section 251A of the Balanced
Budget and Emergency Deficit Control Act, As Amended, March 1, 2013, available at http://www.whitehouse.gov/
sites/default/files/2013sequestration-order-rel.pdf.
910
Executive Office of the President, Office of Management and Budget, OMB Report to the Congress on the Joint
Committee Sequestration for Fiscal Year 2013, March 1, 2013, http://www.whitehouse.gov/sites/default/files/omb/
assets/legislative_reports/fy13ombjcsequestrationreport.pdf.
1011
P.L. 111-5, February 17, 2009, 123 Stat. 191.
1112
U.S. Congress, conference committee, Making Supplemental Appropriations for the Fiscal Year Ending September
30, 2009, and for Other Purposes, report to accompany H.R. 2346, 111th Cong., 1st sess., H.Rept. 111-151
(Washington: GPO, 2009), p. 117.
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Table 3. Legislative Branch Funding Since FY2004: Current and Constant Dollars
(in billions of dollars)
Fiscal Year
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013
2014
2015
Current
Dollars
3.528a
3.640b
3.793c
3.852d
3.970
4.501e
4.669f
4.543g
4.307
4.061h
4.259
4.300
Constant
Dollars
4.404
4.407
4.448
4.407
4.392
4.966
5.079
4.842
4.497
4.175
4.313
4.300
Source: Congressional Research Service analysis of legislative branch appropriations acts and related budget
documents.
Notes: These figures exclude permanent budget authorities and contain supplementals and rescissions. Total
does not include permanent budget authorities, including funding for Member pay, that are not included in the
annual legislative branch appropriations bill. Constant dollars calculated using the “Total Non-Defense” deflator
in Table 10.1—Gross Domestic Product and Deflators Used in the Historical Tables: 1940–2020 in the President’s
FY2016 budget request.
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a.
This figure contains appropriations provided by P.L. 108-83 (the FY2004 Legislative Branch Appropriations
Act). Additional FY2004 provisions which did not contain appropriations were contained in P.L. 108-199
(the FY2004 Consolidated Appropriations Act).
b.
This number contains appropriations provided by P.L. 108-447 (the Consolidated Appropriations Act,
FY2005, adjusted by a 0.80% rescission also contained in P.L. 108-447), and P.L. 109-13 (the FY2005
Emergency Supplemental Appropriations Act).
c.
This number contains appropriations provided by P.L. 109-55 (the FY2006 Legislative Branch
Appropriations Act, adjusted by a 1.0% rescission contained in P.L. 109-148), and P.L. 109-234 (the FY2006
Emergency Supplemental Appropriations Act).
d.
This number contains appropriations provided by P.L. 110-5 (the Revised Continuing Appropriations
Resolution, 2007), and funding for the House of Representatives, Government Accountability Office, U.S.
Capitol Police, Architect of the Capitol, and gratuity payments provided in P.L. 110-28 (the U.S. Troop
Readiness, Veterans’ Care, Katrina Recovery, and Iraq Accountability Appropriations Act, 2007).
e.
This number contains appropriations provided by P.L. 110-161 (the FY2009 Omnibus Appropriations Act),
$25.0 million for the Government Accountability Office provided by P.L. 111-5 (the American Recovery and
Reinvestment Act of 2009), and $73.6 million provided by P.L. 111-32 for the U.S. Capitol Police and the
Congressional Budget Office (the Supplemental Appropriations Act, 2009).
f.
This number contains appropriations provided by P.L. 111-68 (the FY2010 Legislative Branch
Appropriations Act), and $12.96 million in supplemental appropriations provided for the U.S. Capitol Police
in P.L. 111-212 (the Supplemental Appropriations Act, 2010).
g.
This number does not include scorekeeping adjustment.
h.
FY2013 level obtained from the CBO cost estimate for “Continuing Appropriations Resolution, 2014
(H.J.Res. 59), Including the Amendment Reported by the House Committee on Rules on September 18,
2013 (H.Res. 352) Discretionary spending (in millions of dollars)” (http://www.cbo.gov/sites/default/files/
cbofiles/attachments/hjres59amendment.pdf), which lists a total for legislative branch budget authority of
$4.061 billion, noting that it “includes effects of the 2013 sequestration.” This bill contained a small anomaly
for the legislative branch.
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FY2016 Legislative Branch Funding Issues12Issues13
The following sections discuss the various legislative branch accounts as well as issues discussed
during the hearings on the budget requests.
Senate
Overall Funding
The Senate requested $930.4 million for FY2016 (including the budget amendment), a 7.6%
increase over the $864.3 million provided in FY2015.
Additional information on the Senate account is presented in Table 5.
Senate Committee Funding
Appropriations for Senate committees are contained in two accounts:
•
The inquiries and investigations account contains funds for all Senate
committees except Appropriations. The Senate requested $135.7 million for
inquiries and investigations (including the budget amendment), a 1.9% increase
from the FY2015 level of $133.3 million.
•
The Committee on Appropriations account contains funds for the Senate
Appropriations Committee. The Senate requested $15.4 million, an increase of
$289,000 (+1.9%) from the $15.1 million provided in FY2015.
Senators’ Official Personnel and Office Expense Account
The Senators’ Official Personnel and Office Expense Account (SOPOEA) provides each Senator
with funds to administer an office. It consists of an administrative and clerical assistance
allowance, a legislative assistance allowance, and an official office expense allowance. The funds
may be used for any category of expenses, subject to limitations on official mail.
The Senate requested $438.2 million for FY2016 (including the budget amendment), an increase
of $48.2 million (12.4%) from the $390.0 million provided in FY2014 and FY2015.
Highlights of the Senate Hearing on the FY2016 Budget Request
At the March 11, 2015, Senate hearing, the subcommittee discussed the request for a new Senate
financial management system, threat assessments and coordination with other entities,
preparations for dignitary visits as well as costs, the impact of current spending caps on office
operations, an outage of Senate computer systems, and recent disruptions in Senate hearings.
1213
This section contains information on the budget requests, hearings, and requested administrative provisions of the
House, Senate, and legislative branch agencies and entities. If no hearing or administrative provision is discussed, then
none was held (in the case of a hearing) or requested (in the case of a provision).
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House of Representatives
Overall Funding
The House requested $1.18 billion for FY2016, equivalent to the FY2014 and FY2015 level.1314
The FY2016 House-reportedpassed bill would continue this level.
Additional information on headings in the House of Representatives account is presented in Table
6.
House Committee Funding
Funding for House committees is contained in the appropriation heading “committee employees,”
which comprises two subheadings.
