Order Code RL32302
CRS Report for Congress
Received through the CRS Web
Appropriations for FY2005:
Department of Homeland Security
Updated September 20, 2004
Jennifer E. Lake and Blas Nuñez-Neto
Analysts in Social Legislation
Domestic Social Policy Division
Congressional Research Service ˜ The Library of Congress
The annual consideration of appropriations bills (regular, continuing, and supplemental) by
Congress is part of a complex set of budget processes that also encompasses the
consideration of budget resolutions, revenue and debt-limit legislation, other spending
measures, and reconciliation bills. In addition, the operation of programs and the spending
of appropriated funds are subject to constraints established in authorizing statutes.
Congressional action on the budget for a fiscal year usually begins following the submission
of the President’s budget at the beginning of each annual session of Congress.
Congressional practices governing the consideration of appropriations and other budgetary
measures are rooted in the Constitution, the standing rules of the House and Senate, and
statutes, such as the Congressional Budget and Impoundment Control Act of 1974.
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 Homeland Security. It summarizes the status of the bill,
its scope, major issues, funding levels, and related congressional activity, and is updated as
events warrant. The reports lists the key CRS staff relevant to the issues covered and related
CRS products.
Note: A web version of this document with active links is available to congressional
staff at:[http://www.crs.gov/products/appropriations/apppage.shtml].
Appropriations for FY2005:
Department of Homeland Security
Summary
This report describes the FY2005 appropriations for the Department of
Homeland Security (DHS). It summarizes the President’s FY2005 budget request
for DHS programs submitted to Congress February 2, 2004, the amounts provided
in H.R. 4567 (approved by the House June 18, 2004), and the amounts provided in
H.R. 4567 (approved in the Senate on September 14, 2004 in lieu of S. 2537). The
report includes tables that compare the FY2004 appropriations for the programs and
activities of DHS, the President’s FY2005 request, the congressional response to the
request.
The President’s FY2005 Budget requests total appropriations of $32.6 billion
for DHS. This represents a 7.7% increase over the FY2004 enacted amount of $30.3
billion. H.R. 4567 and S. 2567 recommend a total appropriation of $33.1 billion
representing an increase of $500 million compared to the request, and a 9.2%
increase compared to the FY2004 enacted level. The FY2005 appropriation is
requested through four separate titles: (I) Departmental Management and Operations
($714 million); (II) Security, Enforcement and Investigations ($20.4 billion); (III)
Preparedness and Recovery ($9.2 billion); and (IV) Research and Development,
Training, Assessments, and Services ($2.2 billion). H.R. 4567 provides the
following amounts for each title: (I) $634 million; (II) $20.5 billion; (III) $9.6 billion;
and (IV) $2.4 billion. The Senate-passed H.R. 4567 provides the following amounts
for each title: (I) $562 million; (II) $21.3 billion; (III) $9.7 billion; and (IV) $2.3
billion.
The following are the amounts recommended by the House-passed H.R. 4567
and the Senate-passed H.R. 4567 (in parenthesis) for major operational components
of DHS. Included in Title II are the operations of the Bureau of Customs and Border
Protection (CBP), $5.1 billion ($5.2 billion), the Bureau of Immigration and Customs
Enforcement (ICE) $3.3 billion ($3.8 billion), the Transportation Security
Administration (TSA) $3.2 billion ($3.4 billion), the U.S. Coast Guard $7.3 billion
($7.5 billion), and the U.S. Secret Service $1.2 billion ($1.2 billion). Title II also
includes funding for the U.S. Visitor and Immigrant Status Indicator Technology
(US-VISIT) project ($340 million), which is fully funded by H.Rept. 108-541 and
S.Rept. 108-280. Title III includes $4.1 billion provided by H.Rept. 108-541 for the
Office of State and Local Government Coordination and Preparedness (OSLGCP),
which the Senate-passed H.R. 4567 funds at $4.0 billion. Title IV includes an
appropriation of $140 million for Citizenship and Immigration Services (CIS), for
which H.Rept. 108-541 recommends $160 million, and S.Rept. 108-280 recommends
$140 million.
The House bill would provide a total appropriation of $33.1 billion for DHS,
while the Senate version would provide a total appropriation of $33.8 billion.
Conferees have been appointed to resolve the difference between the two versions
of H.R. 4567 and conference action is expected in the coming weeks. This report
will be updated as events warrant.
Key Policy Staff: Homeland Security
Area of Expertise
Name
Phone
E-mail
Coordinator
Jennifer E. Lake
7-0620
jlake@crs.loc.gov
Coordinator
Blas Nuñez-Neto
7-0622
bnunezneto@crs.loc.gov
Title I, Departmental Management and Operations
General Management
Harold C. Relyea
7-8679
hrelyea@crs.loc.gov
Personnel Policy
Barbara L. Schwemle
7-8655
bschwemle@crs.loc.gov
Title II, Security, Enforcement, and Investigation
Coast Guard
Ronald O’Rourke
7-7610
rorourke@crs.loc.gov
Customs Issues
Jennifer E. Lake
7-0620
jlake@crs.loc.gov
Immigration Issues
Alison Siskin
7-0260
asiskin@crs.loc.gov
Secret Service
Stephanie Smith
7-8674
ssmith@crs.loc.gov
Transportation Security
Bartholomew Elias
7-7771
belias@crs.loc.gov
Administration
U.S. VISIT Program
Lisa M. Seghetti
7-4669
lseghetti@crs.loc.gov
Title III, Preparedness and Recovery
Biodefense/Bioshield
Frank Gottron
7-5854
fgottron@crs.loc.gov
Disaster Relief
Keith Bea
7-8672
kbea@crs.loc.gov
Emergency
Keith Bea
7-8672
kbea@crs.loc.gov
Preparedness and
Response
Firefighter Assistance
Lennard G. Kruger
7-7070
lkruger@crs.loc.gov
First Responders,
Shawn Reese
7-0635
sreese@crs.loc.gov
Domestic Preparedness
Public Health Programs
Sarah Lister
7-7320
slister@crs.loc.gov
Title IV, Research and Development, Training, Assessments, and Services
Citizenship and
Ruth Ellen Wasem
7-7342
rwasem@crs.loc.gov
Immigration Services
Information Analysis,
Todd M. Masse
7-2393
tmasse@crs.loc.gov
Domestic
Information Analysis,
Richard A. Best, Jr.
7-7607
rbest@crs.loc.gov
Foreign
Infrastructure Protection
John D. Moteff
7-1435
jmoteff@crs.loc.gov
Science and Technology
Daniel Morgan
7-5849
dmorgan@crs.loc.gov
Contents
Most Recent Developments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
H.R. 4567 Passed in the Senate in lieu of S. 2537 . . . . . . . . . . . . . . . . . 1
H.R. 4567 Passed in the House . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
S. 2537 Reported . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
President’s FY2005 Budget Submitted . . . . . . . . . . . . . . . . . . . . . . . . . 1
Note on Most Recent Data . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
302(a) and 302(b) Allocation Ceilings . . . . . . . . . . . . . . . . . . . . . . . . . 2
Highlights . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Appropriations for the Department of Homeland Security . . . . . . . . . . . . . . 4
Title I: Departmental Management and Operations . . . . . . . . . . . . . . . . . . . . 7
Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Department-wide Technology Investments . . . . . . . . . . . . . . . . . . . . . . 8
Title II: Security, Enforcement, and Investigations . . . . . . . . . . . . . . . . . . . . 9
Office of the Undersecretary for Border and Transportation
Security . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
US-VISIT . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
Customs and Border Protection (CBP) . . . . . . . . . . . . . . . . . . . . . . . . 11
Immigration and Customs Enforcement (ICE) . . . . . . . . . . . . . . . . . . 13
Transportation Security Administration (TSA) . . . . . . . . . . . . . . . . . . 15
United States Coast Guard . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
United States Secret Service . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
Title III: Preparedness and Recovery . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
Emergency Preparedness and Response (EPR) . . . . . . . . . . . . . . . . . . 19
Office of Domestic Preparedness (ODP) or Office of State and
Local Government Coordination and Preparedness (OSLGCP) . 20
Title IV: Research and Development, Training, Assessments, and
Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
Citizenship and Immigration Services (CIS) . . . . . . . . . . . . . . . . . . . . 24
Information Analysis and Infrastructure Protection (IAIP) . . . . . . . . . 24
Federal Law Enforcement Training Center (FLETC) . . . . . . . . . . . . . 25
Science and Technology Directorate (S&T) . . . . . . . . . . . . . . . . . . . . 26
Related Legislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
FY2005 Budget Resolution, S.Con.Res. 95 /H.Con.Res. 393 . . . . . . . . . . . 27
Selected Websites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
List of Tables
Key Policy Staff: Homeland Security . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Table 1. Legislative Status of Homeland Security Appropriations . . . . . . . . . . . . 1
Table 2. FY2005 302(b) Discretionary Allocations for DHS . . . . . . . . . . . . . . . . 2
Table 3. Department of Homeland Security: Summary of Appropriations
. . . . . 6
Table 4. Title I: Departmental Management and Operations . . . . . . . . . . . . . . . . 7
Table 5. Title II: Security, Enforcement, and Investigations . . . . . . . . . . . . . . . . 10
Table 6. Title III: Preparedness and Recovery . . . . . . . . . . . . . . . . . . . . . . . . . . 22
Table 7. Title IV: Research and Development, Training, Assessments,
and Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
Appropriations for FY2005:
Department of Homeland Security
Most Recent Developments
H.R. 4567 Passed in the Senate in lieu of S. 2537. On September 14,
2004, the Senate passed H.R. 4567 after striking the House-passed language and
inserting the language of S. 2537. The Senate-passed version of H.R. 4567 provides
a total appropriation of $33.8 billion for the Department of Homeland Security
(DHS); an increase of $1.3 billion over the Administration’s request, and an 11.5%
increase over the enacted FY2004 level of $30.3 billion.
