APPROPRIATIONS FOR FY1999: LABOR, HEALTH AND HUMAN SERVICES, AND EDUCATION

APPROPRIATIONS FOR FY1999: LABOR, HEALTH AND HUMAN SERVICES, AND EDUCATION

98-203 EPW
CRS Report for Congress
Received through the CRS Web
Appropriations for FY1999: Labor, Health and
Human Services, and Education
Updated November 19, 1998
Paul M. Irwin
Specialist in Social Legislation
Education and Public Welfare Division
Congressional Research Service ˜ The Library of Congress

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.
This report is a guide to one of the 13 regular appropriations bills that Congress considers
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 FY1999: 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, 1999. This Act provides nearly all discretionary
funds for three federal departments and related agencies. The report tracks issues
related to FY1999 L-HHS-ED funding, with particular attention to discretionary
programs. This report does not track issues related to mandatory L-HHS-ED
programs nor the authorizing legislation necessary prior to funding some of the
President’s FY1999 initiatives.
On February 2, 1998, the President submitted the Administration’s FY1999
budget to the Congress. The request was for $84.5 billion in discretionary funds for
L-HHS-ED programs, $4.1 billion or 5.1% more than the FY1998 amount of $80.4
billion, enacted primarily through P.L. 105-78. On July 20, 1998, the House
Appropriations Committee reported H.R. 4274, a bill to provide FY1999 L-HHS-ED
discretionary appropriations of $81.9 billion. On September 8, 1998, the Senate
Appropriations Committee reported S. 2440, a bill to provide $82.3 billion in FY1999
L-HHS-ED discretionary appropriations. As enacted October 21, 1998, P.L. 105-
277 (H.R. 4328) provides $83.3 billion in FY1999 discretionary funds for L-HHS-
ED, 3.6% more than the FY1998 amount. Prior to final enactment, six continuing
resolutions provided temporary FY1999 funding beyond October 1, 1998.
U.S. Department of Labor (DOL): Major increases were requested by the
Administration for the Job Training Partnership Act (JTPA) programs and State
Operations of Unemployment Compensation programs. Discretionary DOL funding
in FY1998 was $10.7 billion; the FY1999 enacted amount is $10.9 billion.
U.S. Department of Health and Human Services (DHHS): The
Administration requested major increases for the National Institutes of Health (NIH),
the Ryan White AIDS programs, the Substance Abuse and Mental Health Services
Administration (SAMHSA), Child Care and Development Block Grant (CCDBG),
and the Head Start program. Discretionary DHHS funding in FY1998 was $32.8
billion; the FY1999 enacted amount is $36.2 billion.
U.S. Department of Education (ED): Major increases were requested by the
Administration for Title I Grants to Local Educational Agencies, Education
Technology, an Educational Opportunity Zones initiative, Pell Grants, a College-
Schools Partnerships initiative, and the Child Care initiative for 21 Centur
st
y
Community Learning Centers. Discretionary ED funding in FY1998 was $29.4
billion; the FY1999 enacted amount is $28.4 billion.
Related Agencies: The Administration requested major increases for the
Corporation for Public Broadcasting (CPB) and for discretionary activities under the
Supplemental Security Income (SSI) program. Discretionary funding for related
agencies in FY1998 was $7.7 billion; the FY1999 enacted amount is $7.8 billion.

Key Policy Staff
CRS
Area of Expertise
Name
Division Telephone
Coordinator
Paul M. Irwin
EPW
7-7573
U.S. Department of Labor

Job training and employment services
Ann Lordeman
EPW
7-2323
Labor standards enforcement
William G. Whittaker
E
7-7759
Labor market information
Linda Levine
E
7-7756
Occupational safety and health
Edward B. Rappaport
E
7-7740
School-to-Work Opportunities Act
Richard N. Apling
EPW
7-7352
Trade Adjustment Assistance
James R. Storey
EPW
7-7308
Unemployment compensation
James R. Storey
EPW
7-7308
Welfare-to-Work
Christine Devere
EPW
7-2587
Welfare-to-Work
Gene Falk
EPW
7-7344
U.S. Department of Health and Human Services
Abortion, legal issues
Karen J. Lewis
A
7-6190
Abortion, legal issues
Kenneth R. Thomas
A
7-5006
Abortion procedures
Irene E. Stith-Coleman STM
7-7080
AIDS, general
Judith A. Johnson
STM
7-7077
AIDS, Ryan White programs
Sharon Kearney
EPW
7-7367
Cancer research
Judith A. Johnson
STM
7-7077
Child care, child welfare
Karen Spar
EPW
7-7319
Family Planning
Sharon Kearney
EPW
7-7367
Head Start
Karen Spar
EPW
7-7319
Health professions education and training
Celinda Franco
EPW
7-7360
Immigration and refugee policy
Joyce C. Vialet
EPW
7-7305
Immunization
Pamela W. Smith
STM
7-7048
Immunization
Sharon Kearney
EPW
7-7367
Low-Income Home Energy Assistance Program Melinda Gish
EPW
7-4618
Maternal and Child Health Block Grant
Sharon Kearney
EPW
7-7367
Medicare
Jennifer O’Sullivan
EPW
7-7359
Medicare
Richard Price
EPW
7-7370
Needle exchange
C. Stephen Redhead
STM
7-2261
NIH, health research policy
Pamela W. Smith
STM
7-7048
NIH, health research policy
Irene E. Stith-Coleman STM
7-7080
NIH, health research policy
Judith A. Johnson
STM
7-7077
Older Americans Act
Carol O’Shaughnessy
EPW
7-7329
Social Services Block Grant
Karen Spar
EPW
7-7319
Substance abuse and mental health
Cecilia Echeverría
EPW
7-1962
Tobacco settlement
C. Stephen Redhead
STM
7-2261
Welfare reform
Vee Burke
EPW
7-7304
Welfare reform
Gene Falk
EPW
7-7344
U.S. Department of Education

Adult education and literacy
Paul M. Irwin
EPW
7-7573
Bilingual education
Patricia Osorio-O’Dey
EPW
7-2392
Education of the Disadvantaged, Title I
Wayne C. Riddle
EPW
7-7382

CRS
Area of Expertise
Name
Division Telephone
Education Technology
James B. Stedman
EPW
7-7356
National education goals, Goals 2000
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
Cecilia Echeverría
EPW
7-1962
School choice
Wayne C. Riddle
EPW
7-7382
School-to-Work Opportunities Act
Richard N. Apling
EPW
7-7352
Special education, IDEA
Richard N. Apling
EPW
7-7352
Special education, IDEA
Nancy Lee Jones
A
7-6976
Student aid, student loans
Margot A. Schenet
EPW
7-7378
Teacher recruitment, preparation, and training
James B. Stedman
EPW
7-7356
Related Agencies
Corporation for National and Community Service Ann Lordeman
EPW
7-2323
Corporation for Public Broadcasting
Bernevia McCalip
E
7-7781
Library services
Wayne C. Riddle
EPW
7-7382
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
Status . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Perspective . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
302(b) Allocations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Funding Levels . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
House Legislative Action . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
Senate Legislative Action . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Public Law Summary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 7
Veto Threat . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Major Funding Trends . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Line Item Veto . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 10
For Additional Reading, Background . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
CRS Issue Briefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
Other CRS Products . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 11
Selected World Wide Web Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . 12
U.S. Department of Labor . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
The President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 13
The House Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
The Senate Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
Public Law . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 14
For Additional Reading . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
CRS Issue Briefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
CRS Reports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 15
Selected World Wide Web Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
Detailed Appropriation Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 16
U.S. Department of Health and Human Services . . . . . . . . . . . . . . . . . . . . . . . 19
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
The President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
The House Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
The Senate Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 20
Public Law . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 21
Abortion: A Perennial L-HHS-ED Issue . . . . . . . . . . . . . . . . . . . . . 21
Tobacco Legislation . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
For Additional Reading . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
CRS Issue Briefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
CRS Reports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
Selected World Wide Web Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
Detailed Appropriation Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
U.S. Department of Education . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27
The President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 27

The House Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
The Senate Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 29
Public Law . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
For Additional Reading . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
CRS Issue Briefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 30
CRS Reports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 31
Selected World Wide Web Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32
Detailed Appropriation Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 32
Related Agencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36
Key Issues . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36
The President’s Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36
The House Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37
The Senate Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37
Public Law . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37
For Additional Reading . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37
CRS Issue Briefs . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37
CRS Reports . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38
Selected World Wide Web Sites . . . . . . . . . . . . . . . . . . . . . . . . . . . . 38
Detailed Appropriation Table . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39
Related Legislative Activity . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 42
Appendix A: Terminology . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 45
Appendix B: Scope of the L-HHS-ED Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . 46
List of Tables
Table 1. Legislative Status of the FY1999 Appropriations for Labor,
Health and Human Services, and Education, P.L. 105-277 . . . . . . . . . . . . . 1
Table 2. 302(b) Allocations for L-HHS-ED Programs . . . . . . . . . . . . . . . . . . . . 4
Table 3. Summary of L-HHS-ED Appropriations . . . . . . . . . . . . . . . . . . . . . . . 4
Table 4. L-HHS-ED Discretionary Appropriations, Trends From FY1994 . . . 10
Table 5. Department of Labor Discretionary Appropriations . . . . . . . . . . . . . . 13
Table 6. Detailed Department of Labor Appropriations . . . . . . . . . . . . . . . . . . 17
Table 7. Department of Health and Human Services Discretionary
Appropriations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 19
Table 8. Detailed Department of Health and Human Services Appropriations . 25
Table 9. Department of Education Discretionary Appropriations . . . . . . . . . . . 27
Table 10. Detailed Department of Education Appropriations . . . . . . . . . . . . . . 33
Table 11. Related Agencies Discretionary Appropriations . . . . . . . . . . . . . . . . 36
Table 12. Detailed Related Agencies Appropriations . . . . . . . . . . . . . . . . . . . . 40
Table B.1. Scope of the L-HHS-ED Bill . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 46
List of Figures
Figure 1. Federal and L-HHS-ED
Discretionary Appropriations, FY1998 . . . . . . . . . . . . . . . . . . . . . . . . . . . . 5
Figure 2. L-HHS-ED Discretionary Appropriations
by Department, FY1998 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6

Appropriations for FY1999: Labor, Health and
Human Services, and Education
Most Recent Developments
The Departments of Labor, Health and Human Services, and Education, and
Related Agencies (L-HHS-ED) Appropriations Act, 1999, was included in the
Omnibus Consolidated and Emergency Supplemental Appropriations Act, 1999, P.L.
105-277 (H.R. 4328), which the President signed into law October 21, 1998. Prior
to the enactment of P.L. 105-277, a series of six continuing resolutions provided
interim FY1999 funding from October 1 to October 21, 1998.
Neither the House nor the Senate approved separate L-HHS-ED bills for
FY1999. The House bill, H.R. 4274, was reported by the House Appropriations
Committee on July 20, 1998 (H.Rept. 105-635). The Senate bill, S. 2440, was
reported September 8, 1998 (S.Rept. 105-300). The President submitted the FY1999
budget to the Congress on February 2, 1998.
This update of the report includes the details from P.L. 105-277 on funding
levels and other issues associated with the L-HHS-ED appropriations for FY1999;
it is a summary of the final legislative actions by the 105 Congress on thes
th
e
appropriations.
Status
Table 1 tracks the key legislative steps necessary to enact appropriations for the
Departments of Labor, Health and Human Services, and Education, and Related
Agencies (L-HHS-ED) for FY1999.
Table 1. Legislative Status of the FY1999 Appropriations for Labor,
Health and Human Services, and Education, P.L. 105-277
Subcommittee
Conference Report
Markup
Approval
House
House
Senate
Senate Conference
Public
House Senate Report
Passage
Report Passage
Report
House
Senate
Law
H.R. 4274
S. 2440
H.R. 4328
H.R. 4328 H.R. 4328 P.L. 105-
7/20/98
a, b
9/8/98
b
10/19/98
10/20/98
10/21/98
6/23/98 9/1/98
—
—
277
H.Rept.
S.Rept.
H.Rept.
333 y -
65 y -
10/21/98 e
105-635
105-300
105-825
95 n c
29 n d
a The House passed two resolutions to govern the floor consideration of H.R. 4274. The first
resolution, H.Res. 564 (H.Rept. 105-762), was passed on October 2, 1998, by a vote of 216-
200 (roll call #476): see Congressional Record, daily edition, October 2, 1998, p. H9280-

