Legislative Branch: FY2010 Appropriations
Ida A. Brudnick
Analyst on the Congress
June 11, 2009
Congressional Research Service
7-5700
www.crs.gov
R40617
CRS Report for Congress
P
repared for Members and Committees of Congress
Legislative Branch: FY2010 Appropriations
Summary
Approximately $5.0 billion was requested for legislative branch operations in FY2010, an
increase of 14.5% over the FY2009 enacted level. The Subcommittees on the Legislative Branch
of the House and Senate Appropriations Committees have held hearings during which Members
considered the legislative branch requests.
The House Appropriations Committee, Subcommittee on Legislative Branch held a markup of the
FY2010 bill on June 11, 2009. The subcommittee version would provide $3.675 billion, not
including Senate items. The full committee markup is scheduled for June 12, 2009.
Previously, the FY2009 Omnibus Appropriations Act (P.L. 111-8, enacted on March 11, 2009)
provided $4.4 billion for legislative branch activities. This represents an approximately 11%
increase over the nearly $4 billion approved by Congress for FY2008.
In FY2009, an additional $25 million was provided for the Government Accountability Office in
the American Recovery and Reinvestment Act of 2009 (P.L. 111-5).
The House and Senate versions of H.R. 2346, the FY2009 Supplemental Appropriations Act, both
contain $71.6 million for the new U.S. Capitol Police radio system. The Senate version also
would provide $2 million for the Congressional Budget Office, to remain available until
September 30, 2010, and authorize additional funds for the Senate Committee on the Judiciary.
H.R. 2346 passed the House on May 14, 2009, and the Senate on May 21. The Senate has
appointed its conferees.
Among issues that have been considered during hearings on the FY2010 budget in the House and
Senate Appropriations Committees, Subcommittees on the Legislative Branch, are the following:
• the need for the new U.S. Capitol Police radio system and the timing of its
funding;
• legislative branch agency efforts in support of the American Recovery and
Reinvestment Act of 2009 and Emergency Economic Stabilization Act of 2008;
• deferred maintenance issues around the Capitol complex;
• the effect of the Office of Compliance citations on the Architect’s project
prioritization and budget request;
• employment issues, including pay, recruitment and retention, diversity, and equal
employment opportunity concerns;
• funds requested to support the “Greening of the Capitol†initiative, the use of
alternative fuels, and the application of the Energy Independence and Security
Act of 2007 to the legislative branch; and
• the future of the Open World Leadership Program, including the location of the
program within the legislative branch and the selection of participant countries.
This report will be updated to reflect major congressional action.
Congressional Research Service
Legislative Branch: FY2010 Appropriations
Contents
Most Recent Developments......................................................................................................... 1
FY2009 Supplemental Appropriations................................................................................... 1
Introduction to the Legislative Branch Appropriations Bill .......................................................... 2
Subcommittee Structure ........................................................................................................ 3
Status of FY2010 Appropriations ................................................................................................ 4
Action on the FY2010 Legislative Branch Appropriations Bill .............................................. 4
Submission of FY2010 Budget Request on May 8, 2009 ................................................. 4
Senate and House Hearings on the FY2010 Budget ......................................................... 4
FY2010 Legislative Branch Funding Issues................................................................................. 5
Senate ................................................................................................................................... 5
Overall Funding .............................................................................................................. 5
Senate Committee Funding ............................................................................................. 5
Senators’ Official Personnel and Office Expense Account................................................ 6
House of Representatives ...................................................................................................... 6
Overall Funding .............................................................................................................. 6
House Committee Funding.............................................................................................. 6
Members’ Representational Allowance............................................................................ 6
Green the Capitol Initiative ............................................................................................. 7
Support Agency Funding....................................................................................................... 7
U.S. Capitol Police.......................................................................................................... 7
Architect of the Capitol ................................................................................................... 8
Congressional Budget Office (CBO) ............................................................................. 12
Library of Congress (LOC) ........................................................................................... 12
Congressional Research Service (CRS) ......................................................................... 13
Government Accountability Office (GAO) .................................................................... 14
Government Printing Office (GPO) ............................................................................... 15
Office of Compliance .................................................................................................... 16
Open World Leadership Center ..................................................................................... 16
John B. Stennis Center for Public Service Training and Development ............................ 18
Technology Assessments for Congress .......................................................................... 18
For Additional Reading ............................................................................................................. 23
CRS Reports ....................................................................................................................... 23
Selected Websites................................................................................................................ 23
Tables
Table 1. Legislative Branch Appropriations, FY1999-FY2009 ..................................................... 3
Table 2. Status of Legislative Branch Appropriations, FY2010 .................................................... 4
Table 3. Dates of House and Senate Hearings on Legislative Branch Requests............................. 5
Table 4. Legislative Branch Appropriations, FY2010................................................................. 19
Table 5. Capitol Police Appropriations, FY2010........................................................................ 20
Table 6. Architect of the Capitol Appropriations, FY2010.......................................................... 20
Congressional Research Service
Legislative Branch: FY2010 Appropriations
Table 7. Senate Appropriations, FY2010 ................................................................................... 21
Table 8. House of Representatives Appropriations, FY2010....................................................... 21
Contacts
Author Contact Information ...................................................................................................... 24
Key Policy Staff........................................................................................................................ 24
Author Contact Information ...................................................................................................... 24
Congressional Research Service
Legislative Branch: FY2010 Appropriations
Most Recent Developments
Approximately $5.0 billion was requested for legislative branch operations in FY2010, an
increase of 14.5% over the $4.4 billion provided in the FY2009 Omnibus Appropriations Act.1
The Subcommittees on the Legislative Branch of the House and Senate Appropriations
Committees have held hearings during which Members considered the legislative branch
requests.
The House Appropriations Committee, Subcommittee on Legislative Branch held a markup of the
FY2010 bill on June 11, 2009. The subcommittee version would provide $3.675 billion, not
including Senate items. This level is approximately $237 million above the FY2009 enacted level
and $282 million less than requested for these accounts. According to the summary table provided
by the subcommittee, the largest increase would be provided to the Architect of the Capitol ($81
million over the FY2009 enacted level, or nearly 18%).2 The largest decrease would be for the
Open World Leadership Program, which would have its budget reduced by $5 million, or
approximately 36%. The full committee markup is scheduled for June 12, 2009.
Consideration of the FY2010 request follows the enactment on March 11, 2009, of the FY2009
Omnibus Appropriations Act. The FY2009 act provided a 10.88%3 increase over the $3.97 billion
provided for FY2008.4 The FY2009 enacted level was $258.47 million less than the request for
$4.66 billion in discretionary budget authority. An explanatory statement on the act was inserted
into the Congressional Record on February 23, 2009, and later issued as a print from the
Committee on Appropriations.5
FY2009 Supplemental Appropriations
In FY2009, an additional $25 million was provided for the Government Accountability Office in
the American Recovery and Reinvestment Act of 2009 (P.L. 111-5).
1 Table 4 presents information on the legislative branch FY2009 appropriations and FY2010 budget requests.
2 Available on the subcommittee’s website at http://appropriations.house.gov/Subcommittees/sub_leg.shtml.
3 Although requested and enacted levels are rounded throughout the report, percentages are based on the actual dollar
figure.
4 P.L. 110-161, Dec. 26, 2007. This total includes an across-the-board rescission of 0.25% which was applied to
accounts within the legislative branch division of the act. A conference report on H.R. 2764 was not issued.
Representative David Obey, chairman of the House Appropriations Committee, inserted explanatory materials into the
Congressional Record of December 17 providing detailed tables on the discretionary spending included in the bill.
Information on the legislative branch was included on pages H16371-H16380. The House Appropriations Committee
subsequently issued a committee print containing additional information on funding provided in the act (U.S. Congress,
House Appropriations Committee, Consolidated Appropriations Act, 2008, H.R. 2764/Public Law 110-161, committee
print, 110th Cong., 2nd sess. (Washington: GPO, 2008), pp. 1841-1907).
5 Section 4 of P.L. 111-8 states the following: “The explanatory statement regarding this Act, printed in the House of
Representatives section of the Congressional Record on or about February 23, 2009 by the Chairman of the Committee
on Appropriations of the House, shall have the same effect with respect to the allocation of funds and implementation
of this Act as if it were a joint explanatory statement of a committee of conference.†Pages H2395-H2403 of the
Congressional Record pertain to the legislative branch division of the FY2009 Omnibus. The House Appropriations
Committee subsequently issued the statement as a committee print (U.S. Congress, House Appropriations Committee,
Committee Print of the House Committee on Appropriations on H.R. 1105 / P.L. 111-8 Books 1 & 2, committee print,
111th Cong., 1st sess. (Washington: GPO, 2008), pp. 1737-1778).