H.R. 4567 Passed in the House. On June 18, 2004, H.R. 4567 was passed
in the House by a vote of 400-5. The bill would provide a total appropriation of
$33.1 billion for the Department of Homeland Security (DHS); an increase of $500
million over the Administration’s request, and a 9.2% increase over the enacted
FY2004 level of $30.3 billion.
S. 2537 Reported. On June 17, 2004, S. 2537 was introduced in the Senate.
The bill would provide a total appropriation of $33.1 billion for (DHS); an increase
of $500 million over the Administration’s request, and a 9.2% increase over the
enacted FY2004 level. S. 2537 was accompanied by Senate Report, S.Rept. 108-280,
which was reported by the Senate Appropriations Committee on June 17, 2004, by
a vote of 29-0.
President’s FY2005 Budget Submitted. On February 2, 2004, the
President submitted the FY2005 budget request to Congress, proposing $32.6 billion
in appropriations for the DHS. This represents a 7.7% increase over net enacted
FY2004 funding of $30.3 billion.1
Table 1 summarizes the legislative status of DHS appropriations for FY2005.
Table 1. Legislative Status of Homeland Security Appropriations
Subcommittee
Conference
Markup
Confer.
Report Approval
H.Rept.
House
S. Rept
Senate
Report
Public
House
Senate
108-541
Passage
108-280
Passage
H.Rept.
House
Senate
Law
06/03a
06/16b
6/09c
06/18d
06/17e
09/14
—
—
—
—
(vv)
(vv)
(vv)
(400-5)
(29-0)
(93-0)
1 The FY2004 amount does not include $4.8 billion in scorekeeping adjustments,
rescissions, and advance appropriations.
CRS-2
Note: vv = voice vote
a. House Appropriations Subcommittee for Homeland Security held a markup on June 3, 2004.
b. Senate Appropriations Subcommittee for Homeland Security held a markup on June 16, 2004.
c. House Appropriations Committee reported by voice vote the report (H.Rept. 108-541) to the FY2005 DHS
Appropriations bill (H.R. 4567).
d. The House passed H.R. 4567 June 18, 2004 by a vote of 400-5.
e. Senate Appropriations Committee reported by a vote of 29-0, the report (S.Rept. 108-280) to the FY2005 DHS
Appropriations bill (S. 2537).
Note on Most Recent Data. The data in this report are based on House
Report (H.Rept. 108-541) to H.R. 4567; the House-passed version of H.R. 4567; the
Senate-passed version of H.R. 4567; and on Senate Report (S.Rept. 108-280) to S.
2537.
302(a) and 302(b) Allocation Ceilings. The maximum budget authority
for annual DHS appropriations is determined through a two-stage congressional
budget process. In the first stage, the Congress agrees to overall spending totals in
the annual concurrent resolution on the budget. Subsequently, these amounts are
allocated among the various committees, usually through the statement of managers
for the conference report on the budget resolution. These amounts are known as the
302(a) allocations. They include the discretionary totals available to the House and
Senate Committees on Appropriations for enactment in annual appropriations
through the 13 subcommittees responsible for the development of the appropriation
bills specific to each.
In the second stage of the process, the appropriations committees allocate the
302(a) discretionary funds among their subcommittees for each of the 13 annual
appropriation bills. These amounts are known as the 302(b) allocations. These
allocations must add up to no more than the 302(a) discretionary allocation, and form
the basis for enforcing budget discipline, since any bill reported with total above the
ceiling is subject to a point of order. 302(b) allocations may be adjusted during the
year as the various appropriations bills progress toward final enactment. On May 19,
2004, the House agreed to the conference report on the FY2005 budget resolution
S.Con.Res. 95. The Senate has not yet agreed to the conference report. On June 15,
2004, House Appropriations Committee Chairman Young submitted H.Rept. 108-
543, which included subcommittee 302(b) allocations based on the amounts agreed
to in the conference report on S.Con.Res. 95. The 302(a) allocation in the House
version of S.Con.Res. 95 is $821 billion, and the discretionary 302(b) allocation
listed in H.Rept. 108-543 for Homeland Security is $32 billion. On September 8,
2004, the Senate Appropriations Committee approved its 302(b) allocations with a
total budget authority for Homeland Security of $32 million. Table 2 shows the
302(b) discretionary allocations for DHS, thus far in the process.
Table 2. FY2005 302(b) Discretionary Allocations for DHS
(budget authority in billions of dollars)
FY2004
FY2005 Request
FY2005 House
FY2005 Senate
FY2005 Enacted
Comparable
Comparable
Allocation
Allocation
Comparable
$29.2
$31.1
$32 $32
—
CRS-3
Source: H.Rept. 108-543, Suballocation of Budget Allocations for FY2005, submitted June 15, 2004,
and Senate Appropriations Committee press release, September 8, 2004, available at
[http://appropriations.senate.gov/releases/Allocations%202005.pdf].
Highlights
This report describes the President’s proposal for FY2005 appropriations for
DHS programs, as submitted to the Congress on February 2, 2004, and the
congressional response to that proposal. It compares the FY2005 amounts proposed
in the President’s budget, the current estimates of the FY2004 amounts for programs
and activities that were transferred to DHS after its establishment on January 24,
2003. This report tracks legislative action and congressional issues related to the
FY2005 DHS appropriations bill, with particular attention paid to discretionary
programs. However, the report does not follow specific funding issues related to
mandatory DHS programs — such as retirement pay — nor does it systematically
follow any legislation related to the authorization or amendment of DHS programs.
FY2005 represents the second annual appropriations cycle for DHS. Of the 13
annual appropriations bills, the DHS bill is estimated to be the fifth largest source of
discretionary funds, accounting for approximately 3.5% of the estimated $818.4
billion total for all federal discretionary budget authority, as reported in the Budget
of the United States Government Fiscal Year 2005, Table S-5.2
Though not the focus of this paper, it is important to note that not all federal
spending on homeland security is funneled through DHS. According to a recent
Congressional Budget Office (CBO) report,3 the Administration has requested $47.3
billion in FY2005 gross budget authority for federal homeland security activities. Of
this total, according to CBO, $404 billion or 86% is allocated to DHS. However, it
is also important to note that DHS performs many missions that are not related to
homeland security.5 According to CBO, approximately $27.1 billion or 68% of the
total FY2005 requested gross budget authority for DHS is devoted to homeland
security missions. Therefore, the requested DHS homeland security budget authority
for FY2005 ($27.1 billion) represents approximately 57% of the total federal
2 U.S. President (Bush), Budget of the U.S. Government: Fiscal Year 2005, (Washington:
2004), p. 369.
3 For information regarding federal funding for homeland security activities across the
federal government, see “Federal Funding for Homeland Security,” Economic and Budget
Issue Brief, CBO, Apr. 30, 2004, at [http://www.cbo.gov/ftpdoc.cfm?index=5414&type=1].
4 This total is different from the committee total because it is gross budget authority as
opposed to new budget authority.
5 For a break down and comparison of homeland security and non-homeland security
funding within DHS, see Department of Homeland Security, Department of Homeland
Security FY2005 Budget in Brief, p. 65.
CRS-4
resources ($47.3 billion) sought by the Administration for homeland security
activities in FY2005.6
Appropriations for the Department of Homeland Security
The Homeland Security Act of 2002 (P.L. 107-296) transferred the functions,
relevant funding, and most of the personnel of 22 agencies and offices to the new
DHS created by the act. The act organized DHS into four major directorates: Border
and Transportation Security (BTS); Emergency Preparedness and Response (EPR);
Science and Technology (S&T); and Information Analysis and Infrastructure
Protection (IAIP).
During congressional debate on the FY2004 appropriations cycle, the structure
of accounts and titles under the bill (H.R. 2555) was reorganized several times. The
House and Senate Appropriations Committees each organized the appropriations
slightly differently, and the Conference committee decided upon the final
organization, which was adopted in P.L. 108-90. The House and Senate tables
contained within H.Rept. 108-541 and S.Rept. 108-280 for FY2005 generally reflect
the organization adopted in P.L. 108-90, and is the organization used in this report.
Table 3 is a summary table comparing appropriations for FY2004 and the
requested amount for FY2005. As shown in Table 3, the Administration has
requested a total appropriation of $32.6 billion for DHS for FY2005. This total
represents a 7.7% increase in funding over the enacted FY2004 amount. The
discretionary funding amount is $31.5 billion, and represents a 7.7% increase over
the net enacted FY2004 level. Requested mandatory FY2005 funding represents a
6.4% increase over the enacted FY2004 level. H.Rept. 108-541 (to H.R. 4567)
recommends a total appropriation of $33.1 billion for DHS, representing an increase
of $500 million compared to the Administration’s request, and a 9.3% increase
compared to the FY2004 enacted level. S.Rept. 108-280 (to S. 2537) also provides
$33.1 billion for DHS.
The House passed H.R. 4567, June 18, 2004, providing a total of $33.1 billion
for DHS. Prior to passage, the House adopted five amendments, two of which
changed amounts to be appropriated. H.Amdt. 568 provided $50 million to the
Staffing of Adequate Fire and Emergency Response Firefighters (SAFER) program,
which was offset by a $50 million reduction for the Office of the Undersecretary for
Management in the Operations Account of Title I. H.Amdt. 569 increased funding
for Customs and Border Protection (CBP) in Title II, by $450 thousand (less than
$0.5 million), which was offset by a reduction in amounts provided to the Office of
the Undersecretary for Management in Title I.
