RL32312 -- Appropriations for FY2005: Legislative Branch


Updated December 13, 2004






CONTENTS

<font size="+1">List of Tables</font>

Table 1. Legislative Branch Appropriations, FY1995 - FY2005

Table 2. Status of Legislative Branch Appropriations, FY2005 (P.L. 108-447, Consolidated Appropriations Act, FY2005)

Table 3. Legislative Branch Appropriations, FY2005 (H.R. 4818, P.L. 108-447, Omnibus Appropriations Act)

Table 4. Capitol Police Appropriations, FY2005 (H.R. 4818, P.L. 108-447, Omnibus Appropriations Act)

Table 5. Architect of the Capitol Appropriations, FY2005 (H.R. 4818, P.L. 108-447, Omnibus Appropriations Act)

Table 6. Senate Appropriations, FY2005 (H.R. 4818, P.L. 108-447, Omnibus Appropriations Act)

Table 7. House of Representatives Appropriations, FY2005 (H.R.4755; H.R. 4818, Division G of P.L. 108-447, Omnibus Appropriations Act)




Summary

Congress agreed to a 1.2% increase in its budget authority for FY2005, appropriating $3.57 million, subject to a 0.80% rescission. Although legislative branch agencies requested an overall 12.5% increase, the chairmen and some members of the House and Senate Subcommittees on Legislative Branch indicated early in budget discussions the probability of a fairly flat FY2005 budget. Subsequently, during markup the House and Senate Committees on Appropriations approved a freeze on FY2005 legislative branch budget authority. The House bill (H.R. 4755) contained a -0.1% change from FY2004, excluding Senate items; the Senate's version of H.R. 4755, amended to contain the language of S. 2666, contained a +0.33% change, excluding House items. Both bills fell below the 1.3% increase agreed to earlier this year by the House and Senate for discretionary agencies and programs under jurisdictions of the House and Senate Subcommittees on Legislative Branch. Among elements under consideration during discussions on the FY2005 budget were

<center>Key Policy Staff</center>

Area of Expertise Name  CRS
Division
Telephone and E-mail 
Appropriations Process Bill Heniff GOV/FIN [phone number scrubbed] [email address scrubbed]
[author name scrubbed] GOV/FIN [phone number scrubbed] [email address scrubbed]
Committee Funds Paul Rundquist GOV/FIN [phone number scrubbed] [email address scrubbed]
Legislative Operations Paul Dwyer GOV/FIN [phone number scrubbed] [email address scrubbed]
[author name scrubbed] GOV/FIN [phone number scrubbed] [email address scrubbed]
Paul Rundquist GOV/FIN [phone number scrubbed] [email address scrubbed]

Division abbreviations: GOV/FIN = Government and Finance




Most Recent Developments

On November 20, 2004, both houses agreed to the conference report on a consolidated appropriations bill (H.R. 4818), containing the FY2005 legislative branch appropriations bill, along with eight other regular annual appropriations bills on which action had not yet been completed. (1) H.R. 4818 was signed by the President on December 8, 2004 (P.L. 108-447, 118 Stat. 2809; 658 pages).

Introduction to the Legislative Branch Appropriations Bill

The annual legislative branch appropriations bill contains two titles. Appropriations for legislative branch agencies are contained in Title I. Title II contains general administrative provisions, and from time to time, appropriations for legislative branch entities. For example, in the FY2003 Act Title II contained funding for the John C. Stennis Center for Public Service Training and Development and the Congressional Award Act.

Congress changed the structure of the annual legislative branch appropriations bill effective in FY2003. Prior to enactment of the FY2003 bill, and effective in FY1978, the legislative branch appropriations bill was divided into two titles. Title I, Congressional Operations, contained budget authorities for activities directly serving Congress. Included in this title were the budgets of the House, the Senate, Joint Items (joint House and Senate activities), the Office of Compliance, the Congressional Budget Office (CBO), the Architect of the Capitol (AOC) (except the Library of Congress (LOC) buildings and grounds), the Congressional Research Service (CRS) within the Library of Congress, and congressional printing and binding activities of the Government Printing Office (GPO).

Title II, Related Agencies, contained budgets for activities not directly supporting Congress. Included in this title were budgets of the Botanic Garden, the Library of Congress (except the Congressional Research Service), the Library buildings and grounds maintained by the Architect of the Capitol, the Government Printing Office (except congressional printing and binding costs), and the Government Accountability Office (GAO), formerly named the General Accounting Office. Periodically since FY1978, the bill contained additional titles for such purposes as capital improvements and special one-time functions.

In addition to activities funded in the annual legislative branch appropriations bill, other legislative budget authorities include permanent budget authority for both federal funds and trust funds, and non-legislative entities. These include the following:

Permanent federal funds are available as the result of previously enacted legislation and do not require annual action. (2)

Permanent trust funds are monies held in accounts credited with collections from specific sources earmarked by law for a defined purpose. Trust funds do not appear in the annual legislative bill since they are not budget authority. They are included in the U.S. Budget, prepared by the Office of Management and Budget, either as budget receipts or offsetting collections. (3)

The U.S. Budget also contains non-legislative entities within the legislative branch budget. They are funded in other appropriation bills, but are counted as legislative branch funds by the Office of Management and Budget for bookkeeping purposes. (4)

For a more accurate picture of the legislative branch budget, as contained in the annual legislative branch appropriation bill, the total FY2005 legislative branch appropriation figure in the FY2005 U.S. Budget must be adjusted. This is accomplished by subtracting non-legislative funds and permanent federal and trust funds. The FY2005 U.S. Budget contains a legislative budget authority request of $4.4 billion. After subtracting non-legislative entities ($48 million), permanent federal funds ($358 million), and permanent trust funds ($27 million), the total request for entities funded in the regular annual appropriation bill is $3.97 billion.