Congressional Research Service
1
Legislative Branch: FY2010 Appropriations
The House- and Senate-passed versions of H.R. 2346, the FY2009 Supplemental Appropriations
Act, both contain $71.6 million for the new U.S. Capitol Police radio system. The Senate version
also would provide $2 million for the Congressional Budget Office, to remain available until
September 30, 2010, and authorize additional funds for the Senate Committee on the Judiciary.
Introduction to the Legislative Branch
Appropriations Bill
Since FY2003, the annual legislative branch appropriations bill has usually contained two titles.
Appropriations for legislative branch agencies are contained in Title I. These entities, as they have
appeared in the annual appropriations bill, are the Senate; House of Representatives; Joint Items;6
Capitol Police; Office of Compliance; Congressional Budget Office; Architect of the Capitol,
including the Capitol Visitor Center; Library of Congress, including the Congressional Research
Service; Government Printing Office; Government Accountability Office; and Open World
Leadership Program.
Title II contains general administrative provisions and, from time to time, appropriations for
legislative branch entities. For example, Title II of the FY2003 act, P.L. 108-7, contained funds
for the John C. Stennis Center for Public Service Training and Development and for the
Congressional Award Act.
On occasion the bill may contain a third title for other provisions. For example, Title III of the
FY2006 legislative branch appropriations act, P.L. 109-55, contained language providing for the
continuity of representation in the House of Representatives in “extraordinary circumstances.â€
Prior to enactment of the FY2003 bill, and effective in FY1978, the legislative branch
appropriations bill was structured differently. Title I, Congressional Operations, contained budget
authority for activities directly serving Congress.7 Title II, Related Agencies, contained budget
authority for activities considered by the Committee on Appropriations not directly supporting
Congress.8 Occasionally, from FY1978 through FY2002, the annual legislative appropriations bill
contained additional titles for such purposes as capital improvements and special one-time
functions.
6 Funded within the Joint Items account are the Joint Economic Committee, Joint Committee on Taxation, Office of the
Attending Physician, Office of Congressional Accessibility Services, and Statements of Appropriations. The Statement
of Appropriations account funds preparation of appropriations statements for each calendar year. These statements
contain enacted appropriations, indefinite appropriations, authorized contracts, and a history of annual appropriations
required by law. From FY1996 through FY2009, the “Joint Items†also included the Capitol Guide Service and Special
Services Office. Under the Capitol Visitor Center Act of 2008 (P.L. 110-437), funding for the Capitol Guide Service
was transferred to the Architect of the Capitol and funding for the Special Services Office was transferred to the Office
of Congressional Accessibility Services.
7 Included in this title were the budgets of the Senate; House of Representatives; Joint Items; Office of Compliance;
Congressional Budget Office; Architect of the Capitol, except funds for Library of Congress buildings and grounds;
Congressional Research Service, within the Library of Congress; and congressional printing and binding activities of
the Government Printing Office.
8 Included in this title were the budgets of the Botanic Garden; Library of Congress (except the Congressional Research
Service, which was funded in Title I); Library of Congress buildings and grounds maintained by the Architect of the
Capitol; Government Printing Office (except congressional printing and binding costs, which were funded in Title I);
and Government Accountability Office, formerly named the General Accounting Office.
Congressional Research Service
2
Legislative Branch: FY2010 Appropriations
Subcommittee Structure
In both the 110th and 111th Congresses, the House Appropriations Committee established a
Legislative Branch Subcommittee. The House subcommittee did not exist in the 109th Congress,
and the full House committee considered the legislative branch bill, while the Senate established
a subcommittee.9 Previously, both the House and Senate Appropriations Committees generally
had a separate Legislative Branch Subcommittee dating back at least to the Legislative
Reorganization Act of 1946, with the exception of the 83rd Congress (1953-1954), during which
the House and Senate Appropriations Committees established a subcommittee to consider both
legislative and judiciary matters. The two chambers subsequently returned to the former practice
of a separate Legislative Subcommittee beginning in the 84th Congress (1955).10
Table 1. Legislative Branch Appropriations, FY1999-FY2009
(budget authority in billions of current dollars)
1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009
2.581a 2.486b 2.730c 3.252d 3.461e 3.528f 3.640g 3.793h 3.852i 3.970 4.402j
Notes: These figures represent current dol ars, exclude permanent budget authorities, and contain
supplementals and rescissions. Permanent budget authorities are not included in the annual legislative branch
appropriations bill but, rather, are automatically funded each year.
a. Includes budget authority contained in the FY1999 Legislative Branch Appropriations Act (P.L. 105-275), the
FY1999 emergency supplemental appropriation (P.L. 105-277), and the FY1999 supplemental appropriation
(P.L. 106-31).
b. Includes budget authority contained in the FY2000 Legislative Branch Appropriations Act (P.L. 106-57), a
supplemental and a 0.38% rescission in P.L. 106-113, and supplementals in P.L. 106-246 and P.L. 106-554.
c. This figure contains (1) FY2001 appropriations contained in H.R. 5657, legislative branch appropriations bill;
(2) FY2001 supplemental appropriations of $118 million and a 0.22% across-the-board rescission contained
in H.R. 5666, miscellaneous appropriations bill; and (3) FY2001 supplemental appropriations of $79.5 million
contained in H.R. 2216 (P.L. 107-20). H.R. 5657 and H.R. 5666 were incorporated by reference in P.L. 106-
554, FY2001 Consolidated Appropriations Act. The first FY2001 legislative branch appropriations bill, H.R.
4516, was vetoed Oct. 30, 2000. The second legislative branch appropriations bill, H.R. 5657, was
introduced Dec. 14, 2000, and incorporated in P.L. 106-554. This figure does not reflect any terrorism
supplemental funds released pursuant to P.L. 107-38.
d. This figure contains appropriations in P.L. 107-68, transfers from the legislative branch emergency response
fund pursuant to P.L. 107-117, and FY2002 supplemental appropriations in P.L. 107-206.
e. This figure contains appropriations in P.L. 108-7, FY2003 Omnibus Appropriations Act, and supplemental
appropriations in P.L. 108-11.
f.
This figure contains appropriations in P.L. 108-83, FY2004 Legislative Branch Appropriations Act. Additional
FY2004 provisions which did not contain appropriations were contained in P.L. 108-199, the FY2004
Consolidated Appropriations Act.
9 Under a House Appropriations Committee reorganization plan released on February 9, 2005, the subcommittee was
abolished and its jurisdiction assumed by the full Appropriations Committee. Although changes were made in the
structure of the Senate Committee on Appropriations, announced in March 2005, the Subcommittee on Legislative
Branch was retained. Under a reorganization plan announced by the House Appropriations Committee on January 4,
2007, the House Subcommittee on Legislative Branch was reestablished for the 110th Congress.
10 For additional information on the subcommittee structure, see CRS Report RL31572, Appropriations Subcommittee
Structure: History of Changes from 1920-2007, by James V. Saturno.
Congressional Research Service
3
Legislative Branch: FY2010 Appropriations
g. This figure contains appropriations in P.L. 108-447, Consolidated Appropriations Act, FY2005 (adjusted by a
0.80% rescission also contained in P.L. 108-447), and P.L. 109-13, FY2005 Emergency Supplemental.
h. This figure contains appropriations in P.L. 109-55, FY2006 Legislative Branch Appropriations Act (adjusted
by a 1.0% rescission contained in P.L. 109-148) and the FY2006 Emergency Supplemental Appropriations
Act (P.L. 109-234).
i.
This figure contains appropriations in P.L. 110-5, the Revised Continuing Appropriations Resolution, 2007,
and P.L. 110-28, the U.S. Troop Readiness, Veterans’ Care, Katrina Recovery, and Iraq Accountability
Appropriations Act, 2007.
j.
This represents the FY2009 level included in the FY2009 Omnibus Appropriations Act and reported in the
accompanying documents. This does not include $25 million for the legislative branch contained in the
American Recovery and Reinvestment Act of 2009 (P.L. 111-5).
