Department of Homeland Security Appropriations: FY2021

May 24, 2021 R46802

Department of Homeland Security
May 24, 2021
Appropriations: FY2021
William L. Painter
In February 2020, the Trump Administration requested an overall FY2021 Department of
Specialist in Homeland
Homeland Security (DHS) budget that the Office of Management and Budget (OMB) estimated
Security and
to be $75.84 billion. The Congressional Budget Office estimated that the request included almost
Appropriations
$49.71 billion in adjusted net discretionary budget authority to be provided through the

appropriations process. The request would have amounted to a $0.75 billion (1.5%) decrease
from the $50.47 billion in net annual appropriations enacted for FY2020 through the Department

of Homeland Security Appropriations Act, 2020 (P.L. 116-93, Division D). However, as the
Trump Administration requested moving the U.S. Secret Service (USSS) from DHS to the Department of the Treasury, the
request was $2.63 billion lower than budget experts would have otherwise expected.
The Trump Administration also requested some discretionary funding for DHS components that does not count against
discretionary spending limits and is not reflected in the adjusted net discretionary budget authority total. The Trump
Administration requested an additional $5.06 billion for the Federal Emergency Management Agency (FEMA) in disaster
relief funding, as defined by the Budget Control Act (P.L. 112-25; BCA). Unlike previous years, the Trump Administration
made no request for a budget adjustment for Overseas Contingency Operations (OCO) funding for the U.S. Coast Guard
(USCG), instead counting those costs against the discretionary budget caps.
On July 15, 2020, the House Appropriations Committee marked up H.R. 7669, its version of the Department of Homeland
Security Appropriations Act, 2021. H.Rept. 116-458 was filed July 20, 2020. Committee-reported H.R. 7669 included $50.69
billion in adjusted net discretionary budget authority. This was $0.98 billion (2.0%) above the level requested by the Trump
Administration, and $0.22 billion (0.4%) above the enacted annual level for FY2020. Much of this increase was accounted
for by the rejection of the proposed move of the USSS, but also reflected a net $1.04 billion increase in the discretionary
budget for the Transportation Security Administration; it was balanced by reductions from the requested discretionary
funding level for Immigration and Customs Enforcement (ICE) and U.S. Customs and Border Protection (CBP) of $2.51
billion and $1.15 billion, respectively.
As no annual appropriations for FY2021 had been enacted as FY2020 was drawing to a close, on October 1, 2020, a
continuing resolution (P.L. 116-159) was enacted, temporarily extending funding for most DHS programs at the FY2020 rate
for operations through December 11, 2020 (see limited exceptions to this in the Department of Homeland Security section of
CRS Report R46582, Overview of Continuing Appropriations for FY2021 (P.L. 116-159).
On November 10, 2020, the Senate Appropriations Committee majority released draft bill text and explanatory statements for
each of the twelve annual appropriations bills as a part of negotiations toward a consolidated appropriations measure. The
Senate Appropriations majority draft bill for DHS for FY2021 included $52.62 billion in adjusted net discretionary budget
authority. This was $2.91 billion (5.9%) above the level requested by the Trump Administration, and $2.15 billion (4.2%)
above the enacted annual level for FY2020. Much of the difference between the House-reported and Senate majority-drafted
bills was the inclusion of $1.96 billion in funding for border barriers in the Senate majority draft that was not included in
H.R. 7669.
Negotiations ultimately resulted in a consolidated measure (P.L. 116-260) that included all the annual appropriations
measures for FY2021, a COVID-19 emergency relief package, and a variety of other non-appropriations bills. The negotiated
bill included $51.88 billion in adjusted net discretionary budget authority for DHS for FY2021. This was $2.16 billion (4.4%)
above the level requested by the Trump Administration, and $1.41 billion (2.8%) above the enacted annual level for FY2020.
In addition to the annual appropriations for DHS contained in Division F, the bill also included $2 billion in emergency
supplemental appropriations in Division M specifically for funeral expenses related to COVID-19, to be paid through
FEMA’s Disaster Relief Fund (DRF).
Supplemental appropriations were also provided for DHS in the American Rescue Plan Act (ARPA; P.L. 117-2). ARPA
included $51.56 billion in mandatory funding for DHS: $50 billion for the DRF, $910 million for other FEMA grants, and
$650 million for the Cybersecurity and Infrastructure Security Agency.
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Introduction
This report describes and analyzes the FY2021 annual appropriations for the Department of
Homeland Security (DHS). It compares the enacted FY2020 appropriations for DHS, the Donald
J. Trump Administration’s FY2021 budget request, and the appropriations measures developed
and considered by Congress in response to it. This report identifies additional informational
resources, reports, and products on DHS appropriations that provide context for the discussion. A
list of Congressional Research Service (CRS) policy experts with whom congressional clients
may consult on specific topics may be found in CRS Report R42638, Appropriations: CRS
Experts.
This is one of a suite of CRS reports on homeland security appropriations that track legislative
action and congressional issues related to DHS appropriations, with particular attention paid to
discretionary funding amounts. These reports do not provide in-depth analysis of specific issues
related to mandatory funding—such as retirement pay—nor do they systematically follow other
legislation related to the authorizing or amending of DHS programs, activities, or fee revenues.
Discussion of appropriations legislation involves a variety of specialized budgetary concepts. The
Appendix to this report explains several of these concepts, including budget authority,
obligations, outlays, discretionary and mandatory spending, offsetting collections, allocations,
and adjustments to the discretionary spending caps under the Budget Control Act (P.L. 112-25,
BCA). A more complete discussion of those terms and the appropriations process in general can
be found in CRS Report R42388, The Congressional Appropriations Process: An Introduction,
coordinated by James V. Saturno, and the Government Accountability Office’s (GAO’s) A
Glossary of Terms Used in the Federal Budget Process.1
Describing DHS Funding: Terminology
The annual DHS budget proposal is complex and includes a variety of funding mechanisms.2 The funding provided
through these mechanisms can be totaled in several different ways to summarize what is in the bil . These
calculations answer slightly different questions: how the bil fits into the budget process, the level of resources
provided to the agency, and the net cost of the bil to the U.S. government.

Discretionary appropriations include all the discretionary budget authority charged against the appropriations
subcommittee’s allocation.3 It excludes special y designated funding (like emergency funding) and mandatory
spending. This amount helps il uminate how the bil fits into the congressional budget process.