The Senate passed H.R. 4567 on September 14, 2004. Prior to debating the bill,
the Senate struck all of the House-passed provisions and inserted the language from
S. 2537. During the debate, the Senate adopted more than 40 amendments to the bill.
6 See also, Office of Management and Budget, 2003 Report to Congress on Combating
Terrorism (Washington: Sept. 2003), for a presentation of federal resources devoted to
combating terrorism.
CRS-5
Of the adopted amendments, 8 increased or decreased amounts to be appropriated.
S.Amdt. 3616 added a total of $170 million to the Office of State and Local
Government Preparedness (OSLGCP) distributed as follows: $50 million for State
and Local Programs; $50 million for Firefighter Assistance Grants; and $20 million
for Emergency Management Planning Grants (EMPG). S.Amdt. 3578 adds $200
million for Air and Marine Interdiction, Operations, Maintenance and Procurement.
S.Amdt 3578 includes an offset in the form of an extension of Customs User fees
from March 1, 2005 to June 1, 2005.7
S.Amdt. 3618 adds a total of $414 million distributed as follows: $150 million
for Customs and Border Protection (CBP) Salaries and Expenses; $100 million for
Immigration and Customs Enforcement (ICE) Salaries and Expenses (of which $50
million is for investigative personnel, and $50 million is for Detention and Removal
bedspace and operations); $128 million to the OSLCGP for State and Local Programs
for rail and transit security; and $36 million to the OSLGCP for EMPG. S.Amdt.
3618 also includes an offset in the form of an extension of Customs User fees from
June 1, 2005 to September 30, 2005. S.Amdt. 3611 applies an overtime cap to
certain CBP employees and reduces the CBP Salaries and Expenses account by $1
million.
S.Amdt. 3598 provides an additional $75 million for baggage screening
activities. S.Amdt. 3630 provides an additional $100 million for Federal Fire
Prevention and Control Act with decreases in amounts from the following sources:
$70 million from Title I in the Office of the Under Secretary for Management; $20
million from Title IV in Information Analysis and Infrastructure Protection’s (IAIP)
Management and Administration Account; and $10 million from Science and
Technology’s (S&T) Management and Administration Account.
The Senate also adopted amendments to provide additional assistance pertaining
to the recent round of hurricanes including Bonnie, Charley, and Frances.8 S.Amdt.
3607 provided an additional $70 million to the Red Cross for response to hurricanes
Bonnie, Charley, and Frances. S.Amdt. 3636 would provide an estimated $3 billion
in emergency supplemental farm disaster assistance in response to various natural
disasters.
7 19 U.S.C. 58c(j).
8 See CRS Report RL32581, Assistance after Hurricanes and Other Disasters: FY2004
Supplemental Appropriations, by Keith Bea and Ralph M. Chite.
CRS-6
Table 3. Department of Homeland Security: Summary of
Appropriations
($ in millions)
FY2004
FY2005
FY2005
FY2005
FY2005
Operational Component
Enacted Request
House
Senate
Conf.
Title I: Departmental Management and Operations
Subtotal: Title I
453
713
584 b
562
Title II: Security, Enforcement, and Investigations
— Office of the Undersecretary for
Border and Transportation Security
8
10
10
9
— Visitor and Immigrant Status Indicator
project (US VISIT)
328
340
340
340
— Customs and Border Protection
4,899
5,122
5,154 b
5,158
— Immigration and Customs Enforcement
3,407
3,307
3,363
3,760
— Transportation Security
Administrationa
2,508
3,152
3,225
3,412
— U.S. Coast Guard
6,764
7,335
7,307
7,469
— U.S. Secret Service
1,134
1,163
1,183
1,163
Subtotal: Title II
19,048
20,430
20,583
21,311
Title III: Preparedness and Recovery
— Office of Domestic Preparedness/
Office of State and Local Government
Coordination and Preparedness
4,013
3,561
4,115 b
4,034
— Counter-terrorism fund
10
20
10
10
— Emergency Preparedness and Response
9,351
5,625
5,425
5,648
Subtotal: Title III (current year, net)
13,374
9,206
9,550 b
9,692
Title IV: Research and Development, Training, Assessments, and Services
— Citizenship and Immigration Services
235
140
160
140
— Information analysis and infrastructure
protection
834
865
855
856
— Federal Law Enforcement Training
Center
192
196
221
224
— Science and technology
913
1,039
1,132
1,059
Subtotal: Title IV
2,173
2,240
2,368
2,279
Amount in this bill, for any year
35,048
32,590
33,085
33,085
Scorekeeping adjustments (rescissions;
airline relief) (net)
(-4,786)
—
Total, Dept. of Homeland Security
30,262
32,590
33,085
33,844
Discretionary (current year, this bill)
29,242
31,504
32,000
32,000
Mandatory
1,020
1,085
1,085
1,085
Section 302(b) allocation
29,242
32,000
32,000
Difference, bill and allocation
0
0
0
Source: H.R. 4567 passed by the House June 18, 2004; S. 2537 introduced by the Senate June 17,
2004; and unofficial House Appropriations Committee tables, Apr. 8, 2004.
CRS-7
Note: Rounding may affect totals.
a. Net, after considering fee receipts.
b. Title I total includes total reductions of $50.4 million contained in H.Amdt. 568 and H.Amdt. 569
that were adopted during the debate on passage of H.R. 4567. $50 million of these reductions
were transferred to the Firefighter Assistance Account under the Office of State and Local
Government Preparedness (OSLGCP) in Title III; and $450,000 ($0.4 million) were transferred
to CBP in Title II.
Title I: Departmental Management and Operations
Title I covers the general administrative expenses of DHS, including the Office
of the Secretary and Executive Management Offices; the Under Secretary for
Management; the Counterterrorism Fund; the Department-wide Technology
Investments Account; and the Office of the Inspector General.9 Table 4 shows
appropriations for FY2004, and congressional action on the request for FY2005. The
total FY2005 request for Title I is $713 million. This represents a 57.4% increase
over the FY2004 enacted level. H.Rept. 108-541 recommends $634 million for Title
I, representing a $79 million decrease compared to the Administration’s request, and
a 40% increase compared to the FY2004 enacted level. However, during the floor
debate on H.R. 4567, H.Amdt. 568 and H.Amdt. 569 were adopted reducing the total
amounts available in Title I, by $50.4 million to $584 million. S.Rept. 108-280
provides a total of $632 million for Title I. During the floor debate for H.R. 4567,
the Senate adopted S.Amdt. 3630, which decreased Title I by $70 million to $562
million.
Table 4. Title I: Departmental Management and Operations
($ in millions)
FY2004
FY2005
FY2005
FY2005
FY2005
Operational Component
Enacted
Request
House
Senate
Conf.
Operations (salaries and expenses)
211
405
291
258
Department and tech. investments
184
226
211
222
Office of the Inspector General (net)
58
82
82
82
Subtotal: Title I
453
713
584
562
Source: H.R. 4567 passed by the House June 18, 2004; S. 2537 introduced by the Senate June 17,
2004; and unofficial House Appropriations Committee tables, Apr. 8, 2004.
Note: Rounding may affect totals.
Operations. Included in the Operations account is the Office of the Secretary
and the Executive Management Offices, which perform several functions including
public affairs, congressional affairs, privacy, security, general counsel, and civil
rights and liberties. The Office of the Immigration Ombudsman is also housed in the
Executive Management Offices. The Undersecretary for Management is responsible
for several functions including, for example, monitoring and managing
9 For CRS reports on DHS Management Issues, see Current Legislative Issues: Homeland
Security - Administering the Department, at [http://www.congress.gov/erp/legissues/
html/isdhs2.html].
CRS-8
appropriations, accounting and finance, procurement, human resources and
personnel, and the tracking of performance measurements relating to the department.
The FY2005 request for Operations of $405 million represents a 92% increase in
funding over the enacted FY2004 level of $211 million. H.Rept. 108-541 provides
$341 million for the Operations Account, representing a decrease of $64 million from
the Administration’s FY2005 request; and a 62% increase in funding over the
enacted FY2004 level. However, during the floor debate on H.R. 4567, H.Amdt. 568
and H.Amdt. 569 were adopted reducing the total amounts available in the Office of
the Undersecretary for Management, by $50.4 million, leaving a total of $291 million
provided by H.R. 4567 for the Operations account. S.Rept. 108-280 provides $328
for the Operations Account, representing a $13 million decrease compared to H.Rept.
108-541, and a 55% increase compared to the enacted FY2004 level. The $13
million difference between the House and Senate bills is spread across many sub-
accounts and activities. Significant comparisons between the Administration’s
request; H.Rept. 108-541; and S.Rept. 108-280 for Operations include the following:
! $103 million requested by the administration for the new human
resources personnel system, including additional resources for
training supervisory personnel, and creating the information
technology framework for the performance-based personnel system
(H.Rept. 108-541 provides $70 million under this account, and $21
million under the Department-Wide Technology Investment account,
while S.Rept. 108-280 provides $70 million under this account);
! $45 million requested by the Administration for the continued
expansion of DHS headquarters, of which $19 million would be
available for ‘tenant improvement’ and move costs, and $26 million
is for the relocation of U.S. Navy operations from the Nebraska
Avenue Complex to leased facilities (fully funded by H.Rept. 108-
541, and S Rept. 108-280); and
! $17 million for headquarters staffing adjustments, of which $3.5
million is to implement a new regional field structure (half-year
funding, or $1.7 million provided by H.Rept. 108-541, but not
funded by S.Rept. 108-280), $4.6 million for the Immigration
Ombudsman (not funded by H.Rept. 108-541, but funded at $3.5
million by S.Rept. 108-280), and $5.9 million to align the Office of
Immigration Statistics under the Office of the Under Secretary for
Management (fully funded by H.Rept. 108-541 and S.Rept. 108-
280).