Status of FY2010 Appropriations
Table 2. Status of Legislative Branch Appropriations, FY2010
Committee
Conference
Markup
Report Approval
House
House
Senate
Senate
Conference
Public
House Senate Report
Passage
Report
Passage
Report
House Senate Law
Action on the FY2010 Legislative Branch Appropriations Bill
Submission of FY2010 Budget Request on May 8, 200911
The FY2010 U.S. Budget contained a request for $5.0 billion in new budget authority for
legislative branch activities, an increase of approximately 14.5% from the FY2009 enacted
level.12 A substantial portion of the increase requested by legislative branch entities was to meet
(1) mandatory expenses, which include funding for annual salary adjustments required by law and
related personnel expenses, such as increased government contributions to retirement based on
increased pay, and (2) expenses related to increases in the costs of goods and services due to
inflation.
Senate and House Hearings on the FY2010 Budget
Table 3 lists the dates of hearings of the legislative branch subcommittees in 2009.
11 For information on the timing of the budget submission, see CRS Report RS20752, Submission of the President’s
Budget in Transition Years, by Robert Keith.
12 Office of Management and Budget, Analytical Perspectives, Budget of the United States Government, FY2010, Table
27-1—Federal Programs by Agency and Account (Washington: GPO, 2009), pp. 1-6; and Office of Management and
Budget, Summary Tables, Budget of the United States Government, FY2010, Table S—3. Discretionary Funding by
Major Agency (Washington: GPO, 2008), p. 141. These requests are “included in the budget by the President without
change†(31 U.S.C. §1105).
Congressional Research Service
4
Legislative Branch: FY2010 Appropriations
Table 3. Dates of House and Senate Hearings on Legislative Branch Requests
House of Representatives
Senate
Senate Sergeant at
— April
23,
2009
Arms/Secretary of the Senate
House of Representatives
May 6, 2009
—
Capitol Police
April 22, 2009
April 23, 2009
Office of Compliance
April 28, 2009
May 7, 2009
Congressional Budget Office
April 23, 2009
May 21, 2009
Architect of the Capitol
April 23, 2009
May 7, 2009
Library of Congress, including the
April 29, 2009
June 4, 2009
Congressional Research Service
Government Printing Office
April 28, 2009
May 21, 2009
Government Accountability Office
April 28, 2009
May 21, 2009
Open World Leadership Center
April 29, 2009
June 4, 2009
Members/Public Witnesses
May 5, 2009
Source: Congressional Research Service
FY2010 Legislative Branch Funding Issues
Senate
Overall Funding
The Senate requested $1.009 billion for its internal operations, an increase of $114.2 million, or
12.8%, over the FY2009 level.
FY2010 requests and FY2009 funding levels for headings within the Senate account are
presented in Table 7.
Senate Committee Funding
Appropriations for Senate committees are contained in two accounts:13
• The inquiries and investigations account contains funds for all Senate
committees except Appropriations. The request contains $172.99 million for
inquiries and investigations, an increase of 25.9% from the $137.4 million
provided in FY2009.
• The Committee on Appropriations account, for which $15.84 million was
requested, an increase of $644,000, or 4.2%.
13 For additional information on committee funding, see CRS Report R40424, Senate Committee Expenditures
Resolutions, 111th Congress, and Funding Authorizations, 104th – 110th Congresses, by R. Eric Petersen.
Congressional Research Service
5
Legislative Branch: FY2010 Appropriations
Senators’ Official Personnel and Office Expense Account
The Senators’ Official Personnel and Office Expense Account provides each Senator with funds
to administer an office. It consists of an administrative and clerical assistance allowance, a
legislative assistance allowance, and an official office expense allowance. The funds may be
interchanged by the Senator, subject to limitations on official mail. A total of $450.8 million was
included in the request, which is 12.7% more than the $400.0 million provided in FY2009.
House of Representatives
Overall Funding
The FY2010 request contains $1.497 billion in budget authority for internal operations of the
House, an increase of 15.05% ($195.78 million) over the budget authority provided in the
FY2009 Consolidated Appropriations Act.
FY2010 requests and FY2009 funding levels for headings in the House of Representatives
account are presented in Table 8.
House Committee Funding
Funding for House committees is contained in the appropriation heading “committee employees,â€
which comprises two subheadings.14
The first subheading contains funds for personnel and nonpersonnel expenses of House
committees, except the Appropriations Committee, as authorized by the House in a committee
expense resolution. The FY2010 request contains $175.2 million, a 13.8% increase over the
$154.0 million provided in the FY2009 Omnibus Appropriations Act.
The second subheading contains funds for the personnel and nonpersonnel expenses of the
Committee on Appropriations, for which $33.3 million was provided, an increase of 6.4% over
the FY2009 level of $31.3 million.
Members’ Representational Allowance
The Members’ Representational Allowance (MRA) is available to support Members in their
official and representational duties. The FY2010 request contains $699.3 million, a 14.8%
increase over the $609.0 million provided in the FY2009 Omnibus. The FY2009 level
represented an increase of 5.1% from the $579.5 million provided in the FY2008 Consolidated
Appropriations Act.
14 For additional information on committee funding, CRS Report R40204, House Committee Funding, 111th Congress,
by R. Eric Petersen.
Congressional Research Service
6
Legislative Branch: FY2010 Appropriations
Green the Capitol Initiative15
The Green the Capitol Initiative was created in March 2007, when Speaker Nancy Pelosi,
Majority Leader Steny Hoyer, and the chair of the Committee on House Administration, the late
Representative Juanita Millender-McDonald, asked the Chief Administrative Officer (CAO) of
the House, Daniel Beard, to provide an “environmentally responsible and healthy working
environment for employees.â€16
For FY2008, $3.27 million was requested to implement the Green the Capitol Initiative, which
included $100,000 in the Architect of the Capitol’s House office buildings account for new light
bulbs and $500,000 in the Capitol Grounds section of the report for an E-85 gasoline pump.17 The
FY2008 Consolidated Appropriations Act provided $3.9 million for new “green†initiatives,
including $100,000 for the House Office Buildings account, $500,000 for the Capitol Grounds
account, and $3.27 million for the Capitol Power Plant.18 In addition, the FY2008 Consolidated
Appropriations Act included an amendment to 2 U.S.C. § 117m(b), which governs the operation
of the House Services Revolving Fund, allowing the CAO to use the revolving fund for
environmental activities, including energy and water conservation, in buildings, facilities, and
grounds under his jurisdiction.19
For FY2009, the CAO requested $2 million for the Green the Capitol Initiative.20 Although not
specifically addressed in P.L. 111-8 or the explanatory statement, the program received $1 million
according to the House Committee on Appropriations press release.21
The FY2010 request contains $10 million for energy demonstration projects.
Support Agency Funding
U.S. Capitol Police
The FY2010 request and FY2009 funding level is presented in Table 5.
15 This section on the “Green the Capitol Initiative†was contributed by Jacob R. Straus, Analyst on the Congress,
Government and Finance Division. For additional information, see CRS Report RL34694, Administering Green
Programs in Congress: Issues and Options, by Jacob R. Straus.
16 U.S. Congress, Chief Administrative Officer, Green the Capitol Initiative Final Report, 110th Cong., 1st sess.
http://cao.house.gov/greenthecapitol/green-the-capitol-final-report.pdf.
17 U.S. Congress, House Committee on Appropriations, Legislative Branch Appropriations, 2008, report to accompany
H.R. 2771, 110th Cong., 1st sess., H.Rept. 110-198 (Washington: GPO, 2007), p. 59. For additional information on this
fuel, see CRS Report RL33290, Fuel Ethanol: Background and Public Policy Issues, by Brent D. Yacobucci.
18 The funds were provided in P.L. 110-161, 121 Stat. 1844, Dec. 26, 2007. See also, U.S. Congress, House Committee
on Appropriations, Consolidated Appropriations Act, 2008, committee print, 110th Cong., 1st sess. (Washington: GPO,
2008), pp. 1887-1888.
19 The amendment to 2 U.S.C. § 121m was provided in P.L. 110-161, 121 Stat. 2225, Dec. 26, 2007.
20 Justification of Budget Estimates, in U.S. Congress, House Committee on Appropriations, Subcommittee on the
Legislative Branch, Legislative Branch Appropriations for 2009, hearings, part 1, 110th Cong., 2nd sess. (Washington:
GPO, 2008), p. 100.
21 Available at http://appropriations.house.gov/pdf/LBFY0902-23-09.pdf.
Congressional Research Service
7
Legislative Branch: FY2010 Appropriations
The Capitol Police originally requested $410.1 million for FY2010, including $71.6 million for a
new radio system, although funding for that project was subsequently included in the FY2009
supplemental request and in H.R. 2346, the pending FY2009 Supplemental Appropriations Act.22
The remaining $338.5 million request, not including the radio project, represents a 10.7%
increase over the $305.75 million provided in the FY2009 Omnibus. The FY2009 Omnibus
provided an 8.5% increase over the $281.9 million provided in the FY2008 Consolidated
Appropriations Act, which represented an increase of 6.1% over the $265.6 million (including
supplemental appropriations) provided in FY2007.
