.
Commerce, Justice, Science, and Related
Agencies Appropriations (CJS): Trade-Related
Agencies
M. Angeles Villarreal
Specialist in International Trade and Finance
April 6, 2015
Congressional Research Service
7-5700
www.crs.gov
R43970
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CJS Appropriations: Trade-Related Agencies
Summary
This report tracks and describes actions taken by the Administration and Congress to provide
FY2016 appropriations for the International Trade Administration (ITA) of the U.S. Department
of Commerce, the U.S. International Trade Commission (USITC), and the Office of the United
States Trade Representative (USTR). These three trade-related agencies are part of the
Commerce, Justice, Science, and Related Agencies (CJS) appropriations process. The report also
provides an overview of three trade-related programs that are administered by ITA, USITC, and
USTR.
The Consolidated and Further Continuing Appropriations Act, 2015 (P.L. 113-235) provided a
total of $600.8 million for the three agencies, including $462.0 million for ITA, $84.5 million for
USITC, and $54.3 million for USTR. The Administration requests $684.6 million for FY2016 for
the three agencies, which is 13.9% more than what Congress appropriated for FY2015. The
request includes a one-time increase of $83.8 million (55.6%) in funding for USITC for costs
associated with securing space for the agency following the expiration of its current lease in
August 2017.
Key issues that may be of interest to Congress are the Administration’s efforts regarding China
antidumping and countervailing duty enforcement and compliance activities, the Interagency
Trade Enforcement Center, and efforts to attract foreign investment to the United States. The
budget request includes a $6.0 million increase for ITA to support the Interagency Trade
Enforcement Center (ITEC), led by both USTR and ITA, which would increase funding by 66.7%
over the FY2015 level. The FY2016 request also includes a $10.0 million increase, a proposed
100% increase, for ITA’s SelectUSA program to help attract foreign direct investment to the
United States.
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Contents
Introduction ...................................................................................................................................... 1
FY2015 and FY2016 Appropriations for Trade-Related Agencies .................................................. 1
International Trade Administration (ITA) .................................................................................. 2
Global Markets Unit ............................................................................................................ 3
Industry and Analysis .......................................................................................................... 3
Enforcement and Compliance ............................................................................................. 3
U.S. International Trade Commission (USITC) ........................................................................ 4
Office of the U.S. Trade Representative (USTR) ...................................................................... 4
Selected Trade-Related Programs and Activities ............................................................................. 5
China Trade Enforcement and Compliance Activities............................................................... 5
SelectUSA Program ................................................................................................................... 5
Interagency Trade Enforcement Center ..................................................................................... 5
Overview of Issues .......................................................................................................................... 6
Tables
Table 1. Appropriations for CJS Trade-Related Agencies, FY2015 and FY2016 ........................... 2
Table A-1. Budget Authority for ITA by Unit: FY2005-FY2015 .................................................... 7
Table A-2. Budget Authority for USITC and USTR: FY2005-FY2015 .......................................... 8
Table A-3. Budget Authority for Selected Trade-Related Programs ................................................ 8
Appendixes
Appendix. Budget Authority Tables ................................................................................................ 7
Contacts
Author Contact Information............................................................................................................. 9
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CJS Appropriations: Trade-Related Agencies
Introduction
This report tracks and provides an overview of actions taken by the Administration and Congress
to provide appropriations for trade-related agencies under the Commerce, Justice, Science, and
Related Agencies (CJS) appropriations process.1 It provides an overview of the Administration’s
FY2016 budget request and enacted FY2015 appropriations for the International Trade
Administration (ITA), the U.S. International Trade Commission (USITC), and the Office of the
United States Representative (USTR), as a part of the annual appropriation for CJS.
Issues that may be of interest to Congress include the Administration’s efforts regarding China
antidumping and countervailing duty enforcement and compliance activities and the Interagency
Trade Enforcement Center (ITEC). Congress may also be interested in the Administration’s
efforts to attract foreign direct investment to the United States through the SelectUSA program.
This report will be updated as events warrant.
