This page shows textual changes in the document between the two versions indicated in the dates above. Textual matter removed in the later version is indicated with red strikethrough and textual matter added in the later version is indicated with blue.
This report provides basic information on congressional salaries and allowances and recent developments.
First, the report briefly summarizes the current salary of Members of Congress; limits or prohibitions on their outside earned income, honoraria, and tax deductions; options for life and health insurance; and retirement benefits.
Second, the report provides information on allowances available to Representatives and Senators to support them in their official and representational duties. These allowances cover official office expenses, including staff, mail, travel between a Member's district or state and Washington, DC, equipment, and other goods and services. Although the House and Senate allowances are structured differently, both are determined by formulas based on variables from the district or state (i.e., distance from Washington, DC).
Third, the report lists the salaries of Members, House and Senate officers and officials, and salary limits for staff of committees and Member offices.
Additional information on many of these topics may be found in reports referenced throughout.
The compensation for most Senators, Representatives, Delegates, and the Resident Commissioner from Puerto Rico is $174,000.
The only exceptions include the Speaker of the House (salary of $223,500) and the President pro tempore of the Senate and the majority and minority leaders in the House and Senate (salary of $193,400).1
These levels have remained unchanged since 2009. Subsequent scheduled annual adjustments were denied by P.L. 111-8 (enacted March 11, 2009), P.L. 111-165 (May 14, 2010), P.L. 111-322 (December 22, 2010), P.L. 112-175 (September 28, 2012), P.L. 112-240 (January 2, 2013), P.L. 113-46 (October 17, 2013), P.L. 113-235 (December 16, 2014), P.L. 114-113 (December 18, 2015), P.L. 114-254 (December 10, 2016), and P.L. 115-141 (March 23, 2018).
Article I, Section 6, of the U.S. Constitution authorizes compensation for Members of Congress "ascertained by law, and paid out of the Treasury of the United States." Adjustments are governed by the Ethics Reform Act of 1989 (2 U.S.C. §4501) and the 27th Amendment to the Constitution. They generally take effect in January.2
Member pay has historically been the subject of considerable debate and discussion, as well as occasional confusion. Members of Congress receive salaries only during the terms for which they are elected. They do not receive salaries beyond their terms of office. Members of Congress do not receive additional compensation for service on committees, and they are not eligible for housing or per diem allowances for expenses incurred in Washington, DC. Finally, neither Members of Congress nor their families are exempt from the repayment of student loans. Although both the House and Senate have established student loan repayment programs for employee recruitment and retention purposes, these programs are subject to a number of regulations—including service agreements and annual and lifetime benefit maximums—and Members of Congress are not eligible to participate.34
Permissible "outside earned income" for Representatives and Senators is limited to 15% of the annual rate of basic pay for level II of the Executive Schedule. According to the House Ethics Committee and the Senate Ethics Committee, the 20162019 limit is $27,495.428,440.5
Certain types of outside earned income, however, are prohibited.5
Representatives and Senators are prohibited from accepting honoraria.6honoraria.7 The acceptance of honoraria by Representatives was prohibited effective January 1, 1991.78 The acceptance of honoraria by Senators was prohibited effective August 14, 1991.8
Previously, Members were allowed to deduct, for income tax purposes, living expenses up to $3,000 per annum, while away from their congressional districts or home states. The deduction was established with the enactment of the FY1953 legislative branch appropriations act and not increased or adjusted for inflation.910 It was eliminated with the enactment of P.L. 115-97, the 2017 tax revision, on December 22, 2017.10
Prior to the enactment of Section 1312(d)(3)(D) of P.L. 111-148, the Patient Protection and Affordable Care Act, Members were eligible to participate in the Federal Employees Health Benefits Program (FEHB).