Table 1. Legislative Branch Appropriations, FY1995 - FY2005
(budget authority in billions of current dollars)a

Fiscal Years   
1995  1996  1997  1998  1999  2000  2001  2002  2003  2004  2005 
2.378 2.184 2.203 2.288 2.581b  2.486c  2.730d  3.252e  3.461f  3.528g  3.571h 

a. These figures represent current dollars, exclude permanent budget authorities, and contain supplementals and rescissions. Permanent budget authorities are not included in the annual legislative branch appropriations bill, but rather, are automatically funded annually.

b. Includes budget authority contained in the FY1999 regular annual Legislative Branch Appropriations Act (P.L. 105-275), the FY1999 emergency supplemental appropriation (P.L. 105-277), and the FY1999 supplemental appropriation (P.L. 106-31).

c. Includes budget authority contained in the FY2000 regular annual Legislative Branch Appropriations Act (P.L. 106-57); a supplemental and a 0.38% rescission in P.L. 106-113; and supplementals in P.L. 106-246 and P.L. 106-554.

d. This figure contains: (1) FY2001 regular annual appropriations contained in H.R. 5657, legislative branch appropriations bill; (2) FY2001 supplemental appropriations of $118 million and a 0.22% across-the-board rescission contained in H.R. 5666, miscellaneous appropriations bill; and (3) FY2001 supplemental appropriations of $79.5 million contained in H.R. 2216 (P.L. 107-20). H.R. 5657 and H.R. 5666 were incorporated by reference in P.L. 106-554, FY2001 Consolidated Appropriations Act. The first FY2001legislative branch appropriations bill, H.R. 4516, was vetoed Oct. 30, 2000. The second legislative branch appropriations bill, H.R. 5657, was introduced Dec. 14, 2000, and incorporated in P.L. 106-554. This figure does not reflect any terrorism supplementals funds released pursuant to P.L. 107-38.

e. This figure contains regular annual appropriations in P.L. 107-68; transferred from the legislative branch emergency response fund pursuant to P.L. 107-117; and FY2002 supplemental appropriations in P.L. 107-206.

f. This figure contains regular annual appropriations in P.L. 108-7, FY2003 Omnibus Appropriations Act, and supplemental appropriations in P.L. 108-11.

g. This figure contains regular annual appropriations in P.L. 108-83, FY2004 Legislative Branch Appropriations Act. Additional FY2004 provisions which did not contain appropriations were contained in P.L. 108-199, the FY2004 Consolidated Appropriations Act.

h. This figure contains regular annual appropriations in P.L. 108-447, Consolidated Appropriations Act, FY2005.

Status of FY2005 Appropriations

Table 2. Status of Legislative Branch Appropriations, FY2005 (P.L. 108-447, Consolidated Appropriations Act, FY2005)

Committee Markup House Report House Passage Senate Report Senate Passage Conference Report  Conference Report Approval Public Law
House  Senate  House  Senate 
6/23/04a 7/15/04b  7/01/04
H.Rept. 108-577
7/12/04 7/15/04
S.Rept. 108-307
9/21/04 11/19/04
H.Rept. 108-792
11/20/04
(344-51)
11/20/04
(65-30)
12/8/04
P.L. 108-447

a. The bill was marked up by the House Subcommittee on Legislative Branch on June 16, 2004.

b. The Senate Subcommittee on Legislative Branch did not hold a formal markup.

Action on the FY2005 Legislative Branch Appropriations Bill (H.R. 4755; S. 2666; Incorporated in H.R. 4818, Consolidated Appropriations Act, FY2005)

Submission of FY2005 Budget Request on February 3, 2004. A substantial part of the 12.5% increase requested is to meet (1) mandatory expenses, which includes funding for annual salary adjustments required by law and related personnel expenses, such as increased government contributions to retirement based on increased pay, and (2) expenses related to increases in the costs of goods and services due to inflation.

Submission of FY2005 Budget Amendments on May 6, 2004. The President submitted amendments to pending FY2005 legislative branch budgets. These amendments were based on requests of legislative branch entities, and contain an additional $2.7 million in net discretionary resources. The amendments contain funds for the Senate ($1.7 million), (5) Joint Economic Committee ($4,000), Capitol Guide Service and Special Services Office ($5,000), Library of Congress Copyright Office ($810,000), (6) and Congressional Research Service ($200,000). (7)

Another amendment eliminated a proviso governing the use of some appropriations requested for the Congressional-Executive Commission on the People's Republic of China. The commission is not funded in the annual legislative appropriation bill, but rather is placed in the legislative branch section of the U.S. Budget by the Office of Management and Budget for bookkeeping purposes.

House Hearings on FY2005 Budget Request. The first House hearing scheduled for February 25, 2004, was cancelled that morning by Representative Jack Kingston, chairman of the Subcommittee on Legislative Branch. Referring to significant increases in agency requests, Representative Kingston stated that

<blockquote>With record deficits, a war on terrorism, and troops on the ground in Afghanistan and Iraq, the budget is too tight to waste our time entertaining requests for a 40-percent spending increase. The President's budget calls for an increase of less than one-percent in non-defense and non-homeland security discretionary spending but these 'inside the beltway' bureaucracies want 32- to 45-percent increases. (8) </blockquote>

The chairman subsequently requested the heads of legislative entities to resubmit revised, reduced budgets, and to explain the impact on authorized staff levels.

Among legislative entities with requests containing increases of 32% or more are the Capitol Police (32.7%) and the Architect of the Capitol (45.2%). The Office of Compliance requested a 31.6% increase.

On April 22, 2004, the House held its first hearing, considering budget requests of the House of Representatives and GAO. Hearings continued April 28 on the budgets of the Capitol Police and GPO, and were followed by May 12 hearings on the budget submissions of the AOC, LOC, and Capitol Visitors' Center (CVC). Plans are pending for a closed hearing on Capitol Hill security.

