Comparing DHS Component Funding
Proposals, FY2022: In Brief
November 24, 2021
Congressional Research Service
https://crsreports.congress.gov
R46978

Comparing DHS Component Funding Proposals, FY2022: In Brief

he Department of Homeland Security Appropriations Act includes al annual
appropriations for the Department of Homeland Security (DHS), providing resources to
T every departmental component. Its accompanying conference report or explanatory
statement provides guidance for the department in terms of how DHS should account for
reprogramming and transferring a range of non-appropriated funds as wel . Together, they form a
snapshot of a significant amount of the DHS budget. This report reviews that snapshot at the DHS
component level, comparing:
 the budget authority outlined in the FY2021 annual appropriations measure;
 annual appropriations requested by the Joseph R. Biden Administration for
FY2022;
 funding levels recommended by the House Appropriations Committee in H.R.
4431 and H.Rept. 117-87; and
 funding levels proposed by the Senate Appropriations Committee in the
committee draft released on October 18, 2021, and its accompanying explanatory
statement.1
The report makes note of supplemental appropriations provided through various measures for
FY2021 and FY2022, but identifies such funding distinctly, to al ow for clear comparison on the
annual appropriations packages. The report makes special note of “net discretionary
appropriations” for DHS—a perspective on the net impact the legislation that funds DHS has on
congressional y-tracked budget totals.2
The FY2022 DHS Appropriations Process
On May 28, 2021, the Joseph R. Biden Administration released its annual budget request for
FY2022, including a $90.80 bil ion budget request for the Department of Homeland Security. By
CBO’s initial estimation, the request included $53.99 bil ion in adjusted net discretionary
appropriations and $18.80 bil ion in disaster relief-designated funds.3 This was $1.11 bil ion more
than was enacted for DHS in FY2021, although those FY2021 annual appropriations also
included $840 mil ion in emergency funding to cover U.S. Customs and Border Protection (CBP)
fee shortfal s not included in the total.
 On June 30, 2021, the House Committee on Appropriations marked up H.R.
4431, its version of the Department of Homeland Security Appropriations Act,
2022. H.Rept. 117-87 was filed on July 15, 2022. Committee-reported H.R. 4431
included $52.80 bil ion in adjusted net discretionary budget authority. This was
$183 mil ion below the level requested by the Administration and $928 mil ion
above the FY2021 enacted level.

1 Although the Senate Appropriations Department of Homeland Security Subcommittee chairman introduced an
identical bill a week later, as the bill has not proceeded through the markup process and therefore has no associated
report or detail table, the analysis in this report continues to refer to the draft and its explanatory statement.
2 When dealing with bill totals, the report refers to “adjusted annual net discretionary appropriations,” which take into
account the offsetting impact of rescissions or cancellations of budget authority provided in prior years. Neither of the
discretionary appropriations totals include emergency or disaster relief -designated funding.
3 T his total evolved over the course of the process, owing in part to the changes in unobligat ed balances available for
rescission. Analyses in the report refer to the CBO’s estimates as outlined in the detail table at the end of H.Rept. 117-
87.
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Comparing DHS Component Funding Proposals, FY2022: In Brief