In addition, H.Rept. 108-541 zeroed out (-$6 million) funding for the DHS
Office of Legislative Affairs, while this office is fully funded by S.Rept. 108-280;
decreased funding for the Office of the Chief Information Officer by $8 million due
to high vacancy rates (the Office of the CIO is fully funded by S.Rept. 108-280); and
transferred $3 million to the Office for State and Local Government Coordination
and Preparedness (OSLGCP) (also transferred under S.Rept. 108-280).
Department-wide Technology Investments. The FY2005 Department-
wide Technology Investment (DTI) request of $226 million represents a 23%
increase over the FY2004 enacted level of $184 million. H.Rept. 108-541 provides
$211 million for this account, representing a decrease of $15 million as compared to
CRS-9
the Administration’s request, and an increase of 15% compared to the FY2004
enacted level. S.Rept. 108-280 provides $222 million for this account, representing
an $11 increase compared to H.Rept. 108-541, and a 21% increase compared to the
FY2004 enacted level. Significant comparisons between the Administration’s
request, H.Rept. 108-541, and S.Rept. 108-280 for Department-wide Technology
Investment:
! $21 million for the design, development and implementation of a
new human resources information system integrating and
consolidating the existing legacy systems and implementing e-
Government solutions (fully funded by H.Rept. 108-541 and S.Rept.
108-280); and
! $17 million for the ‘eMERGE’10 financial management system that
will consolidate the existing legacy financial management systems
into one uniform solution for the Department (funded at $13 million,
by H.Rept. 108-541 and S.Rept. 108-280, due to the identification
of $4 million in savings for this program).
The difference between the H.R. 4567 and S. 2537 can be accounted for by the
H.Rept. 108-541 transfer of $11 million for SAFECOM (secure interoperable
communications) from this account to the Directorate of Science and Technology.
S.Rept. 108-280 does not transfer these funds to S&T, providing $11 million under
DTI. S.Rept. 108-280 also provides an additional $11 million for SAFECOM under
the S&T Directorate, for a total of $22 million for SAFECOM.
Title II: Security, Enforcement, and Investigations
Title II funds Security, Enforcement, and Investigations. The largest component
of Title II is the Directorate of Border and Transportation Security (BTS). BTS is
comprised of the inspection, investigative, and enforcement operations of the former
U.S. Customs Service (Customs), the former Immigration and Naturalization Service
(INS), portions of the Animal and Plant Health Inspection Service (APHIS) (whose
functions have been split between the Customs and Border Protection and the
Immigration and Customs Enforcement); and the TSA. The Coast Guard and the
Secret Service are also funded under Title II, though they are not a part of BTS.
Table 5 shows funding for Title II. The table compares the funding of Title II
activities for FY2004 with the amounts requested for FY2005. The Administration
has requested a total Title II appropriation of $20.4 billion for FY2005. The BTS
Directorate accounts for 62.6% of the entire DHS budget. The FY2005 total request
represents an increase of $1.4 billion or 7.3% over the FY2004 enacted level.
H.Rept. 108-541 recommends $20.6 billion for Title II, representing a $153 million
increase compared to the request, and a 8% increase compared to the FY2004 enacted
level. S.Rept. 108-280 provides $20.7 billion for Title II, representing a $153 million
increase compared to the amounts provided in H.Rept. 108-541, and a 9% increase
compared to the FY2004 enacted level. During floor debate, the Senate added
10 Electronically Managing Enterprise Resources for Government Efficiency and
Effectiveness (eMERGE).
CRS-10
several amendments to HR4567 that increased overall Title II appropriations to $21.3
billion. This represents an increase of $881 million over the FY2005 request and
12% over the FY2004 enacted level.
Table 5. Title II: Security, Enforcement, and Investigations
($ in millions)
FY2004 FY2005 FY2005
FY2005
FY2005
Operational Component
Enacted Request
House
Senate
Conf.
Office of the Under Secretary for Border and
8
10
10
9
& Transportation Security
Visitor & Immigrant Status Indicator Project
328
340
340
340
Customs & Border Protection (net)
4,899
5,122
5,154
5,158
— Salaries and expenses; construction
4,460
4,672
4,704
4,708
— Automation modernization
439
450
450
450
— Fee accounts (offsetting collections)
(1,126)
(1,074)
(1,074)
(1,074)
Immigration & Customs Enforcement (net) a
3,407
3,307
3,363
3,760
— Salaries and expenses; construction
2,165
2,397
2,403
2,539
——rescission from S&E
-54
—
—
— Federal Air Marshals
623
613
663
713
— Federal Protective Services
424
478
478
478
——offsetting FPS fees b
—
-478
-478
-478
— Automation & infrastructure modernization
40
40
40
40
— Air and marine interdiction
209
258
258
468
— Fee accounts (offsetting collections)
(273)
(225)
(225)
(250)
Transportation Security Administration (net)
2,508
2,752
3,225
3,412
— Aviation security (total funding)
3,724
4,238
4,271
4,461
— Maritime and land security c
261
29
65
44
— Credentialing Activities
—
67
67
67
— Intelligence
14
14
14
14
— Research and Development
154
154
174
181
— Administration
425
540
525
535
— Aviation Security Capital Funds
—
(250)
(250)
(250)
— Offsetting fee collections: Aviation Security
(-2,070) (-2,223)
(-1,823)
(-1,823)
fees
——Credentialing fees
(-67)
(-67)
(-67)
U.S. Coast Guard
6,764
7,335
7,307
7,469
— Operating expenses
4,637
5,173
5,171
5,153
— Environmental compliance & restoration
17
17
17
17
— Reserve training
94
117
113
117
— Acquisition, construction, & improvements
961
943
937
1,063
— Rescission
—
—
-33
— Alteration of bridges
19
—
16
15
— Research, development, tests, & evaluation
15
—
—
18 d
— Retired pay (mandatory, entitlement)
(1,020)
(1,085)
(1,085)
(1,085)
CRS-11
FY2004 FY2005 FY2005
FY2005
FY2005
Operational Component
Enacted Request
House
Senate
Conf.
U.S. Secret Service
1,134
1,163
1,183
1,163
Subtotal: Title II
19,048
20,430
20,583
21,311
Source: H.R. 4567 passed by the House June 18, 2004; S. 2537 introduced by the Senate June 17,
2004; and unofficial House Appropriations Committee tables, Apr. 8, 2004.
Note: Rounding may affect totals.
a. If the FY2004 offset for FPS funding is directly applied, as it is in FY2005, ICE actually receives
an increase of 11%. The presentation contained in Table 5 matches that of the unofficial House
Appropriations Committee tables.
b. The direct offsetting of FPS funding with FPS fee collections in FY2005 is a change in the
accounting for the fees, and does not represent a new fee.
c. The decrease in Maritime and Land security reflects a reorganization of grants (primarily port
security grants) that, pursuant to the Secretary’s Jan. 26, 2004 reorganization proposal, were
moved from TSA to ODP.
d. Both the Administration’s request and H.R. 4567 fund this activity under the Science and
Technology Directorate.
Office of the Undersecretary for Border and Transportation
Security. The Administration’s request for this office includes an increase of nearly
$2 million for additional staff in the Office of the Undersecretary for BTS. H.Rept.
108-541 fully funds this request, while S.Rept. 108-280 does not include increased
funding for staffing adjustments.
US-VISIT. The Administration has requested an increase of $12 million for the
US-VISIT program to continue the implementation of existing capabilities, and to
deploy additional entry and exit control capabilities at land ports of entry. The total
funding request for US-VISIT is $340 million, representing a 3.7% increase over the
FY2004 enacted level of $328 million.11 H.Rept. 108-541, and S.Rept. 108-280,
fully fund the Administration’s request for US-VISIT.
Customs and Border Protection (CBP). CBP has responsibility for
security at and between ports-of-entry along the border. These responsibilities
include inspecting people and goods to determine that they are authorized for entry
and maintaining border crossing stations to process persons seeking entry to the U.S.
The inspection and border-related functions of the Customs Service, the border
security functions of the former INS (including the Border Patrol), and the inspection
functions of the Agricultural Quarantine Inspection (AQI) program are consolidated
under CBP. The net FY2005 request for CBP is $5,122 million, representing a 4.4%
increase over the enacted FY2004 level of $4,899 million. H.Rept. 108-541 provides
$5,154 million for CBP, representing a $32 million increase compared to the
Administration’s request; and a 5% increase over the enacted FY2004 level.12
11 For more information, see CRS Report RL32234, U.S. Visitor and Immigrant Status
Indicator Technology, by Lisa M. Seghetti and Steven R. Viña.
12 Prior to the passage of H.R. 4567, the House adopted H.Amdt. 569, which increased
funding to CBP by $450,000, but since this amount is less than $0.5 million, it is not
reflected in the reported totals due to rounding.
CRS-12
S.Rept. 108-280 provides $5,009 million for CBP, $145 million less than provided
by H.Rept. 108-541, $113 million less than requested, and 2% more than the enacted
FY2004 level. H.Rept. 108-541 and S.Rept. 108-280 fully fund the following
FY2005 requested increases:
! $25 million to expand the Container Security Initiative (CSI), a
cargo security program that stations CBP officers in foreign ports to
target and pre-screen cargo containers before they are loaded on U.S.
bound ships;
! $15 million to expand Customs-Trade Partnership Against Terrorism
(C-TPAT) a supply chain security program that engages
participating private sector actors in securing their own supply
chains;
! $50 million for radiation detection and non-intrusive inspection
technology used in inspecting conveyances and cargo entering the
country at ports of entry;
! $21 million for enhancements to several modules of CBP’s
Automated Targeting System (ATS), used to identify high-risk
people and cargo worthy of a more intense inspection;
! $64 million to expand the remote video system deployed between
ports of entry along the northern and southern borders; and
! $10 million to purchase Unmanned Aerial Vehicles to support the
Border Patrol and other CBP components (S.Rept. 108-280 funds
this increase under the Office of Air and Marine Operations in ICE).
