Order Code RL32952
CRS Report for Congress
Received through the CRS Web
Labor, Health and Human Services, and
Education: FY2006 Appropriations
Updated August 8, 2005
Paul M. Irwin
Specialist 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 regular appropriations bills that Congress considers each
year. It is designed to supplement the information provided by the House and Senate
Appropriations Subcommittees on Labor, Health and Human Services, and Education, and
Related Agencies. It summarizes the status of the bill, its scope, major issues, funding
levels, and related congressional activity, and is updated as events warrant. The report 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].


Labor, Health and Human Services, and Education:
FY2006 Appropriations
Summary
This report tracks FY2006 appropriations for the Departments of Labor, Health
and Human Services, and Education, and Related Agencies (L-HHS-ED). This
legislation provides discretionary funds for three major federal departments and 14
related agencies. The report, which will be updated, summarizes L-HHS-ED
discretionary funding issues but not authorization or entitlement issues.
On February 7, 2005, the President submitted the FY2006 budget request to
Congress, including $141.7 billion in discretionary L-HHS-ED funds; the comparable
FY2005 appropriation was $143.5 billion, enacted primarily through P.L. 108-447.
On June 24, 2005, the House passed H.R. 3010 (H.Rept. 109-143), a bill that would
provide $143.0 billion in discretionary appropriations for L-HHS-ED for FY2006.
On July 14, the Senate Committee on Appropriations amended and reported H.R.
3010 (S.Rept. 109-103), which would provide $145.7 billion in discretionary funds.
Department of Labor (DOL). DOL discretionary appropriations were $12.1
billion in FY2005; $11.6 billion was requested for FY2006. FY2006 funding for
Workforce Investment Act (WIA) programs would be decreased by $282 million, and
the Employment Service would be reduced $116 million.
Department of Health and Human Services (HHS). HHS discretionary
appropriations were $63.8 billion in FY2005; $62.7 billion was requested for
FY2006. Health Centers, National Institutes of Health (NIH), and the Centers for
Medicare and Medicaid Services (CMS) Program Management would each receive
increases of at least $100 million. Health Professions, the Children’s Hospital
Graduate Medical Education, the Centers for Disease Control and Prevention (CDC),
and Low-Income Home Energy Assistance Program (LIHEAP) would each receive
decreases of at least $100 million. Health Care-Related Facilities and the
Community Services Block Grant (CSBG) would each be terminated.
Department of Education (ED). ED discretionary appropriations were $56.6
billion in FY2005; $56.2 billion was requested for FY2006. The Title I, Part A
Grants to Local Educational Agencies, the Individuals with Disabilities Education
Act (IDEA) Part B Grants to States, and Pell Grants would be increased by at least
$100 million. Funding would be initiated for High School Intervention, High School
Assessments, and a Teacher Incentive Fund. Funding for Fund for the Improvement
of Education (FIE), Adult Education, and TRIO programs would be reduced by at
least $100 million. Perkins Vocational Education, Even Start, Comprehensive
School Reform Demonstration, Educational Technology State Grants, Safe and Drug-
Free Schools State Grants, and GEAR UP programs would be eliminated.
Related Agencies. Discretionary appropriations for related agencies were $11.1
billion in FY2005; $11.2 billion was requested for FY2006. Administrative
Expenses of the Social Security Administration (SSA) would be increased by $748
million; the SSA Medicare Reform Fund would be eliminated. Two-year advance
funding for the Corporation for Public Broadcasting (CPB) would be eliminated.

Key Policy Staff for L-HHS-ED Appropriations
Area of Expertise
Name
Telephone
Coordinator
Paul M. Irwin
7-7573
Department of Labor
Job training and employment services
Ann Lordeman
7-2323
Labor market information
Linda Levine
7-7756
Labor standards enforcement
William G. Whittaker
7-7759
Mine Safety and Health Administration
Edward B. Rappaport
7-7740
Occupational Safety and Health Administration
Edward B. Rappaport
7-7740
Older Americans Act, employment programs
Carol V. O’Shaughnessy
7-7329
Pension and welfare benefits
Paul J. Graney
7-2290
Trade adjustment assistance
Paul J. Graney
7-2290
Unemployment compensation
Julie Whittaker
7-2587
Veterans employment
Paul J. Graney
7-2290
Welfare-to-Work
Gene Falk
7-7344
Workforce Investment Act
Ann Lordeman
7-2323
Department of Health and Human Services
Abortion, legal issues
Karen J. Lewis
7-6190
Abortion, legal issues
Jon Shimabukuro
7-7990
Abortion procedures
Judith A. Johnson
7-7077
AIDS, Ryan White programs
Judith A. Johnson
7-7077
Bioterrorism, HHS funding
Sarah Lister
7-7320
Bioterrorism, HHS funding
Pamela W. Smith
7-7048
Cancer research
Judith A. Johnson
7-7077
Centers for Disease Control and Prevention
Pamela W. Smith
7-7048
Child care and development
Melinda Gish
7-4618
Child welfare
Emilie Stoltzfus
7-2324
Child welfare
Karen Spar
7-7319
Family Planning, Title X
Sharon Kearney Coleman
7-7367
Federal health centers
Sharon Kearney Coleman
7-7367
Head Start
Melinda Gish
7-4618
Health professions education and training
Bernice Reyes-Akinbileje
7-2260
Health Resources and Services Administration
Sharon Kearney Coleman
7-7367
Immigration and refugee policy
Ruth Wasem
7-7342
Immunization
Pamela W. Smith
7-7048
Low-Income Home Energy Assistance Program
Emilie Stoltzfus
7-2324
Maternal and Child Health Block Grant
Sharon Kearney Coleman
7-7367
Medicaid
Elicia Herz
7-1377
Medicare
Jennifer O’Sullivan
7-7359
Needle exchange, AIDS
Judith A. Johnson
7-7077
NIH, health research policy
Pamela W. Smith
7-7048
NIH, health research policy
Judith A. Johnson
7-7077
Older Americans Act
Carol V. O’Shaughnessy
7-7329
Public Health Service
Sharon Kearney Coleman
7-7367
Social Services Block Grant
Melinda Gish
7-4618

Area of Expertise
Name
Telephone
State Children’s Health Insurance Program (SCHIP)
Evelyne Baumrucker
7-8913
Stem cell research, cloning
Judith A. Johnson
7-7077
Stem cell research, cloning
Erin D. Williams
7-4897
Substance Abuse and Mental Health Services
C. Stephen Redhead
7-2261
Welfare reform
Gene Falk
7-7344
Department of Education
Adult education and literacy
Paul M. Irwin
7-7573
After-school programs
Gail McCallion
7-7758
Assessment in education
Wayne C. Riddle
7-7382
Charter schools
David Smole
7-0624
Education block grants
Rebecca R. Skinner
7-6600
Education for the Disadvantaged, Title I
Wayne C. Riddle
7-7382
Education technology
Charmaine Mercer
7-4894
English language acquisition
Jeffrey J. Kuenzi
7-8645
Higher education
Adam Stoll
7-4375
Impact Aid
Rebecca R. Skinner
7-6600
Indian education
Roger Walke
7-8641
Pell Grants
Charmaine Mercer
7-4894
Reading programs
Gail McCallion
7-7758
Rehabilitation Act
Sidath Panangala
7-0623
Safe and Drug-Free Schools and Communities
Edith Fairman Cooper
7-7019
School facilities
Susan Boren
7-6899
Special education, IDEA
Richard N. Apling
7-7352
Special education, IDEA, legal issues
Nancy Lee Jones
7-6976
Student aid
Adam Stoll
7-4375
Student aid
Charmaine Mercer
7-4894
Student loans
Adam Stoll
7-4375
Teacher recruitment, preparation, and training
Jeffrey J. Kuenzi
7-8645
21st Century Community Learning Centers
Gail McCallion
7-7758
Vocational and technical education
Rebecca R. Skinner
7-6600
Related Agencies
Corporation for National and Community Service
Ann Lordeman
7-2323
(VISTA, Senior Corps, AmeriCorps)
Corporation for Public Broadcasting
Glenn McLaughlin
7-7073
Institute of Museum and Library Services, libraries
Gail McCallion
7-7758
Institute of Museum and Library Services, museums
Susan Boren
7-6899
National Labor Relations Board
Gerald Mayer
7-7815
National Labor Relations Board, legal issues
Jon Shimabukuro
7-7990
Railroad Retirement Board
Dawn Nuschler
7-6283
Social Security Administration
Dawn Nuschler
7-6283
Supplemental Security Income
Gary Sidor
7-2588

Contents
Most Recent Developments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Senate Bill H.R. 3010 Reported . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
House Bill H.R. 3010 Passed . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Budget Resolution H.Con.Res. 95 Adopted . . . . . . . . . . . . . . . . . . . . . 1
President’s Budget Submitted . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Note on Most Recent Data . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Overview and Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Program Level and Current Year Appropriations . . . . . . . . . . . . . . . . . . . . . 3
President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
House Proposal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Senate Proposal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
Earmarks for Specific Projects . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
302(a) and 302(b) Allocation Ceilings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Advance Appropriations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Major Funding Trends . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
Department of Labor . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
House Proposal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
Senate Proposal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
CRS Products . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Websites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Detailed Appropriations Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Department of Health and Human Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
House Proposal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
Senate Proposal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
Abortion: Funding Restrictions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
Embryonic Stem Cell Research: Funding Restrictions . . . . . . . . . . . . 19
CRS Products . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
Websites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
Detailed Appropriations Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
Department of Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
House Proposal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
Senate Proposal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
ESEA Funding Shortfall? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
IDEA Funding Shortfall? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
Pell Grants . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
Forward Funding and Advance Appropriations . . . . . . . . . . . . . . . . . . 28
CRS Products . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
Websites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30

Detailed Appropriations Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
Related Agencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33
President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33
House Proposal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33
Senate Proposal . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
CRS Products . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
Websites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
Detailed Appropriations Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35
Related Legislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38
FY2006 Budget Resolution, H.Con.Res. 95/S.Con.Res. 18 . . . . . . . . . . . . 38
FY2005 Omnibus Appropriations, P.L. 108-447 (H.R. 4818) . . . . . . . . . . 39
“Across-the-Board” Reductions for FY2005 . . . . . . . . . . . . . . . . . . . . 40
FY2005 Supplemental Appropriations for Iraq,
Afghanistan, and Tsunami Relief, P.L. 109-13 (H.R. 1268) . . . . . . . . 40
Appendix A: Terminology and Web Resources . . . . . . . . . . . . . . . . . . . . . . . . . 41
Websites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42
Appendix B: Context of L-HHS-ED Appropriations . . . . . . . . . . . . . . . . . . . . . 43
List of Tables
Table 1. Legislative Status of L-HHS-ED Appropriations, FY2006 . . . . . . . . . . 1
Table 2. Summary of L-HHS-ED Appropriations, FY2005-FY2006 . . . . . . . . . . 4
Table 3. Summary of Estimated L-HHS-ED Earmarks for Selected Years,
FY1996-FY2005 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Table 4. FY2006 302(b) Discretionary Allocations for L-HHS-ED . . . . . . . . . . 10
Table 5. L-HHS-ED Discretionary Funding Trends, FY2001-FY2005 . . . . . . . 12
Table 6. Department of Labor Discretionary Appropriations . . . . . . . . . . . . . . . 13
Table 7. Detailed Department of Labor Appropriations . . . . . . . . . . . . . . . . . . . 15
Table 8. Department of Health and Human Services
Discretionary Appropriations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
Table 9. Detailed Department of Health and Human Services
Appropriations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
Table 10. Department of Education Discretionary Appropriations . . . . . . . . . . 24
Table 11. Detailed Department of Education Appropriations . . . . . . . . . . . . . . 31
Table 12. Related Agencies Discretionary Appropriations . . . . . . . . . . . . . . . . . 33
Table 13. Detailed Related Agencies Appropriations . . . . . . . . . . . . . . . . . . . . . 36
Table 14. Discretionary Budget Authority for L-HHS-ED
Budget Functions Assumed in the FY2006 Budget Resolution . . . . . . . . . 39
Table B.1. Context of the L-HHS-ED Bill, FY2005 . . . . . . . . . . . . . . . . . . . . . 43

Labor, Health and Human Services, and
Education: FY2006 Appropriations
Most Recent Developments
Senate Bill H.R. 3010 Reported. The FY2006 appropriations for Labor,
Health and Human Services, and Education (L-HHS-ED), H.R. 3010 was amended
and reported (S.Rept. 109-103) by the Senate Committee on Appropriations on July
14, 2005. The bill would provide $145.7 billion in discretionary funds for L-HHS-
ED programs; the comparable FY2005 amount was $143.5 billion.
House Bill H.R. 3010 Passed. The FY2006 appropriations for L-HHS-ED
programs, H.R. 3010 (H.Rept. 109-143), was amended and passed by the House on
June 24, 2005. The bill would provide $143.0 billion in discretionary funds for
L-HHS-ED programs.
Budget Resolution H.Con.Res. 95 Adopted. On April 28, 2005, the
FY2006 budget resolution, H.Con.Res. 95, was agreed to by the House and Senate.
The resolution requires an FY2006 federal discretionary spending ceiling of $843
billion, $3.0 billion less than the FY2005 total. The resolution, however, does not
specify appropriations totals for L-HHS-ED agencies or programs.
President’s Budget Submitted. On February 7, 2005, the President
submitted the FY2006 budget to Congress; the request was for $141.7 billion in
discretionary funds for L-HHS-ED programs.
Table 1 summarizes the legislative status of FY2006 L-HHS-ED appropriations.
Table 1. Legislative Status of L-HHS-ED Appropriations, FY2006
Subcommittee
Conference
Markup
H.R.
H.R.
H.R.
Report Approval
3010,
3010,
3010,
H.Rept.
House
S.Rept. Senate
Conf.
House
Senate
Public
House
Senate 109-143 Passage 109-103 Passage Report Passage Passage
Law
6/24/05
6/09/05 7/12/05 6/21/05
7/14/05
250-151





(a)
(b)
(c)
(e)
(d)
a. The House Subcommittee on Labor, Health and Human Services, and Education Appropriations
began FY2006 hearings on Feb. 16, 2005. The subcommittee marked up its version of the
FY2006 L-HHS-ED appropriations on June 9, 2005, and approved it by voice vote.
b. The Senate Subcommittee on Labor, Health and Human Services, and Education Appropriations
began FY2006 hearings on Mar. 2, 2005. The subcommittee marked up its version of the
FY2006 L-HHS-ED appropriations on July 12, 2005, and approved it by voice vote.

