Order Code RL30203
CRS Report for Congress
Received through the CRS Web
Appropriations for FY2000: Labor, Health and
Human Services, and Education
Updated July 14, 1999
Paul M. Irwin
Specialist in Social Legislation
Domestic Social Policy Division
Congressional Research Service ˜ The Library of Congress

Appropriations are one part of a complex federal budget process that includes budget
resolutions, appropriations (regular, supplemental, and continuing) bills, rescissions, and
budget reconciliation bills. The process begins with the President’s budget request and is
bounded by the rules of the House and Senate, the Congressional Budget and Impoundment
Control Act of 1974 (as amended), the Budget Enforcement Act of 1990, and current program
authorizations.
This report is a guide to one of the 13 regular appropriations bills that Congress considers
each year. It is designed to supplement the information provided by the House and Senate
Appropriations Subcommittees on Labor, Health and Human Services, and Education. It
summarizes the current legislative status of the bill, its scope, major issues, funding levels,
and related legislative activity. The report lists the key CRS staff relevant to the issues
covered and related CRS products.
This report is updated as soon as possible after major legislative developments, especially
following legislative action in the committees and on the floor of the House and Senate.
NOTE: A Web version of this document with
active links is available to congressional staff at
[http://www.loc.gov/crs/products/apppage.html]

Appropriations for FY2000: Labor, Health and Human
Services, and Education
Summary
This report tracks the legislative action by the 106 Congress on the FY200
th
0
appropriations bill for the Departments of Labor, Health and Human Services, and
Education, and Related Agencies (L-HHS-ED). This bill will provide nearly all
discretionary funds for three federal departments and related agencies. The report
describes selected issues related to FY2000 L-HHS-ED funding, with particular
attention to discretionary programs; it does not follow issues related to mandatory
L-HHS-ED programs nor the authorizing legislation necessary for funding some of
the President’s FY2000 initiatives.
On February 1, 1999, the President submitted the Administration’s FY2000
budget to the Congress. The request is for $91.3 billion in discretionary funds for
L-HHS-ED programs, $7.7 billion or 9.2% more than the FY1999 amount of $83.6
billion, enacted primarily through P.L. 105-277. House and Senate Appropriations
Committees have held hearings on the FY2000 request. Committee markup may
occur before the August recess.
U.S. Department of Labor (DOL): Increases of $100 million or more each are
requested by the Administration for the Workforce Investment Act and State
Unemployment Insurance and Employment Service Operations. Discretionary DOL
funding in FY1999 is $10.9 billion; the FY2000 request is $11.6 billion.
U.S. Department of Health and Human Services (DHHS): Increases of $100
million or more each are requested by the Administration for Head Start, Ryan White
AIDS programs, National Institutes of Health (NIH), Substance Abuse and Mental
Health Services Administration (SAMHSA), and the Administration on Aging. A
reduction is requested for Program Management at the Health Care Financing
Administration (HCFA). Discretionary DHHS funding in FY1999 is $36.2 billion; the
FY2000 request is $38.7 billion.
U.S. Department of Education (ED): Increases of $100 million or more each
are requested by the Administration for 21 Century Community Learning Centers,
st
Education Technology, Title I Grants to Local Educational Agencies, Class Size
Reduction, Adult Education and Family Literacy Act programs, and Gaining Early
Awareness and Readiness for Undergraduate Programs (GEAR UP). Increased
program spending is proposed for Pell Grants. A reduction is requested for Impact
Aid, and the Innovative Program Strategies (block grant) program would be
terminated. Discretionary ED funding in FY1999 is $28.8 billion; the FY2000 request
is $32.8 billion.
Related Agencies: The Administration is requesting an increase of more than
$100 million for the Social Security Administration (SSA) Limitation on
Administrative Expenses and discretionary activities related to the Supplemental
Security Income (SSI) program. Discretionary funding for related agencies in
FY1999 is $7.8 billion; the FY2000 request is $8.2 billion.

Key Policy Staff
CRS
Area of Expertise
Name
Division Telephone
Coordinator
Paul M. Irwin
DSP
7-7573
U.S. Department of Labor


Job training and employment services
Ann Lordeman
DSP
7-2323
Labor standards enforcement
William G. Whittaker
DSP
7-7759
Labor market information
Linda Levine
DSP
7-7756
Mine Safety and Health Administration
Edward B. Rappaport
DSP
7-7740
Occupational Safety and Health Administration
Edward B. Rappaport
DSP
7-7740
Older Americans Act, employment programs
Carol O’Shaughnessy
DSP
7-7329
Pension and Welfare Benefits Administration
James R. Storey
DSP
7-7308
Pension Benefit Guaranty Corporation
James R. Storey
DSP
7-7308
School-to-Work Opportunities Act
Richard N. Apling
DSP
7-7352
Trade Adjustment Assistance
James R. Storey
DSP
7-7308
Unemployment compensation
Celinda Franco
DSP
7-7360
Welfare-to-Work
Christine Devere
DSP
7-2587
Welfare-to-Work
Gene Falk
DSP
7-7344
U.S. Department of Health and Human Services
Abortion, legal issues
Karen J. Lewis
ALD
7-6190
Abortion, legal issues
Kenneth R. Thomas
ALD
7-5006
AIDS, Ryan White programs
Judith A. Johnson
DSP
7-7077
Cancer research
Judith A. Johnson
DSP
7-7077
Centers for Disease Control and Prevention
Pamela W. Smith
DSP
7-7048
Child care
Melinda Gish
DSP
7-4618
Child welfare
Karen Spar
DSP
7-7319
Family Planning
Sharon Kearney
DSP
7-7367
Head Start
Karen Spar
DSP
7-7319
Health professions education and training
Sharon Kearney
DSP
7-7367
Immigration and refugee policy
Joyce C. Vialet
DSP
7-7305
Immunization
Pamela W. Smith
DSP
7-7048
Low-Income Home Energy Assistance Program
Melinda Gish
DSP
7-4618
Maternal and Child Health Block Grant
Sharon Kearney
DSP
7-7367
Medicaid
Elicia Herz
DSP
7-1377
Medicare
Jennifer O’Sullivan
DSP
7-7359
Needle exchange
C. Stephen Redhead
DSP
7-2261
NIH, health research policy
Pamela W. Smith
DSP
7-7048
NIH, health research policy
Judith A. Johnson
DSP
7-7077
Older Americans Act
Carol O’Shaughnessy
DSP
7-7329
Social Services Block Grant
Melinda Gish
DSP
7-4618
State Children’s Hospital Insurance Program
Evelyne Parizek
DSP
7-8913
Substance Abuse and Mental Health Services
Edith Fairman Cooper
DSP
7-7019
Tobacco settlement
C. Stephen Redhead
DSP
7-2261
Welfare reform
Vee Burke
DSP
7-7304
Welfare reform
Gene Falk
DSP
7-7344

CRS
Area of Expertise
Name
Division Telephone
U.S. Department of Education



Adult education and literacy
Paul M. Irwin
DSP
7-7573
Bilingual education
Patricia Osorio-O’Dea
DSP
7-2393
ED-FLEX
Wayne C. Riddle
DSP
7-7382
Education block grants
Wayne C. Riddle
DSP
7-7382
Education block grants
Paul M. Irwin
DSP
7-7573
Education of the Disadvantaged, Title I
Wayne C. Riddle
DSP
7-7382
Education technology
James B. Stedman
DSP
7-7356
Education technology
Patricia Osorio-O’Dea
DSP
7-2393
Impact Aid
Richard N. Apling
DSP
7-7352
National education goals, Goals 2000
James B. Stedman
DSP
7-7356
Pell Grants
Margot A. Schenet
DSP
7-7378
Rehabilitation Act
Carol O’Shaughnessy
DSP
7-7329
Safe and Drug-Free Schools and Communities
Edith Fairman Cooper
DSP
7-7019
School-to-Work Opportunities Act
Richard N. Apling
DSP
7-7352
Special education, IDEA
Richard N. Apling
DSP
7-7352
Special education, IDEA
Nancy Lee Jones
ALD
7-6976
Student aid, student loans
Margot A. Schenet
DSP
7-7378
Teacher recruitment, preparation, and training
James B. Stedman
DSP
7-7356
TRIO, GEAR UP
James B. Stedman
DSP
7-7356
21st Century Community Learning Centers
Gail McCallion
DSP
7-7758
Related Agencies
Corporation for National and Community Service Ann Lordeman
DSP
7-2323
Corporation for Public Broadcasting
Bernevia McCalip
G&F
7-7781
Library services
Wayne C. Riddle
DSP
7-7382
National Labor Relations Board
Gail McCallion
DSP
7-7758
National Labor Relations Board
Kimberly D. Jones
ALD
7-7461
Social Security Administration
David S. Koitz
DSP
7-7322
Social Security Administration
Geoffrey Kollmann
DSP
7-7316
Supplemental Security Income
Carmen Solomon-Fears
DSP
7-7306
Division abbreviations: ALD = American Law; DSP = Domestic Social Policy; G&F = Government
and Finance.


