Order Code RL34076
Labor, Health and Human Services,
and Education: FY2008 Appropriations
Updated November 23, 2007
Pamela W. Smith, Coordinator,
Gerald Mayer, and Rebecca R. Skinner
Domestic Social Policy Division
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, 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://apps.crs.gov/cli/cli.aspx?
PRDS_CLI_ITEM_ID=2347&from=3&fromId=73].
Labor, Health and Human Services, and Education:
FY2008 Appropriations
Summary
This report tracks FY2008 appropriations for the Departments of Labor, Health
and Human Services, 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 5, 2007, the President submitted the FY2008 budget request to
Congress, including $141.7 billion in discretionary L-HHS-ED funds; the comparable
FY2007 amount was $144.7 billion. The House passed H.R. 3043 (H.Rept. 110-
231), providing $154.2 billion for L-HHS-ED programs. The Senate reported S.
1710 (S.Rept. 110-107), then later passed H.R. 3043, amended, with $152.3 billion
in discretionary funds. The conference report (H.Rept. 110-424), providing $153.3
billion, was vetoed on November 13, 2007; the House failed to override the veto on
November 15. A continuing resolution, P.L. 110-92, as amended by P.L. 110-116,
provides temporary FY2008 funding through December 14, 2007.
Department of Labor (DOL). DOL discretionary appropriations were $11.7
billion in FY2007. The request for FY2008 was $11.0 billion, including a reduction
in Workforce Investment Act (WIA) programs of $632 million. The conference
agreement would have provided DOL with $12.0 billion for FY2008. Funding for
WIA would have increased by $135 million, from $5.1 billion for FY2007.
Department of Health and Human Services (HHS). HHS discretionary
appropriations were $64.1 billion in FY2007; $63.2 billion was requested for
FY2008, and the conference agreement would have provided $68.5 billion. The
agreement would have increased funding over FY2007 by $225 million for Health
Centers, $318 million for Health Care-Related Facilities and Activities, $1.1 billion
for the National Institutes of Health, $518 million for Medicare/Medicaid
management and fraud control activities, $250 million for the Low-Income Home
Energy Assistance Program (LIHEAP), $154 million for Head Start, and $788
million for the Public Health and Social Services Emergency Fund.
Department of Education (ED). ED discretionary appropriations were $57.5
billion in FY2007; $56.2 billion was requested for FY2008, and the conference
agreement would have provided $60.7 billion. Funding for the Elementary and
Secondary Education Act (ESEA), reauthorized by the No Child Left Behind Act
(P.L. 107-110), was $23.5 billion in FY2007. For FY2008, $24.5 billion was
requested, and the conference agreement would have provided $25.1 billion.
Related Agencies. Discretionary appropriations for L-HHS-ED related
agencies were $11.5 billion in FY2007; $11.3 billion was requested for FY2008, and
the conference agreement would have provided $12.1 billion for FY2008. Funding
for Social Security Administration (SSA) administrative expenses would have
increased by $576 million, from $9.3 billion for FY2007.
Key Policy Staff for L-HHS-ED Appropriations
Area of Expertise
Name
Telephone
Coordinator
Pamela W. Smith
7-7048
Department of Labor (DOL)
DOL appropriations coordinator
Gerald Mayer
7-7815
Job training and employment services
Blake Alan Naughton
7-0376
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
Office of Workers’ Compensation Programs
Edward B. Rappaport
7-7740
Older Americans Act, employment programs
Angela Napili
7-0135
Kirsten Colello
7-7839
Pension and welfare benefits
Patrick Purcell
7-7571
Trade adjustment assistance
Julie M. Whittaker
7-2587
John Topoleski
7-2290
Unemployment compensation
Julie M. Whittaker
7-2587
Veterans employment
Christine Scott
7-7366
Workforce Investment Act
Blake Alan Naughton
7-0376
Department of Health and Human Services (HHS)
HHS appropriations coordinator
Pamela W. Smith
7-7048
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
Cancer research
Judith A. Johnson
7-7077
Centers for Disease Control and Prevention
Sarah A. Lister
7-7320
Child care and development
Melinda Gish
7-4618
Child welfare
Emilie Stoltzfus
7-2324
Child welfare
Adrienne L. Fernandes
7-9005
Cloning, stem cell research
Judith A. Johnson
7-7077
Cloning, stem cell research
Erin D. Williams
7-4897
Family Planning, Title X
Angela Napili
7-0135
Federal health centers
Barbara English
7-1927
Head Start
Melinda Gish
7-4618
Health professions education and training
Bernice Reyes-Akinbileje
7-2260
Health Resources and Services Administration
Bernice Reyes-Akinbileje
7-2260
Immunization
Pamela W. Smith
7-7048
Low-Income Home Energy Assistance Program
Libby Perl
7-7806
Maternal and Child Health Block Grant
Angela Napili
7-0135
Medicaid
Elicia J. Herz
7-1377
Medicare
Holly Sue Stockdale
7-9553
Needle exchange, AIDS
Judith A. Johnson
7-7077
NIH, health research policy
Pamela W. Smith
7-7048
Older Americans Act
Angela Napili
7-0135
Pandemic Influenza/Bird Flu
Sarah A. Lister
7-7320
Area of Expertise
Name
Telephone
Public Health Service
Pamela W. Smith
7-7048
Refugee Resettlement Assistance
Andorra Bruno
7-7865
Runaway Children and Homeless Youth
Adrienne L. Fernandes
7-9005
Social Services Block Grant
Melinda Gish
7-4618
State Children’s Health Insurance Program (SCHIP)
Evelyne P. Baumrucker
7-8913
Substance Abuse and Mental Health Services
Ramya Sundararaman
7-7285
Temporary Assistance for Needy Families (TANF)
Gene Falk
7-7344
Department of Education (ED)
ED appropriations coordinator
Rebecca R. Skinner
7-6600
Adult education and literacy
Gail McCallion
7-7758
After-school programs
Gail McCallion
7-7758
Assessment in education
Wayne C. Riddle
7-7382
Career (vocational) and technical education
Rebecca R. Skinner
7-6600
Charter schools
David Smole
7-0624
College costs and prices
Rebecca R. Skinner
7-6600
Education block grants
Rebecca R. Skinner
7-6600
Education for the Disadvantaged, Title I
Wayne C. Riddle
7-7382
Education technology
Rebecca R. Skinner
7-6600
Elementary and Secondary Education
Wayne C. Riddle
7-7382
English language acquisition
Rebecca R. Skinner
7-6600
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
Scott Szymendera
7-0014
Safe and Drug-Free Schools and Communities
Gail McCallion
7-7758
Special education, IDEA
Richard N. Apling
7-7352
Special education, IDEA, legal issues
Nancy Lee Jones
7-6976
Special education, IDEA, state grants
Ann Lordeman
7-2323
Student aid/need analysis
Adam Stoll
7-4375
Student aid/need analysis
Charmaine Mercer
7-4894
Student loans
Adam Stoll
7-4375
Student loans
David Smole
7-0624
Teacher recruitment, preparation, and training
Jeffrey J. Kuenzi
7-8645
21st Century Community Learning Centers
Gail McCallion
7-7758
Related Agencies
Corporation for National and Community Service
Ann Lordeman
7-2323
(VISTA, Senior Corps, AmeriCorps)
Corporation for Public Broadcasting
Glenn J. McLoughlin
7-7073
Institute of Museum and Library Services
Gail McCallion
7-7758
National Labor Relations Board
Gerald Mayer
7-7815
National Labor Relations Board, legal issues
Jon O. Shimabukuro
7-7990
Railroad Retirement Board
Kathleen Romig
7-3742
Social Security Administration
Kathleen Romig
7-3742
Dawn Nuschler
7-6283
Supplemental Security Income (SSI)
Scott Szymendera
7-0014
Contents
Most Recent Developments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
H.R. 3043 Vetoed, Override Failed in House . . . . . . . . . . . . . . . . . . . . 1
FY2008 Continuing Resolution (CR) Extended . . . . . . . . . . . . . . . . . . 1
Conference Agreement on H.R. 3043 Passed . . . . . . . . . . . . . . . . . . . . 1
Senate Version of H.R. 3043 Passed . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Continuing Resolution P.L. 110-92 Enacted . . . . . . . . . . . . . . . . . . . . . 1
House Bill H.R. 3043 Reported and Passed . . . . . . . . . . . . . . . . . . . . . 2
Senate Bill S. 1710 Reported . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
President’s Budget Submitted . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Note on Most Recent Data . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Overview and Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Program Level and Current Year Appropriations . . . . . . . . . . . . . . . . . . . . . 4
President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
House Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Senate Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Conference Report on H.R. 3043 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Conference Report Highlights . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
Continuing Appropriations Resolution, 2008 . . . . . . . . . . . . . . . . . . . . . . . 13
Major Discretionary Programs, FY2007-FY2008 . . . . . . . . . . . . . . . . . . . . 13
302(a) and 302(b) Allocation Ceilings . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Advance Appropriations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
Major Funding Trends . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
Department of Labor . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 17
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
House Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
Senate Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
Conference Report . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
CRS Products . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
Websites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
Detailed Appropriations Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
Department of Health and Human Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
House Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
Senate Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
Conference Report . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 25
Abortion: Funding Restrictions . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
Embryonic Stem Cell Research: Funding Restrictions . . . . . . . . . . . . 26
CRS Products . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
Websites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
Detailed Appropriations Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
Department of Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
House Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32
Senate Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 33
Conference Report . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
New Programs and Program Elimination . . . . . . . . . . . . . . . . . . . . . . 35
ESEA Funding Shortfall? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 35
IDEA Funding Shortfall? . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36
Forward Funding and Advance Appropriations . . . . . . . . . . . . . . . . . . 36
CRS Products . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37
Websites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38
Detailed Appropriations Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38
Related Agencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41
President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41
House Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41
Senate Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42
Conference Report . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42
CRS Products . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42
Websites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42
Detailed Appropriations Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44
Appendix A. Terminology and Web Resources . . . . . . . . . . . . . . . . . . . . . . . . . 46
Websites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 47
List of Tables
Table 1. Legislative Status of L-HHS-ED Appropriations, FY2008 . . . . . . . . . . 2
Table 2. L-HHS-ED Appropriations Summary, FY2007-FY2008 . . . . . . . . . . . . 5
Table 3. L-HHS-ED Discretionary Funding, FY2007-FY2008 . . . . . . . . . . . . . 12
Table 4. Major Discretionary Programs, FY2007-FY2008 . . . . . . . . . . . . . . . . 14
Table 5. FY2008 302(b) Discretionary Allocations . . . . . . . . . . . . . . . . . . . . . . 15
Table 6. Discretionary Funding Trends, FY2002-FY2007 . . . . . . . . . . . . . . . . . 17
Table 7. Department of Labor Discretionary Appropriations . . . . . . . . . . . . . . . 17
Table 8. Detailed Department of Labor Appropriations . . . . . . . . . . . . . . . . . . . 20
Table 9. Department of Health and Human Services Discretionary
Appropriations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
Table 10. Detailed Department of Health and Human Services
Appropriations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
Table 11. Department of Education Discretionary Appropriations . . . . . . . . . . 31
Table 12. Detailed Department of Education Appropriations . . . . . . . . . . . . . . 38
Table 13. Related Agencies Discretionary Appropriations . . . . . . . . . . . . . . . . . 41
Table 14. Detailed Related Agencies Appropriations . . . . . . . . . . . . . . . . . . . . . 44
Labor, Health and Human Services,
and Education: FY2008 Appropriations
Most Recent Developments
H.R. 3043 Vetoed, Override Failed in House. On November 13, 2007,
the President vetoed H.R. 3043, the FY2008 appropriations for the Departments of
Labor, Health and Human Services, and Education, and Related Agencies (L-HHS-
ED). He cited total discretionary spending levels in the bill that were higher than he
had requested. On November 15, an attempt to override the veto failed in the House
by a vote of 277-141 (two-thirds majority required).
FY2008 Continuing Resolution (CR) Extended. On November 13, 2007,
the President signed into law H.R. 3222, the FY2008 Department of Defense
appropriations act (P.L. 110-116), which also, in Division B, amended the FY2008
continuing resolution (P.L. 110-92) to extend temporary funding for government
agencies to December 14, 2007. Most agency activities for which there is not yet a
regular appropriation receive funding under the CR at the FY2007 rate of operations.
Conference Agreement on H.R. 3043 Passed. On November 5, 2007,
House and Senate conferees filed a conference report (H.Rept. 110-424) on H.R.
3043, which included their agreement on the L-HHS-ED bill, and also appended a
conference version of appropriations for Military Construction/Veterans Affairs
(MilCon/VA, H.R. 2642). The House agreed to the combined measure on November
6. On November 7, the Senate sustained a point of order against the combination bill
and subsequently passed a substitute conference report that dropped the MilCon/VA
language. The House agreed to the Senate amendment on November 8, and H.R.
3043 was sent to the President. The bill as reported by the conference committee
would have provided $153.3 billion in discretionary funds for L-HHS-ED programs.
Senate Version of H.R. 3043 Passed. On October 17, 2007, the Senate
began debating a substitute version of H.R. 3043, consisting of the text of S. 1710 but
without the reported bill’s final section relating to research on human embryonic
stem cells. The bill was debated in the Senate October 17-23 and was passed, with
a number of amendments, on October 23, 2007, by a vote of 75-19. The bill would
have provided $152.3 billion in discretionary funds for L-HHS-ED programs.
