Legislative Branch: FY2011 Appropriations
Ida A. Brudnick
Analyst on the Congress
February 11, 2011
Congressional Research Service
7-5700
www.crs.gov
R41214
CRS Report for Congress
P
repared for Members and Committees of Congress
Legislative Branch: FY2011 Appropriations
Summary
The legislative branch has operated on continuing resolutions since October 1, 2011 (P.L. 111-
242, P.L. 111-290, P.L. 111-317, P.L. 111-322).
The legislative branch appropriations bill provides funding for the Senate; House of
Representatives; Joint Items; 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.
Approximately $5.12 billion was requested for legislative branch operations in FY2011, an
increase of 10% over the FY2010 level of $4.656 billion, which was provided in P.L. 111-68
(enacted October 1, 2009). The FY2010 Supplemental Appropriations Act (P.L. 111-212)
provided an additional $12.96 million for the Capitol Police.
The Subcommittees on the Legislative Branch of the House and Senate Appropriations
Committees have both held hearings during which Members considered the legislative branch
requests. Among issues that have been considered during hearings are the following:
• the Capitol Police salary miscalculation related to night differential pay and
holiday and overtime pay;
• the Capitol Police radio project, including timing and infrastructure support by
the Architect of the Capitol;
• deferred maintenance issues around the Capitol Complex;
• technology assessments;
• staffing issues related to recruitment and retention, requests for additional full-
time-equivalents (FTE), diversity, and space; and
• the potential impact of a flat budget on agency priorities and missions.
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, the American
Recovery and Reinvestment Act of 2009 (P.L. 111-5) provided an additional $25 million for the
Government Accountability Office. The FY2009 Supplemental Appropriations Act (P.L. 111-32)
provided $71.6 million for the new U.S. Capitol Police radio system and $2 million for the
Congressional Budget Office.
Congressional Research Service
Legislative Branch: FY2011 Appropriations
Contents
Most Recent Developments......................................................................................................... 1
House Action ........................................................................................................................ 1
Senate Action........................................................................................................................ 1
FY2010 Supplemental Appropriations................................................................................... 2
Legislative Branch Appropriations Bill Structure......................................................................... 2
Subcommittee Structure ........................................................................................................ 3
Status of FY2011 Appropriations................................................................................................. 5
Action on the FY2011 Legislative Branch Appropriations Bill............................................... 5
Submission of FY2011 Budget Request on February 1, 2010, and FY2010
Supplemental Request Submitted April 5, 2010............................................................ 5
Senate and House Hearings on the FY2011 Budget ......................................................... 5
House Appropriations Committee Subcommittee Markup................................................ 6
Senate Appropriations Committee Markup and Report .................................................... 6
FY2011 Legislative Branch Funding Issues ................................................................................. 6
Senate ................................................................................................................................... 6
Overall Funding .............................................................................................................. 6
Senate Committee Funding ............................................................................................. 7
Senators’ Official Personnel and Office Expense Account................................................ 7
House of Representatives ...................................................................................................... 7
Overall Funding .............................................................................................................. 7
House Committee Funding.............................................................................................. 7
Members’ Representational Allowance............................................................................ 8
Green the Capitol Initiative ............................................................................................. 8
Support Agency Funding....................................................................................................... 9
U.S. Capitol Police.......................................................................................................... 9
Architect of the Capitol ................................................................................................. 10
Congressional Budget Office (CBO) ............................................................................. 13
Library of Congress (LOC) ........................................................................................... 14
Government Accountability Office (GAO) .................................................................... 15
Government Printing Office (GPO) ............................................................................... 16
Office of Compliance .................................................................................................... 17
Open World Leadership Center ..................................................................................... 18
John C. Stennis Center for Public Service Training and Development ............................ 19
Technology Assessments for Congress .......................................................................... 20
For Additional Reading ............................................................................................................. 25
CRS Reports ....................................................................................................................... 25
Selected Websites................................................................................................................ 26
Tables
Table 1. Legislative Branch Appropriations, FY2000-FY2010 ..................................................... 3
Table 2. Status of Legislative Branch Appropriations, FY2011 .................................................... 5
Table 3. Dates of House and Senate Hearings on Legislative Branch Requests............................. 6
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Legislative Branch: FY2011 Appropriations
Table 4. Legislative Branch Appropriations, FY2011................................................................. 21
Table 5. Senate Appropriations, FY2011.................................................................................... 21
Table 6. House of Representatives Appropriations, FY2011....................................................... 22
Table 7. Capitol Police Appropriations, FY2011 ........................................................................ 24
Table 8. Architect of the Capitol Appropriations, FY2011.......................................................... 25
Contacts
Author Contact Information ...................................................................................................... 26
Key Policy Staff........................................................................................................................ 26
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Legislative Branch: FY2011 Appropriations
Most Recent Developments
The legislative branch has operated on continuing resolutions since October 1, 2011. These
include P.L. 111-242 (through December 3, 2010), P.L. 111-290 (through December 18), P.L. 111-
317 (through December 21) and P.L. 111-322 (through March 4).
The FY2011 legislative branch budget request, which was submitted to Congress on February 1,
2010, contains $5.12 billion in new budget authority, an approximately 10% increase over the
FY2010 enacted level. On April 5, 2010, the President also submitted a request from the Capitol
Police for $15.956 million in FY2010 supplemental appropriations.1 The House and Senate
Appropriations Committees Subcommittees on the Legislative Branch have since held hearings
during which the agency requests were examined.
Previously, the FY2010 Legislative Branch Appropriations Act provided $4.656 billion for
FY2010 legislative branch operations, and the FY2009 Omnibus Appropriations Act provided
$4.4 billion.2 In FY2009, an additional $25 million was provided for the Government
Accountability Office (GAO) in the American Recovery and Reinvestment Act of 2009.3 P.L.