P.L. 111-148 states that the only health plans available to Members of Congress and certain congressional staff are those plans created under the act or offered through an exchange established under the act. Pursuant to the regulations implementing this section, effective January 1, 2014, Members may elect to be covered through the DC Health Link.11
In addition, the Office of the Attending Physician provides emergency medical assistance for Members of Congress, Justices of the Supreme Court, staff, and visitors. Additional services are offered to Members who choose to enroll for an annual fee ($611 in 2018).626.89 in 2019).13 The office is led by a medical officer from the U.S. Navy, a tradition begun in 1928.12
Members also are eligible to participate in the Federal Employees Group Life Insurance Program. The amount of coverage for personal insurance is determined by a formula based on the coverage elected.13
Since January 1, 1984, participation in Social Security has been mandatory for all Members of Congress.
Various options are available to Members regarding participation in the Civil Service Retirement System (CSRS) and the Federal Employees Retirement System (FERS), depending on when the Member was first elected.1416 The amount of any benefit and required retirement contribution varies depending on retirement plan, age, and length of service (with a minimum of at least five years of service for any benefit).
The Members' Representational Allowance (MRA) is available to support Representatives in their official and representational duties.1517
The MRA may be used for official expenses including, for example, staff, travel, mail, office equipment, district office rental, stationery, and other office supplies.
The MRA is also subject to a number of restrictions. For example, the MRA may not be used to defray any personal or campaign-related expenses. A Member is also prohibited from using campaign funds (except where authorized by the Committee on Ethics) or committee funds to pay for expenses related to official representational duties; using an unofficial office account; accepting funds or assistance from a private source for an official activity; or using personal funds to pay for franked mail.
A Member is responsible for personally paying for any expenses that are in excess of the authorized MRA level or that are not reimbursable under regulations of the Committee on House Administration.16
The MRA for each Representative is calculated based on three components, including
The three components are combined and result in a single MRA authorization for each Representative that can be used to pay for any type of official expense. For example, each Representative can choose how much to allocate to travel versus personnel or supplies.
The MRA for each Member is authorized from January 3 of each year through January 2 of the following year. These allowances are authorized in statute and regulated and adjusted by the Committee on House Administration.
The individual authorized MRA levels decreased for three consecutive years, including1719
Subsequently,
;"23
In 2019, MRAs ranged from $1,320,585 to $1,498,546, with an average of $1,382,329.
Each Member may use the MRA to employ no more than 18 permanent employees, a level that has remained unchanged since 1975. A Member may employ up to four additional employees if they fall into one of the following categories:21
All MRA expenditures are reported in the quarterly Statement of Disbursements of the House. Statements (SOD) issued since November 2009 are available at http://disbursements.house.gov/. Beginning with disbursements covering January-March 2016, this website provides SOD information in a CSV (comma-separated values) format.
Representatives may receive certain government publications and printed products.2227
Provisions in legislative branch appropriations acts in recent years have aimed to reduce the delivery of certain printed documents that are also available online, including copies of legislation, the Congressional Record, the U.S. Code, the Statement of Disbursements, the Daily Calendar, and the Congressional Pictorial Directory.
The Senators' Official Personnel and Office Expense Account (SOPOEA) is available to assist Senators in their official and representational duties.2328
The allowance is provided for the fiscal year. The preliminary list of SOPOEA levels contained in the Senate report accompanying the FY2018FY2020 legislative branch appropriations bill (S. 16482581, S.Rept. 115-137116-124), shows a range of $3,192,760436,535 to $5,052,317.24421,200.29 The average allowance is $3,467,971.25738,775.30
The SOPOEA for each Senator is calculated based on three components, including
The three components result in a single SOPOEA authorization for each Senator that can be used to pay for any type of official expense. For example, each Senator can choose how much to allocate to travel versus personnel or supplies, although additional limits pertain to spending on franked mail. Mass mailings may not exceed $50,000 per fiscal year,2833 and additional official mail regulations may be established in statute, regulations and rules of the Senate, the Senate Committee on Rules and Administration, and the Senate Ethics Committee.2934
The SOPOEA is funded within the "Contingent Expenses of the Senate" account in the annual legislative branch appropriations bills. This appropriations account decreased for a number of years, from $422.0 million in FY2010 to $390.0 million in FY2014, a decrease of 7.6%. The FY2014 level was continued in FY2015, FY2016 and FY2017. This level represented the lowest funding since the $373.5 million provided in FY2008.