Contents
Most Recent Developments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Status . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Perspective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
302(b) Allocation Ceilings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Aggregate Funding Levels . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Summary of Funding Changes Proposed by the President . . . . . . . . . . 5
Major Funding Trends . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
For Additional Reading, Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
CRS Issue Briefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Other CRS Products . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Selected World Wide Web Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
U.S. Department of Labor . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
The President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
For Additional Reading . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
CRS Issue Briefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
CRS Reports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Selected World Wide Web Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Detailed Appropriation Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
U.S. Department of Health and Human Services . . . . . . . . . . . . . . . . . . . . . . . 13
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
The President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
Abortion: A Perennial L-HHS-ED Issue . . . . . . . . . . . . . . . . . . . . . 14
Tobacco Revenues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
For Additional Reading . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
CRS Issue Briefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
CRS Reports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
Selected World Wide Web Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
Detailed Appropriation Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
U.S. Department of Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
The President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
Forward and Advance Funding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
For Additional Reading . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
CRS Issue Briefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
CRS Reports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
Selected World Wide Web Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
Detailed Appropriation Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
Related Agencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
The President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25

For Additional Reading . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
CRS Issue Briefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
CRS Reports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
Selected World Wide Web Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
Detailed Appropriation Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
Related Legislative Activity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
Appendix A: Terminology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32
Appendix B: Scope of the L-HHS-ED Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . 33
List of Tables
Table 1. Legislative Status of the FY2000 Appropriations for Labor, Health and
Human Services, and Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Table 2. 302(b) Allocations for L-HHS-ED Programs . . . . . . . . . . . . . . . . . . . . 3
Table 3. Summary of L-HHS-ED Appropriations . . . . . . . . . . . . . . . . . . . . . . . 3
Table 4. L-HHS-ED Discretionary Funding Trends From FY1995 . . . . . . . . . . 7
Table 5. Department of Labor Discretionary Appropriations . . . . . . . . . . . . . . . 9
Table 6. Detailed Department of Labor Appropriations . . . . . . . . . . . . . . . . . . 11
Table 7. Department of Health and Human Services
Discretionary Appropriations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
Table 8. Detailed Department of Health and Human Services Appropriations . 17
Table 9. Department of Education Discretionary Appropriations . . . . . . . . . . . 19
Table 10. Detailed Department of Education Appropriations . . . . . . . . . . . . . . 23
Table 11. Related Agencies Discretionary Appropriations . . . . . . . . . . . . . . . . 25
Table 12. Detailed Related Agencies Appropriations . . . . . . . . . . . . . . . . . . . . 28
Table B.1. Scope of the L-HHS-ED Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33
List of Figures
Figure 1. Federal and L-HHS-ED Discretionary Appropriations, FY1999 . . . . . 4
Figure 2. L-HHS-ED Discretionary Appropriations by Department, FY1999 . . 5

Appropriations for FY2000: Labor, Health and
Human Services, and Education
Most Recent Developments
The President submitted the FY2000 budget to the Congress on February 1,
1999. The request includes $91.3 billion in discretionary budget authority for the
programs to be included in the Departments of Labor, Health and Human Services,
and Education, and Related Agencies (L-HHS-ED) Appropriations Act, 2000. The
request represents an increase of $7.7 billion (9.2%) compared to the estimated
FY1999 L-HHS-ED amount of $83.6 billion. The L-HHS-ED Appropriation
Subcommittee hearings in the House began February 10, 1999. The L-HHS-ED
Appropriation Subcommittee hearings in the Senate began February 23, 1999. In
May, the allocation ceilings for the L-HHS-ED bill were announced; currently,
$78.1 billion is maximum for discretionary spending in the House and $80.4 billion
in the Senate. Also in May, P.L. 106-31, providing FY1999 supplemental
appropriations for some L-HHS-ED programs, was enacted. Committee markup of
the FY2000 L-HHS-ED bill may occur before the August recess, but the proposed
reductions suggest that this bill may be one of the last enacted for FY2000.

Status
Table 1 will track the key legislative steps that are necessary to enact
appropriations for the Departments of Labor, Health and Human Services, and
Education, and Related Agencies (L-HHS-ED) for FY2000.
Table 1. Legislative Status of the FY2000 Appropriations for Labor,
Health and Human Services, and Education
Subcommittee
Conference Report
Markup
Approval
House
House
Senate
Senate
Conference
Public
House Senate
Report
Passage
Report
Passage
Report
House
Senate
Law
— a
— b








a The House Appropriations Subcommittee for Labor, Health and Human Services, and Education
began hearings on the FY2000 budget request on February 10, 1999.
b The Senate Appropriations Subcommittee for Labor, Health and Human Services, and Education
began hearings on the FY2000 budget request on February 23, 1999.
DATA NOTE: In this report, unless otherwise noted, budget data for FY1999
and the FY2000 budget request are based on the House Appropriations Committee

CRS-2
unofficial staff table of June 7, 1999; these data have been adjusted for changes made
by P.L. 106-31, the 1999 Emergency Supplemental Appropriations Act. Data
represent net funding amounts for specific programs and activities, taking into
account current, forward, and advance funding, as well as rescissions and
supplementals. In addition, agency discretionary totals are adjusted for budgetary
scorekeeping. Except where noted, budget data refer only to those programs within
the purview of the L-HHS-ED appropriations bill, and not to all programs within the
jurisdiction of the relevant departments and agencies.
Perspective
This report describes the President’s proposal for FY2000 appropriations for
L-HHS-ED programs and compares it with the FY1999 amounts. It tracks legislative
action and congressional issues related to the FY2000 L-HHS-ED appropriations bill,
with particular attention paid to discretionary programs. The report summarizes
activities related to the annual budget process, such as the congressional budget
resolution, continuing resolutions, and supplemental appropriations (beginning on
page 30). However, the report does not follow specific funding issues related to
mandatory L-HHS-ED programs, nor the authorizing legislation necessary prior to
funding some of the President’s initiatives. For a glossary of budget terms, please see
Appendix A: Terminology (page 32). For a discussion of the L-HHS-ED bill
jurisdiction, please see Appendix B: Scope of the L-HHS-ED Bill (page 33).
302(b) Allocation Ceilings
The annual congressional budget resolution for FY2000, H.Con.Res. 68 (see
Related Legislative Activity, page 30), sets the aggregate discretionary spending limit
for the annual appropriations total, known as the 302(a) allocation. From this
allocation the House and Senate appropriations committees allocate funds among
their subcommittees for each of the 13 appropriations bills, known as the 302(b)
allocations. The 302(b) allocations can and do get adjusted during the year as the
various appropriation bills progress toward final enactment. As the 302(b) allocations
for the FY2000 L-HHS-ED appropriations bill become available from the House and
Senate Appropriations Committees, they will be shown in Table 2. The comparable
302(b) amounts for FY1999 enacted and the FY2000 budget are the current year
discretionary amounts, $83.6 billion and $91.3 billion, respectively. As shown in the
table, the current House limit for FY2000 is $78.1 billion, and the current Senate limit
is $80.4 billion. Discussion in the media concerning these proposed amounts suggests
that legislative difficulties over the depth of the allocation reductions may make the
L-HHS-ED bill one of the last enacted for FY2000.

CRS-3
Table 2. 302(b) Allocations for L-HHS-ED Programs
(budget authority in billions of dollars)
FY1999
FY2000
FY2000
FY2000
FY2000
enacted
request
House
Senate
final
comparable
comparable
allocation
allocation
comparable
$83.6
$91.3
$78.1
$80.4

Source: The unofficial House Appropriations Committee staff table of June 7, 1999, for the
comparable FY1999 enacted and the FY2000 request; the on-line document of July 7, 1999, for the
FY2000 House allocation (at http://www.house.gov/appropriations/00302b1.htm); and S.Rept. 106-
79, June 17, 1999, for the FY2000 Senate allocation.
Note: Under current scorekeeping provisions, advance funding that was enacted as part of the
FY1999 appropriation will be counted in FY2000, and any advance funding that might be enacted
as part of the FY2000 appropriation would be counted in FY2001.
Table 3 summarizes the L-HHS-ED appropriations for FY1999, as well as
action on the FY2000 appropriations, including both mandatory and discretionary
funds within the L-HHS-ED bill. The discretionary items are the same as in Table 2,
showing the President’s request at $91.3 billion, which is $7.7 billion, or 9.2%, more
than the FY1999 amount of $83.6 billion. Table 3 also shows mandatory funding
that is regularly included in the bill; however, the appropriations committees generally
have effective control only over the discretionary funds.
Table 3. Summary of L-HHS-ED Appropriations
(budget authority in billions of dollars)
FY1999
FY2000
FY2000
FY2000
FY2000
Type of appropriation a
enacted b
request
House
Senate
final
Discretionary, current year
$83.6
$91.3



Mandatory, current year
$209.0
$226.3



Total, current year
$292.6
$317.6



Source: House Appropriations Committee unofficial staff table of June 7, 1999.
Appropriations are defined in
a
Appendix A: Terminology. Data are given only for programs
included in the L-HHS-ED appropriation bill.
b The FY1999

enacted amounts are based on P.L. 105-277 and P.L. 106-31. FY1999 discretionary
amounts may be modified through further legislation during FY1999, as well as by scorekeeping
adjustments. FY1999 mandatory amounts are estimates that are subject to modification through
changes in program service levels, as well as further legislation during FY1999.
Key Issues
The L-HHS-ED bill typically is one of the more controversial of the 13 regular
appropriation bills, not only because of the size of its funding total and the scope of

CRS-4
its programs, but also because of the continuing importance of various related non-
funding issues, such as restrictions on the use of federal funds for abortion.
Aggregate Funding Levels. The L-HHS-ED bill provides most of the
discretionary funds for three federal departments and several related agencies
including the Social Security Administration (SSA). Of the 13 annual appropriation
bills, the L-HHS-ED bill is the largest single source of discretionary funds for all
domestic programs; the Defense bill is the largest source of discretionary funds for all
federal programs. For FY1999, the L-HHS-ED bill accounted for $84.7 billion
(14.7%) and the Defense bill accounted for $255.0 billion (44.3%) of the estimated
$575.0 billion total for all federal discretionary budget authority.
1 Figure 1 shows the
L-HHS-ED share of all federal discretionary appropriations in FY1999.
Figure 1. Federal and L-HHS-ED Discretionary Appropriations,
FY1999
Federal Total = $575.0 billion
Other Federal
40.9%
Defense
L-HHS-ED
44.3%
14.7%
Source: Budget of the United States Government Fiscal Year 2000, Table S-9.
Once the aggregate size of the L-HHS-ED discretionary appropriations is
determined under the 302(b) allocation, the distribution of these discretionary funds
among departments and programs within the bill becomes the next issue. Figure 2
shows the discretionary share for each department within the L-HHS-ED total for
FY1999. Appendix B (page 33) describes the combined discretionary and mandatory
funding for each department within the L-HHS-ED bill.
1 In this comparison of the L-HHS-ED total with federal discretionary budget authority,
the FY1999 amounts are based on the Budget of the United States Government Fiscal Year
2000
, Table S-9.