The first subheading contains funds for personnel and nonpersonnel expenses of House
committees, except the Appropriations Committee, as authorized by the House in a committee
expense resolution. The House requested, and the House-reportedpassed bill would provide, $123.9
million, continuing the funding level provided for FY2014 and FY2015.
The second subheading contains funds for the personnel and nonpersonnel expenses of the
Committee on Appropriations. The House requested, and the House-reportedpassed bill would provide,
$23.3 million, the same level as provided for FY2014 and FY2015.
Members’ Representational Allowance14Allowance15
The Members’ Representational Allowance (MRA) is available to support Members in their
official and representational duties. For FY2016, $554.3 million was requested, the same level as
provided for FY2014 and FY2015. The House-reported bill recommendedpassed bill would provide this level.
Highlights of the House Hearing on the FY2016 Budget Request
At the February 25, 2015, hearing, the subcommittee discussed a review by the House Inspector
General of procurement policies, funding for the Members’ Representational Allowance, current
challenges facing House officers, litigation costs, security during the State of the Union, and
addressing security threats.
Administrative Provisions
The House requested the continuation of administrative provisions from prior years related to
unexpended balances from the MRA; limiting amounts available from the MRA for leased
1314
Not including one gratuity paid to the heirs of a deceased Member in FY2014. The House-reportedpassed FY2016 bill
would would
also provide one gratuity.
1415
For additional information, see CRS Report R40962, Members’ Representational Allowance: History and Usage, by
Ida A. Brudnick.
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vehicles; and limiting or prohibiting the delivery of bills, resolutions, copies of the Congressional
Record, the U.S. Code, the Statement of Disbursements, and the Daily Calendar.
Support Agency Funding
U.S. Capitol Police
The U.S. Capitol Police (USCP) are responsible for the security of the Capitol Complex,
including the U.S. Capitol, the House and Senate office buildings, the U.S. Botanic Garden, and
the Library of Congress buildings and adjacent grounds.
The USCP requested $378.9 million for FY2016, an increase of $30.9 million (+8.9%) from the
$347.96 million the USCP received for FY2015.
The House-passed bill would provide $369.0 million (+$21.0 million, or 6.0%, from FY2015).
Additional information on the USCP is presented in Table 7.
Appropriations for the police are contained in two accounts—a salaries account and a general
expenses account. The salaries account contains funds for the salaries of employees; overtime
pay; hazardous duty pay differential; and government contributions for employee health,
retirement, Social Security, professional liability insurance, and other benefit programs. The
general expenses account contains funds for expenses of vehicles; communications equipment;
security equipment and its installation; dignitary protection; intelligence analysis; hazardous
material response; uniforms; weapons; training programs; medical, forensic, and communications
services; travel; relocation of instructors for the Federal Law Enforcement Training Center; and
other administrative and technical support, among other expenses.
•
Salaries—the Capitol Police requested $307.4 million for salaries, an increase of
$20.9 million (+7.3%) from the $286.5 million provided in FY2015. The HousereportedHousepassed bill would provide $300.0 million (+4.7%).
•
General Expenses—the Capitol Police requested $71.5 million for general
expenses, an increase of $10.0 million (+16.3%) from the $61.5 million provided
in FY2015. The House-reportedpassed bill would provide $69.0 million (+12.3%).
Another appropriation relating to the Capitol Police appears within the Architect of the Capitol
account for Capitol Police buildings and grounds. USCP requested $28.2 million, an increase of
$9.1 million (+47.4%) from the $19.2 million provided in FY2015. The House-reported bill
would passed bill would
provide $22.1 million (+15.1%).
Highlights of the House and Senate Hearings on the FY2016 Budget Request of
the U.S. Capitol Police
On February 25, 2015, the House subcommittee discussed reports of morale issues, the role and
mission of the Capitol Police, coordination with other police forces, the growth of the Capitol
Police, and wait times for clearing security and entering the House office buildings.
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At a hearing on March 12, 2015, the Senate subcommittee discussed officer morale, community
relations, drones, and weighing overtime costs versus hiring new officers.
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These hearings preceded the April 15, 2015, landing of a gyrocopter on the West Lawn of the
Capitol. The Chief of the Capitol Police and the House Sergeant at Arms, however, testified at a
House Oversight and Government Reform Committee hearing on this incident on April 29. The
Committee on House Administration also held an oversight hearing on the Capitol Police on May
20, and on June 3 for House officers, including the House Sergeant at Arms.
Administrative Provision
The Capitol Police requested one administrative provision, authorizing reimbursement from nongovernmental entities for non-congressionally sponsored activities. This language amends 2
U.S.C. 1905, which addresses reimbursement for law enforcement assistance from any federal,
state, or local government agency (including any agency of the District of Columbia). The HousereportedHousepassed bill contains this language.
Office of Compliance
The Office of Compliance is an independent and nonpartisan agency within the legislative
branch. It was established to administer and enforce the Congressional Accountability Act, which
was enacted in 1995.1516 The act applies various employment and workplace safety laws to
Congress and certain legislative branch entities.1617
The Office of Compliance requested $4.0 million for FY2016, an increase of $61,000 (+1.5%)
from the $3.96 million in the FY2015 act. The House Appropriations Committee recommended a
continuation of-passed bill would continue the FY2015
level.
Congressional Budget Office (CBO)
CBO is a nonpartisan congressional agency created to provide objective economic and budgetary
analysis to Congress. CBO cost estimates are required for any measure reported by a regular or
conference committee that may vary revenues or expenditures.17
CBO requested $47.3 million, an increase of $1.6 million (+3.4%), from the $45.7 million
provided in FY2015. The House-reported bill would provide the requested level.
1518
16
P.L. 104-1, 109 Stat. 3, January 23, 1995. The act, as amended, applies 12 civil rights, labor, and workplace safety
laws to Congress and certain legislative branch agencies. These laws are the Age Discrimination in Employment Act,
Americans with Disabilities Act, Title VII of the Civil Rights Act of 1964, Employee Polygraph Protection Act, Fair
Labor Standards Act, Family and Medical Leave Act, Federal Services Labor-Management Relations Act,
Occupational Safety and Health Act of 1970, Rehabilitation Act of 1970, Veterans’ employment and reemployment
rights at Chapter 43 of Title 38 of the U.S. Code, Worker Adjustment and Retraining Act, and Veterans Employment
Opportunities Act.
1617
Among the office’s activities are administration of a dispute resolution process, investigation and enforcement of
occupational safety and health and disability provisions of the act, investigation of labor relations and enforcement of
applicable provisions, and development of educational programs regarding the act’s provisions.