CRS-2
9282, H9314. The second resolution, H.Res. 584, was passed on October 8, by a vote of 214-
209, 1 voting present (roll call #502); see Congressional Record, daily edition, October 8,
1998, p. H10126-10149.
b A continuing resolution, P.L. 105-240, as amended, continued FY1999 funding for most Labor,
Health and Human Services, and Education projects and activities on a temporary basis from
October 1, 1998, through October 21, 1998; the resolution deemed that the House and Senate
reported versions had passed the House and Senate respectively as of October 1, 1998, for
purposes of the continuing resolution.
c For text of the H.R. 4328 conference report (H.Rept. 105-825), see Congressional Record, daily
edition, October 19, 1998, p. H11044-11545.
d For House approval of the H.R. 4328 conference report, see Congressional Record, daily edition,
October 20, 1998, p. H11592-11669; roll call #538 (333-95).
e For Senate approval of the H.R. 4328 conference report, see Congressional Record, daily edition,
October 21, 1998, p. S12741-12810; roll call #314 (65-29).
House Committee. On February 2, 1998, the Administration submitted its
FY1999 budget proposal to the Congress. The House Subcommittee on Labor,
Health and Human Services, and Education Appropriations began hearings on
FY1999 appropriations on January 28, 1998, and continued them through May 20.
The House Subcommittee marked up its FY1999 bill on June 23, 1999. The House
Appropriations Committee marked up the bill, H.R. 4274, on July 14 and reported
the bill July 20, 1998 (H.Rept. 105-635). On October 2, 1998, the House approved
H.Res. 564 (H.Rept. 105-762), a rule to govern the floor debate on H.R. 4274, but
took no further action. On October 8, the House approved H.Res. 584, a rule for the
further consideration of H.R. 4274, agreed on a parental notification amendment to
the Title X Family Planning program, but took no further action.
Senate Committee. The Senate Subcommittee on Labor, Health and Human
Services, and Education Appropriations began hearings on March 5, 1998, and
continued them through June 2. The Senate Subcommittee marked its FY 1999 bill
on September 1, 1998. The Senate Appropriations Committee marked up the bill
September 3, and the bill, S. 2440, was reported September 8, 1998 (S.Rept. 105-
300). The full Senate did not consider S. 2440 as separate legislation.
Conference Committee; Public Law. On October 19, 1998, House-Senate
conferees agreed to a conference report (H.Rept. 105-825) on an omnibus bill for all
remaining FY1999 appropriations not yet enacted, including L-HHS-ED
appropriations, along with other legislation. The House agreed to the conference
report October 20, and the Senate October 21. H.R. 4328, the Omnibus
Consolidated and Emergency Supplemental Appropriations Act, 1999, P.L. 105-277,
was signed into law by the President October 21, 1999.
Continuing Resolutions. Since the FY1999 began October 1, 1998, six
temporary funding measures were enacted to enable most L-HHS-ED projects and
activities to keep going until the enactment of P.L. 105-277 on October 21, 1998.
For details on continuing resolutions and other legislation related to L-HHS-ED
programs, please see Related Legislation (page 42).

CRS-3
DATA NOTE: In this report, unless otherwise noted, budget data for FY1998
and all stages of the FY1999 appropriation are based on the H.R. 4328 conference
report, H.Rept. 105-825, as printed in the Congressional Record, daily edition,
October 19, 1998, except that agency totals for discretionary funds are based on the
House Appropriations Committee unofficial staff table of October 26, 1998. Data
represent net funding amounts for specific programs and activities, taking into
account current, forward, and advance funding, as well as proposed rescissions. In
addition, agency discretionary totals are adjusted for budgetary scorekeeping. Except
where noted, budget data 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 themselves.
Perspective
This report describes the President’s proposal for FY1999 appropriations for
L-HHS-ED programs and compares it with the FY1998 amounts. It tracks legislative
action and congressional issues related to the FY1999 L-HHS-ED appropriations
request, with particular attention paid to discretionary programs. The report
summarizes activities related to the annual budget process, such as the congressional
budget resolution, continuing resolutions, and supplemental appropriations (beginning
on page 42). However, the report does not track specific funding issues related to
mandatory L-HHS-ED programs, nor the authorizing legislation necessary prior to
funding some of the President’s initiatives. For a glossary of budget terms, please see
Appendix A: Terminology (page 45). For a discussion of the L-HHS-ED bill
jurisdiction, please see Appendix B: Scope of the L-HHS-ED Bill (page 46).
302(b) Allocations
The annual congressional budget resolution sets the aggregate discretionary
spending limit for the annual appropriations total, known as the 302(a) allocation.
From this allocation the House and Senate appropriations committees allocate funds
among its subcommittees for each of the 13 appropriations bills, known as the 302(b)
allocations. The 302(b) allocations can and do get adjusted during the year as the
various appropriation bills progress toward final enactment. The most recent 302(b)
allocation for the FY1999 L-HHS-ED appropriations bill in the House is $81.9 billion
in budget authority; in the Senate, the allocation for budget authority is $82.3 billion,
as shown in Table 2. The comparable 302(b) allocation for FY1998 is the enacted
appropriation of $80.4 billion; the comparable FY1999 amount enacted under P.L.
105-277 is $83.3 billion.

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Table 2. 302(b) Allocations for L-HHS-ED Programs
(budget authority in billions of dollars)
FY1998
FY1999
FY1999
final
request
FY1999
FY1999
enacted
comparable
comparable
House
Senate
comparable
$80.4
$84.5
$81.9
$82.3
$83.3
Source: H.Rept. 105-722, September 16, 1998, for the FY1999 House amount; S.Rept. 105-191,
May 14, 1998, for the FY1999 Senate amount; and the unofficial House Appropriations Committee
staff table of October 26, 1998, for the comparable amounts for the FY1998 final, FY1999 request,
and the FY1999 enacted.
Table 3 shows the L-HHS-ED appropriations for FY1998 and FY1999 to date,
including both mandatory and discretionary funds within the L-HHS-ED bill. For
FY1999, the request is $84.5 billion in discretionary funds, $4.1 billion or 5.1% more
than the FY1998 amount of $80.4 billion. The House bill would provide $81.9 billion
for FY1999, the Senate bill $82.7 billion. The total discretionary funds enacted under
P.L. 105-277 for L-HHS-ED programs in FY1999 is $83.3 billion. Although the
table shows mandatory funding that is regularly included in the bill, the appropriations
committees generally have effective control only over the discretionary funds.
Table 3. Summary of L-HHS-ED Appropriations
(budget authority in billions of dollars)
FY1999
FY1999
Type of
FY1998
FY1999
House
Senate
FY1999
appropriation a
final
request
Committee Committee
enacted b
Discretionary, current
$80.4
$84.5
$81.9
$82.7
$83.3
year
Mandatory, current
$191.0
$208.8
$208.9
$208.9
$208.6
year
Total, current year
$271.4
$293.3
$290.8
$291.6
$292.0
Source: House Appropriations Committee unofficial staff table of October 26, 1998.
a Appropriations are defined in Appendix A. Data are given only for programs included in the
L-HHS-ED appropriation bill.
b The FY1999 enacted amounts are based on P.L. 105-277. FY1999 discretionary amounts may be
modified through further legislation during FY1999; FY1999 mandatory amounts are estimates that
are subject to modification through changes in program service levels, as well as further legislation
during FY1999.
Key Issues
The L-HHS-ED bill typically is one of the more controversial of the 13 regular
appropriation bills, not only because of the size of its funding total and the scope of
its programs, but also because of the continuing importance of various related non-
funding issues, such as restrictions on the use of federal funds for abortion.

CRS-5
Funding Levels. The L-HHS-ED bill provides most of the discretionary funds
for three federal departments and several related agencies including the Social
Security Administration (SSA). Of the 13 annual appropriation bills, the L-HHS-ED
bill is the largest single source of discretionary funds for all domestic programs; the
Defense bill is the largest source of discretionary funds for all federal programs. For
FY1998, the L-HHS-ED bill accounted for $80.4 billion (14.5%) and the Defense bill
accounted for $268.6 billion (48.4%) of the estimated $555.4 billion total for all
federal discretionary budget authority. Figure 1 shows the L-HHS-ED share of all
federal discretionary appropriations in FY1998.
Figure 1. Federal and L-HHS-ED
Discretionary Appropriations, FY1998
(in billions of dollars)
Source: Budget of the United States Government Fiscal Year 1999, Table S-8.
Once the aggregate size of the L-HHS-ED bill is agreed to, the distribution of
these discretionary funds among departments and programs within the bill becomes
an issue. Figure 2 shows the discretionary share for each department within the
L-HHS-ED total for FY1998.

CRS-6
Figure 2. L-HHS-ED Discretionary Appropriations
by Department, FY1998
(in billions of dollars)
Source: Percentage shares are based on H.Rept. 105-635.
House Legislative Action. The House Appropriations Committee marked up
the bill on July 14, and reported H.R. 4274 on July 20, 1998 (H.Rept. 105-635).
Highlights of the bill as reported include the following provisions.
! The bill would provide zero funding for the Low-Income Home Energy
Assistance Program (LIHEAP) and the summer jobs for youth program during
the current year, and would reject major funding increases requested for
education.
! The bill would restrict the reimbursement of Viagra for state Medicaid
programs.
! Title X Family Planning program would require local projects to notify parents
or obtain consent before giving contraceptive drugs or devices to minors.
! The bill would extend to the Medicare trust fund the so-called Hyde
amendment restricting funding for certain abortions.
! It would extend or continue certain restrictions included in previous
appropriation acts relating to: the use of human embryos in medical research;
distribution of hypodermic needles and syringes for injection of illegal drugs;
and funding for the monitoring or oversight of any future Teamsters election.
! Title VI of the House bill would authorize the Child Protection Act of 1998
requiring schools and public libraries receiving federal funds for computers to
restrict minors from gaining access to obscene materials on the Internet.
! Title VII of the House bill would permit an obstetrician-gynecologist to be
designated as the primary care provider under certain group health plans or
health insurance issuers; it would also require the Surgeon General’s cigarette
warning labels to include specific warnings concerning the higher incidence of
smoking-related deaths among African Americans.
On October 2, 1998, the House approved H.Res. 564, a rule to govern the floor
debate on H.R. 4274 and making in order the amendments printed in the report on the

CRS-7
rule (H.Rept. 105-762), including a Manager’s amendment and two amendments
related to parental notification on the Title X Family Planning program. However, the
House took no further action on H.R. 4274. On October 8, the House approved
H.Res. 584, a rule for the further consideration of H.R. 4274, which modified the
original rule by making in order the two Title X amendments before the consideration
of any other amendments. The House discussed the first of the two amendments,
modified it (roll call #504), subsequently agreed to the amendment as modified, and
took no further action on H.R. 4274. As amended, the amendment would modify the
Title X family parental notification requirements such that local service providers must
(1) notify parents or guardians of minors prior to providing contraceptive drugs or
devices, and (2) counsel all minors seeking services about abstinence and ensure all
counselors are adequately trained.1
Senate Legislative Action. The Senate Appropriations Committee marked up
the bill on September 3, and reported S. 2440 on September 8, 1998 (S.Rept. 105-
300). Highlights of the bill as reported include the following provisions.
! The bill would continue funding for two programs that would not be funded
under the House proposal: LIHEAP and the summer jobs for youth program,
and the aggregate total that would be provided for education would be nearly
as much as the amount requested by the Administration.
! It would extend or continue certain restrictions included in previous
appropriation acts relating to: the use of human embryos in medical research;
the distribution of hypodermic needles and syringes for injection of illegal
drugs; and the prohibition on federal funding of abortions.
! FY1998 language prohibiting the promulgation of ergonomic rules would be
eliminated.
! Title VI of the Senate bill would amend the Public Health Service Act to
authorize a National Center for Complementary and Alternative Medicine to
conduct and support basic and applied research at NIH.
Public Law Summary. As was shown in Table 3, the FY1999 L-HHS-ED
Appropriations Act under P.L. 105-277 provides $83.3 billion in discretionary funds,
$1.2 billion less than the budget request but $2.9 billion more than the comparable
FY1998 amount. The FY1999 appropriation either continued or increased funding
for most established major programs, as will be seen below in the discussion of
individual departments and agencies.
Funding for New Initiatives. Funding was provided for most, but not all, new
initiatives proposed in the President’s FY1999 budget, as follows.
! For the DOL Youth Opportunity Grants program, $250 million remains
available for FY1999, but no new funds are provided for the $250 million
request for FY2000.
! No funds were provided for the ED Education Opportunity Zones Initiative;
$200 million was requested.
1 For additional information, see CRS Report No. 97-1048, The Title X Family Planning
Program, by Sharon Kearney.