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Figure 2. L-HHS-ED Discretionary Appropriations by Department,
FY1999
L-HHS-ED Total = $83.3 billion
DOL
13.1%
DHHS
Related
43.5%
Agencies
9.4%
ED
34.1%
Source: Percentage shares are based on the conference report H.Rept. 105-825, which provides
details for the FY1999 L-HHS-ED appropriations under P.L. 105-277.
Summary of Funding Changes Proposed by the President. With regard to
the President’s FY2000 budget, the issues in the early stages of the appropriations
process generally relate to proposed funding changes. The following summary notes
changes proposed for discretionary budget authority of at least $100 million,
compared to the FY1999 appropriations. Viewing this list by itself should be done
with caution, since the relative impact of a $100 million increase to a $500 million
program (a 20% increase) will most likely be significantly greater than a $100 million
increase to a $5 billion program (a 2% increase). The discussion of individual
departments provides detailed tables for comparing the FY2000 request with the
FY1999 funding for many of the major programs in the L-HHS-ED bill.
! For U.S. Department of Labor (DOL) programs, an additional $288 million is
requested for job training programs newly authorized by the Workforce
Investment Act of 1998 (WIA), and an increase of $242 million is proposed for
State Unemployment Insurance and Employment Service Operations
(SUI/ESO).
! For U.S. Department of Health and Human Services (DHHS) programs, the
largest discretionary increase (in absolute terms) is an additional $608 million
proposed for the Head Start program. Other proposed increases include an
additional $100 million for the Ryan White AIDS programs; an increase of
$320 million for the National Institutes of Health (NIH); a $239 million
increase for the Substance Abuse and Mental Health Services Administration
(SAMHSA); and $166 million more for the Administration on Aging. An
appropriation of $386 million is requested for the Public Health and Social
Service Emergency Fund; $223 million is provided on an emergency basis for
FY1999.
! For U.S. Department of Education (ED) programs, the largest proposed
discretionary increase (in absolute terms) is $400 million in additional funds

CRS-6
proposed for 21 Century Community Learning Centers. Other majo
st
r
increases include $103 million more for Educational Technology programs; an
additional $264 million for Title I Grants to Local Educational Agencies
(LEAs) for the Education of the Disadvantaged; $200 million more for the
Class Size Reduction program; $190 million more for Adult Education and
Family Literacy programs; an additional $120 million for Gaining Early
Awareness and Readiness for Undergraduate Programs (GEAR UP). A
decrease of $241 million is requested in new funding for the Pell Grant
program; however, surplus funds from prior years would be used to increase
program spending from $7.7 billion in FY1999 to $7.9 billion in FY2000. No
funds are requested for the $375 million Innovative Program Strategies
(education block grant) program. A decrease of $128 million is proposed for
the Impact Aid programs.
! For the related agencies, the budget includes proposed increases of $163
million for the Social Security Administration (SSA) Limitation on
Administrative Expenses, and $117 million for discretionary activities related
to the Supplemental Security Income (SSI) program.
Major Funding Trends
The L-HHS-ED appropriations consist of mandatory and discretionary funds;
however, the Appropriations Committees fully control only the discretionary funds.
Mandatory funding levels for programs included in the annual appropriations bills are
modified through changes in the authorizing legislation; these changes typically are
accomplished through the authorizing committees and combined into large, omnibus
reconciliation bills. Table 4 shows the trend in total discretionary budget authority
under the L-HHS-ED appropriations for FY1995 through FY1999. The L-HHS-ED
funds have increased by 24.9% for this 5-year period. The 5-year increase is reduced
to an estimated 17.3% after adjustment for inflation by use of the Gross Domestic
Product (GDP) deflator. When compared to all federal discretionary budget
authority, the L-HHS-ED portion increased from 12.7% in FY1995 to 14.7% in
FY1999. When compared to all federal budget authority, both discretionary and
nondiscretionary (mandatory), the L-HHS-ED portion increased during this period
from 4.4% in FY1995 to 4.8% in FY1999.

CRS-7
Table 4. L-HHS-ED Discretionary Funding Trends From FY1995
(budget authority in billions of dollars)
Type of funds
FY1995
FY1996
FY1997
FY1998
FY1999
L-HHS-ED discretionary
$67.8
$67.2
$74.7
$81.1
$84.7
L-HHS-ED discretionary in
$72.2
$70.2
$76.6
$82.2
$84.7
estimated FY1999 dollars
L-HHS-ED % of all federal
discretionary funds a
12.7%
13.4%
13.9%
15.2%
14.7%
L-HHS-ED % of total federal
4.4%
4.3%
4.5%
4.8%
4.8%
budget authority
Total federal discretionary
$533.8
$502.5
$536.3
$534.2
$575.0
Total federal budget authority
$1,539.7
$1,580.8
$1,642.9 $1,692.3
$1,770.1
GDP deflator
1.0762
1.0976
1.1183
1.1317
1.1464
Source: Budget of the United States Government Historical Tables Fiscal Year 2000, tables 5.2 and
10.1 (for total federal budget authority and GDP deflator); and Budget of the United States
Government
, various years (for discretionary budget authority).
Discretionary funds include both defense and non-defense activities.
a
For Additional Reading, Background
CRS Issue Briefs.
CRS Issue Brief IB10017, Budget for Fiscal Year 2000, by Philip D. Winters.
Other CRS Products.
CRS Info Pack 12B, Budget Process.
CRS Report 98-203, Appropriations for FY1999: Labor, Health and Human
Services, and Education, by Paul M. Irwin.
CRS Report RL30056, Appropriations Supplemental for FY1999: Emergency
Funding in P.L. 105-277 for Agriculture, Embassy Security, Y2K Problems,
Defense, and Other Issues
, by Larry Nowels, Coordinator.
CRS Report RL30199, Budget FY2000: A Chronology with Internet Access, by
Susan E. Watkins.
CRS Report 97-684, The Congressional Appropriations Process: An Introduction,
by Sandy Streeter.
CRS Report RS20095, The Congressional Budget Process: A Brief Overview, by
James V. Saturno.
CRS Report RL30083, Supplemental Appropriations for FY1999: Central America
Disaster Aid, Middle East Peace, and Other Initiatives, by Larry Nowels,
Coordinator.

CRS-8
Selected World Wide Web Sites.
General information regarding the budget and appropriations may be found at
the following web sites. Web sites specific to departments and agencies funded by the
L-HHS-ED appropriations will be listed in the appropriate sections of this report.
House Committee on Appropriations
[http://www.house.gov/appropriations]
[http://www.house.gov/appropriations/fact.htm]
[http://www.house.gov/appropriations/news.htm]
Senate Committee on Appropriations
[http://www.senate.gov/~appropriations/]
[http://www.senate.gov/~appropriations/releases.htm]
[http://www.senate.gov/~appropriations/leg.htm]
Congressional Research Service (CRS) FY2000 Appropriations Products
[http://www.loc.gov/crs/products/apppage.html]
Congressional Budget Office (CBO)
[http://www.cbo.gov]
[http://www.cbo.gov/showdoc.cfm?index=1301&sequence=0&from=7]
General Accounting Office (GAO)
[http://www.gao.gov]
Office of Management & Budget (OMB)
[http://www.whitehouse.gov/OMB]
[http://www.access.gpo.gov/su_docs/budget/]
[http://www.whitehouse.gov/WH/EOP/OMB/SAP/]
[http://www.gpo.gov/usbudget/fy2000/amndsup.html]

CRS-9
U.S. Department of Labor
The FY2000 budget proposal for the U.S. Department of Labor (DOL) is $11.6
billion in discretionary funds, $0.7 billion (6.0%) more than the FY1999 appropriation
of $10.9 billion, as shown in Table 5.
Table 5. Department of Labor Discretionary Appropriations
(budget authority in billions of dollars) a
FY1999
FY2000
FY2000
FY2000
FY2000
enacted b
request
House
Senate
final
$10.9
$11.6



Source: Amounts are compiled from an unofficial staff table of the House Appropriations
Committee, June 7, 1999.
The amounts shown are
a
for discretionary programs funded by the L-HHS-ED appropriation bill;
mandatory programs funded through the L-HHS-ED bill and other laws are not included.
b The FY1999 enacted amount is based on P.L. 105-277 and P.L. 106-31; this amount may be
modified through further legislation during FY1999.
Mandatory DOL programs included in the L-HHS-ED bill were funded at $1.9
billion in FY1999, and consist of the Black Lung Disability Trust Fund ($1.0 billion),
Advances to the Unemployment Insurance and Other Trust Funds ($0.4 billion),
Federal Unemployment Benefits and Allowances programs ($0.3 billion), and
Employment Standards Administration Special Benefits programs ($0.2 billion).
Key Issues
The President’s Request. The President’s FY2000 discretionary budget
request for DOL is intended to support three broad strategic goals: (a) a prepared
workforce, (b) a secure workforce, and (c) quality workplaces. According to the
Administration, a prepared workforce increases employment opportunities by
providing the education and training for each worker to compete in a global economy.
The goal of a secure workforce means promoting the economic security of all workers
and their families, including pension coverage, retirement benefits, and health benefits.
A quality workplace means a safe and healthful workplace, with equal opportunity for
every worker, as well as protection for children in the workplace both here and
abroad.
Discretionary increases of more than $100 million requested for DOL programs
under the President’s FY2000 budget include the following.
! An additional $288 million is requested for programs authorized by the
Workforce Investment Act of 1998 (WIA), including increases for Dislocated
Worker Assistance ($195 million) and Job Corps ($38 million), as well as other
federally administered programs under WIA.
! An increase of $242 million is proposed for State Unemployment Insurance
and Employment Service Operations (SUI/ESO), including State Operations