H.R. 4431 was not brought to the House floor before the end of FY2021—one of two annual
appropriations measure for FY2022 to be reported by the committee that did not get floor
consideration. As no annual appropriations for FY2022 had been signed into law before the end
of FY2021, a continuing resolution was enacted (P.L. 117-143), temporarily extending funding
for the federal government at the FY2021 rate for operations through December 3, 2021,
including most DHS components and programs.4 Division B included $50 mil ion in
supplemental appropriations for the Federal Emergency Management Agency (FEMA) and
Division C included $193 mil ion in supplemental appropriations for the U.S. Citizenship and
Immigration Services (USCIS).5
On October 18, 2021, Senate Appropriations Committee chairman Senator Patrick Leahy released
drafts of nine appropriations measures that had yet to be marked up by the committee, along with
draft explanatory statements for each.6 Vice Chairman7 Senator Richard Shelby criticized the
move as partisan and unilateral, and indicated he would not support the bil s, and that an
agreement on overal spending levels was needed to produce bil s he would support.8 A week
later, S. 3058, an identical bil , was introduced by Senate Appropriations Committee
Subcommittee on the Department of Homeland Security Chairman Senator Christopher Murphy.
The Senate Appropriations majority draft bil for DHS for FY2022 included $52.92 bil ion in
adjusted net discretionary budget authority. This was $70 mil ion below the level requested by the
Administration, and $1.04 bil ion above the enacted annual level for FY2021.
On a separate track, on August 1, 2021, S.Amdt. 2137 was introduced in the Senate. This measure
was a substitute for H.R. 3684, a House-passed infrastructure measure. The amendment, which
was adopted by a vote of 68-28 on August 8, had been developed as a compromise infrastructure
package that could pass the Senate. The amended bil passed the Senate by a vote of 68-30 on
August 10, 2021, passed the House 228-206 on November 5, and was signed into law as P.L. 117-
58 on November 15. Division J of the P.L. 117-58 included a range of supplemental
appropriations, including a total of $7.96 bil ion for DHS, $3.08 bil ion of which would be
available in FY2022.
Additional supplemental funding for DHS is stil pending before Congress. H.R. 5376—a
reconciliation package that passed the House 220-213 on November 19, 2021—includes:
 $400 mil ion for the Cybersecurity and Infrastructure Security Agency (CISA)
for several cybersecurity programs (Sec. 50001);
 $100 mil ion for FEMA for cybersecurity grants (Sec. 50002);
 $100 mil ion for FEMA for the Nonprofit Security Grant Program (Sec. 50003);
 $900 mil ion for the DHS Management Directorate for environmental and
sustainability programs (Sec. 50004);

4 For further information on the FY2021 continuing resolutions, see CRS Report R46953, Overview of Continuing
Appropriations for FY2022 (P.L. 117 -43).
5 $344 million in additional emergency spending was charged to the DHS subcommittee by CBO as a result of policy
changes directed by Section 2502, Division C of P.L. 117-42, but this was for immigration-related activities at other
agencies.
6 T he draft bills and explanatory statements can be found on the Senate Appropriations Committee website at
https://www.appropriations.senate.gov/news/majority/chairman-leahy-releases-remaining-nine-senate-appropriations-
bills.
7 T his is the title for the leader of the minority party on the Senate Appropriations Committee.
8 U.S. Senate Committee on Appropriations, “Shelby: Democrats’ Partisan Bills T hreaten FY22 Appropriations
Process,” press release, October 18, 2021, https://www.appropriations.senate.gov/news/shelby-democrats-partisan-
bills-threaten-fy22-appropriations-process.
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 $100 mil ion for FEMA for the Assistance to Firefighters Grant Program, and its
administrative expenses (Sec. 90005);
 $150 mil ion for FEMA grants to support updating building codes (Sec. 110008);
 $650 mil ion the Coast Guard for climate resilient facilities (Sec. 110011);
 $350 mil ion for a new Great Lakes icebreaker (Sec. 110012); and
 $20.5 bil ion in debt cancel ation for the National Flood Insurance Program
(NFIP), and $600 mil ion for an NFIP affordability program. (Sec. 40104).
It remains to be seen if this bil wil become law in its present form; this potential funding is not
included in the analyses below.
DHS Budgetary Resources: Looking Beyond the
Score
Discussion regarding annual appropriations often centers on the appropriations provided in the
bil or how the bil scores against budget limitations. However, this “score” does not represent the
total budget authority provided to DHS, or controlled through appropriations bil s and reports.
 The use of offsetting collections reduces the “score” of the bil and provides
significant resources to some components of DHS, such as the Transportation
Security Administration.
 Discretionary scores of bil s do not include mandatory spending, resources
derived directly from fee collections without annual congressional action, or
emergency- or disaster relief-designated appropriations.
Congress controls the reprogramming of many of these resources through detail tables provided
at the end of appropriations committee reports, conference reports, and statements of managers.
Figure 1 uses the data drawn from these detail tables to provide a more comprehensive picture of
the resources available to seven DHS components:9
 U.S. Customs and Border Protection (CBP),
 the U.S. Coast Guard (USCG),
 Immigration and Customs Enforcement (ICE),
 the Transportation Security Administration (TSA),
 Federal Emergency Management Agency (FEMA),
 U.S. Secret Service (USSS), and
 the Cybersecurity and Infrastructure Security Agency (CISA).
These are the seven largest components of DHS in terms of net discretionary budget authority.
In Figure 1 these seven components are listed along the bottom axis. Each component’s funding
level as a section of the figure has five bars, representing the different phases of the
appropriations process: prior-year (i.e., FY2021) enacted, current year (i.e., FY2022) requested