FY2015 and FY2016 Appropriations for Trade-
Related Agencies
On December 16, 2014, President Obama signed into law the Consolidated and Further
Continuing Appropriations Act, 2015 (P.L. 113-235). The act provided a total of $61.753 billion
for the agencies and bureaus funded by the annual CJS appropriations act in FY2015, including
$600.8 million for three trade-related agencies. The Administration requests a total of $66.382
billion for CJS for FY2016. The Administration’s request would be 7.5% more than what
Congress appropriated for FY2015.2 For the three trade-related agencies, the Administration
requests $684.6 million for FY2016, an increase of 13.9% over the FY2015 amount. Table 1
shows the FY2015 enacted appropriations and the Administration’s FY2016 request for these
agencies.
1 The annual Commerce, Justice, Science, and Related Agencies (CJS) appropriations act provides funding for the
Departments of Commerce and Justice, the science agencies, and several related agencies. Appropriations for the
Department of Commerce include funding for the International Trade Administration (ITA). The annual appropriation
for the related agencies includes funding for numerous agencies, including the U.S. International Trade Commission
(USITC), and the Office of the United States Trade Representative (USTR).
2 See CRS Report R43918, Overview of FY2016 Appropriations for Commerce, Justice, Science, and Related Agencies
(CJS), by Nathan James.
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Table 1. Appropriations for CJS Trade-Related Agencies, FY2015 and FY2016
($ in millions)
FY2016
FY2016
CJS Trade-Related
FY2015
FY2016
House
Senate
FY2016
Agency
Enacted
Request
Passed
Passed
Enacted
International Trade
$462.0a $496.8a
Administration
U.S. International Trade
$84.5 $131.5
Commission
Office of the U.S. Trade
$54.3 $56.3
Representative
Total $600.8
$684.6
Source: The FY2015 enacted amounts were taken from the Joint Explanatory Statement to accompany P.L. 113-
235, printed in the December 11, 2014, Congressional Record (pp. H9342-H9363). The FY2016 requested
amounts were taken from the FY2016 budget submissions from the International Trade Administration, U.S.
International Trade Commission, and the Office of the U.S. Trade Representative.
a. Appropriation amounts for ITA include $10.0 million in user fees, which would raise available funds to
$472.0 million in FY2015 and $506.8 million in FY2016.
International Trade Administration (ITA)
ITA is a part of the Department of Commerce, whose mission is to promote “job creation,
economic growth, sustainable development and improved standards of living ... by working in
partnership with businesses, universities, communities and ... workers.”3 ITA’s mission is to
improve U.S. prosperity by strengthening the competitiveness of U.S. industry, promoting trade
and investment, and ensuring compliance with trade laws and agreements. ITA provides export
promotion services, works to ensure compliance with trade agreements, administers trade
remedies such as antidumping and countervailing duties, and provides analytical support for
ongoing trade negotiations. ITA went through a major organizational change in October 2013 in
which it consolidated four organizational units4 into three more functionally-aligned units, which
include: (1) Global Markets; (2) Industry and Analysis; and (3) Enforcement and Compliance.
ITA also has a fourth organizational unit, the Executive and Administrative Directorate, which is
responsible for providing policy leadership, information technology support, and administration
services for all of ITA.5 Table A-1 shows budget amounts for ITA by unit between FY2005 and
FY2015.
The FY2015 CJS Appropriations Act provided $462.0 million for ITA in direct funding, with an
additional $10.0 million in user fees, for a total of $472.0 million in available funds. The
Administration’s request for FY2016 is $496.8 million, an increase of 7.5% over the FY2015
enacted amount (not including user fees). The request includes an additional $10.0 million in user
3 U.S. Department of Commerce, About the Department of Commerce, http://www.commerce.gov/about-department-
commerce.
4 ITA’s four organizational units prior to FY2014 included Manufacturing and Service; Market Access and
Compliance; Import Administration; and Trade Promotion and the U.S. & Foreign Commercial Service.
5 International Trade Administration (ITA), About the International Trade Administration, http://www.trade.gov.
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fees, the same amount as in FY2015, which would raise total available funds to $506.8 million
for FY2016.6
Global Markets Unit
ITA’s Global Markets unit combines country and regional experts, both overseas and
domestically, and specific trade promotion programs to provide U.S. firms with country-specific
export promotion services and market access advocacy. The unit also promotes the United States
as an investment destination. It is designed to advance U.S. commercial interests by engaging
with foreign governments and U.S. businesses, identifying and resolving country-specific market
barriers, and leading interagency efforts that advocate for U.S. firms with foreign governments. It
also is also designed to help promote U.S. exports by developing and implementing policies and
programs to increase market access in foreign countries for U.S. goods and services and by
providing various types of direct assistance to U.S. firms, especially small and medium-sized
enterprises.