The FY2018 enacted level of $424.0 million represents an increase of 8.7%. This funding includes agency contributions for benefits provided to employees paid by the SOPOEA.
The SOPOEA is available only to support each Senator's official duties and may not to be used to defray any personal, political, or campaign-related expenses. Senators are responsible for the payment of any expenses that exceed the allowance.
Each Senator is authorized home state office space in federal buildings. In the event suitable office space is not available in a federal building, other office space may be secured. The cost of private space is not to exceed the highest rate per square foot charged by the General Services Administration (GSA).3035 The aggregate square footage of office space that can be secured for a Senator ranges from 5,000 square feet, if the population of the state is less than 3 million, to 8,200 square feet, if the state's population is 17 million or more.3136 There is no restriction on the number of offices.
Each Senator may lease one mobile office for use only in the state he or she represents, subject to limitations on the terms of the lease, the maximum annual rental payment, and reimbursable operating costs. No payment may be made for expenses incurred during the 60 days preceding a contested election.32
Each Senator is authorized furniture and furnishings from an approved list. Furniture and furnishings are supplied and maintained by the Architect of the Capitol (for spaces in Senate office buildings) and the Senate Sergeant at Arms (for offices in the Capitol). Additional furnishings can be purchased through the Senate stationery store.
Each Senator is authorized $40,000 for state office furniture and furnishings for one or more offices, if the aggregate square footage of office space does not exceed 5,000 square feet. The base authorization is increased by $1,000 for each authorized additional incremental increase in office space of 200 square feet.3338 Pursuant to the FY2000 Legislative Branch Appropriations Act, this allowance automatically increases at the beginning of each Congress to reflect inflation.3439 The aggregate dollar amount is the maximum value of furniture and furnishings to be provided by GSA for state office use at any one time. Furniture and furnishings remain GSA property.
Each Senator may use certain basic office equipment allocated in accordance with the population of the state he or she represents and other criteria established by the Senate Committee on Rules and Administration.35
Each Senator is entitled to receive certain government publications and printed products. These include, for example, copies of the daily Congressional Record, one copy of Deschler's Precedents, various manuals and directories, and public document franked envelopes.36
All SOPOEA expenditures are required to be published in the semiannual Report of the Secretary of the Senate.3742 The report is available at http://www.senate.gov/legislative/common/generic/report_secsen.htm.
The salary of Members of Congress has been frozen since 2009, and the maximum annual salary for many categories of congressional staff remained unchanged from 2009 until the enactment of the FY2020 Further Consolidated Appropriations Act (P.L. 116-94).43 A general provision in Division E (legislative branch) increased the maximum annual salary for certain categories of congressional staff to $173,900.44
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Speaker of the House |
$223,500 per annum |
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Majority and Minority Leaders |
$193,400 per annum |
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All other Representatives (including Delegates and Resident Commissioner From Puerto Rico) |
$174,000 per annum |
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Chief Administrative Officer |
$172,500 per annum |
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Clerk of the House |
$172,500 per annum |
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Sergeant at Arms |
$172,500 per annum |
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Chaplain |
$172,500 per annum |
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Legislative Counsel |
$172,500 per annum |
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Law Revision Counsel |
$172,500 per annum |
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Parliamentarian |
$172,500 per annum |
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Inspector General |
$172,500 per annum |
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Director, Interparliamentary Affairs |
$172,500 per annum |
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General Counsel to the House |
$172,500 per annum |
Source: For salaries of Members of Congress, P.L. 115-141, section 7244 and Executive Order 13866; for salaries of officers and officials of the House, Order of the Speaker of the House of Representatives, implementing a pay increase for House employees, effective January 9, 2009, issued January 9, 2009 (contained in 2 U.S.C. §4532). Estimates may also be obtained by examining the quarterly Statement of Disbursements of the House.