H.Rept. 108-541 also provides an additional $50 million for radiation detection
and non-intrusive inspection technology, $3 million for the Immigration Security
Initiative, $1 million for a program to monitor cargo containers, and $0.5 million to
continue steel tariff enforcement; S.Rept. 108-280 does not provide additional
funding for these items.
To summarize, the $145 million difference between the current House and
Senate bills can be partially accounted for (with a $1 million adjustment for
rounding) by comparing S.Rept. 108-280 to H.Rept 108-541. By comparison,
S.Rept. 108-280 provides:
! $104 million less than H.Rept 108-541 for headquarters
administration;
! $50 million less than H.Rept. 108-541 for non-intrusive inspection
technology;
! $13 million more than H.Rept. 108-541 for inspections and trade
facilitation at ports of entry;
! $10 million less than H.Rept 108-541 for unmanned aerial vehicles
(UAVs), which S.Rept. 108-280 funds under the Office of Air and
Marine Operations in ICE;
! $4 million more than H.Rept. 108-541 for C-TPAT/FAST;
! $3 million more than H.Rept. 108-541 for the National Targeting
Center;
! $1 million (net) more than H.Rept. 108-541 for training; and
! $1 million less than H.Rept. 108-541 for additional technology.
CRS-13
Immigration and Customs Enforcement (ICE).13 ICE focuses on
enforcement of immigration and customs laws within the United States, as well as
investigations into such activities as fraud, forced labor, trade agreement
noncompliance, smuggling and illegal transshipment of people and goods, and
vehicle and cargo theft. In addition, this bureau oversees the building security
activities of the Federal Protective Service (FPS), formerly of the General Services
Administration; and the aviation security activities of the Federal Air Marshals
(FAMS), formerly of the TSA. ICE combined the investigations and intelligence
functions of the U.S. Customs Service and the former INS, the air and marine
interdiction functions of those agencies, and the immigration detention and removal
programs (including the operations of the FPS).
The FY2005 request for ICE of $3,307 million represents an 11% increase from
the enacted FY2004 level. Though Table 5 indicates that the FY2005 request for
ICE consitutes a 2.9% decrease from the enacted FY2004 level, this is due to a
change in accounting for the fee receipts used to offset the expenses of the FPS. If
the offsets are applied to the enacted FY2004 level in the same manner in which the
FY2005 offsets are applied (zeroing out FPS funding in FY2004), ICE actually
receives an increase of nearly 11% from the FY2004 enacted level. Using this same
accounting, H.Rept. 108-541 provides $3,364 million for ICE, representing a $57
million increase over the Administration’s request and a $381 million or 13%
increase from the enacted FY2004 level. S.Rept. 108-280 provides $3,410 million
for ICE, $46 million more than provided by H.Rept. 108-541, $103 million more
than requested, and a 14% increase compared to the FY2004 enacted level. ICE has
six budget accounts into which its funding is appropriated: Salaries and Expenses;
FPS; FAMS; Automation Modernization; Air and Marine Operations (AMO); and
Construction. The bulk of ICE’s funding is provided through the Salaries and
Expenses account, which is separated into three activities: Investigations; Detention
and Removal; and AMO.
The Investigations program focuses its resources on the investigation of
numerous national security, financial and smuggling violations including contraband
smuggling; human trafficking; money laundering; commercial fraud; identity and
benefit fraud; and the illegal trafficking of weapons and critical technology. The
Administration requested an additional $78 million for FY2005 Investigations
program initiatives. The requested initiatives are as follows:
! $16 million for compliance teams to analyze data generated from the
Student Exchange and Visitor Information System (SEVIS) and US-
VISIT in order to detect violators and threats to national security,
and to prioritize enforcement efforts (fully funded by H.Rept. 108-
541 and S.Rept. 108-280);
! $14 million for International Affairs, of which $10 million is to
support the new Visa Security Unit (a unit implementing a visa
review process by stationing DHS personnel at U.S. consular posts
abroad); the remaining $4 million is requested to replace funding
13 For CRS Reports on Immigration Issues, see Current Legislative Issues: Immigration at
[http://www.crs.gov/products/browse/is-immigration.shtml].
CRS-14
previously provided through the Examination Fee Account (fully
funded by H.Rept. 108-541 and S.Rept. 108-280);
! $25 million to support benefit fraud operations (investigations into
attempts to fraudulently obtain immigration benefits) to replace
funding previously provided by the Examination Fee Account
(S.Rept. 108-280 does not fund this request, continuing to fund these
activities through the Immigration Examinations Fee Account); and
! $23 million for worksite enforcement to ensure lawful compliance
under the President’s new guest (or temporary) worker program
(H.Rept. 108-541 funds this request at $15.6 million, S.Rept. 108-
280 does not fund this request).
The Detention and Removal program is responsible for ensuring that all
removable aliens depart the U.S. The Administration requests an additional $108.2
million for the following FY2005 Detention and Removal program initiatives.
H.Rept. 108-541, and S.Rept. 108-280 fully fund the following requests:
! $30 million for the Institutional Removal Program to expand this
program nationally to all federal, state, and local institutions housing
criminal aliens;
! $50 to continue implementation of the National Fugitive Operations
Program (NFOP) which seeks to reduce the fugitive alien population
over the next six years;
! $11 million to establish alternatives to detention that include
additional non-traditional family and female friendly detention
settings and establish community supervision operations, (H.Rept.
108-541 provides an additional increase of $5 million for a total
increase of $16 million, while S.Rept. 108-280 does not provide the
additional $5 million);
! $6 million for the Legal Program to eliminate the backlog of matters
pending in the Immigration Court;
! $6.2 million to fund DHS’s operational management responsibilities
at the Migrant Operations Center on Guantanamo Bay Naval Base,
including housing and security costs; and
! $5 million for additional detention bed space for potentially
removable aliens as their cases move through immigration
proceedings (H.Rept. 108-541 and S.Rept. 108-280 provide an
additional increase of $5 million for a total increase of $10 million).
AMO utilizes an integrated and coordinated air and marine force to identify,
deter, interdict, and investigate acts of terrorism and the unlawful smuggling of
people or goods across U.S. borders. The Administration requests, and H.Rept. 108-
541 and S.Rept. 108-280 fully fund, an additional $40.5 million for the following
FY2005 AMO program initiatives.
! $28 million to increase the number of P-3 (a radar equipped aircraft)
flight hours which will be allocated to the Caribbean to support
counter narcotics programs in source countries (Columbia Airbridge
Denial Program); and
CRS-15
! $12.5 million for long range radar to support drug interdiction
efforts along the southern border.
H.Rept. 108-541 also provides an additional $5 million in ICE’s Salaries and
Expenses Account, for AMO’s National Capital Region Coordination Center and
National Capital Region air branch operations; this additional amount is not provided
by S.Rept. 108-280. However, S.Rept. 108-280 includes an additional $10 million
for AMO transferred from CBP.
The Administration did not request additional funding for new initiatives for the
FAMS, FPS, Automation Modernization, or Construction accounts. However,
H.Rept. 108-541 and S.Rept. 108-280 provide a total increase of $60 million for
Federal Air Marshals: $50 million in the FAMS account for FAMS operations; and
$10 million under the Directorate of Science and Technology for the FAMS air-to-
ground communications system.
In summary, the $46 million difference between the current House and Senate
bills can be accounted for (with a $1 million adjustment for rounding) by comparing
S.Rept. 108-280 to H.Rept 108-541. S.Rept. 108-280 provides the following
amounts above those provided by H.Rept. 108-541:
! $10 million for Unmanned Aerial Vehicles transferred from CBP;
! $37 million for investigative operations;
! $4 million for intelligence operations; and
! $9 million for headquarters technology.
S.Rept. 108-280 provides the following amounts below those provided by H.Rept.
108-541:
! $10 million for AMO personnel compensation and benefits; and
! $5 million for alternatives to detention.
Transportation Security Administration (TSA). The Administration’s
net FY2005 request for TSA of $2,752 million represents a 9.7% increase over the
enacted FY2004 level of $2,508 million. According to TSA, this increase does not
include funding to expand current programs, nor does it fund any new program
initiatives.14 Instead, this increase is comprised primarily of annualizations of prior
year funding and pay inflation.
H.Rept. 108-541 provides a net appropriation of $3,225 million for TSA. While
this appears to be a $473 million increase over the FY2005 request, and a 29%
increase over the enacted FY2004 level, H.Rept. 108-541 in fact provides increases
totaling $73 million. According to S.Rept. 108-280, the Administration budget
request included a $400 million increase in aviation security fees. However, neither
House nor Senate reports fund this request, instead they provide the $400 million in
appropriated funds. Table 5 reflects the amounts contained in H.Rept. 108-541 and
14 Department of Homeland Security, “Transportation Security Administration,” Department
of Homeland Security FY2005 Congressional Budget Justification, p. TSA-15.
CRS-16
S.Rept. 108-280. The remaining $73 million increase over the request provided by
H.Rept. 108-541 is comprised of the following alterations to the request:
! $36 million for Maritime and Land Security (of which $10 million
is for Intercity Bus Security, $11 million is for a Rail Security
Demonstration Project, and $15 million is for the Transportation
Worker Identification Project);
! $32.4 million for Aviation Security (comprised of a $10 million
reduction in passenger screening operations, a $29 million increase
in baggage screening operations, and a $13.4 million increase in
airport security direction and enforcement);
! $20 million for Research and Development; and
! a $15 million reduction in the funding request for TSA
Administrative operations.