For FY2016, ITA requests $334.4 million and 1,122 full time employees (FTEs) for the Global
Markets unit, a net increase of $4.7 million and 9 FTEs over the previous year.7
Industry and Analysis
ITA’s Industry and Analysis unit brings together ITA’s industry, trade, and economic experts to
advance the competitiveness of U.S. industries through the development and execution of
international trade and investment policies, export promotion strategies, and investment
promotion. It develops economic and international policy analysis in an effort to improve market
access for U.S. businesses, and designs and implements trade and investment promotion
programs. The unit serves as the primary liaison between U.S. industries and the government on
trade and investment promotion. It administers programs that support small and medium-sized
enterprises, such as the Market Development Cooperator Program.
For FY2016, ITA requests $58.3 million and 248 FTEs for the Industry and Analysis unit, a net
increase of $1.0 million and the same number of FTEs compared to the previous year.8
Enforcement and Compliance
The mission of ITA’s Enforcement and Compliance unit is to enforce U.S. trade laws and ensure
compliance with negotiated international trade agreements. It promotes the administration of U.S.
antidumping and countervailing trade law remedies; addresses trade-distorting practices;
promotes disciplines and practices by U.S. trading partners that enhance transparency and
impartiality; and administers the Foreign Trade Zone program and other U.S. import programs. It
represents and advocates on behalf of U.S. industries on issues regarding trade enforcement and
compliance.
6 ITA, Budget Estimates for Fiscal Year 2016, February 2015, pp. 5-7.
7 Ibid., p. 53.
8 Ibid., p. 19.
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For FY2016, ITA requests a total of $80.7 million and 348 FTEs for Enforcement and
Compliance, an increase of $6.2 million and 18 FTEs over the previous year.9
U.S. International Trade Commission (USITC)
USITC is an independent federal agency with broad investigative responsibilities on matters
related to international trade. The mission of the agency is to “(1) administer U.S. trade remedy
laws within its mandate in a fair and objective manner; (2) provide the President, USTR, and
Congress with independent analysis, information, and support on matters of tariffs, international
trade, and U.S. competitiveness; and (3) maintain the Harmonized Tariff Schedule of the United
States.” 10 USITC’s activities include investigating the effects of dumped and subsidized imports
on domestic industries; conducting global safeguard investigations; and adjudicating disputes
involving imported goods that allegedly infringe U.S. intellectual property rights. Through such
proceedings, the agency helps to facilitate a rules-based international trading system. USITC also
serves as a federal resource for trade data and other trade policy information. It provides such
information and analysis to Congress, the President, and USTR to facilitate the development of
U.S. trade policy. USITC also makes most of this information available to the public to promote
understanding of competitiveness, international trade issues, and the role that international trade
plays in the U.S. economy. As a matter of policy, its budget request is submitted to Congress by
the President without revision.
USITC received $84.5 million for FY2015. The Administration’s request for USITC for FY2016
is $131.5 million, of which $42.7 million is a one-time cost related to the transition to a new
office plan. The FY2016 request is 55.6% more than the FY2015 enacted amount.11
Office of the U.S. Trade Representative (USTR)
USTR, located in the Executive Office of the President, is responsible for developing and
coordinating U.S. international trade and direct investment policies. USTR is the President’s chief
negotiator for international trade agreements, including commodity and direct investment
negotiations. It negotiates directly with foreign governments to create trade agreements, resolve
disputes, and participate in global trade policy organizations such as the World Trade
Organization. It also meets with business groups, policymakers, and public interest groups on
trade policy issues.12 USTR is leading free trade agreement (FTA) negotiations for the United
States for the proposed Trans-Pacific Partnership agreement (TPP) and for the proposed
Transatlantic Trade and Investment Partnership (T-TIP). It is also monitoring the implementation
of existing FTAs such as the U.S.-South Korea and U.S.-Colombia FTAs.
9 Ibid., pp. 33 and 89.
10 U.S. International Trade Commission (USITC), About the USITC, http://www.usitc.gov.
11 USITC, Budget Justification Fiscal Year 2016, February 2016. The budget does not provide information on staff
level estimates.
