Appropriations for FY1998: Labor, Health and Human Services, and Education

Appropriations for FY1998: Labor, Health and Human Services, and Education

97-203 EPW
Appropriations for FY1998: Labor, Health and
Human Services, and Education
Updated December 3, 1997
Paul M. Irwin
Specialist in Social Legislation
Education and Public Welfare Division

Appropriations are one part of a complex federal budget process that includes budget
resolutions, appropriations (regular, supplemental, and continuing) bills, rescissions, and
budget reconciliation bills. The process begins with the President’s budget request and is
bounded by the rules of the House and Senate, the Congressional Budget and Impoundment
Control Act of 1974 (as amended), the Budget Enforcement Act of 1990, and current program
authorizations. In addition, the line item veto takes effect for the first time in 1997.
This report is a guide to one of the 13 regular appropriations bills that Congress passes each
year. It is designed to supplement the information provided by the House and Senate
Appropriations Subcommittees on Labor, Health and Human Services, and Education. It
summarizes the current legislative status of the bill, its scope, major issues, funding levels,
and related legislative activity. The report lists the key CRS staff relevant to the issues
covered and related CRS products.
This report is updated as soon as possible after major legislative developments, especially
following legislative action in the committees and on the floor of the House and Senate.
NOTE: A Web version of this document with
active links is available to congressional staff at
http://www.loc.gov/crs/products/apppage.html

Appropriations for FY1998: Labor, Health and Human
Services, and Education
Summary
This report describes the enactment by the 105 Congress of the Departments
th
of Labor, Health and Human Services, and Education, and Related Agencies
(L-HHS-ED) Appropriations Act, 1998. This Act provides nearly all discretionary
funds for three federal departments and related agencies. This report does not track
funding issues related to mandatory L-HHS-ED programs, nor the authorizing
legislation necessary prior to funding some of the President’s FY1998 initiatives.
On February 6, 1997, the President submitted the FY1998 budget to the
Congress. The request was for $80.1 billion in discretionary funds for L-HHS-ED
programs, $5.4 billion or 7.2% more than $74.7 billion in FY1997. Mandatory
L-HHS-ED funding in the FY1998 budget was $199.2 billion; the FY1997 amount
was $212.5 billion. On September 17, 1997, the House passed H.R. 2264; this bill
would have provided $80.1 billion in discretionary L-HHS-ED funds for FY1998. In
prior action, the Senate passed S. 1061 on September 11, which would have provided
$79.7 billion in discretionary funds. The conference version of H.R. 2264 provides
$80.4 billion in discretionary funds, a 7.6% increase over FY1997. H.R. 2264 was
signed into law by the President on November 13, 1997, as P.L. 105-78.
For U.S. Department of Labor (DOL) programs, the FY1998 budget supported
the consolidation of various job training programs, the transition from welfare to
work, the promotion of health and safety on the job, and the comprehensive update
of the Consumer Price Index (CPI). Discretionary DOL funding in FY1997 was
$10.3 billion. The President’s FY1998 request was $11.2 billion; the amount enacted
into law by P.L. 105-78 is $10.7 billion.
For U.S. Department of Health and Human Services (DHHS) programs, the
budget proposed the extension of health coverage, additional support for HIV/AIDS
and substance abuse programs, and increases for biomedical research at the National
Institutes of Health (NIH). Other initiatives included assistance to states to implement
the new welfare reform legislation, and additional support for Head Start and the
Child Care and Development Block Grant. Discretionary DHHS funding in FY1997
was $30.7 billion. The President’s FY1998 request was $31.7 billion; the enacted
amount is $32.8 billion.
For U.S. Department of Education (ED) programs, the budget supported
increases for the Pell Grant program, Goals 2000: Educate America Act programs,
Education Technology, Title I Grants for the Education of the Disadvantaged, and
Individuals with Disabilities Education Act (IDEA) programs. Discretionary ED
funding in FY1997 was $26.5 billion. The President’s FY1998 request was $29.5
billion; the enacted amount is $29.6 billion.
For the related agencies, including the Social Security Administration, increases
were proposed for the Corporation for Public Broadcasting, the Corporation for
National and Community Service, and the Supplemental Security Income (SSI)
program. Discretionary funding for related agencies in FY1997 was $7.5 billion. The
President’s FY1998 request was $7.7 billion; the enacted amount is $7.6 billion.

Key Policy Staff
CRS
Area of Expertise
Name
Division
Telephone
Coordinator
Paul M. Irwin
EPW
7-7573
Labor
Consumer Price Index (CPI)
Brian W. Cashell
E
7-7816
Job training and employment services
Ann Lordeman
EPW
7-2323
Labor standards enforcement
William G. Whittaker
E
7-7759
Occupational safety and health
Edward Rappaport
E
7-7740
Trade Adjustment Assistance
James R. Storey
EPW
7-7308
Unemployment compensation
James R. Storey
EPW
7-7308
Health and Human Services
Child welfare, child care
Karen Spar
EPW
7-7319
Family Planning
Melvina Ford
EPW
7-7362
Head Start
Karen Spar
EPW
7-7319
Health professions education and training
Celinda Franco
EPW
7-7360
HIV/AIDS, Ryan White
Sharon Kearney
EPW
7-7367
Immigration and refugee policy
Joyce C. Vialet
EPW
7-7305
Immunization
Melvina Ford
EPW
7-7362
Maternal and Child Health Block Grant
Melvina Ford
EPW
7-7362
Needle exchange
Stephen Redhead
STM
7-2261
NIH, health research policy
Pamela W. Smith
STM
7-7048
NIH, health research policy, abortion procedures
Irene E. Stith-Coleman
STM
7-7080
Older Americans Act
Carol O’Shaughnessy
EPW
7-7329
Substance abuse and mental health
Jennifer Neisner
EPW
7-7368
Tobacco settlement
Stephen Redhead
STM
7-2261
Welfare reform
Vee Burke
EPW
7-7304
Education
Education of the Disadvantaged, Title I
Wayne C. Riddle
EPW
7-7382
Education Technology
James B. Stedman
EPW
7-7356
National Education Goals
James B. Stedman
EPW
7-7356
National educational testing
Wayne C. Riddle
EPW
7-7382
Pell Grants
Margot A. Schenet
EPW
7-7378
Safe and Drug-Free Schools
Jennifer Neisner
EPW
7-7368
Special education, IDEA
Steven R. Aleman
EPW
7-2393
Special education, IDEA
Nancy Lee Jones
A
7-6976
Related Agencies and General Issues
Abortion issues
Karen J. Lewis
A
7-6190
Abortion issues
Kenneth R. Thomas
A
7-5006
Abortion issues
Thomas P. Carr
A
7-7290
Corporation for National and Community Service
Ann Lordeman
EPW
7-2323
Corporation for Public Broadcasting
Bernevia McCalip
E
7-7781
National Labor Relations Board
Gail McCallion
E
7-7758
National Labor Relations Board
Vince Treacy
A
7-7222
Social Security Administration
Geoffrey Kollmann
EPW
7-7316
Supplemental Security Income
Carmen Solomon-Fears
EPW
7-7306
Division abbreviations: A = American Law; E = Economics; EPW = Education and Public Welfare;
STM = Science, Technology, and Medicine.

Contents
Most Recent Developments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Status . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
House Legislative Action . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Senate Legislative Action . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Conference Committee Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
Line Item Veto . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Key Policy Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
U.S. Department of Labor . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
U.S. Department of Health and Human Services . . . . . . . . . . . . . . . . . . . 10
U.S. Department of Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
Related Agencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 18
Major Funding Trends . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
Related Legislative Activity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
For Additional Reading . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
CRS Issue Briefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
Other CRS Products . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
Overview and Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 23
Labor . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
Health and Human Services . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
Related Agencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 26
Selected World Wide Web Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
Departments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
Related Agencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
Appendix A: Terminology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
Appendix B: Scope of the L-HHS-ED Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
Appendix C: Detailed Appropriation Tables . . . . . . . . . . . . . . . . . . . . . . . . . . 32

List of Tables
Table 1. Status of Labor, Health and Human Services, and Education
Appropriations, FY1998 (H.R. 2264/S. 1061) . . . . . . . . . . . . . . . . . . . . . . 2
Table 2. Labor, Health and Human Services, and Education Appropriations Totals
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Table 3. Department of Labor Discretionary Appropriations . . . . . . . . . . . . . . . 8
Table 4. Department of Health and Human Services
Discretionary Appropriations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
Table 5. Department of Education Discretionary Appropriations . . . . . . . . . . . 13
Table 6. Related Agencies Discretionary Appropriations . . . . . . . . . . . . . . . . . 18
Table 7. Labor, Health and Human Services, and Education Discretionary
Appropriations, FY1993 to FY1997 Trends . . . . . . . . . . . . . . . . . . . . . . . 20
Table B.1. Scope of the L-HHS-ED Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
Table C.1. Detailed Department of Labor Appropriations . . . . . . . . . . . . . . . . 32
Table C.2. Detailed Department of Health and Human Services Appropriations
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 34
Table C.3. Detailed Department of Education Appropriations . . . . . . . . . . . . . 36
Table C.4. Detailed Related Agencies Appropriations . . . . . . . . . . . . . . . . . . . 39

Appropriations for FY1998: Labor, Health and
Human Services, and Education
Most Recent Developments
The Departments of Labor, Health and Human Services, and Education, and
Related Agencies Appropriations Act, 1998 (H.R. 2264), was signed into law by the
President as P.L. 105-78 on November 13, 1997. Prior to enactment of P.L. 105-78,
five continuing resolutions provided interim FY1998 funding. The conference report
on H.R. 2264 was filed on November 7; final conference issues included:
! voluntary national education testing;
! a domestic violence exemption from welfare work requirements;
! a federal needle exchange program for drug addicts;
! an education block grant proposal;
! federal supervision of Teamsters elections; and
! national tobacco settlement provisions.
H.R. 2264 was passed by the House on September 17, 1997. The Senate passed
its bill, S. 1061, on September 11, after authorizing a far-reaching elementary and
secondary education block grant. The President submitted the FY1998 budget
proposal to the Congress on February 6, 1997.
Introduction
The Labor, Health and Human Services, and Education, and Related Agencies
(L-HHS-ED) Appropriations bill provides most of the discretionary funds for three
federal departments and several related agencies including the Social Security
Administration (SSA). This appropriation is the largest single source of discretionary
funds for federal domestic programs. Because of the size of its funding total and the
scope of its programs, as well as the continuing importance of various related non-
funding issues, the L-HHS-ED bill typically is one of the more controversial
appropriation proposals.
This report describes the President’s FY1998 L-HHS-ED proposal and compares
it with the FY1997 amounts. It tracks congressional issues and actions related to the
FY1998 L-HHS-ED appropriations request, with particular attention paid to
discretionary programs. This report does not track funding issues related to
mandatory L-HHS-ED programs, nor the authorizing legislation necessary prior to
funding some of the President’s initiatives. Unless otherwise noted, budget numbers
refer only to those programs within the purview of the L-HHS-ED appropriations bill,
and not to all programs within the jurisdiction of the departments and agencies