111-32, the FY2009 Supplemental Appropriations Act, also contained funding for the police radio
system ($71.6 million) and Congressional Budget Office ($2 million).4
House Action
On July 1, 2010, the House Appropriations Committee, Subcommittee on the Legislative Branch,
held a markup of the FY2011 bill. The subcommittee mark contained $3.65 billion, not including
Senate items. This level is approximately $7 million below the FY2010 enacted level and $337
million less than requested for these accounts. The largest increase would be provided to the
Capitol Police ($8.9 million over the FY2010 enacted level, or 2.7%). The largest decrease would
be for the Open World Leadership Program, which would have its budget reduced by $3 million,
or 25%.5
Senate Action
The Senate Appropriations Committee held a markup on September 16, 2010, and reported an
original bill for legislative branch appropriations. The Senate bill (S. 3799) contained $3.136
billion, not including House items. This is the same amount provided for FY2010 and $435.6
million less than requested.
1 The letter states, “As a matter of comity between branches, appropriations requests of the Legislative Branch are
transmitted without change.” Letter from President Barack Obama to Speaker Nancy Pelosi, April 5, 2010. Available at
http://www.whitehouse.gov/omb/assets/budget_amendments/amendment_04_05_10.pdf.
2 Table 4 presents information on the legislative branch FY2010 appropriations and FY2011 budget requests.
3 P.L. 111-5, February 17, 2009, 123 Stat. 191.
4 U.S. Congress, conference committee, Making Supplemental Appropriations For The Fiscal Year Ending September
30, 2009, And For Other Purposes, report to accompany H.R. 2346, 111th Cong., 1st sess., H.Rept. 111-151
(Washington: GPO, 2009), p. 117.
5 U.S. Congress, House of Representatives, Committee on Appropriations, “Legislative Branch Appropriations
Summary – FY2011,” press release, July 1, 2010, available at http://appropriations.house.gov/images/stories/pdf/leg/
FY_11_Leg_Summary_SubC_Table.pdf.
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FY2010 Supplemental Appropriations
P.L. 111-212, the FY2010 Supplemental Appropriations Act, contained funding for the legislative
branch. Both the House- and Senate-passed versions of H.R. 4899 contained $174,000 for a
payment to widows and heirs of deceased Members of Congress. The Senate version also
contained $12.96 million for the Capitol Police for completion of the indoor coverage portion of
the new radio system, to remain available until September 30, 2012. The final bill included the
full amount for the Capitol Police. The President signed the bill on July 29, 2010.
Legislative Branch Appropriations Bill Structure
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 often contains general administrative provisions.7 For example, Title II of the FY2010 act
(P.L. 111-68) contained language (1) prohibiting the use of funds for the maintenance or care of
private vehicles; (2) limiting funds provided in the act to FY2010 unless otherwise specified; (3)
addressing the rate of compensation of staff; (4) making contracts for consulting services a matter
of public record and available for public inspection, with certain exceptions; (5) providing funds
for awards and settlements under the Congressional Accountability Act of 1995; (6) addressing
cost-sharing for the Legislative Branch Financial Managers Council (LBFMC); (7) providing for
landscape maintenance by the Architect of the Capitol; (8) limiting transfers except as provided
by law; and (9) prohibiting the use of funds to restrict guided tours of the Capitol led by House
and Senate staff and interns, except for temporary suspensions with the direction or approval of
the Capitol Police Board.
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.”
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.8 Title II, Related Agencies, contained budget
6 Funded within the Joint Items account are the Joint Economic Committee, Joint Committee on Taxation, Office of the
Attending Physician, and Office of Congressional Accessibility Services. From FY1996-FY2009, and prior to FY1993,
“Joint Items” also included the Statement of Appropriations. 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 For additional information, see CRS Report 98-648, Appropriations Bills: What Are “General Provisions”? by Sandy
Streeter.
8 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;
(continued...)
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authority for activities considered by the Committee on Appropriations not directly supporting
Congress.9 Occasionally, from FY1978 through FY2002, the annual legislative appropriations bill
contained additional titles for such purposes as capital improvements and special one-time
functions.
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. In the 109th Congress, the
Senate continued its practice of having a Legislative Branch Subcommittee.10 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).11
Table 1. Legislative Branch Appropriations, FY2000-FY2010
(budget authority in billions of dollars)
2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010
2.486a 2.730b 3.252c 3.461d 3.528e 3.640f 3.793g 3.852h 3.970 4.501i 4.656
Source: Congressional Research Service
Notes: These figures represent current dol ars, exclude permanent budget authorities, and contain
supplementals and rescissions. Permanent budget authorities, including funding for Member pay, are not included
in the annual legislative branch appropriations bill but, rather, are automatically funded each year.
a. 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.
b. 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.
(...continued)
Congressional Research Service, within the Library of Congress; and congressional printing and binding activities of
the Government Printing Office.
9 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.
10 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.
11 For additional information on the subcommittee structure, see CRS Report RL31572, Appropriations Subcommittee
Structure: History of Changes from 1920-2007, by James V. Saturno.
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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.
c. 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.
d. This figure contains appropriations in P.L. 108-7, FY2003 Omnibus Appropriations Act, and supplemental
appropriations in P.L. 108-11.
e. 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.
f.
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.
g. 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).
h. 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.
i.
This figure contains the appropriations in P.L. 110-161, the FY2009 Omnibus Appropriations Act, $25
million for the legislative branch contained in the American Recovery and Reinvestment Act of 2009 (P.L.
111-5), and $73.6 million contained in P.L. 111-32.
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Status of FY2011 Appropriations
Table 2. Status of Legislative Branch Appropriations, FY2011
Committee
Conference
Markup
Report Approval
House
House
Senate
Senate
Conference
Public
House Senate Report
Passage
Report
Passage
Report House
Senate
Law
9/16/10
S.Rept.
111-294
Source: Congressional Research Service
Note: Table will be updated as events warrant.
Action on the FY2011 Legislative Branch Appropriations Bill
Submission of FY2011 Budget Request on February 1, 2010, and FY2010
Supplemental Request Submitted April 5, 2010
The FY2011 U.S. Budget submitted on February 1, 2010, contained a request for $5.10 billion in
new budget authority for legislative branch activities, an increase of approximately 9.6% from the
FY2010 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.