Continuing Resolution P.L. 110-92 Enacted. On September 29, 2007,
the President signed into law P.L. 110-92 (H.J.Res. 52), which provided temporary
funding at the FY2007 rate of operations for government agencies, including most
L-HHS-ED activities, for the period October 1 through November 16, 2007, unless
regular FY2008 appropriations measures were enacted sooner.
CRS-2
House Bill H.R. 3043 Reported and Passed. On July 13, 2007, the
House Committee on Appropriations reported H.R. 3043 (H.Rept. 110-231), its
proposal for FY2008 L-HHS-ED appropriations. The bill was debated in the House
July 17-19 and was passed, with several amendments, on July 19, 2007, by a vote of
276-140. The bill would have provided $154.2 billion in discretionary funds for
L-HHS-ED programs.
Senate Bill S. 1710 Reported. On June 27, 2007, the Senate Committee on
Appropriations reported S. 1710 (S.Rept. 110-107), its proposal for FY2008 L-HHS-
ED appropriations. The bill would have provided $152.1 billion in discretionary
funds for L-HHS-ED.
President’s Budget Submitted. On February 5, 2007, the President
submitted the FY2008 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 FY2008 L-HHS-ED appropriations.
Table 1. Legislative Status of L-HHS-ED Appropriations, FY2008
Subcommittee
Conference
Markup
House
House
Senate
Senate
Conf.
Report Approval
Public
Law:
Committee Passage Committee
Passage
Report
House
Senate Veto, CR
House
Senate
Passage
Passage
7/13/07c
6/27/07e
11/5/07g
H.R. 3043,
S. 1710,
10/23/07f
11/6/07
6/7/07a 6/19/07b
7/19/07d
H.Rept.
H.Rept.
S.Rept.
H.R. 3043
11/8/07h 11/7/07h 11/13/07
11/15/07i
110-424
110-231
110-107
a. The House Subcommittee on Labor, Health and Human Services, Education, and Related Agencies Appropriations began
FY2008 hearings on Feb. 15, 2007. The Subcommittee marked up its version of the FY2008 L-HHS-ED appropriations
on June 7, 2007, approving it by a voice vote.
b. The Senate Subcommittee on Labor, Health and Human Services, Education, and Related Agencies Appropriations began
FY2008 hearings on Mar. 14, 2007. The Subcommittee marked up its version of the FY2008 L-HHS-ED bill on June
19, 2007, and approved it by voice vote.
c. H.R. 3043: The House Committee on Appropriations approved its version of the L-HHS-ED appropriations for FY2008
on July 11, 2007, by voice vote, and ordered the bill reported. Subsequently, H.R. 3043 (H.Rept. 110-231) was
introduced and reported on July 13, 2007.
d. H.R. 3043: The House debated the bill on July 17-19, 2007, and passed it, amended, on July 19, 2007, by a vote of 276-
140.
e. S. 1710: The Senate Committee on Appropriations approved the draft L-HHS-ED bill with a manager’s amendment on June
21, 2007, by a vote of 26-3, and ordered the bill reported. Subsequently, S. 1710 (S.Rept. 110-107) was introduced and
reported on June 27, 2007.
f. H.R. 3043: The Senate debated a substitute version of the bill (text of S. 1710 minus new stem cell provisions) on Oct. 17-
23, 2007, and passed it, amended, on Oct. 23, 2007, by a vote of 75-19.
g. H.R. 3043: Conference report H.Rept. 110-424 was filed Nov. 5, 2007. It included not only the agreement on L-HHS-ED
appropriations but also the agreement on appropriations for Military Construction/Veterans Affairs (MilCon/VA,
previously H.R. 2642), combined into one bill.
h. H.R. 3043: The House approved the combined conference agreement on Nov. 6, 2007, by a vote of 269-142. On Nov. 7,
the Senate sustained a point of order against the MilCon/VA language having been added to H.R. 3043, by a vote of 47-
46 (60 votes would have been needed to waive the point of order). Subsequently, the Senate approved a substitute
amendment that retained only the L-HHS-ED language, by a vote of 56-37. On Nov. 8, the House agreed to the Senate
amendment to H.R. 3043 by a vote of 274-141.
i. H.R. 3043: The President vetoed the FY2008 Labor-HHS-ED appropriations act on Nov. 13, 2007. An override attempt
failed in the House on Nov. 15 by a vote of 277-141 (two-thirds majority needed). An FY2008 continuing resolution,
P.L. 110-92 (Sept. 29, 2007), as amended by Division B of P.L. 110-116 (Nov. 13, 2007), is providing temporary
FY2008 funding for most L-HHS-ED activities for the period October 1 through December 14, 2007, unless regular L-
HHS-ED appropriations are enacted sooner.
CRS-3
Note on Most Recent Data. In this report, unless stated otherwise, data on
FY2007 appropriations and FY2008 appropriations proposals are based on the
November 5, 2007, conference report (H.Rept. 110-424) on H.R. 3043. 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, data refer only
to those programs within the purview of L-HHS-ED appropriations, and not to all
programs within the jurisdiction of the relevant departments and agencies. Funding
from other appropriations bills, and entitlements funded outside of the annual
appropriations process, are excluded.
The FY2007 data reflect the funding provided under the terms of the Revised
Continuing Appropriations Resolution, 2007 (P.L. 110-5, H.J.Res. 20), which was
signed into law on February 15, 2007. A series of continuing resolutions (CRs),
beginning with P.L. 109-289, had provided temporary L-HHS-ED funding from
October 1, 2006, through February 15, 2007. The final CR provided specific levels
of funding for FY2007 for some agencies and programs, while those activities not
specifically listed were generally funded at FY2006 levels. In addition, agencies
received funding for a portion of their increased pay costs. Final funding levels
became known in late March 2007 after the Office of Management and Budget and
the agencies had worked out their spending plans for FY2007 and conveyed the
information to Congress. Subsequently, Congress passed an FY2007 supplemental
appropriations act, P.L. 110-28, the U.S. Troop Readiness, Veterans’ Care, Katrina
Recovery, and Iraq Accountability Appropriations Act, 2007, signed into law on May
25, 2007. The law had a few provisions that affected FY2007 funding levels for
some L-HHS-ED agencies.
For additional information, please see CRS Report RL30343, Continuing
Resolutions: FY2007 Action and Brief Overview of Recent Practices, by Sandy
Streeter.
Overview and Key Issues
This report describes the President’s proposal for FY2008 appropriations for
L-HHS-ED programs, as submitted to Congress on February 5, 2007, and the
congressional response to that proposal. It compares the President’s FY2008 request
to the FY2007 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. However, the report does not follow specific funding issues
related to mandatory L-HHS-ED programs — such as Medicare or Social Security
— nor does 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.”
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 and stem cell research.
CRS-4
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 (non-defense) federal programs (the Department
of Defense bill is the largest source of discretionary funds among all federal
programs). This section summarizes major funding changes proposed for L-HHS-ED
and related issues such as 302(b) allocations and advance appropriations. Later
sections provide details on individual L-HHS-ED departments and agencies.
Program Level and Current Year Appropriations
Table 2 summarizes the L-HHS-ED appropriations for FY2008, including both
discretionary and mandatory appropriations. The table shows various aggregate
measures of L-HHS-ED appropriations enacted for FY2007 and proposed for
FY2008, including the discretionary program level, current year level, 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, proposed FY2008 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 — for example,
FY2007 appropriations that were enacted in the FY2006 act. As the
annual congressional appropriations process unfolds, current year
discretionary appropriations, including scorekeeping adjustments
(see below), are measured against the 302(b) allocation ceilings
(discussed later in this report). Note that media reports covering
appropriations activities typically cite figures representing the
current year discretionary totals rather than the program levels in the
bill.
! Advance appropriations are funds that will not become available
until after the fiscal year for which the appropriations are enacted
(for example, funds for certain education programs like Title I Part
A Grants to Local Educational Agencies for the Education of the
Disadvantaged that were included in the FY2007 act that could not
be spent before FY2008 at the earliest, discussed later in this report).
! Scorekeeping adjustments are made to account for special funding
situations, as monitored by the Congressional Budget Office (CBO).
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. Alternatively, current year funding is derived by
taking the program level (total in the bill), subtracting the advances for future years,
CRS-5
adding in the advances from prior years, and applying the scorekeeping adjustments.
Table 2 shows each of these amounts for discretionary funding, along with current
year funding and program level funding for mandatory programs, and the grand total
for L-HHS-ED.
Table 2. L-HHS-ED Appropriations Summary, FY2007-FY2008
($ in billions)
FY2007
FY2008
FY2008
FY2008
FY2008
Type of Budget Authority
Enacted
Request
House
Senate
Conf.
Discretionary Appropriations
Program level: current bill for
144.7
141.7
154.2
152.3
153.3
any year
Current year: current year from
144.6
140.9
151.7
149.9
150.7
any bill (after scorekeeping)
Advances for future years (in the
19.3
18.9
21.3
21.3
21.3
current bill)
Advances from prior years (from
19.3
19.3
19.3
19.3
19.3
previous bills)
Scorekeeping adjustments
-0.1
-1.2
-0.5
-0.5
-0.6
Current Year Discretionary and Mandatory Funding
Discretionary (compare to
144.6
140.9
151.7
149.9
150.7
302(b) cap)
Mandatory
401.2
455.5
455.7
455.7
455.7
Total, current year
545.8
596.4
607.4
605.5
606.4
Program Level Totals of Funding for L-HHS-ED Bill, Any Year
Discretionary program level
144.7
141.7
154.2
152.3
153.3
Mandatory program level
409.3
455.4
455.7
455.6
455.6
Grand total, any year
554.0
597.2
609.9
608.0
608.9
Source: Amounts are based on the Nov. 5, 2007, conference report on H.R. 3043 (H.Rept. 110-424),
which was vetoed on Nov. 13, 2007. Appropriations are given only for programs included in the
annual L-HHS-ED bill.
Note: Details may not add to totals due to rounding. Both FY2007 and FY2008 mandatory amounts
are estimates that are subject to adjustments after the close of their respective fiscal years. All amounts
in the table are subject to change through the enactment of further supplementals and rescissions.
President’s Request
On February 5, 2007, the President’s FY2008 request was submitted to
Congress, prior to completion of the FY2007 appropriations process. With regard
to the President’s budget, the primary issues raised during congressional
consideration of any appropriations request generally relate to proposed funding
changes, as well as to the overall level of support for programs. The following
summary highlights changes of at least $100 million proposed in FY2008
CRS-6
discretionary budget authority in comparison with the FY2007 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 discussion of budgets for individual departments includes
tables to compare the FY2008 request with the FY2007 funding for many of the
major programs in the L-HHS-ED bill.
Budget Highlights. Overall, $141.7 billion in discretionary appropriations
were requested for L-HHS-ED for FY2008, $3.0 billion (2.1%) less than the FY2007
amount of $144.7 billion.
! For the Department of Labor (DOL), the Administration’s FY2008
request included a decrease of $632 million for WIA programs, from
$5.1 billion for FY2007 to $4.5 billion for FY2008. The proposed
reduction included $357 million less for Dislocated Worker
Assistance programs (funded at $1.5 billion in FY2007), $152
million less for Adult Training grants to states, and $100 million less
for Youth Training. The Administration proposed a decrease of
$134 million for the Community Service Employment for Older
Americans program. Overall, $11.0 billion in FY2008 discretionary
appropriations were requested for DOL, a 6.2% reduction from the
FY2007 amount of $11.7 billion.
! For the Department of Health and Human Services (HHS), the
FY2008 request proposed an increase of $1.04 billion for the Public
Health and Social Services Emergency Fund (PHSSEF), covering
homeland security activities and Pandemic Influenza Preparedness.
Decreases were proposed of $175 million for Health Professions
programs other than those for nursing, $187 million for Children’s
Hospitals Graduate Medical Education (CHGME), $104 million for
Rural Health Programs, $114 million for Buildings and Facilities at
the Centers for Disease Control and Prevention (CDC), and $279
million for the National Institutes of Health (NIH). A $183 million
initiative for Fraud and Abuse Control at the Centers for Medicare
and Medicaid Services (CMS) was proposed, along with a $133
million increase for CMS Program Management. Decreases of $379
million for the Low-Income Home Energy Assistance Program
(LIHEAP) and $100 million for Head Start were requested. The
$630 million Community Services Block Grant (CSBG) received no
funding in the request. Overall, $63.2 billion in FY2008
discretionary appropriations were requested for HHS, 1.3% less than
the FY2007 amount of $64.1 billion.
! For the Department of Education (ED), the FY2008 request
proposed an increase of $993 million for Elementary and Secondary
Education Act of 1965 (ESEA) programs in the aggregate. Funding
for Title I, Part A, Grants to Local Educational Agencies (LEAs) for
the Education of the Disadvantaged would have been increased by
$1.1 billion. The request included proposals for three new K-12
CRS-7
education initiatives of at least $100 million, including $250 million
for Promise Scholarships. School Improvement Grants would have
been increased by $375 million, and the Teacher Incentive Fund
would have been increased by $199 million. The request proposed
the elimination of the $272 million Educational Technology State
Grants. The Fund for the Improvement of Education would have
been reduced by $100 million, and a decrease of $247 million was
requested for the Safe and Drug-Free Schools State Grants. A
decrease of $291 was requested for the Special Education Part B
Grants to States program authorized by the Individuals with
Disabilities Education Act (IDEA). Funding for the Perkins Career
and Technical Education program would have been decreased by
$686 million. The request proposed the elimination of the $771
million Supplemental Educational Opportunity Grants. Pell Grants
would have been reduced by $247 million. Overall, $56.2 billion in
FY2008 discretionary appropriations were requested for ED, 2.2%
less than the FY2007 amount of $57.5 billion.