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themselves. For a glossary of budget terms, please see Appendix A: Terminology
(page 29); for a discussion of the L-HHS-ED bill jurisdiction, Appendix B: Scope of
the L-HHS-ED Bill (page 30); and for funding details, Appendix C: Detailed
Appropriation Tables (page 32).
Related legislative action, summarized later in this report (beginning on page 21),
includes the regular and supplemental FY1997 L-HHS-ED appropriations, the
FY1998 congressional budget resolution, the resulting reconciliation and tax
legislation, and the FY1998 continuing resolutions.
DATA NOTE: In this report, the FY1997 appropriations and the FY1998
budget request and appropriation amounts are based on tables from the conference
report to accompany H.R. 2264, H.Rept. 105-390, unless otherwise noted. The
enacted appropriations for FY1998 may be modified by further legislation during
FY1998.
Status
Table 1 shows the key legislative steps taken during the enactment of
P.L. 105-78, the Departments of Labor, Health and Human Services, and Education,
and Related Agencies Appropriations Act, 1998. The Administration submitted its
FY1998 budget proposal to the Congress on February 6, 1997.
Table 1. Status of Labor, Health and Human Services, and Education
Appropriations, FY1998 (H.R. 2264/S. 1061)
Subcommittee
Conference report
markup
approval
House
House
Senate
Senate
Conference
House
Senate
report
passage
report
passage
report
House
Senate
Public law
7/25/97
9/17/97 7/24/97 9/11/97
11/07/97
11/07/97 11/08/97
11/13/97
7/15/97 7/22/97
H.Rept.
346 y -
S.Rept.
92 y -
H.Rept.
352 y -
91 y -
P.L. 105-
105-205
80 n a
105-58
8 n b
105-390 c
65 n d
4 n e
78
a H.R. 2264 floor action: please see Congressional Record, Daily Edition, September 4, 1997, p. H6849-
6890; September 5, p. H6925-6948; September 8, p. H6977-6999; September 9, p. H7023-7084;
September 10, p. H7129-7182; September 11, p. H7206-7247; September 16, p. H7324-7351; and
September 17, p. H7372-7452. Roll call #402 (346-80), September 17, 1997, p. H7453.
b S. 1061 floor action: please see Congressional Record, Daily Edition, September 2, 1997, p. S8632-8640,
S8643, S8646-8648, S8650-8651, S8655-8656; September 3, p. S8685-8720; September 4, p.
S8772-8782, S8785-8790, S8792-8817, S8819; September 8, p. S8898-8924; September 9, p.
S8945-8952, S8958-8971, S8989-9013; September 10, p. S9033-9059, S9062-9078; and September
11, p. S9097-9116. Roll call #234 (92-8), September 11, 1997, p. S9116.
c H.R. 2264 text of conference report (H.Rept. 105-390): please see Congressional Record, Daily Edition,
November 7, 1997, p. H10210-10304.
d H.R. 2264 conference report approval in the House: please see Congressional Record, Daily Edition,
November 7, p. H10313. Roll call #615 (352-65).
e H.R. 2264 conference report approval in the Senate: please see Congressional Record, Daily Edition,
November 8, p. S12082-12095. Roll call #298 (91-4), p. S12094-12095.
House Legislative Action
The House Subcommittee on L-HHS-ED Appropriations began hearings on the
budget proposal on February 12, 1997, and marked up its bill on July 15. The House

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Appropriations Committee marked up the bill on July 22, and reported it on July 25,
1997 (H.R. 2264, H.Rept. 105-205). The House began consideration of H.R. 2264
on September 4, 1997. After agreeing to 21 amendments, the House passed H.R
1
.
2264, as amended, on September 17, 1997, by a vote of 346-80. Highlights of the
House floor amendments include the following provisions.
! Funds would be increased, relative to the bill reported by Committee, for
Individuals with Disabilities Education Act (IDEA) special education
programs, Children and Family Services child abuse and prevention programs,
senior citizen meals program, vocational and adult education programs, charter
schools, and Centers for Disease Control (CDC) research on pfiesteria
infections of fish.
! Decreases in funding were agreed to for the Goals 2000 education reform
program, technology literacy challenge grant, Title X Family Planning
programs, the Employment and Training Administration, and the State
Unemployment Insurance and Employment Services Operations.
! The House agreed to restrict compensation under the Job Corps, and to
prohibit the use of funds to pay the expenses of an election officer appointed
by a court to oversee an election of any officer or trustee of the International
Brotherhood of Teamsters.
! Several sections of the Balanced Budget Act of 1997, P.L. 105-33, and the
Taxpayers Relief Act of 1997, P.L. 105-34, related to a tobacco industry
settlement credit, would be repealed.
! Title X Family Planning providers would be required to encourage family
participation in cases where minors are seeking assistance.
! Funds would be prohibited from being used for any program to distribute
needles for the injection of illegal drugs, and the restrictions of the Hyde anti-
abortion amendment would be extended to managed care programs.
! Federal enforcement options would be restricted concerning violations by
states of IDEA provisions on services to youth with disabilities in adult
prisons.
! Under the Elementary and Secondary Education Act of 1965 (ESEA), the
whole school reform provisions for $150 million under the Title I Education
for the Disadvantaged program and $50 million under the Title X Fund for the
1 H.Res. 199, the rule for the House floor consideration of H.R. 2264, was reported
(H.Rept. 105-214) by the House Committee on Rules July 28, 1997. The rule provided one
hour of general debate and made in order four amendments printed in the report: two were
concerned with the use of federal funds for abortion in managed care plans; and two were
concerned with the use of Title X family planning funds for contraceptive drugs or devices for
minors, parent or guardian notification, and family involvement.

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Improvement of Education (FIE) program would be renamed as
“comprehensive school reform” provisions.
! The House agreed to prohibit any funds to be used to develop, plan,
implement, or administer any national testing program in reading or
mathematics, a prohibition the Administration indicated would cause a veto if
left in the final bill.2
Senate Legislative Action
The Senate Subcommittee on L-HHS-ED Appropriations began hearings on
March 4, and marked up its version of the bill on July 22. The Senate Appropriations
Committee marked up the bill and reported it the same day, July 24, 1997 (S. 1061,
S.Rept. 105-58). The Senate began consideration of S. 1061 on September 2; after
agreeing to 46 amendments, the Senate passed S. 1061 on September 11, 1997, as
amended, by a vote of 92-8. On September 17, the Senate took up H.R. 2264,
replaced its text by substituting the text of S. 1061, passed H.R. 2264 as amended in
lieu of S. 1061, vitiated its action on the passage of S. 1061, and indefinitely
postponed S. 1061. Highlights of the Senate floor amendments include the following
provisions.
! Funds would be increased, relative to the bill reported by Committee, for
Title III of the Older Americans Act, State Student Incentive Grants program,
Prospective Payment Assessment Commission, Physician Payment Review
Commission, National Occupational Information Coordinating Committee,
education infrastructure, refugee and entrant assistance program, National
Institute for Literacy, and Mary McLeod Bethune Memorial Fine Arts Center.
! The Senate agreed to establish a program for research and training related to
Parkinson’s disease, and to expand efforts to eliminate Medicare waste, fraud,
and abuse.
! Several provisions related to the proposed tobacco settlement were agreed to
including the repeal of the tobacco industry settlement credit enacted in the
Balanced Budget Act of 1997, P.L. 105-33.
! Also agreed to were a comprehensive study for the prevention of Fetal Alcohol
Syndrome, a study of the health and safety effects of perchlorate on human
beings, and a comprehensive study of research priority setting by the National
Institutes of Health (NIH).
! The Senate accepted an amendment to place the control of any voluntary
national education achievement tests, such as those proposed by the President,
under the independent National Assessment Governance Board (NAGB). In
addition, the amendment would modify the membership of NAGB by
increasing the number of political appointees on the Board, including
2 For details on the President’s national education testing proposal and related issues,
please see CRS Report 97-774, National Tests: Administrative Initiative, by Wayne Riddle.

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governors, state legislators, and mayors, and specifically would limit the
number of these members who could be from “the same political party as the
President.”
! The Senate by a vote of 51 to 49 agreed to a far-reaching amendment that
would funnel a large majority of elementary and secondary education funds
otherwise provided in the FY1998 L-HHS-ED Appropriations Act through a
block grant to local educational agencies (LEAs) to support programs or
activities deemed appropriate by such agencies for kindergarten through
twelfth grade education. Major programs excluded from the block grant
include IDEA special education programs, Impact Aid, Adult Education,
Educational Research and Statistics, 50% of the funds for Vocational
Rehabilitation (which currently has no elementary and secondary education
component), and 50% of the funds from the Vocational and Adult Education
account. Grants to LEAs would be allocated in two separate funding streams,
one from funds redirected from Title I Education for the Disadvantaged
programs, the other from funds redirected from non-Title I programs. The
amendment generally would exclude federal or state officials from the
determination of the use of funds, and would exclude states from sharing in the
use of funds. The aggregate amount awarded to the LEAs in each state would
be no less than the “net dollars that states would have received absent the
provisions” of this amendment. No fiscal or other accountability requirements
are specified for the block grant funds; no funds would be reserved for services
for any private school pupils; and no funds would be targeted to meet the
needs of disadvantaged pupils or any other special population.3
Conference Committee Issues
The conference committee on the FY1998 L-HHS-ED appropriations had
extended discussions over several issues in addition to the actual spending levels for
FY1998. The first conference meeting was held September 26, 1997; the conference
report, H.Rept. 105-390, was filed November 7. Some of the more significant issues
discussed were as follows.
! National testing: the prohibition on voluntary national education testing in
the House bill was modified in the conference report to allow the development
of national tests, but it prohibited the use of FY1998 funds to field or pilot test,
administer, distribute, or implement any national test. In addition, the National
Academy of Sciences is to conduct three separate studies on topics related to
national education testing. (§305 through 311 of P.L. 105-78)
! Domestic Violence Exemption: the conference report deleted "without
prejudice" the Senate provision concerning the provision of waivers under
welfare reform to victims of domestic violence. (p. 94 of H.Rept. 105-390)
3 For a more extensive discussion of the Senate’s block grant amendment, please see
CRS Report 97-893, Education Block Grant in FY1998 Appropriations, by Paul M. Irwin
and Wayne C. Riddle.