1718
The Congressional Budget Office is required to use estimates provided by the Joint Committee on Taxation for all
revenue legislation (Balanced Budget and Emergency Deficit Control Act of 1985, P.L. 99-177, §273, 99 Stat.1098,
December 12, 1985; 2 U.S.C. §621 (et seq.)).
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CBO requested $47.3 million, an increase of $1.6 million (+3.4%), from the $45.7 million
provided in FY2015. The House-passed bill would provide the requested level.
Highlights of the Senate Hearing on CBO’s FY2016 Budget Request
At a March 9, 2015, hearing, the Senate subcommittee discussed requested staff increases, the use
of contractors, a requested administrative provision related to nonimmigrant visas, scoring of
Energy Savings Performance Contracts (ESPCs), cost estimates for exchanges established by the
Affordable Care Act, and dynamic scoring.
The House did not hold a hearing on the CBO budget request.
Administrative Provisions
CBO requested two administrative provisions, including the following:
1. A provision that would make FY2016 funds available for the compensation of
employees in specialty occupations with nonimmigrant visas. Similar authority
has been requested, but not provided, since FY2012. The House-reportedpassed bill did
not contain this language.
2. A provision that would make up to 50% of FY2016 unobligated balances
available through the end of FY2017. Similar authority was requested, but not
provided, in FY2015. The House-reportedpassed bill did not contain this language.
Architect of the Capitol
The Architect of the Capitol (AOC) is responsible for the maintenance, operation, development,
and preservation of the U.S. Capitol Complex, which includes the Capitol and its grounds, House
and Senate office buildings, Library of Congress buildings and grounds, Capitol Power Plant,
Botanic Garden, Capitol Visitor Center, and Capitol Police buildings and grounds. The Architect
is responsible for the Supreme Court buildings and grounds, but appropriations for their expenses
are not contained in the legislative branch appropriations bill.
Overall Funding Levels
Operations of the Architect are funded in the following 10 accounts: general administration,
Capitol building, Capitol grounds, Senate office buildings, House office buildings, Capitol Power
Plant, Library buildings and grounds, Capitol Police buildings and grounds, Capitol Visitor
Center, and Botanic Garden.
The Architect requested $661.8 million for FY2016, an increase of $61.5 million (+10.2%) from
the FY2015 level of $600.3 million.
The House subcommittee mark would have provided $496.9 million, not including funding for
the Senate office buildings (a requested $84.7 million). An amendment offered by Representative
Fortenberry at the full committee markup, however, would decrease funding for the Architect of
the Capitol, Capitol Power Plant budget by $4.7 million to increase the budget of the Open World
Leadership Center. The House-reported and House-passed bill would provide $492.2 million.
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Additional funding information on the individual AOC accounts is presented in Table 8.
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Highlights of the House and Senate Hearings on the FY2016 Budget of the
Architect of the Capitol
Among the items discussed at the House subcommittee hearing on February 26, 2015, were the
deferred maintenance backlog, the Library’s request for additional storage at Fort Meade and
construction of Storage Module #5, commemorative trees and the AOC effort to incorporate
information about them on its website, Capitol Visitor Center cost overruns and an effort to not
have similar overruns with the Cannon House Office Building renewal project, and the
appropriate use of the historic buildings revitalization trust fund.
At a hearing on March 17, 2015, the Senate subcommittee discussed the restoration of the Capitol
Dome, including expectations for completion before the January 2017 presidential inauguration;
phasing and prioritization of projects, including the restoration for the Russell Senate Office
Building; stone deterioration; conservation of Union Square and the Grant Memorial; the
Alexander Calder “Mountains and Clouds” sculpture in the Hart Senate Office Building; contract
oversight; and the AOC-requested administrative provision related to the acquisition of the 7.34
acre parcel of land at Fort Meade.
Administrative Provisions
Three administrative provisions were requested for FY2016, including the following:
1. A provision prohibiting the use of funds for bonuses for contractors behind
schedule or over budget, first included in FY2015. The House-reportedpassed bill
included this provision;
2. A provision prohibiting scrims containing photographs of building facades during
restoration or construction projects performed by the Architect of the Capitol,
first included in FY2015. The House-reportedpassed bill included this provision; and
3. A provision authorizing the Architect of the Capitol to acquire the 7.34-acre
parcel of land from the Maryland State Highway Administration at Fort George
G. Meade, MD. The House-reportedpassed bill included this provision.
One additional provision, requiring an approved plan by the Comptroller General and the House
Appropriations Committee before certain obligations of funds for projects in excess of $5 million
can be made, was also included in the House-reportedpassed bill.
Library of Congress (LOC)
The Library of Congress serves simultaneously as Congress’s parliamentary library and the de
facto national library of the United States. Its broader services to the nation include the
acquisition, maintenance, and preservation of a collection of more than 158 million items18items19 in a
wide range of traditional and new media; service to the general public and scholarly and library
19
Figure obtained from the Annual Report of the Librarian of Congress for Fiscal Year 2013, Library of Congress,
Washington, DC, 2014, p. 9. Available at http://www.loc.gov/about/reports/.
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communities; administration of U.S. copyright laws by its Copyright Office; and administration
of a national program to provide reading material to the blind and physically handicapped. Its
direct services to Congress include the provision of legal research and law-related services by the
18
Figure obtained from the Annual Report of the Librarian of Congress for Fiscal Year 2013, Library of Congress,
Washington, DC, 2014, p. 9. Available at http://www.loc.gov/about/reports/.
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Law Library of Congress, and a broad range of activities by the Congressional Research Service
(CRS), including in-depth and nonpartisan public policy research, analysis, and legislative
assistance for Members and committees and their staff; congressional staff training; information
and statistics retrieval; and continuing legal education for Members of both chambers and
congressional staff.
The Library requested $624.5 million for FY2016, an increase of $33.6 million (+5.7%) from the
$590.9 million provided in FY2015. The House-reportedpassed bill would provide $591.4 million
(+0.1%). These figures do not include additional authority to spend receipts.1920
The FY2016 budget contains the following headings:
•
Salaries and expenses—The FY2015 act provided $413.0 million, the same level
as recommendedincluded in the House-reportedpassed FY2016 bill. The Library requested
$438.0 million
(+6.1%) for FY2016. These figures do not include $6.35 million
in authority to
spend receipts.
•
Copyright Office—The FY2015 act provided $20.7 million for the Copyright
Office. The Library requested $23.1 million (+11.5%) for FY2016, and the
House-reportedpassed bill would provide $21.2 million (+2.5%). These levels do not
include authority to spend receipts, which would increase by $2.2 million (from
$33.6 million to $35.8 million) in the FY2016 request and the House-reported
passed bill.