9 Supplemental appropriations measures often do not have their contents reflected in a concurrently p roduced table—
therefore, FY2020 supplemental appropriations data are drawn directly from the supplemental appropriations acts.
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annual appropriations, the ensuing responses of the House and Senate appropriations committees,
and the annual appropriations provided in the enacted consolidated appropriations measure.
The base segment of each bar represents net discretionary budget authority. On top of these bases
are several other segment types, representing fee revenues, offsetting collections, mandatory
spending,10 and funding covered by emergency and disaster relief designations.11
Figure 1 al ows for a visual comparison of changes in individual component funding and
provides a more complete description of each component’s overal resource level than a review of
the net discretionary appropriations alone. Among the changes it il uminates are:
 The relative magnitude of the mandatory spending provided to CISA (for
cybersecurity) and mandatory, emergency, and disaster relief funding for FEMA
compared with other funding priorities in FY2021—FEMA’s total, with the
mandatory funding fully displayed, would triple the height of the existing scale
of the figure;
 The breadth of supplemental appropriations provided across the department in
FY2021 and already in FY2022;
 The relative similarities of component level funding al ocations between the
House-reported and Senate majority-drafted bil s (slightly more for CBP and
USCG in the House-reported bil , slightly more for FEMA and CISA in the
Senate majority-drafted bil );
 The anticipated decrease in CBP fees and TSA offsetting collections available to
offset the costs of operations in FY2022;
 The continued congressional interest in providing additional cybersecurity funds
to CISA, although the component remains one of the smal er operational
components within DHS.
Table 1, which follows immediately thereafter, provides a complete breakdown of the total
budget authority outlined in appropriations committee tables for all DHS components, arranged
by FY2021 enacted annual net discretionary budget authority.
Some DHS components have access to funding beyond the budget authority controlled for
reprogramming through the aforementioned detail tables in appropriations committee reports.
Although some of the mandatory spending for DHS, including many fee-funded programs, is
reflected in the tables, much of DHS’s mandatory spending is not, and is therefore not reflected in
Figure 1 or Table 1. This includes spending on flood insurance claims, as wel as trust funds for
the Coast Guard and the Secret Service. Information on this type of mandatory spending can be
found in the Administration’s budget request.12
Likewise, the detail tables and the figures and tables based upon them in this report do not reflect
reimbursements between components for services provided, such as payments from partner

10 T he mandatory spending reflected here is composed of three elements: mandatory spending for the Federal
Emergency Management Agency and Cybersecurity and Infrastructure Security Agency provided in P.L. 117-2; Coast
Guard retired pay, which is considered mandatory spending but requires congressional action nonetheless; and $250
million from the Aviation Security Capital Fund.
11 For more details about adjustments to discretionary spending limits under the BCA, see CRS Report R45778,
Exceptions to the Budget Control Act’s Discretionary Spending Lim its, by Megan S. Lynch.
12 T he FY2022 DHS budget request can be found on the Office of Management and Budget website
(https://www.whitehouse.gov/omb/), or linke2502d directly at, at https://www.whitehouse.gov/wp-content/uploads/
2021/05/dhs_fy22.pdf.
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Comparing DHS Component Funding Proposals, FY2022: In Brief

agencies to the Federal Law Enforcement Training Center for the cost of training programs.
Information on these resources can be found in the DHS annual budget justifications submitted to
Congress.13

13 T he FY2021 DHS budget justification can be found at https://www.dhs.gov/publication/congressional-budget-
justification-fy-2021.
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Figure 1. DHS Budget Authority by Selected Component, FY2021-FY2022

Source: CRS analysis of P.L. 116-260, Divisions F and M and the explanatory statement accompanying it; P.L. 117-2; H.R. 4431 and H.Rept. 117-87; P.L. 117-43, Division
B and C; the Senate Appropriations Committee majority-produced draft appropriations bil and explanatory statement released on October 18, 2021; and P.L. 117-58,
Division J.
Notes: Data do not reflect the impact of rescissions or scoring charged to the bil on the basis of changes in mandatory programs. Enacted values for FY2022 represent
supplemental appropriations. CBP: U.S. Customs and Border Protection; USCG: U.S. Coast Guard; ICE: U.S. Immigration and Customs Enforcement; TSA:
Transportation Security Administration; FEMA: Federal Emergency Management Agency; USSS: U.S. Secret Service; CISA: Cybersecurity and Infrastructure Security
Agency.
CRS-6