Appropriations for the police are contained in two accounts—a salaries account and a general
expenses account. The salaries account contains funds for the salaries of employees; overtime
pay; hazardous duty pay differential; and government contributions for employee health,
retirement, Social Security, professional liability insurance, and other benefit programs. The
general expenses account contains funds for expenses of vehicles; communications equipment;
security equipment and its installation; dignitary protection; intelligence analysis; hazardous
material response; uniforms; weapons; training programs; medical, forensic, and communications
services; travel; relocation of instructors for the Federal Law Enforcement Training Center; and
other administrative and technical support, among other expenses.
The Capitol Police budget authority includes $268.7 million for salaries (an increase of 8.3% over
the amount provided for FY2009) and $141.4 million for general expenses (an increase of
144.8%), although this number is inclusive of the radio project.
A second appropriation relating to the Capitol Police appears within the Architect of the Capitol
account for Capitol Police buildings and grounds. The Architect requested $30.77 million, an
increase of 62% from the nearly $19 million provided in FY2009. The FY2009 level was a 27.2%
increase over the $14.9 million provided in FY2008.
Highlights of the House and Senate Hearings on the U.S. Capitol Police
The cost of the new radio system was discussed at length at both the House and Senate hearings.
Topics addressed included the final cost of the project, as well as increases from previous
projections, the appropriate timing of funding, the expected life of the new system, and
competitive bidding for the radio contract. The House also discussed a number of staffing
concerns, including the impact of new FTEs (full-time equivalents) and the opening of the CVC
on overtime compensation, and the implementation of recommendations from a recent manpower
study.
Architect of the Capitol
The Architect of the Capitol (AOC) is responsible for the maintenance, operation, development,
and preservation of the United States Capitol Complex, which includes the Capitol and its
grounds, House and Senate office buildings, Library of Congress buildings and grounds, Capitol
Power Plant, Botanic Garden, Capitol Visitor Center, and Capitol Police buildings and grounds.
22 The request is available at http://www.whitehouse.gov/omb/assets/budget_amendments/supplemental_04_09_09.pdf.
Congressional Research Service
8
Legislative Branch: FY2010 Appropriations
The Architect is responsible for the Supreme Court buildings and grounds, but appropriations for
their expenses are not contained in the legislative branch appropriations bill.
Overall Funding Levels
Operations of the Architect are funded in the following ten accounts: general administration,
Capitol building, Capitol grounds, Senate office buildings, House office buildings, Capitol power
plant, Library buildings and grounds, Capitol Police buildings and grounds, Capitol Visitor
Center, and Botanic Garden.
The Architect of the Capitol (AOC) requested $644.6 million for FY2010, a 21.7% increase from
the $529.6 million provided in the FY2009 Omnibus. The FY2009 level represented an increase
of $116.1 million (28%) over the FY2008 level of $413.5 million, while the AOC had requested
$642.7 million in new budget authority, a 55.4% increase. The FY2008 budget authority had
represented a decrease of 8.1% from the $449.9 million (including supplemental appropriations)
provided in FY2007.
The FY2010 request and FY2009 funding level for each of the AOC accounts is presented in
Table 6.
Capitol Visitor Center (CVC)23
The AOC requested $24.56 million for FY2010 for the operations of the Capitol Visitor Center
(CVC). This represents a decrease of nearly 39% from the total funding provided in FY2009,
which included $31.1 million for the CVC project and $9.1 million for operational costs. The
CVC opened to the public on December 2, 2008.
Capitol Power Plant Utility Tunnels24
The condition of the Capitol Power Plant utility tunnels, and the funds necessary to repair them,
have been discussed during appropriations hearings in recent fiscal years. The funding for repairs
follows a complaint issued February 28, 2006, by the Office of Compliance regarding health and
safety violations in the tunnels. The Office of Compliance had previously issued a citation due to
the condition of the tunnels on December 7, 2000. On November 16, 2006, the Government
Accountability Office (GAO) wrote a letter to the chair and ranking minority members of the
Senate Committee on Appropriations, Subcommittee on the Legislative Branch, and the House
Committee on Appropriations, examining the conditions of the tunnels, plans for improving
conditions, and efforts to address workers’ concerns.25 Potential hazards identified by the Office
of Compliance and GAO include excessive heat, asbestos, falling concrete, lack of adequate
23 For additional information on the Capitol Visitor Center, see CRS Report RL31121, The Capitol Visitor Center: An
Overview, by Stephen W. Stathis.
24 For additional information, see CRS Report R40563, Capitol Power Plant Utility Tunnels: Background and
Oversight Options, by Jacob R. Straus and CRS Report R40433, The Capitol Power Plant: Background and Greening
Options, by Jacob R. Straus and Paul W. Parfomak.
25 U.S. Government Accountability Office, Capitol Power Plant Utility Tunnels, GAO-07-227R, Nov. 16, 2006,
available at http://www.gao.gov/new.items/d07227r.pdf.
Congressional Research Service
9
Legislative Branch: FY2010 Appropriations
egress, and insufficient communication systems. In May 2007, the Architect of the Capitol and
the Office of Compliance announced a settlement agreement for the complaint and citations.
Steps necessary to remedy the situation, as well as the actions and roles of the Architect of the
Capitol and the Office of Compliance, have been discussed at multiple hearings of the House and
Senate Appropriations Committees since 2006. Other committees have also expressed concern
about the utility tunnels and allegations of unsafe working conditions. For example, the Senate
Committee on Health, Education, Labor and Pensions, Subcommittee on Employment and
Workplace Safety, heard testimony on tunnel safety during a March 1, 2007, hearing on the
effects of asbestos.
Following the complaint by the Office of Compliance, Congress provided $27.6 million in
FY2006 emergency supplemental appropriations to the Architect of the Capitol for Capitol Power
Plant repairs,26 and an additional $50 million was provided in emergency supplemental
appropriations for FY2007.27 The Architect of the Capitol had requested $24.77 million for
FY2008.28 This request, which was submitted prior to the provision of funds in the May 2007
emergency supplemental appropriations act, was not supported by either the House or Senate
Appropriations Committee.29
According to the explanatory statement produced by the Committee on Appropriations, the
FY2009 Omnibus provides $56.4 million for the tunnel program.30 The Architect had requested
$126.65 million to meet the terms of the settlement agreement. AOC indicated in its budget
justification that “the bulk of this work will begin in early calendar year 2009, and will extend
through the spring of 2011.â€31
The FY2010 budget request contains $45.77 million for the tunnel program. The current plan
requires all corrective measures to be completed by June 11, 2012. During the House hearing on
April 23, 2009, the Acting Architect testified that the utility tunnel abatement project is ahead of
schedule and under budget, with a new projected total cost of $186 million.
26 P.L. 109-234, 120 Stat. 48, June 15, 2006. The funding was included as an amendment (S.Amdt. 3701) offered
during Senate floor consideration of H.R. 4939, the emergency supplemental appropriations bill. The amendment was
agreed to in the Senate by voice vote on April 27, 2006. The language was retained by conferees, whose report was
agreed to by the House on June 13, and the Senate on June 15, 2006.
27 P.L. 110-28, 121 Stat. 112, May 25, 2007.
28 Justification of Budget Estimates, in U.S. Congress, House Committee on Appropriations, Subcommittee on the
Legislative Branch, Legislative Branch Appropriations for 2008, hearings, part 1, 110th Cong., 1st sess. (Washington:
GPO, 2007), p. 521.
29 U.S. Congress, Senate Committee on Appropriations, Legislative Branch Appropriations, 2008, report to accompany
S. 1686, 110th Cong., 1st sess., S.Rept. 110-89 (Washington: GPO, 2007), p. 30; U.S. Congress, House Committee on
Appropriations, Legislative Branch Appropriations, 2008, report to accompany H.R. 2771, 110th Cong., 1st sess.,
H.Rept. 110-198 (Washington: GPO, 2007), p. 20.
30 Congressional Record, Feb. 23, 2009, p. H2396.
31 Justification of Budget Estimates, in U.S. Congress, House Committee on Appropriations, Subcommittee on the
Legislative Branch, Legislative Branch Appropriations for 2009, hearings, part 1, 110th Cong., 2nd sess. (Washington:
GPO, 2008), p. 418.