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! Sterile Needle Distribution and Exchange: the conference report included
House language restricting the use of federal funds for the distribution of
sterile needles for the injection of illegal drugs. Specifically, the report
removed the authority granted under previous appropriations acts to the
Secretary to waive the prohibition if such programs were found to be effective
in preventing the spread of HIV and do not encourage the use of illegal drugs.
In addition, all sterile needle and syringe exchange projects are to be suspended
through March 31, 1998, at the earliest. (§505-506)
! Education Block Grant: the elementary and secondary education block grant
initiative that was proposed as part of the Senate bill was eliminated by the
conference committee. This proposal would have funneled $13.4 billion in
funds otherwise appropriated for 51 existing programs, including most federal
elementary and secondary funds, into grants made directly to local educational
agencies, to support programs or activities deemed appropriate by such
agencies. (p. 116)
! Teamsters Election: the conference report included the House provision that
prohibited the use of federal funds in this Act for the supervision of the election
of any officer of the International Brotherhood of Teamsters. (§518)
! Tobacco Provisions: the conference report deleted four Senate provisions
related to the national tobacco settlement, but suggested that these issues
should be discussed during the consideration of any implementation legislation
for the settlement. (p. 116)
! Other Provisions: the conference report included several other provisions,
including revision to the Hyde anti-abortion provisions (§509-510), funding for
school violence hotlines (p. 111), a report to be made by the Secretary of
Education concerning the percentage of federal elementary and secondary
funds that are used directly for teachers and students (p. 111), a study
concerning increasing enrollments and smaller class sizes (p. 111), a technical
amendment to the U.S. Department of Transportation Appropriation for
FY1998 (P.L. 105-66) (§607), a technical amendment concerning the welfare-
to-work program under the Balanced Budget Act of 1997 (§519), a new
provision concerning the consolidation of student loans (§609), and the
authorization of the National Health Museum Development Act (Title VII of
P.L. 105-78).
Line Item Veto
The President did not exercise the line item veto authority with respect to any
of the P.L. 105-78 appropriations; none of the funds in the FY1998 L-HHS-ED
Appropriations Act have been canceled by the President.
Key Policy Issues
The major funding issue regarding the FY1998 L-HHS-ED appropriations has
been the size of the overall total appropriation. Within the L-HHS-ED total,

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discretionary funding is the only type of appropriation over which the appropriations
committees have effective control, discussed further in Appendix B, page 30. Table 2
shows several types of funding associated with L-HHS-ED appropriations for
FY1997 and FY1998; these types are defined in the Appendix A glossary, page 29.
For FY1998, the Administration requested $80.1 billion in discretionary funds, $5.4
billion or 7.2% more than the FY1997 amount of $74.7 billion, as shown in Table 2.
The House-passed bill would have provided a total of $80.1 billion in L-HHS-ED
discretionary funds, an increase of $5.4 billion or 7.2% over the FY1997 amount.
The Senate-passed bill would have provided $79.7 billion in discretionary funds, an
increase of $5.0 billion or 6.7% over the FY1997 amount. The FY1998 amount
enacted under P.L. 105-78 is $80.4 billion, an increase of 7.6%.
Table 2. Labor, Health and Human Services, and Education
Appropriations Totals
(budget authority in billions of dollars)
Type of
FY1997
FY1998
FY1998
FY1998
FY1998
appropriation a
final
request
House
Senate
enacted b
Discretionary,
$74.7
$80.1
$80.1
$79.7
$80.4
current year
Mandatory,
212.5
199.2
199.1
199.1
$196.5
current year
Total,
287.2
279.3
279.2
278.8
$276.9
current year
Federal funds,
278.7
269.1
269.6
269.9
$268.0
all years
Trust funds,
11.7
12.2
11.8
11.9
$11.9
all years
Source: Amounts are based on the FY1998 L-HHS-ED appropriations conference report,
H.Rept. 105-390.
a Types of appropriations are defined in the Appendix A glossary, page 29. Amounts shown are for
programs included in the L-HHS-ED appropriation bill; funds for L-HHS-ED programs funded
through other laws are not included.
b The FY1998 amount represents the appropriation enacted under P.L. 105-78; this amount may be
modified by further legislation during FY1998. The President did not exercise the line item
veto authority with respect to any of these appropriations.
U.S. Department of Labor
The FY1998 budget proposal for U.S. Department of Labor (DOL) was $11.2
billion in discretionary funds, $0.9 billion more than the FY1997 appropriation of
$10.3 billion, as shown in Table 3. The House bill would have provided $10.8 billion
and Senate bill $10.7 billion; the FY1998 amount enacted under P.L. 105-78 is $10.7
billion.

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Table 3. Department of Labor Discretionary Appropriations
(budget authority in billions of dollars)a
FY1997
FY1998
FY1998
FY1998
FY1998
enacted
request
House
Senate
enacted b
$10.3
$11.2
$10.8
$10.7
$10.7
Source: House Appropriations Committee unofficial staff table of November 8, 1997.
a Discretionary amounts shown are for programs included in the L-HHS-ED appropriation bill;
mandatory funds within the bill are not included.
b The FY1998 amount represents the appropriation enacted under P.L. 105-78; this amount may be
modified by further legislation during FY1998.
Mandatory DOL programs included in the L-HHS-ED bill were funded at $1.9
billion in FY1997, and consist primarily of the Black Lung Disability Trust Fund ($1.0
billion), Federal Unemployment Benefits and Allowances programs ($0.3 billion), and
Advances to the Unemployment Insurance and Other Trust Funds ($0.4 billion).
The President’s Request. The President’s FY1998 budget request for DOL
featured several themes related to lifelong learning for American workers, protection
of pension security, and the promotion of health and safety on the job. It also
included initiatives for the transition from welfare to work, portability of health
benefits, and changes in economic indicators. Lifelong learning included the
Administration’s proposed GI Bill for America’s Workers to consolidate and simplify
job training programs and a One-Stop Career Center proposal to integrate the delivery
of training services and to provide labor market information. The training proposal
concentrated on disadvantaged persons to support economic self-sufficiency. The
budget proposed an initiative for Opportunity Areas for Out-of-School Youth.
Support would have been increased for Empowerment Zones and Enterprise
Communities to enhance employment opportunities for out-of-school youth.
Additional funds are proposed for low-income adult training programs. To enhance
worker protection, additional support would have been provided for workplace safety
and health, wage protection programs, and pension security for all employees. The
budget proposed changes in the calculation of economic indicators, in particular,
revisions of the Consumer Price Index (CPI), a key measure of price change used by
business, labor, and government.
Major DOL discretionary increases under the President’s FY1998 budget
included the following.
! An additional $0.6 billion was requested for Job Training Partnership Act
(JTPA) programs, including increases of $169 million for Adult Training
programs, $64 million for Dislocated Worker Assistance, $93 million for the
Job Corps, and $250 million for a proposed Opportunity Areas for Out-of-
School Youth program.
! An increase of $289 million was proposed for State Operations for
Unemployment Compensation, including $200 million for the Year 2000
Computer Conversion.

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Smaller DOL increases were proposed for salaries and expenses for the
Employment Standards Administration (ESA), the Occupational Safety and Health
Administration (OSHA), the Mine Safety and Health Administration (MSHA), and
the Bureau of Labor Statistics (BLS).
The House Bill. The House bill differed from the FY1998 DOL budget request
in the funding levels for a number of programs.
! The House bill would have provided $4.9 billion for JTPA programs, $426
million more than in FY1997, but $151 million less than the budget request.
The bill did not provide the requested $250 million for the proposed
Opportunity Areas for Out-of-School Youth program; rather, it provided $25
million under existing JTPA authority for a pilot demonstration program, plus
an additional $100 million for FY1999 contingent on enactment of separate
authorization. Most amounts would be the same as requested for the JTPA
Grants to States and Federally Administered Programs.
! The Unemployment Compensation State Operations would have been funded
at $2.1 billion for FY1998, the same as the FY1997 level; the budget request
was for $2.2 billion. The bill included $183 million for the Year 2000
Computer Conversion; $200 million was requested.
! The House bill would have provided smaller increases than those requested for
the Employment Standards Administration (ESA) salaries and expenses,
funded at $290 million in FY1997, the Occupational Safety and Health
Administration (OSHA), $325 million in FY1997, and the Mine Safety and
Health Administration (MSHA), $197 million in FY1997.
The Senate Bill. For DOL programs, the funding provisions of the Senate bill
differed from those in the House bill primarily for JTPA and Unemployment
Compensation State Operations.
! For JTPA programs, the Senate bill would have provided $955 million for
Grants to States for Adult Training; the House would have provided $1,043
million. For JTPA National Activities, the Senate would have provided $83
million for Pilots and Demonstrations and $250 million for Opportunity Areas
for Youth; the House would have provided $45.5 million and $100 million,
respectively.
! For Unemployment Compensation State Operations, the Senate bill would
have provided $150 million for Year 2000 Computer Conversion; the House
would have provided $183 million.
Public Law. The FY1998 L-HHS-ED Appropriations Act, P.L. 105-78,
provides funding levels similar to those in the President’s budget request with the
following exceptions.
! JTPA programs are funded at $5.0 billion, $59 million less than the request,
but $518 million more than in FY1997. In particular, Adult Training programs

CRS-10
are funded at $955 million, $109 million less than the request, but $60 million
more than in FY1997.
! Unemployment Compensation is funded at $2.5 billion, $109 million less than
the request, but $180 million more than in FY1997.
U.S. Department of Health and Human Services
The FY1998 budget proposal for U.S. Department of Health and Human
Services (DHHS) was $31.7 billion in discretionary funds, $1.0 billion more than the
FY1997 appropriation of $30.7 billion, as shown in Table 4. Both the House and
Senate bills would have provided $32.5 billion; the FY1998 amount enacted under
P.L. 105-78 is $32.8 billion.
Table 4. Department of Health and Human Services
Discretionary Appropriations
(budget authority in billions of dollars) a
FY1997
FY1998
FY1998
FY1998
FY1998
enacted
request
House
Senate
enacted b
$30.7
$31.7
$32.5
$32.5
$32.8
Source: House Appropriations Committee unofficial staff table of November 8, 1997.
a Discretionary amounts shown are for programs included in the L-HHS-ED appropriation bill;
mandatory funds within the bill and other L-HHS-ED programs funded through other laws are
not included.
b The FY1998 amount represents the appropriation enacted under P.L. 105-78; this amount may be
modified by further legislation during FY1998.
Mandatory DHHS programs included in the L-HHS-ED bill were funded at
$180.9 billion in FY1997, and consist primarily of Grants to States for Medicaid
($103.0 billion), Payments to Health Care Trust Funds ($60.1 billion), Family Support
Payments to States programs ($7.6 billion), Social Services Block Grant ($2.5
billion), and Foster Care and Adoption ($5.6 billion). The FY1998 DHHS budget
included mandatory program initiatives to assist states as they begin to implement
Temporary Assistance for Needy Families (TANF), the new welfare reform programs,
including assistance for families making the transition from welfare to work.
The President’s Request. The President’s FY1998 budget request for DHHS
included a number of themes related to the funding and delivery of health care and
social services. The budget proposed significant changes to the Medicare and
Medicaid programs, and extension of health insurance coverage to uninsured children
and the temporarily unemployed. Other major themes included increased support for
research, prevention, and treatment programs for HIV/AIDS (the human
immunodeficiency virus and the acquired immune deficiency syndrome) and substance
abuse, including a Youth Substance Abuse Prevention Initiative; and increases for
biomedical research programs at the NIH. Proposals were also made to provide
additional support for Head Start, teen pregnancy prevention, and programs to reduce
tobacco and drug use among youth.