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President pro tempore |
$193,400 per annum |
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Majority and Minority Leaders |
$193,400 per annum |
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All other Senators |
$174,000 per annum |
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Secretary of the Senate |
$172,500 per annum |
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Sergeant at Arms and Doorkeeper |
$172,500 per annum |
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Legislative Counsel |
$172,500 per annum |
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Legal Counsel |
$172,500 per annum |
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Parliamentarian |
$171,315 per annum |
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Chaplain |
$160,787 per annum |
Source: For salaries of Members of Congress, P.L. 115-141, section 7244 and Executive Order 13866; and, for salaries of officers and officials of the Senate, the Order of the President pro tempore, implementing a pay increase for Senate employees, effective January 1, 20172018, issued May 5, 2017March 23, 2018 (contained in 2 U.S.C. §4571 note). Estimates may also be obtained by examining the semi-annual Report of the Secretary of the Senate.
The salary of Members of Congress has been frozen since 2009, and the maximum annual salary for many categories of congressional staff has also remained unchanged.
The maximum annual salary for employees of committees, as revised in the 2009 pay order, is $172,500 for up to three staff members (two majority and one minority); $170,696 for up to nine staff members (six majority and three minority); and a maximum of $168,411 for other staff. The salary of an employee in a Member office may not exceed an annual rate of $168,411.
The maximum annual salary for committee employees, as continued since the 2009 pay order, is $171,315. The salary of an employee in a Senator's office may not exceed an annual rate of $169,459.
Author Contact Information
| 1. |
The differing compensation for the three senior positions in each chamber is long-standing. See 2 U.S.C. §4501 note. |
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Author Contact Information Ida A. Brudnick, Specialist on the Congress
([email address scrubbed], [phone number scrubbed])
Footnotes1.
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The differing compensation for the three senior positions in each chamber is long-standing. See 2 U.S.C. §4501 note. 2.
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The maximum potential January 2020 Member pay adjustment was 2.6%, or $4,500. This adjustment was prohibited by §7 of P.L. 116-94, the Further Consolidated Appropriations Act, 2020. The potential Member pay adjustment was determined by a formula using the Employment Cost Index (private industry wages and salaries, not seasonally adjusted), based on the 12-month percentage change reported for the quarter ending December 31, minus 0.5%. Pursuant to 2 U.S.C. 4501(2)(A), this amount is "rounded to the nearest multiple of $100." Each year, the adjustment takes effect automatically unless it is either denied or modified statutorily by Congress, or limited by the General Schedule (GS) base pay adjustment, since the percentage increase in Member pay is limited by law to the GS base pay percentage increase. 3. |
For additional information, see CRS Report 97-1011, Salaries of Members of Congress: Recent Actions and Historical Tables, by |
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The House employee program was authorized by P.L. 108-7 (Feb. 20, 2003; 117 Stat. 354; 2 U.S.C. §4536). The Senate employee program was authorized by P.L. 107-68 (Nov. 12, 2001; 115 Stat. 563; 2 U.S.C. §4579). For additional information on student loan repayment programs in the federal government generally, see https://www.opm.gov/policy-data-oversight/pay-leave/student-loan-repayment/#url=Overview. |
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For additional information, see |
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For example, House Rule XXV ( |
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An honorarium, for example, is defined by the House as a "payment of money or a thing of value for an appearance, speech, or article (including a series of appearances, speeches, or articles) by a Member, Delegate, Resident Commissioner, officer, or employee of the House, excluding any actual and necessary travel expenses" (House Rule XXV). |
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This prohibition was included in the Ethics Reform Act of 1989 (P.L. 101-194, November 30, 1989, 103 Stat. 1776-1778) and incorporated into House Rule XXV. See also: U.S. House, Committee on Ethics, House Ethics Manual, 2008 edition, 110th Cong., 2nd sess. (http://ethics.house.gov/), p. 189. |
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The Ethics Reform Act (P.L. 101-194, November 30, 1989, 103 Stat. 1782) reduced the limit on honoraria from 40% to 27% of salary beginning in 1990, with further decreases set to accompany Senate pay raises. The FY1992 Legislative Branch Appropriations Act (P.L. 102-90, August 14, 1991, 105 Stat. 450-451) subsequently banned honoraria. See also: Senate Rule XXXVI and U.S. Senate, Select Committee on Ethics, Senate Ethics Manual, S.Pub. 108-1, 2003 Edition, 108th Cong., 1st sess. (http://ethics.senate.gov/downloads/pdffiles/manual.pdf), pp. 97-101. |
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66 Stat. 467, July 9, 1952; 67 Stat. 322, Aug. 1, 1953; 26 U.S.C. §162. |
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For additional information, see CRS General Distribution Memorandum, "Legislative History of Tax Deductions for Members of Congress," by |
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See the final rule on implementation (Office of Personnel Management, "Federal Employees Health Benefits Program: Members of Congress and Congressional Staff," 78 Federal Register 60653, October 2, 2013) and subsequent information provided by the House Chief Administrative Officer and Senate Disbursing Office. Additional available CRS products on this provision include Analysis of § 1312(d)(3)(D) of P.L. 111-148, The Patient Protection and Affordable Care Act, and its Potential Impact on Members of Congress and Congressional Staff, CRS Congressional Distribution memorandum, by |
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14.