Discretionary funding is a term used in appropriations committee tables to indicate a broader total, which
includes discretionary appropriations as well as special y designated funding (e.g., emergency, overseas
contingency operations, and disaster relief designations)—representing a more comprehensive total of the

1 U.S. Government Accountability Office, A Glossary of Terms Used in the Federal Budget Process, GAO-05-734SP,
September 1, 2005, http://www.gao.gov/products/GAO-05-734SP.
2 For example, the FY2021 request envisioned an appropriations bill that included discretionary appropriations—
budget authority that is provided to the department through appropriations acts; appropriations that are offset by agency
collections, such as user fees, resulting in no net effect on the budget; funding that is not subject to the discretionary
spending limits due to special designation; transfers of appropriated budget authority between components;
appropriations that are considered to be mandatory spending; and rescissions—cancellation of budget authority that
otherwise would be available for obligation and thus offsets other spending charged to the bill. Also credited to the
discretionary spending in the bill are two elements of “permanent indefinite discretionary spending” that are not
included in the actual appropriations bill but are included in the discretionary spending total of the bill because of
scorekeeping practices. For a discussion of these mechanisms, see the Appendix.
3 For a discussion of allocations of discretionary budget authority, see the Appendix.
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resources provided through appropriations measures. This is the definition of the term as it is used in this
report,4 and is a more complete measure of what is being provided by the bil to DHS.

When these appropriations or funding totals are described as net, they describe a total reduced by offsets,
such as offsetting col ections and fees. This makes the term a better description of the impact of an
appropriations act on the balance sheet of the U.S. government rather than the actual level of resources
provided by Congress in a given act.
In a departure from the practices of many other agencies, in DHS budget documents, the term net discretionary
budget authority does not take into account the impact of rescissions—only offsets through col ections. DHS
documents refer to adjusted net discretionary budget authority to indicate the discretionary appropriations
net that includes both offsetting col ections and rescissions. This is the total that counts against discretionary
spending limits, and it is the total used most commonly in congressional debate about the size of appropriations
legislation. To avoid confusion when readers interpret DHS documents, CRS reporting on DHS appropriations
uses the latter term to describe that total.
Note on Data and Citations
All amounts contained in CRS reports on homeland security appropriations represent budget
authority. For precision in percentages and totals, all calculations in these reports use unrounded
data, which are presented in each report’s tables. Amounts in narrative discussions may be
rounded to the nearest million (or 10 million, in the case of numbers larger than 1 billion), unless
noted otherwise.
Data used in this report for FY2020 annual appropriations are derived from the conference report
accompanying P.L. 116-93, the Consolidated Appropriations Act, 2020.5 Division D of P.L. 116-
93 is the Department of Homeland Security Appropriations Act, 2020.
P.L. 116-136 (the Coronavirus Aid, Relief, and Economic Security Act, or “CARES Act”) was the
only enacted measure providing supplemental appropriations for DHS in FY2020; information on
its content is drawn directly from the public law text.
Data for the FY2021 requested levels and House Appropriations Committee-recommended levels
of annual appropriations are drawn from H.Rept. 116-458, the report accompanying H.R. 7669.
Data for the FY2021 Senate committee majority’s draft position is from the draft bill and
explanatory statement released by the Senate Appropriations Committee on November 10, 2020.6
Scoring methodology is consistent across this report, relying on data provided by the
Appropriations Committees that has been developed with Congressional Budget Office (CBO)
methodology. CRS does not attempt to compare this data with Office of Management and Budget
(OMB) data because technical scoring differences at times do not allow precise comparisons.
Note: Some previous CRS reports on DHS appropriations have used OMB data on mandatory
spending for the Federal Emergency Management Agency and the U.S. Secret Service that was
not listed in appropriations committee documentation—for consistency, OMB data on mandatory
spending is no longer included in this report.

4 This definition is drawn from the term’s usage in the detail tables provided in multiple House Appropriations
Committee reports, conference reports, and explanatory statements. It should be noted that this term has also been used
as shorthand for the adjusted net discretionary budget authority in some appropriations committee communications.
5 U.S. Congress, House Committee on Appropriations, Consolidated Appropriations Act, 2020, committee print, 116th
Cong., 2nd sess., January 1, 2020, H.Prt. 38-678 (Washington: GPO, 2020), pp. 715-778, https://www.govinfo.gov/app/
details/CPRT-116HPRT38679/CPRT-116HPRT38679.
6 The texts of both are available at https://www.appropriations.senate.gov/news/committee-releases-fy21-bills-in-effort-
to-advance-process-produce-bipartisan-results.
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Legislative Action on FY2021 DHS Appropriations
This section provides an overview of the legislative process thus far for appropriations for the
Department of Homeland Security for FY2021, from the Administration’s initial request, through
enactment of annual appropriations in P.L. 116-260 and supplemental appropriations in the
American Rescue Plan Act (P.L. 117-2).
Annual Appropriations
Trump Administration FY2021 Request
The Trump Administration requested an overall FY2021 DHS budget that the Office of
Management and Budget (OMB) estimated to be $75.84 billion. The Congressional Budget
Office estimated that the request included almost $49.71 billion in adjusted net discretionary
budget authority to be provided through the appropriations process. The request amounted to a
$0.75 billion (1.5%) decrease from the $50.47 billion in net annual appropriations enacted for
FY2020 through the Department of Homeland Security Appropriations Act, 2020 (P.L. 116-93,
Division D). However, as the Administration requested moving the U.S. Secret Service (USSS)
from DHS to the Department of the Treasury, the request is $2.63 billion lower than budget
experts would have otherwise expected.
The Trump Administration also requested discretionary funding for the Federal Emergency
Management Agency (FEMA) that did not count against discretionary spending limits and is not
reflected in the adjusted net discretionary budget authority total. The Trump Administration
requested an additional $5.06 billion for FEMA in disaster relief funding, as defined by the
Budget Control Act (BCA; P.L. 112-25). Unlike previous years, the Trump Administration made
no request for a budget adjustment for Overseas Contingency Operations (OCO) funding for the
U.S. Coast Guard (USCG), instead counting those costs against the discretionary budget caps.
House Committee Action
On July 15, 2020, the House Appropriations Committee marked up H.R. 7669, its version of the
Department of Homeland Security Appropriations Act, 2021. H.Rept. 116-458 was filed July 20,
2020. Committee-reported H.R. 7669 included $50.69 billion in adjusted net discretionary budget
authority. This was $0.98 billion (2.0%) above the level requested by the Trump Administration,
and $0.22 billion (0.4%) above the enacted annual level for FY2020. Much of this increase was
accounted for by the rejection of the proposed move of the USSS, but also reflected a net $1.04
billion increase in the discretionary budget for the Transportation Security Administration;
balanced by reductions from the requested discretionary funding level for Immigration and
Customs Enforcement (ICE) and U.S. Customs and Border Protection (CBP) of $2.51 billion and
$1.15 billion, respectively.
H.R. 7669 was not brought to the House floor before the end of FY2020—one of two annual
appropriations measures for FY2021 to be reported by the House Appropriations Committee that
did not get floor consideration.
Continuing Resolution
As no annual appropriations for FY2021 had been enacted as FY2020 was drawing to a close, on
October 1, 2020, a continuing resolution (CR) was enacted (P.L. 116-159), temporarily extending
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funding for most DHS components and programs at the FY2020 rate for operations through
December 11, 2020.
P.L. 116-159 included several provisions making it easier for DHS to operate as needed under a
CR:
 Section 141 allowed funds to be allocated in accordance with a planned
restructuring of some DHS management activities;
 Section 142 extended the authority for the U.S. Coast Guard to use
appropriations to pay for activities that would normally be covered by fees;
 Section 143 extended the authority for the Great Lakes Pilotage Advisory
Committee;
 Section 144 allowed funds to be allocated in accordance with a planned
restructuring of DHS cybersecurity activities;
 Section 145 allowed for an accelerated rate of apportionment for the Disaster
Relief Fund (DRF) to ensure that the programs it funds could be carried out; and
 Section 146 extended the authority for the National Flood Insurance Program to
issue new policies.
In addition, Section 101(6) extended by reference some immigration provisions that have been
linked to the appropriations cycle.
For further information on the FY2021 continuing resolutions, see CRS Report R46582,
Overview of Continuing Appropriations for FY2021 (P.L. 116-159).
Consolidated Appropriations Negotiations
On November 10, 2020, the chair of the Senate Committee on Appropriations, Senator Richard
Shelby, released drafts of all 12 annual appropriations bills along with draft accompanying
explanatory statements.7 The release of the draft bills was intended to further negotiations on
annual appropriations between the House and the Senate.8
The Senate Appropriations majority draft bill for DHS for FY2021 included $52.62 billion in
adjusted net discretionary budget authority. This was $2.91 billion (5.9%) above the level
requested by the Trump Administration, and $2.15 billion (4.2%) above the enacted annual level
for FY2020. Much of the difference between the House-reported and Senate majority-drafted
bills reflected the inclusion of $1.96 billion in funding for border barriers in the Senate majority
draft that was not included in H.R. 7669.
Consolidated Appropriations Enactment
Negotiations ultimately resulted in a consolidated measure that included all the annual
appropriations measures for FY2021, a COVID-19 emergency relief package, and a variety of
other non-appropriations bills. The negotiated bill included $51.88 billion in adjusted net
discretionary budget authority for DHS for FY2021. This was $2.16 billion (4.4%) above the