12 Office of the United States Trade Representative (USTR), About Us, http://www.ustr.gov.
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The FY2015 CJS Appropriations Act provided $54.3 million for USTR. The Administration’s
request for FY2016 is $56.3 million and an estimated 240 FTEs, a proposed increase of 3.7% and
7 FTEs over the FY2015 enacted amount.13
Selected Trade-Related Programs and Activities
Over the past decade, Congress has provided funding for specific trade-related programs under
the CJS trade-related agencies. These programs have sought to address areas of congressional
interest, including: China trade enforcement and compliance activities; trade promotion and
attracting foreign direct investment to the United States through ITA’s SelectUSA program; and
the Interagency Trade Enforcement Center (ITEC) established by the President in 2012.
China Trade Enforcement and Compliance Activities
Since 2004, Congress has dedicated some of ITA’s funding to antidumping and countervailing
duty enforcement and compliance activities with respect to China and other non-market
economies. ITA’s Office of China Compliance was established on January 23, 2004, under the
Consolidated Appropriations Act of 2004 (P.L. 108-199). Its primary role was to enforce U.S.
antidumping and countervailing duty laws and to develop and implement other policies and
programs aimed at countering unfair foreign trade practices in China. ITA’s China Countervailing
Duty Group was established in FY2009 to accommodate the workload that resulted from the
application of countervailing duty law to imports from non-market economy countries.14 See
Table A-3 for FY2005 through FY2015 budget authority for ITA’s China antidumping and
countervailing duty enforcement and compliance activities—including the Office of China
Compliance and the China Countervailing Duty Group.
SelectUSA Program
Created in 2011, SelectUSA is part of ITA’s Global Markets unit. It coordinates investment-
related resources across more than 20 federal agencies to promote the United States as an
investment market and to address investor climate concerns that may impede investment in the
United States. It serves as an information resource for international investors and advocates for
U.S. cities, states, and regions. ITA is requesting $20.0 million for FY2016 to implement further
the SelectUSA program, an increase of $10.0 million over the FY2015 amount.15 Table A-3
shows SelectUSA funding levels for FY2012 through FY2015.
Interagency Trade Enforcement Center
On February 28, 2012, President Barack Obama signed Executive Order 13601 establishing the
ITEC to advance U.S. foreign trade policy through strengthened and coordinated enforcement of
13 Executive Office of the President, USTR, Congressional Budget Submission, February 2015.
14 House Committee Report 111-149, Commerce, Justice, Science, and Related Agencies Appropriations Bill, 2010, pp.
10-11.
15 Ibid., p. 57.
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U.S. trade rights under international trade agreements and enforcement of U.S. trade laws.16 The
President’s goal is to take a “whole-of-government” approach to monitoring and enforcing U.S.
trade rights around the world by using expertise from across the federal government.17 The ITEC
is led by a Director designated by USTR and a Deputy Director designated by the Secretary of
Commerce. The ITEC coordinates interagency trade enforcement matters among USTR and the
Departments of Commerce, State, Treasury, Justice, Agriculture, and Homeland Security, as well
as the Office of the Director of National Intelligence, and other agencies that the President or
USTR may designate. ITA works closely with the ITEC to identify issues and develop
information in areas of economic importance to U.S. industries. Funding for the ITEC is
appropriated through ITA. The FY2016 budget request for the ITEC is $15.0 million, an increase
of $6.0 million over the FY2015 funding amount.18 See Table A-3 for FY2012 through FY2015
budget authority for the ITEC.
Overview of Issues
Issues that Congress may consider while debating the FY2016 funding levels for the three CJS
trade-related agencies could include:
• Whether to approve a one-time 55.6% increase in funding for USITC for costs
associated with securing office space for the agency following the expiration of
its current lease in August 2017.
• Whether to provide an additional $10.0 million (100% increase) for ITA’s
SelectUSA program to help attract foreign investment to the United States.
• Whether to provide an increase of $6.0 million (67% increase) for ITA to support
the ITEC led by USTR and ITA.
• Whether Congress should continue to provide funding for ITA’s China
antidumping and countervailing duty enforcement and compliance activities.
16 Executive Order 13601, "Establishment of the Interagency Trade Enforcement Center," vol. 77 (Washington: GPO,
2012).