CRS-2
c. H.R. 3010: The House Committee on Appropriations approved its version of the L-HHS-ED
appropriations for FY2006 on June 16, 2005, by voice vote, and ordered the bill reported.
Subsequently, H.R. 3010 (H.Rept. 109-143) was introduced and reported on June 21, 2005.
d. H.R. 3010: The House passed H.Res. 337 (H.Rept. 109-148), the rule for the House floor
consideration of H.R. 3010, by voice vote; see Congressional Record, Daily Edition, June 23,
2005, p. H4991-5000. The House amended and passed H.R. 3010 on June 24, 2005; see
Congressional Record, Daily Edition, June 23, p. H5000-5073; and June 24, 2005, p. H5105-
5165. House approval was by a vote of 250 to 151 (Roll Call no. 321), p. H. 5164-5165.
e. H.R. 3010: The Senate Committee on Appropriations approved its version of the L-HHS-ED
appropriations for FY2006 on July 14, 2005, S.Rept. 109-103, and reported the bill by a vote
of 27 to 0.
Note on Most Recent Data. In this report, unless stated otherwise, data on
appropriations enacted for FY2005, the FY2006 request, the FY2006 House-passed
amounts, and the Senate-reported amounts are based on the July 18, 2005 table of the
House Committee on Appropriations. These amounts reflect H.R. 3010 as passed by
the House on June 24, 2005, and H.R. 3010, as reported by the Senate Committee on
Appropriations on July 14, 2005. The FY2005 enacted amounts are post-reduction,
taking into account the cuts (see page 40) required by P.L. 108-447, the Consolidated
Appropriations Act, 2005; these amounts differ from those shown in the H.R. 4818
conference report for FY2005, H.Rept. 108-792, which are pre-reduction amounts
.
In most cases, data represent net funding for specific programs and activities and take
into account current and forward funding and advance appropriations; however, all
data are subject to additional budgetary scorekeeping. Except where noted, budget
data refer only to those programs within the purview of the L-HHS-ED
appropriations bill, and not to all programs within the jurisdiction of the relevant
departments and agencies, including funding from other appropriations bills and
entitlements funded outside of the annual appropriations process.
Overview and Key Issues
This report describes the President’s proposal for FY2006 appropriations for
L-HHS-ED programs, as submitted to Congress on February 7, 2005, and the
congressional response to that proposal. It compares the President’s FY2006 request
to the FY2005 L-HHS-ED amounts. It tracks legislative action and congressional
issues related to the L-HHS-ED appropriations bill, with particular attention paid to
discretionary programs. In addition, the report summarizes activities related to the
annual budget process, such as the congressional budget resolution, continuing
resolutions, and supplemental appropriations (see “Related Legislation,” page 38).
However, the report does not follow specific funding issues related to mandatory
L-HHS-ED programs — such as Medicare or Social Security — nor will it follow
any authorizing legislation that may be needed prior to funding some of the
President’s budget initiatives. For a glossary of budget terms and relevant websites,
see “Appendix A: Terminology and Web Resources,” page 41. For funding
resources for L-HHS-ED agencies, see “Appendix B: Context of L-HHS-ED
Appropriations,” page 43.
The L-HHS-ED bill typically is one of the more controversial of the regular
appropriations bills, not only because of the size of its funding total and the scope of
its programs, but also because of the continuing importance of various related issues,
such as restrictions on the use of federal funds for abortion, stem cell research, or

CRS-3
human cloning. This bill provides discretionary funds for three federal departments
and 14 related agencies including the Social Security Administration (SSA).
Among the various appropriations bills, L-HHS-ED is the largest single source
of discretionary funds for domestic federal programs; the Defense bill is the largest
source of discretionary funds among all federal programs. According to the Budget
of the United States Government Fiscal Year 2006
, Table S-4, the FY2005
L-HHS-ED bill accounted for $142.4 billion (17.3%) and the Defense bill accounted
for $390.4 billion (47.5%) of the estimated $822.7 billion total for all federal
discretionary budget authority in FY2005. This section summarizes major funding
changes proposed for L-HHS-ED and related issues such as 302(b) allocations,
advance appropriations, and earmarks for specific projects. Later sections provide
details for individual L-HHS-ED departments.
Program Level and Current Year Appropriations
Table 2 summarizes the L-HHS-ED appropriations for FY2006, including both
discretionary and mandatory appropriations. The table shows various aggregate
measures of L-HHS-ED appropriations enacted for FY2005 and proposed for
FY2006, including discretionary program level, current year, and advance
appropriations, as well as scorekeeping adjustments.
! Program level appropriations reflect the total discretionary
appropriations in a given bill, regardless of the year in which they
will be spent, and therefore include advance funding for future years.
Unless otherwise specified, appropriations levels in this report refer
to program level amounts
.
! Current year appropriations represent discretionary
appropriations in a given bill for the current year, plus discretionary
appropriations for the current year that were enacted in prior years.
Current year discretionary appropriations are similar to the amount
counted for the 302(b) allocations ceilings (discussed later, page 9).
! Advance appropriations are funds that will not become available
until after the fiscal year for which the appropriations are enacted —
for example, funds included in the FY2005 act that cannot be spent
before FY2006 at the earliest (discussed later, page 10).
! Scorekeeping adjustments are made to account for special funding
situations; the Congressional Budget Office (CBO) monitors these
adjustments.
Because appropriations may consist of mixtures of budget authority enacted in
various years, two summary measures are frequently used — program level
appropriations and current year appropriations. How are these measures related? For
an “operational definition,” program level funding equals (a) current year, plus
(b) advances for future years, minus (c) advances from prior years, and minus
(d) scorekeeping adjustments. Table 2 shows each of these amounts, along with
current year funding for mandatory programs and the grand total for L-HHS-ED.

CRS-4
Table 2. Summary of L-HHS-ED Appropriations, FY2005-FY2006
($ in billions)
FY2005
FY2006
FY2006
FY2006
FY2006
Type of budget authority
enacted
request
House
Senate
enacted
Discretionary appropriations
Program level: current bill for
$143.5
$141.7
$143.0
$145.7

any year
Current year: current year
142.7
141.7
142.5
141.3

from any bill
Advances for future years
19.3
18.8
19.3
19.3

(from the current bill)
Advances from prior years
19.2
19.3
19.3
19.3

(from previous bills)
Scorekeeping adjustments
-0.7
-0.5
-0.5
-4-4

Current year discretionary and mandatory funding
Discretionary
142.7
141.7
142.5
141.3

Mandatory
354.2
455.3
459.5
455.3

Total current year
496.9
597.0
602.0
596.6

Grand total of funding for L-HHS-ED bill, any year
Grand total any year
$501.3
$596.1
$601.6
$600.1

Source: Amounts are based on the July 18, 2005 table of the House Committee on Appropriations.
FY2005 amounts are post-reduction (see p. 40) and are based on P.L. 108-447. Appropriations are
given only for programs included in the annual L-HHS-ED bill.
Note: Both FY2005 and FY2006 mandatory amounts are estimates that are subject to adjustments
after the close of their respective fiscal years.
President’s Request
On February 7, 2005, the President’s FY2006 request was submitted to
Congress, two months after the regular FY2005 L-HHS-ED appropriations were
signed into law as P.L. 108-447 (enacted December 8, 2004). With regard to the
President’s budget, the primary issues raised during congressional consideration of
any appropriations request generally relate to proposed funding changes. The
summary below notes changes proposed for FY2006 discretionary budget authority
of at least $100 million compared to the FY2005 amount. Viewing this list by itself
should be done with caution, since the relative impact of a $100 million funding
change to a $500 million program (a 20% increase or decrease) is greater than a $100
million change to a $5 billion program (a 2% increase or decrease). Later in this
report, the discussions of budgets for individual departments include tables to
compare the FY2006 request with the FY2005 funding for many of the major
programs in the L-HHS-ED bill.
Budget Highlights. Overall, $141.7 billion in discretionary appropriations
was requested for L-HHS-ED for FY2006, $1.8 billion (1.3%) less than the FY2005
amount of $143.5 billion.

CRS-5
! For Department of Labor (DOL) programs, the FY2006 request
included an decrease of $282 million for job training programs
authorized by the Workforce Investment Act of 1998 (WIA),
including $132 million less for WIA Dislocated Worker Assistance.
A decrease of $116 million was proposed for the Employment
Service. Overall, $11.6 billion in FY2006 discretionary
appropriations was requested for DOL, 4.1% less than the FY2005
amount of $12.1 billion.
! For Department of Health and Human Services (HHS) programs, the
FY2006 request proposed increases of $304 million for Health
Centers, $145 million for the National Institutes of Health (NIH),
$512 million for the Centers for Medicare and Medicaid Services
(CMS) Program Management, and $171 million for the Public
Health and Social Services Emergency Fund (PHSSEF). The
FY2006 request proposed decreases of $288 million for Health
Professions programs other than nursing, $101 million for
Children’s Hospital Graduate Medical Education (CHGME), $470
million for the Centers for Disease Control and Prevention (CDC),
and $182 million for the Low-Income Home Energy Assistance
Program (LIHEAP). FY2006 funding would be eliminated for the
$483 million Health Care-Related Facilities and Activities and the
$637 million Community Services Block Grant (CSBG) programs.
Overall, $62.7 billion in FY2006 discretionary appropriations was
requested for HHS, 1.7% less than the FY2005 amount of $63.8
billion.
! For Department of Education (ED) programs, an FY2006 increase
of $974 million was proposed for Elementary and Secondary
Education Act of 1965 (ESEA) programs in aggregate. The request
proposed increases of $602 million for ESEA Title I, Part A Grants
to Local Educational Agencies (LEAs) for the Education for the
Disadvantaged, $508 million for Special Education Part B Grants to
States under the Individuals with Disabilities Education Act (IDEA),
$834 million for Pell Grants, and $175 million for Striving Readers.
Proposed new programs included $1.2 billion for a High School
Intervention initiative, $250 million for High School Assessments,
and $500 million for a Teacher Incentive Fund. Proposed decreases
included $258 million less for the Fund for the Improvement of
Education (FIE), $369 million for Adult Education, $140 million for
the Fund for the Improvement of Postsecondary Education (FIPSE),
and $468 million for TRIO programs. FY2006 funding would be
terminated for the $1.3 billion Perkins Vocational Education
program, the $225 million Even Start program, the $205 million
Comprehensive School Reform, the $496 million Educational
Technology State Grants, the $437 million Safe and Drug-Free
Schools State Grants, and the $306 million GEAR UP program.
Overall, $56.2 billion in FY2006 discretionary appropriations was
requested for ED, 0.7% less than the FY2005 amount of $56.6
billion.
! For the related agencies, the FY2006 budget proposed an increase of
$748 million for Administrative Expenses at the Social Security
Administration (SSA). Termination of separate funding was

CRS-6
proposed for the $446 million SSA Medicare Reform Fund, with
continuing SSA responsibilities to be funded under regular SSA
Administrative Expenses. No funds were proposed for the two-year
advance appropriation for the Corporation for Public Broadcasting
(CPB) for FY2008. The CPB was funded at $400 million for
FY2007 (under the FY2005 L-HHS-ED bill); the FY2005 CPB
funding level was $387 million. Overall, $11.2 billion in FY2006
discretionary appropriations was requested for related agencies,
1.0% more than the FY2005 amount of $11.1 billion.
House Proposal
The House Committee on Appropriations reported its version of the FY2006
L-HHS-ED appropriations as H.R. 3010 (H.Rept. 109-143) on June 21, 2005.
Under the provisions of H.Res. 337, the House began consideration of the bill on
June 23, and amended and passed the bill on June 24, 2005, by a vote of 250 to 151
(Roll Call no. 321). With some reservation, the Administration announced its
support for the House bill, as approved by the committee; for details, please see
[http://www.whitehouse.gov/omb/legislative/sap/109-1/hr3010sap-h.pdf].
House Highlights. During its consideration of H.R. 3010, the House
approved 11 amendments to the bill. The amended provisions included restrictions
on HHS regarding certain health-related programs being used to treat sexual or
erectile dysfunction among sex offenders (§518); repeal of a proposed $100 million
rescission of FY2006 appropriations for the CPB (§519); prohibition on ED from
enforcing the Inspector General’s November 2003 final audit report regarding 20
Arizona charter schools (§520); restrictions on the Pension Benefit Guaranty
Corporation (PBGC) regarding its role in the restructuring of pension benefits by the
UAL Corporation (United Air Lines) (§521); a prohibition on the inclusion of social
security numbers on Medicare identification cards (§522); restrictions on SSA
regarding the implementation of a totalization agreement with Mexico (§528); and
restrictions on ED regarding payment of special allowances for certain student loans
(§529).
Overall, the House proposal, as passed, would provide program level
discretionary appropriations of $143.0 billion for L-HHS-ED programs for FY2006.
The President requested $141.7 billion; the FY2005 amount was $143.5 billion. The
House bill differs from the President’s request in a number of details.
! For DOL programs, the House bill would fund the WIA Dislocated
Worker Assistance State Grants at $1.2 billion, $118 million more
than requested. The WIA Community College program would
receive $125 million, $125 million less than requested. Overall, the
House bill would provide $11.7 billion in discretionary funds for
DOL; $11.6 billion was requested; and $12.1 billion was provided
for FY2005.
! For HHS programs, the House bill would fund Health Centers at
$1.8 billion, $204 million less than requested. Children’s Hospital
Graduate Medical Education (CHGME) would receive $300 million,
$100 million more than requested. The Agency for Healthcare