! For the related agencies, the Administration’s request for FY2008
would have increased funding for SSA administrative expenses by
$301 million, up from $9.3 billion for FY2007. (Funding for SSA
administrative expenses is in an account called Limitation on
Administrative Expenses.) The Administration’s FY2008 budget
proposed to eliminate the two-year advance appropriations for the
Corporation for Public Broadcasting (CPB), which was provided
with a two-year advance appropriation of $400 million in the
FY2007 bill. Overall, $11.3 billion in FY2008 discretionary
appropriations were requested for L-HHS-ED related agencies, a
1.7% decrease from FY2007 appropriations of $11.5 billion.
House Bill
The House Committee on Appropriations reported its version of the FY2008
L-HHS-ED appropriations as H.R. 3043 (H.Rept. 110-231) on July 13, 2007. The
House debated the bill on July 17-19, 2007, and passed it, amended, on July 19,
2007, by a vote of 276 to 140.
House Highlights. Overall, the House bill would have provided FY2008
discretionary appropriations of $154.2 billion for L-HHS-ED programs. The
President requested $141.7 billion; the FY2007 amount was $144.7 billion. The
House bill differed from the President’s request in a number of details.
! For DOL, the House bill would have provided $5.2 billion for WIA
programs, $734 million more than the Administration’s request. The
House would have funded WIA Dislocated Worker Assistance
programs at $1.5 billion, the same amount appropriated for FY2007
and $357 million more than the Administration’s request. The
House would have funded WIA Adult Training grants to states at
$864 million, the same as FY2007 and $152 million more than the
Administration’s request. WIA Youth Training programs would
CRS-8
have been funded at the same level as FY2007 and at $100 million
more than the Administration’s request of $841 million. The House
would have increased funding for the Job Corps by $127 million
above the amount requested and by $71 million above FY2007
appropriations of $1.6 billion. The House would have funded
Community Service Employment for Older Americans at $531
million, or $181 million above the Administration’s request and $47
million more than FY2007. Overall, the House bill would have
provided $11.8 billion in discretionary funds for DOL; $11.0 billion
was requested; and $11.7 billion was provided for FY2007.
! For HHS, the House bill would have funded Health Centers at $2.19
billion, $200 million more than the request. Health Professions
other than nursing would have received $228 million, $219 million
more than requested. The CHGME would have received $307
million, $197 million more than requested. Rural Health programs
would have received $145 million, $120 million more than the
request. Health Care-Related Facilities and Activities would have
received $128 million; no funds were requested. The CDC
Infectious Diseases program would have received $1.90 billion,
$119 million more than requested. The Preventive Health and
Health Services Block Grant (PHBG) would have received $109
million; no funds were requested. The National Institutes of Health
(NIH) would have received $29.67 billion, $1.05 billion more than
requested. The Agency for Healthcare Research and Quality
(AHRQ) would have received a specific appropriation of $283
million, plus indirect funding of $47 million, for a total of $330
million; the request was for indirect funding of $330 million. The
CMS Fraud and Abuse Control initiative would have received $383
million; $183 million was requested. LIHEAP would have received
$2.66 billion, $880 million more than requested. Head Start would
have received $6.96 billion, $175 million more than requested. The
CSBG would have been funded at $660 million; no funds were
requested. Overall, the House bill would have provided $68.4
billion in discretionary funds for HHS; $63.2 billion was requested;
and $64.1 billion was provided for FY2007.
! For ED, the House bill would have provided $25.5 billion for ESEA
programs in the aggregate, $1.0 billion more than was requested.
Title I, Part A Grants to Local Educational Agencies (LEAs) would
have received $453 million more than was requested, while Reading
First State Grants would have received $665 million less than
requested. The House bill would not have funded any of the
President’s proposed initiatives, including Promise Scholarships.
Teacher Quality State Grants would have received $400 million
more than was requested, and Education Technology State Grants
would have received $272 million, rather than being eliminated as
called for by the request. The House bill would have provided $125
million more for the 21st Century Community Learning Centers,
$147 million more for the Fund for the Improvement of Education,
CRS-9
$247 million more for the Safe and Drug-Free Schools State Grants,
and $104 million more for the English Language Acquisition State
Grants than requested. IDEA, Part B Grants to States would have
received $850 million more than was requested. Perkins Career and
Technical Education would have received $710 million more than
requested. Pell Grants would have received $2.2 billion more than
requested. The House would have increased the maximum
appropriated Pell Grant award to $4,700. Federal Supplemental
Opportunity Grants would have received $771 million, rather than
being eliminated as called for by the request. Aid for Institutional
Development for higher education would have received $159 million
more than requested. Departmental Management would have
received $227 million less than requested. Overall, the House would
have provided $62.1 billion in FY2008 discretionary appropriations
for ED, $5.9 billion more than the request of $56.2 billion and $4.6
billion more than the FY2007 amount of $57.5 billion.
! For related agencies, the bill approved by the House would have
provided $9.7 billion in funding for SSA administrative expenses,
which is $100 million more than the Administration’s request and
$401 million more than appropriated for FY2007. The House would
have provided the Corporation for Public Broadcasting (CPB) with
$420 million in advance funding for FY2010. The Administration
did not request funds for FY2010. Overall, the House would have
provided $11.9 billion in discretionary funds for related agencies,
$588 million more than requested and $392 million more than
appropriated for FY2007.
Senate Bill
The Senate Committee on Appropriations reported its version of the FY2008
L-HHS-ED appropriations as S. 1710 (S.Rept. 110-107) on June 27, 2007. In
October, when the Senate took up H.R. 3043, the text of S. 1710 (minus a
controversial section relating to embryonic stem cell research) was substituted for the
House-passed bill. The Senate debated the bill on October 17-23, 2007, and passed
it, amended, on October 23, 2007, by a vote of 75 to 19.
Senate Highlights. Overall, the Senate version of H.R. 3043, as passed,
would have provided FY2008 discretionary appropriations of $152.3 billion for
L-HHS-ED programs. The House bill would have provided $154.2 billion; the
President requested $141.7 billion. The comparable FY2007 amount was $144.7
billion. The Senate bill differed from the House proposal in a number of ways.
! For DOL, the Senate bill does not differ significantly from the House
bill. Overall, the Senate would have provided $11.9 billion in
discretionary funds for DOL, $91 million more than the House, $971
million more than requested, and $249 million more than
appropriated for FY2007.
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! For HHS, the Senate bill would have provided $107 million less
than the House bill for CHGME, $138 million less for Infectious
Diseases at the CDC, $210 million more for CDC Buildings and
Facilities, $230 million more for NIH, $501 million less for
LIHEAP, $125 million more for Head Start, and $10 million more
for the CSBG. Overall, the Senate bill would have provided $68.1
billion in discretionary appropriations for HHS programs, $226
million less than the House amount of $68.4 billion, $4.9 billion
more than the requested amount of $63.2 billion, and $4.0 billion
more than HHS funding of $64.1 billion in FY2007.
! For ED, the Senate bill would have provided $24.6 billion for ESEA
programs in the aggregate, $926 million less than would have been
provided by the House. Title I, Part A Grants to LEAs would have
received $453 million less than the House amount, and Teacher
Quality State Grants would have been funded at $300 million less
than the House amount. Reading First State Grants would have
received $447 million more than the House amount. The 21st
Century Community Learning Centers would have received $106
million less than the House amount, and IDEA Part B Grants to
States would have received $102 million less than the House
amount. The Senate bill would have provided $14.5 billion for Pell
Grants, $1.1 billion less than the House amount. The maximum
appropriated Pell Grant award would have been $4,310 compared
with a House maximum appropriated Pell Grant award of $4,700.
Aid for Institutional Development for higher education would have
received $140 million less than the House amount. Departmental
Management would have received $202 million more than the
House amount. Overall, the Senate bill would have provided $60.1
billion in FY2008 discretionary appropriations for ED, $2.0 billion
less than the House amount of $62.1 billion and $2.6 billion more
than the FY2007 amount of $57.5 billion.
! For related agencies, the Senate bill would have provided $175
million more than the House bill for SSA administrative expenses.
Overall, the Senate would have provided $12.1 billion in
discretionary funds for related agencies, $215 million more than the
House, $802 million more than requested, and $606 million more
than appropriated for FY2007.
Conference Report on H.R. 3043
On November 5, 2007, House and Senate conferees filed a conference report
(H.Rept. 110-424) on H.R. 3043, which included their agreement on the FY2008 L-
HHS-ED bill, and also appended a conference version of appropriations for Military
Construction/Veterans Affairs (MilCon/VA, H.R. 2642). The House adopted the
report on the combined measure on November 6 by a vote of 269-142. On
November 7, the Senate sustained a point of order against the combination bill and
subsequently adopted, by a vote of 56-37, a substitute conference report that dropped
the MilCon/VA language. The House agreed to the Senate amendment on November
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8 by a vote of 274-141, and H.R. 3043 was sent to the President. On November 13,
2007, the President vetoed H.R. 3043, citing total discretionary spending levels in the
bill that were higher than he had requested. On November 15, an attempt to override
the veto failed in the House by a vote of 277-141 (two-thirds majority required).
Conference Report Highlights. Overall, the conference version of H.R.
3043 would have provided discretionary appropriations at the program level of
$153.3 billion for L-HHS-ED programs. The Senate bill would have provided
$152.3 billion, the House bill would have provided $154.2 billion, and the President
requested $141.7 billion. The comparable FY2007 amount was $144.7 billion.
The President’s objections to what he termed the “excessive” spending in the
bill are usually discussed by referring to the current year (FY2008) funding levels
(see Table 2 and its preceding discussion for the differences in the two portrayals of
the budget). In current year terms, the conference report would have provided $150.7
billion for discretionary L-HHS-ED programs, an increase of $9.8 billion (6.9%) over
the President’s requested level of $140.9 billion. The conference level would have
been an increase of $6.1 billion (4.2%) over the FY2007 level of $144.6 billion,
whereas the President’s request represented a decrease of $3.7 billion (-2.6%) from
FY2007. (By way of comparison, estimated current year funding for mandatory L-
HHS-ED programs is slated to increase by $54.4 billion (13.6%), from $401.2 billion
in FY2007 to $455.7 billion in FY2008.)
Compared to FY2007 funding levels, the FY2008 program level discretionary
amounts would have been increased or decreased by at least $100 million for the
following programs. Additional details and funding amounts are provided in separate
agency summaries.
! For DOL, the WIA program would have received an increase in
funding of $135 million, up from $5.1 billion for FY2007. Overall,
DOL would have received $12.0 billion in discretionary funding for
FY2008, $0.3 billion more than in FY2007.
! For HHS, funding would have been increased by the following
amounts compared to FY2007: Community Health Centers, $225
million; Health Care-Related Facilities and Activities, $318 million;
NIH, $1.1 billion; CMS Program Management, $135 million; CMS
Fraud and Abuse Control Initiative, $383 million; LIHEAP, $250
million; Head Start, $154 million; and Public Health and Social
Services Emergency Fund, $788 million. Overall, HHS would have
received $68.5 billion in discretionary funding for FY2008, $4.4
billion more than in FY2007.
! For ED, ESEA programs would have received $25.1 billion in the
aggregate, $1.6 billion more than in FY2007. Several K-12
education programs would have received an increase in funding
from FY2007 to FY2008: Title I, Part A Grants to LEAs would have
increased $1.5 billion; School Improvement Grants would have
increased $375 million; Teacher Quality State Grants would have
increased $150 million; the 21st Century Community Learning
CRS-12
Centers would have increased $100 million; the Fund for the
Improvement of Education would have increased $104 million; and
IDEA Part B Grants to States would have been funded at $509
million more than in FY2007. The only K-12 education program
that would have lost $100 million or more would have been the
Reading First State Grants, which would have received $629 million
less than in FY2007. Two postsecondary education programs would
have received increases of $100 million or more, and no
postsecondary education programs would have lost a commensurate
amount. Pell Grants would have received $837 million more than
in FY2007. The maximum appropriated Pell Grant award would
have been $4,435, a $125 increase over the maximum award of
$4,310 in FY2007. The Fund for the Improvement of Postsecondary
Education would have been funded at $104 million more than in
FY2007. Overall ED would have received $60.7 billion in
discretionary funding, $3.2 billion more than in FY2007.
! For the related agencies, the SSA would have received an increase
of $576 million for administrative expenses, up from $9.3 billion for
FY2007. Overall, the related agencies would have received $12.1
billion in discretionary funding, $0.6 billion more than in FY2007.
Table 3 summarizes the “program level” discretionary spending that would
have been provided in the first four titles of the L-HHS-ED appropriations bills and
compares those totals with the “current year” discretionary totals in the bills.
Table 3. L-HHS-ED Discretionary Funding, FY2007-FY2008
($ in millions)
FY2007
FY2008
FY2008
FY2008
FY2008
Enacted
Request
House
Senate
Conf.