On April 5, 2010, an additional $15.956 million was requested by the Capitol Police “to purchase
and install and implement the indoor coverage portion of the new radio system for the Capitol
Police.”13
Senate and House Hearings on the FY2011 Budget
Table 3 lists the dates of hearings of the Legislative Branch Subcommittees in 2010.
12 Pursuant to 31 U.S.C. 1105, “Estimated expenditures and proposed appropriations for the legislative branch and the
judicial branch to be included in each budget ... shall be submitted to the President ... and included in the budget by the
President without change.” The President is required to submit the proposed budget to Congress by the first Monday in
February. Office of Management and Budget, Analytical Perspectives, Budget of the United States Government,
FY2011, Table 33-1—Federal Programs by Agency and Account (Washington: GPO, 2010), pp. 2-16; and Office of
Management and Budget, Appendix, Budget of the United States Government, FY2011, (Washington: GPO, 2010), p.
19-51.
13 The request was transmitted by the President to Congress on April 5, 2010, with a letter stating, “As a matter of
comity between branches, appropriations requests of the Legislative Branch are transmitted without change.” Available
at http://www.whitehouse.gov/omb/assets/budget_amendments/amendment_04_05_10.pdf.
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Table 3. Dates of House and Senate Hearings on Legislative Branch Requests
House of Representatives
Senate
Senate
—
March 4, 2010
House of Representatives
March 10, 2010
—
Capitol Police
March 24, 2010
March 4, 2010
Office of Compliance
March 17, 2010
March 18, 2010
Congressional Budget Office
March 17, 2010
April 15, 2010
Architect of the Capitol
March 17, 2010
March 18, 2010
Library of Congress, including the
April 21, 2010
April 29, 2010
Congressional Research Service
Government Printing Office
April 21, 2010
April 15, 2010
Government Accountability Office
March 17, 2010
April 15, 2010
Open World Leadership Center
April 21, 2010
April 29, 2010
Members/Public Witnesses
February 24, 2010
—
Source: Congressional Research Service
House Appropriations Committee Subcommittee Markup
As stated above, the House Appropriations Committee, Subcommittee on the Legislative Branch,
held a markup of the FY2011 bill on July 1, 2010.
Senate Appropriations Committee Markup and Report
The Senate Appropriations Committee held a markup on September 16, 2010. The committee
ordered reported an original bill, S. 3397.
FY2011 Legislative Branch Funding Issues
Senate
Overall Funding
The Senate requested $1.042 billion for its internal operations, an increase of $115.76 million, or
12.5%, over the FY2010 level of $926.16 million. The FY2010 level represented a 3.5% increase
over FY2009.
FY2011 requests and FY2010 funding levels for headings within the Senate account are presented
in Table 5.
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Senate Committee Funding
Appropriations for Senate committees are contained in two accounts:14
• The inquiries and investigations account contains funds for all Senate
committees except Appropriations. The request contains $164.57 million for
inquiries and investigations, an increase of 17.1% from the $140.50 million
provided in FY2010.
• The Committee on Appropriations account contains funds for the Senate
Appropriations Committee. The request contains $15.84 million, an amount
equal to the FY2010 level.
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 used
for any category of expenses, subject to limitations on official mail. A total of $458.62 million
was requested, an increase of $36.62 million (8.7%) over the $422.00 million provided in
FY2010.
House of Representatives
Overall Funding
The House requested $1.419 billion in new budget authority for its internal operations, an
increase of 3.6% ($49.95 million) over the $1.369 billion provided in the FY2010 Legislative
Branch Appropriations Act.
FY2011 requests and FY2010 funding levels for headings in the House of Representatives
account are presented in Table 6.
House Committee Funding15
Funding for House committees is contained in the appropriation heading “committee employees,”
which comprises two subheadings.
The first subheading contains funds for personnel and nonpersonnel expenses of House
committees, except the Appropriations Committee, as authorized by the House in a committee
expense resolution. The FY2011 request contains $157.06 million, a 12.3% increase over the
$139.88 million provided in FY2010.
14 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.
15 For additional information on committee funding, CRS Report R40204, House Committee Funding, 111th Congress,
by R. Eric Petersen.
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The second subheading contains funds for the personnel and nonpersonnel expenses of the
Committee on Appropriations. The House has requested $32.30 million, an increase of 3.2% ($1
million) over the FY2010 level.
Members’ Representational Allowance16
The Members’ Representational Allowance (MRA) is available to support Members in their
official and representational duties. A total of $671.07 million was requested for FY2011, which
represents $11.07 million (1.7%) over the $660.0 million provided in FY2010.
Green the Capitol Initiative17
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.”18
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.19 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.20 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.21
For FY2009, the CAO requested $2 million for the Green the Capitol Initiative.22 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.23
16 For additional information, see CRS Report R40962, Members’ Representational Allowance: History and Usage, by
Ida A. Brudnick
17This 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.
18 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.
19 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.
20 The funds were provided in P.L. 110-161, 121 Stat. 1844, December 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.
21 The amendment to 2 U.S.C. § 121m was provided in P.L. 110-161, 121 Stat. 2225, December 26, 2007.
22 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:
(continued...)
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The FY2010 request contained $10 million for energy demonstration projects.24 The House-
passed bill and the FY2010 law provided $2.5 million.25 The FY2011 request contains
$500,000.26
Support Agency Funding
U.S. Capitol Police
The U.S. Capitol Police are responsible for the security of the Capitol Complex including the
U.S. Capitol, the House and Senate office buildings, the U.S. Botanic Garden, and the Library of
Congress buildings and adjacent grounds.
The Capitol Police have requested $376.02 million for FY2011. The FY2010 law provided
$328.3 million and P.L. 111-212 provided an additional $12.96 million. The Capitol Police had
requested $15.956 million in FY2010 supplemental appropriations.27 The Capitol Police FY2011
request and FY2010 funding level are also presented in Table 7.