The $113 million difference between the current House and Senate bills can be
accounted for (with a $1 million adjustment for rounding) by comparing S.Rept. 108-
280 to H.Rept 108-541. By comparison then, S.Rept. 108-280 provides:
! $116 million more than H.Rept. 108-541 for Aviation Security (of
which $60 million is for passenger screening operations, $31 million
is for baggage screening operations, and $25 million is for Airport
Security Direction and Enforcement);
! $21 million less than H.Rept. 108-541 for Maritime and Land
Security;
! $7 million more than H.Rept. 108-541 for Research and
Development; and
! $10 million more than H.Rept. 108-541 for Administration.
United States Coast Guard.15 The Coast Guard is the lead federal agency
for the maritime component of homeland security. As such, it is the lead agency
responsible for border and transportation security as it applies to U.S. ports, coastal
and inland waterways, and territorial waters. The Coast Guard also performs other
missions, including some (such as fisheries enforcement) not related to homeland
security. The total FY2005 request for the Coast Guard of $7,335 million represents
an 8.5% increase over the enacted FY2004 level of $6,764 million. H.Rept. 108-541
provides $7,307 million for the Coast Guard, representing a decrease of $29 million
compared to the Administration’s request, and an increase of $542 million or 8%
compared to the FY2004 enacted level. H.Rept. 108-541 includes a rescission of $33
million of unexpended funds appropriated in FY2003 and FY2004 for Maritime
Patrol Aircraft under the Deepwater Program. S.Rept. 108-280 provides $7,469
million for the Coast Guard (this amount does not include the $33 million rescission
contained in H.R. 4567). There is a difference of $162 million ($129 million after
accounting for the rescission in H.R. 4567) between the amounts provided the Coast
Guard in the House-passed H.R. 4567, and S.Rept. 108-280.
15 For more information on the Coast Guard and its homeland security missions, see CRS
Report RS21125, Homeland Security: Coast Guard Operations: Background and Issues for
Congress, by Ronald O’Rourke.
CRS-17
The Administration has requested increased funding for several FY2005 Coast
Guard initiatives. The requested amounts and the funding levels provided by H.Rept.
108-541 and S.Rept. 108-280 include the following:
! $102 million to facilitate the development, review, and approval of
port and maritime security plans required by the Maritime
Transportation Security Act (MTSA) (H.Rept. 108-541 and S.Rept.
108-280 fully fund this request);
! $27 million for the Rescue 21 Project, which is recapitalizing the
Coast Guard’s coastal zone communications network (not funded by
H.Rept. 108-541, but fully funded by S.Rept. 108-280);
! $10 million for the Integrated Deepwater Program (fully funded by
H.Rept. 108-541 and S.Rept. 108-280);16
! $10 million for a pay and performance demonstration project (not
funded by H.Rept. 108-541, but fully funded by S.Rept. 108-280);
! $6 million for the Great Lakes Icebreaker Project (fully funded by
H.Rept. 108-541 and S.Rept. 108-280); and
! $2 million to arm existing helicopter assets at Air Station Cape Cod,
as prototypes for arming all Coast Guard helicopters (fully funded
by H.Rept. 108-541, and S.Rept. 108-280).
H.Rept. 108-541 also made the following adjustments to the Administration’s
request (which when combined with the $33 million rescission, net out to the $29
million decrease between the request, and the recommendation in H.Rept. 108-541):
! a net decrease of $2 million for Operating Expenses;
! a decrease of $4 million for Reserve Training travel expenses ;
! a net decrease of $6 million for Acquisition, Construction, and
Improvements; and
! an increase of $16 million for Alteration of Bridges.
There is a net $129 million difference (after accounting for the rescission in
H.R. 4567) between the amounts provided the Coast Guard in the House-passed H.R.
4567, and S.Rept. 108-280. S.Rept. 108-280 provides the following above those
provided in H.Rept. 108-541:
! $4 million for Reserve Training;
! $159 million for Acquisition, Construction, and Improvements; and
! $19 million in Research, Development, Test and Evaluation.
S.Rept. 108-280 provides the following amounts below those provided by H.Rept.
108-541:
! $18 million for Operating Expenses; and
! $1 million for the Alteration of Bridges.
16 For more information, see CRS Report RS21019, Coast Guard Deepwater Program:
Background and Issues for Congress, by Ronald O’Rourke.
CRS-18
Additionally, with regard to research and development, H.Rept. 108-541 transfers
$13.5 million to the S&T Directorate (as requested), while S.Rept. 108-280
recommends $18.5 million for research and development under the Coast Guard
(deferring the transfer pending the completion of a study).
United States Secret Service. The FY2005 request of $1,163 million,
represents a 2.5% increase over the enacted FY2004 level. The Administration did
not request additional funding for Secret Service initiatives for FY2005. H.Rept.
108-541 provides a total of $1,184 million for the Secret Service, representing an
increase of $20 million over the Administration’s request. This increase includes $10
million to support Secret Service operations concerning National Security Special
Events (NSSE); $5 million for Electronic Crimes Task Forces (ECTF); and $5
million in transfers for grant assistance for the National Center for Missing and
Exploited Children (NCMEC). S.Rept. 108-280 provides $1,163 million, $11
million less than amounts provided by H.Rept. 108-541. The amounts provided by
S.Rept. 108-280 do not include the requested additional $10 million for NSSE, which
the Committee states should be funded from within the base. S.Rept. 108-280 also
does not fund the requested increase for the ECTF, but does include the $5 million
for the NCMEC.
Title III: Preparedness and Recovery
The DHS Emergency Preparedness and Recovery (EPR)17 functions are intended
to improve the nation’s capability to reduce losses from all disasters, including
terrorist attacks. EPR promotes the effectiveness of emergency responders; supports
the Nuclear Incident Response Teams through standards, training exercises, and
provision of funds to named federal agencies; coordinates the federal response after
catastrophic disasters by managing, directing, overseeing, and coordinating specified
federal resources; aids recovery efforts; contributes to the development of national
preparedness and planning efforts; consolidates existing federal response plans into
a single plan; and develops programs for interoperative communications for
emergency responders. EPR also incorporates all activities formerly administered
by the Federal Emergency Management Agency (FEMA).
Table 6 includes funds expended during FY2004 for these functions, and
compares them to amounts requested for FY2005. The Administration requested a
total of $9.2 billion for FY2005 activities funded under Title III, representing a
31.5% decline compared with the enacted FY2004 level. One explanation for that
decrease is that, the enacted FY2004 amount included an advance appropriation18 of
17 For more information, see CRS Report RS21367 Emergency Preparedness and Response
Directorate of the Department of Homeland Security, by Keith Bea.
18 Advance appropriations are appropriations, in a particular appropriation act, that do not
become available for spending or obligation until a subsequent fiscal year. The amount of
the appropriation is counted in the fiscal year in which it becomes available for obligation.
For more information, see CRS Report RS20441, Advance Appropriations, Forward
Funding, and Advance Funding, by Sandy Streeter.
CRS-19
$4.7 billion for Project BioShield19 but limited the current year (FY2004) obligation
of these funds to $884 million. The FY2005 request contains an obligation limitation
of $2.5 billion for Project BioShield. The FY2005 $3.6 billion request for the Office
for Domestic Preparedness (ODP) represents a net decrease of 11.3% compared with
the FY2004 enacted amount of $4 billion.20 H.Rept. 108-541 provides $9,500
million for Title III. This represents an increase of $294 million compared to the
Administration’s request. S.Rept. 108-280 provides $9,328 million for Title III, or
$172 million less than the amounts provided by H.Rept. 108-280. H.Rept. 108-541
and S.Rept. 108-280 transfer and merge the ODP with the Office of State and Local
Government Coordination into a new organization called the Office for State and
Local Government Coordination and Preparedness (OSLGCP). During floor debate,
the Senate added two amendments, which increased appropriations for OSLGCP by
$284 million in the passed Senate version of HR4567, for a Title III total of $9,692
million. This represents a $486 million increase over the FY2005 request.
Emergency Preparedness and Response (EPR). The Administration
has requested increased funding for the following FY2005 EPR initiatives, which are
fully funded by H.Rept. 108-541 and S.Rept. 108-280:
! $8 million in new budget authority for four Incident Management
Teams; and
! $7 million for the development and implementation of the National
Incident Management System (NIMS).
H.Rept. 108-541 also provides the following changes to the Administration’s
request (none of which were adopted by S.Rept. 108-280), netting out to a total
decrease of $200 million for EPR compared to the request:
! a decrease of $109 million for disaster relief;
! a decrease of $50 million for flood map modernization;
! a decrease of $50 million for mitigation grants;
! an increase of $7 million for document management support; and
! an increase of $2 million for the emergency housing plan.
There is a $223 million difference between amounts provided by H.Rept. 108-
541 and S.Rept. 108-280 for EPR. These amounts can be accounted for by the net
$200 million decrease compared to the Administration’s request (listed above)
provided by H.Rept. 108-541 but not by S.Rept. 108-280; and a $23 million increase
above the request for Urban Search and Rescue provided by S.Rept. 108-280 but not
by H.Rept. 108-541.
Both the House and Senate reports propose a $447 million decrease for Public
Health Programs, funding only one of the three components at the FY2004 enacted
19 For more information about Project BioShield, see CRS Report RS21507, Project
BioShield, by Frank Gottron.
20 For more detailed funding information regarding the Emergency Preparedness and
Response Directorate, see CRS Report RL32242, Emergency Management Funding for the
Department of Homeland Security: Information and Issues for FY2005, by Keith Bea.
CRS-20
level, and transferring budget authority for the other two. The National Disaster
Medical System receives level funding of $34 million in both reports. Both the
House and Senate reports stated concurrence with the Administration proposal to
return budget authority for the Strategic National Stockpile (funded at $400 million
in FY2004) to the Department of Health and Human Services (HHS). Funding for
the stockpile had been transferred from HHS to DHS by the Homeland Security Act,
P.L. 107-296. The Metropolitan Medical Response System grants, slated for
elimination in the FY2005 budget request, are transferred to the OSLGCP, though
only the House provides funding for the program, maintaining the FY2004 level of
$50 million.