Senate Hearings on FY2005 Budget Requests. The Senate Subcommittee on Legislative Branch, Committee on Appropriations, held hearings March 4 on budget submissions of the GAO, GPO, and CBO; March 11 on the budget request of the LOC, including the CRS; April 1 on the budgets of the Senate Sergeant at Arms and the Capitol Police; and April 8 on the budgets of the Secretary of the Senate and AOC.

FY2005 302(b) Allocation for the House and Senate Subcommittees on Legislative Branch. Both houses agreed to a FY2005 budget authority cap of $3.575 billion for discretionary agencies and programs under the jurisdiction of the Subcommittees on Legislative Branch. The limit allows a 1.3% increase over FY2004 enacted budget authority. (9)

House Subcommittee Markup of FY2005 Bill. As approved by the House Subcommittee on Legislative Branch, the FY2005 bill contains $2.75 billion (excluding Senate funds), the same as FY2004; the amount reflects a 16.4% decrease from the request of $3.2 billion (excluding Senate funds). According to a House Appropriations Committee press release, the frozen FY2005 funding level:

The bill contains the following new budget authority for legislative branch entities:

The subcommittee considered four amendments, adopting one. These included amendments to

House Full Committee Markup of the FY2005 Bill. During its June 23 markup, the full committee approved the subcommittee's recommendations after agreeing to the following six amendments:

The committee did not agree to three amendments that sought to

In its report, the committee addressed its expectations of significant future savings directing legislative agencies (1) to submit "more reasonable" funding requests reflective of budget constraints faced by all federal agencies; (2) to "streamline" their organizations, outsource operations, apply "best practices" management principles, and use existing technology to enhance operations; (3) to "examine potential outsourcing opportunities" in almost all operations; and (4) to cooperate in a study to determine means to centralize the distribution of printed material in the legislative branch. (14)

House Report of FY2005 Bill (H.R. 4755). On July 1, the House Appropriations Committee reported H.R. 4755, as marked up on June 23 (H.Rept. 108-577). See discussion of the House markup in this report.

House Passage of FY2005 Bill (H.R. 4755). The House passed H.R. 4755 on July 12 after rejecting the following two amendments and a motion to recommit: (15)

Senate Full Committee Markup and Report of the FY2005 Bill (S. 2666). During markup, the Senate Committee on Appropriations adopted a manager's amendment offered by Senator Ben Nighthorse Campbell, chairman of the Subcommittee on Legislative Branch. Among its provisions were those to:

No other amendments were considered. Later that day, the committee reported S. 2666 (S.Rept. 108-307).

Senate Passage of FY2005 Bill (H.R. 4755, Amended to Contain S. 2666). The Senate agreed to the full Committee's total appropriation of $2.46 million on September 21, by a vote of 94-2. The Senate passed H.R. 4755, amended to contain the language of S. 2666, leaving intact language in H.R. 4755 funding internal activities of the House. Before amending and passing H.R. 4755, the Senate agreed by unanimous consent to four managers' amendments to S. 2666 which:

Conference Report on FY2005 Bill. The FY2005 legislative branch appropriations bill was contained in the conference report on H.R. 4818, a consolidated appropriations bill. Eight other unfinished appropriations bills were also part of H.R. 4818. As agreed to in conference on November 19, and subsequently by both houses the following day, legislative branch report language contained

FY2005 Legislative Branch Funding Issues

Capitol Complex Security -- U.S. Capitol Police

Funding Issues. Congress approved $232.3 million in FY2005 budget authority for the Capitol Police, an overall increase of $12.5 million (+5.7%), from the previous year's budget authority of $219.8 million. The agency's request was a $71.9 million (+32.7) increase to $291.6 million. (17) Appropriations are contained in two accounts:

A second appropriation relating to the Capitol Police appears within the Architect of the Capitol account for Capitol Police buildings and grounds. That funding level is $5.9 million, a reduction from the request of $40.3 million.

Note: Details of conference report language regarding the Capitol Police will be included in the next version of this report.

On November 20, 2004, both houses agreed to conference report language containing $232.3 million for the U.S. Capitol Police. Conference language was contained in Division G of H.R. 4818, the Consolidated Appropriations Act.

Capitol Complex Security -- Capitol Visitors' Center

Conferees on the FY2005 bill agreed to authorize the transfer of up to $10.6 million to the Capitol Visitors' Center (CVC) from the Capitol Building account of the Architect of the Capitol. Conferees allotted $6 million for CVC facility maintenance and $3.3 million for CVC start-up operations.

Earlier, on July 12, the House passed H.R. 4755, its version of the FY2005 legislative branch funding bill, without funds for the CVC. On September 21, the Senate passed H.R. 4755, amended to contain the language of S. 2666, containing $7.6 million for maintenance (including equipment, furniture, materials, and supplies), start-up operations, and new staff. Although the budget request for the CVC did not provide construction money, it contained $14.2 million for start-up operations and maintenance. These funds were to cover an interim period during while a decision was made on which legislative office would be responsible for the center's operation and maintenance. The requested funds supported 35 FTE positions.

The CVC request was contained in two appropriations under the Architect of the Capitol. The first provided $6.3 million in the Capitol Building appropriation "to procure equipment and supplies; to provide training, database management, workflow support services, and inventory systems support; and to support, operate, and maintain the structural, architectural, and utilities infrastructures." The second provided $8.2 million in the CVC appropriation to "cover transitional start-up costs for the operation, administration, and management of guide services, visitor services, food services, and gift shop services for the CVC." (18)

The FY2005 request followed the FY2004 appropriation of $48.6 million, which reflected a new appropriation of $36.62 million and a transfer to the center's account of $12 million. The transfer was made from previously appropriated funds available for Capitol Police buildings and grounds, also funded within the AOC account.

On November 20, 2004, both houses agreed to conference report language authorizing the transfer of $10.6 million to the Capitol Visitors' Center. Conference language was contained in Division G of H.R. 4818, the Consolidated Appropriations Act.