CRS-8
! An ED Class Size Reduction Initiative of $1.1 billion in mandatory funds was
requested; $1.2 billion in discretionary funds is provided.
! A Children’s Literacy Initiative at ED was funded in FY1998 at $210 million.
When required authorization was not enacted in time, those funds were
transferred to special education. However, P.L. 105-277 authorizes a new
Reading Excellence Act, and funds it at $260 million for FY1999-FY2000.
! An ED College-School Partnerships Initiative was proposed at $140 million;
the newly authorized Gaining Early Awareness and Readiness for
Undergraduate Programs (GEAR UP) is funded at $120 million.
! A newly authorized ED Teacher Quality and Recruitment program is funded
at $75 million; $67 million was requested for a program proposed by the
Administration in this area.
! $50 million was requested for the Corporation for Public Broadcasting (CPB)
Digital Transition Fund; $15 million was provided.
General Provisions. Consideration of the L-HHS-ED Appropriation Act, 1999,
under P.L. 105-277, included discussion of whether to continue or extend several of
the general provisions related to programs funded under the Act, as follows.
! Service providers under the Title X Family Planning program must provide
counseling to minors, and specifically are not exempt from any state law that
requires reporting of child abuse, child molestation, sexual abuse, rape, or
incest. However, House language is eliminated from final passage that would
have required parental notification or consent before providing contraceptive
drugs or devices to minors. (§211 and 219)
! The DHHS final rule promulgated April 2, 1998, entitled "Organ
Procurement and Transplantation Network" is prohibited from taking effect
prior to October 21, 1999; a study of the potential impact of organ
procurement and transplantation is required. (§214)
! The FY1999 Act continues from FY1998 the Hyde Amendment restricting the
use of funds for abortion, and adds a clarification to ensure that the restriction
applies to all L-HHS-ED trust fund programs funded in FY1999, as well as an
assurance that Medicare + Choice plans are not required to provide abortion
services. (§216, 508, and 509)
! For FY1998, an appropriations provision prohibited ED from using funds to
pilot test, field test, implement, administer, or distribute any federally
sponsored national education test in "reading, mathematics, or any other
subject" unless explicitly provided in law. The FY1999 Act makes this
provision a permanent amendment to the General Education Provisions Act
(GEPA, §447) and makes it applicable to any funds available to ED. (§305)
! The FY1998 prohibition of the use of funds provided in the Act to carry out
any program for the distribution of sterile needles or syringes for the
hypodermic injection of any illegal drug is continued. (§505)
! The FY1998 restrictions on the use of funds to conduct research with the use
of human embryos (including cloning) is continued for FY1999 funds. (§511)
! The FY1998 prohibition on use of funds provided in the Act for the
supervision of the election of any officer of the International Brotherhood of
Teamsters is continued in the FY1999 Act. (§514)
! The provision in the FY1999 House bill that would restrict the reimbursement
of Viagra for state Medicaid programs is not included in the FY1999 Act.

CRS-9
! An FY1998 DOL prohibition regarding the establishment of ergonomic
standards for worker protection is not included in the FY1999 Act; however,
DHHS is required to award an $890,000 contract to the National Academy of
Sciences (NAS) by January 1, 1999, to conduct a study of the relationship
between repetitive tasks in the workplace and musculoskelatal disorders.
Authorization for New Programs and Activities. The L-HHS-ED
Appropriations Act, 1999, authorizes or amends several programs and activities.
! Title VI of the L-HHS-ED Act establishes within NIH the National Center for
Complementary and Alternative Medicine to conduct basic and applied
research to investigate and validate alternative medical systems. The Center
is funded at $50 million for FY1999.
! Title VII of the L-HHS-ED Act includes miscellaneous amendments to
programs and Acts such as the CPB, the Social Security Act, and the Railroad
Retirement Act.
! Title VIII of the L-HHS-ED Act authorizes the Reading Excellence Act to
ensure that each child is taught to read in early childhood. As was already
mentioned, this new program is funded at $260 million.
! Title VIII also amends the Even Start program, repeals certain unfunded ED
programs, and makes technical and conforming amendments to the Workforce
Investment Act of 1998, P.L. 105-220 (WIA) regarding job training, adult
education, and vocational rehabilitation programs.
! Title XI of the L-HHS-ED Act authorizes the Women’s Health and Cancer
Rights Act of 1998 concerning health insurance coverage for mastectomies.
Veto Threat. On July 14, 1998, the White House issued a press release
expressing the President’s “deep concern” for the provisions of House bill, especially
those regarding school reform, class size reduction, school modernization, training
and job opportunities, childcare initiatives, and other programs for low-income
Americans. If the bill were sent to the President in its current form, he “would have
no choice but to veto it,” according to the White House statement. Subsequent to
2
the House Committee markup of H.R. 4274, the Office of Management and Budget
(OMB) issued a “Statement of Administration Policy” which discussed in detail the
Administration’s major objections to the bill and stated that the President would veto
the bill in its current form due to “very serious funding and language issues.”
3
Major Funding Trends
The L-HHS-ED appropriations consist of mandatory and discretionary funds;
however, 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 typically are
2 The White House. Office of the Press Secretary. Statement by the President. July 14,
1998.
3 Executive Office of the President. Office of Management and Budget. Statement of
Administration Policy. H.R. 4274 — Departments of Labor, Health and Human Services,
Education, and Related Agencies Appropriations Bill, FY1999. August 4, 1998.

CRS-10
accomplished through the authorizing committees and combined into large, omnibus
reconciliation bills. Table 4 shows the trend in total discretionary budget authority
under the L-HHS-ED appropriations for FY1994 through FY1998. The L-HHS-ED
funds have increased by 19.5% for this 5-year period. The 5-year increase is reduced
to an estimated 9.4% 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 13.4% in FY1994 to 14.5% in
FY1998. When compared to all federal budget authority, both discretionary and
nondiscretionary (mandatory), the L-HHS-ED portion increases during this period
from 4.4% in FY1994 to 4.8% in FY1998.
Table 4. L-HHS-ED Discretionary Appropriations, Trends From
FY1994
(budget authority in billions of dollars)
Type of funds
FY1994
FY1995
FY1996
FY1997
FY1998
L-HHS-ED discretionary
$67.3
$67.8
$67.2
$74.7
$80.4
L-HHS-ED discretionary in
$73.5
$72.2
$70.0
$76.1
$80.4
FY1997 dollars
L-HHS-ED % of all federal
discretionary funds a
13.4%
12.7%
13.4%
13.9%
14.5%
L-HHS-ED % of total federal
4.4%
4.4%
4.3%
4.5%
4.8%
budget authority
Total federal discretionary
$501.5
$533.8
$502.5
$536.3
$555.4
Total federal budget authority $1,529.3 $1,539.7 $1,580.8
$1,642.9 $1,687.3
GDP deflator
1.0512
1.0782
1.1031
1.1274
1.1488
Source: Budget of the United States Government Historical Tables Fiscal Year 1999, tables 5.2 and
10.1 (for total federal budget authority and GDP deflator); Budget of the United States Government,
various years (for discretionary funds, both total and for the L-HHS-ED Appropriation Committee);
and H.Rept. 105-635 (for the FY1998 L-HHS-ED discretionary amount).
Discretionary funds include both defense and non-defense activities.
a
Line Item Veto
On June 25, 1998, the Supreme Court struck down the Line Item Veto Act as
unconstitutional in the case Clinton v. New York City. Prior to the decision, the
President did not exercise the veto authority over any of the items in the L-HHS-ED
appropriations for FY1998 under P.L. 105-78.4
4 For additional information, see CRS Issue Brief 89148, Item Veto and Expanded
Impoundment Proposals, by Virginia A. McMurtry.

CRS-11
For Additional Reading, Background
CRS Issue Briefs.
CRS Issue Brief 98012. The Budget for Fiscal Year 1999, by Philip D. Winters.
CRS Issue Brief 89148. Item Veto and Expanded Impoundment Proposals, by
Virginia A. McMurtry.
CRS Issue Brief 98044. Supplemental Appropriations: Emergency Agriculture Aid,
Embassy Security, Y2K Computer Conversion, and Defense, by Larry Nowels,
Coordinator.
Other CRS Products.
CRS Info Pack 521B. Budget for Fiscal Year 1999.
CRS Report 97-203. Appropriations for FY1998: Labor, Health and Human
Services, and Education, by Paul M. Irwin.
CRS Report 98-200. Appropriations for FY1999: an Overview, by J. Michael
Anderson.
CRS Report 98-199. Budget FY1999: A Chronology with Internet Access, by Mary
Frances Bley.
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 Checklist 98-900. Conference Report on H.R. 4328, Making Omnibus
Consolidated and Emergency Supplemental Appropriations for Fiscal Year
1999: A Guide to CRS Products, by Library Services Division.
CRS Report 97-684. The Congressional Appropriations Process and the
Congressional Budget Act, by James V. Saturno.
CRS Report 97-684. The Congressional Appropriations Process: An Introduction,
by Sandy Streeter.
CRS Report 97-892. Continuing Appropriations Acts: Brief Overview of Recent
Practices, by Sandy Streeter.
CRS Report 98-268. Federal Budget: Social Spending in the President’s FY1999
Budget, by Dawn Nuschler.
CRS Report 98-521. Federal Budget: Social Spending Targets in the FY1999
House Budget Resolution, by Dawn Nuschler.
CRS Report 98-415. Federal Budget: Social Spending in the FY1999 Senate
Budget Resolution, by Dawn Nuschler.

CRS-12
CRS Report 98-800. Fiscal Year 1999 Continuing Resolution, by Sandy Streeter.
CRS Report 98-123. Supplemental Appropriations and Rescissions for FY1998, by
Larry Nowels, Coordinator.
Selected World Wide Web Sites.
General information regarding the budget and appropriations may be found at
the following web sites. Web sites specific to departments and agencies funded by the
L-HHS-ED appropriations will be listed in the appropriate sections of this report.
House Committee on Appropriations
[http://www.house.gov/appropriations]
[http://www.house.gov/appropriations/fact.htm]
Senate Committee on Appropriations
[http://www.senate.gov/~appropriations/]
[http://www.senate.gov/~appropriations/releases.htm]
CRS Appropriations Products Guide
[http://www.loc.gov/crs/products/apppage.html]
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]
[http://www.access.gpo.gov/su_docs/budget/]
[http://www.whitehouse.gov/WH/EOP/OMB/SAP/]