"Notice of 2019 OAP Medical Services Enrollment Fee," e-Dear Colleague sent by the Committee on House Administration, February 8, 2019. |
H.Res. 253, 70th Cong. |
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For additional information, see http://www.opm.gov/insure/life/index.asp. |
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Plan options vary for Members first elected before 1984 and those first elected in 1984 or later. For additional information, see CRS Report RL30631, Retirement Benefits for Members of Congress, by |
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For additional information, see CRS Report R40962, Members' Representational Allowance: History and Usage, by |
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For more details on permissible use of personal, campaign, and official funds, see U.S. Congress, House Committee on House Administration, Members' Congressional Handbook (http://cha.house.gov/handbooks/members-congressional-handbook); and U.S. Congress, Committee on Ethics, House Ethics Manual, 110th Cong., 2nd sess. (Washington: GPO, 2008), (http://ethics.house.gov/). |
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The Statement of Disbursement stated each Member's 2012 MRA was "88.92% of the amount authorized in 2010 ... in accordance with a 5% reduction to the 2010 authorization mandated in House Resolution 22, agreed to on January 6, 2011, and a 6.4% reduction to the 2011 authorization as reflected in H.R. 2055, the Consolidated Appropriations Act, 2012." For the 2012 formula, see U.S. Congress, House, Statement of Disbursements of the House, as compiled by the Chief Administrative Officer, from January 1, 2012, to March 31, 2012, part 3 of 3, H.Doc. 112-106, 112th Cong., 2nd sess. (Washington: GPO, 2012), p. 3225. For the 2013 formula, see U.S. Congress, House, Statement of Disbursements of the House, as compiled by the Chief Administrative Officer, from April 1, 2013, to June 30, 2013, part 3 of 3, H.Doc. 113-41, 113th Cong., 1st sess. (Washington: GPO, 2013), p. 2597. |
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22.
U.S. Congress, House, Statement of Disbursements of the House, as compiled by the Chief Administrative Officer, from January 1, 2015, to March 31, 2015, part 3 of 3, H.Doc. 114-29, 114th Cong., 1st sess. (Washington: GPO, 2015), p. 2854. |
U.S. Congress, House, Statement of Disbursements of the House, as compiled by the Chief Administrative Officer, from January 1, 2016, to March 31, 2016, part 3 of 3, H.Doc. 114-120, 114th Congress, 2nd |
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U.S. Congress, House, Statement of Disbursements of the House, as compiled by the Chief Administrative Officer, from October 1, 2017, to December 31, 2017, part 3 of 3, H.Doc. 115-89, 115th Congress, 1st |
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U.S. Congress, House, Statement of Disbursements of the House, as compiled by the Chief Administrative Officer, from July 1, 2018, to September 30, 2018, part 3 of 3, H.Doc. 115-161, 115th Cong., 2nd sess. (Washington: GPO, 2018), p. 2523. 25.