Interest in construction of the CVC reflects heightened security concerns by some Members of Congress and the desire to make necessary appropriations available so that construction of the center can be completed by the end of 2005. Upon completion of furnishing the CVC and setting up exhibits, the construction barriers will be removed in spring 2006. (19) Congressional leadership broke ground for the center on June 20, 2000, and construction began in early 2002.

Architect of the Capitol Operations

Funding Issues. FY2005 funding for the Architect of the Capitol is $352.7 million, a decrease of $50.3 million (-12.5%) from the FY2004 level of $403.0 million. The AOC requested a 45.2% increase, to $584.9 million. Neither the FY2004 appropriation or the FY2005 request reflected one-time appropriations for the CVC.

Operations of the Architect are funded in nine accounts. The FY2005 budget authority for these accounts and the percentage changes from FY2004 are:

On November 20, 2004, both houses agreed to conference report language providing $352.7 million for the Architect of the Capitol. Conference language was contained in Division G of H.R. 4818, the Consolidated Appropriations Act.

House of Representatives

Overall Funding. FY2005 budget authority for House internal operations is $1.05 billion, an increase of $40.1 million (+4.0%), less than the requested $1.07 billion, which would have provided a 5.7% increase. The approved increase primarily funds mandatory expenses.

House Committee Funding. Funding for House committees is contained in the appropriation heading "committee employees" that comprises two subheadings. The first subheading contains funds for personnel and nonpersonnel expenses of House committees, except the Appropriations Committee, as authorized by the House in a committee expense resolution. The amount approved for FY2005 is $114.3 million, an increase of 11.8% from $102.2 million in FY2004.

The second subheading contains funds for the personnel and nonpersonnel expenses of the Committee on Appropriations, which is $24.9 million, the same level appropriated for FY2004.

On November 20, 2004, both houses agreed to conference report language providing $1.05 billion for the House of Representatives. Conference language was contained in Division G of H.R. 4818, the Consolidated Appropriations Act.

Senate

Overall Funding. Congress agreed to $726.1 million for internal Senate programs and activities, a 1.9% increase over the prior year's funding level of $712.5 million. The Senate requested $758.0 million, an increase of 6.4%. Like the House, a significant factor in the request was funding for mandatory expenses related to employee insurance and retirement programs.

Among increases are those for

Among decreases in the bill are those for

Senate Committee Funding. Appropriations for Senate committees are contained in two accounts:

On November 20, 2004, both houses agreed to conference report language providing $725.1 million for the Senate. Conference language was contained in Division G of H.R. 4818, the Consolidated Appropriations Act.

Support Agency Funding

Congressional Budget Office. Conferees agreed to $34.9 million, which is $129,000 more than the $34.8 million passed by both the House and Senate. The additional amount funds increased agency costs of the employee retirement system. The conference amount is an increase of $1.3 million (+3.9%) over the previous year's budget, with the increase covering mandatory pay adjustments and price increases.

The agency requested $35.5 million, an increase of $1.8 million (5.5%). (20) Most of the request ($1.6 million) funded mandatory increases in salaries and related benefits. This proposed funding supported 235 FTE positions, the same as for FY2004; a 3.5% across-the-board pay adjustment for staff earning $100,000 or less; and funding for promotions and merit adjustments for all staff, including those earning more than $100,000; completion of the replacement of CBO's budget analysis data system, "the agency's primary budget-tracking system, with a lower-cost, more-capable in-house system;" (21) and telecommunications services related to an alternative computing facility. (22)

On November 20, 2004, both houses agreed to conference report language providing $34.9 million for the Congressional Budget Office. Conference language was contained in Division G of H.R. 4818, the Consolidated Appropriations Act.

Government Accountability Office. The agency, formerly named the General Accounting Office (GAO), received $471 million in FY2005 funding, an increase of $13.4 million (+2.9%). Earlier, the House approved $473.5 million, and the Senate, $470 million. As with other legislative agencies, the increase primarily was to meet increased expenses of mandatory pay and services adjustments.

Conferees also

The FY2005 request of $486.7 million reflected a direct appropriation of $480.5 million and authority to use $6.1 million in revenues from "reimbursable audit work and rental income." (23) The new budget authority request was a 5.0% increase over FY2004.

Based on a congressional directive to the agency to undertake technology assessments, GAO requested $545,000 for four new FTE positions and contract support to establish "a baseline technology assessment capability," allowing GAO to conduct one assessment per year.

During Senate Appropriations Committee testimony, the comptroller general (GAO head) noted that his FY2005 budget supported an authorized staff level of 3,269 FTEs.

On November 20, 2004, both houses agreed to conference report language providing $471 million for the Government Accountability Office. Conference report was contained in Division G of H.R. 4818, the Consolidated Appropriations Act.

Library of Congress. Conferees agreed to $549.8 million for the Library of Congress (LOC), including the Congressional Research Service, an increase of $26.8 million (+5.1). The House and Senate previously agreed to $543.5 million and $544.1 million, respectively. Conferees also authorized two FTE positions in the Office of Inspector General to assist in information technology security audits, and reduced the number of FTEs by three.

LOC requested an appropriation of $562.6 million, an increase of $39.6 million (7.6%) from the FY2004 appropriation of $523.0 million. (24) In addition, the Librarian of Congress requested authority to use $39.7 million from receipts.

According to the Librarian, the request reflected the Library's priorities to initiate operations of the National Audio Visual Conservation Center; to support the Copyright Office's reengineering efforts; to "regain full funding for the Congressional Research Service staff capacity at 729 full-time-equivalent (FTE) positions;" to support conversion to digital talking book technology for the blind and physically handicapped; to fund a mass deacidification program; to support the Veterans History Program; to insure additional systems, staff, buildings, and collections security; and to provide infrastructure support. (25)

LOC's request supported 4,363 FTE positions (including CRS), an increase of 80 from FY2004, primarily to meet collections, security, and management needs.