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Major DHHS discretionary increases in the FY1998 budget request were as
follows.
! An additional $337 million was requested for the NIH.
! $107 million more was proposed for the Child Care and Development Block
Grant (CCDBG).
! A $324 million increase was included for Head Start.
Smaller DHHS increases were proposed for the CDC’s Infectious Diseases
program and the Health Care Financing Administration (HCFA) Program
Management. Funding increases for topics (rather than specific programs) included
a proposed addition of $100 million for HIV/AIDS, combining relevant increases at
NIH, the Ryan White AIDS program, and the CDC; a proposed increase of $66
million for substance abuse, combining relevant increases at NIH and the Substance
Abuse and Mental Health Services Administration (SAMHSA); a proposed $98
million for a Youth Substance Abuse Prevention Initiative; and a proposed increase
of $66 million for the Violent Crime Reduction Programs (VCRP).
Reductions for DHHS programs were requested of $138 million for Health
Resources and Services Administration (HRSA), $62 million for Family Violence, and
$75 million for the Community Services Block Grant (CSBG) program.
The House Bill. The House bill differed from the FY1998 DHHS budget
request in the funding levels for a number of programs.
! The funding level proposed by the House for the NIH, $13.5 billion, accounted
for the single greatest proposed funding increase, in comparison with the
budget request, of the entire L-HHS-ED bill; the FY1998 request was $13.1
billion, and the FY1997 level was $12.7 billion. Overall, the NIH
appropriation would have represented a 6.0% increase over the FY1997
amount. For specific institutes, centers, and divisions, the bill would have
provided at least a 7.0% increase for the National Institute of Diabetes and
Digestive and Kidney Diseases; the National Institute on Alcohol Abuse and
Alcoholism; the National Institute on Drug Abuse; the National Human
Genome Research Institute; the National Library of Medicine; and Buildings
and Facilities. In addition, the bill would have provided funding for AIDS
research as a part of the appropriation for each individual institute, the same
as in FY1997; it did not specify a single amount in a separate appropriation for
AIDS research, as requested by the Administration.
! The bill would have provided $307 million for the DHHS Health Professions
program; the request was for $130 million, and the FY1997 amount was $293
million.
! The Ryan White AIDS Programs would have been funded at $1.2 billion, $132
million more than the request and $172 million more than the FY1997 level of
$1.0 billion. Increased funding would have been provided for both
comprehensive care and for emergency assistance activities.

CRS-12
! The bill would have provided $1.0 billion in advance funding for the CCDBG
for FY1999, the same as the budget request and an increase of $63 million
over the comparable FY1998 amount; however, the bill did not provide an
additional $63 million that was requested in the budget for FY1998 CCDBG
program activities.
! The Title XX Social Services Block Grant (SSBG) would have been funded
at $2.2 billion; the FY1997 amount was $2.5 billion and the request was for
$2.4 billion.
! The CSBG would have been funded at $490 million, the same as in FY1997;
the budget request was for a reduction to $415 million.
The Senate Bill. The funding provisions of the Senate bill differed from those
in the House bill for a number of DHHS programs.
! The Senate bill would have provided NIH a total of $13.7 billion; the House
would have provided $13.5 billion.
! For Health Professions, the bill would have provided $220 million; the House,
$307 million.
! For the Ryan White AIDS Programs, the Senate bill would have provided $1.1
billion; the House, $1.2 billion.
! For SAMHSA, the Senate bill would have provided $2.127 billion; the House,
$2.152 billion.
! The Senate bill would have provided $1.7 billion for Medicare Contractors; the
House, $1.6 billion.
! For the Low-Income Home Energy Assistance Program (LIHEAP), the bill
would have provided $1.2 billion in advance funding; the House bill, $1.0
billion.
! For the Administration on Aging, the bill would have provided $894 million;
the House bill, $815 million.
Public Law. The FY1998 L-HHS-ED Appropriations Act, P.L. 105-78, funding
levels differ from those in the President’s budget request for several DHHS
programs.
! The Health Professions programs are funded at $294 million, about the same
as the FY1997 amount, but $164 million more than the request.
! The Ryan White AIDS programs are increased by $154 million; an increase of
$40 million was requested.

CRS-13
! A $63 million increase is provided to the CDC; the budget request was an
increase of $14 million.
! The NIH is receiving an increase of $570 million; the request was an increase
of $337 million.
! LIHEAP is advance funded at $1.1 billion, $100 million more than the request.
! The SSBG is funded at $2.3 billion, $81 million less than the request.
! Head Start is funded at $4.4 billion, $50 million more than the request.
! The CSBG is funded at $491 million, $76 million more than the request.
U.S. Department of Education
The FY1998 budget proposal for U.S. Department of Education (ED) was $29.5
billion in discretionary funds, $3.0 billion more than the FY1997 appropriation of
$26.5 billion, as shown in Table 5. The House bill would have provided $29.3 billion
for FY1998 and the Senate bill $29.1 billion; the FY1998 amount enacted under
P.L. 105-78 is $29.6 billion.
Table 5. Department of Education Discretionary Appropriations
(budget authority in billions of dollars)a
FY1997
FY1998
FY1998
FY1998
FY1998
enacted
request
House
Senate
enacted b
$26.5
$29.5
$29.3
$29.1
$29.6
Source: House Appropriations Committee unofficial staff table of November 8, 1997.
a Discretionary amounts shown are for programs included in the L-HHS-ED appropriation bill;
mandatory funds within the bill and other L-HHS-ED programs funded through other laws are
not included.
b The FY1998 amount represents the appropriation enacted under P.L. 105-78; this amount may be
modified by further legislation during FY1998.
Mandatory ED programs included in the L-HHS-ED bill were funded at $2.5
billion in FY1997, and consist primarily of the Rehabilitative Services and Disabilities
Research program ($2.5 billion). The FY1998 ED budget included new reading and
school construction initiatives, and a package of legislative and tax changes to help
pay college costs. Mandatory funding was proposed for the America Reads
Challenge, including support for 1,000,000 tutors in a Reading Corps, and a school
construction initiative to support state and local efforts to upgrade facilities. Other
mandatory changes included proposals to amend the student loan programs to
decrease loan origination fees and restructure the guaranty agency system. In addition
to the budget request for ED appropriations, the President proposed a change in the
tax code to provide the America’s Hope Scholarship tax credit and the Middle Class
Bill of Rights tax deduction to reduce the cost of postsecondary education to eligible
students and their families.

CRS-14
The President’s Request. Support for education has been one of the President’s
top priorities, and the FY1998 budget proposal for ED reflected that emphasis.
Major themes included emphasis on national education goals, modernization of
schools and classrooms to meet the needs of the 21 century, and making a college
st
education more affordable for all students.
Major ED discretionary increases in the FY1998 budget request were as follows.
! The largest ED discretionary increase was $1.7 billion in additional funds
proposed for Pell Grants; this 29% expansion is proposed to increase the
maximum Pell award from $2,700 to $3,000 and to increase eligibility for
independent students.
! An additional $129 million was proposed for Goals 2000 State and Local
Systemic Improvement Grants.
! $225 million more was included for Education Technology.
! $350 million was requested for currently unfunded Title I Targeted Grants
under the Elementary and Secondary Education Act of 1965 (ESEA).
! $64 million more was proposed for Safe and Drug-Free Schools and
Communities (SDFSC) programs.
! $164 million more was proposed for the State Grants program under
Individuals with Disabilities Education Act (IDEA).
! $132 million was requested for proposed Presidential Honors Scholarships.
Smaller increases were proposed for Professional Development, Charter Schools,
Bilingual Education, Immigrant Education, Vocational Education, Adult Education,
TRIO programs, Research and Statistics, and Salaries and Expenses.
A decrease of $72 million was proposed for Impact Aid programs. Additional
cuts were proposed through the termination of the Program Innovation (education
block grant) program ($310 million in FY1997) and the State Student Incentive
Grants (SSIG) program ($50 million in FY1997).
The House Bill. The House bill differed from the FY1998 ED budget request
in the funding levels for a number of programs.
! The Pell Grant program would have received $7.4 billion under the House bill
instead of the requested $7.6 billion; the FY1997 amount was $5.9 billion.
The bill would have increased the amount of the maximum award by $300 to
$3,000, as requested. The bill would not have amended the authorization
under the Higher Education Act to expand the eligibility for certain
independent students, as requested in the budget. However, report language
indicated that the total provided included an extra $528 million that would
remain available to finance changes in eligibility, if subsequently enacted. In
addition, the Committee noted that the authorizing committee with jurisdiction

CRS-15
was considering changes to Pell Grant eligibility for both dependent and
independent students, and encouraged expeditious enactment so that students
might obtain the benefit of the additional funding provided in this bill.
! The bill would have provided for the Goals 2000: Educate America Act
programs $387 million; the FY1997 amount was $491 million, and the request
was for $620 million.
! The bill would have provided for Education Technology $435 million; the
FY1997 amount was $200 million, and the request was for $425 million.
! The ESEA Title I programs would have received $8.2 billion; the request was
$8.1 billion, and the FY1997 total was $7.8 billion. Compared to the budget
request, the bill would have reduced Concentration Grants by $50 million, but
increased Targeted Grants by $50 million and provided $150 million for
comprehensive school reform activities under the Title I, plus an additional $50
million under ESEA Title X.
! The bill would have provided for Impact Aid programs $796 million; the
FY1997 amount was $730 million, and the request was for $658 million.
! The ESEA Title VI Innovative Education Program Strategies would have been
funded at $350 million; the FY1997 amount was $310 million, and the budget
request was for program termination.
! SDFSC programs would have received $556 million, the same as the FY1997
funding level; $620 million was requested in the budget.
! The bill would have provided $260 million advance funded for FY1999 for a
literacy initiative, contingent on enactment of separate authorization by April
1, 1998; the budget request was for $260 million forward funded in FY1998
for a proposed America Reads Challenge.
! The bill would have provided for IDEA state grants programs $4.2 billion; the
FY1997 amount was $3.8 billion, and the request was for $3.9 billion.
! The bill would have provided no funds for the proposed Presidential Honors
Scholarships; the budget requested $132 million, but no funds were provided
in FY1997.
! Section 306 of the bill would have required the Secretary of Education to
make a grant to the National Academy of Sciences to evaluate the
Administration’s proposal for national educational testing and report to the
Congress by August 31, 1998, and prohibited ED from implementing any final
version of the national tests prior to the completion of the study and report.
However, the House accepted a floor amendment whereby Section 518 of the
bill would have prohibited FY1998 L-HHS-ED appropriations from being used
to develop, plan, implement, or administer any national testing program.