CRS-7
Research and Quality (AHRQ) would receive a direct appropriation
of $319 million; the request was for $319 million in indirect
appropriations. Community Services Block Grant (CSBG) would
receive $320 million; no funds were requested. The Public Health
and Social Services Emergency Fund (PHSSEF) would receive $184
million, $2.2 billion less than the request of $2.4 billion; however,
the House bill would directly appropriate $2.1 billion for
bioterrorism activities to the Health Resources and Services
Administration (HRSA) ($0.5 billion) and the CDC ($1.6 billion),
funding that in previous years would have been appropriated
indirectly through the PHSSEF for the same activities. Overall, the
House bill would provide $63.2 billion in discretionary funds for
HHS; $62.7 billion was requested; and $63.8 billion was provided
for FY2005.
! For ED programs, the House bill would fund ESEA programs in
aggregate at $23.6 billion for FY2006, $1.8 billion less than
requested. ESEA Title I, Part A Grants to LEAs would receive
$12.8 billion, $502 million less than requested. Even Start would
receive $200 million; no funds were requested. Striving Readers
would receive $30 million, $170 million less than requested. The
High School Intervention initiative would not be funded; $1.2 billion
was requested. Educational Technology State Grants would be
funded at $300 million; no funds were requested. The High School
Assessments initiative would not be funded; $250 million was
requested. FIE would receive $27 million, $129 million less than
requested. Safe and Drug-Free Schools State Grants would receive
$400 million; no funds were requested. The Special Education Part
B Grants to States program under IDEA would receive $10.7 billion,
$358 million less than requested. The Perkins Vocational Education
program would receive $1.3 billion; no funds were requested. Adult
Education would receive $585 million, $369 million more than
requested. Pell Grants would receive $13.4 billion, $184 million
more than requested. The Pell Grants accumulated shortfall from
prior year awards, currently estimated at $4.3 billion, would be paid
off, pursuant to the FY2006 congressional budget resolution. The
House bill would not agree to the budget proposal to unify student
aid administrative activities in a single account. TRIO programs
would receive $837 million; $468 million more than requested.
GEAR UP would receive $306 million; no funds were requested.
Overall, the House bill would provide $56.7 billion in discretionary
funds for ED; $56.2 billion was requested; and $56.6 billion was
provided for FY2005.
! For the related agencies, the House bill would provide $6.4 billion
for SSA Administrative Expenses, $108 million less than requested.
The bill would provide $400 million for FY2008 for the CPB; no
funds were requested. The House bill, as passed, would not rescind
any funds from the FY2006 CPB appropriation of $400 million that
had been previously appropriated. The House bill, as reported,
included a rescission of $100 million from FY2006 funds for the
CPB; a rescission of $10 million was requested. Overall, the House
bill would provide $11.5 billion in discretionary funds for the related

CRS-8
agencies; $11.2 billion was requested; and $11.1 billion was
provided for FY2005.
Senate Proposal
The Senate Committee on Appropriations reported its version of the FY2006
L-HHS-ED appropriations as H.R. 3010 (S.Rept. 109-103) on July 14, 2005, by a
vote of 27 to 0.
Senate Highlights. The Senate version of H.R. 3010, as reported, would
provide program level discretionary appropriations of $145.7 billion for L-HHS-ED
programs for FY2006. The comparable House amount is $143.0 billion, and the
President requested $141.7 billion. The FY2005 comparable amount is $143.5
billion. The Senate bill, as reported, differs from the House bill in a number of
details regarding discretionary appropriations.
! For DOL programs, the Senate bill, as reported, would fund WIA
programs in aggregate at a level $129 million more than the House
amount. Overall, the bill would provide $11.9 billion in
discretionary appropriations for DOL programs, $0.2 billion more
than the House and $0.3 billion more than the request, but $0.2
billion less than in FY2005.
! For HHS programs, the Senate bill, as reported, would provide $251
million more than the House bill for Health Professions other than
nursing, $481 million more for Health Care-Related Facilities and
Activities, $908 million more for NIH, $176 million more for
LIHEAP, and $317 million more for the CSBG. Overall, the bill
would provide $65.4 billion in discretionary appropriations for HHS
programs, $2.2 billion more than the House, $2.7 billion more than
the request, and $1.6 billion more than in FY2005.
! For ED programs, the Senate bill, as reported, would provide $125
million more for Educational Technology State Grants, $391 million
more for FIE, and $113 million more for FIPSE. The bill would
provide $100 million less for Safe and Drug-Free Schools State
Grants and $206 million less for Pell Grants. It would eliminate
funding for Even Start ($200 million in the House bill) and the
Teacher Incentive Fund initiative ($100 million in the House bill).
Overall, the bill would provide $56.7 billion in discretionary
appropriations for ED programs, the same as the House, but $0.5
billion more than the request and $0.1 billion more than in FY2005.
! For related agencies, the Senate bill, as reported, would provide
$187 million less than the House bill for Supplemental Security
Income (SSI) discretionary activities and $236 million more for SSA
Administrative Expenses. Overall, the bill would provide $11.7
billion in discretionary appropriations for related agencies, $0.2
billion more than the House, $0.5 billion more than the request, and
$0.6 billion more than in FY2005.

CRS-9
Earmarks for Specific Projects
Earmarking of funds for specific projects in appropriations bills has become a
topic of contention for Congress and the Administration, and the issue extends to
L-HHS-ED projects. In the case of L-HHS-ED appropriations, earmarks may be
defined as funds set aside within an account for a specific organization or location,
either in the appropriation act or its conference report. Typically, the authorizing
statute gives the general purpose for use of appropriations, such as “projects for the
improvement of postsecondary education,” but an earmark designates a specific
amount for a specific recipient. Such designations bypass the usual competitive
distribution of awards by a federal agency, but otherwise require recipients to follow
standard federal financial and other administrative procedures. The President has
urged the elimination of congressional earmarks in appropriations in recent years, but
Congress has continued the practice.
Earmarks in L-HHS-ED appropriations generally have increased during the past
decade, along with the total appropriation for L-HHS-ED programs. Table 3 shows
the total annual L-HHS-ED appropriation, the estimated amount earmarked, the
earmarked amount as a percent of the total, and the estimated number of earmarks.
Table 3. Summary of Estimated L-HHS-ED Earmarks for
Selected Years, FY1996-FY2005
($ in millions)
Estimated
Earmarks as %
Estimated
Total
value of
of total
number of
Fiscal year
appropriation
earmarks
appropriation
earmarks
2005
$497,553
$1,179.5
0.24%
3,014
2004
479,818
875.5
0.18%
2,036
2002
411,822
1,018.7
0.25%
1,606
2000
328,230
461.0
0.14%
491
1998
276,890
54.4
0.02%
25
1996
265,533
14.9
0.01%
7
Sources: The annual L-HHS-ED bills and conference reports upon which the above numbers are
based were as follows: For FY2005, P.L. 108-447 (H.Rept. 108-792); for FY2004, P.L. 108-199
(H.Rept. 108-401); for FY2002, P.L. 107-116 (H.Rept. 107-342); for FY2000, P.L. 106-113 (H.Rept.
106-479); for FY1998, P.L. 105-78 (H.Rept. 105-390); and for FY1996, P.L. 104-134 (H.Rept.
104-537).
302(a) and 302(b) Allocation Ceilings
The maximum budget authority for annual L-HHS-ED appropriations is
determined through a two-stage congressional budget process. In the first stage,
Congress establishes the 302(a) allocations — the maximum spending totals for
Congress for a given fiscal year. This task is sometimes accomplished through the
concurrent resolution on the budget, where spending totals are specified through the
statement of managers in the conference report. In years when the House and Senate

CRS-10
do not reach a budget agreement, these totals may be set through leadership
arrangements in each chamber. The spending amounts are allotted among the various
committees, and — for the House and Senate Appropriations Committees — the
amounts include the total discretionary budget authority available for enactment in
annual appropriations.
For FY2006, the concurrent resolution on the budget was H.Con.Res. 95, to
which the House and Senate agreed on April 28, 2005. The conference report
established $843.0 billion as the 302(a) allocation ceiling for the total discretionary
budget authority for FY2006; that amount represents an increase of $3.0 billion
relative to the FY2005 discretionary budget authority of $840.0 billion (H.Rept. 108-
62, p. 31 and 86). For legislative details, please see “Related Legislation,” page 38.
In the second stage of the annual congressional budget process, the House and
Senate Appropriations Committees separately establish the 302(b) allocations — the
maximum discretionary budget authority available to each subcommittee for each
annual appropriations bill. The total of these allocations must not exceed the 302(a)
discretionary total. This process creates the basis for enforcing discretionary budget
discipline, since any appropriations bill reported with a total above the ceiling is
subject to a point of order. The 302(b) allocations can and often do get adjusted
during the year as the various appropriations bills progress toward final enactment.
Table 4 shows the 302(b) discretionary allocations for the FY2006 L-HHS-ED
appropriations for the House and Senate Committees on Appropriations.
Comparable amounts for the FY2005 appropriations and the President’s FY2006
budget request are also shown. Both the 302(a) and 302(b) allocations regularly
become contested issues in their own right.
Table 4. FY2006 302(b) Discretionary Allocations for L-HHS-ED
(budget authority in billions of dollars)
FY2006
FY2006
FY2006
FY2006
FY2005
request
House
Senate
enacted
comparable
comparable
allocation
allocation
comparable
$142.7
$141.6
$142.5
$141.7

Sources: The comparable amounts for FY2005 budget authority and the FY2006 budget request are
based on the June 29, 2005 table of the House Committee on Appropriations. The FY2006 House
allocation is based on H.Rept. 109-145, June 22, 2005; the FY2006 Senate allocation is based on
S.Rept. 109-115, July 28, 2005.
Advance Appropriations
Advance appropriations occur when funds enacted in one fiscal year are not
available for obligation until a subsequent fiscal year. For example, P.L. 108-447,
which enacted FY2005 L-HHS-ED appropriations, provided $400 million for the
Corporation for Public Broadcasting (CPB) for use in FY2007. Advance
appropriations may be used to meet several objectives. These might include the
provision of long-term budget information to recipients, such as state and local
educational systems, to enable better planning of future program activities and

CRS-11
personnel levels. The more contentious aspect of advance appropriations, however,
involves how they are counted in budget ceilings.
Advance appropriations avoid the 302(a) and 302(b) allocation ceilings for the
current year, but must be counted in the year in which they first become available for
obligation. This procedure uses up ahead of time part of what will be counted against
the allocation ceiling in future years. In FY2002, the President’s budget proposed the
elimination of advance appropriations for federal discretionary programs, including
those for L-HHS-ED programs. Congress rejected that proposal, and the proposal
has not been repeated. For an example of the impact of advance appropriations on
program administration, see discussion in “Department of Education,” page 28.
The FY1999 and FY2000 annual L-HHS-ED appropriations bills provided
significant increases in advance appropriations for discretionary programs. These
amounts stabilized at approximately $19 billion in FY2000, increased to $21.5 billion
in FY2003, and returned to $19.3 billion in FY2004 and FY2005. For FY2005, the
advance appropriations represent approximately 14% of the L-HHS-ED discretionary
total of $142.4 billion for that year. For FY2006, the President’s request included
L-HHS-ED advance appropriations of $18.8 billion (13%). From FY1998 to the
present, the advance appropriations enacted in L-HHS-ED bills have been as follows:
! FY1998, $4.0 billion;
! FY1999, $8.9 billion;
! FY2000, $19.0 billion;
! FY2001, $18.8 billion;
! FY2002, $19.3 billion;
! FY2003, $21.5 billion;
! FY2004, $19.3 billion;
! FY2005, $19.3 billion;
! FY2006, President’s budget request, $18.8 billion;
! FY2006, House bill, as passed, $19.3 billion; and
! FY2006, Senate bill, as reported, $19.3 billion.
Major Funding Trends
The L-HHS-ED appropriations bills include both mandatory and discretionary
funds; however, the Appropriations Committees fully control only the discretionary
funds. Mandatory funding levels for programs included in the annual appropriations
bills are modified through changes in the authorizing legislation. Typically, these
changes are accomplished through authorizing committees by means of reconciliation
legislation, and not through appropriations committees in annual appropriations bills.
Table 5 shows the trend in discretionary budget authority enacted in the
L-HHS-ED appropriations for FY2001 through FY2005. During the past five years,
L-HHS-ED discretionary funds have grown from $109.4 billion in FY2001 to an
estimated $142.4 billion in FY2005, an increase of $33.0 billion, or 30.2%. During
this same period — and using the Gross Domestic Product (GDP) deflator to adjust
for inflation — L-HHS-ED discretionary funds in estimated FY2005 dollars have
grown from $118.0 billion in FY2001 to $142.4 billion in FY2005, an increase of
$24.4 billion in estimated FY2005 dollars, or 20.7%. L-HHS-ED discretionary funds

CRS-12
as a percent of total federal discretionary funds decreased from a 16.5% share in
FY2001 to an estimated 15.6% share in FY2005. L-HHS-ED discretionary funds as
a percent of total federal budget authority increased slightly from a 5.6% share in
FY2001 to an estimated 5.7% share in FY2005.
Table 5. L-HHS-ED Discretionary Funding Trends, FY2001-
FY2005
(budget authority in billions of dollars)
FY2005
Type of funds
FY2001
FY2002
FY2003
FY2004
estimate a
L-HHS-ED discretionary
$109.4
$127.2
$132.4
$140.9
$142.4
L-HHS-ED discretionary in
$118.0
$134.8
$137.8
$143.8
$142.4
estimated FY2005 dollars
L-HHS-ED % of total federal
discretionary funds b
16.5%
17.3%
15.6%
15.5%
15.6%
L-HHS-ED % of total federal
budget authority (both
5.6%
6.1%
5.8%
5.9%
5.7%
discretionary and non-
discretionary)
Total federal discretionary
$663.8
$734.8
$849.5
$907.6
$915.6
funds
Total federal budget authority
(both discretionary and non-
$1,959.0
$2,090.1
$2,266.1
$2,407.4
$2,477.4
discretionary)
GDP deflator
1.0236
1.0426
1.0614
1.0825
1.1045
Sources: Federal totals and the GDP deflator are based on the Budget of the United States
Government Historical Tables Fiscal Year 2006
, Tables 5.2, 5.4, and 10.1. L-HHS-ED totals for
discretionary budget authority are based on annual conference reports for L-HHS-ED appropriations,
and therefore may not be completely comparable from year to year.
a. FY2005 estimates for federal budget authority, both total and discretionary, are based on amounts
published in the FY2006 budget request of Feb. 7, 2005. Estimates exclude supplementals and
rescissions enacted after that date, as well as re-estimates and scorekeeping adjustments.
b. Discretionary funds include both defense and non-defense activities.