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U.S. Congress, House, Statement of Disbursements of the House, as compiled by the Chief Administrative Officer, from January 1, 2019, to March 31, 2019, part 3 of 3, H.Doc. 116-26, 116th Cong., 1st sess. (Washington: GPO, 2019), p. 2981. |
2 U.S.C. §5321. The 18-person limit first became effective in 1975 (Committee Order No. 16, Congressional Record, March 6, 1975, p. 5556), while the four additional other-than-permanent staff were authorized in 1979 (H.Res. 359, agreed to on July 20, 1979, and enacted into permanent law by P.L. 96-536, |
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For additional information, see |
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P.L. 100-137, October 21, 1987, 101 Stat. 814, 2 U.S.C. §6313. For additional information, see CRS Report R44399, Senators' Official Personnel and Office Expense Account (SOPOEA): History and Usage, by |
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Total obtained from U.S. Congress, Senate Committee on Appropriations, Legislative Branch |
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CRS calculation based upon state totals for all 100 Senators. The Senate report notes that data are preliminary and do not include any supplementals, transfers, or rescissions. |
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Ibid. |
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Ibid. |
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FY1995 Legislative Branch Appropriations Act, P.L. 103-283, July 22, 1994, 108 Stat. 1427, 39 U.S.C. §3210. |
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Ibid., p. 24. |
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2 U.S.C. §6317(c). |
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2 U.S.C. §6317(b). |
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2 U.S.C. §6317(f). |
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2 U.S.C. §6317(c)(2). |
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P.L. 106-57, 113 Stat. 412, September 29, 1999; 2 U.S.C. §6317(c)(2). |
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For example, the Economic Allocation Fund, the Office Automation Allowance, and the Constituent Service System Fund. |
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For additional information, see https://www.gpo.gov/who-we-are/our-agency/congressional-relations. |
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P.L. 111-68, October 1, 2009, 123 Stat. 2026, 2 U.S.C. §4108. |
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For the House: U.S. Congress, House, Order of the Speaker of the House of Representatives, implementing a pay increase for House employees, effective January 9, 2009, issued January 9, 2009 (contained in 2 U.S.C. §4532). This is the most recent publicly available order. The chairman of the House Committee on Appropriations may establish the salaries for 24 staff, 7 of which are to be designated by the ranking minority party Member. For the Senate: U.S. Congress, Senate, Order of the President pro tempore, implementing a pay increase for Senate employees, effective January 1, 2018, issued March 23, 2018 (contained in 2 U.S.C. §4571 note). 44.
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Additional information may be available in the 2020 pay orders, once available. For questions regarding the implications for specific positions, including effective dates, please contact the individual House and Senate employing authorities or the House Chief Administrative Officer or the Secretary of the Senate. |
The U.S. Constitution provides that the Vice President shall serve as President of the Senate, and that when the Vice President is absent from the Senate, the President pro tempore presides in his place. During a vacancy in the position of the Vice President, the President pro tempore is considered the temporary, full-time President of the Senate and is paid the salary level due the Vice President (2 U.S.C. §6111). |
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Pursuant to P.L. 100-202, the Senate Chaplain is paid the same as officials in Level IV of the Executive Schedule (2 U.S.C. §6651). Furthermore, pursuant to pay orders issued since 1990, the Chaplain's annual rate of compensation has historically been limited to "the rate equal to the difference between the annual rate of compensation for a position referred to in section 2(a) and $11,713" (U.S. Congress, Senate, Directive of the President pro Tempore of the Senate of the United States Establishing a Salary Increase for Officers and Employees of the Senate of the United States Under Authority of the Federal Pay Comparability Act of 1970, December 20, 1990). See also U.S. Congress, Senate, Order of the President pro tempore, implementing a pay increase for Senate employees, effective January 1, | ||||
| 40. |
U.S. Congress, House, Order of the Speaker of the House of Representatives, implementing a pay increase for House employees, effective January 9, 2009, issued January 9, 2009 (contained in 2 U.S.C. §4532). This is the most recent publicly available order. The chairman of the House Committee on Appropriations may establish the salaries for 24 staff, seven of which are to be designated by the ranking minority party Member. |
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| 41. |
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