Transportation, Housing and Urban
July 26, 2021
Development, and Related Agencies
Maggie McCarty
(THUD) Appropriations for FY2022
Specialist in Housing Policy

The respective House and Senate Transportation, Housing and Urban Development, and Related
David Randall Peterman
Agencies (THUD) Appropriations subcommittees are charged with providing annual
Analyst in Transportation
appropriations for the Department of Transportation (DOT), the Department of Housing and
Policy
Urban Development (HUD), and certain related agencies. This report describes action on

FY2022 annual appropriations for THUD, including detailed tables for each major agency and a
brief overview of selected issues.

The annual appropriations process typically begins with the release of the President’s budget request to Congress in early
February. The timing of the THUD budget request for FY2022 was affected by a presidential transition, from the
Administration of President Donald J. Trump to the Administration of President Joseph R. Biden, occurring in late January
2021. As a result of this transition, the full FY2022 budget submission was delayed until May 28, 2021. (A summary of the
request for discretionary funding was submitted to Congress on April 9, 2021). The budget proposed increasing discretionary
funding for THUD agencies by 10% (+$7.5 billion) from FY2021 levels. The bulk of that increase in funding is directed to
HUD (+$7.1 billion), primarily for increased funding for HUD rental assistance programs (+$6.1 billion).
In July 2021, the House Appropriations Committee reported out its version of a THUD appropriations bill (H.R. 4550;
H.Rept. 117-99). It included a larger increase in funding for THUD agencies (+11.5%; +$8.7 billion over FY2021) than the
President’s budget. The House Appropriations Committee bill proposed a larger increase for DOT (+7.3% over FY2021) than
the President had requested (+1.6%). Rules Committee Print 117-12 combines THUD appropriations with several other
appropriations acts planned for House floor consideration in the legislative vehicle H.R. 4502.
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THUD Appropriations for FY2022

he respective House and Senate Transportation, Housing and Urban Development, and
Related Agencies (THUD) Appropriations subcommittees are charged with providing
T annual appropriations for the Department of Transportation (DOT), the Department of
Housing and Urban Development (HUD), and certain related agencies. This report describes
action on FY2022 annual appropriations for THUD, including detailed tables for each major
agency and a brief overview of selected issues.
FY2022 Budget Process
Appropriations for DOT, HUD, and the related agencies typically funded in the THUD bill
happen in the context of the broader annual congressional appropriations process. That process
generally begins with the submission of the President’s budget request, followed by adoption of
congressional spending limits (generally, in a budget resolution) that set the overall level of
spending for that fiscal year’s appropriations bills.
The President’s budget request for the upcoming fiscal year is due to be submitted to Congress by
the first Monday in February. However, the FY2022 budget submission occurred during a
presidential transition year—from the presidency of Donald J. Trump to Joseph R. Biden on
January 20, 2021. Recent Presidents have not submitted detailed budget proposals until April or
May of their first year in office, although each has advised Congress regarding the general
contours of their economic and budgetary policies in special messages submitted to Congress
prior to that submission.1 This delay allows time to prepare a proposal that reflects the priorities
of the new administration. On April 9, President Biden submitted to Congress an outline of his
discretionary funding priorities for FY2022.2 This preliminary document provided early
highlights for numerous policy areas. The full budget request was submitted on May 28, almost
four months after its due date.3 As a result, the start of annual appropriations decision-making for
FY2022 also was delayed to allow time for Congress to consider this request.
The framework for budget enforcement under the congressional budget process for the past
decade has had both statutory and procedural elements. The statutory elements have included
limits on discretionary spending established by the Budget Control Act of 2011, as amended
(BCA; P.L. 112-25). However, those discretionary spending limits extended only through
FY2021, meaning no statutory limits on discretionary spending are currently in place for FY2022.
The procedural elements of budget enforcement are primarily associated with the budget
resolution. They limit both total discretionary spending available to the Appropriations
committees (commonly referred to as “302(a) allocations”) and spending under the jurisdiction of
each appropriations subcommittee (“302(b) suballocations”).
While there has not been House or Senate action on an FY2022 budget resolution, on June 14, the
House adopted H.Res. 467 to provide a 302(a) allocation to the House Appropriations
Committee.4 On June 24, pursuant to this resolution, the House Budget Committee published in
the Congressional Record the House Appropriations Committee allocations. Subsequently, the
House Appropriations Committee reported its initial 302(b) suballocations for all 12 bills,

1 CRS Insight IN11655, Budget Submission After a Presidential Transition: Contextualizing the Biden Administration’s
FY2022 Request.
2 Office of Management and Budget (OMB), The President’s FY2022 Discretionary Request, April 9, 2021,
https://www.whitehouse.gov/omb/fy-2022-discretionary-request/.
3 See https://www.whitehouse.gov/omb/budget/.
4 For a discussion of budget enforcement through methods such as H.Res. 467, see CRS Report R44296, Deeming
Resolutions: Budget Enforcement in the Absence of a Budget Resolution.
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including THUD, on July 1 (H.Rept. 117-78), followed by a revision on July 16 (H.Rept. 117-91).
(Revisions to suballocations throughout the appropriations process are a common practice to
reflect actual action on appropriations bills and changes in congressional priorities.) Table 1
shows the suballocation to the THUD Subcommittee, compared to the comparable FY2021
enacted and President’s Budget figures.
Table 1. FY2022 THUD 302(b) Suballocations in Context
(dollars in billions)
FY2021
President’s FY2022
House FY2022
Senate FY2022
FY2022