Table 1. DHS Budget Authority by Component, FY2021-FY2022
(thousands of dol ars of budget authority control ed for reprogramming through appropriations committee reports)
Component / Funding Aspect
FY2021 Enacted
FY2022 Request
HAC-reported
Senate Majority Draft
FY2022 Enacted
CBP
18,526,402
16,424,623
16,573,623
16,344,967
430,000
Net Discretionary
15,038,557
14,617,589
14,766,589
14,537,933
—
Offsetting Col ections
238,939
206,000
206,000
206,000
—
Fees
2,408,906
1,601,034
1,601,034
1,601,034
—
Emergency
840,000
—
—
—
430,000
USCG
12,848,954
12,875,442
13,176,742
13,043,192
434,000
Net Discretionary
10,975,250
10,907,923
11,209,223
11,075,673
—
Offsetting Col ections
4,000
4,000
4,000
4,000
—
Mandatory
1,869,704
1,963,519
1,963,519
1,963,519
—
Emergency

434,000
ICE
8,350,139
8,371,096
8,351,585
8,313,329
—
Net Discretionary
7,973,529
7,991,486
7,971,975
7,933,719
—
Fees
376,610
379,610
379,610
379,610
—
TSA
8,567,195
8,720,811
8,720,811
8,720,811
—
Net Discretionary
5,017,731
6,154,811
6,154,811
6,154,811
—
Offsetting Col ections
3,293,964
2,310,000
2,310,000
2,310,000
—
Fees
5,500
6,000
6,000
6,000
—
Mandatory
250,000
250,000
250,000
250,000
—
FEMA
74,833,271
24,259,474
24,012,825
24,129,273
2,050,000
Net Discretionary
4,542,859
5,222,844
4,976,195
5,081,937
—
Offsetting Col ections
238,412
237,630
237,630
248,336
—
Mandatory
50,910,000

Disaster Relief Adjustment
17,142,000
18,799,000
18,799,000
18,799,000
—
Emergency
2,000,000
—
—
—
2,050,000
USSS
2,438,001
2,571,917
2,575,817
2,577,687
—
Net Discretionary
2,438,001
2,571,917
2,575,817
2,577,687
—
CISA
2,674,976
2,133,630
2,422,348
2,638,078
55,000
Net Discretionary
2,024,976
2,133,630
2,422,348
2,638,078
—
Mandatory
650,000

Emergency

55,000
MD
3,201,705
3,674,924
3,790,369
3,629,924
—
Net Discretionary
1,612,957
2,049,924
2,165,369
2,004,924
—
Offsetting Col ections
1,588,748
1,625,000
1,625,000
1,625,000
—
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Component / Funding Aspect
FY2021 Enacted
FY2022 Request
HAC-reported
Senate Majority Draft
FY2022 Enacted
S&T
765,558
822,903
830,403
868,903
157,500
Net Discretionary
765,558
822,903
830,403
868,903
—
Emergency