On November 20, 2004, both houses agreed to conference report language providing $549.8 million for the Library of Congress, including the Congressional Research Service. Conference language was contained in Division G of H.R. 4818, the Consolidated Appropriations Act.

Congressional Research Service. Both houses agreed to $96.9 million for the Congressional Research Service, an increase of $5.7 million (+6.3%), covering mandatory pay and retirement costs and increased expenses of goods and services. Earlier, the House approved $96.4 million, and the Senate agreed to $96.7 million.

The agency's request of $100.9 million contained $4.3 million for mandatory pay and price level increases, and $5.4 million to support, among other functions, a staff level of 729 FTE positions, off-site computer back-up facilities ($622,000), (26) improvements in the Legislative Information System (LIS) ($549,000), (27) and procurement of research materials ($1 million). (28) A request of $412,000 funded a pilot program for repayment of higher education loans in an effort to retain staff.

The CRS director noted during hearings on the agency's FY2005 budget that without an additional one-time $2.71 million appropriation, the CRS budget base would support 704 FTE positions. This translated to a reduction of 25 FTE positions, attained through attrition without replacements. (29)

On November 20, 2004, both houses agreed to conference report language providing $96.9 million for the Congressional Research Service. Conference language was contained in Division G of H.R. 4818, the Consolidated Appropriations Act.

Government Printing Office. Conferees agreed to $120.8 million for the agency, a reduction of $14 million (-10.4%). The House earlier agreed to $121.3 million, and the Senate to $120.7 million. The agency's request was a 12.1% increase.

The current appropriation, contained in two accounts: congressional printing and binding and Office of Superintendent of Documents (salaries and expenses), follows:

Conferees agreed to a FTE limit of 2,621, proposed by the Senate, in lieu of 2,889 proposed by the House; expressed support for public access to Federal Depository Libraries; and revised the price discount on GPO publications.

The agency's FY2005 request contained funds in two additional accounts: (1) the Office of Inspector General -- $4.2 million (a new account in FY2005); and (2)

Government Printing Office Revolving Fund -- $25.0 million, an increase of $15.1 million, or 151.5%. The public printer requested that the Office of Inspector General be funded directly, not through the revolving fund, and that appropriations to the revolving fund allow implementation of "a multi-year plan to transform the information technology used at the GPO" to meet "Federal agency customer requirements for printed and digital documents" and "the public's increasing demand for authenticated, official government information to be available from the Internet." (30)

Among legislative changes requested by GPO were those to extend incentives for early retirement and separation (current provisions expire September 30, 2004); authorize $500,000 for contracts of "expert services to assist us in our effort to relocate the GPO and to finance this project through redevelopment of our existing structures;" and authorize GPO to accept contributions of property, equipment, and services.

On November 20, 2004, both houses agreed to conference report language providing $120.8 million for the Government Printing Office. Conference language was contained in Division G of H.R. 4818, the Consolidated Appropriations Act.

Table 3. Legislative Branch Appropriations, FY2005 (H.R. 4818, P.L. 108-447, Omnibus Appropriations Act)
(in thousands of dollars; FY2005 conference figures are subject to a 0.80% rescission)

Entity  FY2004 Enacted
(adjusted for .59% rescission)a
FY2005 Request   FY2005 House Bill As Reported and Passed FY2005 Senate Bill As Passed FY2005 Conference
Title 1: Legislative Branch Appropriations     
Senate $712,488 $759,708 -- d  $725,067 $726,067
House of Representatives 1,008,479 1,066,344 1,044,281 -- g  1,048,581
Joint Items 19,066 19,017 18,974 19,017 18,974
Capitol Policeb  219,795 291,641 232,328 226,925h  232,328
Office of Compliance 2,242 2,950 2,421 2,421 2,421
Congressional Budget Office 33,620 35,455 34,790 34,790 34,919
Architect of the Capitol 402,976 584,944 271,666 e  307,547i  352,724
Library of Congress, Including Congressional Research Service 523,001 562,631 543,488 544,092 549,760
Congressional Research Service (91,185) (100,934) (96,385) (96,678) (96,893)
Congressional Printing Office 134,767 151,058 121,324 120,735 120,753
Government Accountability Office 457,606 480,535 473,500 470,000 470,973
Open World Leadership Centerc  13,420 15,000 6,750 13,500 13,500
Subtotal, Title 1  3,527,460  3,969,283  2,749,522  2,464,094  3,571,000 
Title II: General Provisions       
Abraham Lincoln Study Abroad Fellowship Program 0 0 0 495 0
Subtotal, Title II  0  0  0  495  0 
Total Legislative Branch (Titles I and II)  3,527,460  3,969,283  2,749,522f  2,464,589j  3,571,000 

Source: House Committee on Appropriations and Senate Committee on Appropriations (the latter for FY2005 request for Senate activities and FY2005 Senate bill as reported. Table contains budget amendments of May 6, 2004, to the FY2005 budget request for an additional $2.7 million in net discretionary resources, including funds for the Senate ($1.7 million), Joint Economic Committee ($4,000), Capitol Guide Service and Special Services Office ($5,000), Library of Congress Copyright Office ($810,000), and Congressional Research Service ($200,000).

a. FY2004 funds are contained in P.L. 108-83, FY2004 Legislative Branch Appropriations Act. Additional FY2004 provisions that did not contain appropriations were contained in P.L. 108-199, the FY2004 Consolidated Appropriations Act.

b. This is a new account, effective with the FY2003 Legislative Branch Appropriation Act. Previously, Capitol Police funds were contained under the joint items account.

c. The center was named the Russian Leadership Program prior to FY2004.

d. The House does not consider appropriations for internal Senate operations.

e. The House does not consider appropriations for Senate office buildings contained in the budget of the Architect of the Capitol.

f. This figure does not contain funds for internal Senate operations, which are funded in a separate account, or for Senate office buildings, which are contained in the budget of the Architect of the Capitol. The Senate determines funding levels of these two accounts.

g. The Senate does not consider appropriations for internal House operations.

h. In addition, the Senate Committee on Appropriations directed that $12.815 million of prior-year funds be made available "to support personnel requirements" (S.Rept. 108-307, 108th Cong.).

i. The Senate does not consider appropriations for House office buildings contained in the budget of the Architect of the Capitol.

j. This figure does not contain funds for internal House operations, which are funded in a separate account, or for House office buildings, which are contained in the budget of the Architect of the Capitol. The House determines the funding levels of these two accounts.