CRS-10
for Unemployment Compensation ($83 million), other Unemployment
Compensation activities ($81 million), and Work Incentive Grants ($50
million).
Smaller DOL increases are proposed for Employment Standards Administration
(ESA) salaries and expenses ($61 million), Occupational Safety and Health
Administration (OSHA) ($34 million), and Departmental Management ($66 million).
A reduction of $70 million is proposed for the DOL portion of the School-to-
Work Opportunities Act program, as part of an authorized phase-out by FY2001 of
federal financial support.
For the Welfare-to-Work Grants program, $137 million was rescinded by the
FY1999 L-HHS-ED appropriations from unallocated state formula grants; no
additional reductions are requested in the budget.
For Additional Reading
CRS Issue Briefs.
CRS Issue Brief 98023, Trade Adjustment Assistance: Proposals for Renewal and
Reform, by James R. Storey.
CRS Reports.
CRS Report 97-536, Job Training Under the Workforce Investment Act: an
Overview, by Ann Lordeman.
CRS Report 95-917, Older Americans Act: Programs and Funding, by Carol
O’Shaughnessy and Celinda Franco.
CRS Report 97-541, School-to-Work Opportunities Act, by Richard N. Apling.
CRS Report 94-417, Unemployment Compensation: A Fact Sheet, by Celinda
Franco.
CRS Report RS20134, Welfare Reform: Reauthorization of the Welfare-to-Work
Grant Program, by Christine Devere.
CRS Report 98-62, Welfare Reform: The Welfare-to-Work Grant Program, by
Christine Devere and Gene Falk.
Selected World Wide Web Sites.
U.S. Department of Labor
[http://www.dol.gov]
[http://www.dol.gov/dol/_sec/public/budget/main.htm]
[http://www.dol.gov/dol/_sec/public/budget/990323ah.htm]
Detailed Appropriation Table
Table 6 shows the appropriation details for offices and major programs of DOL.

CRS-11
Table 6. Detailed Department of Labor Appropriations
($ in millions)
FY1999
FY2000
FY2000
FY2000
FY2000
Office or major program
enacted a
request
House
Senate
final
Employment and Training Administration (ETA)
Training and Employment
Services (TES), Workforce
955
955



Investment Act (WIA) Adult
Training Grants to States
—WIA Youth Training
1,001
1,001



—WIA Dislocated Worker
1,401
1,596



Assistance
—WIA Job Corps
1,309
1,347



—WIA Youth Opportunity
250
250



Grants (YOG)
—WIA Other Federally
229
284



Administered Programs
—WIA (JTPA) subtotal b
5,145
5,433



—School-to-Work
125
55



Opportunities
—TES, Other
11
12



Welfare-to-Work Rescission
-137
0



Community Service
Employment for Older
440
440



Americans
Federal Unemployment
Benefits and Allowances,
Trade Adjustment and
361
314



NAFTA Activities
(mandatory)
State Unemployment
Insurance and Employment
Service Operations
2,123
2,206



(SUI/ESO) Unemployment
Compensation State
Operations
—SUI/ESO Unemployment
172
253



Compensation, Other
—SUI/ESO Employment
822
848



Service
—SUI/ESO One-Stop Career
147
149



Centers
—SUI/ESO Work Incentives
0
50



Grants
—SUI/ESO subtotal
3,264
3,506



Advances to Unemployment
Trust Fund and Other Funds
357
356



(mandatory)
ETA Program
145
141



Administration
ETA, subtotal
9,711
10,257




CRS-12
FY1999
FY2000
FY2000
FY2000
FY2000
Office or major program
enacted a
request
House
Senate
final
Pension and Welfare
91
102



Benefits Administration
Pension Benefit Guaranty
Corporation (PBGC)
11
11



Administration
PBGC Services (non-add)
149
154



Employment Standards Administration (ESA)
ESA Salaries and Expenses
315
376



ESA Special Benefits
179
79



(mandatory)
ESA Black Lung Disability
1,021
1,014



Trust Fund (mandatory)
ESA subtotal
1,515
1,469



Occupational Safety and
Health Administration
354
388



(OSHA)
Mine Safety and Health
216
228



Administration (MSHA)
Bureau of Labor Statistics
399
421



Departmental Management
432
498



TOTALS, DEPARTMENT OF LABOR
Total Appropriations c, d
12,727
13,377



Source: Amounts are compiled from an unofficial staff table of the House Appropriations
Committee, June 7, 1999.

a The FY1999 enacted amounts are based on P.L. 105-277 and P.L. 106-31; these amounts may be
modified through further legislation during FY1999.
b In most cases, the FY1999 amounts were appropriated under the Job Training Partnership Act
(JTPA); the FY2000 request would be limited only to WIA programs.

c The appropriations total includes discretionary and mandatory funds as well as scorekeeping and
other adjustments.
d All DOL appropriations are for current year obligations and payments; unlike other L-HHS-ED
departments, DOL receives no advance funding.

CRS-13
U.S. Department of Health and Human Services
The FY2000 budget proposal for the U.S. Department of Health and Human
Services (DHHS) is $38.7 billion in discretionary funds, $2.5 billion (6.9%) more than
the FY1999 appropriation of $36.2 billion, as shown in Table 7.
Table 7. Department of Health and Human Services Discretionary
Appropriations
(budget authority in billions of dollars) a
FY1999
FY2000
FY2000
FY2000
FY2000
enacted b
request
House
Senate
final
$36.2
$38.7



Source: Amounts are compiled from an unofficial staff table of the House Appropriations
Committee, June 7, 1999.
a The amounts shown are for discretionary programs funded by

the L-HHS-ED appropriation bill;
mandatory programs funded through the L-HHS-ED bill and other laws are not included.
b The FY1999 enacted amount is based on P.L. 105-277 and P.L. 106-31; this amount may be
modified through further legislation during FY1999.
Mandatory DHHS programs included in the L-HHS-ED bill are funded at $175.9
billion in FY1999, and consist primarily of Grants to States for Medicaid ($103.5
billion), Payments to Medicare Trust Funds ($62.8 billion), Social Services Block
Grant ($1.9 billion), and Foster Care and Adoption ($5.1 billion).
Key Issues
The President’s Request. The President’s FY1999 discretionary budget
request for DHHS focuses on a number of programs related to the funding and
delivery of health care and social services. The DHHS budget emphasizes health
research programs, the President’s Child Care initiative,2 children’s health insurance,
fraud and abuse prevention, user fees, drug and alcohol treatment programs, human
immuno-deficiency virus/acquired immune deficiency syndrome (HIV/AIDS)
prevention and treatment programs, the President’s Race initiative as it relates to
health disparities among minority groups, and the tobacco settlement and related
treatment and prevention activities.
Discretionary increases of more than $100 million requested for DHHS programs
under the President’s FY2000 budget include the following:
2 The proposed Child Care initiative primarily consists of increases in entitlement
spending and tax expenditures outside of the L-HHS-ED appropriations bill; for details see
CRS Report RL30021, Child Care Issues in the 106th Congress, by Karen Spar and Melinda
Gish.

CRS-14
! The largest discretionary increase is an additional $608 million proposed for
the Head Start program, an early childhood development program for children
and their families to assist low-income children start school ready to learn.
! An additional $100 million is proposed for the Ryan White AIDS programs.
! An increase of $320 million is requested for the National Institutes of Health
(NIH).
! A $239 million increase is requested for the Substance Abuse and Mental
Health Services Administration (SAMHSA).
! $166 million more is proposed for the Administration on Aging.
A decrease is proposed for Program Management under the Health Care
Financing Administration (HCFA) at DHHS of $127 million. Smaller reductions in
DHHS funding are requested for several discretionary programs, including Health
Professions ($50 million); other programs administered by Health Resources and
Services Administration (HRSA) (including $65 million for the Health Care and Other
Facilities program); Agency for Health Care Policy Research ($75 million); and
various smaller programs of the Children and Family Services Programs (CFSP) ($74
million). For the Public Health and Social Service Emergency Fund, $386 million is
requested on a non-emergency basis; $223 million is provided in FY1999 from
emergency funding for a variety of activities including anti-bioterrorism, AIDS
prevention and treatment in minority communities, and Year 2000 computer
conversion efforts.
Abortion: A Perennial L-HHS-ED Issue. Since FY1977, the annual
L-HHS-ED appropriations acts have contained restrictions that limit the
circumstances under which federal funds can be used to pay for abortions to cases
where the life of the mother is endangered. Popularly referred to as the Hyde
Amendment, these provisions generally apply to all L-HHS-ED funds; Medicaid is the
largest program affected. The 103rd Congress modified the provisions to permit
federal funding of abortions in cases of rape or incest. The FY1998 L-HHS-ED Act,
P.L. 105-78, extended the Hyde provisions to prohibit the use of federal funds to buy
managed care packages that include abortion coverage, except in the cases of rape,
incest, or life endangerment. For FY1999, the FY1998 Hyde Amendment provisions
were continued, along with a clarification to ensure that the Hyde Amendment applies
to all trust fund programs (namely, Medicare) funded by the FY1999 L-HHS-ED
Appropriations Act, as well as an assurance that Medicare + Choice plans are not
required to provide abortion services.3
Tobacco Revenues. The President’s FY2000 budget incorporates a 55
cents-a-pack increase in the federal cigarette excise tax, which would raise an
estimated $8 billion in additional revenue in FY2000, dropping to $6.4 billion in
FY2004. Those funds are not earmarked for specific DHHS programs, but would be
used to offset federal tobacco-related health care costs. The FY1999 Emergency
Supplemental Appropriations Act, P.L. 106-31, signed into law May 21, 1999,
3 For additional information, see CRS Issue Brief 95095, Abortion: Legislative
Response, by Karen J. Lewis and Thomas P. Carr.