•
Congressional Research Service—The FY2015 act provided $106.9 million, the
same level recommended in the FY2016 House-reportedpassed bill. CRS had requested
$111.96 million, an increase of $5.0 million (+4.7%).
•
Books for the Blind and Physically Handicapped—The FY2015 act provided
$50.2 million, the same level recommended in the FY2016 House-reportedpassed bill.
The Library requested $51.4 million (+2.3%) for FY2016.
The Architect’s budget also contains funds for the Library buildings and grounds. The FY2015
act provided $42.2 million, and $65.8 million (+56.0%) was requested for FY2016. The HousereportedHousepassed bill would provide $36.6 million (-13.3%).
Highlights of the House and Senate Hearings on the FY2015 Budget of the
Library of Congress
At a hearing on February 26, 2015, the House subcommittee discussed copyright modernization
efforts, the Veterans and Civil Rights History Projects, the Library’s collection growth, storage
issues, and the ability of CRS to meet the needs of Congress with its current staffing level.
At a hearing on March 17, 2015, the Senate subcommittee discussed staffing requests, the
Library’s overseas offices, digitization, and the Copyright Office.
19
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Administrative Provision
The Library requested authority to obligate funds for reimbursable and revolving fund activities,
which was included in the House-reportedpassed bill. The regular provision establishing a ceiling for
obligational authority for these activities ($186.0 million in FY2016) was included in the HousereportedHousepassed bill.
Government Publishing Office (GPO)2021
GPO requested $120.0 million for FY2016, nearly the same as provided in FY2015 ($119.99
million). The House-reportedpassed bill would provide $110.2 million (-8.1%).
GPO’s budget authority is contained in three accounts. The FY2015 act renamed these accounts:
(1) congressional printing and binding became congressional publishing, (2) Office of
Superintendent of Documents (salaries and expenses) became Public Information Programs of the
Superintendent of Documents (salaries and expenses), and (3) the revolving fund became the
Government Publishing Office Business Operations Revolving Fund.
1. Congressional publishing—GPO requested $79.7 million for FY2016, the same
level as provided in FY2014 and FY2015 and in the FY2016 House-reportedpassed bill.
2. Public Information Programs of the Superintendent of Documents (salaries and
expenses)—GPO requested, and the House-reported bill recommendspassed bill would provide, $30.5
million for FY2016. This level is $1.0 million less (-3.2%) than the FY2015
level.
3. Government Publishing Office Business Operations Revolving fund—the
revolving fund supports the operation and maintenance of the Government
Publishing Office.2122 GPO requested $9.8 million, an increase of $1.0 million
(+11.5%) from the $8.8 million provided in FY2015. The House-reportedpassed bill
would not provide funding for the revolving fund.
Government Accountability Office (GAO)
GAO responds to requests for studies of federal government programs and expenditures. GAO
may also initiate its own work.2223
GAO requested $553.1 million for FY2016 (+5.9%). The House-reportedpassed bill would provide
$522.0 million, the same level as provided in FY2015.
These levels do not include offsetting collections ($25.5 million in the House-reportedpassed bill).23
2024
21
Formerly known as the Government Printing Office. For additional information on GPO, see CRS Report R40897,
Congressional Printing: Background and Issues for Congress, by R. Eric Petersen and Amber Hope Wilhelm.
2122
For additional information, see CRS Report R40939, Legislative Branch Revolving Funds, by Ida A. Brudnick and
Jacob R. Straus.
2223
GAO’s guidelines for initiating studies are contained in U.S. Government Accountability Office, GAO’s
Congressional Protocols, GAO-04-310G (Washington: GAO, 2004). Posted on the website of the Government
Accountability Office at http://www.gao.gov/special.pubs/d04310g.pdf.
2324
Offsetting collections include funds derived from reimbursable audits and rental of space in the GAO building.
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Administrative Provision
GAO requested one administrative provision, related to the sending and receiving of detailees to
other branches or agencies on a reimbursable, partially reimbursable, or nonreimbursable basis.
The House-reportedpassed bill contains a provision authorizing the receipt of detailees.
Highlights of House and Senate Hearings on the FY2016 GAO Budget
At the House hearing on February 25, 2015, the subcommittee discussed recent GAO products,
including those related to the implementation of the Affordable Care Act.
The Senate subcommittee met on March 10, 2015, and discussed the professional background of
employees, the operations of the newly established Center for Audit Excellence, and ways for
Congress to respond to GAO’s findings.
Open World Leadership Center
The Open World Leadership Center administers a program that supports democratic changes in
other countries by inviting their leaders to observe democracy and free enterprise in the United
States. The first program was authorized by Congress in 1999 to support the relationship between
Russia and the United States. The program encouraged young federal and local Russian leaders to
visit the United States and observe its government and society.
Established at the Library of Congress as the Center for Russian Leadership Development in
2000, the center was renamed the Open World Leadership Center in 2003, when the program was
expanded to include specified additional countries.2425 In 2004, Congress further extended the
program’s eligibility to other countries designated by the center’s board of trustees, subject to
congressional consideration.2526 The center is housed in the Library and receives services from the
Library through an inter-agency agreement.
As in previous years, Open World was the subject of lengthy discussion during a House FY2016
hearing,26 the 27 the House Appropriations subcommittee markup, and the full committee markup, and on
the House floor.
Open World requested $8.0 million for FY2016, the same level it has requested since FY2014.
The request represents an increase of 40.4% from the $5.7 million provided in FY2015. The
House subcommittee mark proposed $1.0 million for an orderly shutdown of Open World.
Language in the full committee print, released prior to the markup of the FY2016 bill, stated,27
2428
25
P.L. 106-554, 114 Stat. 2763, 2763A-120, December 21, 2000; P.L. 108-7, 117 Stat. 382, February 20, 2003.
According to the 2003 act, the additional countries include “any country specified in §3 of the FREEDOM Support Act
(22 U.S.C. 5801),” and “Estonia, Latvia, and Lithuania.” The countries specified in 22 U.S.C. 5801 are Armenia,
Azerbaijan, Belarus, Georgia, Kazakhstan, Kyrgyzstan, Moldova, Russia, Tajikistan, Turkmenistan, Ukraine, and
Uzbekistan.
2526
P.L. 108-447, 118 Stat. 3192, December 8, 2004.
2627
The Open World Leadership Center was discussed during the House hearing on the Library of Congress on February
26, 2015, but no Open World staff provided testimony.
2728
Available at http://appropriations.house.gov/uploadedfiles/hrpt-114-hr-fy2016-legbranch.pdf.