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 have
requested $280.33 million for salaries (a 5.7% increase) and $95.69 million for general expenses
(a 51.6% increase) over the amount provided in P.L. 111-68.
A second appropriation relating to the Capitol Police appears within the Architect of the Capitol
account for Capitol Police buildings and grounds. The FY2011 request of $39.52 million
represents an increase of 46.3% from the $27 million provided in FY2010. The FY2010 level was
an increase of 42.2% from the nearly $19 million provided in FY2009, and 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
Hearings in both the Senate (March 4, 2010) and House (March 24, 2010) subcommittees focused
on the U.S. Capitol Police budget shortfall and pending budget amendment. Chief Phillip D.
(...continued)
GPO, 2008), p. 100.
23 Available at http://appropriations.house.gov/pdf/LBFY0902-23-09.pdf.
24 Available at http://www.whitehouse.gov/omb/budget/fy2010/assets/leg.pdf, p. 19.
25 P.L. 111-68, 123 Stat. 2028, October 1, 2009.
26 Available at http://www.gpoaccess.gov/usbudget/fy11/pdf/appendix/leg.pdf.
27 Available at http://www.whitehouse.gov/omb/assets/budget_amendments/amendment_04_05_10.pdf.
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Morse discussed the salary miscalculation related to night differential pay and holiday and
overtime pay, and the subcommittees noted that the Capitol Police inspector general would be
examining the issue. The subcommittees also discussed continued difficulties in predicting
overtime costs. The House also raised the possibility of placing responsibility for the police
budget in another legislative branch agency.
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.
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 10 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 requested $754.81 million, an increase of $153.22 million (25.5%) over the $601.6
million provided in FY2010.
Previously, in FY2010, a 21.7% increase (or $644.6 million) was requested and a 13.6% increase
was provided ($601.6 million). In FY2009, a 55.4% increase ($642.7 million) was requested and
a 28% increase ($529.6 million) was provided. The FY2008 budget authority represented a
decrease of 8.1% from the $449.9 million (including supplemental appropriations) provided in
FY2007.
The FY2011 request and FY2010 funding level for each of the AOC accounts is presented in
Table 8.
Capitol Visitor Center (CVC)28
The AOC requested $23.92 million for FY2011 for the operations of the Capitol Visitor Center
(CVC). This represents an increase of $1.46 million (6.5%) over the FY2010 level of $22.46
million. The CVC opened to the public on December 2, 2008.
28 For additional information on the Capitol Visitor Center, see CRS Report RL31121, The Capitol Visitor Center: An
Overview, by Stephen W. Stathis.
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Capitol Power Plant Utility Tunnels29
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.30 Potential hazards identified by the Office
of Compliance and GAO include excessive heat, asbestos, falling concrete, lack of adequate
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,31 and an additional $50 million was provided in emergency supplemental
appropriations for FY2007.32 The Architect of the Capitol had requested $24.77 million for
FY2008.33 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.34
29 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.
30 U.S. Government Accountability Office, Capitol Power Plant Utility Tunnels, GAO-07-227R, November 16, 2006,
available at http://www.gao.gov/new.items/d07227r.pdf.
31 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.
32 P.L. 110-28, 121 Stat. 112, May 25, 2007.
33 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.
34 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.
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According to the explanatory statement produced by the Committee on Appropriations, the
FY2009 Omnibus provides $56.4 million for the utility tunnel project.35 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.”36
The FY2010 budget request contained $45.77 million for the tunnel program. During the House
hearing on April 23, 2009, however, the Acting Architect testified that the utility tunnel abatement
project is ahead of schedule and under budget. The House-passed bill contained $16.85 million.37
The Senate also provided this total, stating the following:38
To date, $134,000,000 has been appropriated to abate these hazards. While AOC originally
requested $45,770,000 for fiscal year 2010 to continue the tunnel program, it has reassessed
its plans for repairs. AOC was able to decrease the fiscal year 2010 estimate to $16,850,000
with a modified plan that will still meet the Office of Compliance settlement agreement. The
revised total cost of the utility tunnel project is now $176,130,000. The Committee
commends these efforts and requires that the AOC continue to evaluate assessments and
immediately report any changes to current and projected costs. The Committee’s firm
expectation is that the AOC will meet the June 2012 commitment to abate safety and health
hazards within the tunnels.
The FY2010 act contained the $16.85 million provided in the House and Senate versions of the
bill. The FY2011 request contains $13.95 million.
Administrative Provisions
The FY2011 budget request includes language that would
1. establish an Architect of the Capitol Senior Executive Service, and
2. allow the Architect to use streamlined Federal Acquisition Streamlining Act
procedures for procurement.
The employment provision was previously requested in FY200939 and FY2010,40 and the Senate
report on the FY2010 legislative branch appropriations bill directed GAO to conduct a study of
AOC senior employment.41 Administrative language regarding acquisitions also was requested in
FY2010.42
35 Congressional Record, February 23, 2009, p. H2396.
36 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.
37 U.S. House of Representatives, Committee on Appropriations, Legislative Branch Appropriations Bill, 2010, H.Rept.
111-160, (Washington, GPO: 2009) p. 21.
38 U.S. Senate, Committee on Appropriations, Legislative Branch Appropriations Bill, 2010, S.Rept. 111-29,
(Washington, GPO: 2009), p. 33.
39 Available at http://www.whitehouse.gov/omb/budget/fy2009/pdf/appendix/leg.pdf, p. 36.
40 Available at http://www.whitehouse.gov/omb/budget/fy2010/assets/leg.pdf, p. 32.
41 U.S. Senate, Committee on Appropriations, Legislative Branch Appropriations Bill, 2010, S.Rept. 111-29,
(Washington, GPO: 2009), p. 28. The report stated the following: “GAO Senior Level Employees Study.—AOC has
informed the Committee that it is having difficulties attracting and retaining top quality senior level employees, and has
(continued...)