Enacted
Request
302(b)
302(b)
Enacted
THUD
74.658a
82.913
84.062

Totals
Source: FY2021 enacted from CBO Status of Discretionary Appropriations, FY2021, February 1, 2021
(https://www.cbo.gov/system/files?file=2021-02/FY2021-House-2021-02-01.pdf); President’s FY2022 request
taken from Comparative Statement of Budget Authority, p. 306 of H.Rept. 117-99; House FY2022 302(b) from
H.Rept. 117-91.
a. An additional $718 mil ion provided for THUD by P.L. 116-260 was deemed an emergency requirement,
and is thus excluded for purposes of calculating the total subject to discretionary spending limits under the
BCA, as amended, and is not shown in this table.
FY2022 THUD Appropriations Process
Two factors make the FY2022 THUD appropriations process different than most years. One is the
ongoing Coronavirus Disease 2019 (COVID-19) pandemic. The FY2021 Consolidated
Appropriations Act provided supplemental coronavirus relief funding, including $27 billion for
DOT in FY2021. Additionally, the American Rescue Plan Act of 2021 (ARPA; P.L. 117-2)
appropriated $54 billion in mandatory COVID-19 relief and response via programs and activities
typically funded in the THUD appropriations bill. These funds did affect total spending on
activities normally funded by the THUD appropriations bill, but were provided outside of the
annual appropriations process, and thus are outside the scope of this report. (For more
information on ARPA funding, see Appendix A-1 of CRS Report R46465, Transportation,
Housing and Urban Development, and Related Agencies (THUD) Appropriations for FY2021.)
Second, the Biden Administration has announced a proposed infrastructure investment package—
referred to as the American Jobs Plan—that would provide significant additional funding for
housing and transportation programs and activities. Legislation to implement this plan is being
negotiated, and it is possible that the housing funding might be provided outside of the annual
appropriations process. For this reason, the plan is not discussed in this report. (For more
information about the American Jobs Plan, see https://www.whitehouse.gov/american-jobs-plan/.)
President’s Budget
The President’s FY2022 budget proposed an increase of 10% (+$7.5 billion) in discretionary
funding for THUD agencies relative to FY2021, with HUD proposed to receive the vast majority
of that increased funding (+$7.1 billion). (For more information about the President’s budget
request for HUD, see CRS Report R46849, Department of Housing and Urban Development
(HUD): FY2022 Budget Request Fact Sheet.)
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House Action
The House Committee on Appropriations ordered reported its FY2022 THUD appropriations bill
on July 16, following subcommittee markup on July 12. The bill was reported as H.R. 4550,
accompanied by H.Rept. 117-99, on July 20. It included a larger increase in funding for THUD
agencies than requested by the President (+$8.6 billion, +11.5% relative to FY2021).
THUD appropriations are planned to be considered in an amended version of H.R. 4502 that
combines several other appropriations acts for House floor consideration (THUD is Division G).5

Return of Earmarks
In the 112th Congress (2011-2012), the House and Senate began observing what has been referred to as an
“earmark moratorium" or "earmark ban,” which was articulated in party rules and committee protocols. This ban
limited the ability of directing spending, tax, or tariff benefits to specific entities outside of statutory or
administrative formulas or competitive award processes. Prior to the instatement of the earmark ban, accounts in
both DOT’s and HUD’s budget were frequent sources of congressionally directed spending, or earmarks. The
earmark ban was effectively lifted in the 117th Congress, although earmark disclosure requirements adopted by
both the House and the Senate during the 110th Congress remain in effect.
For a list of disclosed earmarks contained in the FY2022 House Appropriations Committee-reported THUD bil —
referred to as congressionally-requested projects—see “Incorporation of Community Project Funding” table,
beginning on p. 167 of H.Rept. 117-99.
For more information about earmark disclosure rules, see CRS Report RS22866, Earmark Disclosure Rules in the
House: Member and Committee Requirements.

Table 2 tracks FY2022 THUD funding at the bill title level.
Table 2. THUD Appropriations by Bill Title, FY2021-FY2022
(dollars in millions)
FY2022
FY2022
House
FY2022
FY2022

FY2021 Enacted
Request
Committee
Senate
Enacted
Title I: DOT
86,709
87,047
105,740

Discretionary
25,317
25,728
27,175

Mandatory
61,392
61,320
78,565

Title II: HUD
49,648b
56,785
56,471

Title III: Other Independent
Agencies
388
400
416

Title IV: General Provisions
23c
—
—

Total Discretionary
75,376
82,913
84,062

Total Discretionary (excluding
emergency designated
74,658d
82,913
84,062

funding)

5 House Committee On Rules, “Amendment Process Announcement for LHHS, Agriculture, Energy and Water, FSGG,
Interior, Environment, MilCon/VA, and THUD Appropriations Act, 2022,” press release, July 17, 2021,
https://rules.house.gov/news/announcement/amendment-process-announcement-lhhs-agriculture-energy-and-water-
fsgg-interior.
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FY2022
FY2022
House
FY2022
FY2022

FY2021 Enacted
Request
Committee
Senate
Enacted
Total Mandatory
61,392
61,320
78,565