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The Committee believes given our current fiscal environment, and in light of both the lack of
quantifiable results from the Open World Leadership Center and its duplication of programs
more appropriately offered by the State Department, the program has long outlived its shortterm intent. The Committee has provided an allocation to be used for the orderly shutdown
during fiscal year 2016 of the Open World Leadership Center.
An amendment offered by Representative Fortenberry at the full committee markup would add
$4.7 million for Open World, offset from funding for the “Architect of the Capitol, Capitol Power
Plant” budget. The operations of Open World, including assessments of its impact, were discussed
prior to the adoption (by voice vote) of the amendment.
Ongoing
An amendment made in order by the House Rules Committee proposed the elimination of the
$5.7 million included in the House-reported bill for Open World and would apply the savings to
the spending reduction account. The amendment, H.Amdt. 239, was agreed to (224 - 199).
Open World was also the subject of two amendments proposed but not made in order by the
House Rules Committee: (1) one amendment submitted would have redirected the $4.7 million
added to Open World during the full committee markup back to the “Architect of the Capitol,
Capitol Power Plant”; and (2) one amendment would have redirected $2.5 million from Open
World to re-institute the Office of Technology Assessment (OTA).
Prior Year Discussion of Location and Funding of Open World
The location and future of Open World, attempts to assess its effectiveness, and its inclusion in
the legislative branch budget, have been discussed at appropriations hearings and in report
language for more than a decade. The funding level for Open World has also varied greatly during
this period, although it has decreased each year since FY2009.
For FY2015, the House committee recommended $3.4 million, while the Senate committee
recommended $5.7 million. Both reports discussed the conflict in Ukraine and Open World’s
activities in the region. The FY2015 act provided $5.7 million.
For FY2014, the House subcommittee mark would have provided $1.0 million. An amendment to
restore funding for Open World to the FY2013 post-sequester level was debated and withdrawn
during the full committee markup. The House committee report stated,
For many years the Committee has had concern with the placement of the Open World
Leadership Center (OWLC) in the Legislative Branch. The Committee understands the
program has some strong champions on the Committee. However, with further reductions
being made to every program within the Legislative Branch, the Committee has provided
$1,000,000 to cover the cost associated with the shutdown of the OWLC. The Committee
directs the Executive Director of the OWLC to retain any necessary prior year funds in the
Trust to cover any cost in excess of the $1,000,000 provided in this bill be utilized for the
orderly shutdown. The Executive Director is further directed that the program termination is
to be finalized within one year of enactment of the Legislative Branch fiscal year 2014
appropriation bill.2829
29
U.S. Congress, House Committee on Appropriations, FY2014 Legislative Branch Appropriations Bill, H.Rept. 113173, report to accompany H.R. 2792 (Washington: GPO, 2013), p. 20.
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The FY2014 Senate-reported bill would have provided $4.0 million, as well as a provision
allowing the Librarian of Congress to transfer up to $6.0 million in nonappropriated funds to
Open World. The final enacted FY2014 level was $6.0 million.
The FY2013 House-reported bill would have provided $1.0 million, a decrease of $9.0 million
(-90.0%), from the $10.0 million provided in FY2012 and requested for FY2013. The House
report stated that this funding level would “cover the cost associated with the shutdown” and
directed that “the program termination is to be finalized within one year of enactment of the
Legislative Branch fiscal year 2013 appropriations bill.”29 H.Amdt. 1281, agreed to by recorded
28
U.S. Congress, House Committee on Appropriations, FY2014 Legislative Branch Appropriations Bill, H.Rept. 113173, report to accompany H.R. 2792 (Washington: GPO, 2013), p. 20.
29
U.S. Congress, House Committee on Appropriations, FY2013 Legislative Branch Appropriations Bill, H.Rept. 112511, report to accompany H.R. 5882 (Washington: GPO, 2012), p. 42.
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30 H.Amdt. 1281, agreed to by recorded
vote (204-203, Roll no. 373), eliminated this funding. At the Senate FY2013 budget request
hearing on March 1, 2012, the subcommittee discussed potential options for increasing private
funding, including the hire of a development professional. The Senate-reported bill would have
provided $10.0 million. The FY2013 act provided $8.0 million, not including sequestration or the
across-the-board rescission.3031
The House-passed FY2012 bill (H.R. 2551) would have provided $1.0 million, a decrease of
91.2% from FY2011. The House report stated, “The program has some strong champions on the
Committee, but with reductions being made to most every program within the Federal budget the
Committee has elected to shut down the program and recommends $1,000,000 for shutdown
expenses.”3132 The Senate-reported bill, in contrast, would have provided $10.0 million (-12.1%).
The Senate report stated that “despite the fiscal constraints of the budget this program is
necessary for the promotion of democratic principles in countries with historically oppressive
rule.”3233 The FY2012 act contained the Senate-reported level.
The FY2011 level of $11.4 million represented a decrease of $623,000 (-5.2%) from the $12.0
million provided for FY2010.
The FY2010 level represented a decrease of $1.9 million (-13.7%) from FY2009. Additionally,
the FY2010 House Appropriations Committee report stated that “the Legislative Branch
Subcommittee has been clear that it expects the Open World program to become financially
independent of funding in this bill as soon as possible.”3334 This sentiment was also expressed in
the conference report, which stated,
The conferees are fully supportive of expanded efforts of the Open World Center to raise
private funding and expect this effort to reduce the requirements for funding from the
Legislative Branch appropriations bill in future years. The Committees look forward to a
report of progress being made by the Center’s fundraising program prior to hearings on its
fiscal year 2011 budget request.34
The FY2009 level of $13.9 million was a $4.92 million increase (+54.8%) from FY2008. The
location within the legislative branch was discussed during a hearing on the FY2009 budget.
Ambassador John O’Keefe, the executive director of Open World, testified that the program may
attract different participants if associated with the executive branch rather than the Library of
Congress, which may be seen as more neutral and nonpartisan.35 The FY2009 explanatory
30
35
30
U.S. Congress, House Committee on Appropriations, FY2013 Legislative Branch Appropriations Bill, H.Rept. 112511, report to accompany H.R. 5882 (Washington: GPO, 2012), p. 42.
31
The rescission equaled 0.032% for security programs, as defined by 250(c)(4)(B) of the Balanced Budget and
Emergency Deficit Control Act of 1985.
3132
U.S. Congress, House Appropriations Committee, FY2012 Legislative Branch Appropriations Bill, report to
accompany H.R. 2551, H.Rept. 112-148 (Washington: GPO, 2011), p. 28.