7 The 12 draft bills and explanatory statements are on the Committee’s website linked to the majority press release at
https://www.appropriations.senate.gov/news/committee-releases-fy21-bills-in-effort-to-advance-process-produce-
bipartisan-results.
8 Ibid. See also the statement from the Senate Appropriations Committee Vice Chair, Senator Patrick Leahy, at
https://www.appropriations.senate.gov/news/minority/senate-approps-vice-chair-leahy-statement-on-the-release-of-the-
fy-2021-senate-appropriations-bills-.
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level requested by the Trump Administration, and $1.41 billion (2.8%) above the enacted annual
level for FY2020. In addition to the annual appropriations for DHS as Division F, Division M of
the measure also included $2 billion in emergency supplemental appropriations specifically for
funeral expenses related to COVID-19 to be paid through FEMA’s DRF.
The consolidated measure was attached as an amendment to H.R. 133, an unrelated bill that had
passed the Senate. The consolidated measure passed the House on December 21, 2020, with two
motions. A motion to agree to four annual appropriations bills (Commerce, Justice, Science, and
the Judiciary; Defense; Homeland Security; and Financial Services and General Government)
passed 327-85, and a second motion to agree to the rest of the negotiated package passed 359-53.
The Senate passed the bill later that night by a vote of 92-6. After criticizing a range of provisions
in the consolidated package, President Trump signed in bill into law (P.L. 116-260) on December
27, 2020.
Supplemental Appropriations for FY2021
Two DHS components—FEMA and the Cybersecurity and Infrastructure Security Agency
(CISA)—received supplemental appropriations in the American Rescue Plan Act (ARPA; P.L.
117-2). Normally, supplemental appropriations would be included in the figures and tables
throughout this report. However, the appropriations provided were mandatory spending, rather
than typical discretionary appropriations: to keep these technically different funding streams
separate, they are not included in the funding lines of Table 3 (with the details of their component
funding), except in the dedicated mandatory spending and “Total Budgetary Resources” lines.
Details of the funding are provided in Table 1.
Table 1. DHS Funding Provided in P.L. 117-2
(mandatory budget authority in thousands of dollars)
Component / Section: “stated purpose”
Amount
Cybersecurity and Infrastructure Security Agency

Sec. 4009: “for cybersecurity risk mitigation.”
$650,000
Federal Emergency Management Agency

Sec. 4005: “to carry out the purposes of the Disaster Relief Fund for costs associated
$50,000,000
with major disaster declarations.”
Sec. 4007: “for the emergency food and shelter program.”
$400,000
Sec. 4008: “for the emergency food and shelter program for the purposes of providing
$110,000
humanitarian relief to families and individuals encountered by the Department of
Homeland Security.”
Sec. 4013: “assistance to firefighter grants and . . staffing for adequate fire and emergency
$100,000 / $200,000
response grants.”
Sec. 4014: “for emergency management performance grants.”
$100,000
Source: CRS analysis of P.L. 117-2.
Notes: Funding in P.L. 117-2 was not provided within the traditional DHS appropriations structure. Funding was
designated for specific purposes in a more general framework.
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Summary of DHS Appropriations
Generally, the homeland security appropriations bill includes all annual appropriations provided
for DHS, allocating resources to every departmental component.9 Discretionary appropriations10
provide roughly two-thirds to three-fourths of the annual funding for DHS operations, depending
on how one accounts for disaster relief spending and funding for OCO.11 The remainder of the
budget is a mixture of fee revenues, trust funds, and mandatory spending.
Annual appropriations measures for DHS are usually organized into five titles.12 The first four are
thematic groupings of components, while the fifth provides general direction to the department,
and sometimes includes provisions providing additional budget authority.
The DHS Common Appropriations Structure (CAS)
When DHS was established in 2003, components of other agencies were brought together over a
matter of months, in the midst of ongoing budget cycles. Rather than developing a new structure
of appropriations for the entire department, Congress and the Administration continued to provide
resources through existing account structures when possible.
At the direction of Congress, in 2014 DHS began to work on a new Common Appropriations
Structure (CAS), which would standardize the format of DHS appropriations across components.
In an interim report in 2015, DHS noted that operating with “over 70 different appropriations and
over 100 Programs, Projects, and Activities ... has contributed to a lack of transparency, inhibited
comparisons between programs, and complicated spending decisions and other managerial
decision-making.”13
After several years of work and negotiations with Congress, DHS implemented the CAS while
operating under a CR in October 2016, and the Administration made its first budget request under
the CAS for FY2017.14 Under the CAS, legacy appropriations structures were largely converted
to a four-category structure:

9 Although most appropriations are available for only one year, not all appropriations are spent in the year they are
provided. Some appropriations, such as those for Procurement, Construction, and Improvements, are available for
multiple years. Others, such as those for the Disaster Relief Fund (DRF), never expire, and are available until they are
used or rescinded.
10 Generally speaking, appropriations provided through annual legislation. For more detail, see the text box above and
Appendix.
11 These items, which qualify for special designation under the Budget Control Act, provide discretionary budget
authority to the Department of Homeland Security (DHS) components but are not included in the “appropriations” total
for the bill at the end of the detail tables in the committee reports.
12 Although the House and Senate have generally produced symmetrically structured bills in the past, additional titles
are sometimes added by one of the chambers to address special issues. For example, the FY2012 House full committee
markup added a sixth title to carry a $1 billion emergency appropriation for the Disaster Relief Fund. The Senate
version carried no additional titles beyond the five described above. For FY2017, the House and Senate committee bills
took different approaches to restructuring appropriations and departmental functions, and ultimately, a sixth title was
added to provide supplemental appropriations requested by the then-new Trump Administration.
13 Office of the Chief Financial Officer, A Common Appropriations Structure for DHS: FY2016 Crosswalk, U.S.
Department of Homeland Security, February 2, 2015, p. 2.
14 For FY2017 and FY2018, all DHS components requested appropriations under the Common Appropriations
Structure (CAS) except for the U.S. Coast Guard, due to constraints of its financial management system and statutory
authorizations. For FY2019, all the components’ requests generally conformed to the CAS.
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1. Operations and Support, which covers operating salaries and expenses;
2. Procurement, Construction, and Improvements, which funds planning,
operational development, engineering, purchase, and deployment of assets to
support component missions;
3. Research and Development, which provides resources needed to identify,
explore, and demonstrate new technologies and capabilities to support
component missions; and
4. Federal Assistance, which supports grant funding managed by DHS
components.
All DHS components have an Operations and Support (O&S) appropriation. All DHS operational
components and some DHS support and headquarters components have a Procurement,
Construction, and Improvements (PC&I) appropriation. Research and Development (R&D)
appropriations are less common, and only FEMA, the Countering Weapons of Mass Destruction
Office (CWMD), and U.S. Citizenship and Immigration Services (USCIS) have federal assistance
appropriations.
Even with the implementation of the CAS structure, some appropriations are not included in the
four categories, including:
 Federal Protective Service: The Federal Protective Service (FPS), which has
been a part of several different components of DHS, does not have an
appropriation of an explicit amount. Rather, the appropriations measure has
language directing that funds credited to the FPS account may be spent by FPS to
carry out its mission. It therefore has a net-zero impact on the total net
discretionary spending in the bill.
 USCG’s Retired Pay: The Coast Guard’s Retired Pay appropriation supports the
costs of the U.S. Coast Guard (USCG) retired personnel entitlements, including
pensions, Survivor Benefits Plans, and medical care of retired USCG personnel
and their dependents. This appropriation is categorized as appropriated
mandatory spending: although the U.S. government has a legal obligation to
make these payments, there is no permanent statutory mechanism in place to
provide the funds. Because the government is required to make these payments,
the Retired Pay appropriation does not count against the discretionary allocation
of the bill.
 FEMA’s Disaster Relief Fund: FEMA receives a separate appropriation for its
activities authorized under the Robert T. Stafford Disaster Relief and Emergency
Assistance Act (42 U.S.C. §5121 et seq.). This allows for more consistent
tracking of FEMA’s disaster assistance spending over time, and ensures more
transparency into the availability of funds for disaster assistance versus FEMA’s
other grant activities, which are funded through the Federal Assistance
appropriation.
 FEMA’s National Flood Insurance Fund: The National Flood Insurance
Program is largely mandatory spending. However, some program functions,
including mission support, floodplain management, and flood mapping, are paid
for through discretionary appropriations. Certain other program costs are paid for
by fees collected by the government, and require appropriations language to
allow those resources to be spent. These include:
o Operating expenses and salaries and expenses associated with flood
insurance operations;
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o Commissions and taxes of agents;
o Interest on borrowings from the Treasury; and
o Flood mitigation actions and flood mitigation assistance.
Administrative and General Provisions
Prior to the FY2017 act, the provisos accompanying many appropriations included directions to
components or specific conditions on how the provided budget authority could be used. Similarly,
general provisions give directions or conditions to one or more components. In the FY2017 act, a
number of provisions within appropriations and component-specific general provisions were
grouped at the ends of the titles where their targeted components are funded, and identified as
“administrative provisions.”15 This practice has continued in subsequent years.
Due to the passage of time or enactment of permanent legislation, a provision may require
adjustment or lose its relevance. Other provisions are the priority of members in one chamber or
another, and as the enacted bill represents a compromise between those positions, the bills
developed by one chamber may not necessarily reflect the other chamber’s priorities.
Appropriations and Recent Structural Change Proposals at DHS
Structural changes to DHS, ratified by Congress through authorization or appropriations legislation, can affect
comparisons of funding across years. Statutory changes made by two laws can be seen in recent DHS
appropriations actions.
The Cybersecurity and Infrastructure Security Agency Act of 2018 (P.L. 115-278) renamed the National
Protection and Programs Directorate (NPPD) as the Cybersecurity and Infrastructure Security Agency (CISA),
moved the Office of Biometric Identity Management (OBIM) out of CISA and into the Management Directorate of
DHS, and started the process of transferring the Federal Protective Service (FPS) out of CISA, pending the result
of a GAO review.
The FY2019 enacted appropriations for DHS and the Administration’s FY2020 budget request reflect the
renaming of NPPD to CISA and shift of OBIM, while the FY2020 appropriation was the first to include FPS within
the Management Directorate.
The Countering Weapons of Mass Destruction Act of 2018 amended the Homeland Security Act of 2002 (P.L.
107-296), combining all the personnel and resources of the Domestic Nuclear Detection Office and Office of
Health Affairs into the Countering Weapons of Mass Destruction Office. Since the bil was enacted in December
2018, the Senate did not present its FY2019 DHS Appropriations bil with funding for the new office, as it had yet
to be authorized, instead providing direction and funding in the legacy structure for the two components.
As part of the FY2021 budget proposal, the Trump Administration proposed shifting the U.S. Secret Service from
DHS to the Department of the Treasury. Both House Appropriations Committee-reported H.R. 7669 and the
Senate Appropriations Committee majority draft declined to fol ow this proposal, as did P.L. 116-260.
DHS Appropriations: Summary by Component Type
The following sections of the report discuss the appropriations provided for the department by
type of component. It groups the 15 components of DHS into the following structure:
 Law Enforcement Operational Components (funded in Title II)
o U.S. Customs and Border Protection
o Immigration and Customs Enforcement
o Transportation Security Administration