Discretionary Appropriations, Program Level (total in bill for any year)
Title I, Department of Labor
11,686
10,964
11,844
11,935
11,982
Title II, Department of Health
64,054
63,195
68,366
68,140
68,479
and Human Services
Title III, Department of
57,473
56,225
62,086
60,108
60,703
Education
Title IV, Related Agencies
11,522
11,326
11,914
12,128
12,131
Total discretionary, program
144,735
141,710
154,209
152,311
153,295
level
Total Discretionary, Current Year from Any Bill (after scorekeeping adjustments)
Total, current year
144,617
140,916
151,719
149,857
150,698
Source: Amounts are based on the Nov. 5, 2007, conference report on H.R. 3043 (H.Rept. 110-424),
which was vetoed on Nov. 13, 2007. Appropriations are given only for programs included in the
annual L-HHS-ED bill.
CRS-13
Continuing Appropriations Resolution, 2008
A continuing appropriations resolution, P.L. 110-92 (H.J.Res. 52), was enacted
on September 29, 2007, to provide temporary FY2008 funding for most ongoing L-
HHS-ED activities, including the costs of direct loans and loan guarantees, for the
period October 1 through November 16, 2007, unless regular appropriations were
enacted before the end of that period. An FY2008 continuing resolution was
necessary because the regular L-HHS-ED appropriations were not enacted by the start
of FY2008 on October 1, 2007. The CR was amended by Division B of P.L. 110-116
(November 13, 2007), which extended the temporary funding period through
December 14, 2007.
Under the FY2008 continuing resolution, the funding level for each activity is
provided at a rate of operations like that provided in FY2007 appropriations acts and
under the same conditions and authority. Only the most limited funding actions are
authorized in order to provide for the continuation of projects and activities. New
initiatives are prohibited. For programs with high spend-out rates that normally
would occur early in the fiscal year, special restrictions prohibit spending levels that
would impinge on final FY2007 funding decisions. For entitlements and other
mandatory activities, obligations may be made for payments due on or about
November 1, 2007, and December 1, 2007. For additional information, please see
CRS Report RL30343, Continuing Appropriations Acts: Brief Overview of Recent
Practices.
! Continuing Resolution, P.L. 110-92 (H.J.Res. 52), provided
temporary appropriations for the period October 1, 2007, through
November 16, 2007, as long as regular appropriations were not
enacted sooner. H.J.Res. 52 was passed by the House on September
26 and by the Senate on September 27, and signed into law by the
President on September 29, 2007, as P.L. 110-92.
! Further Continuing Appropriations, 2008, Division B of P.L.
110-116 (H.R. 3222), amended P.L. 110-92 to extend the period for
temporary appropriations through December 14, 2007, as long as
regular appropriations are not enacted sooner. Division B was added
to the conference report on H.R. 3222, the FY2008 Defense
appropriations bill (H.Rept. 110-434) on November 6, 2007. The
House and Senate agreed to the conference report on November 8,
and the President signed the bill into law on November 13, 2007, as
P.L. 110-116.
Major Discretionary Programs, FY2007-FY2008
Table 4 shows the L-HHS-ED discretionary programs with the highest funding
levels in FY2007; eight programs accounted for at least 62% of all L-HHS-ED
discretionary appropriations. Each of the programs shown in Table 4 received more
than $3.0 billion in FY2007, and the aggregate funding for this group was $90.6
billion. As previously shown in Table 2 and Table 3, L-HHS-ED discretionary
funding totaled $144.7 billion in FY2007. For FY2008, under the budget request and
CRS-14
the various versions of H.R. 3043, these eight programs would still have accounted
for more than 62% of the discretionary appropriations for L-HHS-ED programs.
Table 4. Major Discretionary Programs, FY2007-FY2008
($ in millions)
FY2007
FY2008
FY2008
FY2008
FY2008
Major Program
Enacted
Request
House
Senate
Conf.
National Institutes of Health (NIH)
28,900
28,621
29,670
29,900
30,000
Pell Grants
13,661
13,414
15,583
14,487
14,498
Title I Part A Education for the
12,838
13,910
14,363
13,910
14,311
Disadvantaged, Grants to LEAs
IDEA Special Education, Part B
10,783
10,492
11,342
11,240
11,292
Grants to States
SSA Total Administrative Expenses
9,296
9,597
9,697
9,872
9,872
Head Start
6,889
6,789
6,964
7,089
7,042
WIA, all programs
5,134
4,502
5,235
5,247
5,269
CMS Program Management
3,141
3,274
3,230
3,248
3,277
Major L-HHS-ED subtotal
90,641
90,598
96,084
94,992
95,561
Other L-HHS-ED discretionary
54,094
51,112
58,125
57,320
57,734
L-HHS-ED discretionary total
144,735
141,710
154,209
152,311
153,295
Major programs as a % of total
62.6%
63.9%
62.3%
62.4%
62.3%
Source: Amounts are based on the Nov. 5, 2007, conference report on H.R. 3043 (H.Rept. 110-424),
which was vetoed on Nov. 13, 2007.
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
congressional committees 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 do not reach a budget agreement, these totals may be set
through leadership arrangements in each chamber. The 302(a) allocations determine
spending totals for each of the various committees, as well as the total discretionary
budget authority available for enactment in annual appropriations through the House
and Senate Committees on Appropriations.
Congress reached agreement on the FY2008 budget resolution on May 17, 2007,
when the House and Senate agreed to the conference report (H.Rept. 109-153) to
S.Con.Res. 21. The resolution established a 302(a) discretionary budget allocation
of $953.1 billion. For the purpose of comparison, the 302(a) discretionary allocation
agreed to for FY2007 was $872.8 billion. For additional information, please see CRS
Report RL34015, Congressional Budget Actions in 2007, by Bill Heniff Jr.
CRS-15
In the second stage of the annual congressional budget process, the House and
Senate Committees on Appropriations 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 5 shows the 302(b) discretionary allocations for the FY2008 L-HHS-ED
appropriations determined by the House and Senate Committees on Appropriations.
Comparable amounts for the FY2007 appropriations and the President’s FY2008
budget request are also shown. Both the 302(a) and 302(b) allocations regularly
become contested issues in their own right.
Table 5. FY2008 302(b) Discretionary Allocations
(budget authority in billions of dollars)
FY2008
FY2008
FY2008
FY2008
FY2007
Request
House
Senate
Conference
Comparable
Comparable
Allocation
Allocation
(vetoed)
144.6
140.9
151.7
149.9
150.7
Source: Amounts are based on the Nov. 5, 2007, conference report on H.R. 3043 (H.Rept. 110-424),
which was vetoed on Nov. 13, 2007.
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. 109-149,
which enacted FY2006 L-HHS-ED appropriations, provided $400 million for the
Corporation for Public Broadcasting (CPB) for use in FY2008. 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
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 the discussion titled “Forward Funding and Advance
Appropriations” in the section on the Department of Education, later in this report.
The FY1999 and FY2000 annual L-HHS-ED appropriations bills provided
significant increases in advance appropriations for discretionary programs.
CRS-16
Following FY2000, advance appropriations generally have been provided at $19.3
billion, with the exceptions of $18.8 billion in FY2001 and $21.5 billion in FY2003.
At $19.3 billion, advance appropriations accounted for 13.3% of the L-HHS-ED
current year discretionary total of $144.6 billion in FY2007. For FY2008, the
President requested $18.9 billion in advance appropriations for L-HHS-ED; the
House bill, the Senate bill, and the conference report would each have provided $19.3
billion.
From FY1998 to the present, advance appropriations included 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, $19.3 billion;
! FY2007, $19.3 billion;
! FY2008, President’s budget request, $18.9 billion;
! FY2008, House bill, $19.3 billion;
! FY2008, Senate bill, $19.3 billion; and
! FY2008, conference report, $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 6 shows the trend in discretionary budget authority enacted in the
L-HHS-ED appropriations for FY2002 through FY2007. During the past six years,
L-HHS-ED discretionary funds have grown from $127.2 billion in FY2002 to $144.7
billion in FY2007, an increase of $17.5 billion, or 13.8%. During this same period
— and using the Gross Domestic Product (GDP) deflator to adjust for inflation —
L-HHS-ED discretionary funds in estimated FY2007 dollars have dropped from
$145.0 billion in FY2002 to $144.7 billion in FY2007, a decrease of $0.3 billion, or
0.2%.
CRS-17
Table 6. Discretionary Funding Trends, FY2002-FY2007
(budget authority in billions of dollars)
Type of Funds
FY2002
FY2003
FY2004
FY2005 FY2006
FY2007
L-HHS-ED discretionary
127.2
132.4
139.7
143.4
141.5
144.7
L-HHS-ED discretionary in
145.0
147.9
152.2
151.6
145.1
144.7
estimated FY2007 dollars
GDP deflator (FY2000=1.0)
1.0432
1.0643
1.0918
1.1251
1.1598
1.1892
Sources: The GDP deflator is based on the Budget of the United States Government, Historical
Tables, Fiscal Year 2008, Table 10.1. L-HHS-ED totals for FY2002-FY2005 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. FY2006 and FY2007 L-HHS-ED discretionary totals
are based on the April 17, 2007 table of the House Committee on Appropriations.
Department of Labor
FY2007 discretionary appropriations for the Department of Labor (DOL) were
$11.7 billion. For FY2008, the Administration requested $11.0 billion, or $0.7
billion (6.2%) less than the FY2007 amount. See Table 7. The House
appropriations bill would have provided $11.8 billion in discretionary spending for
FY2008, and the Senate bill would have provided $11.9 billion. The conference
amount was $12.0 billion
Table 7. Department of Labor Discretionary Appropriations
($ in billions)
FY2007
FY2008
FY2008
FY2008
FY2008
Funding
Enacted
Request
House
Senate
Conf.
Appropriations
11.7
11.0
11.8
11.9
12.0
Source: Amounts are based on the Nov. 5, 2007, conference report on H.R. 3043 (H.Rept. 110-424),
which was vetoed on Nov. 13, 2007. Amounts represent discretionary spending funded by L-HHS-ED
appropriations; funds for mandatory programs are excluded.
Mandatory DOL programs included in the Revised Continuing Appropriations
Resolution, 2007 (P.L. 110-5) were funded at $3.0 billion, and consist of the Black
Lung Disability Trust Fund ($1,070 million), Federal Unemployment Benefits and
Allowances ($838 million), Advances to the Unemployment Insurance and Other
Trust Funds ($465 million), Special Benefits for Disabled Coal Miners ($297
million), Employment Standards Administration (ESA) Special Benefits ($227
million), and Energy Employees Occupational Illness Compensation Fund ($102
million).
CRS-18
Key Issues
President’s Request. The President’s FY2008 budget request for DOL
proposed changes in funding for a number of activities. Proposed discretionary
changes of at least $100 million compared to FY2007 appropriations were as follows:
! The Administration’s budget request would have reduced WIA
funding by $632 million, from $5.1 billion for FY2007 to $4.5
billion for FY2008.
! The WIA Dislocated Worker Assistance programs, funded at $1.5
billion in FY2007, would have been decreased by $357 million in
FY2008, including a decrease of $287 million for state grants.1
! WIA Adult Training grants to states, funded at $864 million in
FY2007, would have been reduced by $152 million.
! WIA Youth Training, funded at $941 million in FY2007, would
have been reduced by $100 million.
! Community Service Employment for Older Americans would have
fallen by $134 million, from $484 million to $350 million.
House Bill. For DOL programs, the House bill differed by at least $100
million from the President’s budget request, as follows.
! The House bill would have raised funding for WIA programs by
$734 million above the Administration’s request and by $101
million above appropriations for FY2007.
! The House measure would have funded WIA Dislocated Worker
Assistance programs at $1.5 billion, the same amount appropriated
for FY2007. The House proposal was $357 million more than the
Administration’s request.
! The House bill would have funded WIA Adult Training grants to
states at the same level as FY2007 and at $152 million more than the
Administration’s request.
! The House would have increased funding for the Job Corps by $127
million above the amount requested and by $71 million above
FY2007 appropriations of $1.6 billion.
! WIA Youth Training programs would have been funded at the same
level as FY2007 and at $100 million above the Administration’s
request of $841 million.
! The House would have funded Community Service Employment for
Older Americans at $531 million, or $181 million above the
Administration’s request and $47 million more than FY2007.
Senate Bill. The Senate bill does not differ from the House bill by at least
$100 million for any DOL program.
1 Appropriations for FY2007 set aside $125 million from the Dislocated Worker Assistance
National Reserve program for the Community College initiative. The President requested
$150 million in direct appropriations for Community College grants.
CRS-19
Conference Report. Compared to FY2007 funding, the conference
agreement would have changed discretionary spending by at least $100 million for
the WIA program.
! Funding for WIA would have increased by $135 million, from $5.1
billion for FY2007.
CRS Products
CRS Report RL33754, Minimum Wage in the 110th Congress, by William G.
Whittaker.
CRS Report RL33362, Unemployment Insurance: Available Unemployment Benefits
and Legislative Activity, by Julie M. Whittaker.
CRS Report RL33687, The Workforce Investment Act (WIA): Program-by-Program
Overview and Funding of Title I Training Programs, by Blake Alan Naughton.
Websites
Department of Labor
[http://www.dol.gov]
[http://www.dol.gov/_sec/Budget2008/overview.htm]
[http://www.doleta.gov/budget/08bud.cfm]
Detailed Appropriations Table
Table 8 shows the appropriations details for offices and major programs of
DOL.
CRS-20
Table 8. Detailed Department of Labor Appropriations
($ in millions)
FY2007
FY2008
FY2008
FY2008
FY2008
Office or Major Program
Enacted
Request
House
Senate
Conf.