3233
U.S. Congress, Senate Appropriations Committee, FY2012 Legislative Branch Appropriations Bill, report to
accompany H.R. 2551, S.Rept. 112-80 (Washington: GPO, 2011), p. 45.
3334
U.S. House of Representatives, Committee on Appropriations, Legislative Branch Appropriations Bill, 2010, H.Rept.
111-160, (Washington: GPO, 2009), p. 29.
3435
U.S. Congress, Legislative Branch Appropriations, 2010, H.Rept. 111-265, conference report to accompany H.R.
2918 (Washington: GPO, 2009), p. 42.
35
Testimony of Ambassador John O’Keefe, executive director, U.S. Congress, House Committee on Appropriations,
Subcommittee on the Legislative Branch, Legislative Branch Appropriations for 2009, hearings, 110th Cong., 2nd sess.,
March 12, 2008 (Washington: GPO, 2008), pp. 359-420.
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The FY2009 level of $13.9 million was a $4.92 million increase (+54.8%) from FY2008. The
location within the legislative branch was discussed during a hearing on the FY2009 budget.
Ambassador John O’Keefe, the executive director of Open World, testified that the program may
attract different participants if associated with the executive branch rather than the Library of
Congress, which may be seen as more neutral and nonpartisan.36 The FY2009 explanatory
statement directed the Open World Leadership Center Board of Trustees to work with the State
Department and the judiciary to establish a shared funding mechanism.3637
The $8.98 million provided in FY2008 represented a decrease of $4.88 million (-35.2%) from the
$13.86 million provided in FY2007 and FY2006. The location of Open World was also discussed
during the FY2008 appropriations cycle,3738 and language was included in the FY2008
Consolidated Appropriations Act requiring Open World to prepare a report by March 31, 2008, on
“potential options for transfer of the Open World Leadership Center to a department or agency in
the executive branch, establishment of the Center as an independent agency in the executive
branch, or other appropriate options.”3839
In 2004, GAO issued a report on the Open World program, examining program participation,
purpose, and accountability.3940
John C. Stennis Center for Public Service Training and Development
The center was created by Congress in 1988 to encourage public service by congressional staff
through training and development programs.4041 The center requested $430,000 for FY2016, the
same as provided in the FY2015 and FY2014 acts and proposed in the FY2016 House-reported
passed bill.
General Provisions
As in past years, the budget request contained a number of recurring general provisions, including
those that would
•
prohibit appropriated funds for the maintenance and care of private vehicles;
•
limit funds to FY2016 unless otherwise expressly provided;
•
make any changes in rates of compensation and designation permanent;
•
make consulting services contracts a matter of public record;
•
authorize the costs of Legislative Branch Financial Managers Council (LBFMC);
•
authorize landscape maintenance by the AOC in a specified area;
•
limit transfers to those authorized by law; and
36
(...continued)
2918 (Washington: GPO, 2009), p. 42.
36
Testimony of Ambassador John O’Keefe, executive director, U.S. Congress, House Committee on Appropriations,
Subcommittee on the Legislative Branch, Legislative Branch Appropriations for 2009, hearings, 110th Cong., 2nd sess.,
March 12, 2008 (Washington: GPO, 2008), pp. 359-420.
37
Congressional Record, February 23, 2009, p. H2398.
38
In H.R. 2771 (110th Cong.), the House-passed version of the FY2008 appropriations bill, the House Appropriations
Committee recommended $6.0 million for Open World. The committee report stated that an additional $6.0 million
would be provided for transfer to the program in the FY2008 State, Foreign Operations, and Related Programs
appropriation. The House-passed bill, which retained the committee-recommended funding level, also contained an
administrative provision transferring the Open World Leadership Center to the Department of State effective October 1,
2008. The Senate-reported bill (S. 1686, 110th Cong.) would have provided $13.5 million in new budget authority for
Open World.
3839
P.L. 110-161, 121 Stat. 2251, December 26, 2007.
3940
Available at http://gao.gov/assets/250/241737.pdf.
4041
2 U.S.C. 1105. See also http://www.stennis.gov/.
37
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.•
make any changes in rates of compensation and designation permanent;
•
make consulting services contracts a matter of public record;
•
authorize the costs of Legislative Branch Financial Managers Council (LBFMC);
•
authorize landscape maintenance by the AOC in a specified area;
•
limit transfers to those authorized by law; and
•
prohibit restrictions on guided staff tours of the Capitol with limited exceptions.
There is also one new provision in the request that would
•
authorize battery recharging stations in parking areas under the jurisdiction of the
Librarian of Congress.
The House-reported bill contains Appropriations Committee included all of these general provisions. It also contains in its reported bill,
and added two more, including
•
a provision prohibiting a cost of living adjustment for Members of Congress in
FY2016. Members of Congress last received a pay adjustment in January 2009.
Absent either a statutory prohibition for Member pay or automatic limitations
related to the General Schedule (GS), Members would receive a maximum of
1.7%, or $3,000, in January 2016. The legislative branch bill does not contain
language funding or increasing Member pay, and a provision prohibiting the
automatic Member pay adjustments could be included in any bill, or be
introduced as a separate bill; and
•
a provision establishing a spending reduction account.
An amendment, H.Amdt. 240, agreed to in the House added an additional general provision that
would
•
prohibit funds made available by the act from being used to deliver a printed
copy of the Congressional Pictorial Directory to a Member of the House.
All of these provisions were included in the House-passed version of H.R. 2250.
Introduction to Summary Tables and Appendix
Table 4 through Table 8 provide information on funding levels for the legislative branch overall,
the Senate, the House of Representatives, the Capitol Police, and the Architect of the Capitol.
The tables are followed by an Appendix, which lists House, Senate, and conference bills and
reports, public law numbers, and enactment dates since FY1998.
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Table 4. Legislative Branch Appropriations: Funding Levels by Agency or Entity
(in thousands of dollars)
Entity
FY2015
Enacted
FY2016
House
SubcommitteeRequested
FY2016
RequestedHouse
FY2016
Senate
FY2016
Enacted
Title 1: Legislative Branch Appropriations
Senate
$864,286
$930,403
—
House of Representatives (discretionary)
1,180,735
1,180,735
1,180,735
House of Representatives (mandatory)
174
19,056
19,767
19,469
347,959
378,900
369,000
3,959
4,020
3,959
45,700
47,270
47,270
Architect of the Capitol
600,261
661,758
492,171
Library of Congress, Including CRS
590,921
624,502
591,431
Congressional Research Service, Lib. of Cong.