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Highlights of the House and Senate Hearings on the Architect of the Capitol
Both the House and Senate Legislative Branch Subcommittees discussed the Architect’s
prioritization of projects, including the balance between short- and long-term needs, the number
of deferred maintenance projects, and the role of the Office of Compliance. They also both
addressed the Architect’s renewed request for additional employment authorities for senior staff.
During the House hearing on March 17, 2010, the Legislative Branch Subcommittee also
discussed renovations to the Cannon House Office Building, recycling, energy audits, and
numerous items related to the CVC, including shuttle buses for visitors, signs, and staff requests.
Among the other topics addressed at the Senate subcommittee hearing on March 18, 2010, were
the potential impact of a flat budget, repairs in the Capitol Power Plant utility tunnels, the final
cost of the CVC, and staffing levels. The subcommittee also discussed the preliminary findings of
a blue ribbon panel examining a proposed fire enclosure of the Russell Senate Office Building
staircases. The issue had been previously discussed by the subcommittee during consideration of
the FY2010 bill. See also, “Office of Compliance.”
The subcommittees also noted that Steven Ayers, who has served as Acting Architect of the
Capitol since February 4, 2007, was nominated to a 10-year term by President Barack Obama on
February 24, 2010.43 The nomination was referred to the Senate Committee on Rules and
Administration, which held a hearing on April 15, 2010. The nomination also followed passage in
the House on February 3, 2010, of H.R. 2843, the Architect of the Capitol Appointment Act of
2010. The bill would alter the AOC appointment process and require the appointment to be made
by the leadership of Congress rather than the President.
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.44
(...continued)
proposed new administrative pay and leave authorities they believe would alleviate this concern. Before adding these
new authorities, the Committee would like to understand the extent to which there are problems with recruitment and
retention, and how best to address such concerns. The Committee directs GAO to undertake a review that addresses the
following questions: What specific recruitment and retention challenges (including vacancies and attrition rates) does
AOC face for senior-level positions and what impact do these challenges have on AOC’s operations; what is AOC
doing to fill vacancies and retain needed staff within these senior-level positions; and what else could be done,
including successful practices used by other agencies, to address any documented hiring and retention challenges for
AOC senior-level positions. GAO should report back to the Committee on its findings within 60 days of the enactment
of this bill.”
42 Ibid., p. 30.
43 For additional information, see CRS Report R41074, Architect of the Capitol: Appointment Process and Current
Legislation, by Ida A. Brudnick.
44 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,
December 12, 1985; 2 U.S.C. §621 (et seq.)).
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The FY2011 request of $47.29 million represents a $2.12 million increase (4.7%) over the $45.17
million provided in FY2010. The FY2010 level represented a 2.5% increase from the $44.1
million provided in the FY2009 Omnibus Appropriations Act. In FY2009, CBO also received
$2.0 million, to remain available through FY2010, in the FY2009 Supplemental Appropriations
Act (P.L. 111-32).
Highlights of the House Hearing on the FY2011 Budget of the CBO
The House subcommittee hearing on March 17, 2010, addressed a requested increase in full-time-
equivalent (FTE) staff from 254 to 258, the ideal staff size for CBO, and related issues including
space within the Ford House Office Building. Dr. Douglas Elmendorf, Director of the
Congressional Budget Office, also responded to questions related to diversity at CBO, the hiring
cycle, coordination of work related to healthcare with other legislative support agencies to
minimize overlap, and efforts to ensure responsiveness to majority and minority requests for
budget scores.
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 $674.79 million for FY2011, an increase of 4.9% over the $643.3 million
provided in FY2010. The FY2010 level represented an increase of 6.0% over the FY2009 level of
$607.1 million,45 and the FY2009 level represented an increase of approximately 7.8% over the
$563 million provided in the FY2008 Consolidated Appropriations Act. These figures do not
include additional authority to spend receipts.46
The FY2011 budget contains the following heading requests:
• Salaries and expenses—The request contained $460.92 million, a 4.8% increase
($21.12 million) over the $439.80 million provided for FY2010. This amount
does not include $6.35 million in authority to spend receipts.
• Copyright Office—The request contained $22.40 million (not including $34.39
million in authority to spend receipts), a 7.3% increase ($1.53 million) over the
$20.86 million (not including $34.61 million in authority to spend receipts)
provided for FY2010.
45 This percentage is not adjusted for non-recurring costs, including the transfer of the Library of Congress Police to the
Capitol Police.
46 An example of receipts are fees paid to the LOC for copyright registration.
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• Congressional Research Service—The request contained $119.92 million, a 6.6%
increase ($7.43 million) over the $112.49 million provided for FY2010.
• Books for the Blind and Physically Handicapped—The request contained $71.55
million, a 1.9% increase ($1.37 million) over the $70.18 million provided for
FY2010.
The Architect’s budget also contains funds for the Library buildings and grounds. The FY2011
request contains $101.20 million, a 121% increase ($55.41 million) from the $45.80 million
provided for Library buildings and grounds in FY2010. The requested increase would support
multi-year projects related to fire and life safety and for a new storage module in Fort Meade,
MD. The FY2010 level represented an increase of 17.1% from the FY2009 enacted level of $39.1
million.
Administrative Provisions
The Library requested a number of administrative provisions for FY2011, which would
1. provide authority to obligate funds for reimbursable and revolving fund
activities;
2. provide transfer authority among Library of Congress headings;
3. make amounts appropriated for “Library of Congress - Salaries and Expenses”
available for repayment of student loans for Library employees without regard to
the appropriation or fund that pays the employee’s salary;
4. make available balances of expired Library of Congress appropriations available
for the purposes of making payments for employees of the Library of Congress
under Section 8147 of Title 5, United States Code (relating to workers
compensation payments); and,
5. authorize the Librarian of Congress to dispose of surplus or obsolete personal
property of the Library of Congress, with amounts received credited to funds
available for the operations of the Library of Congress and available for the costs
of acquiring similar property.
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.47 Formerly the General Accounting
Office, the agency was renamed the Government Accountability Office effective July 7, 2004.