15 The detail table at the end of the explanatory statement notes the budget authority provided by these provisions, as
well as budget authority that scorekeeping rules mandate be included in the act’s total spending.
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o U.S. Coast Guard
o U.S. Secret Service
 Incident Response and Recovery Operational Components (Title III)
o Cybersecurity and Infrastructure Security Agency
o Federal Emergency Management Agency
 Support Components (Title IV)
o U.S. Citizenship and Immigration Services
o Federal Law Enforcement Training Center
o Science and Technology Directorate
o Countering Weapons of Mass Destruction Office
 Headquarters Components (Title I)
o Office of the Secretary and Executive Management
o Departmental Management Directorate
o Analysis and Operations
o Office of Inspector General
Each group’s and component’s role is briefly described below, and their FY2020 enacted and
FY2021 requested and recommended appropriations are presented in associated tables arranged
by grouped components.
Law Enforcement Operational Components
Funding for law enforcement operational components is generally provided in Title II of the DHS
appropriations acts. This is the largest title of the bill, although not all of DHS’s largest
components are included in it.
Components and Missions
U.S. Customs and Border Protection (CBP): CBP is responsible for securing America’s
borders, coastlines, and ports of entry, thus preventing the illegal entry of persons and goods
while facilitating lawful travel, trade, and immigration.16
Immigration and Customs Enforcement (ICE): ICE is the principal criminal investigative
agency within DHS, and is charged with preventing terrorism and combating the illegal
movement of people and goods.17
Transportation Security Administration (TSA): TSA provides security for the U.S.
transportation system while ensuring the free and secure movement of people and goods.18
U.S. Coast Guard (USCG): The USCG is the principal federal agency responsible for maritime
safety, security, and environmental stewardship in U.S. ports and inland waterways. The USCG is
a hybrid of a law enforcement agency, regulatory agency, and first responder, as well as being a

16 Department of Homeland Security, Budget-in-Brief, Fiscal Year 2020, Washington, DC, p. 18, https://www.dhs.gov/
publication/fy-2020-budget-brief (hereinafter Budget-in-Brief).
17 Ibid., p. 24.
18 Ibid., p. 30.
Congressional Research Service

9

link to page 15 Department of Homeland Security Appropriations: FY2021

component not only of DHS, but also of the intelligence community, and of the U.S. Armed
Forces.19
U.S. Secret Service (USSS): The USSS is responsible for protecting the President, the Vice-
President, their families and residences, past Presidents and their spouses, national and world
leaders visiting the United States, designated buildings (including the White House and Vice
President’s Residence), and special events of national significance. The USSS also investigates
and enforces laws related to counterfeiting and certain financial crimes.20
Table 2 includes a breakdown of budgetary resources provided to these components controlled
through appropriations legislation.
Total Confusion
The appropriations tracking tables in this report include multiple totals that reflect specific aspects of component
funding at DHS. However, the technical names of the totals are not always sufficient for the reader to immediately
parse their meaning. To reduce the chance of “total confusion,” the fol owing outlines the questions each total
answers and the methodology used to derive them:

Total Annual Discretionary Appropriations: What budget authority does the annual appropriations bil
provide that counts against the subcommittee allocation or statutory budget limits?

Methodology: Total the above-listed appropriations, excluding any funding designated as emergency,
disaster relief, or OCO under the Budget Control Act. Although the net effect of changes in mandatory
programs (or “CHIMPS”) counts against these limits as well, it is not included in this total.

Total Annual Net Discretionary Appropriations: What budget authority does the annual
appropriations bil draw from the Treasury that counts against the allocation or statutory budget limits?

Methodology: Subtract offsets from the Total Annual Discretionary Appropriations.

Total Net Discretionary Funding: What budget authority goes to the component (or the components in
the title) from the Treasury in annual and supplemental funding bil s?

Methodology: Add ALL appropriations, including special y designated funding, minus offsetting
col ections.

Total Budgetary Resources: What budget authority does the component (or do the components in the
title) have to work with under this measure and other existing law?

Methodology: Add al appropriations, without offsets, and add fees, mandatory spending, and trust funds.
This includes the net effect of the above-mentioned CHIMPS.

19 Ibid., p. 36.
20 Ibid., p. 42.
Congressional Research Service

10

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Table 2. Budgetary Resources for Law Enforcement Operational Components, FY2020 and FY2021
(budget authority in thousands of dollars)

FY2020
FY2021
House
Senate
Committee-
Appropriations
Enacted
Reported
Committee
P.L. 116-260,
Component/ Appropriation
Enacted
Request
H.R. 7669
Majority Draft
Division F
Customs and Border Protection (Annual)

Operations and Support
12,735,399
12,987,432
13,240,238
12,882,091
12,908,923
Procurement, Construction and
1,904,468
2,281,360
877,547
2,312,283
1,839,634
Improvements
CBP Services at User Fee Facilities
9,000
9,000
9,000
9,000
9,000
(Permanent Indefinite Discretionary)
Global Entry Program (Permanent Indefinite
0
199,939
199,939
199,939
199,939
Discretionary)
Colombia Free Trade Act Col ections
267,000
281,000
281,000
281,000
281,000
(Administrative Provision)
Reimbursable Preclearance (Administrative
39,000
39,000
39,000
39,000
39,000
Provision)
Total Annual Discretionary Appropriations
14,954,867
15,797,731
14,646,724
15,723,313
15,277,496
Offsetting Col ections (Global Entry and
39,000
238,939
238,939
238,939
238,939
Preclearance)
Total Annual Net Discretionary Appropriations
14,915,867
15,558,792
14,407,785
15,484,374
15,038,557
Reduced Fee Compensation (Sec. 541)
0
0
0
0
840,000
(Emergency)
Transfer of prior year appropriations to
0
0
-20,000
0
-20,000
CWMDa (Sec. 538) (Emergency)
Total Net Discretionary Funding
14,915,867
15,558,792
14,387,785
15,484,374
15,858,557
CRS-11

link to page 19 link to page 19 link to page 19

FY2020
FY2021
House
Senate
Committee-
Appropriations
Enacted
Reported
Committee
P.L. 116-260,
Component/ Appropriation
Enacted
Request
H.R. 7669
Majority Draft
Division F
Fees, Mandatory Spending, and Trust Funds
2,456,431
2,408,906
2,408,906
2,408,906
2,408,906
Total Budgetary Resources
17,411,298
18,206,637
17,035,630
18,132,219
19,346,402
Immigration and Customs Enforcement