CRS-16
The Senate Bill. The funding provisions of the Senate bill differed from those
in the House bill for a number of ED programs.
! The Senate agreed to a floor amendment to create an elementary and
secondary education block grant. The block grant would have used funds
appropriated elsewhere in the bill and redirected them to a block grant for local
educational agencies, for use as deemed appropriate by local officials.
According to preliminary ED estimates, the provision would have channeled
$13.7 billion from 51 other elementary and secondary programs into the block
grant. [Amounts given below for elementary and secondary education
programs are those that would have been appropriated prior to their
redirection through the implementation of the block grant.]
! For Pell Grants, the Senate bill would have provided $6.9 billion, with report
language indicating that this should be enough to increase the maximum award
to $3,000; it did not contain the additional $528 million that would have been
included in the House bill for proposed changes in eligibility.
! The Senate bill would have provided $530 million for Goals 2000: Educate
America Act programs; the House, $475 million.
! For ESEA Title I programs, the Senate bill would have provided $7.8 billion,
including $6.3 billion for Basic Grants and $1.0 billion for Concentration
Grants but no funds for Targeted Grants or for comprehensive school reform
provisions; the House bill would have provided a total of $8.2 billion, including
$6.2 billion for Basic Grants, $0.9 billion for Concentration Grants, $400
million for Targeted Grants, and $150 million under Title I and $50 under Title
X for comprehensive school reform activities.
! For IDEA State Grants Programs, the Senate bill would have provided $4.7
billion; the House, $4.2 billion.
! The Senate bill would have provided $634 million for the Federal
Supplemental Educational Opportunity Grants (SEOG) Program; the House,
$583 million, the same as the FY1997 amount.
! The Senate bill would have provided $100 million for elementary and
secondary education infrastructure facilities improvement programs; the House
bill would have provided no funds. No funds were provided in FY1997. The
Administration requested mandatory funding for a new school facilities
program.
! The Senate accepted a floor amendment that would have placed control of any
national achievement tests, such as those proposed by the President for fourth
grade reading and eighth grade mathematics, under the purview of the
independent National Assessment Governing Board (NAGB); the House bill
would have prohibited use of FY1998 L-HHS-ED appropriations on any
activity related to national testing.

CRS-17
Public Law. The FY1998 L-HHS-ED Appropriations Act, P.L. 105-78, funding
levels differ from those in the President’s budget request for several ED programs.
! The prohibition on voluntary national education testing in the House bill is
modified in the conference report to allow the development of national tests,
but the final version prohibits the use of FY1998 funds to field or pilot test,
administer, distribute, or implement any national test; in addition, the National
Academy of Sciences is to conduct three studies on topics related to national
testing.
! The elementary and secondary education block grant initiative that was
proposed as part of the Senate bill is eliminated by the conference committee.
! Pell Grants are increased by $1.4 billion, which is $290 million less than the
amount requested in the budget; the maximum award is increased to $3,000,
up from $2,700, as requested; and the Secretary is authorized to increase the
income protection allowances (IPAs) for single independents, working
dependents, and married independents without children so that more students
are eligible for Pell Grants.
! The Goals 2000: Educate America Act programs are level funded, $129
million less than requested.
! Title I Grants to LEAs are increased by $200 million instead of $246 million,
and within the total, no funds are provided for Targeted Grants, but increases
are made of $80 million for Concentration Grants and $120 million for
Comprehensive School Reform.
! The Impact Aid program receives an increase of $150 million instead of the
$72 million reduction requested.
! Innovative Program Strategies is funded at $350 million instead of terminated
as requested by the Administration.
! Safe and Drug-Free Schools and Communities programs are level funded at
$556 million instead of receiving a $64 million increase.
! $210 million is provided for the Children’s Literacy proposals instead of the
$260 million requested; these funds are provided on an advance funded rather
than forward funded basis; funding is contingent on the separate enactment of
authorizing legislation by July 1, 1998; without enactment, the funds are to be
transferred to the "Special Education" account.
! Special Education State Grants are increased by $746 million instead of the
$162 million requested.
! No funds are provided for the proposed Presidential Honors Scholarships; the
request was for $132 million.

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! Increases are provided of $68 million for the Fund for the Improvement of
Education (FIE) and $39 million for the 21 Century Community Learnin
st
g
Centers; the request was for level funding FIE at $40 million, and terminating
the $1 million 21 Century program.
st
! P.L. 105-78 includes a provision from H.R. 2535, as passed by the House, to
allow loan consolidation under the Federal Family Education Loan program
(FFEL) for Direct Loan borrowers through October 1, 1998, and an
amendment to the need analysis formula in Title IV of the Higher Education
Act of 1965 (HEA) that prevents any negative consequences for taxpayers
claiming the new education tax credits when they apply for federal student aid.
Related Agencies
The FY1998 budget proposal for related agencies was $7.7 billion in
discretionary funds, $0.2 billion more than the FY1997 appropriation of $7.5 billion,
as shown in Table 6. Both the House and Senate bills would have provided $7.6
billion for related agencies; the FY1998 amount enacted under P.L. 105-78 is $7.6
billion.
Table 6. Related Agencies Discretionary Appropriations
(budget authority in billions of dollars)
FY1997
FY1998
FY1998
FY1998
FY1998
enacted
request
House
Senate
enacted a
$7.5
$7.7
$7.6
$7.6
$7.6
Source: House Appropriations Committee unofficial staff table of November 8, 1997.
a The FY1998 amount represents the appropriation enacted under P.L. 105-78; this amount may be
modified by further legislation during FY1998.
Mandatory programs for related agencies included in the L-HHS-ED bill were
funded at $27.2 billion in FY1997, of which $27.1 billion was for Supplemental
Security Income (SSI) activities.
The President’s Request. Major discretionary increases for related agency
programs included the following.
! An additional $75 million was proposed for the Corporation for Public
Broadcasting (CPB) advance funded for FY2000.
! $91 million more was included for SSI administration.
! An increase of $114 million was requested for the SSA Limitation on
Administrative Expenses for the Health Insurance/Supplemental Medical
Insurance (HI/SMI) trust funds for Medicare-related administrative activities
provided by the SSA.

CRS-19
Smaller increases were proposed the Armed Forces Retirement Home (AFRH),
the Corporation for National and Community Service (CNCS), the Institute of
Museum and Library Services (IMLS), the SSI Automation Investment Initiative, and
the SSI Continuing Disability Review.
A decrease of $50 million was proposed for SSI Reform activities.
The House Bill. The House bill differed from the FY1998 budget request in the
funding levels for several L-HHS-ED related agency programs.
! The CNCS would have received $228 million, an increase of $14 million over
the FY1997 amount, but less than the $260 million requested.
! The CPB would have received $300 million in advance funding for FY2000,
an increase of $50 million over the amount currently available for FY1999, but
less than the $325 million requested.
! The NLRB would have been level funded at $175 million, which is less than
the $186 million requested.
! The SSA Limitation on Administrative Expenses would have been funded at
$6.4 billion, an increase of $11 million from the FY1997 amount, but less than
the $6.5 billion requested.
! The SSA Office of Inspector General would have been funded at $52 million;
the FY1997 amount is $37 million, and $44 million was requested.
The Senate Bill. There were few major differences in funding provisions
between the Senate bill and the House bill for L-HHS-ED related agency programs.
Exceptions included $45 million more than the House amount for the SSA Limitation
on Administrative Expenses, and level funding the SSA Office of Inspector General.
Public Law. The FY1998 L-HHS-ED Appropriations Act, P.L. 105-78,
provides funding levels for related agency programs similar to those in the President’s
budget request with the following exceptions.
! The CPB receives an increase of $50 million instead of $75 million, advance
funded for FY2000.
! The NLRB is funded at the FY1997 level of $175 million instead of receiving
an increase of $11 million.
! The SSA Limitation on Administrative Expenses receives an increase of $2
million instead of the $114 million requested.

CRS-20
Major Funding Trends
The L-HHS-ED appropriations consist of mandatory and discretionary funds.
As discussed in Appendix B (page 30), the Appropriations Committees fully control
only the discretionary funds. Mandatory funding levels for programs included in the
annual appropriations bills are modified by changes in the authorizing legislation;
these changes are typically accomplished through the authorizing committees and
combined into large, omnibus reconciliation bills. Table 7 shows the trend in total
discretionary budget authority under the L-HHS-ED appropriations for the FY1993
to FY1997 period. During this time, the L-HHS-ED funds have increased by 17.6%
for the 5-year period. The 5-year increase is reduced to an estimated 9.5% after
adjustment for inflation by use of the Gross Domestic Product (GDP) deflator. When
compared to all federal discretionary budget authority, the L-HHS-ED portion
increases from 13.8% in FY1993 to 14.6% in FY1997. When compared to all federal
budget authority, both discretionary and nondiscretionary (mandatory), the
L-HHS-ED portion increases slightly, from 4.3% in FY1993 to 4.5% in FY1997.
Table 7. Labor, Health and Human Services, and Education
Discretionary Appropriations, FY1993 to FY1997 Trends
(budget authority in billions of dollars)
Type of funds
FY1993
FY1994
FY1995
FY1996
FY1997
L-HHS-ED discretionary
$63.4
$67.3
$67.8
$67.2
$74.7
L-HHS-ED discretionary in
$69.6
$72.2
$71.0
$68.9
$74.7
FY1997 dollars
L-HHS-ED % of all federal
discretionary funds a
13.8%
14.4%
13.3%
13.7%
14.8%
L-HHS-ED % of total
4.3%
4.4%
4.4%
4.3%
4.5%
federal budget authority
Total federal discretionary
$504.1
$501.5
$533.8
$502.5
$503.7
Total federal budget
$1,474.4
$1,529.3
$1,539.7
$1,581.1
$1,652.9
authority
GDP deflator
1.0263
1.0501
1.0762
1.0990
1.1264
Source: Budget of the U.S. Government Historical Tables, FY1998, tables 5.2 and 10.1 (for total
federal budget authority and GDP deflator); Budget of the U.S. Government, various years (for
discretionary funds, both total and for the L-HHS-ED appropriation subcommittee); and the FY1998
L-HHS-ED appropriations conference report, H.Rept. 105-390 (for the FY1997 L-HHS-ED
discretionary amount).
Discretionary funds include domestic, international, and defense.
a