CRS-13
Department of Labor
FY2005 discretionary appropriations for the Department of Labor (DOL) were
$12.1 billion. For FY2006, the budget request was $11.6 billion, $0.5 billion (4.1%)
less than the FY2005 amount, as shown in Table 6. As passed, the House bill would
provide $11.7 billion for DOL discretionary programs in FY2006; as reported, the
Senate bill would provide $11.9 billion.
Table 6. Department of Labor Discretionary Appropriations
($ in billions)
FY2005
FY2006
FY2006
FY2006
FY2006
Funding
enacted
request
House
Senate
enacted
Appropriations
$12.1
$11.6
$11.7
$11.9

Source: Amounts are based on the July 18, 2005 table of the House Committee on Appropriations.
FY2005 amounts are post-reduction (see page 40) and based on P.L. 108-447. Amounts represent
discretionary programs funded by L-HHS-ED appropriations; funds for mandatory programs are
excluded.
Mandatory DOL programs included in the FY2005 L-HHS-ED bill were funded
at $3.3 billion, and consist of the Federal Unemployment Benefits and Allowances
($1.1 billion), Black Lung Disability Trust Fund ($1.1 billion), Advances to the
Unemployment Insurance and Other Trust Funds ($0.5 billion), Special Benefits for
Disabled Coal Miners ($0.4 billion), Employment Standards Administration (ESA)
Special Benefits ($0.2 billion), and Energy Employees Occupational Illness
Compensation Fund ($40 million).
Key Issues
President’s Request. The President’s FY2006 budget request for DOL
proposed changes in funding for a number of discretionary activities; proposed
changes of at least $100 million were as follows.
! The Workforce Investment Act of 1998 (WIA) programs, funded in
aggregate at $5.3 billion in FY2005, would be decreased by $282
million under the President’s FY2006 budget request.
! The WIA Dislocated Worker Assistance programs, funded at $1.5
billion in FY2005, would be decreased by $132 million in FY2006,
including a decrease of $118 million for state grants.
! The Employment Service, funded at $846 million in FY2005, would
be decreased by $116 million, including a decrease of $85 million
for state grants.
House Proposal. For DOL programs, the House bill, as passed, differs from
the President’s budget request primarily with respect to two WIA programs.
! The House bill would provide $1.2 billion for WIA Dislocated
Worker Assistance State Grants, $118 million more than requested
and the same as the FY2005 amount.

CRS-14
! The WIA Community College program would receive $125 million,
which is $125 million less than requested and $124 million less than
the funds available from all sources for FY2005. Also, the House
bill would rescind $125 million of FY2005 funds for this program,
for a proposed net increase of $1 million in FY2006.
Senate Proposal. For DOL programs, the Senate bill, as reported, differs
from the House bill by more than $100 million for WIA programs in aggregate.
These programs would receive $5.3 billion, $129 million more than the House
amount. The request was for $5.1 billion; $5.3 billion was provided in FY2005.
Also, the Senate bill would not rescind any FY2005 funds for the WIA Community
College program; the House bill would rescind $125 million.
CRS Products
CRS Report RS22077, Unemployment Compensation (UC) and the Unemployment
Trust Fund (UTF): Funding UC Benefits, by Christine Scott and Julie M.
Whittaker.
CRS Report RS20244, The Workforce Investment Act: Training Programs Under
Title I at a Glance, by Ann Lordeman.
Websites
Department of Labor
[http://www.dol.gov]
[http://www.dol.gov/_sec/Budget2006/overview.htm]
[http://www.doleta.gov/budget/06bud.cfm]
Detailed Appropriations Table
Table 7 shows the appropriations details for offices and major programs of
DOL.

CRS-15
Table 7. Detailed Department of Labor Appropriations
($ in millions)
FY2005
FY2006
FY2006
FY2006
FY2006
Office or major program
enacted
request
House
Senate
enacted
Employment and Training Administration (ETA)
Training and Employment Services
(TES), Workforce Investment Act
897
866
866
894

(WIA) Adult Training Grants to
States
WIA Youth Training
986
950
950
986

WIA Dislocated Worker
1,476
1,344
1,405
1,476

Assistance (DWA)
DWA State Grants (non-add)
1,193
1,075
1,193
1,193

DWA National Reserve Community
College set aside (non-add) a

125
0
0
125

DWA, National Reserve, other
(non-add) a

158
269
212
158

WIA Migrant and Seasonal
76
0
76
80

Farmworkers
WIA Job Corps
1,552
1,517
1,542
1,582

WIA Community College
(Community-Based Job Training) a
124
250
125
0

WIA Community College, program
level (non-add) a

249
250
125
125

WIA Community College, House-
proposed rescission for FY2005

-125
na
na
na

(non-add)
WIA Other Federal Activities
227
129
158
233

WIA/TES subtotal
5,338
5,056
5,122
5,251

Community Service Employment
437
437
437
437

for Older Americans
Federal Unemployment Benefits
1,057
966
966
966

and Allowances (mandatory)
State Unemployment Insurance
and Employment Service
2,673
2,633
2,633
2,610

Operations (SUI/ESO)
Unemployment Compensation
SUI/ESO Employment Service
846
730
730
780

SUI/ESO Employment Service
781
696
696
746

State Grants (non-add)
SUI/ESO One-Stop Career Centers
98
88
88
90

SUI/ESO Work Incentives Grants
20
20
20
20

SUI/ESO subtotal
3,637
3,471
3,471
3,500

Advances to Unemployment Trust
517
465
465
465

Fund and other funds (mandatory)
ETA Program Administration
170
206
206
200

ETA subtotal
11,156
10,601
10,667
10,819

Employee Benefits Security
131
137
137
135

Administration

CRS-16
FY2005
FY2006
FY2006
FY2006
FY2006
Office or major program
enacted
request
House
Senate
enacted
Pension Benefit Guaranty
Corporation (PBGC)
0
0
0


0

Administration
PBGC program level (non-add)
266
297
297
297

Employment Standards Administration (ESA)
ESA Salaries and Expenses
401
416
416
413

ESA Special Benefits (mandatory)
233
237
237
237

ESA Special Benefits for Disabled
357
306
306
306

Coal Miners (mandatory)
ESA Energy Employees
Occupational Illness Compensation
40
96
96
96

Fund (mandatory)
ESA Black Lung Disability Trust
1,062
1,068
1,068
1,068

Fund (mandatory)
ESA subtotal
2,093
2,123
2,123
2,120

Occupational Safety and Health
464
467
477
477

Administration (OSHA)
Mine Safety and Health
279
280
280
280

Administration (MSHA)
Bureau of Labor Statistics
529
543
543
543

Office of Disability Employment
47
28
28
47

Policy
Departmental Management
International Labor Affairs
93
12
12
93

Veterans Employment and
223
224
229
224

Training
Departmental Management, other
297
304
299
301

Departmental Management
613
540
540
618

subtotal
Working Capital Fund
10
6
6
6

TOTALS, DEPARTMENT OF LABOR
Total appropriations b
15,322
14,724
14,801
15,045

Current year funding
12,778
12,212
12,264
12,508

One-year advance funding
2,544
2,512
2,537
2,537

Source: Funding details have been compiled from the July 18, 2005 table of the House Committee
on Appropriations. FY2005 amounts are post-reduction (see page 40) and based on P.L. 108-447.
a. Funding for the WIA Community College (Community-Based Job Training) program has been
provided through two line items: (1) directly through the WIA Community College line item;
and (2) indirectly as a set aside from the WIA Dislocated Worker Assistance National Reserve.
The FY2005 enacted appropriations and the FY2006 Senate bill, as reported, each require a set
aside of $125 million from the WIA Dislocated Worker Assistance National Reserve. The WIA
Community College “program level” amounts that are shown in this table combine these two
sources of funds to show the total amount available for the Community College program.
b. Appropriations totals include discretionary and mandatory funds, and may be subject to additional
scorekeeping and other adjustments.

CRS-17
Department of Health and Human Services
FY2005 discretionary appropriations for the Department of Health and Human
Services (HHS) were $63.8 billion. For FY2006, the budget request was $62.7
billion, $1.1 billion (1.7%) less than the FY2005 amount, as shown in Table 8. As
passed, the House bill would provide $63.2 billion for HHS discretionary activities
in FY2006; as reported, the Senate bill would provide $65.4 billion.
Table 8. Department of Health and Human Services
Discretionary Appropriations
($ in billions)
FY2005
FY2006
FY2006
FY2006
FY2006
Funding
enacted
request
House
Senate
enacted
Appropriations
$63.8
$62.7
$63.2
$65.4

Source: Amounts are based on the July 18, 2005 table of the House Committee on Appropriations.
FY2005 amounts are post-reduction (see page 40) and based on P.L. 108-447. Amounts represent
discretionary programs funded by L-HHS-ED appropriations; funds for mandatory programs are
excluded, as are funds for the Food and Drug Administration (FDA) and the Indian Health Service
(IHS), both of which are administered by HHS but funded through other appropriations bills.
Mandatory HHS programs included in the L-HHS-ED bill were funded at
$315.4 billion in FY2005, and consist primarily of Medicaid Grants to States ($182.3
billion), Payments to Medicare Trust Funds ($119.8 billion — virtually all of this
amount was for Part B Supplementary Medical Insurance), Foster Care and Adoption
($6.8 billion), Family Support Payments to States ($4.1 billion), and the Social
Services Block Grant ($1.7 billion).
Key Issues
President’s Request. The President’s FY2006 budget request for HHS
would increase support primarily for Health Centers and the administration of
Medicare and Medicaid. At the same time, it would reduce funding for various other
health and human resources programs, as indicated below.
Discretionary spending increases of at least $100 million were requested in the
President’s FY2006 budget for the following programs.
! Health Centers, funded at $1.7 billion in FY2005, would be
increased by $304 million under the President’s budget request.
! The National Institutes of Health (NIH), funded at $28.4 billion in
FY2005, would be increased by $145 million. The NIH supports
activities that maintain and improve health through medical science;
for additional information, please see CRS Report RL32799,
Federal Research and Development Funding: FY2006.
! The Centers for Medicare and Medicaid Services (CMS) Program
Management for the administration of the Medicare and Medicaid
programs, funded at $2.7 billion in FY2005, would be increased by
$512 million under the request.

CRS-18
! The Public Health and Social Services Emergency Fund (PHSSEF),
funded at $2.4 billion in FY2005, would be increased by $171
million. These funds are used primarily for bioterrorism activities.
Along with the increases proposed above, the President’s FY2006 budget would
decrease or terminate funding for several programs.
! Health Professions programs other than those for nursing, funded at
$299 million in FY2005, would be decreased by $288 million.
! Children’s Hospital Graduate Medical Education (CHGME), funded
at $301 million in FY2005, would be reduced by $101 million.
! The CDC, funded at $4.5 billion in FY2005, would be reduced by
$470 million, including elimination of the Preventive Health and
Health Services Block Grant (funded at $119 million in FY2005)
and a reduction to Building and Facilities of $240 million (funded
at $270 million in FY2005).
! Low-Income Home Energy Assistance Program (LIHEAP), funded
at $2.2 billion in FY2005, would be decreased by $182 million.
! Health Care-Related Facilities and Activities, funded at $483 million
in FY2005, would be eliminated; funds for this program were
earmarked for construction and renovation projects for designated
recipients.
! The Community Services Block Grant (CSBG), funded at $637
million in FY2005, would be eliminated.
House Proposal. For HHS programs, the House bill, as passed, differs from
the President’s budget request in several respects.
! Health Centers would receive $1.8 billion under the House bill, $204
million less than requested; it received $1.7 billion in FY2005.
! Children’s Hospital Graduate Medical Education (CHGME) would
receive $300 million, $100 million more than requested; it received
$301 million in FY2005.
! The Centers for Disease Control and Prevention (CDC) would
receive $5.9 billion, $1.9 billion more than requested, with most of
the increase provided for bioterrorism activities; the CDC received
$4.5 billion in FY2005.
! The Agency for Healthcare Research and Quality (AHRQ) would
receive a direct appropriation of $319 million; the request was for
$319 million in indirect appropriations from other HHS programs,
the same as was provided in FY2005.
! The CSBG would receive $320 million; no funds were requested,
and $637 million was provided in FY2005.
! The PHSSEF would receive $184 million, $2.4 billion less than the
request and $2.2 billion less than the FY2005 amount. However, the
House bill would directly appropriate $2.1 billion for bioterrorism
activities at the Health Resources and Services Administration
(HRSA) ($0.5 billion) and the CDC ($1.6 billion), appropriations
that in previous years would have been provided indirectly through
the PHSSEF for these activities.