CRS-13
U.S. Department of Labor
The FY1999 budget proposal for the U.S. Department of Labor (DOL) is $11.1
billion in discretionary funds, $0.4 billion (3.7%) more than the FY1998 appropriation
of $10.7 billion, as shown in Table 5. The House Committee bill would provide $9.6
billion; the Senate Committee bill would provide $10.7 billion; the amount enacted
under P.L. 105-277 is $10.9 billion. The discretionary amount enacted is $229 million
less than the request, but $181 million more than the FY1998 amount.
Table 5. Department of Labor Discretionary Appropriations
(budget authority in billions of dollars) a
FY1999
FY1999
FY1998
FY1999
House
Senate
FY1999
final
request
Committee
Committee
enacted b
$10.7
$11.1
$9.6
$10.7
$10.9
Source: House Appropriations Committee unofficial staff table of October 26, 1998.
The amounts shown are
a
for discretionary programs funded by the L-HHS-ED appropriation bill;
mandatory programs funded through the L-HHS-ED bill and other laws are not included.
b The FY1999 enacted amount is based on P.L. 105-277; this amount may be modified through
further legislation during FY1999.
Mandatory DOL programs included in the L-HHS-ED bill were funded at $1.9
billion in FY1998, and consist of the Black Lung Disability Trust Fund ($1.0 billion),
Advances to the Unemployment Insurance and Other Trust Funds ($0.4 billion),
Federal Unemployment Benefits and Allowances programs ($0.3 billion), and
Employment Standards Administration Special Benefits programs ($0.2 billion).
Key Issues
The President’s Request. The President’s FY1999 budget request for DOL
features three broad strategic goals: a prepared workforce, a secure workforce, and
quality workplaces. According to the Administration, a prepared workforce increases
employment opportunities by providing all workers with the assistance and tools
needed to succeed in the job market, including the information needed to make good
employment choices. The goal of a secure workforce means promoting the economic
security of workers and their families, including wage, hour, and other employment
conditions; providing unemployment compensation benefits for those unable to work;
offering retraining and adjustment services; and protecting pension, health care, and
other benefits. A quality workplace is said to be one that is safe, healthy, and fair.
Major DOL discretionary increases under the President’s FY1999 budget include
the following.
! An additional $167 million is requested for Job Training Partnership Act
(JTPA) programs, including increases of $45 million for Adult Training
programs, $100 million for Dislocated Worker Assistance, and $61 million for

CRS-14
the Job Corps; there also would be a reduction of $39 million for National
Activities.
! An increase of $100 million is proposed for State Operations for
Unemployment Compensation.
Smaller DOL increases are proposed for Departmental Management salaries and
expenses.
A decrease of $75 million is proposed for the DOL portion of the School-to-
Work Opportunities Act program; the reduction is the first step of the authorized
phase-out of the program by the year 2001. No additional funds are requested for the
Year 2000 Computer Conversion project under the State Unemployment Insurance
Account; the conversion project was funded at $200 million in 1998, but the amount
includes $40 million advance funded for 1999.
The House Bill. At the Committee level, the House bill does not accept all of
the funding levels proposed in the President’s FY1999 budget.
! The JTPA Summer Youth program, funded at $871 million in FY1998 and
level funded under the budget request, would be zeroed out in the House bill.
! The JTPA Dislocated Worker Assistance program would be level funded
rather than increased by $100 million under the budget request.
! The proposed JTPA program of Opportunity Areas for Youth, previously
advance funded for FY1999 at $250 million, would have those funds
rescinded.
! The Unemployment Compensation State Operations program would receive
an increase of $1 million instead of the $100 million requested.
! The School-to-Work Opportunities program, funded at $200 million in
FY1999 and with a budget request of $125 million, would be reduced to $75
million.
The Senate Bill. At the Committee level, the Senate bill differs from the House
proposal with regard to several programs.
! The JTPA Summer Youth program would be level funded at $871 million,
rather than terminated.
! The JTPA Dislocated Worker Assistance program would be increased by $55
million rather than level funded under the House bill.
! The proposed Opportunity Areas for Youth, previously advance funded for
FY1999 at $250 million, would retain $125 million for FY1999 and the
remainder would be rescinded; an additional $250 million would be provided
for FY2000.
! The School-to-Work Opportunities program would be funded at $125 million,
as requested, rather than being reduced to $75 million under the House bill.
! The Senate bill would include a $137 million rescission in the Welfare-to-Work
Transition program.
Public Law. The FY1999 L-HHS-ED Appropriations Act under P.L. 105-277
provides funding levels that differ from those in the President’s budget request for
several DOL programs.

CRS-15
! No funds are provided in the bill for Youth Opportunity Grants; the request
was for $250 million, on an advance funded basis, for FY2000. However, the
FY1998 appropriation of $250 million was made on an advance funded basis;
those funds remain available for the 1999 program year.
! An unrequested rescission of $137 million is made to the Welfare-to-Work
Grants program; the conference report says that these are funds that remained
unclaimed by states at the end of the fiscal year.
! The JTPA Adult Training program is funded at $955 million, the same as the
FY1998 amount; the budget proposed a $45 million increase.
! The JTPA Dislocated Worker Assistance program is funded at $1.4 billion,
$55 million above the FY1998 amount but $45 million below the request.
For Additional Reading
CRS Issue Briefs.
CRS Issue Brief 97051. Child Labor and Public Policy: Legislative and
Administrative Issues Involving American Workplaces, by William G. Whittaker.
CRS Issue Brief 98003. OSHA “Reinvention;” Initiatives by Congress and the
Administration, by Edward B. Rappaport.
CRS Issue Brief 98023. Trade Adjustment Assistance: Proposals for Renewal and
Reform, by James R. Storey.
CRS Reports.
CRS Report 97-724. Ergonomics in the Workplace: Is it Time for an OSHA
Standard?, by Edward Rappaport.
CRS Report 97-536. Job Training Reform: Legislation in the 105
th Congress, by
Ann Lordeman.
CRS Report 94-807. The Job Training Partnership Act: Training Programs at a
Glance, by Ann Lordeman.
CRS Report 97-541. School-to-Work Opportunities Act, by Richard N. Apling.
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.
CRS Report 98-62. Welfare Reform: The Welfare-to-Work Grant Program, by
Christine Devere and Gene Falk.

CRS-16
Selected World Wide Web Sites.
U.S. Department of Labor
[http://www.dol.gov]
[http://www.dol.gov/dol/_sec/public/budget/main.htm]
Detailed Appropriation Table
Table 6 shows the appropriation details for offices and major programs of DOL.

CRS-17
Table 6. Detailed Department of Labor Appropriations
($ in millions)
FY1999
FY1999
FY1998
FY1999
House
Senate
FY1999
Office or Major Program
final
request
Committee Committee
enacted a
Employment and Training Administration (ETA)
Training and Employment
955
1,000
955
950
955
Services, Job Training
Partnership Act (JTPA)
Adult Training
—JTPA Youth Training
130
130
130
130
130
—JTPA Summer Youth
871
871
0
871
871
Program
—JTPA Dislocated
1,351
1,451
1,351
1,406
1,406
Worker Assistance
—JTPA Job Corps
1,246
1,308
1,308
1,301
1,308
—JTPA Youth
250
250
(250)
125
0
Opportunity Grants (YOG)
—JTPA YOG Services b
0
250
0
125
250
(non-add)
—JTPA Other Federally
218
179
172
241
217
Administered Programs c
—JTPA subtotal
5,021
5,189
3,666
5,024
4,887
—School-to-Work
200
125
75
125
125
Opportunities
—Training and
12
10
11
11
11
Employment Services,
Other
Welfare-to-Work
0
0
0
(137)
(137)
Rescission
Community Service
440
440
440
440
440
Employment for Older
Americans
Federal Unemployment
349
361
361
361
361
Benefits and Allowances,
Trade Adjustment and
NAFTA Activities
State Unemployment
2,114
2,214
2,115
2,115
2,135
Insurance, Employment
Service Operations
(SUI/ESO),
Unemployment
Compensation State
Operations
—SUI/ESO
200
0
0
(40)
0
Unemployment
Compensation, Year 2000
Computers d
—SUI/ESO
206
191
206
196
191
Unemployment
Compensation, Other
—SUI/ESO, Employment
817
817
817
822
822
Service

CRS-18
FY1999
FY1999
FY1998
FY1999
House
Senate
FY1999
Office or Major Program
final
request
Committee Committee
enacted a
—SUI/ESO, One-Stop
163
147
137
147
147
Career Centers
Advances to
392
357
357
357
357
Unemployment Trust Fund
and Other Funds
ETA Program
131
143
138
138
138
Administration
ETA, subtotal
10,045
9,994
8,323
9,559
9,477
Pension and Welfare
82
91
86
88
90
Benefits Administration
Pension Benefit Guaranty
10
11
11
11
11
Corporation (PBGC)
Administration
PBGC Services (non-add)
137
148
148
148
148
Employment Standards Administration (ESA)
ESA Salaries and
301
316
312
311
314
Expenses
ESA Special Benefits
201
179
179
179
179
ESA Black Lung
1,007
1,021
1,021
1,021
1,021
Disability Trust Fund,
Appropriation
Occupational Safety and
337
355
337
349
353
Health Administration
(OSHA)
Mine Safety and Health
203
211
203
211
211
Administration (MSHA)
Bureau of Labor Statistics
381
399
399
391
399
Departmental
381
422
393
420
421
Management
TOTALS, DEPARTMENT OF LABOR
Total Appropriations e
12,949
12,998
11,262
12,539
12,475
Source: Amounts are compiled from the H.R. 4328 conference report, H.Rept. 105-825, as printed
in the Congressional Record, daily edition, October 19, 1998.

a The FY1999 enacted amounts are based on P.L. 105-277; these amounts may be modified by further
legislation during FY1999.
b The FY1998 appropriation was to be made available in FY1999, contingent on the enactment of
job training reform legislation by July 1, 1998; the Workforce Investment Act of 1998, P.L. 105-220
(WIA), was not enacted until August 7, 1998. The FY1999 appropriation provides $250 million for
the new WIA Youth Opportunity Grants program, but rescinds the contingent $250 million initially
made available for FY1999 under the FY1998 appropriation.

c These amounts do not include a P.L. 105-277 supplemental $7 million for the JTPA Migrant and
Seasonal Farmworkers program.
d The FY1998 appropriation included $40 million of advance funding for FY1999.

e The appropriations total includes discretionary and mandatory funds as well as scorekeeping and
other adjustments.

CRS-19
U.S. Department of Health and Human Services
The FY1999 budget proposal for the U.S. Department of Health and Human
Services (DHHS) is $34.5 billion in discretionary funds, $1.7 billion (5.2%) more than
the FY1998 appropriation of $32.8 billion, as shown in Table 7. The House
Committee bill would provide $34.2 billion; the Senate Committee bill would provide
$33.5 billion; the amount enacted under P.L. 105-277 is $36.2 billion. The
discretionary amount enacted is $1.7 billion more than the request and $3.4 billion
more than the FY1998 amount.
Table 7. Department of Health and Human Services Discretionary
Appropriations
(budget authority in billions of dollars) a
FY1999
FY1999
FY1998
FY1999
House
Senate
FY1999
final
request
Committee
Committee
enacted b
$32.8
$34.5
$34.2
$33.5
$36.2
Source: House Appropriations Committee unofficial staff table of October 26, 1998.
a The amounts shown are for discretionary programs funded by

the L-HHS-ED appropriation bill;
mandatory programs funded through the L-HHS-ED bill and other laws are not included.
b The FY1999 enacted amount is based on P.L. 105-277; this amount may be modified through
further legislation during FY1999.
Mandatory DHHS programs included in the L-HHS-ED bill were funded at
$169.0 billion in FY1998, and consist primarily of Grants to States for Medicaid
($93.9 billion), Payments to Health Care Trust Funds ($60.9 billion), Social Services
Block Grant ($2.3 billion), and Foster Care and Adoption ($4.4 billion).
Key Issues
The President’s Request. The President’s FY1999 budget request for DHHS
includes a number of themes related to the funding and delivery of health care and
social services. The DHHS budget emphasizes health research programs, the
President’s Child Care initiative, children’s health insurance, fraud and abuse
prevention, user fees, drug and alcohol treatment programs, human immunodeficiency
virus - acquired immune deficiency syndrome (HIV/AIDS) prevention and treatment
programs, the President’s Race initiative as it relates to health disparities among
minority groups, and the tobacco settlement and related treatment and prevention
activities.
Major DHHS discretionary increases in the FY1999 budget request are as
follows:
! The largest discretionary increase is an additional $1.2 billion proposed for the
NIH, including additional funds for cancer, diabetes, heart disease, AIDS, brain
disorders (including Alzheimer’s and Parkinson’s), and malaria, among other
research programs.