The FY2011 request contains $601.12 million (not including $19.44 million in offsetting
collections),48 a 7.9% increase ($44.27 million) from the $556.85 million (not including $15.22
million in offsetting collections) provided in FY2010. GAO received $531.0 million, not
including offsetting collections, in the FY2009 Omnibus Appropriations Act and an additional
47 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.
48 Offsetting collections include funds derived from reimbursable audits and rental of space in the GAO building.
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$25 million in P.L. 111-5 to cover responsibilities under the American Recovery and
Reinvestment Act of 2009.
Highlights of House Hearing on FY2011 Budget of the GAO
The House subcommittee held its hearing on GAO’s request on March 17, 2010. Gene Dodaro,
Acting Comptroller of the United States, discussed GAO’s (1) staffing level and a requested
increase of 140 FTEs, (2) staff diversity, (3) recurring mandates under the American Recovery
and Reinvestment Act of 2009, (4) technology assessments, (5) work with the Capitol Police on
budgetary issues, (6) ability to obtain information from the intelligence community, and (7)
studies on Iraq and Afghanistan.
Government Printing Office (GPO)
GPO has requested $166.56 million, a 13.0% increase ($19.10 million) from the $147.46 million
provided for FY2010. The FY2010 level represented an increase of 4.9% over the $140.6 million
provided in the FY2009 Omnibus Appropriations Act. 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 as follows:
• Congressional printing and binding—GPO requested $96.65 million, a 3.1%
increase ($2.88 million) over the $93.77 million provided for FY2010.
• Office of Superintendent of Documents (salaries and expenses)—GPO requested
$44.21 million, an 8.1% increase ($3.297 million) over the $40.91 million
provided for FY2010.
• Revolving fund—The revolving fund supports the operation and maintenance of
the Government Printing Office.49 GPO requested $25.70 million, a 101.1%
increase ($12.92 million) over the $12.78 million provided for FY2010. The
request includes “$11,000,000 for information technology development,
including $6,000,000 to continue developing FDsys; $7,250,000 for facilities
repairs and related projects, including $2,000,000 for continued elevator repairs;
$4,200,000 for continuity of operations (COOP) projects ... and $3,250,000 for
workforce retraining and development programs.”50
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
49 For additional information, see CRS Report R40939, Legislative Branch Revolving Funds, by Ida A. Brudnick and
Jacob R. Straus.
50 Justification of Budget Estimates, in U.S. Congress, House Committee on Appropriations, Subcommittee on the
Legislative Branch, Legislative Branch Appropriations for 2011, hearings, part 1, 111th Cong., 2nd sess. (Washington:
GPO, 2008), p. 732.
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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.
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 1995.51 The act applies various employment and workplace safety laws to
Congress and certain legislative branch entities.52
The initial budget request contained $4.858 million for FY2011, an increase of 11.0% ($481,057)
from the $4.377 million provided in FY2010. In her testimony before the House subcommittee on
March 17, 2010, Tamara E. Chrisler, Executive Director of the Office of Compliance, stated the
office was requesting a revised figure “of $4,675,491, a $298,491 or 6.82% increase.”53
The FY2010 level represented an increase of 7.5% from the $4.1 million provided in the FY2009
Omnibus, which was an increase of 21.8% over the FY2008 level of $3.3 million.
Highlights of House and Senate Hearings on FY2011 Budget of the Office of
Compliance
The House subcommittee hearing on March 17, 2010, addressed issues including (1) the
prioritization of fire and life safety issues, (2) staff salary increases, (3) office space issues, and
(4) the most common types of hazards and cooperation from the House offices to reduce them.
At its March 18, 2010, hearing, the Senate subcommittee asked for an update of a review required
in the FY2010 conference report of standards used by the Office of Compliance for historic
51 P.L. 104-1, 109 Stat. 3, January 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.
52 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.
53 Available at http://appropriations.house.gov/Witness_testimony/LEG/Tamara_Chrisler.3.17.10.pdf.
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buildings and a comparison of these standards to the executive branch.54 The subcommittee also
addressed the decrease in the number of hazards counted by the Office of Compliance.
Open World Leadership Center
The Open World Leadership Center administers a program that supports democratic changes in
other countries by inviting their leaders 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.
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.55 In 2004, Congress further extended the
program’s eligibility to other countries designated by the center’s board of trustees, subject to
congressional consideration.56 The center is housed in the Library and receives services from the
Library through an inter-agency agreement.
The FY2011 request contained $14.0 million, a $2.0 million (16.7%) increase over the $12.0
million provided for FY2010. The FY2010 level represented a decrease of 13.7% from 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.
Ongoing 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.
The FY2010 House Appropriations Committee report states that “the Legislative Branch
Subcommittee has been clear that it expects the Open World program to become financially
54 U.S. Congress, Legislative Branch Appropriations, 2010, H.Rept. 111-265, conference report to accompany H.R.
2918 (Washington, GPO: 2009) p. 35. This language stated the following: “The conferees are concerned that the
Congressional Accountability Act of 1995 may enable the Office of Compliance (OOC) to apply a higher enforcement
standard for certain health and safety standards than those applied to the Executive Branch and private sector. Strict
statutory deadlines for remedying citations exacerbate this situation, and have led AOC to give highest priority to
projects for which OOC has issued citations regardless of whether they represent the highest risk to health and safety....
The conferees believe that the standards applied to the legislative branch should be consistent with their application to
the private sector and the executive branch. Therefore, the conferees expect the Office of Compliance General Counsel
(OOCGC) to work with legislative branch agency heads to implement corrective actions in a realistic and reasonable
time frame, taking into consideration the risks the deficiencies pose, the costs involved in remedying the deficiencies,
as well as mitigating factors which have been implemented (sprinklers, alarms, and other building improvements) to
reduce risk. The conferees expect the OOCGC to amend its regulations to establish criteria that use a comprehensive
risk-based approach, including the cost of remedial actions as well as building renovations planned for the future, in
working with agencies to address needed corrections.”