CRS-19
Senate Proposal. For HHS programs, the Senate bill, as reported, differs
from the House bill by more than $100 million for several programs.
! Health Professions other than nursing would receive $298 million,
$251 million more than the House amount. The request was for $11
million; $299 million was provided in FY2005.
! Health Care-Related Facilities and Activities would receive $481
million. No funds would be provided under the House bill, and no
funds were requested; $483 million was provided in FY2005.
! NIH would be funded at $29.4 billion, $908 million more than the
House amount. The request was for $28.5 billion; $28.4 billion was
provided in FY2005.
! LIHEAP would be funded at $2.2 billion, $176 million more than
the House amount. The request was for $2.0 billion; $2.2 billion
was provided in FY2005.
! The CSBG would be funded at $637 million, $317 million more
than the House amount. No funds were requested, $637 million was
provided in FY2005.
Abortion: Funding Restrictions. Annual L-HHS-ED appropriations
regularly contain restrictions that limit — for one year at a time — the circumstances
under which federal funds can be used to pay for abortions. Restrictions on
appropriated funds, popularly referred to as the “Hyde Amendments,” generally apply
to all L-HHS-ED funds. Medicaid is the largest program affected. Given the
perennial volatility of this issue, these provisions may be revisited at any time during
the annual consideration of L-HHS-ED appropriations. From FY1977 to FY1993,
abortions could be funded only when the life of the mother was endangered. The
103rd Congress modified the provisions to permit federal funding of abortions in
cases of rape or incest. The FY1998 L-HHS-ED appropriations, P.L. 105-78,
extended the Hyde provisions to prohibit the use of federal funds to buy managed
care packages that include abortion coverage, except in the cases of rape, incest, or
life endangerment. The FY1999 L-HHS-ED appropriations, P.L. 105-277, continued
the FY1998 Hyde Amendments with two added provisions: (1) a clarification to
ensure that the restrictions apply to all trust fund programs (namely, Medicare), and
(2) an assurance that Medicare + Choice plans cannot require the provision of
abortion services. No changes were made from FY2000 through FY2004. The
FY2005 L-HHS-ED appropriations, P.L. 108-447 (H.Rept. 108-792, p. 1271), added
an additional restriction, popularly referred to as the “Weldon Amendment,” that
prevents federal programs or state or local governments that receive L-HHS-ED
funds from requiring health care entities to provide or pay for abortions or abortion
services. The current provisions can be found in §507 and §508 of Division F, P.L.
108-447. For additional information, please see CRS Issue Brief IB95095, Abortion:
Legislative Response
.
Embryonic Stem Cell Research: Funding Restrictions. On August 9,
2001, President Bush announced a decision to use federal funds for research on
human embryonic stem cells for the first time, but limited the funding to “existing
stem cell lines.” Embryonic stem cells have the ability to develop into virtually any
cell in the body, and have the potential to treat medical conditions such as diabetes
and Parkinson’s disease. In response to the President’s announcement, the NIH

CRS-20
developed a registry of 78 embryonic stem cell lines eligible for use in federally
funded research. However, many of these lines were found to be unavailable or
unsuitable for research; only 22 of the 78 eligible stem cell lines are currently
available for general research purposes. Some scientists are concerned about the
quality, longevity, and availability of eligible stem cell lines. Many believe that the
advancement of research requires new stem cell lines, possibly including stem cells
derived from cloned embryos. The use of stem cells, however, raises ethical issues
regarding embryo and fetal tissue research because the embryos are destroyed in
order to obtain the cells. Given its potential volatility, the issue may be revisited at
any time during the annual consideration of L-HHS-ED appropriations.
An FY1996 appropriations continuing resolution, P.L. 104-99 (§128), prohibited
NIH funds from being used for the creation of human embryos for research purposes
or for research in which human embryos are destroyed. Since FY1997, annual
appropriations acts have extended the prohibition to all L-HHS-ED funds, with the
NIH as the agency primarily affected. The restriction, originally introduced by
Representative Jay Dickey, has not changed significantly since it was first enacted,
and the FY2005 L-HHS-ED appropriations continued the restrictions without change.
The current provision can be found in §509 of the FY2005 L-HHS-ED
appropriations, Division F of P.L. 108-447. For additional information, please see
CRS Report RL31015, Stem Cell Research; CRS Report RL31358, Human Cloning;
and CRS Report RS21044, Background and Legal Issues Related to Stem Cell
Research
.
CRS Products
CRS Issue Brief IB95095, Abortion: Legislative Response, by Karen J. Lewis and
Jon O. Shimabukuro.
CRS Report RL30731, AIDS Funding for Federal Government Programs:
FY1981-FY2006, by Judith A. Johnson and Sharon Coleman.
CRS Report 98-476, AIDS: Ryan White CARE Act, by Judith A. Johnson and
Paulette C. Morgan.
CRS Report RL30785, The Child Care and Development Block Grant: Background
and Funding, by Melinda Gish.
CRS Report RL32872, Community Services Block Grants (CSBG): Funding and
Reauthorization, by Karen Spar and Garrine P. Laney.
CRS Report RL32046, Federal Health Centers Program, by Sharon Kearney
Coleman.
CRS Report RL32799, Federal Research and Development Funding: FY2006, by
Michael E. Davey.
CRS Report RL30952, Head Start: Background and Issues, by Melinda Gish.
CRS Report RL31865, The Low-Income Home Energy Assistance Program
(LIHEAP): Program and Funding, by Emilie Stoltzfus.
CRS Report 97-350, Maternal and Child Health Block Grant, by Sharon Kearney
Coleman.
CRS Report RL31336, Older Americans Act: Programs and Funding, by Carol
O’Shaughnessy and updated by Angela Napili.
CRS Report RL31719, An Overview of the U.S. Public Health System in the Context
of Emergency Preparedness, by Sarah A. Lister.

CRS-21
CRS Report RL31940, Public Health Service Operating Agencies, by Sharon
Kearney Coleman.
CRS Report RL31015, Stem Cell Research, by Judith A. Johnson and Erin D.
Williams.
CRS Report 97-1048, The Title X Family Planning Program, by Sharon Kearney
Coleman.
Websites
Department of Health and Human Services
[http://www.hhs.gov]
[http://www.hhs.gov/budget/document.htm]
Detailed Appropriations Table
Table 9 shows the appropriations details for offices and major programs of
HHS.

CRS-22
Table 9. Detailed Department of Health and
Human Services Appropriations
($ in millions)
FY2005
FY2006
FY2006
FY2006
FY2006
Office or major program
enacted
request
House
Senate
enacted
Public Health Service (PHS)
Health Resources and Services Administration (HRSA)
Health Centers
1,734
2,038
1,834
1,839

Healthy Community Access
83
0
0
60

National Health Service Corps
131
127
127
127

Health Professions, Nursing
151
150
150
156

Health Professions, other
299
11
47
298

Health Professions subtotal
450
161
197
454

Children’s Hospital Graduate
301
200
300
300

Medical Education
Maternal and Child Health Block
724
724
700
710

Grant
Ryan White AIDS Programs
2,048
2,058
2,058
2,058

Family Planning (Title X)
286
286
286
286

Health Care-Related Facilities and
483
0
0
481

Activities
Vaccine Injury Compensation Trust
66
71
71
71

Fund (mandatory)
HRSA, other, including bioterrorism
activities a
569
378
948
1,090

HRSA subtotal
6,875
6,043
6,521
7,476

Centers for Disease Control and
Prevention (CDC) a, b
4,511
4,041
5,946
5,989

National Institutes of Health (NIH) c
28,365
28,510
28,507
29,415

Substance Abuse and Mental Health
Services Administration
411
411
411
411

(SAMHSA) Mental Health Block
Grant
SAMHSA Substance Abuse Block
1,696
1,696
1,696
1,696

Grant
SAMHSA, other
1,161
1,108
1,124
1,155

SAMHSA subtotal
3,268
3,215
3,231
3,262

Agency for Healthcare Research and
0
0
319
0

Quality (AHRQ)
AHRQ program level (non-add)
319
319
319
324

PHS subtotal
43,019
41,809
44,524
46,142

Centers for Medicare and Medicaid Services (CMS)
Medicaid Grants to States
182,296
219,738
219,738
219,738

(mandatory)
Payments to Medicare Trust Funds
119,826
177,822
177,742
177,822

(mandatory)
CMS Program Management
2,665
3,177
3,180
3,203

Fraud and Abuse Control initiative
0
80
0
80

CMS subtotal
304,787
400,817
400,660
400,843


CRS-23
FY2005
FY2006
FY2006
FY2006
FY2006
Office or major program
enacted
request
House
Senate
enacted
Administration for Children and Families (ACF)
Family Support Payments to States
4,090
4,270
4,270
4,270

(mandatory)
Low Income Home Energy
2,182
2,000
2,007
2,183

Assistance Program (LIHEAP)
Refugee and Entrant Assistance
485
571
561
571

Child Care and Development Block
2,083
2,083
2,083
2,083

Grant (CCDBG)
Social Services Block Grant
1,700
1,700
1,700
1,700

(Title XX) (mandatory)
Head Start
6,854
6,888
6,899
6,874

Child Welfare Services
290
290
290
290

Developmental Disabilities
169
169
171
172

Community Services Block Grant
637
0
320
637

Battered Women’s Shelters
126
126
126
126

Abstinence Education
99
138
110
101

Other Children and Family Services
832
766
773
801

Promoting Safe and Stable Families
305
305
305
305

(PSSF) (mandatory)
PSSF (discretionary)
99
105
99
90

Foster Care and Adoption
6,805
6,583
6,583
6,583

Assistance (mandatory)
ACF subtotal
26,757
25,994
26,296
26,785

Administration on Aging (AOA)
1,393
1,369
1,376
1,392

Office of the Secretary
Medical Benefits, Commissioned
331
329
329
329

Officers (mandatory)
Public Health and Social Service
Emergency Fund (PHSSEF) a
2,407
2,578
184
184

Office of the Secretary, other
507
588
525
541

Office of the Secretary subtotal
3,245
3,495
1,038
1,054
TOTALS, DEPARTMENT OF HEALTH AND HUMAN SERVICES
Total appropriations d
379,201
473,485
473,893
476,217

Current year funding
311,100
406,382
406,779
409,114

One-year advance funding
68,101
67,103
67,114
67,103

Source: Funding details have been compiled from the July 18, 2005 table of the House Committee
on Appropriations. FY2005 amounts are post-reduction (see page 40) and based on P.L. 108-447.
Note: Two HHS agencies are funded in their entirety through other appropriations. The Food and
Drug Administration (FDA) is funded in Agriculture appropriations ($1.5 billion in FY2005), and the
Indian Health Service (IHS) is funded in Interior appropriations ($3.0 billion in FY2005).
a. For FY2006, the House and Senate amounts for bioterrorism would be distributed directly to
HRSA, CDC, and NIH rather than indirectly through the PHSSEF.
b. The Veterans Affairs and Housing and Urban Development (VA-HUD) appropriations provided
additional funding of $76 million for the CDC in FY2005.
c. The VA-HUD appropriations provided additional funding of $80 million for the NIH in FY2005.
d. Appropriations totals include discretionary and mandatory funds, and may be subject to additional
scorekeeping and other adjustments.

CRS-24
Department of Education
FY2005 discretionary appropriations for the Department of Education (ED)
were $56.6 billion. For FY2006, the budget request was $56.2 billion, $0.4 billion
(0.7%) less than the FY2005 amount, as shown in Table 10. As passed, the House
bill would provide $56.7 billion for ED discretionary activities in FY2006; as
reported, the Senate bill would provide $56.7 billion as well.
Table 10. Department of Education Discretionary
Appropriations
($ in billions)
FY2005
FY2006
FY2006
FY2006
FY2006
Funding
enacted
request
House
Senate
enacted
Appropriations
$56.6
$56.2
$56.7
$56.7

Source: Amounts are based on the July 18, 2005 table of the House Committee on Appropriations.
FY2005 amounts are post-reduction (see page 40) and based on P.L. 108-447. Amounts represent
discretionary programs funded by L-HHS-ED appropriations; funds for mandatory programs are
excluded.
A single mandatory ED program is included in the L-HHS-ED bill; the
Vocational Rehabilitation State Grants program was funded at $2.6 billion in
FY2005.
Key Issues
President’s Request. Increasing federal support for education has been a
priority of both Congress and the White House in recent years. Under the FY2006
budget request, funding for several programs would be increased, and 14 new
education programs were proposed; however, the President’s request would also
eliminate the funding for 48 existing programs.
Discretionary spending increases of at least $100 million in FY2006 were
requested by the President for the following programs.
! Elementary and Secondary Education Act of 1965 (ESEA)
programs, funded in aggregate at $24.4 billion in FY2005, would be
increased by $974 million in the President’s FY2006 budget request
— see discussion below of ESEA funding shortfall.
! The ESEA Title I, Part A Grants to Local Educational Agencies
(LEAs) program, funded at $12.7 billion in FY2005, would be
increased by $602 million.
! The Striving Readers program, funded at $25 million in FY2005,
would be increased by $175 million.
! The Special Education Part B Grants to States program under the
Individuals with Disabilities Education Act (IDEA), funded at $10.6
billion in FY2005, would be increased by $508 million — see
discussion below of IDEA funding shortfall.

CRS-25
! The Pell Grants program, funded at $12.4 billion in FY2005, would
be increased by $834 million. The maximum award would be
increased by $100 to $4,150 in FY2006 — see discussion below of
Pell Grants funding.
! Student Aid Administrative Costs, funded at $119 million in
FY2005, would be increased by $820 million in a proposal to unify
the administration of all student aid activities in a single account.
The increase would be offset in part by a proposed savings of $625
million through the consolidation of certain related expenses
currently counted elsewhere.
! A High School Intervention initiative was proposed with initial
funding of $1.2 billion.
! A High School Assessments initiative was proposed with initial
funding of $250 million.
! A Teacher Incentive Fund initiative was proposed with initial
funding of $500 million.
Along with the increases proposed above, the President’s FY2006 budget would
decrease funding for several programs and eliminate funding for others. The March
16, 2005 table of the House Committee on Appropriations listed 38 line items for
education programs that were funded for FY2005 but with no FY2006 funds
requested; the ED Budget Service published a more detailed list with 48 programs
that were funded in FY2005 but with no FY2006 funds requested, at
[http://www.ed.gov/about/overview/budget/budget06/summary/edlite-section3.html].
! The Fund for the Improvement of Education (FIE), funded at $414
million in FY2005, would be reduced by $258 million.
! Adult Education, funded at $585 million in FY2005, would be
reduced by $369 million.
! The Fund for the Improvement of Postsecondary Education (FIPSE),
funded at $162 million in FY2005, would be decreased by $140
million.
! TRIO programs, funded at $837 million in FY2005, would be
reduced by $468 million.
! The Even Start program, funded at $225 million in FY2005, would
be terminated.
! Comprehensive School Reform, funded at $205 million in FY2005,
would be eliminated.
! Educational Technology State Grants, funded at $496 million in
FY2005, would be eliminated.
! Safe and Drug-Free Schools State Grants, funded at $437 million in
FY2005, would be eliminated.
! The Perkins Vocational Education program, funded at $1.3 billion
in FY2005, would be terminated.
! GEAR UP, funded at $306 million in FY2005, would be eliminated.
House Proposal. For ED programs, the House bill, as passed, differs from
the President’s budget request in several respects.