Operations and Support
8,032,801
9,822,109
7,308,449
8,180,440
7,875,730
Procurement, Construction, and
47,270
104,954
97,799
104,954
97,799
Improvements
Risk Classification/Detention Limitation
0
0
1,000b
0
0
(House Sec. 219) (Change in Mandatory
Program)
Homeland Security Investigations Civil
0
0
10,000b
0
0
Enforcement Limitation (House Sec. 220)
(Change in Mandatory Program)
U and T Visa Application Removal Limitation
0
0
1,000b
0
0
(House Sec. 221) (Change in Mandatory
Program)
Total Annual Discretionary Appropriations
8,080,071
9,927,063
7,406,248
8,285,394
7,973,529
Total Discretionary Funding
8,080,071
9,927,063
7,406,248
8,285,394
7,973,529
Fees, Mandatory Spending, and Trust Funds
319,800
489,097
376,610
489,097
376,610
Total Budgetary Resources
8,399,871
10,416,160
7,794,858
8,774,491
8,350,139
Transportation Security Administration

Operations and Support
7,680,565
7,569,419
7,927,407
7,845,994
7,793,715
Procurement, Construction, and
110,100
33,385
154,492
184,492
134,492
Improvements
Research and Development
22,902
29,524
29,524
29,524
29,524
CRS-12

FY2020
FY2021
House
Senate
Committee-
Appropriations
Enacted
Reported
Committee
P.L. 116-260,
Component/ Appropriation
Enacted
Request
H.R. 7669
Majority Draft
Division F
Total Annual Discretionary Appropriations
7,813,567
7,632,328
8,111,423
8,060,010
7,957,731
Offsetting Col ections (Operations and Support)
2,830,000
3,500,000
2,940,000
2,940,000
2,940,000
Total Net Discretionary Appropriations
4,983,567
4,132,328
5,171,423
5,120,010
5,017,731
FY2020 Supplemental Appropriations

Operations and Support (emergency, P.L. 116-136)
100,000
0
0
0
0
Total Net Discretionary Funding
5,083,567
4,132,328
5,171,423
5,120,010
5,017,731
Fees, Mandatory Spending, and Trust Funds
486,914
609,464
609,464
609,464
609,464
Total Budgetary Resources
8,400,481
8,241,792
8,720,887
8,669,474
8,567,195
U.S. Coast Guard

Operations and Support
8,181,253
8,377,740
8,560,267
8,392,204
8,485,146
Overseas Contingency Operations (OCO)
190,000
0
215,000
0
0
Adjustment—included in Operations and
Support
Procurement, Construction, and
1,772,506
1,637,091
2,158,791
2,011,441
2,264,041
Improvements
Research and Development
4,949
5,276
8,276
9,476
10,276
Health Care Fund Contribution (Permanent
205,107
215,787
215,787
215,787
215,787
Indefinite Discretionary)
Coast Guard Housing Fund (administrative
0
0
4,000
4,000
4,000
provision)
Total Annual Discretionary Appropriations (does
10,163,815
10,235,894
10,943,121
10,628,908
10,975,250
not include OCO or transfers)
Offsetting Col ections (administrative provision)
0
4,000
4,000
4,000
4,000
Total Net Discretionary Appropriations
10,163,815
10,231,894
10,939,121
10,624,908
10,971,250
CRS-13

link to page 19 link to page 19 link to page 19 link to page 19 link to page 19 link to page 19

FY2020
FY2021
House
Senate
Committee-
Appropriations
Enacted
Reported
Committee
P.L. 116-260,
Component/ Appropriation
Enacted
Request
H.R. 7669
Majority Draft
Division F
FY2020 Supplemental Appropriations

Operations and Support (emergency, P.L. 116-136)
140,800
0
0
0
0
Total Discretionary Funding (includes
10,304,615
10,235,894
10,943,121
10,628,908
10,975,250
emergency and OCO)
Fees, Mandatory Spending, and Trust Funds
1,802,309
1,869,704
1,869,704
1,869,704
1,869,704
Total Budgetary Resources
12,106,924
12,105,598
12,812,825
12,498,612
12,844,954
U.S. Secret Service

Operations and Support
2,336,401
[2,310,296]c
2,368,553
2,305,452
2,373,109
Procurement, Construction, and
66,989
[38,305]c
52,306
52,955
52,955
Improvements
Research and Development
12,455
[11,937]c
11,937
11,937
11,937
Total Discretionary Appropriations
2,415,845
[2,360,538]c
2,432,796
2,370,344
2,438,001
Total Discretionary Funding
2,415,845
[2,360,538]c
2,432,796
2,370,344
2,438,001
Total Budgetary Resources
2,415,845
[2,360,538]c
2,432,796
2,370,344
2,438,001
Total Net Discretionary Appropriations: Title II
40,559,165
39,854,077
40,361,373
41,889,030
41,443,068
Total Net Discretionary Funding: Title II
40,799,965
39,854,077
40,341,373
41,889,030
42,263,068
Components (All Sources)
Projected Total Gross Budgetary Resources:
48,734,419
48,970,187
48,796,996
50,445,140
51,546,691
Title II Components
Source: CRS analysis of P.L. 116-93, Division D and its explanatory statement as included in H.Comm.Prt. 38-678; P.L. 116-136; H.R. 7669; H.Rept. 116-458; the Senate
Appropriations Committee majority-produced draft appropriations bil and explanatory statement released on November 11, 2020; and P.L. 116-260 and its explanatory
statement as included in H.Comm.Prt. 43-479.
Notes: Appropriation subtotal lines are shaded; numbers in italics do not contribute separately to appropriation subtotals; numbers in bold represent appropriations
plus transfers, emergency, disaster relief, and overseas contingency operations-designated funding; and numbers in bold italics represent totals of all funding tracked in
appropriations committee tables. Fee revenues included in the “Fees, Mandatory Spending, and Trust Funds” lines are projections.
CRS-14

a. Section 534 of H.R. 7669 and Section 538 of P.L. 116-260, Division F include a transfer of prior year appropriations from CBP to the Office of Countering Weapons
of Mass Destruction for development of a department-wide system of electronic health records. This move is only reflected in total budgetary resources.
b. As a Change in Mandatory Programs, this element is only reflected in Total Budgetary Resources.
c. For FY2021, the Trump Administration proposed transferring the U.S. Secret Service to the U.S. Department of the Treasury. Therefore these numbers are
presented for comparison only, and are not included in the request totals.
CRS-15