CRS-20
! An additional $165 million is proposed for the Ryan White AIDS programs.
! A $128 million increase is requested for the Substance Abuse and Mental
Health Services Administration (SAMHSA).
! $200 million more is requested for Program Management under the Health
Care Financing Administration (HCFA).
! $294 million more is proposed for the Child Care and Development Block
Grant (CCDBG).
! A $313 million increase is included for Head Start.
Smaller DHHS increases are proposed for: the Centers for Disease Control and
Prevention (CDC), including the Chronic Diseases program, the Infectious Diseases
program, and Prevention Research; Consolidated Health Centers under the Health
Resources and Services Administration (HRSA); and the Title X Family Planning
program.
Reductions for DHHS programs are requested for several smaller programs
administered by HRSA and for the Office of the Secretary. Termination is proposed
for related DHHS Community Services programs outside of the Community Services
Block Grant (CSBG).
The House Bill. At the Committee level, the House bill does not accept all of
the funding levels proposed in the President’s FY1999 budget.
! The bill would provide an additional $59 million beyond the $1.2 billion
increase proposed for NIH.
! An increase of $271 million would be provided for SAMHSA rather than the
additional $128 million proposed in the budget.
! A decrease of $66 million rather than an increase of $294 million would be
provided for the CCDBG.
! An increase of $153 million would be provided for the Head Start program
rather than the requested increase of $313 million.
! Consolidated Health Centers would be increased by $100 million rather than
$14 million.
! The $1.1 billion previously advance funded for FY1999 for the Low-Income
Home Energy Assistance Program (LIHEAP) would be rescinded; however,
$1.1 billion would be provided in advance for FY2000, as requested.
The Senate Bill. At the Committee level, the Senate bill differs from the House
proposal with regard to several programs.
! The bill would provide NIH $15.6 billion, $760 million above the House
amount and $2.0 billion above the FY1998 amount.
! The CDC would be approximately level funded, $224 million less than the
House amount.
! Health Professions would be funded at $208 million, $96 million below the
House amount; the FY1998 amount was $293 million.
! HRSA Vaccine Injury Compensation would be increased to $155 million, $100
million more than the House proposal.
! SAMHSA would be approximately level funded, $306 million below the House
proposal.

CRS-21
! The CCDBG would be funded at $117 million more than the FY1998 amount,
and $183 million above the House amount.
! The Head Start program would be funded at the level requested in the budget,
$160 million more than the House amount. However, of the $4.7 billion
provided, $1.4 billion would be provided as an advance appropriations for
FY2000, so that the remaining $3.3 billion available for FY1999 would be a
$1 billion reduction from the comparable FY1998 amount of $4.3 billion.
! Existing funding for LIHEAP for FY1999 would be continued, and no existing
funds would be rescinded as under the House proposal; $1.1 billion would be
provided in advance for FY2000 as requested.
! The Social Services Block Grant, Title XX (SSBG), an entitlement program,
would be reduced to $1.9 billion, the same as the budget request; the House
bill would continue funding at the FY1998 level of $2.3 billion.
Public Law. The FY1999 L-HHS-ED Appropriations Act under P.L. 105-277
provides funding levels that differ from those in the President’s budget request for
several DHHS programs.
! The bill provides $15.7 billion for the NIH, $0.8 billion more than requested
and $2.0 billion more than the FY1998 amount.
! Consolidated Health Centers are funded at $925 million, $86 million more than
requested and $100 more than the FY1998 amount.
! The Ryan White AIDS program is provided $1.4 billion, $98 million more than
requested and $261 million more than for FY1998.
! The HRSA Vaccine Injury Compensation is increased to $155 million, $100
million more than requested and $110 million more than for FY1998.
! Other HRSA programs are funded at $442 million, an increase of $129 million
over the requested amount and $93 million more than the FY1998 amount.
! The CDC receives $2.6 billion, an increase of $113 million over the request
and $226 million above the FY1998 amount.
! SAMHSA is funded at $2.4 billion, $213 million more than the request and an
increase of $341 million above the FY1998 amount.
! The CCDBG is reduced to $1.2 billion, $177 million below the requested
amount but $117 million more than the FY1998 amount.
Abortion: A Perennial L-HHS-ED Issue. Since FY1977, the annual
L-HHS-ED appropriations acts have contained restrictions that limit the
circumstances under which federal funds can be used to pay for abortions except in
the case where the life of the mother is endangered. Popularly referred to as the Hyde
Amendment, these provisions generally apply to all L-HHS-ED funds; however,
Medicaid is the primary program affected. The 103rd Congress modified the
provisions to permit federal funding of abortions in cases of rape or incest. The
FY1998 L-HHS-ED Act, P.L. 105-78, extended the Hyde provisions to prohibit the
use of federal funds to buy managed care packages that include abortion coverage,
except in the cases of rape, incest, or life endangerment. For FY1999, the FY1998
Hyde Amendment provisions are continued, along with a clarification to ensure that
the Hyde Amendment applies to all trust fund programs funded by the L-HHS-ED

CRS-22
Appropriations Act, 1999, as well as an assurance that Medicare + Choice plans are
not required to provide abortion services.5
Tobacco Legislation. The funding for a number of the President’s initiatives,
including many in the L-HHS-ED proposal, was to be derived from tobacco
legislation. Such legislation was considered by the 105 Congress, but no proposal
th
was enacted into law. Under the President’s budget, net federal receipts for the
tobacco proposal were estimated at $10 billion for FY1999 and would have been
spent on, among other DHHS programs: the National Institutes of Health (NIH),
cancer demonstration projects, the CDC’s smoking prevention efforts, children’s
health care coverage, and the CCDBG.6
For Additional Reading
CRS Issue Briefs.
CRS Issue Brief 95095. Abortion: Legislative Response, by Karen J. Lewis and
Thomas P. Carr.
CRS Issue Brief 98001. Child Care Legislation in the 105 Congress
th
, by Karen
Spar.
CRS Issue Brief 98010. Head Start: Background and Legislation in the 105th
Congress, by Karen Spar and Molly Forman.
CRS Issue Brief 98016. Immigration Legislation and Issues in the 105 Congress
th
,
by Joyce Vialet, Coordinator.
CRS Issue Brief 98011. Research and Development Funding: Fiscal Year 1999, by
Michael E. Davey, Coordinator.
CRS Issue Brief 98022. The Tobacco Settlement: Issues, by C Stephen Redhead.
CRS Issue Brief 93034. Welfare Reform, by Vee Burke.
CRS Reports.
CRS Report 95-1101. Abortion Procedures, by Irene E. Stith-Coleman.
CRS Report 96-293. AIDS Funding for Federal Government Programs: FY1981-
FY1998, by Judith A. Johnson.
CRS Report 98-476. AIDS: Ryan White CARE Act, by Sharon Kearney.
5 For additional information, see CRS Issue Brief 95095, Abortion: Legislative Response,
by Karen J. Lewis and Thomas P. Carr.

6 For additional information, see Budget of the United State Government Fiscal Year 1999,
p. 70 and Table S-7, and the CRS Electronic Briefing Book on the Tobacco Settlement at
[http://thomas.loc.gov/brbk/html/ebtobtop.html].

CRS-23
CRS Report 96-253. Cancer Research: Selected Federal Spending and Morbidity
and Mortality Statistics, by Judith A. Johnson.
CRS Report 98-740. The Centers for Disease Control and Prevention: An
Overview, by Paulette L. Como and Irene Stith-Coleman.
CRS Report 96-780. Child Care for Low-income Families: Federal Programs and
Welfare Reform, by Karen Spar.
CRS Report 98-541. Child Care: The Role of the Federal Government, by Molly
Forman and Karen Spar.
CRS Report 97-335. Cloning: Where Do We Go From Here?, by Irene E. Stith-
Coleman.
CRS Report 97-917. Disease Funding and NIH Priority Setting, by Judith A.
Johnson.
CRS Report 97-63. Health Care Financing Administration Administrative Costs, by
Celinda Franco.
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 95-910. Human Embryo Research, by Irene E. Stith-Coleman.
CRS Report 97-510. Immunization Funding Under Section 317 of the Public Health
Service Act, by Melvina Ford.
CRS Report 94-211. The Low-Income Home Energy Assistance Program: A Fact
Sheet, by Melinda Gish.
CRS Report 97-350. Maternal and Child Health Block Grant, by Melvina Ford and
Sharon Kearney.
CRS Report 95-96. The National Institutes of Health: An Overview, by Pamela W.
Smith.
CRS Report 95-917. Older Americans Act: Programs and Funding, by Carol
O’Shaughnessy and Alice D. Butler.
CRS Report 98-668. Refugee Admissions and Resettlement Policy: Facts and
Issues, by Joyce C. Vialet.
CRS Report 94-953. Social Services Block Grants (Title XX of the Social Security
Act), by Karen Spar.

CRS-24
CRS Report 97-884. The Substance Abuse and Mental Health Services
Administration (SAMHSA), by Jennifer A. Neisner.
CRS Report 97-1048. The Title X Family Planning Program, by Sharon Kearney.
CRS Report 98-8. Tobacco Settlement Legislation: Summary and Comparison of
S. 1414, S. 1492, S. 1530, S. 1638, S. 1889, and H.R. 3474, by C. Stephen
Redhead and Joy Austin-Lane.
CRS Report 98-115. Welfare Reform: Federal-State Financing Under the
Temporary Assistance for Needy Families Program, by Gene Falk.
Selected World Wide Web Sites.
U.S. Department of Health and Human Services
[http://www.hhs.gov]
[http://www.hhs.gov/progorg/asmb/budget/fy99budget/]
CRS Tobacco Settlement Briefing Book
[http://thomas.loc.gov/brbk/html/ebtobtop.html]
Detailed Appropriation Table
Table 8 shows the appropriation details for offices and major programs of
DHHS.

CRS-25
Table 8. Detailed Department of Health and Human Services
Appropriations
($ in millions)
FY1999
FY1999
FY1998
FY1999
House
Senate
FY1999
Office or Major Program
final
request
Committee
Committee
enacted a
Public Health Service (PHS)
Health Resources and
825
839
925
925
925
Services Administration
(HRSA), Consolidated
Health Centers
HRSA, National Health
115
115
115
115
115
Service Corps
HRSA, Health Professions
293
291
304
208
304
HRSA, Maternal and Child
681
682
700
683
700
Health Block Grant
HRSA, Ryan White AIDS
1,150
1,313
1,331
1,368
1,411
Programs
HRSA, Family Planning
203
218
203
215
215
(Title X)
HRSA, Vaccine Injury
45
55
55
155
155
Compensation
HRSA, Other
349
313
315
376
442
HRSA, subtotal
3,662
3,826
3,948
4,045
4,267
Centers for Disease
2,384
2,497
2,591
2,367
2,610
Control and Prevention
(CDC)
National Institutes of
13,622
14,803
14,862
15,622
15,652
Health (NIH)
Substance Abuse and
2,147
2,275
2,458
2,152
2,488
Mental Health Services
Administration
(SAMHSA)
Retirement Pay and
191
202
202
202
202
Medical Benefits,
Commissioned Officers
Agency for Health Care
90
100
100
50
100
Policy and Research
PHS, subtotal
22,096
23,703
24,161
24,437
25,319
Health Care Financing Administration (HCFA)
Medicaid Grants to States
93,881
103,328
103,328
103,327
103,327
Payments to Health Care
60,904
62,953
62,953
62,953
62,953
Trust Funds
Program Management
1,789
1,943
1,943
1,686
1,947
HCFA, subtotal
156,574
168,224
168,224
167,966
168,227
Administration for Children and Families (ACF)
—Family Support
660
2,739
2,664
2,739
2,739
Payments to States
(Welfare, Child Support)

CRS-26
FY1999
FY1999
FY1998
FY1999
House
Senate
FY1999
Office or Major Program
final
request
Committee
Committee
enacted a
—Low Income Home
1,100
1,087
0
1,100
1,100
Energy Assistance
Program (LIHEAP)
—Refugee and Entrant
415
415
415
415
415
Assistance
—Child Care and
1,066
1,360
1,000
1,183
1,183
Development Block Grant
(CCDBG)
—Social Services Block
2,299
1,909
2,299
1,909
1,909
Grant (Title XX)
—Children and Family
4,347
4,660
4,500
4,660
4,660
Services Programs (CFSP),
Head Start
—CFSP, Community
490
489
500
491
500
Services Block Grant
—CFSP, Community
51
0
49
54
64
Services, Other
—CFSP, Other
788
793
793
804
808
—Violent Crime
93
105
105
105
105
Reduction Programs
—Rescission of permanent
(21)
0
(21)
(21)
(21)
appropriations
—Family Support and
255
275
275
275
275
Preservation
—Foster Care and
4,358
5,339
5,119
5,319
5,119
Adoption Assistance State
Payments
ACF, subtotal
15,901
19,171
17,698
19,033
18,856
Administration on Aging
871
871
861
876
882
Office of the Secretary
243
282
236
238
258
TOTALS, DEPARTMENT OF HEALTH AND HUMAN SERVICES
Total Appropriations b
195,683
212,250
211,179
212,550
213,541
Source: Amounts are compiled from the H.R. 4328 conference report, H.Rept. 105-825, as printed
in the Congressional Record, daily edition, October 19, 1998.

a The FY1999 enacted amounts are based on P.L. 105-277; these amounts may be modified by further
legislation during FY1999.

b The appropriations total includes discretionary and mandatory funds as well as scorekeeping and
other adjustments.