55 P.L. 106-554, 114 Stat. 2763, 2763A-120, December 21, 2000; P.L. 108-7, 117 Stat. 382, February 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.
56 P.L. 108-447, 118 Stat. 3192, December 8, 2004.
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independent of funding in this bill as soon as possible.”57 This sentiment was also expressed in
the conference report, which stated the following:
The conferees are fully supportive of expanded efforts of the Open World Center to raise
private funding and expect this effort to reduce the requirements for funding from the
Legislative Branch appropriations bill in future years. The Committees look forward to a
report of progress being made by the Center’s fundraising program prior to hearings on its
fiscal year 2011 budget request.58
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.59 The FY2009 explanatory
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.60
The subcommittee also had discussed this issue during the FY2008 appropriations cycle,61 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.”62
John C. 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.63 In FY2011, $430,000 was requested for the Stennis
Center, the same level provided in FY2010 and FY2009. The FY2008 Consolidated
Appropriations Act provided $429,000, including a rescission.
57 U.S. House of Representatives, Committee on Appropriations, Legislative Branch Appropriations Bill, 2010, H.Rept.
111-160, (Washington, GPO: 2009) p. 29.
58 U.S. Congress, Legislative Branch Appropriations, 2010, H.Rept. 111-265, conference report to accompany H.R.
2918 (Washington, GPO: 2009) p. 42.
59 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.
60 Congressional Record, February 23, 2009, p. H2398.
61 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.
62 P.L. 110-161, 121 Stat. 2251, December 26, 2007.
63 2 U.S.C. 1105. See also http://www.stennis.gov/.
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Technology Assessments for Congress64
Since the closure of the Office of Technology Assessment (OTA), which was a legislative branch
agency established in 1972 and last funded in FY1996,65 congressional appropriators have
periodically reexamined funding for scientific studies by the legislative branch.66 In recent
Congresses, some Members have expressed support for the refunding of OTA through the
distribution of “Dear Colleague” letters67 and the introduction of legislation.68 Other Members
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.69 The FY2009 explanatory statement indicates that funding continues to be provided
for these studies.70
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. The FY2010 House report indicated that
funding was provided “at the fiscal year 2009 level for GAO to conduct technology assessment
studies.”71
During the February 24, 2010, subcommittee hearing for Members and public witnesses,
Representative Rush Holt again asked for the restoration of funding for OTA. Dr. Francesca
Grifo, director of the Scientific Integrity Program of the Union of Concerned Scientists, also
requested the reestablishment of OTA. Issues discussed during the hearing included whether or
not the authorizing statutes for OTA (2 U.S.C. 471 et seq.) would have to be updated prior to any
reestablishment and ensuring that any research resources could be accessible to all Members of
64 For additional information, see CRS Report RS21586, Technology Assessment in Congress: History and Legislative
Options, by Genevieve J. Knezo.
65 P.L. 92-484, October 13, 1972, 86 Stat. 797; P.L. 104-53, November 19, 1995, 109 Stat. 526.
66 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.
67 See, for example, House “Dear Colleague” letters of January 7, 2003; July 8, 2004; May 24, 2007; May 31, 2007;
and May 18, 2009.
68 See, for example, H.R. 125 (108th Cong.); H.R. 2148 (107th Cong.), and amendments to H.R. 1854 (104th Cong.).
69 Congressional Record, December 17, 2007, p. 16373.
70 Congressional Record, February 23, 2009, p. H2397.
71 U.S. House of Representatives, Committee on Appropriations, Legislative Branch Appropriations Bill, 2010, H.Rept.
111-160, (Washington, GPO: 2009) p. 29.
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Congress. The subcommittee also discussed whether these assessments can be conducted more
cost-effectively in existing agencies.
Table 4. Legislative Branch Appropriations, FY2011
(in thousands of dollars)
FY2011
FY2011
FY2010
FY2011
House-Passed
Senate-
FY2011
Entity
Enacteda
Request
Bill
Reported Bill
Enacted
Title 1: Legislative Branch Appropriations
Senate 926,160
1,041,918
926,179
House of Representatives
1,369,025
1,418,972
___
Joint Items
21,323
21,356
20,925
Capitol Policeb 341,274
376,024
335,435
Office of Compliance
4,377
4,858
4,377
Congressional Budget Office
45,165
47,289
46,589
Architect of the Capitol
601,586
754,808
442,611c
Library of Congress, Including CRS
643,337
674,785
643,337
Congressional Research Service,
Lib. of Cong.
112,490
119,919
114,341
Government Printing Office
147,461
166,560
147,461
Government Accountability Office 556,849
601,117
556,849
Open World Leadership Centerd 12,000
14,000
12,000
Stennis Center for Public Service
430
430
430
Title II: General Provisions
0 0
0
Total Legislative Branch (Titles
I and II)
4,668,987 5,122,117
3,136,193
Source: The U.S. Budget, P.L. 111-68, P.L. 111-212 and S.Rept. 111-294.
a. FY2010 funds are contained in P.L. 111-68 and P.L. 111-212.
b. This account was effective with the FY2003 Legislative Branch Appropriation Act. Previously, Capitol Police
funds were contained under the joint items account.
c. This level does not include funding for the House Office Buildings, which is determined by the House.
d. The center was named the Russian Leadership Program prior to FY2004. Appropriations represent
payments to the center’s trust fund.
Table 5. Senate Appropriations, FY2011
(in thousands of dollars)
FY2011
FY2011
FY2010
FY2011
House-
Senate-
FY2011
Accountsa
Enacted
Request
Passed Bill
Reported Bill Enacted
Payments—Heirs of Deceased
174 193
Members of Congress
Expense Allowances and
210 210
210
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FY2011
FY2011
FY2010
FY2011
House-
Senate-
FY2011
Accountsa
Enacted
Request
Passed Bill
Reported Bill Enacted
Representation
Salaries, Officers, and
178,982 191,239
185,982
Employees
Office of Legislative Counsel
7,154
7,532
7,154
Office of Legal Counsel
1,544
1,570
1,544
Expense Allowances for
30 30
30
Secretary of Senate, et al.