Total Workforce Investment Act, Title I
5,134
4,502
5,235
5,247
5,269
(WIA) (non-add)
Employment and Training Administration (ETA)
Training and Employment Services
(TES), WIA Adult Training Grants to
864
712
864
864
864
States
WIA Youth Training
941
841
941
941
941
WIA Dislocated Worker Assistance
1,472
1,115
1,472
1,472
1,472
(DWA)
DWA State Grants (non-add)
1,190
903
1,190
1,190
1,190
DWA National Reserve Community
College initiative set aside (non-add)a
125
0
125
150
125
DWA National Reserve, other (non-
add)a
157
212
157
132
157
WIA Migrant and Seasonal
80
0
84
80
83
Farmworkers
WIA Community College Grants
(Community-Based Job Training)a
0
150
0
0
0
Other WIA and TES Activities
200
305
170
231
260
TES subtotal
3,556
2,972
3,531
3,587
3,619
Community Service Employment for
484
350
531
484
531
Older Americans
Federal Unemployment Benefits and
838
889
889
889
889
Allowances (mandatory)
State Unemployment Insurance and
Employment Service Operations
2,508
2,561
2,561
2,561
2,561
(SUI/ESO) Unemployment
Compensation
SUI/ESO Employment Service
749
722
759
750
749
SUI/ESO Employment Service State
716
689
726
716
716
Grants (non-add)
S
UI/ESO O
ne-Stop Career Centers
64
56
53
56
53
SUI/ESO Work Incentives Grants
20
0
10
20
15
SUI/ESO subtotal
3,340
3,339
3,383
3,387
3,378
Advances to Unemployment Trust
465
437
437
437
437
Fund and other funds (mandatory)
ETA Program Administration
200
216
171
186
177
ETA subtotal
8,883
8,203
8,940
8,969
9,030
Employee Benefits Security
142
147
143
143
143
Administration
PBGC program level (non-add)
405
411
411
411
411
Employment Standards Administration (ESA)
ESA Salaries and Expenses
421
448
437
439
438
ESA Special Benefits (mandatory)
227
203
203
203
203
ESA Special Benefits for Disabled
297
270
270
270
270
Coal Miners (mandatory)
CRS-21
FY2007
FY2008
FY2008
FY2008
FY2008
Office or Major Program
Enacted
Request
House
Senate
Conf.
ESA Energy Employees Occupational
Illness Compensation Fund
102
105
105
105
105
(mandatory)
ESA Black Lung Disability Trust Fund
1,070
1,068
1,068
1,068
1,068
(mandatory)
ESA subtotal
2,117
2,094
2,082
2,084
2,083
Occupational Safety and Health
487
490
504
498
501
Administration (OSHA)
Mine Safety and Health
302
313
313
340
340
Administration (MSHA)
Bureau of Labor Statistics
548
574
576
560
567
Office of Disability Employment
28
19
28
28
28
Policy
Departmental Management
WIA Job Corpsb
1,578
1,522
1,649
1,660
1,651
International Labor Affairs
73
14
73
83
83
Veterans Employment and Training
223
228
228
231
228
Departmental Management, other
299
319
279
310
301
Departmental Management subtotal
2,173
2,083
2,229
2,284
2,263
Working Capital Fund
6
12
0
0
0
TOTALS, DEPARTMENT OF LABOR
Total Appropriationsc
14,685
13,936
14,815
14,906
14,954
Current Year Funding
12,154
11,411
12,290
12,381
12,429
One-Year Advance Funding
2,531
2,525
2,525
2,525
2,525
Source: Amounts are based on the Nov. 5, 2007, conference report on H.R. 3043 (H.Rept. 110-424),
which was vetoed on Nov. 13, 2007.
a. The WIA community college initiative (i.e., Community-Based Job Training program) was funded
at $125 million in FY2007 from Dislocated Worker Assistance National Reserve funds. The
President’s budget request for FY2008 would have provided direct appropriations of $150
million. To reflect this difference, in Table 8 the program is shown on two lines.
b. The FY2006 appropriations bill directed DOL to transfer the Job Corps from ETA to the Office
of the Secretary. The Administration’s budget request for FY2008 sought to return the Job
Corps to ETA. The FY2008 appropriations bills would have kept the Job Corps in the Office
of the Secretary. In Table 8, the Job Corps is included in DOL Departmental Management.
c. Appropriations totals include discretionary and mandatory spending and may be subject to
additional scorekeeping and other adjustments.
CRS-22
Department of Health and Human Services
FY2007 discretionary appropriations for the Department of Health and Human
Services (HHS) were $64.1 billion. For FY2008, the budget request was $63.2
billion, $859 million (1.3%) less than the FY2007 amount, as shown in Table 9. The
FY2008 House appropriations bill would have provided $68.4 billion in discretionary
funding, an increase of $4.31 billion (6.7%) over FY2007. The Senate bill would
have provided $68.1 billion, $4.09 billion (6.4%) over the FY2007 level. The
conference report level was $68.5 billion, an increase of $4.42 billion (6.9%) over
FY2007.
Table 9. Department of Health and Human Services
Discretionary Appropriations
($ in billions)
FY2007
FY2008
FY2008
FY2008
FY2008
Funding
Enacted
Request
House
Senate
Conf.
Appropriations
64.1
63.2
68.4
68.1
68.5
Source: Amounts are based on the Nov. 5, 2007, conference report on H.R. 3043 (H.Rept. 110-424),
which was vetoed on Nov. 13, 2007. Amounts represent discretionary spending 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). FDA and IHS are both agencies of HHS,
but they are funded through other appropriations bills.
Mandatory HHS programs included in the L-HHS-ED bill were funded at
$360.5 billion in FY2007, and consist primarily of Medicaid Grants to States ($170.7
billion), Payments to Medicare Trust Funds ($176.3 billion, including both Part B
Supplementary Medical Insurance and Part D Prescription Drugs), Foster Care and
Adoption Assistance State Payments ($6.7 billion), Family Support Payments to
States ($4.3 billion), and the Social Services Block Grant ($1.7 billion).
Key Issues
President’s Request. The President’s FY2008 budget request for HHS
proposed increased support for the Public Health and Social Services Emergency
Fund (PHSSEF), and for program management and a fraud control initiative for the
administration of Medicare and Medicaid. At the same time, it proposed overall
funding reductions for health resources and services, disease control and prevention,
medical research, substance abuse and prevention, programs for children and
families, and services for the aging. Not all programs in each category were
decreased; selected programs in most of the categories were requested for increases.
Requests for major changes are indicated below.
Discretionary spending changes of at least $100 million were requested in the
President’s FY2008 budget for several HHS programs, as follows.
CRS-23
! Health Professions programs other than those for nursing, funded at
$185 million in FY2007, would have been decreased by $175
million to $10 million.
! Children’s Hospitals Graduate Medical Education, funded at $297
million in FY2007, would have been reduced by $187 million to
$110 million.
! Rural Health Programs, funded at $129 million in FY2007, would
have been reduced by $104 million to $25 million.
! Buildings and Facilities at the Centers for Disease Control and
Prevention (CDC), funded at $134 million in FY2007, would have
been reduced by $114 million to $20 million.
! The National Institutes of Health (NIH), funded at $28.90 billion in
FY2007, would have been reduced by $279 million to $28.62
billion.
! At the Substance Abuse and Mental Health Services Administration
(SAMHSA), the Mental Health Block Grant (MHBG) and the
Substance Abuse Block Grant (SABG) were proposed for level
funding ($407 million and $1.68 billion, respectively), but all other
SAMHSA activities would have been reduced, in the aggregate, by
$160 million, from $1.12 billion in FY2007 to $960 million.
! At the Centers for Medicare and Medicaid Services (CMS), a Fraud
and Abuse Control Initiative would have been funded at $183
million, while CMS Program Management would have been
increased by $133 million, from $3.14 billion in FY2007 to $3.27
billion.
! The Low-Income Home Energy Assistance Program (LIHEAP),
funded at $2.16 billion in FY2007, would have been decreased by
$379 million to $1.78 billion.
! The Social Services Block Grant, funded at $1.7 billion in FY2007,
would have been reduced by $500 million to $1.2 billion, but only
if a legislative change proposed by the Administration had been
adopted by Congress. (Under current law, the request remained at
$1.7 billion.)
! Head Start, funded at $6.89 billion in FY2007, would have been
decreased by $100 million to $6.79 billion.
! The Community Services Block Grant (CSBG), funded at $630
million in FY2007, would have been eliminated.
! The PHSSEF, funded at $717 million in FY2007, would have been
increased by $1.04 billion to $1.75 billion. Funding covers
homeland security activities and pandemic influenza preparedness,
both of which would have been increased. (For details on pandemic
influenza appropriations, see CRS Report RS22576.)
House Bill. For HHS programs, the House bill differed by at least $100
million from the President’s budget request, as follows.
! The Health Centers program would have received $2.19 billion
under the House bill, $200 million more than requested; $1.99
billion was provided in FY2007.
CRS-24
! Health Professions other than nursing would have received $228
million, $219 million more than requested; $185 million was
provided in FY2007.
! CHGME would have received $307 million, $197 million more than
requested; $297 million was provided in FY2007.
! Rural Health Programs would have received $145 million, $120
million more than requested; $129 million was provided in FY2007.
Those amounts excluded funding for the Denali Commission, which
was funded under Rural Health at $39 million in FY2007, but which
the House bill removed from the category in the FY2008 bill. It was
given no funding in the request or the House bill. (The Senate bill
would have retained the Commission in Rural Health at $39
million.)
! Health Care-Related Facilities and Activities would have received
$128 million; no funds were requested and none were provided in
FY2007.
! The CDC Infectious Diseases program would have received $1.90
billion, $119 million more than requested; $1.79 billion was
provided in FY2007.
! The Preventive Health and Health Services Block Grant (PHBG)
would have received $109 million. No funds were requested; $99
million was provided in FY2007.
! NIH would have received $29.67 billion, $1.05 billion more than
requested; $28.90 billion was provided in FY2007.
! SAMHSA activities other than the two block grants would have
received $1.14 billion, $179 million more than requested; $1.12
billion was provided in FY2007.
! The Agency for Healthcare Research and Quality (AHRQ) would
have received an appropriation of $283 million; previously, all of its
funding had come indirectly from the PHS Evaluation Tap. The
House bill would have provided an additional $47 million from the
PHS tap, for a total of $330 million, the same as the request; AHRQ
received $319 million from the tap in FY2007.
! The CMS Fraud and Abuse Control Initiative would have received
$383 million, $200 million more than requested; there was no
funding in FY2007.
! LIHEAP would have received $2.66 billion, $880 million more than
requested; $2.16 billion was provided in FY2007.
! Head Start would have received $6.96 billion, $175 million more
than requested; $6.89 billion was provided in FY2007.
! The CSBG would have been funded at $660 million. No funds were
requested; $630 million was provided in FY2007.
Senate Bill. The Senate bill differed from the House bill by at least $100
million for several HHS programs.
! CHGME would have been funded at $200 million, $107 million less
than the House amount of $307 million; $110 million was requested,
and $297 million was provided in FY2007.
CRS-25
! CDC Infectious Diseases would have been funded at $1.76 billion,
$138 million less than the House amount of $1.90 billion; $1.78
billion was requested, and $1.79 billion was provided in FY2007.
! Buildings and Facilities at CDC would have been funded at $220
million, $210 million more than the House amount of $10 million;
$20 million was requested, and $134 million was provided in
FY2007.
! The NIH would have received $29.90 billion, $230 million more
than the House amount of $29.67 billion; $28.62 billion was
requested, and $28.90 billion was provided in FY2007.
! LIHEAP would have been funded at $2.16 billion, $501 million less
than the House amount of $2.66 billion; $1.78 billion was requested,
and $2.16 billion was provided in FY2007.
! Head Start would have received $7.09 billion, $125 million more
than the House amount of $6.96 billion; $6.79 billion was requested,
and $6.89 billion was provided in FY2007.
Conference Report. Compared to FY2007 funding, the conference
agreement would have changed discretionary spending by at least $100 million for
several HHS programs.
! Community Health Centers would have received $2.21 billion, $225
million more than requested and $225 million more than the FY2007
amount of $1.99 billion.
! Health Care-Related Facilities and Activities would have received
$318 million; no funds were requested for FY2008 or provided in
FY2007.
! NIH would have received $30.0 billion, $1.4 billion more than
requested and $1.1 billion more than the FY2007 amount of $28.9
billion.
! AHRQ would have received no direct appropriation but would have
received $335 million indirectly from the PHS Evaluation Tap, $5
million more than requested and $16 million more than the FY2007
amount of $319 million from the tap.
! CMS Program Management would have received $3.28 billion, $2
million more than requested and $135 million more than the FY2007
amount of $3.14 billion.
! The CMS Fraud and Abuse Control Initiative would have received
$383 million, $200 million more than requested; there was no
funding in FY2007.
! LIHEAP would have been funded at $2.41 billion, $630 million
more than requested and $250 million more than the FY2007
amount of $2.16 billion.
! Head Start would have received $7.04 billion, $254 million more
than requested and $154 million more than the FY2007 amount of
$6.89 billion.
! The PHSSEF would have received $1.51 billion, $248 million less
than requested and $788 million more than the FY2007 amount of
$717 million. Included in the conference amount would have been
CRS-26
$764 million for pandemic influenza preparedness; in FY2007,
pandemic flu activities were funded elsewhere.