CRS-27
U.S. Department of Education
The FY1999 budget proposal for the U.S. Department of Education (ED) is
$31.2 billion in discretionary funds, $1.8 billion (6.1%) more than the FY1998
appropriation of $29.4 billion, as shown in Table 9. The House Committee bill would
provide $30.6 billion; the Senate Committee bill would provide $30.9 billion; the
amount enacted under P.L. 105-277 is $28.4 billion. The discretionary amoun
7
t
enacted is $2.7 billion less than the request and $1.0 billion less than the FY1998
amount.
Table 9. Department of Education Discretionary Appropriations
(budget authority in billions of dollars)a
FY1999
FY1999
FY1998
FY1999
House
Senate
FY1999
final
request
Committee
Committee
enacted b
$29.4
$31.2
$30.6
$30.9
$28.4
Source: House Appropriations Committee unofficial staff table of October 26, 1998.
The amounts shown are
a
for discretionary programs funded by the L-HHS-ED appropriation bill;
mandatory programs funded through the L-HHS-ED bill and other laws are not included.
b The FY1999 enacted amount is based on P.L. 105-277; this amount may be modified through
further legislation during FY1999.
Mandatory ED programs included in the L-HHS-ED bill were funded at $2.6
billion in FY1998, and consist entirely of the Rehabilitative Services and Disabilities
Research programs. The FY1999 ED budget also includes a $1.1 billion mandatory
proposal for a Grades 1 Through 3 Class Size Reduction and Teacher Financing
initiative (with funding dependent on receipts from tobacco legislation), and a tax
expenditure proposal that would provide federal tax credits in support of $20 billion
in interest-free bonds for a School Construction initiative.
Key Issues
The President’s Request. Support for education has been one of the
President’s top priorities, and the FY1999 budget proposal for ED continues to reflect
that emphasis. Major themes include: reducing class size and modernizing the
Nation’s schools; mastering basic skills to prepare for college and productive
employment; targeting aid to improve urban education; supporting educational
technology; and helping students prepare and pay for college.

7 Budget scorekeeping excludes advance funding from the current year totals. The ED totals
exclude $1.4 billion of advance funding for Title I in the FY1998 final amount, and $6.1
billion of advance funding in the FY1999 enacted amount, a $4.7 billion difference.

CRS-28
Major ED discretionary increases in the FY1999 budget request are as follows:
! The largest ED discretionary increase is $422 million in additional funds
proposed for Title I Grants to Local Educational Agencies (LEAs) for the
Education of the Disadvantaged.
! An additional $137 million is proposed for Educational Technology, including
the Technology Literacy Challenge Fund and Teacher Training in Technology.
! $200 million is proposed for an Education Opportunity Zones initiative that
would provide approximately 50 grants that would focus on the educational
problems of poor urban and rural school districts.
! An additional $249 million is requested to increase funding for the Pell Grant
program, including an $100 increase in the maximum award to $3,100.
! $140 million is proposed for a College-Schools Partnerships initiative to
encourage academic achievement and college enrollment by students from low-
income schools.
! $109 million more is proposed for other higher education programs, including
Minority Teacher Recruitment and other teacher recruitment and preparation
activities.
! $160 million additional is requested as part of the President’s Child Care
initiative for 21 Century Community Learning Centers to suppor
st
t
approximately 4,000 before- and after-school programs.
Smaller increases of less than $100 million are proposed for Goals 2000:
Educate America Act, other Education for the Disadvantaged programs, Safe and
Drug-Free Schools and Communities Act, Bilingual Education, Adult Education,
Federal Work-Study, Title III Aid for Institutional Development, TRIO programs,
Research and Statistics, and Salaries and Expenses.
A decrease of $112 million is proposed for Impact Aid programs. No funds are
requested for the $350 million Innovative Program Strategies (education block grant)
program and for the $25 million State Student Incentive Grants (SSIG) program. A
decrease of $75 million is proposed for the ED portion of the School-to-Work
Opportunities Act program; the reduction is the first step of the authorized phase-out
of the program by the year 2001. For Library Services, $146 million was initially
provided for FY1998 through the ED appropriation, and then transferred to the
Institute of Museum and Library Services (IMLS); for FY1999, $146 million is
requested directly for the IMLS as an L-HHS-ED Related Agency.
The House Bill. At the Committee level, the House bill does not accept all of
the funding levels proposed in the President’s FY1999 budget.
! Title I Grants to LEAs would be level funded rather than increased by $422
million.
! The Goals 2000 Education Reform program would be reduced by 50% to
$246 million, rather than increased slightly as requested.
! Educational Technology would be reduced by $43 million rather than increased
by $137 million.
! The $200 million School-to-Work Opportunities program, proposed in the
budget at $125 million, would be reduced to $75 million.

CRS-29
! An additional $40 million would be provided for the Impact Aid program
rather than a decrease of $112 million.
! The $350 million Innovative Program Strategies, the largest ED program
proposed for termination in the budget, would be increased to $400 million.
! The Educational Opportunity Zones initiative would not be funded.
! The Individuals with Disabilities Education Act State Grants program would
be increased by $503 million instead of $23 million.
! Instead of an additional $249 million for Pell Grants and an increase of $100
in the maximum grant, the bill would provide an increase of $834 million and
an increase of $150 in the maximum award.
! The College-Schools Partnership initiative would not be funded.
! Other higher education programs would be reduced by $90 million rather than
increased by $109 million.
! An increase of $20 million would be provided for the 21 Century Community
st
Learning Centers rather than $140 million increase requested.
! The House bill would prohibit the use of ED funds for development, testing
(including pilot or field testing), or administration of any federally sponsored
national test without specific and explicit statutory authorization.
! Several amendments would be made to the Bilingual Education Act to increase
the flexibility of teaching methods but limit the number of years students could
spend in bilingual program, with a priority placed on programs that moved
students into regular English language instruction within 2 years.
The Senate Bill. At the Committee level, the Senate bill differs from the House
proposal with regard to several programs.
! Title I Grants to LEAs would be increased by $301 million rather than level
funded as in the House bill.
! The Goals 2000 Education Reform program would be increased slightly rather
than cut by 50% under the House bill.
! Educational Technology would be funded at $83 million above the House
level, and $40 million more than the FY1998 amount.
! The School-to-Work Opportunities program would be funded at the budget
request level of $125 million, $50 million less than the House amount.
! The Impact Aid program would be nearly level funded.
! The $350 million Innovative Program Strategies would be level funded.
! $100 million would be provided for school construction; no funds were
requested and none provided in the House bill.
! Pell Grants would be funded at a level $349 million above the House amount,
with a maximum grant increase of $100 rather than $150.
! The Connection proposal would be funded at $75 million, contingent on
enactment of authorization; the budget request was for $140 million for a
College-Schools Partnership initiative.
! Other higher education programs, including $75 million in grants for improving
teacher quality, would be funded at a level $171 million over the House
amount, and $81 million more than the FY1998 amount.
! In increase of $35 million would be provided for the 21 Century Community
st
Learning Centers, $15 million more than the House amount.

CRS-30
! The Senate bill would provide that no funds may be used to field test or
administer any federally sponsored national tests; however, it would, by
implication, allow continuation of national test development and pilot testing.
Public Law. The FY1999 L-HHS-ED Appropriations Act under P.L. 105-277
provides funding levels that differ from those in the President’s budget request for
several ED programs. However, as already noted, the FY1999 ED discretionary
amount excludes a $4.7 billion increase in advance funding for the Title I Grants to
LEAs.
! The Title I Grants to LEAs program is funded at $7.8 billion, $121 million less
than requested but $301 million more than in FY1998. Of the FY1999
amount, $6.1 billion is advance funded: $1.4 billion was advance funded in
FY1998.8
! The Impact Aid program is funded at $864 million, an increase of $168 million;
a $112 million reduction was requested.
! The Innovative Education Program Strategies is funded at $375 million, $50
million more than the FY1998 amount; the request was for termination.
! $1.2 billion in discretionary funds is provided for a new Class Size Reduction
program; the budget requested $1.1 billion in mandatory funds from the
proposed Tobacco Settlement.
! The President’s request of $200 million for an Education Opportunity Zones
proposal is not funded.
! $260 million is provided for the Literacy Initiative; the FY1999 budget request
was for $50 million.9
! The IDEA State Grants program is funded at $4.8 billion, $290 million more
than requested and $313 million above the FY1998 level.
! Pell Grants are funded at $7.7 billion, $110 million more than requested and
$359 million more than in FY1998. The maximum award level is increased by
$125 to $3,125, $25 more than the maximum requested in the budget.
For Additional Reading
CRS Issue Briefs.
CRS Issue Brief 98013. Elementary and Secondary Education Block Grant
Proposals in the 105 Congress
th
, by Wayne C. Riddle and Paul M. Irwin.

8 Advance funding means FY1999 funds will become available for obligation to the states on
October 1, 2000, instead of July 1, 2000; this 3-month change in the availability of funds is
anticipated to cause little change in the delivery of Title I services.

9 It was assumed in the budget that an additional $210 million would be available in FY1999
that was already enacted in the FY1998 appropriations, contingent on the enactment of
authorization by July 1, 1998. That contingency was not met; in fact, the Literacy Initiative
was enacted through the Reading Excellence Act, Title VII of the Department of Labor,
Health and Human Services, and Education, and Related Agencies Appropriations, 1999,
included in P.L. 105-277.

CRS-31
CRS Issue Brief 98004. The Higher Education Act: Reauthorization by the 105th
Congress, by James B. Stedman and Wayne Riddle.
CRS Issue Brief 98035. School Choice: Current Legislation, by Wayne Riddle and
James Stedman.
CRS Reports.
CRS Report 97-534. Adult Education and Literacy: Current Programs and
Legislative Proposals in the 105 Congress
th
, by Paul M. Irwin.
CRS Report 98-547. Bilingual Education: A Description and Analysis of H.R.
3892, the “English Language Fluency Act”, by Wayne Riddle.
CRS Report 97-893. Education Block Grant in FY1998 Appropriations, by Paul M.
Irwin and Wayne C. Riddle.
CRS Report 97-339. Federal TRIO Programs and the National Early Intervention
Scholarship and Partnership Program, by James B. Stedman.
CRS Report 95-502. Goals 2000: Educate America Act Implementation Status and
Issues, by James B. Stedman and Wayne C. Riddle.
CRS Report 98-880. Individuals with Disabilities Education Act (IDEA) Provisions
in the Omnibus Consolidated and Emergency Supplemental Appropriations Act,
1999, by Nancy Lee Jones and Richard N. Apling.
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 97-101. Pell Grants: Background and Issues, by Margot A. Schenet.
CRS Report 98-455. Magnet Schools Assistance Program: Overview and Status,
by Carol Glover.
CRS Report 97-774. National Tests: Administration Initiative, by Wayne Riddle.
CRS Report 97-972. Reading Instruction: New Federal Initiatives, by Wayne
Riddle.
CRS Report 94-224. Rehabilitation Act: Major Programs, 105 Congres
th
s
Legislation, and Funding, by Carol V. O’Shaughnessy and Alice D. Butler.
CRS Report 97-760. The Safe and Drug-Free Schools and Communities Program,
by Cecilia Oregón Echeverría.
CRS Report 95-1090. School Facilities Infrastructure: Background and Funding
in the 105 Congress
th
, by Susan Boren.