Contingent Expenses (subtotal)
738,066
841,337
731,066
Inquiries and Investigations
140,500
164,569
140,500
Senate Intl. Narcotics Caucus
520
520
520
Secretary of the Senateb 2,000
34,000 6,200
Sergeant at Arms/Doorkeeperc 153,601 161,286
142,401
Miscel aneous Items
19,145
22,046
19,145
Senators’ Official Personnel and
422,000 458,616
422,000
Office Expense Account
Official Mail Costs
300
300
300
Total, Senate
926,160 1,041,918
926,179
Source: The U.S. Budget, P.L. 111-68, P.L. 111-212 and S.Rept. 111-294.
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.”
c. Office operations of the Office of Sergeant at Arms and Doorkeeper are also funded under “Salaries,
Officers, and Employees.”
Table 6. House of Representatives Appropriations, FY2011
(in thousands of dollars)
FY2011
FY2011
Senate-
FY2010
FY2011
House-
Reported
FY2011
Accountsa
Enacted
Request
Passed Bill
Bill
Enacted
Payments—Heirs of Deceased
0
___
Members of Congressb
Salaries and Expenses, Total
1,369,025
___
House Leadership Offices
25,881
26,171
___
Members’ Representational
660,000 671,072
___
Allowancesc
Committee Employees
171,178 189,358
___
(subtotal)d
Standing Committees, Special
139,878 157,058
___
and Select, except
Appropriations
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FY2011
FY2011
Senate-
FY2010
FY2011
House-
Reported
FY2011
Accountsa
Enacted
Request
Passed Bill
Bill
Enacted
Appropriations Committee
31,300
32,300
___
Salaries, Officers, and Employees
198,301 206,413
___
(subtotal)
Office of the Clerk
30,089
29,299
___
Office of the Sergeant at Arms
9,509
19,623
___
Office of Chief Administrative
130,782 133,268
___
Officer
Office of Inspector General
5,045
5,212
___
Office for Emergency Planning,
4,445 —
___
Preparedness, and Operations
Office of General Counsel
1,415
1,439
___
Office of the Chaplain
179
176
___
Office of the Parliamentarian
2,060
2,095
___
Office of the Law Revision
3,258 3,365
___
Counsel
Office of the Legislative Counsel
8,814
9,052
___
Office of Interparliamentary
859 879
___
Affairs
Other Authorized Employees:
1,249 1,356
___
Technical Assistants, Office of
Attending Physician
Office of Historian
597
649
___
Allowances and Expenses
313,665 325,958
___
(subtotal)
Supplies, Materials,
3,948 4,400
___
Administrative Costs and Federal
Tort Claimse
Official Mail for committees,
201 201
___
leadership, administrative and
legislative offices
Government Contributions
276,703
286,316
___
Capitol Visitor Center
—
___
Business Continuity and Disaster
25,098 26,312
___
Recovery Emergency
Appropriations
Miscel aneous Items
760
793
___
Transition Activitiese 2,907
2,664
___
Wounded Warrior Programe —
2,500
___
Energy demonstration projects
2,500
500
___
Office of Congressional Ethicse 1,548
2,272
___
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FY2011
FY2011
Senate-
FY2010
FY2011
House-
Reported
FY2011
Accountsa
Enacted
Request
Passed Bill
Bill
Enacted
House of Representatives, Total
1,369,025 1,418,972
___
Sources: The U.S. Budget, P.L. 111-68, P.L. 111-212 and S.Rept. 111-294.
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 for the widow of John P. Murtha was contained in the House-passed version of H.R. 4899.
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.
Table 7. Capitol Police Appropriations, FY2011
(in thousands of dollars)
FY2011
FY2011
FY2010
FY2011
House-
Senate-
FY2011
Accounts
Enacteda Requested Passed Bill Reported Bill Enacted
Salaries,
Capitol Police
278,144
280,330 277,289
General
Expenses 63,130
95,694 58,146
Total,
Capitol
Police 341,274
376,024 335,435
Source: The U.S. Budget, budget amendments, P.L. 111-68, P.L. 111-212 and S.Rept. 111-294.
a. This level includes the $12.96 million provided for salaries in P.L. 111-212.
b. Submitted by the President on April 5, 2010. Available at http://www.whitehouse.gov/omb/assets/
budget_amendments/amendment_04_05_10.pdf.
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Table 8. Architect of the Capitol Appropriations, FY2011
(in thousands of dollars)
FY2011
FY2011
House-
Senate-
FY2010
FY2011
Passed Reported FY2011
Accounts
Enacted
Requested
Bill
Bill
Enacted
Architect of the Capitol
General administration
106,783
118,708
105,794
Capitol building
33,182
79,585
42,770
Capitol grounds
10,974
12,066
9,940
Senate office buildings
74,392
104,073
81,112
House of Representative buildings
___
House office buildings
100,466
90,810
___
House Historic buildings revitalization
50,000
___
fund 50,000
Capitol power planta
119,133
120,585
109,962
Library buildings and grounds
45,795
101,203
35,336
Capitol Police buildings and grounds
27,012
39,515
22,158
Botanic garden
11,390
14,348
12,768
Capitol Visitor Center
22,459
23,915
22,771
Total, Architect of the Capitol
601,586
754,808
442,611
Source: The U.S. Budget, P.L. 111-68, P.L. 111-212 and S.Rept. 111-294.
a. Not including offsetting collections.
For Additional Reading
CRS Reports
CRS Report R40617, Legislative Branch: FY2010 Appropriations, by Ida A. Brudnick
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
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Legislative Branch: FY2011 Appropriations
Selected Websites
These sites contain information on the FY2011 and FY2010 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/
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 Recycling
Jacob Straus
G&F
7-6438 jstraus@crs.loc.gov
Legislative Branch Bill Structure
Lorraine H. Tong
G&F
7-5846 ltong@crs.loc.gov
Note: Division abbreviations: G&F = Government and Finance
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