106,945
111,956
106,945
Government PrintingPublishing Office
119,993
120,000
110,236
Government Accountability Office
522,000
553,058
522,000
Open World Leadership Center
5,700
8,000
5,7000
Stennis Center for Public Service
430
430
430
-1,000
0
-1,000
0
0
0
$4,300,000
$4,528,879
$3,341,575
Joint
Itemsa
335,875
Joint Itemsa
Capitol Police
Office of Compliance
Congressional Budget Office
Other
Title II: General Provisions
Total Legislative Branch
Source: P.L. 113-235, the Budget for Fiscal Year 2016, and H.Rept. 114-110, and CRS calculations.
Notes:
a.
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The FY2016 budget request contains the following under “Joint Items”: the Joint Economic Committee, the Joint Committee on Taxation, the Office of the
Attending Physician, and the Office of Congressional Accessibility Services.
.
Table 5. Senate Appropriations
(in thousands of dollars)
Accounts
Payments—Heirs of Deceased Members of
Congress
FY2015
Enacted
FY2016
Requesteda
FY2016
Houseb
$0
$0
—
205
203a
—
177,723
184,463a
—
5,409
5,643a
—
1,120
1,133a
—
28
28
—
Contingent Expenses (subtotal)
679,801
738,933a
—
Inquiries and Investigations
133,265
135,747a
—
508
516a
—
6,250
8,750
—
128,300
133,974
—
21,178
21,401
—
390,000
438,245a
—
300
300
—
$864,286
$930,403
—
Expense Allowances and Representation
Salaries, Officers, and Employees
Office of Legislative Counsel
Office of Legal Counsel
Expense Allowances for Secretary of Senate, et al.
Senate Intl. Narcotics Caucus
Secretary of the Senatec
Sergeant at Arms/Doorkeeperd
Miscellaneous Items
Senators’ Official Personnel and Office Expense
Account
Official Mail Costs
Total, Senate
FY2016
Senate
Source: P.L. 113-235 and the Budget for Fiscal Year 2016. Total calculated by CRS.
Notes:
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a.
Includes a budget amendment transmitted on April 14, 2015.
b.
By tradition, the House does not consider appropriations for Senate operations.
c.
Office operations of the Office of the Secretary of the Senate are also funded under “Salaries, Officers, and Employees.”
d.
Office operations of the Office of Sergeant at Arms and Doorkeeper are also funded under “Salaries, Officers, and Employees.”
CRS-2122
FY2016
Enacted
.
Table 6. House of Representatives Appropriations
(in thousands of dollars)
Accounts
Payments—Heirs of Deceased Members of Congress
FY2016
Requested
FY2016
House
—
—
$174
22,278
22,278
22,278
Members’ Representational Allowance
554,318
554,318
554,318
Committee Employees (subtotal)
147,174
147,174
147,174
123,903
123,903
123,903
23,271
23,271
23,271
171,345
177,869
175,714
Office of the Clerk
24,009
24,981
24,981
Office of the Sergeant at Arms
11,927
14,827
14,827
113,100
117,165
115,010
Office of Inspector General
4,742
4,742
4,742
Office of General Counsel
1,341
1,413
1,413
Office of the Parliamentarian
1,952
1,975
1,975
Office of the Law Revision Counsel
4,088
3,120
3,120
Office of the Legislative Counsel
8,893
8,353
8,353
Office of Interparliamentary Affairs
814
814
814
Other Authorized Employees
479
479
479
285,620
279,096
281,251
4,153
3,625
3,625
190
190
190
256,636
252,164
254,448
16,217
16,289
16,217
House Leadership Offices
Standing Committees, Special and Select, except Appropriations
Appropriations Committee
Salaries, Officers, and Employees (subtotal)
Office of Chief Administrative Officer
Allowances and Expenses (subtotal)
Supplies, Materials, Administrative Costs and Federal Tort Claims
Official Mail for committees, leadership, administrative and legislative
offices
Government Contributions
Business Continuity and Disaster Recovery Emergency Appropriations
CRS-22
FY2016
Requested
—
House Leadership Offices
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FY2015
Enacted
FY2016
Senatea
FY2016
Enacted
.
FY2015
Enacted
Accounts
FY2016
Requested
FY2016
House
Miscellaneous Items
720
720
720
Transition Activities
3,737
2,084
2,084
Wounded Warrior Program
2,500
2,500
2,500
Office of Congressional Ethics
1,467
1,524
1,467
1,180,735
1,180,735
1,180,735b
House of Representatives, Total
FY2016
Senatea
Sources: P.L. 113-235, the Budget for Fiscal Year 2016, and H.Rept. 114-110. Numbers may not add due to rounding.
a.
By tradition, the Senate does not consider appropriations for House operations
b.
Not including the “Payments—Heirs of Deceased Members of Congress.”
Table 7. Capitol Police Appropriations
(in thousands of dollars)
Accounts
Salaries, Capitol Police
General Expenses
Total, Capitol Police
FY2015
Enacted
FY2016
Requested
FY2016
House
FY2016
Senate
$286,500
$307,428
$300,000
61,459
71,472
69,000
347,959
378,900
369,000
FY2016
Enacted
Source: P.L. 113-235, the Budget for Fiscal Year 2016, and H.Rept. 114-110.
Table 8. Architect of the Capitol Appropriations
(in thousands of dollars)
Accounts
General administration/Capitol
Construction and Operationsa
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CRS-24
FY2015
Enacted
FY2016
Requested
FY2016
House
$91,455
$95,396
$90,946
Capitol building
54,665
58,052
46,737
Capitol grounds
11,973
15,273
11,880
FY2016
Senate
FY2016
Enacted
FY2016
Enacted
.
Accounts
Senate office buildings
FY2015
Enacted
FY2016
Requested
FY2016
House
FY2016
Senate
FY2016
Enacted
94,313
84,748
—b
House office buildings
89,447
90,282
149,962
—c
House Historic Buildings
Revitalization Fund
70,000
70,000
10,000
—c
Capitol Power Plantd
90,652
120,803
91,550
Library buildings and grounds
42,180
65,801
36,589
Capitol Police buildings and grounds
19,159
28,247
22,058
Botanic garden
15,573
12,113
11,892
Capitol Visitor Center
20,844
21,043
20,557
$600,261
$661,758
$492,171
House of Representatives
Total, Architect of the Capitol
Source: P.L. 113-235, the Budget for Fiscal Year 2016, and H.Rept. 114-110.
Notes:
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a.
The FY2016 budget request, as well as the House subcommittee mark, would rename the “General Administration” account the “Capitol Construction and
Operations” account.
b.
The House does not consider appropriations for Senate office buildings.
c.
The Senate does not consider appropriations for House office buildings.
d.