CRS-32
CRS Report 97-541. School-to-Work Opportunities Act, by Richard N. Apling.
CRS Report 98-166. Teacher Quality and Quantity: Proposals in the 105th
Congress, by James B. Stedman.
CRS Report 96-380. Title I, ESEA: Current Status and Issues, by Wayne Riddle.
CRS Report 97-737. Title III of the Higher Education Act: Status and
Reauthorization Issues, by James B. Stedman.
CRS Report 97-283. Vocational Education: Legislation to Reauthorize the Carl D.
Perkins Vocational and Applied Technology Education Act, by Richard N.
Apling.
Selected World Wide Web Sites.
U.S. Department of Education Home Page
[http://www.ed.gov/]
[http://www.ed.gov/offices/OUS/Budget99/]
Detailed Appropriation Table
Table 10 shows the appropriation details for offices and major programs of ED.

CRS-33
Table 10. Detailed Department of Education Appropriations
($ in millions)
FY1999
FY1999
FY1998
FY1999
House
Senate
FY1999
Office or Major Program
final
request
Committee Committee
enacted a
Education Reform, Goals
491
501
246
496
491
2000: Educate America
Act
—School-to-Work
200
125
75
125
125
Opportunities
—Educational Technology
584
721
541
624
698
Office of Elementary and Secondary Education
—Title I Education for the
7,495
7,917
7,495
7,796
7,796
Disadvantaged, Grants to
LEAs b
—Education for the
527
579
561
539
575
Disadvantaged, Other
—Impact Aid
808
696
848
810
864
—School Improvement
335
335
285
335
335
(SI), Professional
Development
—SI, Innovative Program
350
0
400
350
375
Strategies
—SI, Class Size
0
0
0
0
1,200
Reduction c
—SI, Safe and Drug-Free
556
606
556
556
566
Schools
—SI, Magnet Schools
101
101
101
104
104
—SI, Education
0
200
0
0
0
Opportunity Zones
—SI, School Construction
0
0
0
100
0
Other School Improvement
199
234
195
210
231
America Reads Challenge/
0
50
0
0
260
Literacy Initiative d
Indian Education
60
66
66
66
66
Bilingual and Immigrant
354
387
354
354
380
Education
Office of Special Education and Rehabilitative Services
—Special Education, State
4,532
4,555
4,825
4,834
4,845
Grants
—Special Education, State
0
210
210
210
210
Grants (non-add advance
from prior year) d
—Special Education,
279
291
279
279
279
National Activities
—Rehabilitation Services
2,591
2,645
2,647
2,645
2,653
and Disability Research
Special Institutions for
133
137
137
138
138
Persons With Disabilities

CRS-34
FY1999
FY1999
FY1998
FY1999
House
Senate
FY1999
Office or Major Program
final
request
Committee Committee
enacted a
Office of Vocational and Adult Education
Vocational Education
1,147
1,150
1,154
1,147
1,154
Adult Education
361
394
378
356
385
Student Financial Assistance
—Pell Grants
7,345
7,594
8,179
8,528
7,704
—Supplemental
614
619
614
619
619
Educational Opportunity
Grants
—Federal Work-Study
830
900
850
900
870
—Federal Perkins Loans,
135
60
0
60
100
Capital Contributions e
—Federal Perkins Loans,
30
30
30
30
30
Loan Cancellations
—State Student Incentive
25
0
0
36
25
Grants
Federal Family Education
46
48
48
46
46
Loans, Administration
Higher Education, Aid for
211
253
231
225
258
Institutional Development
—Federal TRIO Programs
530
583
600
555
600
—College-School
0
140
0
75
120
Proposals
—Other Higher Education
203
312
113
284
330
Howard University
210
210
214
210
214
College Housing and
1
1
1
1
1
Academic Facilities Loans,
Administration
Office of Educational Research and Improvement
—Research and Statistics
223
287
237
223
252
—21st Century
40
200
60
75
200
Community Learning
Centers
—Other Research and
168
202
151
181
213
Improvement
Departmental Management
436
461
454
457
459
TOTALS, DEPARTMENT OF EDUCATION
Total Appropriations f
32,150
33,591
32,930
34,368
35,561
Source: Amounts are compiled from the H.R. 4328 conference report, H.Rept. 105-825, as printed
in the Congressional Record, daily edition, October 19, 1998.
Table Notes are on next page.

CRS-35
Notes to Table 10:

a The FY1999 enacted amounts are based on P.L. 105-277; these amounts may be modified through
further legislation during FY1999.
b The FY1998 appropriation for Title I Grants to local educational agencies (LEAs) included $1.4
billion of advance funding; the FY1999 appropriation includes $6.1 billion of advance funding.

c The FY1999 Class Size Reduction budget request was for $1.1 billion in mandatory funds from the
proposed Tobacco Settlement, and was not included in either the House or Senate appropriations
bills.
d The FY1998 appropriation included $210 million for the Literacy Initiative, contingent on
enactment of authorizing legislation by July 1, 1998; without such authorization, funds were
transferred to the Special Education Account for FY1999.

e The FY1999 request excludes a proposed $40 million transfer from a special Treasury account for
defaulted loan collections.
fThe appropriations total includes discretionary and mandatory funds as well as scorekeeping and
other adjustments.

CRS-36
Related Agencies
The FY1999 budget proposal for L-HHS-ED related agencies is $7.8 billion in
discretionary funds, $0.1 billion (1.3%) more than the FY1998 appropriation of $7.7
billion, as shown in Table 11. The House Committee bill would provide $7.7 billion;
the Senate Committee bill would provide $7.8 billion; the amount enacted under
P.L. 105-277 is $7.8 billion. The discretionary amount enacted is $13 million less
than the request but $81 million more than the FY1998 amount.
Table 11. Related Agencies Discretionary Appropriations
(budget authority in billions of dollars) a
FY1999
FY1999
FY1998
FY1999
House
Senate
FY1999
final
request
Committee
Committee
enacted b
$7.7
$7.8
$7.7
$7.8
$7.8
Source: House Appropriations Committee unofficial staff table of October 26, 1998.
a Amounts shown are for discretionary programs funded by the L-HHS-ED appropriation bill;
mandatory programs funded through the L-HHS-ED bill and other laws are not included.
b The FY1999 enacted amount is based on P.L. 105-277; this amount may be modified through
further legislation during FY1999.
Mandatory programs for related agencies included in the L-HHS-ED bill were
funded at $24.4 billion in FY1998, of which $22.8 billion was for Supplemental
Security Income (SSI) activities and $0.6 billion was for Special Benefits for Disabled
Coal Miners.
Key Issues
The President’s Request. Major discretionary increases requested for related
agency programs include the following.
! An additional $90 million is proposed for the Corporation for Public
Broadcasting (CPB), of which $40 million is advance funded for FY2001 and
$50 million is proposed for a capital improvement program to begin the
transition of public broadcasting from analog to digital technology.
! $79 million additional funding is requested for discretionary activities under the
SSI program, including increased funds for continuing disability reviews
(CDRs), user fee activities, and termination of separate funding for
administrative activities related to welfare reform.
! $23 million additional is proposed for Domestic Volunteer Service Act
programs that are administered by the Corporation for National and
Community Service (CNCS), including VISTA and the National Senior
Service Volunteer Corps.
A decrease of $15 million is proposed for the Dual Benefits Payments Account
of the Railroad Retirement Board. For the SSA Limitation on Administrative

CRS-37
Expenses, a decrease of $40 million is proposed. For Library Services, $146 million
was initially provided for FY1998 through the ED appropriation, and then transferred
to the Institute of Museum and Library Services (IMLS); for FY1999, $146 million
is requested directly for the IMLS as an L-HHS-ED Related Agency.
The House Bill. At the Committee level, the House bill does not accept all of
the funding levels proposed in the President’s FY1999 budget.
! Advance funding for CPB would be increased by $40 million, as requested, but
the $50 million separate request for the Digital Transition Fund Initiative
would not be approved.
! The bill would provide a $23 million increase for SSI discretionary activities,
$50 million less than requested.
! The bill would reduce the VISTA program by $5 million and level fund the
remaining programs of the Domestic Volunteer Service Act, rather than
provide a funding increase of $23 million.
The Senate Bill. At the Committee level, the Senate bill differs from the House
proposal with regard to several programs.
! Advance funding for CPB would be the same as the House bill, but it would
provide $15 million to begin the Digital Transition Fund Initiative.
! The bill would provide an increase of $115 million for SSI discretionary
activities, $86 million more than the House and $36 million more than
requested.
! The bill would increase both VISTA and the National Senior Volunteer Corps
as requested, but level fund program administration for the Domestic
Volunteer Service Act as in the House bill.
! The bill would increase the NLRB by $9 million as requested, rather than the
level funding provided in the House bill.
Public Law. The FY1999 L-HHS-ED Appropriations Act under P.L. 105-277
provides funding levels for related agency programs similar to those in the President’s
budget request.
! The $50 million request for the CPB Digital Transition Initiative is funded at
$15 million, contingent on the enactment of a specific authorization by
September 30, 1999.
! The IMLS is funded at $166 million, $20 million more than the request and the
FY1998 amount.
! The SSA Limitation on Administrative Expenses is funded at $4.1 billion, $22
million less than the budget request and $44 million below the FY1998
amount.
For Additional Reading
CRS Issue Briefs.
CRS Issue Brief 95063. Public Broadcasting: Issues in the 105 Congress
th
, by
Bernevia McCalip.

CRS-38
CRS Reports.
CRS Report 97-646. Federal Aid to Libraries: The Library Services and
Technology Act, by Wayne C. Riddle.
CRS Report 98-422. Social Security and the Federal Budget: What Does Social
Security’s Being “Off Budget” Mean?, by David Stuart Koitz.
CRS Report 95-206. Social Security’s Treatment under the Federal Budget: a
Summary, by David Stuart Koitz.
CRS Report 94-486. Supplemental Security Income (SSI): a Fact Sheet, by Carmen
Solomon-Fears.
CRS Report 97-340. Supplemental Security Income (SSI) for Children: New Rules,
by Carmen Solomon-Fears.
Selected World Wide Web Sites.10
Armed Forces Retirement Home
[http://www.afrh.com]
Corporation for National and Community Service
[http://www.cns.gov]
[http://www.cns.gov/nsn/47.html]
Corporation for Public Broadcasting
[http://www.cpb.org]
[http://www.cpb.org/library/pressreleases/02.02.98.html]
Federal Mediation and Conciliation Service
[http://www.fmcs.gov]
Institute of Museum and Library Services
[http://www.imls.fed.us]
[http://www.imls.fed.us/budget.html]
Medicare Payment Advisory Commission
[http://www.propac.gov/index.htm]
National Labor Relations Board
[http://www.nlrb.gov]
10 Not all of the L-HHS-ED related agencies have web sites, and not all web sites include
FY1999 budget information.

CRS-39
Railroad Retirement Board
[http://www.rrb.gov]
[http://www.rrb.gov/budget_and_finances.html]
Social Security Administration
[http://www.ssa.gov]
[http://www.ssa.gov/budget/fy1999budget.html]
United States Institute of Peace
[http://www.usip.org]
Detailed Appropriation Table
Table 12 shows the appropriation details for offices and major programs of the
L-HHS-ED related agencies.