Total
136,768
144,232
162,627

Emergency Appropriations
27,718e
(discretionary)
—
—

Source: Comparative Statement of Budget Authority, beginning on p. 288 of H.Rept. 117-99.
Notes: Totals may not add or exactly match source materials due to rounding. The totals include both
discretionary budget authority and contract authority (a type of mandatory budget authority provided to DOT
that is not included in the bil ’s discretionary budget authority figure).
b. Of this amount, $695 mil ion for the tenant-based rental assistance account was designated as being for an
emergency requirement by Section 420 of Division L.
c. This additional amount for Essential Air Services under DOT was provided in Section 421 of Division L,
instead of Title I, and was designated as being for an emergency requirement.
d. As noted in Table Notes a and b, $718 mil ion of the total provided for THUD was deemed an emergency
requirement and was thus excluded from the total for purposes of calculating the total subject to
discretionary spending limits under the BCA, as amended.
e. Of this amount, $27 bil ion is for coronavirus-related supplemental emergency funding for DOT, as
provided in Division M of P.L. 116-260. The remaining $718 mil ion is designated “emergency” for budget
enforcement purposes, as described in Table Notes a-c, but is not related to COVID-19.
Department of Transportation
The majority of DOT’s annual funding is established by two periodic authorization acts, one for
surface transportation programs and one for aviation programs. Most of the funding for the
programs in those acts is drawn from the DOT Highway Trust Fund and the Aviation and Airways
Trust Fund, respectively. Highway Trust Fund revenues come largely from fuel taxes and
increasingly from transfers from the general fund of the Treasury. Aviation and Airways Trust
Fund revenues come largely from taxes on passenger tickets and aviation fuel and some general
fund money.
The appearance of COVID-19 in the United States in the spring of 2020 disrupted the finances of
airlines and transit agencies. Airline and transit patronage dropped to a fraction of its usual level,
as did passenger fare revenues. This was due not only to the impact of the pandemic on the
economy, but also to public concern about the risk of transmission of the virus in the confined
spaces of airplanes and transit vehicles. As of summer 2021, airline travel has rebounded to a
considerable degree, but transit usage is still significantly below the pre-pandemic level.
Administration Budget Request
The Administration’s FY2022 budget requested nearly the same amount of funding (less than 1%
increase) for DOT as it received through the FY2021 appropriations process. Within that nearly
level funding, the notable variations in funding requested compared to FY2021 appropriations
include
 Federal Highway Administration: a 4% (+$2 billion) decrease in discretionary
funding;
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 Federal Railroad Administration: a 72% (+$418 million) increase in funding for
rail grants programs, including a new Passenger Rail Improvement,
Modernization, and Expansion (PRIME) program;
 Amtrak: a 35% (+$700 million) increase in funding for grants to Amtrak; and
 Federal Transit Administration: a 23% (+$460 million) increase in funding for
capital investment grants (including New Starts and Small Starts projects).
H.R. 4550
The House Appropriations Committee recommended $105.7 billion for DOT, a 22% (+$19
billion) increase over the FY2021 enacted amount of $86.709 billion (which was virtually the
same as the FY2020 enacted amount). Every agency within the department would receive an
increase compared to FY2021. The largest percentage increases would be for the Federal Railroad
Administration (+46%, or +$1.3 billion), the National Highway Traffic Safety Administration
(+30%, or +$300 million), the Office of the Secretary (+28%, or +$404 million), and the Federal
Highway Administration (+27%, or +$13.4 billion). Details of the recommended funding can be
found in Table 3.
Table 3. Department of Transportation, FY2021-FY2022 Detailed Budget Table
(dollars in millions)
FY2022
Department of Transportation
FY2021
FY2022
House
FY2022
FY2022
Selected Accounts
Enacted Request
Committee
Senate
Enacted
Office of the Secretary (OST)
National infrastructure investment
1,000
1,000
1,200

(BUILD/TIGER)
Thriving Communities
—
110
100

Cyber Security Initiatives
22
39
39

Payments to air carriers (Essential Air
142
248
248

Service)a
Transportation Demonstration Program
100
—
—

Electric Vehicle Fleet
—
11
11

All other accounts
183
190
206

Total, OST
1,443
1,634
1,847

Federal Aviation Administration (FAA)
Operations
11,002
11,434
11,434

Facilities & equipment
3,015
3,410
3,416

Research, engineering, & development
198
259
261

Grants-in-aid for airports (Airport
3,350
3,350
3,350

Improvement Program) (limitation on
obligations)
Airport Discretionary Grants
400
—
400

Total, FAA
17,965
18,453
18,861

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FY2022
Department of Transportation
FY2021
FY2022
House
FY2022
FY2022
Selected Accounts
Enacted Request
Committee
Senate
Enacted
Federal Highway Administration (FHWA)
Federal-Aid Highways (limitation on
47,104
47,104
61,882

obligations + exempt contract authority)
Federal-Aid Highways: discretionary funding
2,000
—
592

Total, FHWA
49,104
47,104
62,474

Federal Motor Carrier Safety Administration (FMCSA)
Motor carrier safety operations and
328
288
380

programs
Motor carrier safety grants to states
390
388
506

Total, FMCSA
748
676
886

National Highway Traffic Safety Administration (NHTSA)
Operations and research
349
401
426

Highway traffic safety grants to states
623
623
855

(limitation on obligations)
Impaired driving/highway-rail grade crossing
17
—
7

safety
Total, NHTSA
989
1,024
1,289

Federal Railroad Administration (FRA)
Safety and Operations
235
248
248

Railroad Research and Development
41
59
54

Passenger Rail Improvement,
—
625
625

Modernization, and Expansion
Federal-state Partnership for State of
200
—
—

Good Repair
Consolidated Rail Infrastructure and
375
375
500

Safety Improvements
Magnetic Levitation Program
2
—
5

Restoration and Enhancement grants
5
—
—

Amtrak

Northeast Corridor grants
700
1,300
1,200

National Network
1,300
1,400
1,500

Subtotal, Amtrak grants
2,000
2,700
2,700

Rescission
—
—
-15

Total, FRA
2,821
4,007
4,116

Federal Transit Administration (FTA)
Administrative Expenses
121
132
133

Formula Grants (M)
10,150
10,150
12,150

Transit Infrastructure Grants
516
550
580

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FY2022
Department of Transportation
FY2021
FY2022
House
FY2022
FY2022
Selected Accounts
Enacted Request
Committee
Senate
Enacted
Transit Research
—
30
—