157,500
CWMD
402,277
427,461
437,461
442,011
—
Net Discretionary
402,277
427,461
437,461
442,011
—
FLETC
340,348
355,636
355,636
355,636
—
Net Discretionary
340,348
355,636
355,636
355,636
—
A&O
298,500
320,620
320,620
320,620
—
Net Discretionary
298,500
320,620
320,620
320,620
—
OSEM
205,819
249,747
268,153
241,555
—
Net Discretionary
205,819
249,747
268,153
241,555
—
OIG
190,186
205,359
205,359
205,359
a
Net Discretionary
190,186
205,359
205,359
205,359
a
USCIS
4,846,614
4,760,784
4,765,784
5,201,014
193,000
Net Discretionary
127,790
469,504
474,504
479,504
—
Fees
4,718,824
4,291,280
4,291,280
4,721,510
—
Emergency
—
—
—
—
193,000
Total Net Discretionary Budget
71,936,338
73,300,354
73,933,463
73,717,350
3,319,500
Authority Plus Adjustments
Source: CRS analysis of P.L. 116-260, Divisions F and M and the explanatory statement accompanying it; P.L. 117-2; H.R. 4431 and H.Rept. 117-87; P.L. 117-43, Division
B and C; the Senate Appropriations Committee majority-produced draft appropriations bil and explanatory statement released on October 18, 2021; and P.L. 117-58,
Division J.
Notes: Data do not reflect the impact of rescissions or scoring charged to the bil on the basis of changes in mandatory programs. Enacted values for FY2022 represent
supplemental appropriations available in a given fiscal year. Adjustments include emergency, disaster relief, and Overseas Contingency Operations (OCO) designated
funding. CBP: U.S. Customs and Border Protection; USCG: U.S. Coast Guard; ICE: U.S. Immigration and Customs Enforcement; TSA: Transportation Security
Administration; FEMA: Federal Emergency Management Agency; USSS: U.S. Secret Service; CISA: Cybersecurity and Infrastructure Security Agency; MD: Management
Directorate; S&T: Science and Technology Directorate; CWMD: Office of Countering Weapons of Mass Destruction; FLETC: Federal Law Enforcement Training Center;
A&O: Analysis and Operations; OSEM: Office of the Secretary and Executive Management; OIG: Office of the Inspector General; USCIS: U.S. Citizenship and Immigration
Services.
a. Division J of P.L. 117-58 includes a general provision (Section 501) that directs a transfer of 0.25% of the supplemental appropriations provided to DHS in the bil
each fiscal year to the DHS OIG.

CRS-8

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DHS Appropriations: Comparing Scores
It is often useful to present comparative analysis to put proposed funding levels for given DHS
components in context. Table 2 and Table 3 shows congressional action (by the House
Appropriations Committee and the Senate Appropriations Committee majority, respectively) on
net discretionary annual FY2022 appropriations for DHS distributed by departmental component.
Each table presents an analysis of a component’s net discretionary annual appropriations—
appropriations provided from the Treasury that are not offset by other incoming resources.14
Comparison is drawn between two common baselines that are shown in Table 1—the FY2021
enacted funding level and the FY2022 requested funding level. The first column shows the
position reflected in either the House-reported bil or the Senate majority draft. Changes from
each level are reflected in thousands of dollars, and then as a percentage. The components are
ordered from largest to smal est by FY2021 enacted annual net discretionary funding level.
FY2021 and FY2022 supplemental appropriations are not reflected in Table 2 or Table 3. The
purpose of the table is to provide comparative perspectives on annual appropriations levels at
various stages of the process, as wel as to improve understanding of comparative annual
appropriations levels across the department, rather than to survey total resources provided by
Congress, which can be seen in Figure 1 and Table 1.
Table 2. House Appropriations Committee-reported DHS Annual Discretionary
Appropriations, FY2022, Compared
(net discretionary budget authority, in thousands of dol ars)

House
Compared to FY2021
Compared to FY2022
Appropriations
Enacted
Request
Committee-
reported
Component
H.R. 4431
$
%
$
%
CBP
14,766,589a (271,968)
-1.8%
149,000
1.0%
USCG
11,209,223
233,973
2.1%
301,300
2.8%
ICE
7,971,975
(1,554)
0.0%
(19,511)
-0.2%
TSA
6,154,811 1,137,080
22.7%
0
0.0%
FEMAb
4,976,195
433,336
9.5% (246,649)
-4.7%
USSS
2,575,817
137,816
5.7%
3,900
0.2%
CISA
2,422,348
397,372
19.6%
288,718
13.5%
MD
2,165,369
552,412
34.2%
115,445
5.6%
S&T
830,403
64,845
8.5%
7,500
0.9%
CWMD
437,461
35,184
8.7%
10,000
2.3%
FLETC
355,636
15,288
4.5%
0
0.0%
A&O
320,620
22,120
7.4%
0
0.0%
OSEM
268,153
62,334
30.3%
18,406
7.4%