Congressional Research Service
10
Legislative Branch: FY2010 Appropriations
Administrative Provisions
The FY2010 budget request includes language, some of which was revised or resubmitted from
the FY2009 request, that would
1. grant the AOC authority to implement specified procedures established in the
Federal Acquisition Streamlining Act;
2. allow the AOC to retain proceeds from the lease of its facilities to commercial
entities;
3. allow the AOC to enter into multi-year leases;
4. allow the AOC to incur expenses and accept donations related to in certain
emergencies, as determined by the Capitol Police Board;
5. allow the AOC to retain funds from energy and water savings for other
conservation projects;
6. authorize the AOC to dispose of, and retain receipts from the sale of, surplus or
obsolete property;
7. establish an AOC Senior Executive Service;
8. continue a flexible work schedule program;
9. amend the statute governing the authority for death gratuities for survivors of
AOC employees;
10. provide early retirement authority;
11. authorize the hiring of disabled veterans through a non-competitive process;
12. provide for the acceptance of voluntary student services;
13. allow the AOC to enter into agreements with private entities for the benefit of the
Botanic Garden; and
14. extend the Capitol grounds to include an additional parcel of D.C. that is now
used for AOC and USCP parking.32
Highlights of the House and Senate Hearings on the Architect of the Capitol
At the House hearing on April 23, 2009, the subcommittee discussed the condition of buildings
around the Capitol Complex and deferred-maintenance issues, with a particular focus on the
House garages and repairs to the plumbing, roof, electrical equipment, and exterior stone of the
Cannon House Office Building. Shortly after the hearing, on May 6, 2009, the Committee on
House Administration held a hearing on the conditions of the House Office Buildings.33
32 Justification of Budget Estimates, in U.S. Congress, House Committee on Appropriations, Subcommittee on the
Legislative Branch, Legislative Branch Appropriations for 2009, hearings, part 1, 111th Cong., 1st sess. (Washington:
GPO, 2009), pp. 458-477.
33 Additional information on the hearing, including a webcast and printed opening statements, is available on the
committee’s website at http://cha.house.gov/view_hearing.aspx?r=49.
Congressional Research Service
11
Legislative Branch: FY2010 Appropriations
Topics at the Senate hearing on May 7, 2009, included the percentage of the AOC budget that is
requested to respond to citations issued by the Office of Compliance and long-term plans for the
Capitol Power Plant.
At both the House and Senate hearings, Members discussed the Architect’s “greening†programs,
including projects at the Capitol Power Plant, the application of the Energy Independence and
Security Act of 2007 to the legislative branch, and efforts to meet the requirements of this act.
Congressional Budget Office (CBO)
CBO is a nonpartisan congressional agency created to provide objective economic and budgetary
analysis to Congress. CBO cost estimates are required for any measure reported by a regular or
conference committee that may vary revenues or expenditures.34
CBO requested $46.4 million for FY2010, a 5.2% increase from the $44.1 million provided in the
FY2009 Omnibus. The FY2009 level represented an increase of $6.8 million (18.2%) over the
$37.3 million provided in the FY2008 Consolidated Appropriations Act.
Highlights of the House Hearing on the FY2010 Budget of the CBO
CBO Director Douglas Elmendorf testified that the agency is requesting 254 FTEs for FY2010,
an increase of 4 FTEs from the FY2009 approved level. He indicated that CBO may not reach the
maximum authorized level this year since the hiring process has been slow and the final level was
not approved until the fiscal year was underway. The subcommittee discussed CBO’s hiring
process, with questions about diversity as well as challenges in competing for talent and the
starting salary for CBO analysts. As with many legislative branch agencies, CBO indicated that
lack of space is a concern.
Library of Congress (LOC)
The Library of Congress provides research support for Congress through a wide range of
services, from research on public policy issues to general information. Among its major programs
are acquisitions, preservation, legal research for Congress and other federal entities,
administration of U.S. copyright laws by the Copyright Office, research and analysis of policy
issues by the Congressional Research Service, and administration of a national program to
provide reading material to the blind and physically handicapped. The Library also maintains a
number of collections and provides a range of services to libraries in the United States and
abroad.
The Library requested $658.4 million for FY2010, an 8.5% increase over the FY2009 Omnibus
level of $607.1 million.35 The FY2009 level represented an increase of approximately 7.8% over
34 The Congressional Budget Office is required to use estimates provided by the Joint Committee on Taxation for all
revenue legislation (Balanced Budget and Emergency Deficit Control Act of 1985, P.L. 99-177, sec. 273, 99 Stat.1098,
Dec. 12, 1985; 2 U.S.C. §621 (et seq.)).
35 This percentage is not adjusted for non-recurring costs, including the transfer of the Library of Congress Police to the
Capitol Police.
Congressional Research Service
12
Legislative Branch: FY2010 Appropriations
the $563 million provided in the FY2008 Consolidated Appropriations Act. These figures do not
include additional authority to spend receipts.36
The FY2010 budget contains the following heading requests:
• salaries and expenses—$452.2 million, plus authority to spend $6.35 million in
receipts. This would be an increase of 9.6% over the FY2009 level of $412.7
million.
• Copyright Office—$20.9 million (not including $34.6 million in receipts). This
would be a 14.2% increase over the $18.3 million (not including authority to
spend $33.3 million in receipts) provided in FY2009.
• Congressional Research Service—$115.1 million, a 7.3% increase over the
$107.3 million provided in FY2009.
• Books for the Blind and Physically Handicapped—$70.2 million. This represents
almost 2% over the FY2009 level of $68.8 million provided in FY2009.
An additional $69.1 million was included in the Architect’s FY2010 budget for Library buildings
and grounds. This level is 76.9% more than the FY2009 enacted level of $39.1 million.
Congressional Research Service (CRS)
CRS works exclusively for Members and committees of Congress to support their legislative,
oversight, and representational functions by providing nonpartisan and confidential research and
policy analysis.
CRS requested $115.1 million for FY2010, a 7.3% increase from the $107.3 million provided for
FY2009. The FY2009 level represented a 4.9% increase over the $102.3 million provided in the
FY2008 Consolidated Appropriations Act.
Highlights of the House and Senate Hearings on FY2010 Budget of the LOC,
Including CRS
The House subcommittee discussed the Library’s budget request on April 29, 2009. Among the
topics discussed were (1) the backlog in processing new registrations at the copyright office; (2)
the budget of the Law Library and the potential for it to attract private funding; (3) the history and
cost of the digital talking book initiative; (4) the completion of the merger between the Capitol
Police and Library of Congress police by the end of FY2009; (5) the Library’s storage capacity
and how it determines what needs to be preserved and the accessibility of items at the main
Library buildings and in remote storage; (6) the establishment of a new management structure at
CRS, including the recruitment and background of new managers; and (7) CRS products,
including a discussion of format and electronic availability.
At its hearing on June 4, 2009, the Senate subcommittee also discussed the backlog in copyright
processing, new information technology requests, and the status of the digital talking book
initiative. Additionally, the Senate subcommittee asked questions about the Library’s overseas
36 An example of receipts are fees paid to the LOC for copyright registration.
Congressional Research Service
13
Legislative Branch: FY2010 Appropriations
offices, including the history and need for the foreign books acquisition program, costs for the
Library and shared costs with program participants, and security costs assessed by the State
Department. The subcommittee also examined the Library’s request for storage modules in Ft.
Meade, MD, including funds to relocate parts of the collection to Modules #3 and #4 and
construct Module #5, and discussed interest in the private sector to help fund the law library. The
Librarian of Congress, Dr. James H. Billington, indicated that the Library has been working with
the Committee on House Administration on new language that would encourage outside funding
for the law library. On June 10, 2009, the House Administration Committee ordered reported with
amendments H.R. 2728, the William Orton Law Library Improvement and Modernization Act.
Administrative Provisions
The Library requested a number of administrative provisions for FY2010, which would provide
1. regular authority to obligate funds for reimbursable and revolving fund activities;
2. transfer authority among Library of Congress headings;
3. an increase in the cap on the rate of pay for temporary experts and consultants to
Level IV of the Executive Schedule ($153,200 in 2009);
4. revisions to the Library of Congress gift authority provisions to allow the
Librarian to directly accept certain gifts; and,
5. a clarification of the pay authorities related to senior-level Library employees
following the enactment of the Senior Professional Performance Act of 2008
(P.L. 110-372) and leave carryover provisions for statutory positions following
the enactment of the FY2008 National Defense Authorization Act (P.L. 110-181).