Department of Homeland Security Appropriations: FY2021

Incident Response and Recovery Operational Components
Funding for operational components focused on incident response and recovery is generally
found in Title III of the annual DHS appropriations act. It includes funding for FEMA, which has
the largest budget of any DHS component—an appropriated budget largely driven by disaster
programs authorized under the Stafford Act, and an overall budget, which also includes non-
appropriated funding for the National Flood Insurance Program. Title III also includes funding for
the newly restructured Cybersecurity and Infrastructure Security Agency (CISA), formerly the
National Protection and Programs Directorate. The reorganization included a shift of the Federal
Protective Service from CISA to the Management Directorate, reducing the gross budgetary
resources in this title.
Components and Missions
Cybersecurity and Infrastructure Security Agency (CISA): CISA, formerly known as the
National Protection and Programs Directorate (NPPD), promotes information sharing to build
resilience and mitigate risk from cyber and physical threats to infrastructure, and leads cross-
government cybersecurity initiatives.21
Federal Emergency Management Agency (FEMA): FEMA leads the federal government’s
efforts to reduce the loss of life and property and protect the United States from all hazards,
including natural disasters, acts of terrorism, and other disasters through a risk-based,
comprehensive emergency management system of preparedness, prevention, protection, response,
recovery, and mitigation.22
Table 3 includes a breakdown of budgetary resources for these components controlled through
appropriations legislation. As some FY2021 annually appropriated resources were provided for
FEMA from outside Title III, by transfer and by appropriation, a separate line is included for
FEMA showing a total of Title III funding, non-Title III funding, and the total annual
appropriation for FEMA. The table only reflects the impact of transfers in the discretionary
funding and budgetary resource totals.

21 Ibid., p. 45.
22 Ibid., p. 51.
Congressional Research Service

16

link to page 23
Table 3. Budgetary Resources for Incident Response and Recovery Operational Components, FY2020 and FY2021
(budget authority in thousands of dollars)

FY2020
FY2021
House
Senate
Committee-
Appropriations
Enacted
Reported
Committee
P.L. 116-260,
Component / Appropriation
Enacted
Request
H.R. 7669
Majority Draft
Divisions F & M
National Protection and Programs Directorate

Operations and Support
1,566,229
1,437,888
1,843,891
1,656,366
1,662,066
Procurement, Construction, and Improvements
434,962
313,479
396,425
356,025
353,479
Research and Development
14,431
6,431
14,431
16,431
9,431
Total Discretionary Appropriations
2,015,622
1,757,798
2,254,747
2,028,822
2,024,976
Total Discretionary Funding
2,015,622
1,757,798
2,254,747
2,028,822
2,024,976
Mandatory Spending (P.L. 117-2)
0
0
0
0
650,000
Total Budgetary Resources
2,015,622
1,757,798
2,254,747
2,028,822
2,674,976
Federal Emergency Management Agency

Operations and Support
1,102,199
1,134,195
1,155,750
1,122,683
1,129,282
Procurement, Construction, and Improvements
133,363
86,503
122,353
108,103
105,985
Federal Assistance
3,178,467
2,482,552
3,662,369
3,193,892
3,294,892
Disaster Relief Fund (DRF)a
17,863,259
5,653,366
5,653,366
17,735,417
17,142,000
Disaster relief designation
17,352,112
5,059,949
5,059,949
17,142,000
17,142,000
DRF base funding
511,147
593,417
593,417
593,417
0
National Flood Insurance Fund (NFIF)
206,782
204,412
204,412
204,412
204,412
Radiological Emergency Preparedness Program (REPP) (Administrative
32,630
33,360
33,360
34,000
34,000
Provisions)
Title III Discretionary Appropriations (does not include transfers, emergency
5,164,588
4,534,439
5,771,661
5,256,507
4,768,571
or disaster relief-designated funding)
CRS-17

FY2020
FY2021
House
Senate
Committee-
Appropriations
Enacted
Reported
Committee
P.L. 116-260,
Component / Appropriation
Enacted
Request
H.R. 7669
Majority Draft
Divisions F & M
Transfer from OSEM (Title I)
10,000
0
0
10,000
25,000
Presidential Residence Protection (Title V)
41,000
0
41,000
0
12,700
Total Annual Discretionary Appropriations
5,205,588
4,534,439
5,812,661
5,256,507
4,781,271
Rescission from DRF
300,000
0
0
0
0
Offsetting Col ections (NFIF and REPP)
240,412
237,772
237,772
238,412
238,412
Total Annual Net Discretionary Appropriations
4,665,176
4,296,667
5,574,889
5,018,095
4,542,859
FY2020 Supplemental Appropriations

Federal Assistance (emergency, P.L. 116-136)
400,000
0
0
0
0
Disaster Relief Fund, Base (emergency, P.L. 116-136)
5,000,000
0
0
0
0
Disaster Relief Fund, Major Disasters (emergency, P.L. 116-136)
40,000,000
0
0
0
0
Disaster Relief Fund (transfer to OIG) (emergency, P.L. 116-136)
-3,000
0
0
0
0
FY2021 Supplemental Appropriations

Disaster Relief Fund, Major Disasters (emergency, P.L. 116-260, Div. M)
0
0
0
0
2,000,000
Total Discretionary Funding (includes emergency and disaster
67,964,700
9,594,388
10,872,610
22,408,507
23,948,271
relief-designated funding)
Mandatory Funding (P.L. 117-2)
0
0
0
0
50,910,000
Total Budgetary Resources
68,205,112
9,832,160
11,110,382
22,646,919
75,096,683
Total Net Discretionary Appropriations: Title III Components
6,680,798
6,054,465
7,829,636
7,046,917
6,567,835
Total Discretionary Funding: Title III Components (All Sources)
69,980,322
11,352,186
13,127,357
24,437,329
25,973,247
Mandatory Spending (P.L. 117-2)
0
0
0
0
51,560,000
Projected Total Gross Budgetary Resources: Title III Components
70,220,734
11,589,958
13,365,129
24,675,741
77,771,659
CRS-18

Source: CRS analysis of P.L. 116-93, Division D and its explanatory statement as included in H.Comm.Prt. 38-678; P.L. 116-136; H.R. 7669; H.Rept. 116-458; the Senate
Appropriations Committee majority-produced draft appropriations bil and explanatory statement released on November 11, 2020; and P.L. 116-260 and its explanatory
statement as included in H.Comm.Prt. 43-479.
Notes: Appropriation subtotal lines are shaded; numbers in italics do not contribute separately to appropriation subtotals; numbers in bold represent appropriations
plus transfers, emergency, disaster relief, and overseas contingency operations-designated funding; and numbers in bold italics represent totals of all funding tracked in
appropriations committee tables. Fee revenues included in the “Fees, Mandatory Spending, and Trust Funds” lines are projections.
a. “Disaster Relief Fund (DRF)” is a subtotal of the “Base” line and the “Major Disasters” line (also known as the disaster relief adjustment)—it represents the total
resources provided to the DRF. Amounts covered by the disaster relief adjustment (or other adjustments, such as those for emergency requirements or overseas
contingency operations) are not included in appropriations totals, but are included in discretionary funding and other budget authority totals, per appropriations
committee practice.