CRS-15
prohibits federal recoupment of any state funds received from tobacco settlements and
permits states to spend any such funds collected without restriction.4
For Additional Reading
CRS Issue Briefs.
CRS Issue Brief 95095, Abortion: Legislative Response, by Karen J. Lewis and
Thomas P. Carr.
CRS Issue Brief 98010, Head Start: Background and Funding, by Karen Spar.
CRS Issue Brief IB10018, Research and Development Funding: Fiscal Year 2000,
by Michael E. Davey, Coordinator.
CRS Issue Brief 93034, Welfare Reform, by Vee Burke.
CRS Reports.
CRS Report 95-1101, Abortion Procedures, by Irene E. Stith-Coleman.
CRS Report 96-293, AIDS Funding for Federal Government Programs: FY1981-
FY2000, by Judith A. Johnson.
CRS Report 98-476, AIDS: Ryan White CARE Act, by Sharon Kearney.
CRS Report 96-617, Alien Eligibility for Public Assistance, by Joyce C. Vialet and
Larry M. Eig.
CRS Report 96-253, Cancer Research: Selected Federal Spending and Morbidity
and Mortality Statistics, by Judith A. Johnson.
CRS Report 98-740, The Centers for Disease Control and Prevention: An Overview,
by Paulette L. Como and Irene Stith-Coleman.
CRS Report RL30021, Child Care Issues in the 106 Congress
th
, by Karen Spar and
Melinda Gish.
CRS Report 97-335, Cloning: Where Do We Go From Here?, by Irene E. Stith-
Coleman.
CRS Report RS20124, Community Services Block Grants: Background and
Funding, by Karen Spar.
CRS Report 97-917, Disease Funding and NIH Priority Setting, by Judith A.
Johnson.
CRS Report 97-757, Health Centers, by Sharon Kearney.
CRS Report 95-910, Human Embryo Research, by Irene E. Stith-Coleman.
CRS Report 94-211, The Low-Income Home Energy Assistance Program: A Fact
Sheet, by Melinda Gish.
CRS Report 97-350, Maternal and Child Health Block Grant, by Sharon Kearney.
CRS Report RL30109, Medicare and Medicaid Organ Transplants, by Sibyl Tilson.
CRS Report 95-96, The National Institutes of Health: An Overview, by Pamela W.
Smith.
CRS Report 95-917, Older Americans Act: Programs and Funding, by Carol
O’Shaughnessy and Celinda Franco.
4 For additional information, see CRS Report RL30058, Tobacco Master Settlement
Agreement (1998): Overview and Issues for the 106 Congr
th
ess, by C. Stephen Redhead. For
comprehensive information, see the CRS Electronic Briefing Book on the Tobacco Settlement
at [http://www.congress.gov/brbk/html/ebtobtop.html].

CRS-16
CRS Report 98-668, Refugee Admissions and Resettlement Policy: Facts and
Issues, by Joyce C. Vialet.
CRS Report 94-953, Social Services Block Grants (Title XX of the Social Security
Act), by Karen Spar.
CRS Report 97-926, State Children’s Hospital Insurance Program: Guidance on
Frequently Asked Questions, by Jean Hearne and Jennifer A. Neisner.
CRS Report 98-692, State Children’s Hospital Insurance Program: Implementation
Progress, by Evelyne R. Parizek, et al.
CRS Report 97-844, The Substance Abuse and Mental Health Services
Administration (SAMHSA), by Cecilia Oregón Echeverría
CRS Report RL30058, Tobacco Master Settlement Agreement (1998): Overview
and Issues for the 106 Congress
th
, by C. Stephen Redhead.
CRS Report 97-1048, The Title X Family Planning Program, by Sharon Kearney.
CRS Report 98-939, Violent Crime Reduction Trust Fund: An Overview, by David
Teasley.
CRS Report 98-115, Welfare Reform: Federal-State Financing Under the
Temporary Assistance for Needy Families Program, by Gene Falk.
CRS Report RL30082, Welfare Reform: Unspent TANF Funds, by Gene Falk.
CRS Electronic Briefing Book
Tobacco Briefing Book
[http://www.congress.gov/brbk/html/ebtobtop.html]
Selected World Wide Web Sites.
U.S. Department of Health and Human Services
[http://www.hhs.gov]
[http://www.hhs.gov/progorg/asmb/budget/index.html]
[http://www.hhs.gov/progorg/asmb/budget/fy2000.html]
[http://www.hhs.gov/news/speeches/990201.html]
Detailed Appropriation Table
Table 8 shows the appropriation details for offices and major programs of
DHHS.

CRS-17
Table 8. Detailed Department of Health and Human Services
Appropriations
($ in millions)
FY1999
FY2000
FY2000
FY2000
FY2000
Office or major program
enacted a
request
House
Senate
final
Public Health Service (PHS)
Health Resources and
Services Administration
925
945



(HRSA), Consolidated
Health Centers
HRSA, National Health
115
115



Service Corps
HRSA, Health Professions
302
252



HRSA, Maternal and Child
695
695



Health Block Grant
HRSA, Ryan White AIDS
1,411
1,511



Programs
HRSA, Family Planning
215
240



(Title X)
HRSA, Vaccine Injury
160
60



Compensation (mandatory)
HRSA, Other
461
391



HRSA, subtotal
4,284
4,209



Centers for Disease Control
2,771
2,820



and Prevention (CDC)
National Institutes of Health
(NIH) b
15,613
15,933



Substance Abuse and Mental
Health Services
2,488
2,727



Administration (SAMHSA)
Retirement Pay and Medical
Benefits, Commissioned
202
215



Officers (mandatory)
Agency for Health Care
102
27



Policy and Research
PHS, subtotal
25,500
25,891



Health Care Financing Administration (HCFA)
Medicaid Grants to States
103,455
116,676



(mandatory)
Payments to Medicare Trust
62,823
69,289



Funds (mandatory)
Program Management
2,143
2,016



HCFA, subtotal
168,421
187,981



Administration for Children and Families (ACF)
—Family Support Payments
to States (Welfare, Child
3,213
-61



Support) (mandatory)
—Low Income Home Energy
Assistance Program
1,100
1,100



(LIHEAP)

CRS-18
FY1999
FY2000
FY2000
FY2000
FY2000
Office or major program
enacted a
request
House
Senate
final
—LIHEAP Emergency
300
300



Allocation
—Refugee and Entrant
515
431



Assistance
—Child Care and
Development Block Grant
1,183
1,183



(CCDBG)
—Social Services Block
Grant (Title XX)
1,909
2,380



(mandatory)
—Children and Family
Services Programs (CFSP),
4,659
5,267



Head Start
—CFSP, Community
500
500



Services Block Grant
—CFSP, Child Welfare
292
292



Services
—CFSP, Developmental
119
119



Disabilities
—CFSP, Other
484
410



—Violent Crime Reduction
105
119



Programs
—Rescission of permanent
-21
0



appropriations
—Family Support and
275
295



Preservation (mandatory)
—Foster Care and Adoption
Assistance State Payments
5,119
5,850



(mandatory)
ACF, subtotal
19,752
18,185



Administration on Aging
882
1,048



Office of the Secretary,
Public Health/Social Service
223
386



Fund (non-add for FY1999) c
Office of the Secretary
331
285



TOTALS, DEPARTMENT OF HEALTH AND HUMAN SERVICES
Total Appropriations d
214,885
233,775



Current Year: FY2000
181,724
198,615



FY2001
33,161
35,160



Source: Amounts are compiled from an unofficial staff table of the House Appropriations
Committee, June 7, 1999.

a The FY1999 enacted amounts are based on P.L. 105-277 and P.L. 106-31; these amounts may be
modified through further legislation during FY1999.
b The FY2000 amount includes $40 million of advance funding from FY1999.

c FY2000 funds are requested on a non-emergency basis; for FY1999, $223 million was enacted on
an emergency basis and is not included in the regular FY1999 enacted total.

d The appropriations total includes discretionary and mandatory funds as well as scorekeeping and
other adjustments.

CRS-19
U.S. Department of Education
The FY2000 budget proposal for the U.S. Department of Education (ED) is
$32.8 billion in discretionary funds, $4.0 billion (13.9%) more than the FY1999
appropriation of $28.8 billion, as shown in Table 9.
Table 9. Department of Education Discretionary Appropriations
(budget authority in billions of dollars) a
FY1999
FY2000
FY2000
FY2000
FY2000
enacted b
request
House
Senate
final
$28.8
$32.8



Source: Amounts are compiled from an unofficial staff table of the House Appropriations
Committee, June 7, 1999.
The amounts shown are
a
for discretionary programs funded by the L-HHS-ED appropriation bill;
mandatory programs funded through the L-HHS-ED bill and other laws are not included.
b The FY1999 enacted amount is based on P.L. 105-277 and P.L. 106-31; this amount may be
modified through further legislation during FY1999.
A single mandatory ED program is included in the L-HHS-ED bill — the
Vocational Rehabilitation State Grants program — funded at $2.3 billion in FY1999.
Key Issues
The President’s Request. Support for education has been one of the
President’s top priorities, and the FY2000 discretionary budget request for ED
continues to reflect that emphasis. The comprehensive reform of elementary and
secondary education is a major theme that includes accelerated change and increased
accountability at the school and classroom level, mastering educational basics,
improved teaching for all students, a safe and drug-free environment in the schools,
assistance for increasing college access and completion, and an Hispanic Initiative to
meet the special challenges of language and cultural barriers to education.
Discretionary increases of at least $100 million requested for ED programs under
the President’s FY2000 budget include the following.
! The largest ED discretionary increase (in terms of absolute dollars) is $400
million in additional funds proposed for 21st Century Community Learning
Centers; $200 million is provided in FY1999 for grants that support school-
based programs providing multiple services to meet the needs of the
community.
! $103 million more is proposed for Educational Technology programs,
including additional funds for the Technology Literacy Challenge Fund,
Community-Based Technology Centers, and Middle-School Teacher Training.
! An additional $264 million is requested for Title I Grants to Local Educational
Agencies (LEAs) for the Education of the Disadvantaged.