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 a restriction, popularly referred to as the “Weldon Amendment,” that
prevents federal programs or state or local governments that receive L-HHS-ED
funds from discriminating against health care entities that do not provide or pay for
abortions or abortion services. The FY2006 L-HHS-ED appropriations retained the
Weldon amendment language and the Hyde restrictions. These provisions can be
found in §507 and §508 of P.L. 109-149. Under the FY2007 continuing resolution
(P.L. 110-5), the provisions also applied to FY2007 funds. The House, Senate, and
conference bills for FY2008 would have retained the same language. For additional
information, please see CRS Report RL33467, Abortion: Legislative Response, by
Jon O. Shimabukuro and Karen J. Lewis.
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
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 21 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
for some because the embryos are destroyed in order to obtain the cells.
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
CRS-27
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.
The FY2006 L-HHS-ED appropriations continued the restrictions without significant
change, and they carried over to FY2007 under the continuing resolution, P.L. 110-5.
The current provision can be found in §509 of P.L. 109-149; identical language was
also found in §509 of the House, Senate, and conference bills for FY2008. The
Senate-reported bill (S. 1710) included a new §520 that would have allowed, if
certain ethical requirements were met, amounts appropriated under the act to be used
to conduct human embryonic stem cell research as long as the cells were derived
before June 15, 2007, thus changing the August 2001 policy of the Bush
Administration. The provision was dropped, however, from the substitute bill that
the Senate considered and eventually passed as H.R. 3043. For additional
information, please see CRS Report RL33540, Stem Cell Research: Federal
Research Funding and Oversight, by Judith A. Johnson and Erin D. Williams.
CRS Products
Health
CRS Report RL33467, Abortion: Legislative Response, by Jon O. Shimabukuro and
Karen J. Lewis.
CRS Report RL30731, AIDS Funding for Federal Government Programs:
FY1981-FY2008, by Judith A. Johnson.
CRS Report RS21044, Background and Legal Issues Related to Stem Cell Research,
by Jon O. Shimabukuro.
CRS Report RL34048, Federal Research and Development Funding: FY2008, by
Michael E. Davey et al.
CRS Report RL31358, Human Cloning, by Judith A. Johnson and Erin D. Williams.
CRS Report RL33695, The National Institutes of Health (NIH): Organization,
Funding, and Congressional Issues, by Pamela W. Smith.
CRS Report RS22576, Pandemic Influenza: Appropriations for Public Health
Preparedness and Response, by Sarah A. Lister.
CRS Report RL34098, Public Health Service (PHS) Agencies: Background and
Funding, by Pamela W. Smith et al.
CRS Report RL33279, The Ryan White HIV/AIDS Treatment Program, by Judith A.
Johnson and Paulette C. Morgan.
CRS Report RL33540, Stem Cell Research: Federal Research Funding and
Oversight, by Judith A. Johnson and Erin D. Williams.
CRS-28
CRS Report RL33997, Substance Abuse and Mental Health Services Administration
(SAMHSA): Reauthorization Issues, by Ramya Sundararaman.
Human Services
CRS Report RL30785, The Child Care and Development Block Grant: Background
and Funding, by Melinda Gish.
CRS Report RL34121, Child Welfare: Recent and Proposed Federal Funding, by
Emilie Stoltzfus.
CRS Report RL32872, Community Services Block Grants (CSBG): Funding and
Reauthorization, by Karen Spar.
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 Libby Perl.
CRS Report 94-953, Social Services Block Grant (Title XX of the Social Security
Act), by Melinda Gish.
Websites
Department of Health and Human Services
[http://www.hhs.gov]
[http://www.hhs.gov/budget/docbudget.htm]
Detailed Appropriations Table
Table 10 shows the appropriations details for offices and major programs of
HHS.
CRS-29
Table 10. Detailed Department of Health and
Human Services Appropriations
($ in millions)
FY2007
FY2008
FY2008
FY2008
FY2008
Office or Major Program
Enacted
Request
House
Senate
Conf.
Public Health Service (PHS)
Health Resources and Services Administration (HRSA)
Community Health Centers
1,988
1,988
2,188
2,238
2,213
National Health Service Corps
126
116
132
126
132
Health Professions, Nursing
150
105
166
170
168
Health Professions, other
185
10
228
190
212
Children’s Hospital Graduate Medical
297
110
307
200
307
Education
Maternal and Child Health Block Grant
693
693
750
673
683
Autism and Other Developmental
Disordersa
0
0
0
37
37
Ryan White AIDS Programs
2,113
2,133
2,216
2,146
2,197
Rural Health Programsb
129
25
145
133
145
Family Planning (Title X)
283
283
311
300
311
Health Care-Related Facilities and
0
0
128
191
318
Activities
Bioterrorism Hospital Grantsc
0
0
0
0
0
Vaccine Injury Compensation Trust
56
58
58
58
58
Fund (mandatory)
HRSA, other
435
339
498
467
522
HRSA subtotal
6,453
5,860
7,126
6,928
7,302
Centers for Disease Control and
1,774
1,782
1,901
1,762
1,849
Prevention (CDC) Infectious Diseases
Health Promotion
947
959
1,002
983
992
Terrorism Preparedness and Response
1,496
1,504
1,599
1,632
1,549
Preventive Health and Health Services
99
0
109
99
104
Block Grant (PHBG)
CDC Buildings and Facilities
134
20
10
220
147
CDC, other
1,488
1,452
1,517
1,469
1,647
CDC subtotald
5,938
5,717
6,138
6,165
6,288
National Institutes of Health (NIH)d
28,900
28,621
29,670
29,900
30,000
Substance Abuse and Mental Health
Services Administration (SAMHSA)
407
407
420
407
407
Mental Health Block Grant
Substance Abuse Block Grant
1,679
1,679
1,714
1,679
1,697
SAMHSA, other
1,120
960
1,139
1,192
1,187
SAMHSA subtotal
3,206
3,046
3,273
3,278
3,291
Agency for Healthcare Research and
0
0
283
330
0
Quality (AHRQ)
AHRQ program level (non-add)
319
330
330
330
335
PHS subtotal
44,497
43,244
46,489
46,601
46,881
Centers for Medicare and Medicaid Services (CMS)
Medicaid Grants to States (mandatory)
170,729
208,921
208,923
208,921
208,921
Medicare Trust Funds (mandatory)
176,298
188,628
188,828
188,828
188,828
CMS Program Management
3,141
3,274
3,230
3,248
3,277
Fraud and Abuse Control initiative
0
183
383
383
383
CMS subtotal
350,168
401,006
401,364
401,380
401,408
CRS-30
FY2007
FY2008
FY2008
FY2008
FY2008
Office or Major Program
Enacted
Request
House
Senate
Conf.
Administration for Children and Families (ACF)
Family Support Payments (mandatory)
4,264
3,950
3,950
3,950
3,950
Low Income Home Energy Assistance
2,161
1,782
2,662
2,161
2,412
Program (LIHEAP)
Refugee and Entrant Assistance
588
656
651
654
652
Child Care and Development Block
2,062
2,062
2,137
2,067
2,100
Grant (CCDBG)
Social Services Block Grant (SSBG)
1,700
1,700 e
1,700
1,700
1,700
(Title XX) (mandatory)
Head Start
6,889
6,789
6,964
7,089
7,042
Child Welfare Services
287
287
287
287
287
Developmental Disabilities
171
171
197
191
190
Community Services Block Grant
630
0
660
670
665
Battered Women’s Shelters
125
125
135
127
131
Abstinence Education
109
137
137
80
137
Children and Family Services, other
728
732
768
769
769
Promoting Safe and Stable Families
345
345
345
345
345
(PSSF) (mandatory)
PSSF (discretionary)
89
89
89
89
89
Foster Care and Adoption Assistance
6,722
6,843
6,858
6,843
6,843
(mandatory)
ACF subtotal
26,869
25,666
27,538
27,023
27,311
Administration on Aging (AOA)
1,383
1,335
1,417
1,452
1,447
Office of the Secretary
General Departmental Management
356
393
348
404
393
Medical Benefits, Commissioned
371
403
403
403
403
Officers (mandatory)
Public Health and Social Services
717
1,754
1,705
1,730
1,506
Emergency Fund (PHSSEF)
Office of the Secretary, other
177
242
165
196
177
Office of the Secretary subtotal
1,621
2,790
2,621
2,732
2,478
TOTALS, DEPARTMENT OF HEALTH AND HUMAN SERVICES
Total Appropriationsf
424,539
474,042
479,430
479,187
479,525
Current Year Funding
355,082
402,584
407,972
407,729
408,068
One-Year Advance Funding
69,456
71,457
71,457
71,457
71,457
Source: Amounts are based on the Nov. 5, 2007, conference report on H.R. 3043 (H.Rept. 110-424),
which was vetoed on Nov. 13, 2007. May not add due to rounding.
a. HRSA activities related to autism have been funded under the Maternal and Child Health Block
Grant as part of the set-aside for Special Projects of Regional and National Significance
(SPRANS). The Senate bill and the conference report would have created a separate funding
line for the autism-related activities.
b. The Rural Health Programs category previously included funding for the Denali Commission ($39
million in FY2007). The conference report would have moved the funding line out of Rural
Health (see discussion under House Bill above).
c. P.L. 110-5 transferred the HRSA bioterrorism grants program to the Office of the HHS Secretary.
d. Two HHS programs also received FY2007 funds from Interior-Environment appropriations — $75
million for CDC and $79 million for NIH; neither amount is included in this table.
e. The $1.7 billion shown reflects the current law entitlement to states for the Social Services Block
Grant. For FY2008, the Administration proposed a reduction of $500 million in the entitlement,
which would bring the requested total to $1.2 billion.
f. Appropriations totals include discretionary and mandatory funds, and may be subject to additional
scorekeeping and other adjustments. Two HHS agencies were funded through other
appropriations in FY2007: the Food and Drug Administration (FDA) in Agriculture
appropriations ($1.6 billion), and the Indian Health Service (IHS) in Interior-Environment
appropriations ($3.2 billion); neither agency is included in this table.
CRS-31
Department of Education
FY2007 discretionary appropriations for the Department of Education (ED)
were $57.5 billion. For FY2008, the budget request was $56.2 billion, $1.3 billion
(2.2%) less than the FY2007 amount, as shown in Table 11. The FY2008 House
appropriations bill would have provided $62.1 billion in discretionary funding, an
increase of $4.6 billion (8.0%) over FY2007. The Senate bill would have provided
$60.1 billion, $2.6 billion (4.6%) over the FY2007 level. The conference agreement
would have provided $60.7 billion in discretionary funding, $3.2 billion (5.6%) over
the FY2007 amount.
Table 11. Department of Education
Discretionary Appropriations
($ in billions)
FY2007
FY2008
FY2008
FY2008
FY2008
Funding
Enacted
Request
House
Senate
Conf.
Appropriations
57.5
56.2
62.1
60.1
60.7
Source: Amounts are based on the Nov. 5, 2007, conference report on H.R. 3043 (H.Rept. 110-424),
which was vetoed on Nov. 13, 2007. Amounts represent discretionary spending funded by L-HHS-ED
appropriations; funds for mandatory programs are excluded.
A single mandatory ED program is included in the FY2008 L-HHS-ED bill; the
Vocational Rehabilitation State Grants program was funded at $2.8 billion in
FY2007.
Key Issues
President’s Request. Under the FY2008 budget request, funding for several
programs would have been increased, and five new education programs were
proposed. However, the President’s request would have eliminated funding for 44
existing programs and reduced the total discretionary funding for ED programs in
FY2008.
The President’s FY2008 budget request proposed changes of at least $100
million for ED programs, as follows.
! Elementary and Secondary Education Act of 1965 (ESEA)
programs, funded in aggregate at $23.5 billion in FY2007, would
have been increased by $993 million in the President’s FY2008
budget request.
! Title I, Part A, Grants to LEAs for Education for the Disadvantaged,
funded at $12.8 billion in FY2007, would have been increased by
$1.1 billion.
! School Improvement Grants, funded at $125 million in FY2007,
would have been increased by $375 million.
! Three K-12 education initiatives of at least $100 million were
proposed by the President: $125 million for Math Now, Elementary;
CRS-32
$125 million for Math Now, Middle School; and $250 million for
Promise Scholarships.
! Educational Technology State Grants, funded at $272 million in
FY2007, would have been eliminated.
! The Fund for the Improvement of Education (FIE), funded at $159
million in FY2007, would have been reduced by $100 million.
! The Teacher Incentive Fund, funded at $0.2 million in FY2007,
would have been increased by $199 million.
! Safe and Drug-Free Schools State Grants, funded at $347 million in
FY2007, would have been decreased by $247 million.
! The IDEA Part B Grants to States program, funded at $10.8 billion
in FY2007, would have been decreased by $291 million.
! The Perkins Career and Technical Education program, funded at
$1.3 billion in FY2007, would have been decreased by $686 million.
! The Pell Grants program, funded at $13.7 billion in FY2007, would
have been reduced by $247 million. The maximum appropriated
award would have been $4,050; $4,310 was the maximum award in
FY2007.
! Federal Supplemental Educational Opportunity Grants, funded at
$771 million in FY2007, would have been eliminated.
House Bill. For ED programs, the House bill, as passed, differed by at least
$100 million from the President’s budget request, as follows.
! ESEA programs in aggregate would have received $25.5 billion,
$1.0 billion more than requested; $23.5 billion was provided in
FY2007.