14 In accordance with appropriations committee practices, these totals do not include elem ents of annual funding
covered by the disaster relief designation or overseas contingency operations designation.
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House
Compared to FY2021
Compared to FY2022
Appropriations
Enacted
Request
Committee-
reported
Component
H.R. 4431
$
%
$
%
OIG
205,359
15,173
8.0%
0
0.0%
USCIS
474,504
346,714
271.3%
5,000
1.1%
Source: CRS analysis of P.L. 116-260, Divisions F and M and the explanatory statement accompanying it; H.R.
4431 and H.Rept. 117-87; and the Senate Appropriations Committee majority-produced draft appropriations bil
and explanatory statement released on October 18, 2021.
Notes: Data do not reflect the impact of transfers, rescissions or scoring charged to the bil on the basis of
changes in mandatory programs. CBP: U.S. Customs and Border Protection; USCG: U.S. Coast Guard; ICE: U.S.
Immigration and Customs Enforcement; TSA: Transportation Security Administration; FEMA: Federal Emergency
Management Agency; USSS: U.S. Secret Service; CISA: Cybersecurity and Infrastructure Security Agency; MD:
Management Directorate; S&T: Science and Technology Directorate; CWMD: Office of Countering Weapons of
Mass Destruction; FLETC: Federal Law Enforcement Training Center; A&O: Analysis and Operations; OSEM:
Office of the Secretary and Executive Management; OIG: Office of the Inspector General; USCIS: U.S.
Citizenship and Immigration Services.
a. Includes $655 mil ion in Title V for CBP for land ports of entry modernization.
b. Includes $12.7 mil ion enacted in FY2021 in Title V for grants to pay certain law enforcement costs related
to presidential protection. H.R. 4431 includes no funding for this purpose.
Table 3. Senate Appropriations Committee Majority Draft DHS Annual
Discretionary Appropriations, FY2022, Compared
(net discretionary budget authority, in thousands of dol ars)

Senate
Compared to FY2021
Compared to FY2022
Appropriations
Enacted
Request
Committee
Majority Draft
Component
(S. 3058)
$
%
$
%
CBP
14,537,933 (500,624)
-3.3%
(79,656)
-0.5%
USCG
11,075,673
100,423
0.9%
167,750
1.5%
ICE
7,933,719
(39,810)
-0.5%
(57,767)
-0.7%
TSA
6,154,811 1,137,080
22.7%
0
0.0%
FEMAa
5,081,937
539,078
11.9% (140,907)
-2.7%
USSS
2,577,687
139,686
5.7%
5,770
0.2%
CISA
2,638,078
613,102
30.3%
504,448
23.6%
MD
2,004,924
391,967
24.3%
(45,000)
-2.2%
S&T
868,903
103,345
13.5%
46,000
5.6%
CWMD
442,011
39,734
9.9%
14,550
3.4%
FLETC
355,636
15,288
4.5%
0
0.0%
A&O
320,620
22,120
7.4%
0
0.0%
OSEM
241,555
35,736
17.4%
(8,192)
-3.3%
OIG
205,359
15,173
8.0%
0
0.0%
USCIS
479,504
351,714
275.2%
10,000
2.1%
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Source: CRS analysis of P.L. 116-260, Divisions F and M and the explanatory statement accompanying it; H.R.
4431 and H.Rept. 117-87; and the Senate Appropriations Committee majority-produced draft appropriations bil
and explanatory statement released on October 18, 2021.
Notes: Data do not reflect the impact of transfers, rescissions, or scoring charged to the bil on the basis of
changes in mandatory programs. CBP: U.S. Customs and Border Protection; USCG: U.S. Coast Guard; ICE: U.S.
Immigration and Customs Enforcement; TSA: Transportation Security Administration; FEMA: Federal Emergency
Management Agency; USSS: U.S. Secret Service; CISA: Cybersecurity and Infrastructure Security Agency; MD:
Management Directorate; S&T: Science & Technology Directorate; CWMD: Office of Countering Weapons of
Mass Destruction; FLETC: Federal Law Enforcement Training Center; A&O: Analysis and Operations; OSEM:
Office of the Secretary and Executive Management; OIG: Office of the Inspector General; USCIS: U.S.
Citizenship and Immigration Services.
a. Includes $12.7 mil ion enacted in FY2021 in Title V for grants to pay certain law enforcement costs related
to presidential protection. The Senate Appropriations Committee majority draft includes $3 mil ion for this
purpose.

Author Information

William L. Painter

Specialist in Homeland Security and Appropriations

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Congressional Research Service
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