CRS-20
! $200 million more is requested for the Class Size Reduction program, which
was first initiated under the FY1999 appropriations.
! $190 million more is requested for Adult Education and Family Literacy
programs, with the additional funds to be used for the State Grants program
and an English as a Second Language (ESL) and Civics Education Initiative.
! $120 million more is proposed for Gaining Early Awareness and Readiness for
Undergraduate Programs (GEAR UP).
Smaller increases are proposed for several other ED programs, including other
Education for the Disadvantaged programs ($53 million); Individuals with Disabilities
Education Act (IDEA) State Grants ($51 million) and National Activities ($64
million); Federal Work-Study ($64 million); and Research and Statistics ($68 million).
Decreases requested in the President’s budget include $128 million less for
Impact Aid programs. No funds are requested for the $375 million Innovative
Program Strategies (education block grant) program. In addition, a reduction of $70
million is proposed for the ED portion of the School-to-Work Opportunities Act
program, as part of an authorized phase-out by FY2001 of federal financial support.
A decrease of $241 million is requested in new FY2000 funding for the Pell
Grant program, which is funded at $7.7 billion in FY1999. However, the ED Budget
Service indicates that surplus funds available from prior years would be used to boost
spending for Pell Grants to $7.9 billion in FY2000. The FY2000 budget includes a
$125 increase in the maximum award to $3,250.
Forward and Advance Funding. Many of the larger ED programs have either
authorization or appropriation provisions that allow funding flexibility for school
program years that differ from the federal fiscal year. For example, many of the
elementary and secondary education formula grant programs receive funding through
appropriations that become available for obligation to the states on July 1 of the same
year as the appropriations, and remain available through the end of the following fiscal
year. That is, FY1999 appropriations for some programs will become available for
obligation to the states on July 1, 1999, and will remain available for a 15-month
period until September 30, 2000. This budgetary procedure is popularly known as
“forward” or “multi-year” funding, and is accomplished through funding provisions
in the L-HHS-ED appropriations bill.
Forward funding in the case of elementary and secondary education programs
was designed to allow additional time for school officials to develop budgets in
advance of the beginning of the school year. For Pell Grants, aggregate program
costs for individual students applying for assistance cannot be known with certainty
ahead of time. Appropriations from one fiscal year primarily support Pell Grants
during the following academic year, that is, the FY1999 appropriation supports the
1999-2000 academic year. Unlike forward funded programs, however, the funds
remain available for obligation for 2 full fiscal years. Thus, if cost estimates were too
low, funds may be borrowed from the following year’s appropriations, or conversely,
if the estimates were too high, the surplus may be obligated during the following year.
Advance funding occurs when the appropriations are provided for a fiscal year
beyond the fiscal year for which the appropriations act was enacted. In the case of

CRS-21
FY1999 appropriations, funds would normally become available October 1, 1998,
under regular funding provisions, but would not become available until July 1, 1999,
under the forward funding provisions discussed above. However, if the July 1, 1999
forward funding date were postponed for obligation by 3 months, until October 1,
1999, the appropriation would be classified as “advance” funding since the funds
would become available only in the next fiscal year (FY2000). For Title I Basic
Grants to LEAs, the FY1998 appropriation of $6.2 billion was split — $4.8 billion
was forward funded, and $1.4 billion was advance funded. For FY1999, the $6.5
billion is split so that $0.4 billion is forward funded and $6.1 billion is advance funded.
In other words, the FY1999 appropriation represents an overall increase of $0.3
billion for Title I Basic Grants to LEAs, but the total includes a decrease of $4.4
billion in forward funding and an increase of $4.7 billion in advance funding compared
to the FY1998 appropriations.
What is the impact of this change in funding provisions? At the program or
service level, relatively little is changed by the 3-month delay in the availability of
funds, since most expenditures for a standard school year occur after October 1. At
the appropriations level, however, a significant technical difference occurs because
forward funding is counted as part of the current fiscal year, and is therefore fully
included in the current 302(b) allocation for discretionary appropriations. Under
federal budget scorekeeping rules, advance funding is not counted in the 302(b)
allocation until the following year. In essence, a 3-month change from forward to
advance funding for part or all of the annual appropriations for a given program
allows a one-time shift from the current year to the next year in the scoring of
discretionary appropriations.5
For Additional Reading
CRS Issue Briefs.
CRS Issue Brief IB10029, Education for the Disadvantaged: ESEA Title I
Reauthorization Issues, by Wayne Riddle.
CRS Issue Brief 98013, Elementary and Secondary Education Block Grant
Proposals in the 106 Congress
th
, by Wayne C. Riddle and Paul M. Irwin.
CRS Issue Brief 98047, Elementary and Secondary: Reconsideration of the Federal
Role by the 106 Congress
th
, by Wayne Riddle, et al.
CRS Issue Brief 98035, School Choice: Current Legislation, by Wayne Riddle and
James Stedman.
CRS Reports.
CRS Report RL30106, Adult Education and Family Literacy Act, Title II of the
Workforce Investment Act of 1998, P.L. 105-220, by Paul M. Irwin.
CRS Report RS20156, Elementary and Secondary School Teachers: Action by the
106 Congress
th
, by James B. Stedman.
5 For additional information on budget enforcement procedures, see CRS Report 98-720,
Manual on the Federal Budget Process, by Robert Keith and Allen Schick.

CRS-22
CRS Report RL30128, Elementary and Secondary School Teachers: Selected
Federal Programs and Issues, by James B. Stedman.
CRS Report 98-676, Federal Elementary and Secondary Programs: Ed-Flex and
Other Forms of Flexibility, by Wayne Riddle.
CRS Report 95-502, Goals 2000: Educate America Act Implementation Status and
Issues, by James B. Stedman and Wayne C. Riddle.
CRS Report RL30075, Impact Aid: Overview and Reauthorization Issues, by
Richard N. Apling.
CRS Report RL30103, Individuals with Disabilities Education Act: Department of
Education Final Regulations, by Nancy Lee Jones and Richard N. Apling.
CRS Report 97-433, Individuals with Disabilities Education Act: Full Funding of
State Formula, by Richard N. Apling.
CRS Report 96-178, Information Technology and Elementary and Secondary
Education: Current Status and Federal Support, by James B. Stedman.
CRS Report 94-224, Rehabilitation Act: Major Programs, 105 Congres
th
s
Legislation, and Funding, by Carol V. O’Shaughnessy and Alice D. Butler.
CRS Report 97-760, The Safe and Drug-Free Schools and Communities Program,
by Cecilia Oregón Echeverría.
CRS Report 97-541, School-to-Work Opportunities Act, by Richard N. Apling.
CRS Report 98-969, Technology Challenge Programs in the Elementary and
Secondary Education Act, by Patricia Osorio-O’Dea.
CRS Report 98-957, TRIO and GEAR UP Programs: Provisions and Status, by
James B. Stedman.
Selected World Wide Web Sites.
U.S. Department of Education Home Page
[http://www.ed.gov/]
[http://www.ed.gov/offices/OUS/budget.html]
[http://www.ed.gov/offices/OUS/Budget00/]
[http://www.ed.gov/offices/OUS/Budget00/BudgetSumm/]
[http://www.ed.gov/Speeches/03-1999/00budtst.html]
Detailed Appropriation Table
Table 10 shows the appropriation details for offices and major programs of ED.

CRS-23
Table 10. Detailed Department of Education Appropriations
($ in millions)
FY1999
FY2000
FY2000
FY2000
FY2000
Office or major program
enacted a
request
House
Senate
final
Education Reform, Goals
491
491



2000: Educate America Act
—School-to-Work
125
55



Opportunities
—Educational Technology
698
801



—21st Century Community
200
600



Learning Centers
Office of Elementary and Secondary Education
—Title I Education for the
Disadvantaged, Grants to
7,732
7,996



LEAs
—Education for the
695
748



Disadvantaged, Other
—Impact Aid
864
736



—School Improvement (SI),
335
335



Professional Development
—SI, Innovative Program
375
0



Strategies
—SI, Class Size
1,200
1,400



Reduction
—SI, Safe and Drug-Free
566
591



Schools
—SI, Magnet Schools
104
114



Other School Improvement
231
283



Reading Excellence Act
260
286



Indian Education
66
77



Bilingual and Immigrant
380
415



Education
Office of Special Education and Rehabilitative Services
—Special Education, State
5,055
5,106



Grants b
—Special Education,
279
343



National Activities
—Vocational Rehabilitation
2,304
2,339



State Grants (mandatory)
—Rehabilitation Services,
348
378



Other
Special Institutions for
138
142



Persons With Disabilities
Office of Vocational and Adult Education
Vocational Education
1,154
1,163



Adult Education
358
575



Incarcerated Youth
17
12



Offenders

CRS-24
FY1999
FY2000
FY2000
FY2000
FY2000
Office or major program
enacted a
request
House
Senate
final
Student Financial Assistance
—Pell Grants c
7,704
7,463



—Supplemental Educational
619
631



Opportunity Grants
—Federal Work-Study
870
934



—Federal Perkins Loans,
100
100



Capital Contributions
—Federal Perkins Loans,
30
30



Loan Cancellations
— Leveraging Educational
Assistance Partnership
25
25



(LEAP)
Federal Family Education
46
48



Loans, Administration
Higher Education, Aid for
260
294



Institutional Development
—Federal TRIO Programs
600
630



—GEAR UP
120
240



—Other Higher Education
313
415



Howard University
214
219



College Housing and
Academic Facilities Loans,
1
1



Administration
Office of Educational Research and Improvement
—Research and Statistics
252
320



—Fund for the Improvement
139
140



of Education
—Other Research and
66
80



Improvement
Departmental Management
462
493



TOTALS, DEPARTMENT OF EDUCATION
Total Appropriations d
35,615
37,051



—Current Year: FY2000
29,410
28,977



—FY2001
6,205
8,073



Source: Amounts are compiled from an unofficial staff table of the House Appropriations
Committee, June 7, 1999.

a The FY1999 enacted amounts are based on P.L. 105-277 and P.L. 106-31; these amounts may be
modified through further legislation during FY1999.

b The FY1999 appropriation for Special Education State Grants includes advance funding of $210
million from previous legislation that is not counted as part of the ED total; the FY2000 request
includes $1.9 billion of advance funding that is counted in the ED total.
The ED Budget Service indicates that surplus funds available from prior years would be used t
c
o
boost spending for Pell Grants to $7.9 billion in FY2000.

d The appropriations total includes discretionary and mandatory funds as well as scorekeeping and
other adjustments.