Government Accountability Office (GAO)
GAO works for Congress by responding to requests for studies of federal government programs
and expenditures. GAO may also initiate its own work.37 Formerly the General Accounting
Office, the agency was renamed the Government Accountability Office effective July 7, 2004.
GAO requested nearly $567.5 million for FY2010. Previously, the FY2009 Omnibus provided
$531.0 million for GAO, not including offsetting collections.38 GAO also received $25 million to
cover responsibilities under the American Recovery and Reinvestment Act of 2009.
Highlights of House Hearing on FY2009 Budget of the GAO
The House subcommittee discussed the $25 million provided to GAO under the American
Recovery and Reinvestment Act of 2009,39 asking if the funding was sufficient to cover GAO’s
responsibilities under the act. The subcommittee also discussed congressional understanding of
GAO’s workload and the costs associated with requests and reports. While some statutory
37 GAO’s guidelines for initiating studies are contained in U.S. Government Accountability Office, GAO’s
Congressional Protocols, GAO-04-310G (Washington: GAO, 2004). Posted on the website of the Government
Accountability Office at http://www.gao.gov/special.pubs/d04310g.pdf.
38 Offsetting collections include funds derived from reimbursable audits and rental of space in the GAO building.
39 P.L. 111-5, Feb. 17, 2009.
Congressional Research Service
14
Legislative Branch: FY2010 Appropriations
provisions requiring GAO reports were repealed in the FY2009 Omnibus, the Acting Comptroller
General stated additional provisions may be outdated. The subcommittee also addressed a number
of employment-related issues, including the establishment of the GAO employee union and its
current relationship with GAO management, succession planning, and the role of the GAO
internship program in recruitment and retention.
Government Printing Office (GPO)
The Government Printing Office requested $166.3 million for FY2010, an increase of 18.3% over
the $140.6 million provided in the FY2009 Omnibus. The FY2009 level represented an increase
of 12.7% over the $124.7 million provided in the FY2008 Consolidated Appropriations Act.
GPO’s budget authority is contained in three accounts: (1) congressional printing and binding, (2)
Office of Superintendent of Documents (salaries and expenses), and (3) the revolving fund.
FY2009 levels for these accounts are
• congressional printing and binding—GPO requested $93.3 million, a decrease of
3.7% from the $96.8 million provided in FY2009. GPO testified that the reduced
request was achievable because of the elimination of a shortfall in this account
through funds provided in FY2009.40
• Office of Superintendent of Documents (salaries and expenses)—GPO requested
$40.9 million, an increase of 5.6% from the $38.7 million provided in FY2009.
The FY2009 level represented an increase of nearly 11% from the $34.9 million
provided in the Consolidated Appropriations Act.
• revolving fund—GPO requested $32.1 million. In FY2009, GPO received nearly
$5 million for the revolving fund and had requested $33 million. The FY2008
Consolidated Appropriations Act did not include an appropriation for the
revolving fund.
The congressional printing and binding account pays for expenses of printing and binding
required for congressional use, and for statutorily authorized printing, binding, and distribution of
government publications for specified recipients at no charge. Included within these publications
are the Congressional Record; Congressional Directory; Senate and House Journals; memorial
addresses of Members; nominations; U.S. Code and supplements; serial sets; publications printed
without a document or report number, for example, laws and treaties; envelopes provided to
Members of Congress for the mailing of documents; House and Senate business and committee
calendars; bills, resolutions, and amendments; committee reports and prints; committee hearings;
and other documents.
The Office of Superintendent of Documents account funds the mailing of government documents
for Members of Congress and federal agencies, as statutorily authorized; the compilation of
catalogs and indexes of government publications; and the cataloging, indexing, and distribution of
government publications to the Federal Depository and International Exchange libraries, and to
other individuals and entities, as authorized by law.
40 The elimination of this deficit is noted in the FY2009 explanatory statement: Congressional Record, Feb. 23, 2009,
p. H2397.
Congressional Research Service
15
Legislative Branch: FY2010 Appropriations
Highlights of House Hearing on FY2010 Budget of the GPO
At the House hearing on April 28, 2009, Members of the subcommittee asked about the number
of “equal employment opportunity†(EEO) complaints at GPO. The Chair asked Public Printer
Robert C. Tapella to update a report required last year on the number of active EEO cases and
compare this level to complaints at other federal agencies. Stating that approximately 25% of
GPO employees are eligible for retirement, the Public Printer also discussed succession planning
and recruitment and retention issues.
Office of Compliance
The Office of Compliance is an independent and nonpartisan agency within the legislative
branch. It was established to administer and enforce the Congressional Accountability Act, which
was enacted in 1995.41 The act applies various employment and workplace safety laws to
Congress and certain legislative branch entities.42
The Office of Compliance requested $4.47 million for FY2010, an increase of nearly 10% from
the $4.1 million provided in the FY2009 Omnibus. The FY2009 level represented an increase of
21.8% over the FY2008 level of $3.3 million, which was an increase of 6.5% over the $3.1
million made available in FY2007.
Both the House and Senate subcommittees discussed the office’s request for a new position to
replace a Department of Labor detailee whose service to the office will be ending as well as
progress on ameliorating conditions in the Capitol Power Plant utility tunnels. The House
requested a report on the scope of any health and life-safety problems around the Capitol
Complex and the efforts to address them, including the current number of infrastructure citations.
The violations cited by the office were also discussed in the Senate, with Members asking for a
comparison to standards in the executive branch, the applicability of these standards to historic
and closely-monitored buildings, the costs associated with resolving the violations, and the timing
of any renovations and coordination with other planned or required renovations.
Open World Leadership Center
The center administers a program that supports democratic changes in other countries by giving
their leaders opportunity to observe democracy and free enterprise in the United States. The first
program was authorized by Congress in 1999 to support the relationship between Russia and the
United States. The program encouraged young federal and local Russian leaders to visit the
United States and observe its government and society.
41 P.L. 104-1, 109 Stat. 3, Jan. 23, 1995. The act, as amended, applies 12 civil rights, labor, and workplace safety laws
to Congress and certain legislative branch agencies. These laws are the Age Discrimination in Employment Act,
Americans with Disabilities Act, Title VII of the Civil Rights Act of 1964, Employee Polygraph Protection Act, Fair
Labor Standards Act, Family and Medical Leave Act, Federal Services Labor-Management Relations Act,
Occupational Safety and Health Act of 1970, Rehabilitation Act of 1970, Veterans’ employment and reemployment
rights at Chapter 43 of Title 38 of the U.S. Code, Worker Adjustment and Retraining Act, and Veterans Employment
Opportunities Act.
42 Among the office’s activities are administration of a dispute resolution process, investigation and enforcement of
occupational safety and health and disability provisions of the act, investigation of labor relations and enforcement of
applicable provisions, and development of educational programs regarding the act’s provisions.
Congressional Research Service
16
Legislative Branch: FY2010 Appropriations
Established at the Library of Congress as the Center for Russian Leadership Development in
2000, the center was renamed the Open World Leadership Center in 2003, when the program was
expanded to include specified additional countries.43 In 2004, Congress further extended the
program’s eligibility to other countries designated by the center’s board of trustees, subject to
congressional consideration.44 The center is housed in the Library and receives services from the
Library through an inter-agency agreement.
The FY2010 budget contains a request for nearly $14.5 million for Open World, a 4% increase
over the $13.90 million provided in the FY2009 Omnibus. In FY2008, Open World received
$8.98 million in budget authority, a decrease of 35% from the $13.86 million provided in FY2007
and FY2006.
Open World also requested an administrative provision, which was included in amendments to
the FY2010 budget request transmitted by the President on May 21, 2009.45 The proposed
language would (1) amend the Board membership to specify that the four appointees of the
President pro tempore and Speaker shall be Members of the Senate and House of Representatives;
(2) amend the language in the “purpose†section to recognize that the program now exists outside
Russia and to authorize the Center to engage program alumni in additional activities; (3)
authorize the provision of grants to organizations outside of the United States; (4) authorize the
use of funds to engage alumni in program activities outside of the United States; (5) authorize the
Librarian to appoint the Executive Director on behalf of the Board; and (6) allow the Librarian,
rather than the Secretary of State, to waive annuity restrictions for reemployment in Center
positions.
Discussion of Location of Open World
The location of Open World at the Library of Congress, as well as its inclusion in the legislative
branch budget, has been a topic of discussion at appropriations hearings in recent fiscal years.
As in previous years, the House Legislative Branch Subcommittee examined whether the
program should be located within the legislative branch at the Library of Congress, within the
judiciary, or within the executive branch at the State Department, during a FY2010 budget
hearing on April 29, 2009.