CRS-21
Related Legislative Activity
Several pieces of legislation related to P.L. 105-78, the FY1998 L-HHS-ED
Appropriations Act, are noted below.
! The primary FY1997 L-HHS-ED appropriations measure was P.L. 104-208;
P.L. 105-1 made technical corrections to it, and P.L. 105-18 added
supplemental funding for FY1997.
! The FY1998 congressional budget resolution, H.Con.Res. 84, set out the
spending plan for appropriations and reconciliation legislation for the period
FY1998 through FY2002.
! Two reconciliation measures were enacted — P.L. 105-33 amended
entitlement provisions, and P.L. 105-34 amended tax code provisions.
! Five continuing resolutions provided temporary FY1998 funding prior to
enactment of P.L. 105-78.
P.L. 104-208. Most L-HHS-ED appropriations for FY1997 were provided by
P.L. 104-208, the Omnibus Consolidated Appropriations Act, 1997 (H.R. 3610,
conference report H.Rept. 104-863), which was signed into law by the President
September 30, 1996.
P.L. 105-1. Technical corrections were made to the FY1997 appropriations
through P.L. 105-1 (H.J.Res. 25), including clarification of designated funds for
specific activities in the DOL State Unemployment Insurance and Employment
Service Operations and for the Safe and Drug-Free Schools and Communities
program; this legislation was signed into law by the President February 3, 1997.
P.L. 105-18. 1997 Emergency Supplemental Appropriations Act for Recovery
from Natural Disasters, and for Overseas Peacekeeping Efforts, Including Those in
Bosnia. Supplemental FY1997 appropriations were enacted through P.L. 105-18
(H.R. 1871), which was signed into law by the President June 12, 1997. Along with
funding for domestic disaster relief, the bill included $15.0 million for high priority
biomedical research at DHHS and $101.1 million for the ESEA Title I Education of
the Disadvantaged program at ED.
P.L. 105-33. The Balanced Budget Act of 1997. Among other provisions, this
bill provides entitlement spending amendments for Medicare, Medicaid, children’s
health insurance, and SSI benefits. The measure also extends discretionary spending
limits through FY2002, and maintains separate limits for defense and nondefense
discretionary spending for FY1998 and FY1999, but creates a single limit for defense
and nondefense activities for FY2000 through FY2002. H.R. 2015 was signed into
law by the President August 5, 1997.
P.L. 105-34. The Taxpayer Relief Act of 1997. Among other provisions, this
bill provides child tax credits for children age 16 and under, and education tax benefits
including tax credits for some college expenses and tax deductions for the interest

CRS-22
paid on student loans. H.R. 2014 was signed into law by the President August 5,
1997.
P.L. 105-46. The first FY1998 continuing resolution, H.J.Res. 94, provided
appropriations on a temporary basis to fund ongoing L-HHS-ED projects and
activities, including the costs of direct loans and loan guarantees, for the period
October 1 through October 23, 1997, unless a regular FY1998 appropriations bill is
enacted sooner. It provided funding for programs at the “current rate,” under
FY1997 conditions and program authority. The resolution allowed decrease
4
d
funding levels only in instances where the Congress has agreed with the President’s
budget request for decreased funding. New initiatives were prohibited, and
extraneous provisions generally were excluded. Special provisions were made for
programs with high spend out rates that normally occur early in the fiscal year.
H.J.Res. 94 passed the House by a vote of 355 to 57 on September 29, and without
amendment passed the Senate by a vote of 99 to 0 on September 30, 1997.
H.J.Res. 94 was signed into law by the President September 30, 1997.
P.L. 105-64. A second FY1998 continuing resolution, H.J.Res. 97, extended
the provisions of P.L. 105-46 through November 7, 1997. H.J.Res. 97 passed the
House by voice vote on October 22, and without amendment passed the Senate by a
vote of 100 to 0 on October 23, 1997. H.J.Res. 97 was signed into law by the
President October 23, 1997.
P.L. 105-68. A third FY1998 continuing resolution, H.J.Res. 101, extended the
provisions of P.L. 105-46 through November 9, 1997. H.J.Res. 101 passed the
House by voice vote, and without amendment passed the Senate by unanimous
consent on November 7, 1997. H.J.Res. 101 was signed into law by the President
November 7, 1997.
P.L. 105-69. A fourth FY1998 continuing resolution, H.J.Res. 104, extended
the provisions of P.L. 105-46 through November 10, 1997. H.J.Res. 104 passed the
House by voice vote, and without amendment passed the Senate by unanimous
consent on November 9, 1997. H.J.Res. 104 was signed into law by the President
November 9, 1997.
P.L. 105-71. A fifth FY1998 continuing resolution, H.J.Res. 105, extended the
provisions of P.L. 105-46 through November 14, 1997. H.J.Res. 105 passed the
House by voice vote, and without amendment passed the Senate by unanimous
consent on November 10, 1997. H.J.Res. 105 was signed into law by the President
November 10, 1997.5
4 The term “current rate” as used in a continuing resolution refers to the amount of
money available for an activity during the previous fiscal year. This amount usually means
the appropriation for the previous year with adjustments for any supplemental appropriations,
rescissions, unobligated balances, and sometimes for advance funding provisions as well. As
a result, the current rate does not necessarily correspond to the FY1997 amounts stated in this
report.
5 In addition, a sixth continuing resolution, P.L. 105-84 (H.J.Res. 106), was passed
(continued...)

CRS-23
H.Con.Res. 84. The Congress agreed to its budget resolution for FY1998
(H.Con.Res. 84, H.Rept. 105-116) on June 6, 1997. The resolution aims for a
balanced budget by FY2002, and sets the aggregate discretionary spending limit for
the 13 regular appropriations bills (known as the 602(a) allocation), as well as the
budget reconciliation process for mandatory spending limits. The House and Senate
appropriations committees are each required to allocate the available funding totals
among the 13 subcommittees (the 602(b) allocations). The initial 602(b) allocation
for the FY1998 L-HHS-ED appropriations bill in the House was $79.7 billion, and the
Senate amount was $79.2 billion. These amounts can and do change as the various
appropriation bills progress toward enactment. The reconciliation provisions of the
budget resolution require two bills, one for tax reductions (H.R. 2014, PL. 105-34)
and the other for entitlement spending reductions (H.R. 2015, P.L. 105-33).
For Additional Reading
CRS Issue Briefs
CRS Issue Brief 95095. Abortion: Legislative Response, by Karen J. Lewis and
Thomas P. Carr.
CRS Issue Brief 97008. Congressional Budget Actions in 1997, by Robert Keith.
CRS Issue Brief 95063. Public Broadcasting: Issues in the 105 Congress
th
, by
Bernevia McCalip.
CRS Issue Brief 97023. Research and Development Funding: Fiscal Year 1998, by
Michael E. Davey.
CRS Issue Brief 97029. Supplemental Appropriations and Rescissions for FY1997,
by Stephen Daggett, Coordinator.
CRS Issue Brief 93034. Welfare Reform, by Vee Burke.
Other CRS Products
Overview and Background.
CRS Info Pack 515B. Budget for Fiscal Year 1998.
CRS Report 96-564. Appropriations for FY1997: Labor, Health and Human
Services, and Education, by Paul M. Irwin, Coordinator.
(...continued)
5
November 14, 1997, to provide FY1998 appropriations for measures not yet enacted, but
P.L. 105-78, the L-HHS-ED appropriations, had been signed into law by that time.

CRS-24
CRS Report 97-200. Appropriations for FY1998: an Overview, by J. Michael
Anderson.
CRS Report 97-947. The Appropriations Process and the Congressional Budget
Act, by James V. Saturno.
CRS Report 97-620. Budget Reconciliation in the 105 Congress: Achieving
th
a
Balanced Budget by 2002, by David Stuart Koitz and Dawn Nuschler.
CRS Report 97-684. The Congressional Appropriations Process: An Introduction,
by Sandy Streeter.
CRS Report 97-904. Fiscal Year 1998 Continuing Resolutions, by Sandy Streeter.
CRS Report 96-818. FY1997 Omnibus Appropriations Act, by Sandy Streeter,
Coordinator.
Labor.
CRS Report 97-150. The Consumer Price Index: a Brief Overview, by Brian W.
Cashell.
CRS Report 97-724. Ergonomics in the Workplace: Is it Time for an OSHA
Standard?, by Edward Rappaport.
CRS Report 97-536. Job Training: Legislation in the 105 Congress
th
, by Ann
Lordeman.
CRS Report 97-642. Methylene Chloride: First Test of Regulatory Reform?, by
Edward Rappaport.
CRS Report 94-801. Trade Adjustment Assistance: The Program for Workers, by
James R. Storey.
CRS Report 95-742. Unemployment Benefits: Legislative Issues in the 105th
Congress, by James R. Storey.
CRS Report 97-369. Unemployment Compensation: Proposals to Reduce the
Federal Role, by James R. Storey.
Health and Human Services.
CRS Report 95-1101. Abortion Procedures, by Irene E. Stith-Coleman.
CRS Report 96-780. Child Care for Low-income Families: Federal Programs and
Welfare Reform, by Karen Spar.
CRS Report 95-431. Head Start: Background and Funding, by Molly Forman and
Karen Spar.

CRS-25
CRS Report 97-757. Health Centers, by Sharon Kearney.
CRS Report 97-485. Health Professions Education and Training Programs in the
Public Health Service Act, by Celinda Franco.
CRS Report 97-510. Immunization Funding Under Section 317 of the Public Health
Service Act, by Melvina Ford.
CRS Report 97-350. Maternal and Child Health Block Grant, by Melvina Ford and
Sharon Kearney.
CRS Report 97-448. Means-Tested Programs in the FY1998 Budget: Historical
Perspective, by Mary Reintsma.
CRS Report 95-96. The National Institutes of Health: an Overview, by Pamela W.
Smith.
CRS Report 96-687. New Welfare Law: the Personal Responsibility and Work
Opportunity Reconciliation Act of 1996, by Vee Burke, et al.
CRS Report 97-473. Nurse Education Programs in the Public Health Service Act,
by Celinda Franco and Sharon Kearney.
CRS Report 95-917. Older Americans Act: Programs and Funding, by Carol
O’Shaughnessy and Alice D. Butler.
CRS Report 97-298. Refugee Admissions and Resettlement Issues, by Joyce C.
Vialet.
CRS Report 95-448. Ryan White CARE Act Reauthorization, by Sharon Kearney.
CRS Report 97-884. The Substance Abuse and Mental Health Services
Administration (SAMHSA), by Jennifer A. Neisner.
CRS Report 95-665. The Title X Family Planning Program, by Melvina Ford and
Sharon Kearney.
CRS Report 97-64. Tobacco-Related Activities and Programs of the Federal
Government, by Stephen Redhead.
CRS Report 97-664. The Tobacco Settlement: An Overview, by Stephen Redhead.

CRS-26
Education.
CRS Report 97-893. Education Block Grant in FY1998 Appropriations, by Paul M.
Irwin and Wayne C. Riddle.
CRS Report 95-502. Goals 2000: Educate America Act Implementation Status and
Issues, by James B. Stedman and Wayne C. Riddle.
CRS Report 97-535. Individuals with Disabilities Education Act Reauthorization
Legislation: an Overview, by Steven R. Aleman and Nancy Lee Jones.
CRS Report 96-178. Information Technology and Elementary and Secondary
Education: Current Status and Federal Support, by James B. Stedman and
Liane White.
CRS Report 97-774. National Tests: Administration Initiative, by Wayne Riddle.
CRS Report 97-101. Pell Grants: Background and Issues, by Margot A. Schenet.
CRS Report 97-972. Reading Instruction: New Federal Initiatives, by Wayne
Riddle.
CRS Report 97-760. The Safe and Drug-Free Schools and Communities Program,
by Jennifer A. Neisner.
CRS Report 95-1090. School Facilities Infrastructure: Background and Funding
in the 105 Congress
th
, by Susan Boren.
CRS Report 97-916. Student Loan Consolidation, by Margot A. Schenet.
CRS Report 97-633. Student Loans: Reconciliation Provisions, by Margot A.
Schenet.
CRS Report 97-650. Tax Benefits for Education in the Budget Reconciliation
Legislation, by Bob Lyke.
CRS Report 96-380. Title I, ESEA: Current Status and Issues, by Wayne Riddle.
Related Agencies.
CRS Report 96-716. The Corporation for National and Community Service:
Programs and Funding, by Ruth Ann Stewart.
CRS Report 95-206. Social Security’s Treatment under the Federal Budget: a
Summary, by David Koitz.
CRS Report 94-486. Supplemental Security Income (SSI): a Fact Sheet, by Carmen
Solomon-Fears.