CRS-25
Related Agencies
The FY2000 budget proposal for L-HHS-ED related agencies is $8.2 billion in
discretionary funds, $0.4 billion (5.1%) more than the FY1999 appropriation of $7.8
billion, as shown in Table 11.
Table 11. Related Agencies Discretionary Appropriations
(budget authority in billions of dollars) a
FY1999
FY2000
FY2000
FY2000
FY2000
enacted b
request
House
Senate
final
$7.8
$8.2



Source: Amounts are compiled from an unofficial staff table of the House Appropriations
Committee, June 7, 1999.
a Amounts shown are for discretionary programs funded by the L-HHS-ED appropriation bill;
mandatory programs funded through the L-HHS-ED bill and other laws are not included.
b The FY1999 enacted amount is based on P.L. 105-277 and P.L. 106-31; this amount may be
modified through further legislation during FY1999.
Mandatory programs for related agencies included in the L-HHS-ED bill are
funded at $30.0 billion in FY1999, of which $29.2 billion was for the SSI program
and $0.5 billion was for Special Benefits for Disabled Coal Miners.
Key Issues
The President’s Request. The President’s FY2000 budget for related agencies
includes increases in discretionary spending of more than $100 million for the
following.
! $163 million additional is proposed for the SSA Limitation on Administrative
Expenses.
! An increase of $117 million is requested for discretionary activities related to
the SSI program.
Smaller increases are proposed for Domestic Volunteer Service programs ($23
million); the Corporation for Public Broadcasting (CPB), including the CPB
Digitalization program ($10 million and $5 million, respectively); and the National
Labor Relations Board (NLRB) ($26 million).
Reductions are requested for several related agencies programs, including the
Institute of Museum and Library Services (IMLS) ($11 million).

CRS-26
For Additional Reading
CRS Issue Briefs.
CRS Issue Brief 95063, Public Broadcasting: Issues in the 106 Congress
th
, by
Bernevia McCalip.
CRS Reports.
CRS Report RL30186, Community Service: A Description of AmeriCorps, Foster
Grandparents, and Other Federally Funded Programs, by Ann Lordeman.
CRS Report 97-646, Federal Aid to Libraries: The Library Services and
Technology Act, by Wayne C. Riddle.
CRS Report 98-422, Social Security and the Federal Budget: What Does Social
Security’s Being “Off Budget” Mean?, by David Stuart Koitz.
CRS Report RS20165, Social Security “Lock Box”, by David Stuart Koitz.
CRS Report 94-486, Supplemental Security Income (SSI): a Fact Sheet, by Carmen
Solomon-Fears.
CRS Report RS20019, Supplemental Security Income (SSI): Fraud Reduction and
Overpayment Recovery, by Carmen Solomon-Fears.
CRS Electronic Briefing Book.
Social Security Briefing Book
[http://www.congress.gov/brbk/html/ebssc1.html]
Selected World Wide Web Sites.6
Armed Forces Retirement Home
[http://www.afrh.com]
Corporation for National and Community Service
[http://www.cns.gov]
[http://www.cns.gov/news/1999_02_01.html]
Corporation for Public Broadcasting
[http://www.cpb.org]
[http://www.cpb.org/library/pressreleases/testimony/9903testimony.html]
Federal Mediation and Conciliation Service
[http://www.fmcs.gov]
Institute of Museum and Library Services
[http://www.imls.fed.us]
[http://www.imls.fed.us/librtestimony.htm]
6 Not all of the L-HHS-ED related agencies have web sites, and not all web sites include
FY2000 budget information.

CRS-27
Medicare Payment Advisory Commission
[http://www.medpac.gov/]
National Commission on Libraries and Information Science
[http://www.nclis.gov/]
National Council on Disability
[http://www.ncd.gov/]
National Education Goals Panel
[http://www.negp.gov/]
National Labor Relations Board
[http://www.nlrb.gov]
[http://www.nlrb.gov/press/fy2000_truesdale.html]
Railroad Retirement Board
[http://www.rrb.gov]
[http://www.rrb.gov/FY2000chair.html]
Social Security Administration
[http://www.ssa.gov]
[http://www.ssa.gov/budget/2000bud.htm]
United States Institute of Peace
[http://www.usip.org]
Detailed Appropriation Table
Table 12 shows the appropriation details for offices and major programs of the
L-HHS-ED related agencies.

CRS-28
Table 12. Detailed Related Agencies Appropriations
($ in millions)
FY1999
FY2000
FY2000
FY2000
FY2000
Office or major program
enacted a
request
House
Senate
final
Armed Services Retirement
71
68



Home
Corporation for National and Community Service: Domestic Volunteer Service Act Programs b
—Volunteers in Service to
73
81



America (VISTA)
—National Senior Volunteer
174
185



Corps
—Program Administration
30
34



Domestic Volunteer Service
277
300



subtotal
Corporation for Public
Broadcasting (CPB), 2-Year
340
350



Advance
CPB Digitalization c
15
20



CPB Satellite Replacement
Supplemental d
31
17



Federal Mediation and
35
37



Conciliation Service
Federal Mine Safety and
6
6



Health Review Committee
Institute of Museum and
166
155



Library Services
Medicare Payment Advisory
7
7



Commission
National Commission on
Libraries and Information
1
1



Science
National Council on
2
2



Disability
National Education Goals
2
2



Panel
National Labor Relations
184
210



Board
National Mediation Board
8
9



Occupational Safety and
8
9



Health Review Commission
Railroad Retirement Board
Dual Benefits Payments
178
165



(mandatory)
Railroad Retirement Board
Limitation on
96
92



Administration

CRS-29
FY1999
FY2000
FY2000
FY2000
FY2000
Office or major program
enacted a
request
House
Senate
final
Social Security Administration (SSA)
—SSA, Special Benefits for
Disabled Coal Minors
528
508



(mandatory)
—SSA, Supplemental
Security Income (SSI)
29,231
29,250



(mandatory)
—SSA, Supplemental
2,366
2,483



Security Income (SSI), Other
—SSA, Federal Funds,
20
21



Other (mandatory)
—SSA, Limitation on
4,060
4,223



Administrative Expenses
—SSA, Office of Inspector
56
66



General
SSA subtotal
36,261
36,551



United States Institute for
12
13



Peace
TOTALS, RELATED AGENCIES
Total Appropriations e
37,700
37,997



—Current Year: FY2000
27,652
27,633



—FY2001
9,708
10,014



—FY2002
340
350



Source: Amounts are compiled from an unofficial staff table of the House Appropriations
Committee, June 7, 1999.

a The FY1999 enacted amounts are based on P.L. 105-277 and P.L. 106-31; these amounts may be
modified through further legislation during FY1999.
b Funds are provided for Domestic Volunteer Service Act programs only; the Corporation for
National and Community Service also receives funds from the Veterans Affairs and Housing and
Urban Development appropriations bill for AmeriCorps Grants and other programs under the
National Community Service Act.

c The FY1999 appropriation for the CPB Digitalization Program is contingent on the enactment of
a specific authorization by September 30, 1999.
d The P.L. 106-31 supplemental provided both FY1999 and FY2000 funding for CPB satellite
replacement.

e The appropriations total includes discretionary and mandatory funds as well as scorekeeping and
other adjustments.

CRS-30
Related Legislative Activity
Several legislative items related to L-HHS-ED appropriations have been
considered by the 1 Session of the 106
st
Congress, including supplementa
th
l
appropriations for FY1999 and the congressional budget resolution for FY2000.
P.L. 106-31, H.R. 1141/S. 544. 1999 Emergency Supplemental Appropriations
Act. Among the L-HHS-ED provisions, a supplemental appropriation of $10
7
0
million is provided for the DHHS Refugee and Entrant Assistance for the temporary
relief of displaced Kosovar Albanians, $1.0 million for DHHS Nursing Home Appeals,
$56.4 million for ED ESEA Title I Concentration Grants, and $48.0 million for the
CPB to enable National Public Radio to obtain replacement satellite services.
Rescissions to appropriations already enacted for other programs are made to offset
some of the supplemental appropriations, including a reduction of $22.4 million from
the DOL Unemployment Insurance program, $2.8 million from the DHHS Federal
Capital Loan Program for Nursing, and $6.5 million from the ED Office of
Educational Research and Improvement. Section 3031 amends the Social Security
Act to prohibit treating any funds recovered from tobacco companies by the states as
an overpayment for the purposes of Medicaid, and permits states to spend any
settlement funds without restriction. Title V (“Technical Corrections”) of P.L. 106-
31 makes a series of amendments to the FY1999 appropriations language, including
13 amendments to L-HHS-ED appropriations provided by P.L. 105-277. H.R. 1141
(H.Rept. 106-64) passed the House March 24, 1999. S. 544 (S.Rept. 106-8) was
amended and passed by the Senate on March 23; subsequently, its text was
incorporated into H.R. 1411 as an amendment and was passed by the Senate on
March 25, 1999. Conference report (H.Rept. 106-143) was passed by the House on
May 18 (roll call #133, 269-158), and by the Senate May 20 (roll call #136, 64-36).
As amended, H.R. 1141 was signed into law by the President May 21, 1999.
H.Con.Res. 68/S.Con.Res. 20. The FY2000 concurrent resolution on the
budget sets annual levels for the federal budget through FY2009. The resolutio
8
n
establishes the aggregate discretionary spending limit for the 13 regular appropriations
bills, known as the 302(a) allocation, and specifies the budget reconciliation process
for the modification of mandatory spending limits, if necessary. The resolution sets
spending targets for functional categories of the budget, and contains “sense of the
Congress” provisions. Report language indicates the funding assumptions made for
selected programs that might be used to reach the spending targets. However, the
final spending figures at the program level are left for appropriations bills.
H.Con.Res. 68 (H.Rept. 106-73) was amended and passed by the House, March 25,
1999. S.Con.Res. 20 (S.Rept. 106-27) was amended and incorporated in H.Con.Res.
68 as an amendment, and passed the Senate March 25, 1999. A conference report
7 For a summary of provisions, see CRS Report RL30083, Supplemental
Appropriations for FY1999: Central America Disaster Aid, Middle East Peace, and Other
Initiatives
, by Larry Nowels.
8 For additional information, see CRS Issue Brief IB10017, The Budget for Fiscal Year
2000, by Philip D. Winters.