Table 4. Capitol Police Appropriations, FY2005 (H.R. 4818, P.L. 108-447, Omnibus Appropriations Act)
(in thousands of dollars; FY2005 conf. figures are subject to a 0.80% rescission)

Accounts FY2004 Enacted
(adjusted for 0.59% rescission)a
FY2005 Request FY2005
House Bill
As Reported and Passed
FY2005
Senate Bill As Reported
FY2005
Conference
Salaries, Capitol Police $196,434 -- $203,440 198,000 203,440
General Expenses 23,361 -- 28,888 28,925 28,888
Salaries and General Expenses (combined in FY2005 request) -- 291,641 -- -- --
Total, Capitol Police 219,795  291,641  232,328  226,925   232,328 

Source: House and Senate Committees on Appropriations

a. FY2004 funds are contained in P.L. 108-83, FY2004 Legislative Branch Appropriations Act. Additional FY2004 provisions, that did not contain appropriations, were contained in P.L. 108-199, the FY2004 Consolidated Appropriations Act.

Table 5. Architect of the Capitol Appropriations, FY2005 (H.R. 4818, P.L. 108-447, Omnibus Appropriations Act)

<center>(in thousands of dollars; FY2005 conf. figures are subject to a 0.80% rescission)</center>

Accounts  FY2004
Enacted (adjusted for 0.59% rescission)a
FY2005 Request FY2005
House Bill
As Reported and Passed
FY2005 Senate Bill, As Reported FY2005 Conference
Architect of the Capitol 
General administration $76,598 $89,245 79,581 74,063 80,347
Capitol building 28,021 32,239 18,185 24,784 28,857
Capitol Grounds 6,846 8,080 7,033 6,940 6,974
Senate office buildings 63,014 65,309 -- c  62,303 62,083
House office buildings 62,445 105,675 65,130 -- e  65,353
Capitol power plant 81,062 63,376 56,139 60,928 56,834
Library buildings and grounds 38,928 160,678 34,783 65,145 40,097
Capitol Police buildings and grounds
Transfer Out
3,289
(-12,000)
40,292 4,883 7,090 5,853
Botanic garden 6,152 11,581 5,932 6,294 6,326
Capitol Visitors' Center
Transfer In
36,621
(+12,000)
8,469b  0 0 0
Total, Architect of the Capitol 402,976  584,944  271,666d  307,547f  352,724 

Source: House and Senate Committees on Appropriations

a. FY2004 funds are contained in P.L. 108-83, FY2004 Legislative Branch Appropriations Act. Additional non-funding provisions were contained in P.L. 108-199, FY2004 Consolidated Appropriations Act.

b. An additional $6.3 million is contained under the Capitol Building appropriation of the Architect of the Capitol.

c. The House does not consider appropriations for Senate office buildings.

d. This figure does not include appropriations for Senate office buildings.

e. The Senate does not consider appropriations for House office buildings.

f. This figure does not include appropriations for House office buildings.

Table 6. Senate Appropriations, FY2005 (H.R. 4818, P.L. 108-447, Omnibus Appropriations Act)
(in thousands of dollars; FY2005 conference figures are subject to a 0.80% rescission)

Accountsa  Enacted FY2004
(adj. for 0.59% rescission)b
FY2005 Request FY2005 House
As Reported and Passed
FY2005 Senate
As Reported
FY2005
Conference
Expense Allowances and Representation  158  158   --   158  225 
Salaries, Officers, and Employees  125,307  134,440  --   134,440  134,840 
Office of Legislative Counsel  4,843  5,152  --   5,152  5,152 
Office of Legal Counsel  1,222  1,265  --   1,265  1,265 
Expense Allowances for Secretary of Senate, et al. 24  24  --   24  24 
Contingent Expenses (subtotal)  580,934  618,669  --   584,028  584,561 
Inquiries and Investigations 118,462 120,435 -- 110,000 110,000
Senate Intl. Narcotics Caucus 520 520 -- 520 520
Secretary of the Senatec  2,265 1,700 -- 1,700 1,700
Sergeant at Arms/Doorkeeperd  135,243 136,066 -- 127,182 127,182
Miscellaneous Items 18,425 18,676 -- 18,326 18,326
Senators' Official Personnel and
Office Expense Account
305,719e  340,972 -- 326,000 326,533
Official Mail Costs 300 300 -- 300 300
Total, Senate  712,488  759,708  --   725,067  726,067 

Source: House and Senate Committees on Appropriations.

a. The Senate account contains seven appropriations headings, which are highlighted in bold.

b. FY2004 funds are contained in P.L. 108-83, FY2004 Legislative Branch Appropriations Act. Additional FY2004 provisions that did not contain appropriations were contained in P.L. 108-199, the FY2004 Consolidated Appropriations Act.

c. Office operations of the Office of the Secretary of the Senate are also funded under "Salaries, Officers, and Employees."

d. Activities of the Office of Sergeant at Arms and Doorkeeper are also funded under "Salaries, Officers, and Employees."

e. This figure reflects a 0.59% rescission of $4.281 million from the appropriation of $310 million.