CRS-40
Table 12. Detailed Related Agencies Appropriations
($ in millions)
FY1999
FY1999
FY1998
FY1999
House
Senate
FY1999
Office or Major Program
final
request
Committee
Committee
enacted a
Armed Services
69
71
71
71
71
Retirement Home
Corporation for National and Community Service: Domestic Volunteer Service Act Programs b
—Volunteers in Service to
65
73
60
73
73
America (VISTA)
—National Senior
163
174
163
174
174
Volunteer Corps
—Program Administration
28
32
28
28
29
Domestic Volunteer
256
279
251
275
276
Service subtotal
Corporation for Public
300
340
340
340
340
Broadcasting (CPB), 2-
Year Advance
CPB Digital Transition
0
50
0
15
15
Fund Initiative c
Federal Mediation and
33
35
35
35
35
Conciliation Service
Federal Mine Safety and
6
6
6
6
6
Health Review Committee
Institute of Museum and
146
146
146
156
166
Library Services d
Medicare Payment
7
7
7
7
7
Advisory Commission
National Commission on
1
1
1
1
1
Libraries and Information
Science
National Council on
2
2
2
2
2
Disability
National Education Goals
2
2
2
2
2
Panel
National Labor Relations
175
184
175
184
184
Board
National Mediation Board
9
8
8
8
8
Occupational Safety and
8
8
8
8
8
Health Review
Commission
Railroad Retirement Board
194
180
180
178
178
Dual Benefits Payments
Railroad Retirement Board
93
91
91
96
96
Limitation on
Administration

CRS-41
FY1999
FY1999
FY1998
FY1999
House
Senate
FY1999
Office or Major Program
final
request
Committee
Committee
enacted a
Social Security Administration (SSA)
—SSA, Special Benefits
586
524
524
524
524
for Disabled Coal Minors
—SSA, Supplemental
22,763
28,981
28,981
28,988
28,988
Security Income (SSI),
mandatory
—SSA, Supplemental
2,287
2,366
2,316
2,402
2,366
Security Income (SSI),
discretionary
—SSA, Federal Funds,
20
20
20
20
20
Other
—SSA, Limitation on
4,122
4,082
4,063
4,060
4,060
Administrative Expenses
—SSA, Office of Inspector
48
52
56
50
56
General
SSA subtotal
29,826
36,025
35,960
36,044
36,014
United States Institute for
11
11
11
11
12
Peace
TOTALS, RELATED AGENCIES
Total Appropriations e
31,139
37,447
37,295
37,440
37,421
Source: Amounts are compiled from the H.R. 4328 conference report, H.Rept. 105-825, as printed
in the Congressional Record, daily edition, October 19, 1998.

a The FY1999 enacted amounts are based on P.L. 105-277; these amounts may be modified through
further legislation during FY1999.
b 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.

c The FY1999 appropriation is contingent on the enactment of a specific authorization by September
30, 1999.
d The FY1998 appropriations were initially made to ED and then transferred to the Institute; for
FY1999, funds are appropriated directly to the Institute as an L-HHS-ED Related Agency.

e The appropriations total includes discretionary and mandatory funds as well as scorekeeping and
other adjustments.

CRS-42
Related Legislative Activity
Several legislative items related to L-HHS-ED appropriations have been
considered by the 2 Session of the 105
nd
Congress, including supplementa
th
l
appropriations and rescissions for FY1998 and the congressional budget resolution
for FY1999.
P.L. 105-174 (H.R. 3579/S. 1768). The 1998 Supplemental Appropriations and
Rescissions Act. Among other provisions, this bill includes an additional $9.
11
0
million for the CDC Disease Control, Research, and Training program, and $2.2
million more for HCFA Program Management; an offsetting rescission of $11.2
million is made to the DHHS Health Professions Education Fund. In addition, $20
million of existing DHHS funds are made available for Year 2000 conversion activities
related to external contractor systems for Medicare. Modifications are made to
spending authority for DHHS General Departmental Management and ED Special
Education programs, and to general provisions for state child health plans and the
notification period for public comments on the final rule for Organ Procurement and
Transplantation Network. H.R. 3579 (conference report H.Rept. 105-504) was
signed into law by the President May 1, 1998.
P.L. 105-240 (H.J.Res. 128). The First FY1999 Continuing Resolution
provides appropriations on a temporary basis for most ongoing L-HHS-ED projects
and activities, including the costs of direct loans and loan guarantees, for the period
October 1 through October 9, 1998, unless a regular FY1999 L-HHS-ED
appropriations bill is enacted sooner. Funding is provided at the “current rate,
12
”
under FY1998 conditions and program authority. The resolution allows decreased
13
funding levels only in instances where the House, the Senate, and the President have
agreed to make a reduction, in which case the funding level would be the highest of
the amounts proposed by the House, the Senate, or the President. New initiatives are
prohibited, and extraneous provisions generally are excluded. Special provisions are
made for programs with high spend out rates that normally would occur early in the
fiscal year. The resolution deems that the House and Senate reported versions of the
FY1999 L-HHS-ED appropriations passed the House and Senate respectively as of
October 1, 1998, for purposes of the continuing resolution. H.J.Res. 128 passed the
House by a vote of 421 to 0 on September 17, 1998; it was passed by unanimous
consent by the Senate on the same day. H.J.Res. 128 was signed into law by the
President September 25, 1998.

11 For a summary of provisions, see CRS Report 98-123, Supplemental Appropriations and
Rescissions for FY1998, by Larry Nowels, Coordinator.
12 For background on continuing resolutions, see CRS Report 98-800, Fiscal Year 1999
Continuing Resolutions, by Sandy Streeter, Coordinator.
13 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 FY1998 amounts stated in this
report.

CRS-43
P.L. 105-249 (H.J.Res. 133). The Second FY1999 Continuing Resolution
extends the provisions of P.L. 105-240 to the period October 1 through October 12,
1998. H.J.Res. 133 passed the House by a vote of 421-0 (roll call #511) October 9,
1998; passed the Senate by unanimous consent on the same day; and was signed into
law by the President on the same day.
P.L. 105-254 (H.J.Res. 134). The Third FY1999 Continuing Resolution
extends the provisions of P.L. 105-240 to the period October 1 through October 14,
1998. H.J.Res. 134 passed the House by voice vote October 12, 1998; passed the
Senate by unanimous consent on the same day; and was signed into law by the
President on the same day.
P.L. 105-257 (H.J.Res. 135). The Fourth FY1999 Continuing Resolution
extends the provisions of P.L. 105-240 to the period October 1 through October 16,
1998. H.J.Res. 135 passed the House by voice vote October 14, 1998; passed the
Senate by unanimous consent on the same day; and was signed into law by the
President on the same day.
P.L. 105-260 (H.J.Res. 136). The Fifth FY1999 Continuing Resolution
extends the provisions of P.L. 105-240 to the period October 1 through October 20,
1998. H.J.Res. 136 passed the House by voice vote October 16, 1998; passed the
Senate by unanimous consent on the same day; and was signed into law by the
President on the same day.
P.L. 105-273 (H.J.Res. 137). The Sixth FY1999 Continuing Resolution
extends the provisions of P.L. 105-240 to the period October 1 through October 21,
1998. H.J.Res. 137 passed the House by voice vote October 19, 1998; passed the
Senate by unanimous consent on October 20; and was signed into law by the
President on October 20, 1998.
H.Con.Res. 284 (S.Con.Res. 86). The FY1999 concurrent resolution on the
budget sets annual levels for the federal budget through FY2003. The resolutio
14
n
establishes the aggregate discretionary spending limit for the 13 regular appropriations
bills, known as the 302(a) allocation, and specifies the budget reconciliation process
for the modification of mandatory spending limits, if necessary. The resolution sets
spending targets for functional categories of the budget, and contains “sense of the
Congress” provisions. Report language indicates the funding assumptions made for
selected programs that might be used to reach the spending targets. However, the
final spending figures at the program level are left for appropriations bills. S.Con.Res.
86 (S.Rept. 105-170) was amended and passed by the Senate April 4, 1998.
H.Con.Res. 284 (H.Rept. 105-555) was amended and passed by the House June 5,
1998. The Senate passed H.Con.Res. 284, amended in lieu of S.Con.Res. 86, June
15, 1998, and appointed conferees for a conference with the House; there has been
no formal action since then.

14 For a summary of the social services provisions of the budget resolutions, please see CRS
Report 98-415, Federal Budget: Social Spending Targets in the FY1999 Senate Budget
Resolution, by Dawn Nuschler, and CRS Report 98-521, Federal Budget: Social Spending
in the FY1999 House Budget Resolution, by Dawn Nuschler.

CRS-44
Earlier Action on Appropriations in the 105 Congress.
th
In action during the
1
st Session of the 105th Congress, most L-HHS-ED appropriations for FY1998 were
provided by P.L. 105-78, the Departments of Labor, Health and Human Services, and
Education, and Related Agencies Appropriations Act, 1998 (H.R. 2264, conference
report H.Rept. 105-390), which was signed into law by the President November 13,
1997.
15 The President did not exercise the line item veto authority with respect to any
of the P.L. 105-78 appropriations. Other legislation in the 105 Congress related to
th
the FY1998 L-HHS-ED appropriations includes the following:
! The FY1998 congressional budget resolution, H.Con.Res. 84 (conference
report H.Rept. 105-116), 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 (H.R. 2015), the
Balanced Budget Act of 1997, amended entitlement provisions, and P.L. 105-
34 (H.R. 2014), the Taxpayer Relief Act of 1997, amended tax code
provisions.
! Five continuing resolutions provided temporary FY1998 funding for L-HHS-
ED programs prior to enactment of P.L. 105-78 (P.L. 105-46, P.L. 105-64,
P.L. 105-68, P.L. 105-69, and P.L. 105-71).

15 For details on FY1998 appropriations, please see CRS Report 97-203, Appropriations for
FY1998: Labor, Health and Human Services, and Education, by Paul M. Irwin.

CRS-45
Appendix A: Terminology
Appropriation
16 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, that is, all funds other than trust 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.
Scorekeeping is a set of procedures used to measure the effects of congressional
budgetary actions in terms of the Budget Enforcement Act.
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.
16 These definitions are based on CRS Report 91-902, Manual on the Federal Budget
Process, by Allen Schick, et al.

CRS-46
Appendix B: Scope of the L-HHS-ED Bill
The total budget authority for programs in all federal departments and agencies
is estimated to be $1,687.3 billion in FY1998, as shown in Table B.1. Of this
amount, $842.0 billion is the estimated total for the departments and related agencies
represented in the L-HHS-ED bill, or 49.9% of all federal budget authority.
Table B.1. Scope of the L-HHS-ED Bill
(Estimated FY1998 budget authority in billions)
Estimated
Percent of
amount in
total federal
Budget Category
billions
budget
Total Federal Budget
1,687.3
100.0%
U.S. Department of Labor
34.6
2.1%
U.S. Department of Health and Human Services
362.6
21.5%
U.S. Department of Education
34.8
2.1%
Social Security Administration (On-budget)
37.0
2.2%
Social Security Administration (Off-budget)
371.7
22.0%
Other Related Agencies
1.3
0.1%
L-HHS-ED Agency Total
842.0
49.9%
L-HHS-ED Bill, Total Current Year Funds
271.4
16.1%
L-HHS-ED Bill, Current Year Mandatory Funds
191.0
11.3%
L-HHS-ED Bill, Current Year Discretionary Funds
80.4
4.8%
Total Federal Discretionary Funds
552.7
38.2%
Source: Budget of the United States Government Historical Tables Fiscal Year 1999, table
5.2, and H.Rept. 105-635.
The estimated L-HHS-ED appropriation was $271.4 billion in current funds for
FY1998. Of this amount, discretionary funds are estimated at $80.4 billion;
mandatory funds constitute the remainder. The L-HHS-ED appropriations
Committees generally have effective control only over the discretionary funds. These
discretionary funds constitute approximately 4.8% of the aggregate budget authority
for all federal departments and agencies, and 9.5% of the total budget authority for
L-HHS-ED departments and agencies. What accounts for the re
17
maining L-HHS-ED
funds?
17 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-47
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 $271.4 billion and the
agency total of $842.0 billion in FY1998. Social security benefits, unemployment
compensation, Medicare, railroad retirement, Temporary Assistance for Needy
Families (TANF, the welfare reform program), and student loans are the major
programs in this group.18
Second, mandatory programs account for the difference between the
L-HHS-ED total of $271.4 billion and the subtotal of $80.4 billion for discretionary
funds in FY1998. 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 Supplemental Security Income,
Black Lung payments, and the Social Services Block Grant, 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, which is funded in the Agriculture
appropriations bill;
! the Indian Health Service in the Interior bill; and
! the Office of Consumer Affairs in the Veterans Affairs and Housing and Urban
Development bill.
In addition, the Corporation for National and Community Service, one of the related
agencies programs, 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.

18 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 $842.0 billion total for
L-HHS-ED departments and agencies in FY1998, the SSA accounted for $408.7 billion, or
48.5% of the total. The SSA amount represents $37.0 billion for designated on-budget
activities and $371.7 billion for off-budget activities.