Technical Assistance and Training
8
8
8

Capital Investment Grants (New Starts)
2,014
2,473
2,473

Grants to Washington Metropolitan Area
150
150
150

Transit Authority
Rescission
1,958
—
6,734

Total, FTA
12,957
13,492
15,487

Saint Lawrence Seaway Development
38
38
40

Corporation
Maritime Administration (MARAD)
Maritime Security Program
314
318
318

Cable Security Fleet
10
—
10

Tanker Security Fleet
—
60
60

Operations and Training
156
172
171

State Maritime Academy Operations
433
358
363

Assistance to Small Shipyards
20
20
20

Ship Disposal
4
10
8

Maritime Guaranteed Loan Program
3
3
3

Port Infrastructure Development Program
230
230
300

Total, MARAD
1,170
1,130
1,253

Pipeline and Hazardous Materials Safety Administration (PHMSA)
Subtotal
260
282
278

Emergency preparedness grants (M)
28
—
28

Offsetting user fees
-145
-155
-155

Total, PHMSA
288
282
306

Office of Inspector General
98
103
103

DOT Totals
Appropriation (discretionary funding)
25,696
25,770
27,196

Limitations on obligations (M)
61,392
61,320
78,565

Subtotal—new funding
86,156
87,089
105,762

Rescissions
-379
-42
-22

Net new discretionary funding
25,317
25,728
27,175

Net new budget authority
86,709
87,047
105,740

Supplemental emergency funding
27,000b
—
—

Additional appropriations (mandatory)
43,170c
—
—

Net new budget authority
156,879
87,047
105,740

(incl. emergency)
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Source: Comparative Statement of New Budget Authority, pp. 264-273 in H.Rept. 117-99 accompanying H.R.
4550; Division G of House Rules Committee Print 117-12; Division L of P.L. 116-260 and accompanying Joint
Explanatory Statement, including Comparative Statement of New Budget Authority tables, published in the
December 21, 2020, Congressional Record, Book IV; and P.L. 117-2.
Notes: Totals may not add due to rounding.
a. In addition to its appropriation, the Essential Air Service program receives funding from overflight fees. For
FY2021, those fees were expected to provide an additional $153 mil ion to the program, and the CARES
Act (Division M of P.L. 116-260 ) provided an additional $23 mil ion, for a total of $338 mil ion. Due to the
pandemic’s effects on aviation the FY2022 estimate for overflight fees is down to $116 mil ion; the
proposed increased appropriation would provide a total of $364 mil ion for the program.
b. Provided in the Coronavirus Response and Relief Supplemental Appropriations Act, 2021 (Division M of P.L.
116-260).
c. Provided in Title VII of ARPA (P.L. 117-2) to “prevent, prepare for, and respond to coronavirus.” This
legislation was enacted through the budget reconciliation process; as a result, funding provided in this act is
classified as mandatory spending, and does not appear in accounts showing discretionary appropriations.
Selected DOT Issues
Authorization of Surface Transportation Programs
Funding authorizations for the federal highway, transit, and passenger rail programs6 were
scheduled to expire at the end of FY2020, and were extended at the FY2020 levels through
FY2021, then through FY2022. The Administration requested funding for FY2022 based on those
levels. The House Committee on Appropriations recommended increased funding based on levels
proposed in pending surface transportation reauthorization legislation, the INVEST in America
Act (H.R. 3684, passed by the House on July 1, 2021). The House had recommended similar
levels of funding for surface transportation programs in FY2021 based on reauthorization
legislation introduced in the 116th Congress; that reauthorization legislation was not enacted, and
the final FY2021 funding levels for surface transportation programs were in line with those in
FY2020. Congress may further consider legislation reauthorizing the federal surface
transportation programs this year; if such legislation is enacted before the FY2022 THUD
appropriations bill is enacted, that legislation could affect funding levels in the final THUD bill.
Infrastructure Funding
The House committee bill would provide an increase of roughly $19 billion for transportation
infrastructure. About two-thirds of that would go to the Federal Highway Administration, with
most of the rest going to the Federal Railroad Administration and Federal Transit Administration.
The level of infrastructure funding in the bill could be affected by congressional consideration of
legislation reauthorizing the federal surface transportation programs and by broader infrastructure
funding legislation proposed by the Biden Administration in the American Jobs Plan7 and
currently under discussion in the Senate.
Multi-Modal Grants
Most DOT funding is provided by mode. The vast majority goes to programs focused on
highways, with lesser amounts dedicated to the aviation, transit, rail, and maritime sectors. One of
the few programs for which project eligibility is not limited to a single mode is the national
infrastructure investment program popularly known as the RAISE discretionary grant program