CRS-26
! ESEA programs in aggregate would receive $23.6 billion under the
House bill, $1.8 billion less than requested; they were funded at
$24.4 billion in FY2005.
! The ESEA Title I, Part A Grants to LEAs program would receive
$12.8 billion from the House bill, $502 million less than requested;
it received $12.7 billion in FY2005.
! Even Start would receive $200 million; no funds were requested. It
received $225 million in FY2005.
! Striving Readers would receive $30 million, $170 million less than
requested; the program was funded at $25 million in FY2005.
! The High School Intervention initiative would not be funded; $1.2
billion was requested.
! Educational Technology State Grants would be funded at $300
million; no funds were requested. The program received $496
million in FY2005.
! The High School Assessments initiative would not be funded; $250
million was requested.
! FIE would receive $27 million, $129 million less than requested; it
received $414 million in FY2005.
! Safe and Drug-Free Schools State Grants would receive $400
million; no funds were requested. The program received $437
million in FY2005.
! The Special Education Part B Grants to States program under IDEA
would receive $10.7 billion, $358 million less than requested; the
program was funded at $10.6 billion in FY2005.
! The Perkins Vocational Education program would receive $1.3
billion; no funds were requested. It was funded at $1.3 billion in
FY2005.
! Adult Education would receive $585 million, $369 million more
than requested; it was funded at $585 million in FY2005.
! Pell Grants would receive $13.4 billion, $184 million more than
requested; it received $12.4 billion in FY2005. The maximum Pell
award would be $4,100, $50 less than requested; the FY2005
maximum was $4,050.
! The Pell Grants accumulated shortfall from prior year awards,
currently estimated at $4.3 billion, would be retired under the
provisions of §305 of the House bill, pursuant to §303 of
H.Con.Res. 95, the FY2006 congressional budget resolution.
! Student Aid Administrative Costs would receive $124 million, $815
million less than requested; it was funded at $119 million in
FY2005. The House bill would not agree to the budget proposal to
unify student aid administrative activities in a single account, nor
would it agree to the consolidation of related expenses currently
counted elsewhere for a proposed savings of $625 million.
! TRIO programs would receive $837 million; $468 million more than
requested. TRIO was funded at $837 million in FY2005.
! GEAR UP would receive $306 million; no funds were requested. It
received $306 million in FY2005.

CRS-27
Senate Proposal. For ED programs, the Senate bill, as reported, differs from
the House bill by more than $100 million for several programs.
! Even Start would not be funded; the House bill would provide $200
million. No funds were requested; $225 million was provided in
FY2005.
! Educational Technology State Grants would receive $425 million,
$125 million more than the House amount. No funds were
requested; $496 million was provided in FY2005.
! FIE would receive $418 million, $391 million more than the House
amount. The request was for $156 million; $414 million was
provided in FY2005.
! The Teacher Incentive Fund initiative would not be funded; the
House would provide $100 million. The request was for $500
million to initiate this activity.
! Safe and Drug-Free Schools State Grants would be funded at $300
million, $100 million less than the House amount. No funds were
requested; $437 million was provided in FY2005.
! Pell Grants would receive $13.2 billion, $206 million less than the
House amount. The request was for $13.2 billion; $12.4 billion was
provided in FY2005. The maximum Pell award would remain the
same at $4,050, or $50 less than would be provided by the House,
and $100 less than requested.
! FIPSE would be funded at $162 million, $113 million more than the
House amount. The request was for $22 million; $162 million was
provided in FY2005.
ESEA Funding Shortfall? Since the enactment of the No Child Left Behind
Act of 2001 (NCLBA), P.L. 107-110, which amended the ESEA among other
programs, there has been a continuing discussion regarding the appropriations
“promised” and the resulting “shortfall” when the enacted appropriations are
compared to authorization levels. Some would contend that the ESEA authorizations
of appropriations, as amended by NCLBA, represent a funding commitment that was
promised in return for legislative support for the new administrative requirements
placed on state and local educational systems. They would contend that the
authorized levels are needed for implementing the new requirements, and that the
differences between promised and actual funding levels represent a shortfall of
billions of dollars. The FY2005 appropriation was $9.1 billion less than the amount
authorized for the five ESEA programs for which a FY2005 authorization is
specified. Others would contend that the authorized funding levels represent no more
than appropriations ceilings, and as such are no different from authorizations for
most education programs. That is, when the authorization amount is specified, it
represents only a maximum amount, with the actual funding level to be determined
during the regular annual appropriations process. In the past, education programs
with specified levels of authorization generally have been funded at lower levels; few
have been funded at levels equal to or higher than the specified authorization amount.
For additional information, please see CRS Report RS21947, K-12 Education
Programs: Funding Summary
.

CRS-28
IDEA Funding Shortfall? From 1975 to 2004, the IDEA Part B Grants to
States program authorized state payments up to a maximum amount of 40% of the
national average per-pupil expenditure (APPE) times the number of children with
disabilities ages 3 through 21 that each state serves. Appropriations have never been
sufficient to reach the 40% level. In 2004, Congress addressed the authorization
issue in P.L. 108-446, which specified authorization ceilings for Part B Grants to
States for FY2005 through FY2011. The Part B Grants to States authorization is
$12,358,376,571 for FY2005 and $14,648,647,143 for FY2006. The FY2005
appropriation is $10,589,746,000, or $1,768,630,571 less than the authorization. The
FY2006 budget request is $11,097,746,000, or $3,550,901,143 less than the
authorization. As with ESEA and NCLBA, some view these differences as funding
shortfalls, while others see the maximum federal share and the specified
authorizations as nothing more than appropriation ceilings. For additional
information, please see CRS Report RL32085, Individuals with Disabilities
Education Act (IDEA): Current Funding Trends
.
Pell Grants. The funding level for Pell Grants has been a continuing issue.
The program provides assistance to eligible undergraduate students based on
financial need. Aggregate program costs depend largely on the maximum award and
the number of eligible recipients. The maximum award is currently set when
appropriations are enacted, which is usually before the start of the program year. The
exact number and total amount of the Pell awards cannot be determined until all
students have claimed an award. Generally, the number of recipients and the amount
of the Pell awards are not reconciled until the end of the program year, which occurs
after the following year’s appropriations have been enacted. Appropriations for Pell
Grants make funds available for two full fiscal years to provide administrative
flexibility regarding potential shortfalls and surpluses. If the costs of the Pell Grant
program exceed the current fiscal year’s appropriation, the shortfall is covered by
using appropriated monies from the next fiscal year. Similarly, a surplus can be
carried forward and used in the following year. As of July 18, 2005, the ED Budget
Service has estimated that the FY2005 shortfall will be $4.3 billion. For FY2006, the
Administration proposes legislation that would recall the federal share of the Perkins
Loan program and use $4.3 billion of the proceeds to eliminate the current Pell
Grants shortfall. For additional information, please see CRS Report RL31668,
Federal Pell Grant Program of the Higher Education Act: Background and
Reauthorization
.
Forward Funding and Advance Appropriations. Most appropriations
are available for obligation during the federal fiscal year of the appropriations bill.
For example, most funds from the FY2006 appropriations bill will be available for
spending from October 1, 2005, through September 30, 2006. Several L-HHS-ED
programs, including some of the larger ED programs, have authorization or
appropriations provisions that allow funding flexibility for program years that differ
from the federal fiscal year. For example, many of the elementary and secondary
education formula grant programs receive appropriations that become available for
obligation to the states on July 1 of the same year as the appropriations, and remain
available for 15 months through the end of the following fiscal year. That is, FY2006
appropriations for some programs will became available for obligation to the states
on July 1, 2006, and will remain available until September 30, 2007. This budgetary

CRS-29
procedure is popularly known as “forward” or “multi-year” funding, and is
accomplished through funding provisions in the L-HHS-ED appropriations bill.
Forward funding in the case of elementary and secondary education programs
was designed to allow additional time for school officials to develop budgets in
advance of the beginning of the school year. For Pell Grants for undergraduates,
however, aggregate program costs for individual students applying for postsecondary
educational assistance cannot be known with certainty ahead of time. Appropriations
from one fiscal year primarily support Pell Grants during the following academic
year, that is, the FY2006 appropriations would be used primarily to support grants
for the 2006-2007 academic year. Unlike elementary and secondary education
programs, however, the funds for Pell Grants remain available for obligation for two
full fiscal years, as discussed above.
An advance appropriation occurs when the appropriation is provided for a
fiscal year beyond the fiscal year for which the appropriation was enacted. In the
case of FY2006 appropriations, funds normally would become available October 1,
2005, under regular funding provisions, but will not become available until July 1,
2006, under the forward funding provisions discussed above. However, if the July
1, 2006 forward funding date were to be postponed for obligation by three months
— until October 1, 2006 — the appropriation would be reclassified as an advance
appropriation since the funds would become available only in a subsequent fiscal
year
, FY2007. For example, the FY2006 budget request for Title I, Part A Grants to
LEAs for the Education for the Disadvantaged was $13.3 billion. This amount
includes not only forward funding of $5.9 billion (to become available July 1, 2006),
but also an advance appropriation of $7.4 billion (to become available October 1,
2006). Like forward funding provisions, these advance appropriations are specified
through provisions in the annual appropriations bill.
What is the impact of these changes in funding provisions? At the
appropriations level, there is no difference between forward funded and advance
appropriations except for the period available for obligation. At the program or
service level, relatively little is changed by the three-month delay in the availability
of funds, since most expenditures for a standard school year occur after October 1.
At the scorekeeping level, however, a significant technical difference occurs because
forward funding is counted as part of the current fiscal year, and is therefore fully
included in the current 302(b) allocation for discretionary appropriations. Under
federal budget scorekeeping rules, an advance appropriation is not counted in the
302(b) allocation until the following year. In essence, a three-month change from
forward funding to an advance appropriation for a given program allows a one-time
shift from the current year to the next year in the scoring of discretionary
appropriations. For additional information, please see CRS Report RS20441,
Advance Appropriations, Forward Funding, and Advance Funding, and CRS Report
98-720, Manual on the Federal Budget Process.

CRS-30
CRS Products
CRS Report RL32867, Adult Education and Literacy: Overview and
Reauthorization Proposals of the 109th Congress, by Paul M. Irwin.
CRS Report RL31618, Campus-Based Student Financial Aid Programs Under the
Higher Education Act, by David Smole.
CRS Report RL31747, The Carl D. Perkins Vocational and Technical Education Act
of 1998: Background and Implementation, by Rebecca R. Skinner and Richard
N. Apling.
CRS Report RL31487, Education for the Disadvantaged: Overview of ESEA Title
I-A Amendments Under the No Child Left Behind Act, by Wayne Riddle.
CRS Report RS21483, Education Technology Programs, Title II, Part D of the
Elementary and Secondary Education Act, by Charmaine Mercer.
CRS Report RL30448, Even Start Family Literacy Programs: An Overview, by Gail
McCallion and Wayne Riddle.
CRS Report RL31668, Federal Pell Grant Program of the Higher Education Act:
Background and Reauthorization, by Charmaine Mercer.
CRS Report RL31885, Impact Aid for Public K-12 Education: General Overview
and Current Status, by Rebecca R. Skinner and Richard A. Apling.
CRS Report RL32085, Individuals with Disabilities Education Act (IDEA): Current
Funding Trends, by Richard N. Apling.
CRS Report RS22138, The Individuals with Disabilities Education Act (IDEA):
Overview of P.L. 108-446, by Nancy Lee Jones and Richard Apling.
CRS Report RS21947, K-12 Education Programs: Appropriations Summary, by
Paul M. Irwin.
CRS Report RL32923, Federal Pell Grants: Implications of Increasing the
Maximum Award, by Charmaine Mercer.
CRS Report RL31241, Reading First and Early Reading First: Background and
Funding, by Gail McCallion.
CRS Report RS20532, The Safe and Drug-Free Schools and Communities Act:
Reauthorization and Appropriations, by Edith Fairman Cooper.
CRS Report RL31622, Trio and GEAR UP Programs: Status and Issues, by Jeffrey
J. Kuenzi.
CRS Report RL31240, 21st Century Community Learning Centers in P.L. 107-110:
Background and Funding, by Gail McCallion.
Websites
Department of Education
[http://www.ed.gov/index.jhtml]
[http://www.ed.gov/about/overview/budget/budget06/index.html]
Detailed Appropriations Table
Table 11 shows the appropriations details for offices and major programs of
ED.