CRS-31
(H.Rept. 106-91) was agreed to by the House April 14, and by the Senate April 15,
1999.
Action on FY1999 Appropriations in the 105 Congress.
th
During the 105th
Congress, most L-HHS-ED appropriations for FY1999 were provided by P.L. 105-
277, the Omnibus Consolidated and Emergency Supplemental Appropriations Act,
1999, which was signed into law by the President on October 21, 1998 (H.R. 4274,
conference report H.Rept. 105-825). P.L. 105-277 included supplemental funding for
a few specific DOL and DHHS programs. Other legislation in the 105
9
Congres
th
s
that was related to the FY1999 L-HHS-ED appropriations included the following:
! The Congress did not reach final agreement on the FY1999 congressional
budget resolutions; H.Con.Res. 284 (H.Rept. 105-555) and S.Con.Res. 86
(S.Rept. 105-170) passed their respective chambers, but a conference report
was never issued.
! Six continuing resolutions provided temporary FY1999 funding for L-HHS-
ED programs prior to enactment of P.L. 105-277 (P.L. 105-128 P.L. 105-249,
P.L. 105-254, P.L. 105-257, P.L. 105-260, and P.L. 105-273).
9 For additional information, see CRS Report RL30056, Appropriations Supplemental
for FY1999: Emergency Funding in P.L. 105-277 for Agriculture, Embassy Security, Y2K
Problems, Defense, and Other Issues
, by Larry Nowels, Coordinator.

CRS-32
Appendix A: Terminology
Advance appropriation is budget authority that will become available in a fisca
10
l
year beyond the fiscal year for which the appropriations act is enacted; the entire
amount is counted under scorekeeping procedures in the fiscal year it first becomes
available.
Appropriation is budget authority that permits federal agencies to incur obligations
and to make payments out of the Treasury for specified purposes. Appropriations
represent the amounts that agencies may obligate during the period of time specified
in the law. Annual appropriations are provided in appropriations acts; most
permanent appropriations are provided in substantive law. Major types of
appropriations are regular, supplemental, and continuing.
Budget authority is legal authority to incur financial obligations that normally result
in the outlay of federal government funds. Major types of budget authority are
appropriations, borrowing authority, and contract authority. Budget authority also
includes the subsidy cost of direct and guaranteed loans, but excludes the portion of
loans that is not subsidized.
Budget resolution is a concurrent resolution passed by both Houses of Congress, but
not requiring the signature of the President, setting forth the congressional budget for
at least 5 fiscal years. It includes various budget totals and functional allocations.
Discretionary spending is budget authority provided in annual appropriation acts,
other than appropriated entitlements.
Entitlement authority is the authority to make payments to persons, businesses, or
governments that meet the eligibility criteria established by law; as such, it represents
a legally binding obligation on the part of the federal government. Entitlement
authority may be funded by either annual or permanent appropriation acts.
Forward funding is budget authority that becomes available after the beginning of
one fiscal year and remains available into the next fiscal year; the entire amount is
counted or scored in the fiscal year it first becomes available.
Mandatory (direct) spending includes: (a) budget authority provided in laws other
than appropriations; (b) entitlement authority; and (c) the Food Stamp program.
Rescission is the cancellation of budget authority previously enacted.
Scorekeeping is a set of procedures for tracking and reporting on the status of
congressional budgetary actions.
Supplemental appropriation is budget authority provided in an appropriations act
in addition to regular appropriations already provided.
10 These definitions are based on CRS Report 98-720, Manual on the Federal Budget
Process, by Robert Keith and Allen Schick.

CRS-33
Appendix B: Scope of the L-HHS-ED Bill
The total budget authority for programs in all federal departments and agencies
is estimated to be $1,770.1 billion in FY1999, as shown in Table B.1. Of this
amount, $872.8 billion is the estimated total for the departments and related agencies
represented in the L-HHS-ED bill, or 49.3% of all federal budget authority.
Table B.1. Scope of the L-HHS-ED Bill
(Estimated FY1999 budget authority in billions of dollars) a
Estimated
Percent of
amount in
total federal
Budget category
billions
budget
Total Federal Budget Authority
1,770.1
100.0%
U.S. Department of Labor
36.6
2.1%
U.S. Department of Health and Human Services
379.3
21.4%
U.S. Department of Education
34.3
1.9%
Social Security Administration (On-budget)
41.1
2.3%
Social Security Administration (Off-budget)
380.1
21.5%
Other Related Agencies
1.4
0.1%
L-HHS-ED Agency Total
872.8
49.3%
L-HHS-ED Bill, Total Current Year Funds
291.9
16.5%
L-HHS-ED Bill, Current Year Mandatory Funds
208.6
11.8%
L-HHS-ED Bill, Current Year Discretionary Funds
83.3
4.7%
Total Federal Discretionary Funds
575.0
32.5%
Source: Budget of the United States Government Historical Tables Fiscal Year 2000, table 5.2,
Budget of the United States Government, table S-9; and the conference report H.Rept. 105-825,
which provides details for the FY1999 L-HHS-ED appropriations under P.L. 105-277.
Note: For data comparability, the FY1999 appropriations in this table are based on the February
1999 OMB budget documents and the October 1998 conference report; the data therefore do not
include adjustments for funding enacted through the P.L. 106-31 FY1999 supplemental
appropriations.
The estimated L-HHS-ED FY1999 appropriation was $291.9 billion in current
year funds — $83.3 billion in discretionary funds and $208.6 billion in mandatory
funds. The L-HHS-ED appropriations Committees generally have effective control
only over the discretionary funds, which currently constitute approximately 4.7% of
the aggregate budget authority for all federal departments and agencies, and 9.5% of
the total budget authority for L-HHS-ED departments and agencies. What accounts
11
11 The annual congressional budget resolution sets aggregate spending targets for budget
(continued...)

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for the remaining L-HHS-ED funds — the remaining 90.5% that are either non-
discretionary or are otherwise funded outside of the L-HHS-ED appropriation bill?
First, some DOL, DHHS, and ED programs receive automatic funding without
congressional intervention in the annual appropriations process; these programs
receive funds from permanent appropriations and trust funds instead. This process
accounts for the difference between the L-HHS-ED bill total of $291.9 billion and the
agency total of $872.8 billion in FY1999. Social security benefits, unemployment
compensation, Medicare, railroad retirement, Temporary Assistance for Needy
Families (TANF, the welfare reform program), and student loans are the major
programs in this group.12
Second, mandatory programs account for the difference between the
L-HHS-ED total of $291.9 billion and the subtotal of $83.3 billion for discretionary
funds in FY1999. Although annual appropriations are made for these programs, in
general the amounts provided must be sufficient to cover program obligations and
entitlements to beneficiaries. For these programs, as well as the programs funded
through trust funds and permanent authorities, most changes in funding levels are
made through amendments to authorizing legislation rather than through
appropriation bills. Federal administrative costs for these programs typically are
subject to annual discretionary appropriations, however. These programs include
Supplemental Security Income, Black Lung payments, and the Social Services Block
Grant, as well as general (non-earmarked) fund support for Medicare and Medicaid.
Finally, a few DHHS programs are funded in other appropriations bills.
! The Food and Drug Administration is funded by Agriculture appropriations.
! The Indian Health Service is funded in the Interior bill.
! The Office of Consumer Affairs is funded in the Veterans Affairs and Housing
and Urban Development (VA/HUD) appropriations bill.
In addition, the Corporation for National and Community Service (CNCS), one of the
related agencies programs, receives funds from both (a) the L-HHS-ED bill for
programs authorized under the Domestic Volunteer Service Act of 1973, and (b) the
(...continued)
11
functions; House and Senate committees must initiate and report legislation that will achieve
these targets. Typically, appropriation committees develop proposals to meet discretionary
spending levels through appropriation bills. Likewise, authorizing committees develop
proposals to meet mandatory spending levels; these proposals are often reported by separate
authorizing committees and combined into a single, omnibus reconciliation bill.
12 The Social Security Administration (SSA) was separated from DHHS and established
as an independent federal agency on March 31, 1995. Within the L-HHS-ED bill, however,
the SSA merely was transferred from DHHS to the status of “related agency.” The operation
of the social security trust funds is considered off-budget. Of the $872.8 billion total for
L-HHS-ED departments and agencies in FY1999, the SSA accounted for $421.2 billion, or
48.3% of the total. The SSA amount represents $41.1 billion for designated on-budget
activities and $380.1 billion for off-budget activities.

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VA/HUD bill for AmeriCorps and other programs authorized by the National
Community Service Act.