6 The authorizations were included in the Fixing American’s Surface Transportation (FAST) Act, P.L. 114-94.
7 https://www.whitehouse.gov/briefing-room/statements-releases/2021/03/31/fact-sheet-the-american-jobs-plan/.
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(previously called TIGER and then BUILD). The House committee bill would increase funding
for the program by 20%, from $1.0 billion in FY2021 to $1.2 billion in FY2022, including $40
million for planning grants. This program is popular in part because it is one of the few
transportation grant programs that offer communities an opportunity to obtain federal funding
directly for local projects without state government involvement, and in part because virtually any
transportation project eligible for federal funding is eligible for a grant under this program. The
House Appropriations Committee commended DOT for revising the selection criteria for the
FY2021 round of grants to include climate change, environmental justice, and racial equity
considerations, and included in its recommendations a direction to prioritize projects that improve
race and social equity and reduce greenhouse gas emissions in the distribution of funds in
FY2022.
Highway Safety
The committee recommended an increase of 37% ($232 million) in highway safety grants to
states, divided between formula safety grants and national priority safety incentive grant
programs. This increased funding would be drawn from the Highway Trust Fund, and is thus
dependent on enactment of surface transportation reauthorization legislation as noted above.
Passenger Rail
The committee recommended an increase of 46% ($1.3 billion) in funding for passenger rail. This
would provide $2.7 billion for Amtrak and $1.1 billion for grants to states and other entities for
improvements in passenger rail service. This funding is not drawn from the Highway Trust Fund.
Commercial Truck Safety
The congressional mandate8 for heavy trucks to be equipped with electronic logging devices
(ELDs) to track the time worked by drivers went into effect at the end of 2017.9 The purpose was
to improve safety by reducing the incidence of commercial drivers driving while fatigued; this
would be achieved by improving compliance with (and enforcement of) the federal hours-of-
service limits that limit the amount of time a driver can drive each day and each week. ELDs
make it harder for drivers to exceed the limits without detection. Objections from certain sectors
of the trucking industry have led Congress to repeatedly bar enforcement of the ELD mandate
with respect to livestock haulers in the annual THUD appropriations act. This action has been
opposed by safety advocates. The FY2021 House version of the THUD bill did not include this
waiver, though the enacted FY2021 THUD act did; the waiver was added to the FY2022 THUD
bill by amendment in the House Appropriations Committee markup of the bill.
Department of Housing and Urban Development
Overview
HUD is the nation’s housing agency. The programs and activities it administers are designed
primarily to address housing problems faced by households with very low incomes or other

8 Section 32301(b) of the Moving Ahead for Progress in the 21st Century Act (MAP–21), P.L. 112-141.
9 Federal Motor Carrier Safety Administration, “Final Rule: Electronic Logging Devices,” 80 Federal Register 78292,
December 16, 2015, at https://www.govinfo.gov/content/pkg/FR-2015-12-16/pdf/2015-31336.pdf.
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special housing needs and to expand access to homeownership.10 The largest share of HUD’s
budget is devoted to its rental assistance programs: Section 8 Housing Choice Vouchers, project-
based rental assistance via Section 8, Section 202 and Section 811, and public housing. These
programs, which serve nearly 4.6 million households, provide subsidies to allow low-income
recipients to pay below-market, income-based rent.
Two flexible block grant programs—the HOME Investment Partnerships grant program and the
Community Development Block Grant (CDBG) program—help states and local governments
finance a variety of housing and community development activities designed to serve low-income
families. Native American tribes receive their own direct housing grants through the Native
American Housing Block Grant program.
Other more specialized grant programs help communities meet the needs of homeless persons
(through the Homeless Assistance Grants, namely the Continuum of Care and Emergency
Solutions Grants programs), including those living with HIV/AIDS (through the Housing
Opportunities for Persons with AIDS program). Additional programs fund fair housing
enforcement activities and healthy homes activities, including lead-based paint hazard
identification and remediation.
HUD’s Federal Housing Administration (FHA) insures mortgages made by lenders to
homebuyers with low down payments and to developers of multifamily rental buildings
containing relatively affordable units. FHA collects fees from borrowers with FHA-insured
mortgages, which are used to sustain its insurance funds.
Agency Funding
Nearly all of HUD’s funding is provided via discretionary appropriations generally contained in
the annual Transportation, HUD, and Related Agencies appropriations legislation. (HUD
programs may also receive additional resources from supplemental or other funding measures in
some years, most often in response to disasters.) The annual THUD bill provides gross
appropriations for HUD programs and activities for a fiscal year. The “cost” of those
appropriations, as determined by the Congressional Budget Office’s scorekeeping process, is
generally reduced by offsetting receipts from the FHA’s loan programs and the Government
National Mortgage Association (GNMA) securitization of government loans. To a lesser extent,
rescissions of prior-year appropriations can also create savings. The gross appropriations
provided to HUD, minus savings from offsets and rescissions, result in the net budget authority
total, which is used for budget enforcement purposes.
Status of FY2022 HUD Appropriations
As shown in Table 4, the President’s FY2022 budget request proposed an increase of $8.3 billion
(+13.8%) in gross (regular, nonemergency) appropriations for HUD programs and activities
relative to FY2021. (Because of an estimated increase in offsets in FY2022, net discretionary
budget authority—used for budget enforcement purposes—would see a smaller total increase
(+$7.1 billion) than gross budget authority. However, gross appropriations is a more accurate
measure of the resources available to HUD’s programs and activities.) Most of the requested
increase ($6.1 billion) is directed to HUD’s primary rental assistance programs, which, combined,
serve nearly 4.6 million low-income households. However, nearly all HUD programs are

10 For more information about federal housing assistance programs, see CRS Report RL34591, Overview of Federal
Housing Assistance Programs and Policy.
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proposed for increases, including HUD grant programs that had been targeted for elimination in
budget requests from the Trump Administration.
The House Appropriations Committee bill would increase funding for HUD relative to FY2021,
but would provide slightly less than was requested by the President (a difference of $250 million,
or less than 1%).
Table 4. Department of Housing and Urban Development,
FY2021-FY2022 Detailed Appropriations
(dollars in millions)
FY2022
FY2021
FY2022
House
FY2022
FY2022
Accounts
Enacted Request Committee
Senate
Enacted
Appropriations