CRS-27
Selected World Wide Web Sites
Information regarding the budget, supporting documents, and related
L-HHS-ED departments, agencies, and programs is available at the following web
sites.
House Committee on Appropriations
http://www.house.gov/appropriations
Senate Committee on Appropriations
http://www.senate.gov/~appropriations/
CRS Appropriations Products Guide
http://www.loc.gov/crs/products/apppage.html#la
Congressional Budget Office
http://www.cbo.gov
General Accounting Office
http://www.gao.gov
Office of Management & Budget
http://www.whitehouse.gov/WH/EOP/OMB/html/ombhome.html
Departments.
U.S. Department of Labor
http://www.dol.gov
U.S. Department of Health and Human Services
http://www.dhhs.gov
U.S. Department of Education
http://www.ed.gov
Related Agencies.6
Armed Forces Retirement Home
http://www.afrh.com
Corporation for National and Community Service
http://www.cns.gov
Corporation for Public Broadcasting
http://www.cpb.org
6 Not all of the L-HHS-ED related agencies have web sites.

CRS-28
Institute of Museum and Library Services
http://www.ims.fed.us
National Labor Relations Board
http://netsite.esa.doc.gov/nlrb/
Railroad Retirement Board
http://www.rrb.gov
Social Security Administration
http://www.ssa.gov
United States Institute of Peace
http://www.usip.org

CRS-29
Appendix A: Terminology
Appropriation
7 is budget authority that permits federal agencies to incur obligations
and to make payments out of the Treasury for specified purposes. Appropriations
represent the amounts that agencies may obligate during the period of time specified
in the law. Annual appropriations are provided in appropriations acts; most
permanent appropriations are provided in substantive law. Major types of
appropriations are regular, supplemental, and continuing.
Budget authority is legal authority to incur financial obligations that normally will
result in the outlay of federal government funds. Major types of budget authority are
appropriations, borrowing authority, and contract authority. Budget authority also
includes the subsidy cost of direct and guaranteed loans, but excludes the portion of
loans that is not subsidized.
Budget resolution is a concurrent resolution passed by both Houses of Congress, but
not requiring the signature of the President, setting forth the congressional budget for
each of five fiscal years. It includes various budget totals and functional allocations.
Discretionary spending is budget authority provided in annual appropriation acts,
other than appropriated entitlements.
Entitlement authority is a legal authority to make payments to any person or unit
of government that meets the eligibility criteria established by law; as such, it
represents a legally binding obligation on the part of the federal government.
Entitlement authority can be the result of either annual or permanent appropriation
acts.
Federal funds are all monies collected and spent by the federal government other
than trust funds. Federal funds include general, special, public enterprise, and
intragovernmental funds.
Mandatory (direct) spending includes: (a) budget authority provided in laws other
than appropriations; (b) entitlement authority; and (c) the Food Stamp program.
Rescission is the cancellation of budget authority previously enacted.
Supplemental appropriation is budget authority provided in an appropriations act
in addition to regular appropriations already provided.
Trust funds are funds collected and used for carrying out specific purposes and
programs according to the terms of a trust agreement or statute; such funds are not
available for general purposes.
7 These definitions are based on CRS Report 91-902, Manual on the Federal Budget
Process, by Allen Schick, et al.

CRS-30
Appendix B: Scope of the L-HHS-ED Bill
The total budget authority for programs in all federal departments and agencies
was estimated to be $1,652.9 billion in FY1997, as shown in Table B.1. Of this
amount, $817.9 billion was the total for the departments and related agencies
represented in the L-HHS-ED bill, or 49.5% of all federal budget authority.
Table B.1. Scope of the L-HHS-ED Bill
(FY1997 budget authority in billions)
Percent of
Amount
total federal
Budget Category
in billions
budget
Total Federal Budget
1,652.9
100.0%
U.S. Department of Labor
34.4
2.1%
U.S. Department of Health and Human Services
357.3
21.6%
U.S. Department of Education
29.4
1.8%
Social Security Administration
395.7
23.9%
Other Related Agencies
1.1
0.1%
L-HHS-ED Agency Total
817.9
49.5%
L-HHS-ED Bill, Total Current Year Funds
287.2
17.4%
L-HHS-ED Bill, Current Year Mandatory Funds
212.5
12.9%
L-HHS-ED Bill, Current Year Discretionary Funds
74.7
4.5%
Source: Budget of the U.S. Government Historical Tables, FY1998, table 5.2; and House
Appropriations Committee unofficial staff table of November 8, 1997.
The estimated L-HHS-ED appropriation was $287.2 billion for FY1997. Of this
amount, discretionary funds are estimated at $74.7 billion; mandatory funds constitute
the remainder. The L-HHS-ED appropriations subcommittees have effective control
only over the discretionary funds. These discretionary funds constitute approximately
4.5% of the aggregate budget authority for all federal departments and agencies, and
9.1% of the total budget authority for L-HHS-ED departments and agencies.8 What
accounts for the remaining L-HHS-ED funds?
8 The annual congressional budget resolution sets aggregate spending targets for budget
functions; House and Senate committees must initiate and report legislation that will achieve
these targets. Typically, appropriation committees develop proposals to meet discretionary
spending levels through appropriation bills. Likewise, authorizing committees develop
proposals to meet mandatory spending levels; these proposals are often reported by separate
authorizing committees and combined into a single, omnibus reconciliation bill.

CRS-31
First, some DOL, DHHS, and ED programs receive automatic funding without
congressional intervention in the annual appropriations process; these programs
receive funds from permanent appropriations and trust funds instead. This process
accounts for the difference between the L-HHS-ED bill total of $287.2 billion and the
agency total of $817.9 billion in FY1997. Social security benefits, unemployment
compensation, Medicare, railroad retirement, and student loans are the major
programs in this group.9
Second, mandatory programs account for the difference between the L-HHS-
ED total of $287.2 billion and the subtotal of $74.7 billion for discretionary funds in
FY1997. Although annual appropriations are made for these programs, the amounts
provided must be sufficient to cover program obligations and entitlements to
beneficiaries. For these programs, as well as the programs funded through trust funds
and permanent authorities, most changes in funding levels are made through
amendments to authorizing legislation rather than through appropriation bills. Federal
administrative costs for these programs typically are subject to annual discretionary
appropriations, however. These programs include Temporary Assistance for Needy
Families (TANF, the new welfare reform program), Supplemental Security Income,
Black Lung payments, and social services block grants, as well as general (non-
earmarked) fund support for Medicare and Medicaid.
Finally, a small number of DHHS programs are funded in other appropriations
bills. These programs include: the Food and Drug Administration, funded in the
Agriculture appropriations bill; Indian Health Service in the Interior bill; and the
Office of Consumer Affairs in the Veterans Affairs and Housing and Urban
Development bill. Under related agencies programs, the Corporation for National and
Community Service receives some funds from the L-HHS-ED bill for programs
authorized under the Domestic Volunteer Service Act of 1973, and other funds from
the Veterans Affairs and Housing and Urban Development bill for AmeriCorps and
other programs authorized by the National Community Service Act.
9 The Social Security Administration (SSA) was separated from DHHS and established
as an independent federal agency on March 31, 1995. Within the L-HHS-ED bill, however,
the SSA merely was transferred from DHHS to the status of “related agency.” The operation
of the social security trust funds is considered off-budget. Of the $817.9 billion total for
L-HHS-ED departments and agencies in FY1997, the SSA accounted for $395.6 billion, or
48.4% of the total. The SSA amount represents $36.3 billion for designated on-budget
activities and $359.3 billion for off-budget activities.

CRS-32
Appendix C: Detailed Appropriation Tables
Table C.1. Detailed Department of Labor Appropriations
($ in millions)
FY1997
FY1998
FY1998
FY1998
FY1998
Office or Major Program
final
request
House a
Senate b
enacted c
Employment and Training Administration (ETA)
—Training and Employment
4,508
5,085
4,934
5,046
5,026
Services, Job Training Partnership
Act (JTPA)
—Training and Employment
200
200
200
200
200
Services, School-to-Work
Opportunities
—Training and Employment
8
10
8
15
12
Services, Other
—Community Service
463
440
440
453
440
Employment for Older Americans
—Federal Unemployment Benefits
325
349
349
349
349
and Allowances
—State Unemployment Insurance,
2,341
2,630
2,504
2,487
2,521
Employment Service Operations
(SUI/ESO), Unemployment
Compensation d
—SUI/ESO, Employment Service
23
23
23
23
23
—SUI/ESO, Employment Service d
801
801
801
801
801
—SUI/ESO, One-Stop Career
150
150
150
150
150
Centers
—Advances to Unemployment
373
392
392
392
392
Trust Fund and Other Funds
—ETA Program Administration,
83
92
84
88
90
Federal Funds
—ETA Program Administration,
41
43
41
41
41
Trust Funds d
Pension and Welfare Benefits
77
84
82
82
82
Administration
Pension Benefit Guaranty
10
11
10
10
10
Corporation, Administration d
Pension Benefit Guaranty
125
137
137
137
137
Corporation, Services (non-add)

CRS-33
FY1997
FY1998
FY1998
FY1998
FY1998
Office or Major Program
final
request
House a
Senate b
enacted c
Employment Standards Administration (ESA)
—ESA Salaries and Expenses,
289
312
298
301
300
Federal Funds
—ESA Salaries and Expenses,
1
2
1
1
1
Trust Funds d
—Special Benefits
213
201
201
201
201
—Black Lung Disability Trust
1,008
1,007
1,007
1,007
1,007
Fund, Appropriation
Occupational Safety and Health
325
348
336
336
336
Administration (OSHA)
Mine Safety and Health
197
206
199
206
203
Administration (MSHA)
Bureau of Labor Statistics, Federal
309
327
328
320
328
Funds
Bureau of Labor Statistics, Trust
52
53
53
53
53
Funds d
Departmental Management,
188
196
194
195
195
Federal Funds
Departmental Management, Trust
186
186
186
186
186
Funds d
TOTAL, DEPARTMENT OF LABOR
Federal Funds
8,740
9,423
9,226
9,363
9,335
Trust Funds
3,432
3,726
3,597
3,580
3,613
Source: Amounts are based on the FY1998 L-HHS-ED appropriations conference report,
H.Rept. 105-390.
a Amounts reflect H.R. 2264, as passed by the House September 17, 1997.
b Amounts reflect S. 1061, as passed by the Senate September 11, 1997.
c Amounts are those enacted through P.L. 105-78 and related legislation; these amounts may be
modified through further legislation during FY1998.
d These activities are funded through trust funds.