! Title I, Part A, Grants to LEAs would have received $14.4 billion,
$453 million more than requested; $12.8 billion was provided in
FY2007.
! Reading First State Grants would have received $354 million, $665
million less than requested; $1.0 billion was provided in FY2007.
! Of the President’s proposed education initiatives of $100 million or
more, no funds would have been provided for Math Now,
Elementary ($125 million requested); Math Now, Middle School
($125 million); or Promise Scholarships ($250 million).
! Teacher Quality State Grants would have received $3.2 billion, $400
million more than requested; $2.9 billion was provided in FY2007.
! Education Technology State Grants would have received $272
million; no funds were requested; $272 million was provided in
FY2007.
! The 21st Century Community Learning Centers would have received
$1.1 billion, $125 million more than requested; $981 million was
provided in FY2007.
! The Fund for the Improvement of Education would have received
$205 million, $147 million more than requested; $159 million was
provided in FY2007.
! The Teacher Incentive Fund would have received $99 million, $100
million less than requested; $0.2 million was provided in FY2007.
CRS-33
! Safe and Drug-Free Schools State Grants would have received $347
million, $247 million more than requested; $347 million was
provided in FY2007.
! English Language Acquisition State Grants would have received
$775 million, $104 million more than requested; $669 million was
provided in FY2007.
! IDEA, Part B Grants to States would have received $11.3 billion,
$850 million more than requested; $10.8 billion was provided in
FY2007.
! Perkins Career and Technical Education would have received $1.3
billion, $710 million more than requested; $1.3 billion was provided
in FY2007.
! Pell Grants would have received $15.6 billion, $2.2 billion more
than requested; $13.7 billion was provided in FY2007. The Pell
Grant maximum appropriated award would have been increased to
$4,700; $4,050 was requested as the appropriated maximum award;
$4,310 was the maximum award in FY2007.
! Federal Supplemental Opportunity Grants would have received $771
million; no funds were requested; $771 million was provided in
FY2007.
! Aid for Institutional Development for higher education would have
received $648 million; $159 million more than requested; $506
million was provided in FY2007.
! Departmental Management would have received $366 million, $227
million less than requested; $560 million was provided in FY2007.
Senate Bill. The Senate bill differed from the House bill by at least $100
million for several ED programs.
! ESEA programs in aggregate would have received $24.6 billion,
$926 million less than the House amount of $25.5 billion; $24.5
billion was requested; $23.5 billion was provided in FY2007.
! Title I, Part A, Grants to LEAs would have received $13.9 billion,
$453 million less than the House amount of $14.4 billion; $13.9 was
requested; $12.8 billion was provided in FY2007.
! Reading First State Grants would have been funded at $800 million,
$447 million more than the House amount of $354 million; the
request was for $1.0 billion; $1.0 billion was provided in FY2007.
! Teacher Quality State Grants would have been funded at $2.9
billion, $300 million less than the House amount of $3.2 billion;
$2.8 billion was requested; $2.9 billion was provided in FY2007.
! The 21st Century Community Learning Centers would have received
$1.0 billion, $106 million less than the House amount of $1.1
billion; $981 million was requested; $981 million was provided in
FY2007.
! IDEA Part B Grants to States would have received $11.2 billion,
$102 million less than the House amount of $11.3 billion; $10.5
billion was requested; $10.8 billion was provided in FY2007.
! Pell Grants would have received $14.5 billion, $1.1 billion less than
the House amount of $15.6 billion; $13.4 billion was requested;
CRS-34
$13.7 billion was provided in FY2007. The FY2008 maximum
appropriated award would have been $4,310 under the Senate bill.
The maximum appropriated award would have been $4,700 under
the House bill. The maximum appropriated award would have been
$4,050 under the request. In FY2007, the maximum Pell Grant
award was $4,310.
! Aid for Institutional Development for higher education would have
received $507 million, $140 million less than the House amount of
$648 million; $489 million was requested; $506 million was
provided in FY2007.
! Departmental Management would have received $569 million, $202
million more than the House amount of $366 million; $594 million
was requested; $560 million was provided in FY2007.
Conference Report. The conference agreement would have changed
discretionary spending by at least $100 million for several ED programs, compared
to the FY2007 funding levels.
! ESEA programs in aggregate would have received $25.1 billion,
$594 million more than requested, and $1.6 billion more than the
FY2007 amount of $23.5 billion.
! Title I, Part A, Grants to LEAs would have received $14.3 billion,
$401 million more than requested, and $1.5 billion more than the
FY2007 amount of $12.8 billion.
! School Improvement Grants would have received $500 million, the
same amount requested, and $375 million more than the FY2007
amount of $125 million.
! Reading First State Grants would have been funded at $400 million,
$619 million less than requested, and $629 million less than the
FY2007 amount of $1.0 billion.
! Teacher Quality State Grants would have been funded at $3.0
billion, $250 million more than requested, and $150 million more
than the FY2007 amount of $2.9 billion.
! The 21st Century Community Learning Centers would have received
$1.1 billion, $100 million more than requested, and $100 million
more than the FY2007 amount of $981 million.
! The Fund for the Improvement of Education would have been
funded at $263 million, $205 million more than requested, and $104
million more than the FY2007 amount of $159 million.
! IDEA Part B Grants to States would have received $11.3 billion,
$800 million more than requested, and $509 million more than the
FY2007 amount of $10.8 billion.
! Pell Grants would have received $14.5 billion, $1.1 billion more
than requested, and $837 million more than the FY2007 amount of
$13.7 billion. The FY2008 maximum appropriated grant award
would have been $4,435, $385 more than requested and $125 more
than the FY2007 amount of $4,310.
! The Fund for the Improvement of Postsecondary Education would
have received $126 million, $104 more than requested, and $104
more than the FY2007 amount of $22 million.
CRS-35
New Programs and Program Elimination. The request included funding
for five new education programs; none of them would have been funded under the
conference agreement. The conference agreement, however, would have provided
$5 million in funding for two new programs, Programs for Bachelor’s Degrees in
Science, Technology, Engineering, and Mathematics (STEM) and Critical
Languages, and Programs for Master’s Degrees in STEM and Critical Languages.
The request would have eliminated funding for 44 education programs. The
conference agreement would have eliminated funding for 2 of the 44 programs — the
Early Childhood Educator Professional Development program, which was funded at
$15 million in FY2007, and the Innovative Education Block Grants, which were
funded at $99 million in FY2007. The conference agreement would also have
eliminated funding for the Credit Enhancement for Charter Schools, which was
funded at $37 million in FY2007. The request would have continued to fund this
program.
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. 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 authorization levels generally have been funded at lower levels; few
have been funded at levels equal to or higher than the specified authorization amount.
Five ESEA programs, as amended by NCLBA, have specific authorization
levels for FY2002 through FY2007: Title I, Part A Grants to Local Educational
Agencies (LEAs); 21st Century Community Learning Centers (21CCLC); the
Education Block Grant; School Choice; and the Fund for the Improvement of
Education. For FY2007, the aggregate authorization for these five programs was
$28.9 billion, and the appropriation was $14.4 billion, or $14.5 billion less than the
amount authorized.
All current ESEA program authorizations expired after FY2007. They have
been automatically extended, however, for one additional year under section 422 of
the General Education Provisions Act (GEPA) (20 U.S.C. 1226a, providing for
contingent extension of programs). Therefore, current ESEA programs are
authorized through September 30, 2008. GEPA also specifies that the amount
authorized to be appropriated for a program during the extension shall be the amount
that was authorized to be appropriated for the program during the terminal fiscal year
of the program. Thus, in the case of the five ESEA programs with specific
CRS-36
authorization levels for FY2007, those authorizations remain the same for FY2008.
Therefore, for FY2008, the aggregate authorization for the five programs is $28.9
billion, and the President’s request for the programs was $15.2 billion, or $13.7
billion less than the amount authorized.
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 3-21 that each state serves. Appropriations have never reached the
40% level. In 2004, Congress addressed the funding issue in P.L. 108-446, which
specified authorization ceilings for Part B Grants to States for FY2005 through
FY2011. For FY2007, the Part B Grants to States authorization was $16.9 billion,
and the appropriation was $10.8 billion, or $6.2 billion less than the authorized
amount. For FY2008, the authorized amount is $19.2 billion, and the President
requested $10.5 billion, or $8.7 billion less than the amount authorized. 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, by
Richard N. Apling and Ann Lordeman.
Forward Funding and Advance Appropriations. Most appropriations
are available for obligation during the federal fiscal year of the appropriations bill.
For example, most FY2008 appropriations will be available for obligation from
October 1, 2007, through September 30, 2008. 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, FY2008 appropriations
for some programs will become available for obligation to the states on July 1, 2008,
and will remain available until September 30, 2009. This budgetary procedure is
popularly known as “forward” or “multi-year” funding, and is accomplished through
funding provisions in the L-HHS-ED appropriations bill.
Forward funding in the case of elementary and secondary education programs
was designed to allow additional time for school officials to develop budgets in
advance of the beginning of the school year. For Pell Grants 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 FY2008 appropriations will be used primarily to support grants for
the 2008-2009 academic year. Unlike funding for elementary and secondary
education programs, however, the funds for Pell Grants remain available for
obligation for two full fiscal years.
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
FY2008 appropriations, funds normally would have become available October 1,
CRS-37
2007, under regular funding provisions, but will not become available for some
programs until July 1, 2008, under the forward funding provisions discussed above.
However, if the July 1, 2008 forward funding date for obligation were to be
postponed by three months — until October 1, 2008 — the appropriation would be
reclassified as an advance appropriation since the funds would become available only
in a subsequent fiscal year, FY2009. For example, the FY2008 budget request for
Title I, Part A Grants to LEAs was $13.9 billion. This amount includes not only
forward funding of $6.5 billion (to become available July 1, 2008), but also an
advance appropriation of $7.4 billion (to become available October 1, 2009). 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 more information, please see CRS Report RS20441, Advance
Appropriations, Forward Funding, and Advance Funding, by Sandy Streeter.
CRS Products
CRS Report RS20441, Advance Appropriations, Forward Funding, and Advance
Funding, by Sandy Streeter.
CRS Report RL33960, The Elementary and Secondary Education Act, as Amended
by the No Child Left Behind Act: A Primer, by Wayne C. Riddle and Rebecca
R. Skinner.
CRS Report RL31668, Federal Pell Grant Program of the Higher Education Act:
Background and Reauthorization, by Charmaine Mercer.
CRS Report RL32085, Individuals with Disabilities Education Act (IDEA): Current
Funding Trends, by Richard N. Apling and Ann Lordeman.
CRS Report RL33371, K-12 Education: Implementation Status of the No Child Left
Behind Act of 2001 (P.L. 107-110), by Gail McCallion, Coordinator.
CRS Report RL33749, The No Child Left Behind Act: An Overview of
Reauthorization Issues for the 110th Congress, by Wayne C. Riddle.
CRS Report RL34214, A Primer on the Higher Education Act (HEA), by Charmaine
Mercer and Rebecca R. Skinner.
CRS-38
Websites
Department of Education
[http://www.ed.gov/index.jhtml]
[http://www.ed.gov/about/overview/budget/budget08/index.html]
Detailed Appropriations Table
Table 12 shows the appropriations details for offices and major programs of
ED.
Table 12. Detailed Department of Education Appropriations
($ in millions)
FY2007
FY2008
FY2008
FY2008
FY2008
Office or Major Program
Enacted
Request
House
Senate
Conf.
Total Elementary and Secondary
Education Act (non-add)a
23,481
24,474
25,505
24,578
25,068
Education for the Disadvantaged
Title I, Part A Education for the
12,838
13,910
14,363
13,910
14.311
Disadvantaged, Grants to LEAs
Even Start
82
0
99
0
63
School Improvement Grants
125
500
500
500
500
Reading First State Grants
1,029
1,019
354
800
400
Math Now, Elementary initiative
0
125
0
0
0
Math Now, Middle School initiative
0
125
0
0
0
Promise Scholarships
0
250
0
0
0
America’s Opportunity Scholarships
0
50
0
0
0
Migrant State Grants
387
380
394
387
390
Education for the Disadvantaged,
264
330
261
271
266
other
Education for the Disadvantaged
14,726
16,689
15,970
15,868
15,931
subtotal
Impact Aid
Impact Aid
1,228
1,228
1,278
1,248
1,263
School Improvement Programs
Teacher Quality State Grants
2,887
2,787
3,187
2,887
3,037
Mathematics and Science
182
182
198
184
183
Partnerships
Innovative Education Block Grant
99
0
99
0
0
Educational Technology State
272
0
272
272
272
Grants
21st Century Community Learning
981
981
1,106
1,000
1,081
Centers
State Assessments
408
412
412
416
416
Rural Education
169
169
169
169
169
School Improvement, other
257
167
250
270
253
School Improvement subtotal
5,255
4,698
5,694
5,199
5,412
Indian Education
Indian Education
119
119
124
119
124
CRS-39
FY2007
FY2008
FY2008
FY2008
FY2008
Office or Major Program
Enacted
Request
House
Senate
Conf.