Salaries and Expenses (Mgmt. & Adm.)
1,499
1,681
1,560

Tenant-Based Rental Assistance (Sec. 8 Housing
25,777a
30,442
29,216

Choice Vouchers)
Voucher Renewals (non-add)
23,080
25,001
24,951

Administrative Fees (non-add)
2,159
2,790
2,470

Veterans Affairs Supportive Housing (VASH)
40
0
20

incremental vouchers (non-add)
Family Unification Program (FUP) incremental

0
25

vouchers
25
Other Incremental Vouchers (non-add)
43
1,552
1,000

Mobility services (non-add)
0
491
150

Public Housing Fund
7,806
8,575
8,640

Operating Grants (non-add)
4,839
4,887
4,897

Capital Grants (non-add)
2,765
3,200
3,400

Climate Resiliency/Utility Grants (non-add)
—
245
100

Energy and Water Efficiency s (non-add)
—
55
50

Choice Neighborhoods
200
250
400

Self Sufficiency Programs
155
175
200

Native American Programs
825
1,000
950

Native American Housing Block Grants
(Formula) (non-add)
647
723
722

Native American Housing Block Grants
(Competitive) (non-add)
100
100
150

Native American Housing Block Grants
(competitive) for energy efficiency and climate
—
100
—

resiliency (non-add)
Indian Community Development Block Grants
(non-add)
70
70
70

Indian housing loan guarantee
2
4
4

Native Hawaiian block grant
2
7
4

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FY2022
FY2021
FY2022
House
FY2022
FY2022
Accounts
Enacted Request Committee
Senate
Enacted
Housing, persons with AIDS (HOPWA)
430
450
600

Community Development Fund
3,475
3,770
4,688

CDBG Formula Grants
3,450
3,745b
3,740

SUPPORT for Patients and Communities
25
25
25

Economic Development Initiativesc
—
—
924

HOME Investment Partnerships
1,350
1,850
1,850

Formula Grants (inc. insular areas)
1,350
1,750
1,800

Downpayment Assistance
—
100
50

Self-Help Homeownership
60
60
65

Self-Help and Assisted Homeownership
Opportunity Program
10
10
15

Section 4 Capacity Building
41
41
45

Rural Capacity Building
5
5
5

Veterans Home Rehabilitation and
4
4
0

Modification Pilot Program
Homeless Assistance Grants
3,000
3,500
3,420

Project-Based Rental Assistance (Sec. 8)
13,465
14,060
14,010

Contract Renewals
13,115
13,675
13,625

Contract Administrators
350
355
355

Service coordinators for the elderly
—
30
30

Housing for the Elderly (Section 202)
855
928
1,033

Housing for Persons with Disabilities (Section
227
272
352

811)
Housing Counseling Assistance
78
86
100

Manufactured Housing Fees Trust Fundd
13
14
14

Green Retrofit for Multifamily
—
250
0

Federal Housing Administration (FHA)
130

Expensesd
180e
150
Government National Mortgage Assn. (GNMA)
35
40
36

Expensesd
Research and technology
105
145
185

Fair housing activities
73
85
85

Fair Housing Assistance Program (non-add)
24
56
56

Fair Housing Initiatives Program (non-add)
46
25
25

Lead Hazard Reduction
360
400
460

Information Technology Fund
300
323
278

Inspector General
137
147
145

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FY2022
FY2021
FY2022
House
FY2022
FY2022
Accounts
Enacted Request Committee
Senate
Enacted
Gross Appropriations Subtotal
60,358
68,694
68,444