Office of Domestic Preparedness (ODP) or Office of State and Local
Government Coordination and Preparedness (OSLGCP).21 ODP has
primary responsibility for preparing first responders and public safety officials for
terror-related or weapons of mass destruction event, and for administering grants to
state, local, tribal, and regional jurisdictions. On January 26, 2004, the Secretary of
DHS sent a reorganization proposal to Congress consolidating grants formerly in the
TSA (port security grants), and in FEMA (Emergency Performance Grants) under
ODP. This is a part of the Administration’s effort to position ODP as the ‘one-stop
shop’ for preparedness assistance. As mentioned above, the FY2005 $3.6 billion
request for ODP represents a net decrease of 11.3% from the enacted FY2004 level.
H.Rept. 108-541 recommends a total of $4,065 million for the OSLGCP, an increase
of $504 million over the request. This increase is accounted for with a $363 million
increase in State and Local Programs, $100 million increase in Firefighter Assistance
Grants, and the $41 million increase in salaries and expenses for the OSLGCP. In
addition, prior to passage, the House adopted H.Amdt. 568, which transferred $50
million from Title I, to the Firefighter Assistance account for the Staffing for
Adequate Fire and Emergency Response Firefighters (SAFER) program.22 This
brings the total provided by H.R. 4567 for the OSLGCP to $4,115 million. S.Rept.
108-280 provides a total of $3,750 million for OSLGCP, or $365 million less than
provided by H.Rept. 108-541, and $189 million more than requested.
In summary, there is a net $365 million difference between the amounts
provided the OSLGCP in the House-passed H.R. 4567, and S.Rept. 108-280. These
amounts are accounted for by a $579 million difference in the State and Local
Program account; a $16 million difference in the Salaries and Expenses account;
$180 million in the Emergency Management Performance Grants account; and $150
million for Firefighters Assistance.
21 For more information regarding funding for first responder preparedness, see CRS Report
RS21736, FY2005 Budget Request for First Responder Preparedness: Issues and Analysis,
by Shawn Reese.
22 For more information on the SAFER program, see CRS Report RL32341, Assistance to
Firefighters Program: Distribution of Fire Grant Funding, by Lennard G. Kruger.
CRS-21
For comparison, S.Rept. 108-280 provides the following amounts above those
provided by H.Rept. 108-541 in the State and Local Programs account:
! $10 million for Citizen Corps;
! $25 million for port security;
! $50 million for rail and transit security;
! $10 million for intercity bus security;
! $15 million for trucking industry security;
! $22 million for technical assistance;
! $5 million for the Center for Domestic Preparedness; and
! $5 million for competitive training.
In the State and Local programs account, S.Rept. 108-280 provides the following
amounts below those provided by H.Rept. 108-541:
! $310 million for State and Local formula grants;
! $100 million for Law Enforcement and Terrorism prevention grants;
! $170 million for Emergency Management Performance Grants
(funded by S.Rept. 108-280 at $180 million as a separate account in
the OSLGCP);
! $50 million for the Metropolitan Medical Response System
(MMRS)23;
! $50 million for technology transfer;
! $25 million for the Urban Area Security Initiative, High-
Threat/High-Density;
! $11 million for evaluation and assessments;
! $5 million for a Rural Domestic Preparedness Center; and
! $50 million for the SAFER Program.
23 The Metropolitan Medical Response System grants, slated for elimination in the FY2005
budget request, are transferred to the OSLGCP, though only the House provides funding for
the program, maintaining the FY2004 level of $50 million.
CRS-22
Table 6. Title III: Preparedness and Recovery
($ in millions)
FY2004 FY2005 FY2005 FY2005
FY2005
Operational Component
Enacted Request
House
Senate
Conf.
Office of Domestic Preparedness / Office of
State and Local Government Coordination
and Planning
4,013
3,561
4,115
4,034
— State and local programs
3,267
3,061
3,424
3,023
— Salaries and Expenses a
— — 41
25
— Emergency Management Planning Grants d
— — — 236
— Firefighter assistance grants
746
500
650 f
750
Counter-Terrorism Fund
10
20
10
10
Emergency Preparedness and Response
9,351
5,625
5,425
5,648
— Office of Under Secretary EPR
3
4
4
4
— Admin; regional operations
166
197
204
197
— Operating expenses (rescission)
-3
—
—
—
— Prepare., mitigation, response & recovery
224
209
210
231
— Public health programs e
481
34
34
34
— Biodefense countermeasure - Project
Bioshield (advance appropriation)
4,703
—
—
—
— (obligation limitation)
884
2,528
2,528
2,528
— Disaster Relief
1,789
2,151
2,042
2,151
— Emergency approp. (P.L. 108-106)
500
—
—
—
— Emergency rescission (P.L. 108-199)
(-225)
—
—
—
— Flood map modernization fund
199
200
150
200
— Radiological preparedness
—
(-1)
(-1)
(-1)
— National flood insurance fund b
110
0
0
0
— National flood mitigation c
20
— 20
—
— National pre-disaster mitigation fund c
149
0
100
—
— Mitigation grants c
—
150
—
150
— Emergency management performance
grants
179
— d —
d
— d
— Emergency food and shelter
152
153
153
153
— Cerro Grande fire claims
38
—
—
—
— Misc. adjustments, rounding
1
—
—
—
Subtotal: Title III (current year, net)
13,374
9,206
9,550
9,692
Source: H.R. 4567 passed by the House June 18, 2004; S. 2537 introduced by the Senate June 17,
2004; and unofficial House Appropriations Committee tables, Apr. 8, 2004.
Note: Rounding may affect totals.
a. This funding was appropriated and funded under the Undersecretary for Management and ODP for
FY2003 and FY2004 ($32.9 million), the requested amount for FY2005 is ($41.9 million).
b. Fully funded through offsetting fee collections at $113 million under the Administration’s request,
H.R. 4567 and S. 2537.
c. The Administration requested that the flood mitigation and the Pre-disaster Mitigation program be
merged into one account, Mitigation Grants. The House did not accept this merger proposal,
and provided funding under the two separate sub-accounts. The Senate accepted the proposal,
CRS-23
and funds both the National Flood Mitigation and the National Pre-disaster Mitigation Fund
under the Mitigation Grants account. The $150 million provided by the Senate does not include
$20 million in transfers from the National Flood Insurance Fund. Hazard Mitigation Grant
Program would continue to be funded through the disaster relief fund.
d. The Administration proposed that for FY2005 Emergency Management Performance Grant
(EMPG) funding move from EPR to the Office of State and Local Government Coordination
and Planning (OSLGCP). The Administration requested and in H.R. 4567 the House provided
a total of $170 million for EMPG under the State and Local Program Account in the OSLGCP.
S.Rept. 108-280 provides $180 million for EMP grants as a separate account under OSLGCP.
e. For FY2005 the Strategic National Stockpile (funded at $400 million in FY2004) has been
transferred to the Department of Health and Human Services, and the Metropolitan Medical
Response System (funded at $50 million in FY2004) has been transferred to the OSLGCP.
f. Prior to passage, the House adopted H.Amdt. 568 which transferred $50 million from Title I, to this
account for the Staffing for Adequate Fire and Emergency Response Firefighters (SAFER)
program.
Title IV: Research and Development, Training, Assessments,
and Services
Activities funded by Title IV include the Bureau of Citizenship and Immigration
Services (CIS); Information Analysis and Infrastructure Protection (IAIP); Federal
Law Enforcement Training Center (FLETC); and the Science and Technology
Directorate (S&T).
Table 7 shows amounts provided for these functions in FY2004 together with
the amounts requested for FY2005. The Administration requests a total of $2.24
billion dollars for Title IV for FY2005. This represents a 3% increase over the
FY2004 enacted level of $2.17 billion. The S&T receives the largest increase with
a request of slightly more than $1 billion, a 13.8% increase over the FY2004 enacted
level. The FY2005 request of $140 million for CIS represents a decrease of 40.4%
in appropriated funding from the FY2004 enacted level of $235 million. H.Rept.
108-541 recommends a total of $2,368 million for Title IV, representing an increase
of $128 million compared to the request, and a 9% increase compared to the enacted
FY2004 level. S.Rept. 108-280 provides $2,309 million for Title IV, $59 million
less than provided by H.Rept. 108-541, and $69 million more than requested by the
Administration. During floor debate on H.R. 4567, the Senate adopted an
amendment that reduced Title IV funding by $30 million. This lowered overall Title
IV Senate appropriations to $2,279 million.
CRS-24
Table 7. Title IV: Research and Development, Training,
Assessments, and Services
($ in millions)
FY2004
FY2005
FY2005
FY2005
FY2005
Operational Component
Enacted
Request
House
Senate
Conf.
Citizenship and Immigration
Services (direct appropriation)
235
140
160
140
— (subtotal; Citizenship &
Immigration Services)
1,799
1,711
1,731
1,686
— (fee accounts)
(1,564)
(1,571)
(1,571)
(1,546)
Information Analysis &
Infrastructure Protection
834
865
855
856
— Management and Administration
124
162
132
137
— Assessments and Evaluation
710
703
723
719
Federal Law Enforcement Training
Center
192
196
221
224
Science and Technology
913
1,039
1,132
1,059
— Management and Administration
44
53
69
43
— Research, development, acquisition,
and operations
867
987
1,064
1,017
Subtotal: Title IV
2,173
2,240
2,368
2,279
Source: H.R. 4567 passed by the House June 18, 2004; S. 2537 introduced by the Senate June 17,
2004; and unofficial House Appropriations Committee tables, Apr. 8, 2004.
Note: Rounding may affect totals.