CRS-31
Table 11. Detailed Department of Education Appropriations
($ in millions)
FY2005
FY2006
FY2006
FY2006
FY2006
Office or major program
enacted
request
House
Senate
enacted
Total Elementary and Secondary
24,353
25,327
23,550
23,601

Education Act (non-add)
Title I, Part A Education for the
12,740
13,342
12,840
12,840

Disadvantaged, Grants to LEAs
Even Start
225
0
200
0

Reading First State Grants
1,042
1,042
1,042
1,042

Striving Readers
25
200
30
35

High School Intervention
0
1,240
0
0

Comprehensive School Reform
205
0
10
0

Education for the Disadvantaged,
607
607
607
608

other
Impact Aid
1,244
1,241
1,241
1,241

Teacher Quality State Grants
2,917
2,917
2,917
2,917

Mathematics and Science
179
269
190
179

Partnerships
Innovative Education Block Grant
198
100
198
100

Educational Technology State
496
0
300
425

Grants
21st Century Community Learning
991
991
991
991

Centers
State Assessments
412
412
412
412

High School Assessments Initiative
0
250
0
0

Rural Education
171
171
171
171

School Improvement, other
256
222
215
263

Indian Education
120
120
120
120

Charter School Grants
217
219
217
217

Fund for the Improvement of
414
156
27
418

Education (FIE)
Teacher Incentive Fund initiative
0
500
100
0

Innovation and Improvement, other
462
433
365
422

Safe and Drug-Free Schools State
437
0
400
300

Grants
Safe Schools and Citizenship, other
424
397
364
421

English Language Acquisition State
676
676
676
676

Grants
IDEA Special Education, Part B,
10,590
11,098
10,740
10,690

Grants to States
IDEA Special Education, other
1,084
1,028
1,074
1,084

Vocational Rehabilitation State
2,636
2,720
2,720
2,720

Grants (mandatory)
Rehabilitation Services, other
439
339
409
414

Special Institutions for Persons
177
176
181
184

With Disabilities
Perkins Vocational Education
1,326
0
1,312
1,309

Adult Education
585
216
585
585

Vocational and Adult, other
100
0
95
5


CRS-32
FY2005
FY2006
FY2006
FY2006
FY2006
Office or major program
enacted
request
House
Senate
enacted
Student Financial Aid
Pell Grants, maximum award (in
4,050
4,150
4,100
4,050

dollars, non-add)
Pell Grants
12,365
13,199
13,383
13,177

Enhanced Pell Grants
0
33
0
0

Pell Grants accumulated shortfall
elimination, §305 (mandatory) a
0
0
4,300
4,300

Supplemental Educational
779
779
779
805

Opportunity Grants
Federal Work-Study
990
990
990
990

Federal Perkins Loans
66
0
66
66

Math and Science Scholars
0
50
0
0

Leveraging Educational Assistance
66
0
66

66

Partnership (LEAP)
Student Aid Administrative Costs
119
939
124
120

Direct Student Loan
0
-625
0


0

Reclassification proposal
Short-term Training Loans
0
11
0
0

Office of Postsecondary Education (OPE)
Aid for Institutional Development
508
506
506
511

Fund for the Improvement of
162
22
49
162

Postsecondary Education (FIPSE)
TRIO Programs
837
369
837
837

GEAR UP
306
0
306
306

Higher Education, other
304
305
239
289

Howard University
239
239
241
239

Institute of Education Sciences
523
479
523
523

Departmental Management
556
560
551
560

TOTALS, DEPARTMENT OF EDUCATION
Total Appropriations a, b
59,213
58,939
63,707
63,741

Current year funding
44,191
43,917
48,685
48,707

One-year advance funding
15,022
15,022
15,022
15,034

Source: Funding details have been compiled from the July 18, 2005 table of the House Committee
on Appropriations. FY2005 amounts are post-reduction (see page 40) and based on P.L. 108-447.
a. Section 305 of the House bill, as passed, and the Senate bill, as reported, would appropriate $4.3
billion to eliminate the Pell Grants shortfall. These amounts are shown in this table and its
totals. The July 18, 2005 table includes the $4.3 billion for the House proposal but not an
amount for comparable Senate provision.
b. Appropriations totals include discretionary and mandatory funds, and are subject to additional
scorekeeping and other adjustments.

CRS-33
Related Agencies
FY2005 discretionary appropriations for L-HHS-ED related agencies were $11.1
billion. For FY2006, the budget request was $11.2 billion, $0.1 billion (1.0%) more
than the FY2005 amount, as shown in Table 12. As passed, the House bill would
provide $11.5 billion for related agency discretionary activities in FY2006; as
reported, the Senate bill would provide $11.7 billion.
Table 12. Related Agencies Discretionary Appropriations
($ in billions)
FY2005
FY2006
FY2006
FY2006
FY2006
Funding
enacted
request
House
Senate
enacted
Appropriations
$11.1
$11.2
$11.5
$11.7

Source: Amounts are based on the July 18, 2005 table of the House Committee on Appropriations.
FY2005 amounts are post-reduction (see page 40) and based on P.L. 108-447. Amounts represent
discretionary programs funded by L-HHS-ED appropriations; funds for mandatory programs are
excluded.
Mandatory programs for related agencies included in the L-HHS-ED bill were
funded at $36.6 billion in FY2005, virtually all of it for the Supplemental Security
Income (SSI) program.
Key Issues
President’s Request. The President’s FY2006 budget for related agencies
would change discretionary spending by at least $100 million for several programs.
! Social Security Administration (SSA) Administrative Expenses,
funded at $5.7 billion in FY2005, would be increased by $748
million under the President’s FY2006 budget request.
! The SSA Medicare Reform Fund to begin implementation of the
Medicare prescription drug program enacted by P.L. 108-173,
funded at $446 million in FY2005, would be eliminated; funding for
the continuing responsibilities of SSA for Medicare are required to
be counted under regular SSA Administrative Expenses beginning
in FY2006.
! The Corporation for Public Broadcasting (CPB) has been provided
with a two-year advance appropriation in recent years; however, the
President’s FY2006 budget did not request FY2008 funds for CPB.
The CPB has been funded at $400 million for FY2007 (enacted as
part of the FY2005 L-HHS-ED appropriations), $400 million for
FY2006 (enacted in FY2004), and $387 million for FY2005
(enacted in FY2003).
House Proposal. For the related agencies of the L-HHS-ED bill, the House
bill, as passed, differs from the President’s budget request in several respects.

CRS-34
! SSA Administrative Expenses would receive $6.4 billion under the
House bill, $108 million less than requested; these activities were
funded at $5.7 billion in FY2005.
! The CPB two-year advance appropriation for FY2008 would be
funded at $400 billion under the House bill; no funds were
requested. The FY2007 amount (enacted in the FY2005 L-HHS-ED
appropriations) is $400 million.
! The House bill would make no changes to the FY2006 CPB
appropriation of $400 million. A rescission of $10 million was
requested. The House bill, as reported by committee, would have
made an FY2006 rescission of $100 million.
Senate Proposal. For the related agencies, the Senate bill, as reported,
differs from the House bill by more than $100 million for two programs.
! Supplemental Security Income (SSI) discretionary activities would
receive $2.7 billion, $187 million less than the House amount. The
request was for $2.9 billion; $3.0 billion was provided in FY2005.
! SSA Administrative Expenses would receive $6.6 billion, $236
million more than the House amount. The request was for $6.5
billion; $5.7 billion was provided in FY2005.
CRS Products
CRS Report RS20420, AmeriCorps and Other Service Programs: Description and
Funding Levels, by Ann Lordeman.
CRS Report RS22168, The Corporation for Public Broadcasting: Federal Funding
Facts and Status, by Glenn J. McLoughlin.
CRS Report RL31320, Federal Aid to Libraries in the Museum and Library Services
Act of 2003, by Gail McCallion.
CRS Issue Brief IB98048, Social Security Reform, by Dawn Nuschler.
CRS Report 94-486, Supplemental Security Income (SSI): A Fact Sheet, by April
Grady.
CRS Report RS20419, VISTA and the Senior Volunteer Service Corps: Description
and Funding Levels, by Ann Lordeman.
Websites
Note: Not all of the websites for the related agencies of L-HHS-ED appropriations
include FY2006 budget information.
Committee for Purchase From People Who Are Blind or Severely Disabled
[http://www.jwod.gov/jwod/index.html]
Corporation for National and Community Service
[http://www.cns.gov]
[http://www.cns.gov/about/budget/index.html]

CRS-35
Corporation for Public Broadcasting
[http://www.cpb.org]
[http://www.cpb.org/about/funding/appropriation.html]
Federal Mediation and Conciliation Service
[http://www.fmcs.gov/internet/]
Federal Mine Safety and Health Review Committee
[http://www.fmshrc.gov/]
Institute of Museum and Library Services
[http://www.imls.gov]
Medicare Payment Advisory Commission
[http://www.medpac.gov/]
National Commission on Libraries and Information Science
[http://www.nclis.gov/]
National Council on Disability
[http://www.ncd.gov/]
National Labor Relations Board
[http://www.nlrb.gov/nlrb/home/default.asp]
National Mediation Board
[http://www.nmb.gov/]
Occupational Health and Safety Review Commission
[http://www.oshrc.gov/]
Railroad Retirement Board
[http://www.rrb.gov]
[http://www.rrb.gov/BFO/Justbudgettoc06.htm]
Social Security Administration
[http://www.ssa.gov]
[http://www.ssa.gov/budget/]
Detailed Appropriations Table
Table 13 shows the appropriations details for offices and major programs of the
L-HHS-ED related agencies.

CRS-36
Table 13. Detailed Related Agencies Appropriations
($ in millions)
FY2005
FY2006
FY2006
FY2006
FY2006
Office or major program
enacted
request
House
Senate
enacted
Committee for Purchase From
People Who Are Blind or
5
5
5


5

Severely Disabled
Corporation for National and Community Service (CNCS) a
CNCS Domestic Volunteer Service Programs (DVSP)
Volunteers in Service to America
94
96
96
96

(VISTA)
National Senior Volunteer Corps
216
220
220
220


DVSP, other
44
44
42


0

DVSP subtotal
354
360
358
316

CNCS National and Community Service Programs (NCSP)
National Service Trust
143
146
146
149

AmeriCorps Grants
288
275
268
280

NCSP, other
111
107
104
117

NCSP subtotal
542
528
518
546

CNCS, other
31
33
33
73

CNCS subtotal
927
921
909
935

Corporation for Public
Broadcasting (CPB), two-year
400
0
400
400

Advance for FY2008 (current
request) with FY2007 comparable
CPB advance for FY2007 with
400
0
400
400

FY2006 comparable (non-add)
CPB advance for FY2006 with
387
0
400
400

FY2005 comparable (non-add)
CPB rescission of FY2006 funds
0
-10
0


0

(non-add)
CPB Digitalization Program
39
0
0
35

CPB Interconnection
40
0
0
40

Federal Mediation and
44
42
42
43

Conciliation Service
Federal Mine Safety and Health
8
8
8


8

Review Committee
Institute of Museum and Library
Services (IMLS) c
281
262
250
290

Medicare Payment Advisory
10
10
10
10

Commission
National Commission on
1
1
1


1

Libraries and Information Science
National Council on Disability
3
3
3


3


CRS-37
FY2005
FY2006
FY2006
FY2006
FY2006
Office or major program
enacted
request
House
Senate
enacted
National Labor Relations Board
250
252
252
252

National Mediation Board
12
12
12
12

Occupational Safety and Health
11
11
11
11

Review Commission
Railroad Retirement Board
209
200
200
200

Social Security Administration (SSA) b
SSA Payments to Social Security
20
20
20
20

Trust Fund (mandatory)
SSA Supplemental Security
36,530
37,746
37,746
37,746

Income (SSI) (mandatory)
SSA SSI, Discretionary
2,987
2,897
2,897
2,710

SSA Administrative Expenses
5,743
6,491
6,383
6,619

SSA Medicare Reform Startup



Funding (non-add) c
446
0
0
0
SSA Office of Inspector General
90
93
93
93

SSA subtotal
45,370
47,247
47,139
47,189

TOTALS, RELATED AGENCIES
Total appropriations d
47,610
48,974
49,241
49,434

Current year funding
36,280
37,864
37,731
37,924

One-year advance funding
10,930
11,110
11,110
11,110

Two-year advance funding
400
0
400
400

Source: Funding details have been compiled from the July 18, 2005 table of the House Committee
on Appropriations. FY2005 amounts are post-reduction (see page 40) and based on P.L. 108-447.
a. Through FY2005, CNCS AmeriCorps Grants and other programs under the National and
Community Service Act were funded in the Veterans Affairs-Housing and Urban Development
(VA-HUD) Appropriations Act. All CNCS programs are funded in L-HHS-ED in FY2006.
b. The operation of the Social Security trust funds is considered off-budget, but the Social Security
Administration (SSA) Supplemental Security Income (SSI) program, SSA Administrative
Expenses, and certain related SSA activities are included under L-HHS-ED related agencies.
c. SSA Medicare Reform Funding startup costs were separately funded in FY2005; such activities are
to be combined under the regular SSA Administrative Expenses starting in FY2006.
d. Appropriations totals include discretionary and mandatory funds, and are subject to additional
scorekeeping and other adjustments.

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Related Legislation
Several proposals related to L-HHS-ED appropriations have been considered by
the 109th Congress, including the FY2006 Budget Resolution and FY2005
supplemental appropriations. FY2005 L-HHS-ED appropriations were provided by
the Consolidated Appropriations Act, 2005 (P.L. 108-447), which was enacted by the
108th Congress following a series of three continuing resolutions (P.L. 108-309).
FY2006 Budget Resolution, H.Con.Res. 95/S.Con.Res. 18
The annual concurrent resolution on the budget sets forth the congressional
budget.1 Among other provisions, the conference agreement on the FY2006
resolution, H.Con.Res. 95 (H.Rept. 109-62), proposes total discretionary budget
authority of $843 billion; of this amount, $391 billion is provided for discretionary
programs other than for defense and homeland security, according to the April 28,
2005 summary prepared by the majority staff of the House Committee on the Budget.
The FY2006 discretionary ceiling represents an increase of 2.1% relative to the
FY2005 discretionary total of $840.0 billion; the subtotal for programs other than
defense and homeland security represents a 0.8% reduction. Report language
outlines the funding assumptions made for selected programs that might be used to
reach the spending targets. FY2006 discretionary appropriations for specific
departments, agencies, and programs, however, are determined only through the
enactment of appropriations.
Table 14 shows the assumed levels of discretionary budget authority for budget
functions relevant to L-HHS-ED programs from the FY2006 resolution. The budget
resolution includes reserve funds for, among other purposes: the Family Opportunity
Act for Medicaid coverage for the families of disabled children (§302); elimination
of the shortfall for Pell Grants (§303); health care costs and services for the uninsured
(§304); health information technology and performance-based measures to improve
health care (§306); safe imports of prescription drugs (§309); and restoration of
SCHIP funds (§310). The reserve fund for Pell Grants allows $4.3 billion in new
budget authority for FY2006; other reserve provisions prohibit increases in the
federal deficit that might result from legislation to implement such provisions.
The FY2006 budget resolution instructs authorizing committees to report
legislation to reduce mandatory spending for the period FY2006 through FY2010
(§201 for the House, §202 for the Senate). Subsequently, these proposals would be
combined in a single reconciliation bill by the budget committees. The House
Committee on Education and the Workforce is responsible for a reduction of $1.0
1 The annual congressional budget resolution sets aggregate budget goals, including total
budget authority, outlays, revenues, and deficits or surpluses. A budget resolution sets
spending targets for functional categories of the budget; it also may specify a budget
reconciliation process for the modification of mandatory spending limits and tax cut
legislation, if any. House and Senate committees initiate and report legislation to achieve
these targets. Typically, appropriations committees meet the discretionary spending targets
through appropriations bills. Likewise, authorizing committees develop proposals to meet
mandatory targets; these proposals are often reported from separate committees and
combined into one or more omnibus reconciliation bills.