Table 7. House of Representatives Appropriations, FY2005 (H.R.4755; H.R. 4818, Division G of P.L. 108-447, Omnibus Appropriations Act)
(in thousands of dollars; FY2005 figures are subject to a 0.80% rescission)

Accountsa  FY2004 Enacted (adjusted for 0.59% rescission)b FY2005 Request FY2005 House As Reported and Passed FY2005 Senate
As Reported
FY2005
Conference
Payments - Heirs of Deceased Members of Congress 0 0 0 -- 0
Salaries and Expenses, Total  1,008,479  1,066,344  1,044,281  --   1,048,581 
House Leadership Offices 18,142 18,678 18,678 --   18,678
Members' Representational
Allowancesc
514,454 529,258 521,195 --   521,195
Committee Employees (subtotal)d  127,129  140,479   139,225  --   139,225 
Standing Committees, Special and Select, except
Appropriations
102,203 114,955 114,299 -- 114,299
Appropriations Committee 24,926 25,524 24,926 -- 24,926
Salaries, Officers, and Employees (subtotal)  156,896  170,861   160,133  --   160,133 
Office of the Clerk 19,452 20,553 20,534 -- 20,534
Office of the Sergeant at Arms 5,471 5,887 5,879 -- 5,879
Office of Chief Administrative Officer 111,141 121,699 116,034 -- 116,034
Office of Inspector General 3,847 4,022 3,986 -- 3,986
Office for Emergency Planning, Preparedness, and Operations 5,200 6,000 1,000 -- 1,000
Office of General Counsel 926 962 962 -- 962
Office of the Chaplain 153 155 155 -- 155
Office of the Parliamentarian (subtotal)  1,560  1,673 1,673 -- 1,673
Office of the Parliamentarian (1,363) (1,459) (1,459) -- (1,459)
Compilation of House Precedents (197) (214) (214) -- (214)
Office of the Law Revision Counsel 2,263 2,346 2,346 -- 2,346
Office of the Legislative Counsel 6,233 6,721 6,721 -- 6,721
Office of Interparliamentary Affairs 500 687 687 -- 687
Other Authorized Employees: Technical Assistants, Office of Attending Physician 150 156 156 -- 156
Allowances and Expenses (subtotal)   191,858  207,068   205,050  --   209,350 
Supplies, Materials, Administrative Costs and Federal Tort Claims 3,975 4,618 4,350 -- 4,350
Official Mail for committees, leadership, administrative and legislative offices 410 410 410 -- 410
Government Contributions 186,783 201,350 199,600 -- 203,900
Miscellaneous Items 690 690 690 -- 690
House of Representatives, Total  1,088,479  1,066,344  1,044,281  --   1,048,581 

Sources: House Committee on Appropriations.

a. The appropriations bill contains two House accounts: (1) payments to widows and heirs of deceased Members of Congress and (2) salaries and expenses.

b. FY2004 funds are contained in P.L. 108-83, FY2004 Legislative Branch Appropriations Act. Additional FY2004 provisions that did not contain appropriations were contained in P.L. 108-199, the FY2004 Consolidated Appropriations Act.

c. This appropriation heading was new in the FY1996 bill. The heading represents a consolidation of: (1) the former heading Members' clerk hire; (2) the former heading official mail costs; and (3) the former subheading official expenses of Members, under the heading allowances and expenses.

d. This appropriation heading was new in the FY1996 bill. The heading represents a consolidation of: (1) the former heading committee employees; (2) the former heading standing committees, special and select; (3) the former heading Committee on Budget (studies); and (4) the former heading Committee on Appropriations (studies and investigations).

For Additional Reading

CRS Reports

CRS Report RL31812. Legislative Branch Appropriations for FY2004, by Paul Dwyer.

CRS Report RL31312. Legislative Branch Appropriations for FY2003, by Paul Dwyer.

Selected Websites

These sites contain information on the FY2003 and FY2004 legislative branch appropriations requests and legislation, and the appropriations process.

House Committee on Appropriations
http://appropriations.house.gov/

Senate Committee on Appropriations
http://appropriations.senate.gov/

CRS Appropriations Products Guide
http://www.crs.gov/products/appropriations/apppage.shtml

Congressional Budget Office
http://www.cbo.gov

General Accounting Office
http://www.gao.gov

Office of Management & Budget
http://www.whitehouse.gov/omb/




Footnotes

1. (back)For a discussion of the FY2005 Consolidated Appropriations Act, including language modifying a rescission to 0.80% (contained in an enrollment correction resolution), see CRS Report RS21983(pdf), FY2005 Consolidated Appropriations Act: Reference Guide, by [author name scrubbed].

2. (back)FY2005 estimated legislative branch permanent federal fund authority is $358 million, comprised of House and Senate Member pay ($110 million); House and Senate use of foreign currencies (for use of Members traveling in foreign countries) ($9 million); Architect of the Capitol intergovernmental funds ($2 million), and Library of Congress payments to copyright owners ($237 million). Source is the FY2005 U.S. Budget (with figures rounded to the nearest million).

3. (back)FY2005 estimated permanent trust fund authority is $27 million, comprised of Architect of the Capitol, U.S. Botanic Garden, gifts and donations ($2 million); Library of Congress gift and trust fund account ($21 million); U.S. Tax Court trust fund ($1 million); and "Other Legislative Branch Agencies" ($3 million), including U.S. Capitol Preservation Commission trust funds ($1 million) and John C. Stennis Center for Public Service Training and Development trust funds ($2 million). This total does not include payment to the Open World Leadership trust fund ($15 million), since its appropriation is a separate account in the FY2005 bill. Source is the FY2005 U.S. Budget (which contains figures rounded to the nearest million).

4. (back)The FY2005 U.S. Budget contains $48 million in federal funds for non-legislative entities under two headings: (1) "U.S. Tax Court" ($41 million); and (2) "Other Legislative Branch Boards and Commissions" ($7 million). Source is the FY2005 U.S. Budget (which contains figures rounded to the nearest million).

5. (back)The amendment contains additional funds for the salaries, officers and employees account.