Previously, during a hearing on the FY2009 budget, Ambassador John O’Keefe, the executive
director of Open World, testified that the program may attract different participants if associated
with the executive branch rather than the Library of Congress.46 The FY2009 explanatory
43 P.L. 106-554, 114 Stat. 2763, 2763A-120, Dec. 21, 2000; P.L. 108-7, 117 Stat. 382, Feb. 20, 2003. According to the
2003 act, the additional countries include “any country specified in section 3 of the FREEDOM Support Act (22 U.S.C.
5801),†and “Estonia, Latvia, and Lithuania.†The countries specified in 22 U.S.C. 5801 are Armenia, Azerbaijan,
Belarus, Georgia, Kazakhstan, Kyrgyzstan, Moldova, Russia, Tajikistan, Turkmenistan, Ukraine, and Uzbekistan.
44 P.L. 108-447, 118 Stat. 3192, Dec. 8, 2004.
45 Available at http://www.whitehouse.gov/omb/assets/budget_amendments/amendment_05_21_09.pdf.
46 Testimony of Ambassador John O’Keefe, executive director, U.S. Congress, House Committee on Appropriations,
Subcommittee on the Legislative Branch, Legislative Branch Appropriations for 2009, hearings, 110th Cong., 2nd sess.,
March 12, 2008 (Washington: GPO, 2008), pp. 359-420.
Congressional Research Service
17
Legislative Branch: FY2010 Appropriations
statement directed the Open World Leadership Center Board of Trustees to work with the State
Department and the Judiciary to establish a shared funding mechanism.47
The subcommittee also had discussed this issue during the FY2008 appropriations cycle,48 and
language was included in the FY2008 Consolidated Appropriations Act requiring Open World to
prepare a report by March 31, 2008, on “potential options for transfer of the Open World
Leadership Center to a department or agency in the executive branch, establishment of the Center
as an independent agency in the executive branch, or other appropriate options.â€49
John B. Stennis Center for Public Service Training and Development
The center was created by Congress in 1988 to encourage public service by congressional staff
through training and development programs. The FY2009 budget contains a request for $430,000
for the Stennis Center. The FY2009 Omnibus provided $430,000, which was equal to the request
as well as the amount contained in the FY2008 House-passed bill and the Senate-reported bill.
The FY2008 Consolidated Appropriations Act provided $429,000, including a rescission. The
FY2010 requested level also equals the budget authority provided in FY2006 and FY2007.
Technology Assessments for Congress50
Since the closure of the Office of Technology Assessment (OTA), which was a legislative branch
agency established in 1972 and last funded in FY1996,51 congressional appropriators have
periodically reexamined funding for scientific studies by the legislative branch.52 In recent
Congresses, some Members have expressed support for the refunding of OTA through the
distribution of “Dear Colleague†letters53 and the introduction of legislation.54 Other Members
47 Congressional Record, Feb. 23, 2009, p. H2398.
48 In H.R. 2771 (110th Cong.), the House-passed version of the FY2008 appropriations bill, the House Appropriations
Committee recommended $6 million for Open World. The committee report stated that an additional $6 million would
be provided for transfer to the program in the FY2008 State, Foreign Operations, and Related Programs appropriation.
The House-passed bill, which retained the committee-recommended funding level, also contained an administrative
provision transferring the Open World Leadership Center to the Department of State effective October 1, 2008. The
Senate-reported bill (S. 1686, 110th Cong.) would have provided $13.5 million in new budget authority for Open
World.
49 P.L. 110-161, 121 Stat. 2251, Dec. 26, 2007.
50 For additional information, see CRS Report RS21586, Technology Assessment in Congress: History and Legislative
Options, by Genevieve J. Knezo.
51 P.L. 92-484, Oct. 13, 1972, 86 Stat. 797; P.L. 104-53, Nov. 19, 1995, 109 Stat. 526
52 See, for example, U.S. Congress, House Committee on Appropriations, Subcommittee on the Legislative Branch,
Legislative Branch Appropriations for 2006, hearings, part 2, 109th Cong., 1st sess. (Washington: GPO, 2005), p. 382;
U.S. Congress, Senate Committee on Appropriations, Subcommittee on the Legislative Branch, Legislative Branch
Appropriations for 2008, hearings, 110th Cong., 1st sess., March 16, 2007 (Washington: GPO, 2008), pp. 75-76; U.S.
Congress, House Committee on Appropriations, Subcommittee on the Legislative Branch, Legislative Branch
Appropriations for 2008, hearings, part 2, 110th Cong., 1st sess. (Washington: GPO, 2007), pp. 208-209; U.S. Congress,
House Committee on Appropriations, Subcommittee on the Legislative Branch, Legislative Branch Appropriations for
2009, hearings, part 2, 110th Cong., 2nd sess. (Washington: GPO, 2008), p. 682.
53 See, for example, House “Dear Colleague†letters of January 7, 2003; July 8, 2004; May 24, 2007; May 31, 2007;
and May 18, 2009.
54 See, for example, H.R. 125 (108th Cong.); H.R. 2148 (107th Cong.), and amendments to H.R. 1854 (104th Cong.).
Congressional Research Service
18
Legislative Branch: FY2010 Appropriations
have suggested that technology assessments may be conducted more cost-effectively by existing
legislative branch agencies.
The FY2008 Consolidated Appropriations Act provided $2.5 million to GAO for technology
assessments.55 The FY2009 explanatory statement indicates that funding continues to be provided
for these studies.56
On May 5, 2009, the House subcommittee invited Members and public witnesses to testify on
their interests for FY2010. Representative Rush Holt asked the subcommittee to provide $35
million for the re-funding of the OTA. The subcommittee discussed the possibility of other
legislative branch agencies – including CRS and GAO – conducting these studies, with the
dialogue including the methodologies used by these agencies; the relative costs of expanding one
agency versus reestablishing OTA; timeliness of OTA’s analysis; and the ability of Congress to
obtain technology assessments from outside entities.
Table 4. Legislative Branch Appropriations, FY2010
(in thousands of dollars)
Entity
FY2009
FY2010
FY2010
FY2010
FY2010
Enacteda
Request
House Bill Senate Bill Enacted
Title 1: Legislative Branch Appropriations
Senate 895,030
1,009,240
—d
House of Representatives
1,301,267
1,497,055
—e
Joint Items
29,220
22,876
Capitol Policeb 305,750
410,069
Office of Compliance
4,072
4,474
Congressional Budget Office
44,082
46,365
Architect of the Capitol
529,586
644,609
Library of Congress, Including CRS
607,096
658,409
Congressional Research Service, Lib. of Cong.
107,323
115,136
Government Printing Office
140,567
166,307
Government Accountability Office
531,000
567,497
Open World Leadership Centerc 13,900
14,456
Stennis Center for Public Service
430
430
Title II: General Provisions
0
0
Total Legislative Branch (Titles I and II)
4,402,000 5,041,787
Source: The U.S. Budget, P.L. 110-161, and the statement of Chairman David Obey printed in the Congressional
Record (daily edition, Feb. 23, 2009, p. H2403).
a. FY2009 funds are contained in P.L. 111-8.
55 Congressional Record, Dec. 17, 2007, p. 16373.
56 Congressional Record, Feb. 23, 2009, p. H2397.
Congressional Research Service
19
Legislative Branch: FY2010 Appropriations
b. This account was effective with the FY2003 Legislative Branch Appropriation Act. Previously, Capitol Police
funds were contained under the joint items account.
c. The center was named the Russian Leadership Program prior to FY2004. Appropriations represent
payments to the center’s trust fund.
d. The House does not consider appropriations for internal Senate operations.
e. The Senate does not consider appropriations for internal House operations.
Table 5. Capitol Police Appropriations, FY2010
(in thousands of dollars)
Accounts
FY2009
FY2010
FY2010
FY2010
FY2010
Enacted
Requested
House Bill
Senate Bill
Enacted
Salaries, Capitol Police
248,000
268,675
General Expenses
57,750
141,394
Emergency Appropriationsa —
Total, Capitol Police
305,750
410,069
Source: The U.S. Budget, P.L. 110-161, and the statement of Chairman David Obey printed in the Congressional
Record (daily edition, Feb. 23, 2009, p. H2403).
a. The House and Senate version of H.R. 2346, the FY2009 Supplemental Appropriations Act, both contain
$71.6 million for the new U.S. Capitol Police radio system. This table will be updated following
congressional action.