CRS-34
Table C.2. Detailed Department of Health and Human Services
Appropriations
($ in millions)
FY1997
FY1998
FY1998
FY1998
FY1998
Office or Major Program
final
request
House a
Senate b
enacted c
Public Health Service (PHS)
—Health Resources and Services
293
130
307
220
294
Administration (HRSA), Health
Professions
—HRSA, Maternal and Child
681
681
685
681
683
Health Block Grant
—HRSA, Ryan White AIDS
996
1,036
1,168
1,077
1,150
Programs
—HRSA, Family Planning
198
203
194
208
203
(Title X)
—HRSA, Other
1,410
1,272
1,308
1,318
1,343
—Centers for Disease Control
2,302
2,316
2,396
2,368
2,379
(CDC)
—National Institutes of Health
12,741
13,078
13,505
13,693
13,648
(NIH)
—Substance Abuse and Mental
2,122
2,156
2,152
2,127
2,147
Health Services Administration
—Retirement Pay and Medical
179
191
191
191
191
Benefits, Commissioned Officers
—Agency for Health Care Policy
96
87
102
78
90
and Research
Health Care Financing Administration (HCFA)
—Medicaid Grants to States
103,047
99,331
99,331
99,403
99,403
—Payments to Health Care Trust
60,079
63,581
63,581
63,581
60,904
Funds
—Program Management d
1,734
1,775
1,679
1,719
1,743
Administration for Children and Families
—Family Support Payments to
7,565
660
660
660
660
States (welfare, child support)
—Job Opportunities and Basic
300
0
0
0
0
Skills (JOBS)
—Low Income Home Energy
2,000
1,000
1,000
1,200
1,100
Assistance Program (LIHEAP)

CRS-35
FY1997
FY1998
FY1998
FY1998
FY1998
Office or Major Program
final
request
House a
Senate b
enacted c
—Refugee and Entrant Assistance
412
392
415
392
415
—Child Care and Development
956
1,063
1,000
1,026
1,066
Block Grant (CCDBG)
—Social Services Block Grant
2,500
2,380
2,245
2,245
2,299
(Title XX)
—Children and Family Services
3,981
4,305
4,305
4,305
4,355
Program (CFSP), Head Start
—CFSP, Community Services
490
415
490
493
491
Block Grant (CSBG)
—CFSP, Community Services,
47
0
48
47
52
Other
—CFSP, Other
819
779
735
746
764
—Violent Crime Reduction
33
99
99
93
93
Programs
—Family Support and
240
255
255
255
255
Preservation
—Foster Care and Adoption
5,556
4,358
4,358
4,358
4,358
Assistance State Payments
Administration on Aging
830
838
811
894
865
Office of the Secretary, Federal
242
215
221
232
234
Funds
Office of the Secretary, Trust
9
9
9
9
9
Funds d
Public Health and Social Services
15
0
0
0
0
Emergency Fund
TOTAL, DEPARTMENT OF HEALTH AND HUMAN SERVICES
Federal Funds
210,127
200,821
201,564
201,890 199,441
Trust Funds
1,744
1,784
1,689
1,728
1,752
Source: Amounts are based on the FY1998 L-HHS-ED appropriations conference report,
H.Rept. 105-390.
a Amounts reflect H.R. 2264, as passed by the House September 17, 1997.
b Amounts reflect S. 1061, as passed by the Senate September 11, 1997.
c Amounts are those enacted through P.L. 105-78 and related legislation; these amounts may be
modified through further legislation during FY1998.
d These activities are funded through trust funds.

CRS-36
Table C.3. Detailed Department of Education Appropriations
($ in millions)
FY1998
FY1997
FY1998
FY1998
Senate b/
FY1998
Office or Major Program
final
request
House a
Gorton c enacted d
Education Block Grant:
0
0
0
0/
0
Title I funding stream
7,797
Education Block Grant:
0
0
0
0/
0
Non-Title I funding stream
5,638
Education Reform, Goals 2000:
491
620
387
530/
491
Educate America Act
0
Education Reform, School-to-
200
200
200
200/
200
Work Opportunities
0
Education Reform, Education
305
545
520
580/
584
Technology
0
Office of Elementary and Secondary Education
—Title I Education for the
7,295
7,541
7,691
7,296/
7,495
Disadvantaged, Grants to LEAs
0
—Education for the
505
536
513
511/
527
Disadvantaged, Other
10
—Impact Aid
730
658
796
795
808
—School Improvement,
310
360
310
310/
335
Professional Development
0
—School Improvement, Innovative
310
0
350
310/
350
Program Strategies
0
—School Improvement, Safe and
556
620
556
556/
556
Drug-Free Schools
0
—School Improvement, Magnet
95
95
105
95/
101
Schools
0
—School Improvement, Other
155
224
186
271/
196
0
Children’s Literacy/America Reads
0
260
260
260/
210
Challenge
0
Indian Education
61
63
63
63/
63
3
Bilingual and Immigrant Education
262
354
354
354/
354
0

CRS-37
FY1998
FY1997
FY1998
FY1998
Senate /
b
FY1998
Office or Major Program
final
request
House a
Gorton c enacted d
Office of Special Education and Rehabilitative Services
—Special Education, State Grants
3,786
3,948
4,164
4,680
4,532
—Special Education, Special
250
262
265
278
279
Purpose Funds
—Rehabilitation Services and
2,509
2,583
2,589
2,591/
2,591
Disability Research
1,296
Special Institutions for Persons
129
129
133
133
133
With Disabilities
Office of Vocational and Adult Education
Vocational Education
1,132
1,172
1,157
1,132/
1,147
388
Adult Education
355
394
350
356
361
Student Financial Assistance
—Pell Grants
5,919
7,635
7,438
6,910
7,345
—Supplemental Educational
583
583
583
634
614
Opportunity Grants
—Federal Work-Study
830
857
860
830
830
—Federal Perkins Loans, Capital
158
158
135
158
135
Contributions
—Federal Perkins Loans, Loan
20
30
30
24
30
Cancellations
—State Student Incentive Grants
50
0
0
35
25
Federal Family Education Loans,
46
48
48
46
46
Administration
Higher Education, Aid for
195
202
212
196
211
Institutional Development
Higher Education, Federal TRIO
500
525
532
525
530
Programs
Higher Education, Other
184
308
166
209
206
Howard University
196
196
210
198
210
College Housing and Academic
1
1
1
1
1
Facilities Loans, Administration

CRS-38
FY1998
FY1997
FY1998
FY1998
Senate /
b
FY1998
Office or Major Program
final
request
House a
Gorton c enacted d
Office of Educational Research and Improvement
Research and Statistics
206
239
243
211
223
Other Research and Improvement
87
152
180
112/
208
39
Institute of Museum and Library
136
136
142
146
146
Services
Department Management
411
435
415
430
433
TOTAL, DEPARTMENT OF EDUCATION
Federal Funds
28,958
32,069
32,144
31,967
32,506
Source: Amounts are based on the FY1998 L-HHS-ED appropriations conference report,
H.Rept. 105-390, with the exception that the Gorton amounts are based on the ED Budget Service
table of September 16, 1997 at Noon.
a Amounts reflect H.R. 2264, as passed by the House September 17, 1997.
b Amounts reflect S. 1061, as passed by the Senate September 11, 1997.
c Amounts are those enacted through P.L. 105-78 and related legislation; these amounts may be
modified through further legislation during FY1998.
d Amounts in italics, if present, represent the revised funding amounts after the redirection of funds
into the education block grant under the Gorton floor amendment, according to the preliminary
determination shown in the ED Budget Service table dated “September 16, 1997 at Noon.”
If no italics are shown, amount would not change under the Gorton proposal.

CRS-39
Table C.4. Detailed Related Agencies Appropriations
($ in millions)
FY1997
FY1998
FY1998
FY1998
FY1998
Office or Major Program
final
request
House a
Senate b
enacted c
Armed Services Retirement Home
56
80
70
65
69
Corporation for National and Community Service: Domestic Volunteer Service Act
Programs d
—Volunteers in Service to America
41
54
41
45
65
(VISTA)
—National Senior Volunteer Corps
145
176
158
159
163
—Program Administration
28
30
28
28
28
Corporation for Public
250
325
300
300
300
Broadcasting (CPB), 2-Year
Advance
Federal Mediation and Conciliation
33
33
33
33
33
Service
Federal Mine Safety and Health
6
6
6
6
6
Review Committee
National Commission on Libraries
1
1
1
1
1
and Information Science
National Council on Disability
2
2
2
2
2
National Education Goals Panel
1
2
2
2
2
National Commission on Cost of
1
0
0
0
0
Higher Education
National Labor Relations Board
175
186
175
175
175
National Mediation Board
8
8
8
9
9
Occupational Safety and Health
8
8
8
8
8
Review Commission
Physician Payment Review
3
4
3
4
4
Commission e
Prospective Payment Assessment
3
4
3
4
4
Commission e
Railroad Retirement Board, Dual
214
194
194
194
194
Benefits
Railroad Retirement Board, Trust
93
94
91
93
93
Funds e

CRS-40
FY1997
FY1998
FY1998
FY1998
FY1998
Office or Major Program
final
request
House a
Senate b
enacted c
Social Security Administration (SSA)
—SSA, Special Benefits for
620
586
586
586
586
Disabled Coal Minors
—SSA, Supplemental Security
29,237
25,060
25,060
25,098
25,050
Income (SSI)
—SSA, Federal Funds, Other
31
20
20
20
20
—SSA, Limitation on
6,407
6,521
6,418
6,463
6,409
Administrative Expenses e
—Office of Inspector General
6
10
10
6
10
—Office of Inspector General,
31
34
42
31
38
Trust Funds e
United States Institute for Peace
11
11
11
11
11
TOTAL, RELATED AGENCIES
Federal Funds
30,874
26,794
26,715
26,748
26,732
Trust Funds
6,537
6,657
6,558
6,594
6,547
Source: Amounts are based on the FY1998 L-HHS-ED appropriations conference report,
H.Rept. 105-390.
a Amounts reflect H.R. 2264, as passed by the House September 17, 1997.
b Amounts reflect S. 1061, as passed by the Senate September 11, 1997.
c Amounts are those enacted through P.L. 105-78 and related legislation; these amounts may be
modified through further legislation during FY1998.
d Funds are provided for Domestic Volunteer Service Act programs only; the Corporation for
National and Community Service receives other funds for AmeriCorps Grants and related
programs from the Veterans Affairs and Housing and Urban Development appropriations bill.
e These activities are funded through trust funds.