6. (back)The amendment reduces the amount of offsetting collections available for obligation by $810,000 while maintaining the same total gross budget amount for the Library of Congress. Since offsetting collections reduce the amount of new discretionary appropriations, a decrease in offsetting collections without an equivalent decrease in the total gross budget amount has the effect of increasing the new discretionary appropriations requested. Therefore, the amendment results in an increase in the amount requested for new discretionary appropriations by $810,000.

7. (back)The amendment funds the acquisition of research materials necessary in FY2005.

8. (back)See Feb. 25, 2004, news release issued by Rep. Kingston on his decision to cancel at http://www.house.gov/kingston/rls_LegBranchcancel.htm.

9. (back)On June 15, the House Committee on Appropriations released its FY2005 budget authority allocations for subcommittees. See U.S. Congress, House Committee on Appropriations, Report on the Suballocation of Budget Allocations for Fiscal Year 2005, 108th Cong., 2nd sess., H.Rept. 108-543 (Washington: GPO, 2004), pp. 1-4. Senate subcommittee allocations were approved by the Senate Committee on Appropriations on September 8 http://appropriations.senate.gov/releases/record.cfm?id=225812. For a discussion of House and Senate actions on the FY2005 budget resolution, see CRS Report RL32246, Congressional Budget Actions in 2004, by Bill Heniff, Jr.

10. (back)See the press release of the House Appropriations Committee issued June 16, 2004: http://appropriations.house.gov/index.cfm?FuseAction=PressReleases.Detail&PressRelease_id=393.

11. (back)This provision summary is based on the remarks of Hon. Jack Kingston, chairman of the House Subcommittee on Legislative Branch, during full House Appropriations Committee markup of the FY2005 legislative branch appropriations bill, June 23, 2004

12. (back)The FY2005 budget recommendation represents a 50% cut.

13. (back)Remarks of Representative Todd Tiahrt during markup by the House Committee on Appropriations of the FY2005 legislative branch appropriations bill on July 23, 2005.

14. (back)U.S. Congress, House Committee on Appropriations, Legislative Branch Appropriations Bill, 2005, report to accompany H.R. 4755, 108th Cong., 2nd sess., H.Rept. 108-577 (Washington: GPO, 2004), pp. 4-6.

15. (back)For the text of House consideration see Congressional Record, daily edition, vol. 150, July 12, 2004, pp. H5488-H5500.

16. (back)For a discussion of language modifying the rescission from 0.83% to to 0.80% (contained in an enrollment correction resolution), see CRS Report RS21983(pdf), FY2005 Consolidated Appropriations Act: Reference Guide, by [author name scrubbed].

17. (back)Effective in FY2003, appropriations for Capitol Police salaries and expenses accounts in the annual legislative branch appropriation bill are contained in a stand-alone account. Previously, the appropriation was contained within the joint items account. Also effective in FY2003, a new account was created for Capitol Police buildings and grounds within the Architect of the Capitol account.

18. (back)Testimony of the Architect of the Capitol, Alan Hantman, U.S. Congress, House Committee on Appropriations, Subcommittee on Legislative Branch, Legislative Branch Appropriations for FY2005, hearings, 108th Cong., 2nd sess., May 12, 2004 (Washington: GPO, 2004), pp. 420-421. For a more detailed discussion on costs of and background on the center, see CRS Report RL31121, The Capitol Visitors' Center: An Overview, by Stephen Stathis.

19. (back)Testimony of the Architect of the Capitol, Alan Hantman, U.S. Congress, House Committee on Appropriations, Subcommittee on Legislative Branch, Legislative Branch Appropriations for FY2005, hearings, 108th Cong., 2nd sess., May 12, 2004 (Washington: GPO, 2004), pp. 444.

20. (back)Testimony of CBO Director Douglas Holtz-Eakin, in U.S. Congress, Senate Committee on Appropriations, Subcommittee on Legislative Branch, Legislative Branch Appropriations for FY2005, hearings, 108th Cong., 2nd sess., Mar. 4, 2004 (Washington: GPO, 2004), pp. 42-43.

21. (back)Ibid.

22. (back)Previously, telecommunications costs were paid from the budget of the House of Representatives.

23. (back)Testimony of GAO Comptroller General David Walker, in U.S. Congress, Senate Committee on Appropriations, Subcommittee on Legislative Branch, Legislative Branch Appropriations for FY2005, hearings, 108th Cong., 2nd sess., Mar. 4, 2004 (Washington: GPO, 2004), pp. 3-18.

24. (back)Both figures include appropriations for the Congressional Research Service.

25. (back)Testimony of Librarian of Congress James Billington, in U.S. Congress, House Committee on Appropriations, Subcommittee on Legislative Branch, Legislative Branch Appropriations for FY2005, hearings, 108th Cong., 2nd sess., May 12, 2004 (Washington: GPO, 2004), p. 250.

26. (back)These facilities are to ensure continuity of operations during an emergency situation.

27. (back)These funds will enable implementation of a data standard (XML) in preparation of congressional documents for the Legislative Information System (LIS) to ensure parity of CRS with the House and Senate. The XML data standard was authorized by the Committee on House Administration and the Senate Committee on Rules and Administration for all congressional documents.

28. (back)Written testimony of CRS Director Daniel Mulhollan, in U.S. Congress, Senate Committee on Appropriations, Subcommittee on Legislative Branch, Legislative Branch Appropriations for FY2005, hearings, 108th Cong., 2nd sess., Mar. 11, 2004 (not yet published).

29. (back)The request for a one-time appropriation would cover a funding gap created during recent years in which mandatory appropriations made to cover increased pay and related benefits costs were less than the actual costs to CRS.

30. (back)Written testimony of GPO Public Printer Bruce James, in U.S. Congress, Senate Committee on Appropriations, Subcommittee on Legislative Branch, Legislative Branch Appropriations for FY2005, hearings, 108th Cong., 2nd sess., Mar. 4, 2004 (not yet published).




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