Innovation and Improvement
Charter School Grants
215
215
251
215
215
Fund for the Improvement of
159
58
205
219
263
Education general funds (FIE)
Teacher Incentive Fundb
0
199
99
99
99
Innovation and Improvement, other
464
450
437
430
433
Innovation and Improvement
838
922
992
963
1,010
subtotal
Safe Schools and Citizenship Education
Safe and Drug-Free Schools State
347
100
347
300
300
Grants
Safe Schools and Citizenship, other
383
224
414
397
409
Safe Schools and Citizenship
730
324
761
697
709
subtotal
English Language Acquisition
English Language Acquisition State
669
671
775
671
723
Grants
Special Education
IDEA, Part B, Grants to States
10,783
10,492
11,342
11,240
11,292
Special Education, other
1,020
993
1,020
1,090
1,066
Special Education subtotal
11,803
11,485
12,363
12,330
12,358
Rehabilitation Services and Disability Research
Vocational Rehabilitation State
2,837
2,874
2,874
2,874
2,874
Grants (mandatory)
Rehabilitation Services, other
405
347
406
413
412
Rehabilitation Services subtotal
3,243
3,221
3,280
3,287
3,286
Special Institutions for Persons with Disabilities
Special Institutions for Persons
181
181
188
192
198
With Disabilities
Vocational and Adult Education
Perkins Career and Technical
Educationc
1,296
610
1,319
1,294
1,319
Adult Education
580
580
603
578
590
Vocational and Adult, other
116
0
116
23
104
Vocational and Adult Education
subtotalc
1,992
1,190
2,038
1,895
2,013
Student Financial Aid
Pell Grants, maximum award (in
4,310
4,050
4,700
4,310
4,435
dollars, non-add)
Pell Grants
13,661
13,414
15,583
14,487
14,498
Supplemental Educational
771
0
771
771
771
Opportunity Grants
Federal Work-Study
980
980
980
980
980
Federal Perkins Loans
65
0
65
65
65
Leveraging Educational Assistance
65
0
65
65
65
Partnership (LEAP)
Student Financial Aid subtotal
15,542
14,394
17,465
16,369
16,380
CRS-40
FY2007
FY2008
FY2008
FY2008
FY2008
Office or Major Program
Enacted
Request
House
Senate
Conf.
Student Aid Administration
Student Aid Administration
718
708
708
708
708
Higher Education
Aid for Institutional Development
506
489
648
507
515
Fund for the Improvement of
22
22
63
82
126
Postsecondary Education (FIPSE)
TRIO Programs
828
828
868
858
858
GEAR UP
303
303
323
313
318
Higher Education, otherc
292
202
282
279
278
Higher Education subtotalc
1,951
1,845
2,185
2,040
2,096
Howard University
Howard University
237
234
237
237
237
Institute of Education Sciences
Institute of Education Sciences
517
594
535
590
561
Departmental Management
Departmental Management
560
594
366
569
568
Department of Education, otherd
Department of Education, other
1
1
1
1
1
TOTALS, DEPARTMENT OF EDUCATION
Total Appropriationse
60,310
59,099
64,960
62,982
63,577
Current Year Funding
45,276
44,065
47,956
45,965
46,560
One-Year Advance Funding
15,034
15,034
17,004
17,018
17,017
Source: Amounts are based on the Nov. 5, 2007, conference report on H.R. 3043 (H.Rept. 110-424),
which was vetoed on Nov. 13, 2007.
Note: Details may not add to totals due to rounding.
a. The totals for ESEA reported in this table do not match the ESEA totals reported by the U.S.
Department of Education for FY2007 enacted, the Senate bill, and the conference report because
the latter appear to have included $2 million for the Academies for American History program
under the Fund for the Improvement of Education (ESEA, Title V-D). The Academies for
American History program is authorized by the American History and Civics Education Act, not
the ESEA. If this funding were excluded from the aforementioned ESEA totals, FY2007
enacted would have provided $23,479 million for ESEA, the Senate bill would have provided
$24,576 million for ESEA, and the conference report would have provided $25,066 million for
ESEA. It appears that neither the request nor the House bill would have provided funding for
the Academies for American History program.
b. Funded at $0.2 million in FY2007.
c. The Tribally Controlled Postsecondary Career and Technical Institutions program was included
under Perkins Career and Technical Education under the FY2008 request and the House bill.
The Senate bill and the conference report, however, included funding for this program under
Higher Education. For comparison purposes, funds for this program that were included in the
request and the House bill were moved to the Higher Education account. Thus, the account
totals for Vocational and Adult Education and for Higher Education for the request and the
House bill will not match the totals included in the conference report.
d. Only includes appropriations for College Housing and Academic Facilities Loans and Historically
Black Colleges and Universities Capital Financing program.
e. Appropriations totals include discretionary and mandatory funds, and are subject to additional
scorekeeping and other adjustments.
CRS-41
Related Agencies
FY2007 discretionary appropriations for L-HHS-ED related agencies were $11.5
billion, as shown in Table 13. For FY2008, the Administration requested $11.3
billion, or $0.2 billion (1.7%) less than the FY2007 amount. The House bill would
have provided $11.9 billion for FY2008, and the Senate bill would have provided
$12.0 billion. The conference report level was $12.0 billion, an increase of $0.6
billion (5.3%) over FY2007.
Table 13. Related Agencies Discretionary Appropriations
($ in billions)
FY2007
FY2008
FY2008
FY2008
FY2008
Funding
Enacted
Request
House
Senate
Conf.
Appropriations
11.5
11.3
11.9
12.0
12.0
Source: Amounts are based on the Nov. 5, 2007, conference report on H.R. 3043 (H.Rept. 110-424),
which was vetoed on Nov. 13, 2007. Amounts represent discretionary spending 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 $43.0 billion in FY2007, virtually all of it for the Supplemental Security
Income (SSI) program.
Key Issues
President’s Request. The President’s FY2008 budget for related agencies
proposed discretionary spending changes of at least $100 million for the following
agencies:
! The Corporation for Public Broadcasting (CPB) has been provided
with a two-year advance appropriation in recent years. The
President’s FY2008 budget did not request FY2010 funds for CPB.
The CPB has been funded at $400 million for FY2009 (included in
L-HHS-ED funding for FY2007 under the Revised Continuing
Appropriations Resolution, P.L. 110-5), and $400 million for
FY2008 (enacted in FY2006).
! The Administration’s request for FY2008 would have increased
funding for SSA administrative expenses by $301 million to $9.6
billion, up from $9.3 billion for FY2007.
House Bill. For Related Agencies, the House bill differed by at least $100
million from the President’s budget request, as follows.
! The House bill would have provided CPB with advance funding for
FY2010 of $420 million. The Administration did not request funds
for FY2010.
! The House bill would have increased funding for SSA
administrative expenses to $9.7 billion, $100 million more than
CRS-42
requested by the Administration, and $401 million more than the
amount appropriated for FY2007.
Senate Bill. The Senate bill differed from the House bill by at least $100
million for SSA administrative expenses.
! The Senate bill would have increased funding for SSA
administrative expenses to $9.9 billion, $175 million more than the
House bill and $275 million more than requested.
Conference Report. Compared to FY2007 funding, the conference
agreement changed discretionary spending by at least $100 million for the SSA
administrative expenses.
! Funding for Social Security Administration (SSA) administrative
expenses would rise by $576 million to $9.9 billion, from $9.3
billion for FY2007.
CRS Products
CRS Report RS22168, The Corporation for Public Broadcasting: Federal Funding
Facts and Status, by Glenn J. McLoughlin.
CRS Report RL31320, Federal Aid to Libraries in the Museum and Library Services
Act of 2003, by Gail McCallion.
CRS Report RS22677, Social Security Administration: Administrative Budget
Issues, by Kathleen Romig.
CRS Report RL33544, Social Security Reform: Current Issues and Legislation, by
Dawn Nuschler.
Websites
Note: Not all of the websites for the related agencies of L-HHS-ED appropriations
include FY2008 budget information.
Committee for Purchase From People Who Are Blind or Severely Disabled
[http://www.jwod.gov/jwod/index.html]
Corporation for National and Community Service
[http://www.cns.gov]
Corporation for Public Broadcasting
[http://www.cpb.org]
Federal Mediation and Conciliation Service
[http://www.fmcs.gov]
CRS-43
Federal Mine Safety and Health Review Committee
[http://www.fmshrc.gov]
Institute of Museum and Library Services
[http://www.imls.gov]
Medicare Payment Advisory Commission
[http://www.medpac.gov]
National Commission on Libraries and Information Science
[http://www.nclis.gov]
National Council on Disability
[http://www.ncd.gov]
National Labor Relations Board
[http://www.nlrb.gov]
National Mediation Board
[http://www.nmb.gov]
Occupational Health and Safety Review Commission
[http://www.oshrc.gov]
Railroad Retirement Board
[http://www.rrb.gov]
Social Security Administration
[http://www.ssa.gov]
[http://www.ssa.gov/budget]
CRS-44
Detailed Appropriations Table
Table 14 shows the appropriations details for offices and major programs of the
L-HHS-ED related agencies.
Table 14. Detailed Related Agencies Appropriations
($ in millions)
FY2007
FY2008
FY2008
FY2008
FY2008
Office or Major Program
Enacted
Request
House
Senate
Conf.
Committee for Purchase from People
5
5
5
5
5
Who Are Blind or Severely Disabled
Corporation for National and Community Service (CNCS)a
CNCS Domestic Volunteer Service Programs (DVSP)
Volunteers in Service to America
99
90
95
95
95
(VISTA)
National Senior Volunteer Corps
218
204
218
218
218
DVSP subtotal
317
294
313
313
313
CNCS National and Community Service Programs (NCSP)
National Service Trust
118
123
123
118
126
AmeriCorps Grants
265
256
256
276
261
National Civilian Community Corps
27
12
12
32
24
NCSP, other
83
70
66
66
73
NCSP subtotal
493
459
456
491
485
CNCS, other
75
75
74
76
76
CNCS subtotal
885
829
843
881
874
Corporation for Public Broadcasting (CPB)
CPB, two-year advance for FY2010
(current request) with FY2009
400
0
420
420
420
comparable
CPB advance for FY2009 with
400
400
400
400
400
FY2008 comparable (non-add)
CPB FY2009 rescission (non-add)
0
0
0
0
0
CPB advance for FY2008 with
400
400
400
400
400
FY2007 comparable (non-add)
CPB FY2008 rescission (non-add)
0
(50)
0
0
0
CPB Digitalization Program
30
0
30
30
30
CPB Interconnection
35
0
27
27
27
CPB FY2008 subtotal
64
0
56
56
56
Federal Mediation and Conciliation
43
44
44
44
44
Service
Federal Mine Safety and Health
8
8
8
8
8
Review Committee
Institute of Museum and Library
247
271
265
266
277
Services (IMLS)
CRS-45
FY2007
FY2008
FY2008
FY2008
FY2008
Office or Major Program
Enacted
Request
House
Senate
Conf.
Medicare Payment Advisory
12
11
11
11
11
Commission
National Commission on Libraries
1
0
0
0.4
0.4
and Information Science
National Council on Disability
3
3
3
3
3
National Labor Relations Board
252
256
257
257
257
National Mediation Board
12
12
13
13
13
Occupational Safety and Health
10
11
11
11
11
Review Commission
Railroad Retirement Board
193
184
184
185
185
Social Security Administration (SSA)b
SSA Payments to Social Security
20
28
28
28
28
Trust Fund (mandatory)
Supplemental Security Income (SSI)
42,931
38,728
38,728
38,729
38,728
(mandatory)
SSI Administrative Expenses
2,950
2,983
3,021
3,077
3,086
SSA SSI subtotal
45,881
41,711
41,749
41,806
41,814
Social Security and Medicare
6,345
6,614
6,676
6,795
6,786
Administrative Expenses
Total SSA Administrative Expenses
9,296
9,597
9,697
9,872
9,872
(non-add)
SSA Office of I
nspector General
92
95
95
96
95
SSA subtotal
52,339
48,448
48,548
48,725
48,723
TOTALS, RELATED AGENCIES
Total Appropriationsc
54,474
50,082
50,670
50,886
50,888
Current Year Funding
37,264
35,282
35,450
35,666
35,668
One-Year Advance Funding
16,810
14,800
14,800
14,800
14,800
Two-Year Advance Funding
400
0
420
420
420
Source: Amounts are based on the Nov. 5, 2007, conference report on H.R. 3043 (H.Rept. 110-424),
which was vetoed on Nov. 13, 2007. May not add due to rounding.
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 have been funded in L-HHS-ED since
FY2006.
b. The operation of the Social Security (OASDI) 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. Appropriations totals include discretionary and mandatory spending, and are subject to additional
scorekeeping and other adjustments.
CRS-46
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, by
Robert Keith and Allen Schick. 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.
CRS-47
Supplemental appropriation is budget authority provided in an appropriations act
that provides funds that are in addition to regular appropriations.
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://republicans.appropriations.house.gov/]
[http://budget.house.gov/]
[http://budget.house.gov/republicans/]
Senate Committees
[http://appropriations.senate.gov/]
[http://budget.senate.gov/democratic/]
[http://budget.senate.gov/republican/]
Congressional Budget Office (CBO)
[http://www.cbo.gov/]
Congressional Research Service (CRS)
[http://apps.crs.gov/cli/level_2.aspx?PRDS_CLI_ITEM_ID=73]
Government Accountability Office (GAO)
[http://www.gao.gov/]
Government Printing Office (GPO)
[http://www.gpoaccess.gov/usbudget/]
Office of Management and Budget (OMB)
[http://www.whitehouse.gov/omb/budget/index.html]
[http://www.whitehouse.gov/omb/legislative/sap/index.html]