Citizenship and Immigration Services (CIS). When the former INS was
disbanded and split, the inspection and enforcement functions were placed in CBP
and ICE respectively, and the immigration service functions were placed in a new
agency named Citizenship and Immigration Service. CIS is responsible for providing
immigration information and benefits to eligible individuals. As mentioned above,
the CIS FY2005 request represents a 40.4% decrease in appropriated funding from
the FY2004 enacted funding. However, if the fee funding is included, CIS would
receive a 4.9% decrease in FY2005 as compared to FY2004. The Administration has
requested an additional $60 million to support efforts to reduce the backlog in
processing immigration benefit applications. H.Rept. 108-541 provides a net
appropriation of $160 million for CIS. This fully funds the Administration’s request
and provides an additional $20 million to convert old immigration records into
electronic form. S.Rept. 108-280 provides $140 million for CIS, and does not
included the additional $20 million for record conversion contained in H.Rept. 108-
541.
Information Analysis and Infrastructure Protection (IAIP). IAIP’s
primary responsibilities include integrating comprehensive terrorist threat
information and mapping that information against critical infrastructure
vulnerabilities; issuing warnings and advisories; and recommending preventative and
protective actions against threats. The IAIP FY2005 request of $865 million
CRS-25
represents a 3.7% increase from the enacted FY2004 funding level of $834 million.
H.Rept. 108-541 provides a total of $855 million for IAIP, representing a $10 million
decrease compared to the Administration’s request, and a 2.5% increase over the
enacted FY2004 level. S.Rept. 108-280 provides $876 million for IAIP, $21 million
more than provided in H.Rept. 108-541, and $11 million more than provided by the
request. The Administration requested, and both H.Rept. 108-541 and S.Rept. 108-
280 fully fund the following FY2005 IAIP initiatives:
! $11 million for the Bio-Surveillance Initiative24 which will allow
IAIP to integrate data from various agencies to enhance IAIP’s
situational awareness of the health of the population, animals, plants,
food supply, and environment;
! $10 million for renovations and upgrades to the current Homeland
Security Operations Center; and
! $2 million for cyber exercises to test the critical infrastructures of the
nation to potential cyber attacks.
In addition, H.Rept. 108-541 recommends an additional $10 million for
protective services field operations personnel (not funded by S.Rept. 108-280);
decreases of $15 million for competitive analysis and evaluations (S.Rept. 108-280
fully funds competitive analysis and evaluations); and a decrease of $4 million
identified as savings (S.Rept. 108-280 reflects a similar decrease in the same account,
though it is not directly identified as savings).
The $21 million difference in amounts provided by H.Rept. 108-541 and S.Rept.
108-280 can be accounted for by a net increase of $25 million in the Management
and Administration account; and a net decrease of $4 million in the Assessment and
Evaluation account. By comparison, S.Rept. 108-280 provides the following
amounts above those provided by H.Rept. 108-541:
! $20 million for critical infrastructure outreach and partnerships;
! $15 million for competitive analysis and assessments;
! $7 million for the National Infrastructure Simulation and Analysis
Center; and
! $2 million for protective actions.
By comparison, S.Rept. 108-280 provides the following amounts below those
provided by H.Rept. 108-541:
! $13 million for critical infrastructure identification and evaluation;
and
! $10 million for protective service field operations personnel.
Federal Law Enforcement Training Center (FLETC). FLETC offers law
enforcement training programs to federal, state, and local law enforcement entities.
24 For more information on the Bio-Surveillance Initiative see, DHS, President’s Budget
Includes $274 million to Further Improve Nation’s Bio-Surveillance Capabilities, press
release, Jan. 29, 2004, at [http://www.dhs.gov/dhspublic/display?content=3092].
CRS-26
The FY2005 request for FLETC of $196 million represents a 2.6% increase over the
FY2004 enacted level of $192 million. The Administration has requested an increase
of $2 million to complete the construction of the Harper’s Ferry Training Center
(HFTC). H.Rept. 108-541 recommends a total of $221 million for FLETC,
representing an increase of $25 million compared to the Administration’s request,
and 15.1% increase compared to the enacted FY2004 level. This increase is
comprised of $23 million in funds transferred from CBP for the Charleston, South
Carolina Training Facility; and $2 million for the DHS pay and performance
demonstration project. S.Rept. 108-280 provides $224 million for FLETC. S.Rept.
108-280 does not include the requested $2 million to complete construction at the
HFTC; but does include the $23 million transfer for CBP’s Charleston facility, and
the $2 million for the pay and performance demonstration. S.Rept. 108-280 also
includes an additional $5 million for the construction of perimeter security at
FLETC’s Artesia firearms range.
Science and Technology Directorate (S&T). The S&T Directorate is
tasked with the research, development, testing, and evaluation of homeland security
capabilities. S&T also coordinates with federal, state and local government and the
private sector to conduct its activities. As mentioned above, S&T is requesting the
largest increase in funding of all the Title IV components. The FY2005 request of
$1,039 million represents a 13.8% increase over enacted FY2004 funding. H.Rept.
108-541 recommends a total appropriation of $1,132 million for S&T, (including the
$11 million transfer of SAFECOM funds from DTI) representing an increase of $93
million compared to the Administration’s request, and 9% above the enacted FY2004
level. S.Rept. 108-280 provides $1,069 million for S&T, $63 million less than the
amounts provided by H.Rept. 108-541, and $31 million above the requested amount.
The Administration has requested, and H.Rept. 108-541 and S.Rept. 108-280
recommend fully funding, increases in FY2005 for the following S&T initiatives:
! $65 million for the Bio-Surveillance Initiative (an expansion of the
BioWatch program, environmental monitoring to detect large
biological attacks); and
! $13 million to address the highest priority safety, compliance, and
security issues that were revealed in recent assessments of the Plum
Island Animal Disease Center.
In addition, H.Rept. 108-541 recommends the following increases above the
Administration’s request:
! $40 million for University Programs (research and development,
etc.) (also funded by S.Rept. 108-280);
! $21 million for interoperability and communications - of which $11
million is the transfer of SAFECOM funds from DTI, (increase of
$11 million provided by S.Rept. 108-280, $10 million less than
H.Rept. 108-541);
! $10 million for SAFETY Act implementation (also funded by
S.Rept. 108-280);
! an additional $10 million for the S&T container initiative (not
funded by S.Rept. 108-280).
CRS-27
Relative to the administration’s request both House and Senate make a number of
transfers to new line items. Some of these transfer are the same in both reports, but
several are different. Significant differences in funding levels between the two
reports include:
! an increase of $24 million for high explosive countermeasures
provided by S.Rept. 108-280 but not by H.Rept. 108-541; and
! $16 million for Biological Countermeasures (funded at $363 million
by H.Rept. 108-541, and at $346 million by S.Rept. 108-280).
Related Legislation
This section of the report discusses legislative proposals related to the FY2005
DHS appropriations.
FY2005 Budget Resolution, S.Con.Res. 95 /H.Con.Res. 393
The concurrent resolution sets forth the congressional budget for FY2005. The
resolution proposes federal budget levels for FY2005 through FY2009. On May 19,
2004, the House agreed to the conference report to S.Con.Res. 95.25 As of July 9,
2004, the Senate had yet to adopt the conference agreement.
The Senate passed its version of the budget resolution, S.Con.Res. 95, on March
12, 2004. H.Con.Res. 393 (H.Rept. 108-441) was passed by the House on March 25,
2004. On March 29, 2004, the House incorporated the provisions of H.Con.Res. 393
into S.Con.Res. 95, which then passed the House.
H.Con.Res. 393 (and the House-passed version of S.Con.Res. 95) contains a
new budget function ‘(100) Homeland Security’. In the report accompanying
H.Con.Res. 393 (H.Rept. 108-441) the House Committee on Appropriation states
that the additional functional category is necessary because “homeland security has
become an important separate spending category.”26 According to H.Rept. 108-441,
Function 100 comprises all homeland security spending in the federal government,
except the portion provided by the Department of Defense. H.Rept. 108-441 also
states that approximately 58% of federal government spending on homeland security
“occurs in the Department of Homeland Security.” The Senate-passed version of
S.Con.Res. 95 does not contain a new budget function for homeland security. The
conference agreement H.Rept. 108-498 does not include a new budget function for
Homeland Security.
25 For additional information, see CRS Report RL32264, The Budget for FY2005, by Philip
D. Winters.
26 U.S. Congress, House Committee on the Budget, Concurrent Resolution on the Budget
— Fiscal Year 2005, report to accompany H.Con.Res. 393, 108th Cong., 2nd sess., H.Rept.
108-441 (Washington: GPO, 2004), p.30.
CRS-28
Selected Websites
The following websites are specific to either homeland security or the budget:
House Select Committee on Homeland Security
[http://hsc.house.gov]
Congressional Research Service (CRS) Issues on Homeland Security
[http://www.crs.gov/products/browse/is-homelandsecurity.shtml]
Department of Homeland Security (DHS)
[http://www.dhs.gov]
[http://www.dhs.gov/dhspublic/display?theme=12]
White House
[http://www.whitehouse.gov/homeland]
[http://www.whitehouse.gov/infocus/budget/index.html]
House Committees
[http://www.house.gov/appropriations]
[http://www.house.gov/budget/]
Senate Committees
[http://www.senate.gov/~appropriations]
[http://www.senate.gov/~budget]
Congressional Budget Office
[http://www.cbo.gov]
Congressional Research Service (CRS )
[http://www.crs.gov/products/appropriations/appage.shtml]
General Accounting Office (GAO)
[http://www.gao.gov]
Government Printing Office (GPO)
[http://w3.access.gpo.gov/usbudget/index.html]
Office of Management and Budget (OMB)
[http://www.whitehouse.gov/omb/budget/index.html]
[http://www.whitehouse.gov/omb/legislative/sap/index.html]