CRS-39
billion for FY2006 and $12.7 billion for FY2006 through FY2010; the Senate
Committee on Health, Education, Labor, and Pensions (HELP) is responsible for
$1.2 billion for FY2006 and $13.7 billion for FY2006 through FY2010. Two other
committees include L-HHS-ED programs in their jurisdiction: the House Committee
on Ways and Means is responsible for a reduction of $0.3 billion for FY2006 and
$1.0 billion for FY2006 through FY2010; and the Senate Committee on Finance is
responsible for $10.0 billion for FY2006 through FY2010.
Table 14. Discretionary Budget Authority for L-HHS-ED Budget
Functions Assumed in the FY2006 Budget Resolution
($ in millions)
Budget functions most relevant to
FY2005
FY2006
Difference
L-HHS-ED programs
comparable
conference
500: Education, Training, Employment,
$79,556
$79,139
-$417
and Social Services
550: Health
54,368
50,912
-3,456
570: Medicare
4,000
5,061
1,061
600: Income Security
46,056
47,256
1,200
650: Social Security
4,426
4,576
150
Source: Amounts are based on a table in the joint explanatory statement of the committee of
conference on the FY2006 budget resolution, H.Con.Res. 95 (H.Rept. 109-62).
H.Con.Res. 95 (H.Rept. 109-17) was passed by the House on March 17, 2005
(Roll Call no. 88, 218-214). S.Con.Res. 18 (without written report) was passed by
the Senate on March 17 (Roll Call no. 81, 51-49). On April 4, the Senate agreed to
H.Con.Res 95 with an amendment by unanimous consent. A conference report on
H.Con.Res. 95, H.Rept. 109-62, was filed and passed by the House (Roll Call no.
149, 214-211) and passed by the Senate (Roll Call no. 114, 52-47); all actions took
place on April 28, 2005. For additional information, please see CRS Report
RL32812, The Budget for Fiscal Year 2006. For procedural information, please see
CRS Report 98-721, Introduction to the Federal Budget Process.
FY2005 Omnibus Appropriations, P.L. 108-447 (H.R. 4818)
Regular FY2005 funding for L-HHS-ED activities was enacted late in the
second session of the 108th Congress, more than two months after the start of FY2005
on October 1, 2004. Eight of the 13 regular FY2005 appropriations bills were
combined into a single omnibus bill, H.R. 4818; Division F of the omnibus provided
appropriations for L-HHS-ED programs. A series of three continuing resolutions,
P.L. 108-309 (H.J.Res. 107), plus two amendments to it, provided temporary FY2005
funding for most L-HHS-ED programs until regular funding was enacted.
The H.R. 4818 conference report, H.Rept. 108-792, was passed by the House
(Roll Call No. 542, 344-51, with 1 present) and by the Senate (Roll Call No. 215, 65-
30) on November 19, 2004. It was signed into law by the President on December 8,
2005, as P.L. 108-447, the Consolidated Appropriations Act, 2005. For a guide to

CRS-40
the FY2005 omnibus bill, please see CRS Report RS21983, FY2005 Consolidated
Appropriations Act: Reference Guide
. For information on the FY2005 L-HHS-ED
appropriations, please see CRS Report RL32303, Appropriations for FY2005:
Labor, Health and Human Services, and Education
.
“Across-the-Board” Reductions for FY2005. In an effort to meet the
overall spending limitations requested by the President, the H.R. 4818 conferees
required a reduction to some appropriations from what would have been provided
otherwise. This provision was specified in §122 of Division J of P.L. 108-447. It
required a decrease of 0.80% in FY2005 discretionary appropriations for each
program, project, or activity, whether enacted in P.L. 108-447 or in other
appropriations. Discretionary funds from Defense, Military Construction, and
Homeland Security appropriations were excluded, as were all FY2005 supplemental
appropriations. Advance appropriations enacted through P.L. 108-447 for FY2006
or beyond were excluded as well. The reduction was estimated to save
approximately $3.5 billion; for additional information, please see CRS Report
RS21983, FY2005 Consolidated Appropriations Act: Reference Guide.
P.L. 108-447 required several reductions other than the 0.80% cut described
above. One reduction was germane to L-HHS-ED appropriations; §519 of the
L-HHS-ED part of the bill required an $18 million reduction in L-HHS-ED
administrative expenses. Congress did not specify the actual amounts of these
reductions but merely the process for their calculation. The application of these
reductions to accounts and line items was to be determined by the Office of
Management and Budget (OMB) and the individual agencies following enactment
of P.L. 108-447. As a result, the tables in the FY2005 conference report, H.Rept.
108-792, show pre-reduction levels, whereas the post-reduction amounts, as
approved by OMB, are incorporated into the tables shown in this report.

FY2005 Supplemental Appropriations for Iraq, Afghanistan,
and Tsunami Relief, P.L. 109-13 (H.R. 1268)

FY2005 supplemental appropriations of $75.9 billion were enacted in response
to the President’s request for additional funds for military operations in Iraq and
Afghanistan, Tsunami relief and rehabilitation, and other activities. The bill,
H.R.1268 (H.Rept. 109-72) was signed into law on May 11, 2005. Among other
provisions, it provided $10 million for domestically produced vaccines under the
Public Health and Social Services Emergency Fund (PHSSEF) of HHS and $58
million for the purchase of influenza countermeasures for the Strategic National
Stockpile under the Centers for Disease Control and Prevention (CDC). Several
unobligated balances from FY2005 HHS funds were rescinded as an apparent offset
to the $10 million supplemental, along with a rescission of $58 million from
appropriations enacted for the Medicare Prescription Drug, Improvement, and
Modernization Act of 2003. For additional details on the P.L. 109-13 supplemental,
please see CRS Report RL32783, FY2005 Supplemental Appropriations for Iraq and
Afghanistan, Tsunami Relief, and Other Activities
.

CRS-41
Appendix A: Terminology and Web Resources
The following items include some of the key budget terms used in this report;
they are based on CRS Report 98-720, Manual on the Federal Budget Process. The
websites provide general information on the federal budget and appropriations.
Advance appropriation is budget authority that will become available in a fiscal
year beyond the fiscal year for which the appropriations act is enacted; scorekeeping
counts the entire amount in the fiscal year it first becomes available for obligation.
Appropriation is budget authority that permits federal agencies to incur obligations
and to make payments out of the Treasury for specified purposes. Appropriations
represent the amounts that agencies may obligate during the period of time specified
in the law. Annual appropriations are provided in appropriations acts; most
permanent appropriations are provided in substantive law. Major types of
appropriations are regular, supplemental, and continuing.
Budget authority is legal authority to incur financial obligations that normally result
in the outlay of federal government funds. Major types of budget authority are
appropriations, borrowing authority, and contract authority. Budget authority also
includes the subsidy cost to the federal government of direct loans and loan
guarantees, estimated on a net present value basis.
Budget resolution is a concurrent resolution passed by both Houses of Congress, but
not requiring the signature of the President, setting forth the congressional budget for
at least five fiscal years. It includes various budget totals and functional allocations.
Discretionary spending is budget authority provided in annual appropriations acts,
other than appropriated entitlements.
Entitlement authority is the authority to make payments to persons, businesses, or
governments that meet the eligibility criteria established by law; as such, it represents
a legally binding obligation on the part of the federal government. Entitlement
authority may be funded by either annual or permanent appropriations acts.
Forward funding is budget authority that becomes available after the beginning of
the fiscal year for which the appropriation is enacted and remains available into the
next fiscal year; the entire amount is counted or scored in the fiscal year in which it
first becomes available.
Mandatory (direct) spending includes (a) budget authority provided in laws other
than appropriations; (b) entitlement authority; and (c) the Food Stamp program.
Rescission is the cancellation of budget authority previously enacted.
Scorekeeping is a set of procedures for tracking and reporting on the status of
congressional budgetary actions.
Supplemental appropriation is budget authority provided in an appropriations act
that provides funds that are in addition to regular appropriations.

CRS-42
Websites
General information on budget and appropriations may be found at these
websites. Specific L-HHS-ED agency sites are listed in relevant sections of this
report.
House Committees
[http://appropriations.house.gov/]
[http://www.house.gov/appropriations_democrats/]
[http://www.house.gov/budget/]
[http://www.house.gov/budget_democrats/]
Senate Committees
[http://appropriations.senate.gov/]
[http://appropriations.senate.gov/demoinfo/demoinfo.cfm]
[http://www.senate.gov/~budget/republican/]
[http://www.senate.gov/~budget/democratic/]
Congressional Budget Office (CBO)
[http://www.cbo.gov]
Congressional Research Service (CRS)
[http://www.crs.gov/products/appropriations/apppage.shtml]
Government Accountability Office (GAO)
[http://www.gao.gov/]
Government Printing Office (GPO)
[http://www.gpoaccess.gov/usbudget/]
Office of Management & Budget (OMB)
[http://www.whitehouse.gov/omb/budget/index.html]
[http://www.whitehouse.gov/omb/legislative/sap/index.html]

CRS-43
Appendix B: Context of L-HHS-ED Appropriations
Budget authority for all federal programs is estimated at $2,477.4 billion for
FY2005. Budget authority for all L-HHS-ED departments and related agencies is
estimated at $1,264.9 billion, or slightly more than half — 51.1% — of the federal
total. Table B.1 shows funding for the major L-HHS-ED agencies and provides
context for the current year discretionary funding provided by L-HHS-ED
appropriations — $142.7 billion, or 5.8% of the federal total in FY2005.
Table B.1. Context of the L-HHS-ED Bill, FY2005
(Estimated current year budget authority in billions of dollars)
Estimated
budget
Percent of
Budget category
authority
federal budget
Total federal budget authority
$2,477.4
100.0%
Department of Labor
50.7
2.0%
Department of Health and Human Services
581.7
23.5%
Department of Education
71.5
2.9%
Social Security Administration (On-budget)
55.0
2.2%
Social Security Administration (Off-budget)
503.8
20.3%
Other L-HHS-ED related agencies
2.2
0.1%
L-HHS-ED agency total
1,264.9
51.1%
L-HHS-ED bill, current year mandatory funds
354.2
14.3%
L-HHS-ED bill, current year discretionary funds
142.7
5.8%
L-HHS-ED bill subtotal
496.9
20.1%
L-HHS-ED agency subtotal from other annual bills
4.7
0.2%
L-HHS-ED agency subtotal not from any annual bill
763.3
30.8%
Sources: Budget of the United States Government Historical Tables Fiscal Year 2006, Table 5.2, and
the Mar. 16, 2005 table of the House Committee on Appropriations, which provides details for the
FY2005 L-HHS-ED amounts, adjusted for reductions, that were enacted through P.L. 108-447.
Note: For comparability, this table uses data from the Feb. 2005 OMB budget documents and
comparable L-HHS-ED documents; the data therefore do not include any additional FY2005
adjustments for scorekeeping, entitlements, supplemental appropriations, or rescissions.
Of the $1,264.9 billion for L-HHS-ED agencies, as shown in Table B.1, the
L-HHS-ED appropriations subcommittees generally have effective control only over
the $142.7 billion in discretionary funds, or 5.8% of the total federal budget. What
accounts for the remaining $1,122.2 billion of L-HHS-ED funds?
First, funding for mandatory programs accounts for more than two-thirds of the
L-HHS-ED bill — $354.2 billion, or 14.3% of the FY2005 federal total. Although
appropriations are enacted for these mandatory activities annually — these are
sometimes called “appropriated entitlements” — the amounts provided generally
must be sufficient to cover program obligations and entitlements to beneficiaries.
For these programs, as well as the programs funded through trust funds and

CRS-44
permanent authorities, most changes in funding levels are made through amendments
to authorizing legislation rather than through annual appropriations bills. Federal
administrative costs for these programs typically are subject to annual discretionary
appropriations, however. For L-HHS-ED agencies, these mandatory programs
include Supplemental Security Income, Black Lung Disability payments, Foster Care
and Adoption, the Social Services Block Grant, and Vocational Rehabilitation, as
well as general (non-earmarked) fund support for Medicare and Medicaid.
Second, other appropriations bills account for a small portion of L-HHS-ED
agency funding — $4.7 billion, or 0.2% of the FY2005 federal total. Two HHS
agencies are fully funded by other appropriations bills, and two HHS programs are
partially funded by bills other than L-HHS-ED, as described below. Prior to FY2006,
the Corporation for National and Community Service (CNCS) was partially funded
outside of the L-HHS-ED bill.
! The HHS Food and Drug Administration is funded by the
Agriculture appropriations ($1.5 billion in FY2005).
! The HHS Indian Health Service is funded by the Interior
appropriations ($3.0 billion in FY2005).
! The Centers for Disease Control and Prevention (CDC) is primarily
funded under L-HHS-ED ($4.5 billion in FY2005); it received
FY2005 funds from the Veterans Affairs and Housing and Urban
Development (VA-HUD) appropriations for the Agency for Toxic
Substances and Disease Registry (ATSDR) ($76 million). For
FY2006, Interior appropriations will provide ATSDR funding.
! The National Institutes of Health (NIH) is primarily funded under
L-HHS-ED ($28.4 billion in FY2005); it received FY2005 funds
from VA-HUD appropriations for the National Institute of
Environmental Health Sciences (NIEHS) ($80 million). For
FY2006, Interior appropriations will provide NIEHS funding.
! The CNCS — one of the related L-HHS-ED agencies — was funded
in two separate bills before FY2006. The L-HHS-ED bill funded
programs authorized under the Domestic Volunteer Service Act of
1973 ($354 million in FY2005); the VA-HUD bill funded
AmeriCorps and other programs authorized by the National
Community Service Act and the CNCS Inspector General ($573
million in FY2005). For FY2006, all funding for CNCS activities
will be provided by L-HHS-ED. For purposes of comparability, all
FY2005 CNCS funding has been included in this report as if it had
been appropriated in its entirety through the L-HHS-ED bill.
Third, the remaining L-HHS-ED agency funds — an estimated $763.3 billion,
or 30.8% of the total FY2005 federal budget — are received automatically without
congressional intervention and are funded outside of the annual appropriations
process. These funds are provided from permanent appropriations and trust funds.
The major L-HHS-ED programs in this category include Unemployment
Compensation, Medicare, Railroad Retirement, Temporary Assistance for Needy
Families (TANF, the welfare assistance program), Student Loans, State Children’s
Health Insurance, and Social Security benefits.