Offsetting Collections and Receipts

Manufactured Housing Fees Trust Fund
-13
-14
-14

FHA
-9,244
-9,586
-9,596

GNMA
-1,439
-2,303f
-2,363

Offsets Subtotal
-10,696
-11,903
-11,973

Rescission’s

Rental Housing Assistance
-14
—
—

Native Hawaiian block grant rescission
—
-6
0

Rescissions Subtotal
-14
-6
0

Total Net Discretionary Budget Authority
49,648g
56,785
56,471

Source: HUD FY2022 Congressional Budget Justifications; H.R. 4550 and H.Rept. 117-99.
Notes: Totals may not add due to rounding. Only selected set-asides are presented in this table. Figures include
advance appropriations available in the fiscal year, rather than provided in the bil .
a. Of this amount, $695 mil ion is designated as being for an emergency requirement by Section 420 of
Division L of P.L. 116-260.
b. This amount includes $295 mil ion “for activities targeted to the revitalization of deteriorating or
deteriorated neighborhoods and places with the greatest need, as determined by the Secretary,” by a
separate formula.
c. All funding contained in this set-aside is earmarked for congressionally-requested projects, as described in
the text box “Return of Earmarks” earlier in this report.
d. Some or all of the cost of funding these accounts is offset by the col ection of fees or other receipts. Those
offsets are shown later in this table.
e. Part of this increase would support a temporary expansion of the Good Neighbor Next Door program and
a new Home Equity Accelerator Loan pilot. See pp. 28-1 and 28-2 of HUD’s FY2022 budget justifications.
f.
Includes estimated receipts attributable to a general provision (§230) included in the President’s request to
allow GNMA to securitize certain state housing finance agency risk-sharing loans. The requested provision
was not included in the House committee bil .
g. P.L. 117-2 provided $10.770 bil ion in additional mandatory funding for HUD programs for COVID-19
response and relief purposes in FY2021. Those funds are not reflected in this table.
Selected FY2022 HUD Appropriations Issues
Rental Assistance Funding
Through various programs utilizing different mechanisms, the federal government subsidizes the
rents of nearly 4.6 million low-income households, allowing them to pay affordable, below-
market rents, generally set at 30% of a family’s income. The vast majority of HUD funding each
year is devoted to maintaining these rental assistance programs, which include (from largest to
smallest in terms of households served in FY2020):
 Housing Choice Vouchers (2.3 million households (HHs));
 Section 8 project-based rental assistance (1.2 million HHs);
 public housing (880,000 HHs);
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 Section 202 Housing for the Elderly (124,000 HHs); and
 Section 811 Housing for Persons with Disabilities (32,000 HHs).11
Funding for these rental assistance programs accounts for roughly 80% of HUD’s total (gross)
appropriations, most of which is used to maintain assistance for currently assisted families.
Although it is estimated that roughly one in four eligible households receives rental assistance,
leading to waiting lists for assistance in most communities, expansions of these programs to serve
new families have been limited. For many years, new Housing Choice Vouchers (referred to as
incremental vouchers) have been funded only for homeless veterans, via the Veterans Affairs
Supportive Housing (VASH) program, and for child welfare-involved families and former foster
youth, via the Family Unification Program (FUP). While some funding for new Section 202 and
Section 811 units has been provided, HUD has no funding or authority to expand the public
housing or Section 8 project-based rental assistance programs. One challenge with expanding
rental assistance programs has been the need for funding to renew newly created subsidies in
subsequent years. In light of caps on domestic discretionary spending, growing renewal costs can
lead to difficult trade-offs in the appropriations process.
In response to the COVID-19 pandemic, some of the largest expansions in rental assistance in
recent years were funded in FY2021, with mandatory ARPA funding for 70,000 new (albeit
temporary) vouchers in response to the COVID-19 pandemic, as well as additional discretionary
funding of $43 million in the Consolidated Appropriations Act, 2021, for new incremental
vouchers for persons who are homeless or at-risk of homelessness.
For FY2022, the President’s budget proposed directing $6.1 billion of the total $7.5 billion in
increased funding requested over FY2021 to rental assistance programs. In addition to
maintaining assistance to the 4.6 million currently assisted households, part of this increase is
intended to fund expansions in rental assistance.
Housing Choice Vouchers
The President’s budget request included $1.5 billion in the tenant-based rental assistance account
for new incremental Housing Choice Vouchers. Budget documents state this would allow the
program to serve an additional 200,000 families, the largest increase since the program was
authorized.
The request also included an increase in administrative fee funding ($2.8 billion, or +29% over
FY2021) and a new set-aside to fund mobility services to help families relocate to areas of
opportunity ($491 million).
The House Appropriations Committee bill would provide $1 billion for new incremental
vouchers, which H.Rept. 117-99 estimates would serve 125,000 additional families. While lower
than the President’s request, this expansion would still be the largest since the program’s
inception. Additionally, while the President’s budget included no funding for new VASH or FUP
vouchers, the House Appropriations Committee bill included $20 million for VASH and $25
million for FUP. The House Appropriations Committee bill would increase funding for
administrative fees above the FY2021 level (+14%), but not as high as requested, and would fund
the new mobility services set-aside, but at a reduced level ($150 million).

11 HUD FY2022 Congressional Budget Justifications, Overview of Rental Assistance Programs, p. 2-1,
https://www.hud.gov/sites/dfiles/CFO/documents/5_2022CJ-OverviewofRentalAssistancePrograms.pdf.
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Section 202 and Section 811
The President’s budget also proposes funding increases for the Section 202 Supportive Housing
for the Elderly and Section 811 Supportive Housing for Persons with Disabilities programs (+$73
million and +$45 million over FY2021, respectively). The President’s budget documents note the
funding levels requested would be sufficient to create approximately 2,000 new units—1,100 for
Section 202 and 900 for Section 811.
The House Appropriations Committee bill would provide more than the requested amount for
each program (+$178 million for Section 202 and +$125 million for Section 811 relative to
FY2021). H.Rept. 117-99 notes that the amounts provided would be sufficient to fund more than
double the President’s requested units (2,250 new units for Section 202; 1,800 new units for
Section 811).
Public Housing
The President’s budget request included “full funding” of the public housing program. That
means that the amount requested is estimated to cover the full cost of public housing operating
expenses under the operating fund formula, and that the amount requested for capital grants
would be sufficient to meet the full estimated annual capital accrual needs in public housing.
The House Appropriations Committee bill would exceed the President’s requested funding level
for public housing both in terms of operating and capital funding.
Formula Grants
HUD’s budget includes funding for a number of formula grants to states, municipalities, and
tribes for a range of housing and community development purposes. These include the CDBG
programs, which can be used by states and localities for a wide range of community development
purposes; the HOME program, which can be used by states and localities for various affordable
housing purposes; and the Native American Housing Block Grant to tribes for affordable housing.
The President’s budget request includes funding increases relative to FY2021 for each of these
programs. Specifically, it would increase CDBG formula grants by $295 million (+8.6%);12
HOME grants by $400 million (+30%); and NAHBG formula grants by $76 million (+11.7%).
The House Appropriations Committee bill also includes increases for each of these formula grants
relative to FY2021. It proposes increasing CDBG formula grants relative to FY2021 by
somewhat less than the President’s request (+$289 million, or +8.4%),13 HOME formula grants
relative to FY2021 by more than the President’s request (+$450 million, or +33%), and NAHBG
formula grants relative to FY2021 by slightly less than the request (+$75 million, or +11.6%).
Additionally, for the HOME program, the President’s budget requested $100 million for a new
down payment assistance grant program; the House Appropriations Committee bill would provide
$50 million for this purpose.