17 Office of the United States Trade Representative, Interagency Trade Enforcement Center (ITEC),
https://www.ustr.gov.
18 ITA, Budget Estimates Fiscal Year 2016, p. 40.
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Appendix. Budget Authority Tables
Table A-1. Budget Authority for ITA by Unit: FY2005-FY2015
($ in millions)
FY2005 FY2006 FY2007 FY2008 FY2009 FY2010 FY2011 FY2012 FY2013 FY2014 FY2015
Manufacturing and
Services
47.9 46.8 47.1 40.5 48.6 49.5 48.9 46.5 42.3 — —
Market Access and
Compliance
42.0 41.4 41.6 41.4 42.3 43.2 42.6 42.6 39.9 — —
Import
Administration
61.7 59.4 59.8 62.7 66.4 68.3 67.4 69.8 70.9 — —
Trade Promotion
and the U.S. &
Foreign Commercial
215.1 224.2 223.7 235.4 237.7 258.4 254.9 269.8 261.7
—
—
Service
Industry and
Analysis
— — — — — — — — —
54.9
55.5
Enforcement and
Compliance
— — — — — — — — —
70.6
71.6
Global
Markets
— — — — — — — — —
312.0
311.8
Executive and
25.7 25.5 25.7 25.1 25.4 27.3 26.9 26.9 23.7 23.1 23.1
Administration
Total
ITA
392.4 397.3 397.8 405.2 420.4 446.8 440.7 455.6 438.5 460.6 462.0
Source: Budget office, International Trade Administration (ITA), U.S. Department of Commerce.
Notes: In 2014, ITA went through a reorganization in which four units (Manufacturing and Services, Market Access and Compliance, Import Administration, and the U.S.
& Foreign Commercial Service) were restructured into three units: Industry and Analysis, Enforcement and Compliance, and Global Markets.
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Table A-2. Budget Authority for USITC and USTR: FY2005-FY2015
($ in millions)
FY2005 FY2006 FY2007 FY2008 FY2009
FY2010 FY2011
FY2012
FY2013
FY2014
FY2015
USITC
60.9 62.0 62.0 68.4 75.1 81.9 81.7 80.0 78.9 83.0 84.5
USTR
41.0 44.2 44.2 44.1 47.3 47.8 47.7 51.3 47.6 52.6 54.3
Source: S.Rept. 109-188; S.Rept. 109-280; H.Rept. 110-240 and P.L. 110-28; House Committee on Appropriations' committee print on the Omnibus Appropriations
Act, 2009 (P.L. 111-8), Division B; H.Rept. 111-149; S.Rept. 111-229; H.Rept. 112-169; H.Rept. 112-463; joint explanatory statement to accompany P.L. 113-76, printed in
the January 15, 2014, Congressional Record (pp. H507-H532); joint explanatory statement to accompany P.L. 113-235, printed in the December 11, 2014, Congressional
Record (pp. H9342-H9363). FY2013 post-sequestration amounts were provided by USITC and USTR.
Notes: FY2013 appropriations include sequestration.
Table A-3. Budget Authority for Selected Trade-Related Programs
($ in millions)
FY2005 FY2006 FY2007 FY2008 FY2009
FY2010 FY2011 FY2012 FY2013 FY2014 FY2015
Office of China
$3.0 $3.0 $3.0 $5.9 $7.0 $7.0 $3.0 $7.0 — — —
Compliance (ITA)
China Countervailing
Duty Group (ITA)
$0.0 $0.0 $0.0 $0.0 $4.4 $4.4 $0.0 $4.4 — — —
China antidumping and
countervailing duty
enforcement and
— — — — — — — —
$16.4
$16.4
$16.4
compliance activities
(ITA)
Select
USA
(ITA)
— — — — — — —
$0.9
$0.9
$7.0
$10.0
Interagency Trade
Enforcement Center
— — — — — — —
$3.2
$6.3
$7.5
$9.0
(ITA and USTR)
Sources: P.L. 108-447, P.L. 110-161, P.L. 111-117, H.Rept. 111-366, joint explanatory statements to accompany P.L. 113-76 and P.L. 113-235, and ITA Budget office.
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CJS Appropriations: Trade-Related Agencies
Author Contact Information
M. Angeles Villarreal
Specialist in International Trade and Finance
avillarreal@crs.loc.gov, 7-0321
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