Table 6. Architect of the Capitol Appropriations, FY2010
(in thousands of dollars)
Accounts
FY2009
FY2010
FY2010
FY2010
FY2010
Enacted
Requested
House Bill
Senate Bill
Enacted
Architect of the Capitol
General administration
90,659
121,460
Capitol building
35,840
33,305
Capitol grounds
9,649
10,974
Senate office buildings
69,359
76,032
House office buildings
65,814
111,926
Capitol power plant
149,042
154,503
Library buildings and grounds
39,094
69,144
Capitol Police buildings and grounds
18,996
30,777
Botanic garden
10,906
11,920
Capitol Visitor Center
40,227
24,568
Project - Cost to complete
31,124
Operations 9,103
Total, Architect of the Capitol
529,586
644,609
Source: The U.S. Budget, P.L. 110-161, and the statement of Chairman David Obey printed in the Congressional
Record (daily edition, Feb. 23, 2009, p. H2403).
Congressional Research Service
20
Legislative Branch: FY2010 Appropriations
Table 7. Senate Appropriations, FY2010
(in thousands of dollars)
FY2010
FY2010
Accounts
FY2010
FY2010
a
FY2009
Enacted
Request
House
Senate
Enacted
Bill
Bill
Payments—Heirs of Deceased Members of
Congress
0 0
—
Expense Allowances and Representation
210
210
—
Salaries, Officers, and Employees
171,699
186,057
—
Office of Legislative Counsel
6,743
7,154
—
Office of Legal Counsel
1,484
1,544
—
Expense Allowances for Secretary of Senate,
et al.
30
30
—
Contingent Expenses (subtotal)
714,864
814,245
—
Inquiries and Investigations
137,400
172,989
—
Senate Intl. Narcotics Caucus
520
520
—
Secretary of the Senateb 2,000
2,000
—
Sergeant at Arms/Doorkeeperc 153,601
168,461
—
Miscel aneous Items
21,043 19,145
—
Senators’ Official Personnel and Office
Expense Account
400,000
450,830
—
Official Mail Costs
300
300
—
Total, Senate
895,030 1,009,240
—
Source: the U.S. Budget, P.L. 110-161, and the statement of Chairman David Obey printed in the Congressional
Record (daily edition, Feb. 23, 2009, p. H2403).
a. The Senate account contains seven appropriations headings, which are highlighted in bold.
b. Office operations of the Office of the Secretary of the Senate are also funded under “Salaries, Officers, and
Employees.â€
c. Office operations of the Office of Sergeant at Arms and Doorkeeper are also funded under “Salaries,
Officers, and Employees.â€
d. A gratuity payment was included in the first FY2008 Continuing Appropriations Act, P.L. 110-92, which was
enacted on Sept. 29, 2007.
Table 8. House of Representatives Appropriations, FY2010
(in thousands of dollars)
FY2010 FY2010
Accounts
FY2010
FY2010
a
FY2009
Enacted
Request
House
Senate
Bill
Bill
Enacted
Payments—Heirs of Deceased Members of
Congress
0 0 —
Salaries and Expenses, Total
1,301,267 1,497,055
—
House Leadership Offices
25,113
25,881
—
Congressional Research Service
21
Legislative Branch: FY2010 Appropriations
FY2010 FY2010
Accounts
FY2010
FY2010
a
FY2009
Enacted
Request
House
Senate
Bill
Bill
Enacted
Members’ Representational Allowancesc 609,000 699,344
—
Committee Employees (subtotal)d 185,300
208,492 —
Standing Committees, Special and Select,
except Appropriations
154,000 175,189
—
Appropriations Committee
31,300
33,303
—
Salaries, Officers, and Employees
(subtotal)
187,954 206,124
—
Office of the Clerk
27,457
33,901
—
Office of the Sergeant at Arms
8,355
10,092
—
Office of Chief Administrative Officer
125,838
133,948
—
Office of Inspector General
4,945
5,062
—
Office for Emergency Planning,
Preparedness, and Operations
3,974 4,469
—
Office of General Counsel
1,357
1,431
—
Office of the Chaplain
173
179
—
Office of the Parliamentarian
2,007
2,060
—
Office of the Law Revision Counsel
3,057
3,299
—
Office of the Legislative Counsel
8,337
8,900
—
Office of Interparliamentary Affairs
777
866
—
Other Authorized Employees: Technical
Assistants, Office of Attending Physician
1,158 1,320
—
Office of Historian
519
597
Allowances and Expenses (subtotal)
293,900
357,214
—
Supplies, Materials, Administrative Costs
and Federal Tort Claimse
11,656 3,979
—
Official Mail for committees, leadership,
administrative and legislative offices
201 201
—
Government Contributions
260,703
302,776
—
Capitol Visitor Center
1,900
—
—
Business Continuity and Disaster
Recovery Emergency Appropriations
18,698 32,516
—
Miscel aneous Items
742
787
—
Transition Activitiese
2,907
—
Wounded Warrior programe
2,500
—
Office of Congressional Ethicse
1,548
—
House of Representatives, Total
1,301,267 1,497,055
—
Sources: The U.S. Budget, P.L. 110-161, and the statement of Chairman David Obey printed in the Congressional
Record (daily edition, Feb. 23, 2009, p. H2403).
Congressional Research Service
22
Legislative Branch: FY2010 Appropriations
a. The appropriations bill contains two House accounts: (1) payments to widows and heirs of deceased
Members of Congress and (2) salaries and expenses.
b. A gratuity payment was included in the first FY2008 Continuing Appropriations Act, P.L. 110-92, which was
enacted on Sept. 29, 2007. An additional gratuity payment was included in the Second Continuing
Appropriations Act, P.L. 110-116 and in the Fourth Continuing Appropriations Act, P.L. 110-149.
c. This appropriation heading was new in the FY1996 bill. The heading represents a consolidation of: (1) the
former heading Members’ clerk hire; (2) the former heading official mail costs; and (3) the former
subheading official expenses of Members, under the heading al owances and expenses.
d. This appropriation heading was new in the FY1996 bill. The heading represents a consolidation of: (1) the
former heading committee employees; (2) the former heading standing committees, special and select; (3)
the former heading Committee on Budget (studies); and (4) the former heading Committee on
Appropriations (studies and investigations).
e. In FY2009, “Supplies, Materials, Administrative Costs and Federal Tort Claims†included funding now
contained in the “Transition Activities†($4.7 million), “Wounded Warriors†($2.5 million) and “Office of
Congressional Ethics†($300,000) headings.
For Additional Reading
CRS Reports
CRS Report RL34490, Legislative Branch: FY2009 Appropriations, by Ida A. Brudnick.
CRS Report RL34031, Legislative Branch: FY2008 Appropriations, by Ida A. Brudnick.
CRS Report R40083, Legislative Branch Appropriations Bill: Structure, Content, and Process, by
Lorraine H. Tong.
Selected Websites
These sites contain information on the FY2010 and FY2009 legislative branch appropriations
requests and legislation, and the appropriations process.
House Committee on Appropriations
http://appropriations.house.gov/
Senate Committee on Appropriations
http://appropriations.senate.gov/
CRS Appropriations Products Guide
http://apps.crs.gov/cli/cli.aspx?PRDS_CLI_ITEM_ID=615&from=1&fromId=73
Congressional Budget Office
http://www.cbo.gov
Government Accountability Office
http://www.gao.gov
Office of Management & Budget
http://www.whitehouse.gov/omb/
Congressional Research Service
23
Legislative Branch: FY2010 Appropriations
Author Contact Information
Ida A. Brudnick
Analyst on the Congress
ibrudnick@crs.loc.gov, 7-6460
Key Policy Staff
Area of Expertise
Name
CRS Division
Telephone and E-mail
Appropriations Process
Bill Heniff
G&F
7-8646 wheniff@crs.loc.gov
Sandy Streeter
7-8653 sstreeter@crs.loc.gov
Legislative Branch Operations
Ida Brudnick
G&F
7-6460 ibrudnick@crs.loc.gov
Committee Funding and Staffing
Eric Petersen
G&F
7-0643 epetersen@crs.loc.gov
Franking
Matthew Glassman
G&F
7-3467 mglassman@crs.loc.gov
Legislative Branch Conservation
Jacob Straus
G&F
7-6438 jstraus@crs.loc.gov
and Recycling
Legislative Branch Bill Structure
Lorraine H. Tong
G&F
7-5846 ltong@crs.loc.gov
Note: Division abbreviations: G&F = Government and Finance
Author Contact Information
Ida A. Brudnick
Analyst on the Congress
ibrudnick@crs.loc.gov, 7-6460
Congressional Research Service
24