Not including offsetting collections.
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.
Appendix. Fiscal Year Information and Resources
Table A-1. Overview of Legislative Branch Appropriations: FY1998-FY2015
House, Senate, Conference, and CRS Reports and Related Legislative Vehicles
Fiscal
Year
CRS
Report
Senate
Conference
H.Rept.
113-417
(H.R.
4487)
S.Rept.
113-196
(H.R.
4487)
explanatory
materials
inserted into the
Congressional
Record
(H.R. 83)
12/16/2014
(P.L. 113235)
Consolidated and
Further Continuing
Appropriations Act,
2015
CRS Report R43557,
Legislative Branch:
FY2015 Appropriations
H.Rept.
113-173
(H.R.
2792)
S.Rept.
113-70
(S. 1283)
explanatory
materials
inserted into the
Congressional
Record
(H.R. 3547)
1/17/2014
(P.L. 113-76)
Consolidated
Appropriations Act,
2014
CRS Report R43151,
Legislative Branch:
FY2014 Appropriations
2013
H.Rept.
112-511
(H.R.
5882)
S.Rept.
112-197
(H.R.
5882)
3/26/2013
(P.L. 113-6)
Consolidated and
Further Continuing
Appropriations Act,
2013
CRS Report R42500,
Legislative Branch:
FY2013 Appropriations
2012
H.Rept.
112-148
(H.R.
2551)
S.Rept.
112-80
(H.R.
2551)
12/23/2011
(P.L. 112-74)
Consolidated
Appropriations Act,
2012
CRS Report R41870,
Legislative Branch:
FY2012 Appropriations
4/15/2011
(P.L. 112-10)
Department of
Defense and Full-Year
Continuing
Appropriations Act,
2011
CRS Report R41214,
Legislative Branch:
FY2011 Appropriations
H.Rept. 111-265
(H.R. 2918)
10/1/2009
(P.L. 111-68)
Legislative Branch
Appropriations Act,
2010
CRS Report R40617,
Legislative Branch:
FY2010 Appropriations
explanatory
materials
inserted into the
Congressional
Record and
issued in a
committee print
(H.R. 1105)
3/11/2009
(P.L. 111-8)
Omnibus
Appropriations Act,
2009
CRS Report RL34490,
Legislative Branch:
FY2009 Appropriations
explanatory
materials
inserted into the
Congressional
Record
(H.R. 2764)
12/26/2007
(P.L. 110161)
Consolidated
Appropriations Act,
2008
CRS Report RL34031,
Legislative Branch:
FY2008 Appropriations
2015
2014
2011
___
2010
H.Rept.
111-160
(H.R.
2918)
2009
2008
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Report
Senate
2015
___
H.Rept.
110-198
(H.R.
2771)
S.Rept.
111-294
(S. 3799)
S.Rept.
111-29
(S. 1294)
___
S.Rept.
110-89
(S. 1686)
Congressional Research Service
___
H.Rept. 112-331
(H.R. 2055)
Enacted
Enactment
Vehicle Title
House
___
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.
Fiscal
Year
House
Senate
2007
H.Rept.
109-485
(H.R.
5521)
S.Rept.
109-267
(H.R.
5521)
2006
H.Rept.
109-139
(H.R.
2985)
S.Rept.
109-89
(H.R.
2985)
2005
H.Rept.
108-577
(H.R.
4755)
Conference
Enacted
Enactment
Vehicle Title
CRS
Report
2/15/2007
(P.L. 110-5)
Revised Continuing
Appropriations
Resolution, 2007
CRS Report RL33379,
Legislative Branch:
FY2007 Appropriations
H.Rept. 109-189
(H.R. 2985)
8/02/2005
(P.L. 109-55)
FY2006 Legislative
Branch
Appropriations Act
CRS Report RL32819,
Legislative Branch:
FY2006 Appropriations
S.Rept.
108-307
(S. 2666)
H.Rept. 108-792
(H.R. 4818)
12/8/2004
(P.L. 108447)
Consolidated
Appropriations Act,
2005
CRS Report RL32312,
Appropriations for
FY2005: Legislative
Branch
2004
H.Rept.
108-186
(H.R.
2657)
S.Rept.
108-88
(S. 1383)
H.Rept. 108-279
(H.R. 2657)
9/30/2003
(P.L. 108-83)
Legislative Branch
Appropriations Act,
2004
CRS Report RL31812,
Appropriations for
FY2004: Legislative
Branch
2003
H.Rept.
107-576
(H.R.
5121)
S.Rept.
107-209
(S. 2720)
2/20/2003
(P.L. 108-7)
Consolidated
Appropriations
Resolution, 2003
CRS Report RL31312,
Appropriations for
FY2003: Legislative
Branch
2002
H.Rept.
107-169
(H.R.
2647)
S.Rept.
107-37
(S. 1172)
H.Rept. 107-259
(H.R. 2647)
11/12/2001
(P.L. 107-68)
Legislative Branch
Appropriations Act,
2002
CRS Report RL31012,
Appropriations for
FY2002: Legislative
Branch
2001
H.Rept.
106-635
(H.R.
4516)
S.Rept.
106-304
(S. 2603)
H.Rept. 106-796
(H.R. 4516,
incorporated
into H.R. 4577)
12/21/2000
(P.L. 106554)
Consolidated
Appropriations Act,
2001
CRS Report RL30512,
Appropriations for
FY2001: Legislative
Branch
2000
H.Rept.
106-156
(H.R.
1905)
S.Rept.
106-75
(S. 1206)
H.Rept. 106-290
(H.R. 1905)
9/29/1999
(P.L. 106-57)
Legislative Branch
Appropriations Act,
2000
CRS Report RL30212,
Appropriations for
FY2000: Legislative
Branch
1999
H.Rept.
105-595
(H.R.
4112)
S.Rept.
105-204
S. 2137)
H.Rept. 105-734
(H.R. 4112)
10/21/1998
(P.L. 105275)
Legislative Branch
Appropriations Act,
1999
CRS Report 98-212,
Appropriations for
FY1999: Legislative
Branch
1998
H.Rept.
105-196
(H.R.
2209)
S.Rept.
105-47
(S. 1019)
H.Rept. 105-254
(H.R. 2209)
10/7/1997
(P.L. 105-55)
Legislative Branch
Appropriations Act,
1998
CRS Report 97-212,
Appropriations for
FY1998: Legislative
Branch
___
___
Source: Congressional Research Service examination of LIS.
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Author Contact Information
Ida A. Brudnick
Specialist on the Congress
ibrudnick@crs.loc.gov, 7-6460
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