12 The Congressional Budget Justifications note that this requested increase would fund more geographically targeted
activities for historically underserved areas, via a separate allocation format in which communities would opt in. For
more information, see https://www.hud.gov/sites/dfiles/CFO/documents/18_2022CJ-
CommunityDevelopmentFund.pdf#page=4.
13 The bill did not include the alternate funding formula requested by the President and discussed in footnote 12.
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Homelessness
In addition to the broader-purpose formula grants previously mentioned, HUD’s budget includes
funding for formula and competitive grants specifically to address homelessness, through the
Homelessness Assistance Grants account. That account funds the Continuum of Care program
grants as well as the Emergency Shelter Grants programs, and through the Housing Opportunities
for Persons with AIDS (HOPWA) program.
For FY2022, the President’s budget requested funding increases relative to FY2021 for both
Homeless Assistance Grants (+$500 million, or +17%) and HOPWA (+$20 million, or +5%). The
House Appropriations Committee bill would provide a smaller increase relative to FY2021 than
requested for the Homeless Assistance Grants (+$420 million, or +14%), but a larger increase
relative to FY2021 than requested for HOPWA (+$170 million or +40%). The committee report
notes that the HOPWA funding increase it recommends is designed to allow HUD to hold
harmless communities that might otherwise receive a decrease as HUD implements an updated
HOPWA formula in FY2022.
Climate Initiative
The Administration attributes $800 million of the $7.1 billion in increased funding it requested
for HUD relative to FY2021 to a new climate initiative. The department’s budget documents state
that the funding will be used for “targeted investments to improve the quality of housing through
climate resilience and energy efficiency.”14
The $800 million is composed of a request for $250 million for a new energy and green retrofit
grant program for multifamily housing funded in a new account, as well as set-asides for new or
expanded initiatives in a number of existing accounts.
As shown in Table 5, the House Appropriations Committee bill would partially fund two of the
elements of the climate initiative proposed by the President.
Table 5. HUD Climate Initiative Funding
(dollars in millions)
House
President’s
Committee

Account
Activity
Request
Bill
Senate Enacted
Public Housing Fund
Utility Conservation and
Climate Resilience
245
100

Public Housing Fund
Energy Performance
Contracts
55
50

Choice
Climate Grants
Neighborhoods
50
0

Native American
Energy and Water efficiency
Programs
competitive grants
100
0

Green and Resilient
Green and Resilient Retrofit
Retrofit Program
Program
250
0

Tenant Based Rental
Rental Assistance
50
0

Assistance
Demonstration

14 HUD FY2022 Congressional Budget Justifications, Climate Initiative, p. 3-1, https://www.hud.gov/sites/dfiles/CFO/
documents/6_2022CJ_ClimateInitiative.pdf.
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House
President’s
Committee

Account
Activity
Request
Bill
Senate Enacted
Project Based Rental
Rental Assistance
Assistance
Demonstration
50
0

Source: HUD FY2022 Congressional Budget Justifications, Climate Initiative, p. 3-1, H.R. 4550 and H.Rept. 117-
99.
THUD Related Agencies
As shown in Table 6, most of the related agencies funded in the THUD bill would have received
level or slightly increased funding relative to the prior year under the President’s FY2022 budget
request, and these requests were supported by the House Appropriations Committee. The notable
exception is the Neighborhood Reinvestment Corporation, for which a 3% ($5 million) increase
was requested, and for which the House Committee recommended a 12% ($20 million) increase
over FY2021.
Table 6. THUD Independent Agencies, FY2021-FY2022
(dollars in millions)
FY2022
FY2021
FY2022
House
FY2022 FY2022
Related Agencies
Enacted Request Committee Senate Enacted
Access Board
9
10
10

Federal Maritime Commission
30
31
31

National Railroad Passenger Corporation
25
26
27

(Amtrak) Office of Inspector General
National Transportation Safety Board
118
121
121

Neighborhood Reinvestment Corporation
165
170
185

(NeighborWorks)
Surface Transportation Board
38
39
39

Offsetting Col ections
-1
-1
-1

U.S. Interagency Council on Homelessness
4
4
4

Total
388
400
416

Source: H.R. 4550 and H.Rept. 117-99.
Note: Totals may not add due to rounding.
Selected Related Agencies Issues
NeighborWorks America
The Neighborhood Reinvestment Corporation (commonly known as NeighborWorks America)
was created via federal charter in 1978 to support affordable housing and neighborhood
revitalization nationwide through a network of affiliated local organizations. From FY2018-
FY2021, the Trump Administration’s budget requests to Congress requested only enough funding
for NeighborWorks to allow the organization to wind down existing commitments until it ceased
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operations. Despite these proposals, Congress continued to fund the organization in the annual
appropriations acts. The first budget request of the Biden Administration requested a $5 million
increase over the FY2021 enacted level for NeighborWorks. The House Appropriations
Committee bill included an even larger increase ($20 million), and designated $25 million of the
total funding for a competitive grant program to fund revitalization in areas with concentrations
of abandoned or distressed properties.15

Author Information

Maggie McCarty
David Randall Peterman
Specialist in Housing Policy
Analyst in Transportation Policy

Disclaimer
This document was prepared by the Congressional Research Service (CRS). CRS serves as nonpartisan
shared staff to congressional committees and Members of Congress. It operates solely at the behest of and
under the direction of Congress. Information in a CRS Report should not be relied upon for purposes other
than public understanding of information that has been provided by CRS to Members of Congress in
connection with CRS’s institutional role. CRS Reports, as a work of the United States Government, are not
subject to copyright protection in the United States. Any CRS Report may be reproduced and distributed in
its entirety without permission from CRS. However, as a CRS Report may include copyrighted images or
material from a third party, you may need to obtain the permission of the copyright holder if you wish to
copy or otherwise use copyrighted material.

15 See pp. 161-162 of H.Rept. 117-99.
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