CRS-19

link to page 25 Department of Homeland Security Appropriations: FY2021

Support Components
Funding for support components is generally found in Title IV of the annual DHS appropriations
bill. The relatively small size of some of these appropriations makes changes in their funding
appear more significant if expressed on a percentage basis.
Components and Missions
U.S. Citizenship and Immigration Services (USCIS): USCIS administers U.S. immigration
laws that govern temporary admission and permanent immigration to the United States.23
Federal Law Enforcement Training Center (FLETC): FLETC is a technical training school
for law enforcement professionals, meeting the basic and specialized training needs of
approximately 100 federal agencies, as well as state and local organizations.24
Science and Technology Directorate (S&T): S&T leads and coordinates research, development,
testing, and evaluation work for DHS, and supports departmental acquisitions.25
Countering Weapons of Mass Destruction Office (CWMD): CWMD leads DHS’s efforts to
develop and enhance programs and capabilities that defend against weapons of mass destruction,
and includes the Department’s Chief Medical Officer, who serves as the principal advisor to DHS
leadership on medical and public health issues.26
Table 4 includes a breakdown of budgetary resources provided to these components controlled
through appropriations legislation.

23 Ibid., p. 57.
24 Ibid., p. 61.
25 Ibid., p. 65.
26 Ibid., p. 70.
Congressional Research Service

20

Table 4. Budgetary Resources for Support Components, FY2020 and FY2021
(budget authority in thousands of dollars)

FY2020
FY2021
House
Senate
Committee-
Appropriations
Enacted
Reported
Committee
P.L. 116-260,
Component/ Appropriation
Enacted
Request
H.R. 7669
Majority Draft
Division F
U.S. Citizenship and Immigration Services

Operations and Support
122,395
118,676
163,949
118,676
117,790
Federal Assistance
10,000
0
20,000
0
10,000
Pingree H-2B Returning Worker amendment
0
0
7,000
0
0
(Administrative Provision)
Newhouse H-2A Eligibility Expansion amendment
0
0
1,000
0
0
(Administrative Provision)
Unused Visa Rol over (Administrative Provision)
0
0
5,000
0
0
Total Annual Discretionary Appropriations
132,395
118,676
183,949
118,676
127,790
Total Discretionary Funding
132,395
118,676
183,949
118,676
127,790
Fees, Mandatory Spending, and Trust Funds
4,718,824
4,931,873
4,885,915
4,931,873
4,931,873
Total Budgetary Resources
4,851,219
5,050,549
5,082,864
5,050,549
5,059,663
Federal Law Enforcement Training Center

Operations and Support
292,997
305,479
317,945
304,423
314,348
Procurement, Construction, and Improvements
58,173
26,000
26,000
26,000
26,000
Total Annual Discretionary Appropriations
351,170
331,479
343,945
330,423
340,348
Total Discretionary Funding
351,170
331,479
343,945
330,423
340,348
Total Budgetary Resources
351,170
331,479
343,945
330,423
340,348
Science and Technology

Operations and Support
314,864
284,789
303,162
304,900
302,703
CRS-21

link to page 27 link to page 27 link to page 27 link to page 27

FY2020
FY2021
House
Senate
Committee-
Appropriations
Enacted
Reported
Committee
P.L. 116-260,
Component/ Appropriation
Enacted
Request
H.R. 7669
Majority Draft
Division F
Procurement, Construction, and Improvements
0
18,927
18,927
18,927
18,927
Research and Development
422,411
340,013
433,222
439,917
443,928
Total Discretionary Appropriations
737,275
643,729
755,311
763,744
765,558
Total Discretionary Funding
737,275
643,729
755,311
763,744
765,558
Total Budgetary Resources
737,275
643,729
755,311
763,744
765,558
Office of Countering Weapons of Mass Destruction

Operations and Support
179,467
172,875
179,977
172,292
179,892
Procurement, Construction, and Improvements
118,988
87,413
87,413
87,413
87,413
Research and Development
69,181
58,209
58,209
58,209
65,309
Federal Assistance
64,663
58,663
69,663
69,663
69,663
Total Discretionary Appropriations
432,299
377,160
395,262
387,577
402,277
Total Discretionary Funding
432,299
377,160
415,262a
387,577
422,277a
Total Budgetary Resources
432,299
377,160
415,262a
387,577
422,277a
Total Net Discretionary Appropriations: Title IV
1,653,139
1,471,044
1,678,467
1,600,420
1,635,973
Total Discretionary Funding: Title IV Components
1,653,139
1,471,044
1,711,467
1,600,420 1,655,973
(All Sources)
Projected Total Gross Budgetary Resources for Title IV
6,371,963
6,402,917
6,597,382
6,532,293 6,587,846
Components
Source: CRS analysis of P.L. 116-93, Division D and its explanatory statement as included in H.Comm.Prt. 38-678; P.L. 116-136; H.R. 7669; H.Rept. 116-458; the Senate
Appropriations Committee majority-produced draft appropriations bil and explanatory statement released on November 11, 2020; and P.L. 116-260 and its explanatory
statement as included in H.Comm.Prt. 43-479.
Notes: Appropriation subtotal lines are shaded; numbers in italics do not contribute separately to appropriation subtotals; numbers in bold represent appropriations
plus transfers, emergency, disaster relief, and overseas contingency operations-designated funding; and numbers in bold italics represent totals of all funding tracked in
appropriations committee tables. Fee revenues included in the “Fees, Mandatory Spending, and Trust Funds” lines are projections.
CRS-22

link to page 29 Department of Homeland Security Appropriations: FY2021

Headquarters Components
Funding for headquarters components is traditionally found in Title I of the annual DHS
appropriations act, although some initiatives have been funded in the past through general
provisions.
Components and Missions
Office of the Secretary and Executive Management (OSEM): OSEM provides central
leadership, management, direction, and oversight for all DHS components.27
Departmental Management Directorate (DM): DM provides DHS-wide mission support
services.28
Analysis and Operations (A&O): A&O covers two separate offices:
 The Office of Intelligence and Analysis (I&A), which integrates and shares
intelligence with DHS components and stakeholders to allow them to identify,
mitigate, and respond to threats; and
 The Office of Operations Coordination (OPS), which provides operations
coordination, information sharing, and the common operating picture for DHS,
and helps ensure DHS continuity and resilience.29
Office of Inspector General (OIG): The OIG is an independent, objective audit, inspection, and
investigative body that reports to the Secretary and to Congress on DHS efficiency and
effectiveness, and works to prevent waste, fraud, and abuse.30
Table 5 provides a breakdown of the budgetary resources provided to these components
controlled through appropriations legislation. Since resources were requested or provided for the
Departmental Management Directorate from outside Title I, separate lines are included for each
of those components showing a total for what is provided solely within Title I, then the individual
items funded outside the title, followed by the total annual appropriation for the components. The
table only reflects the impact of transfers in the discretionary funding and budgetary resource
totals.

27 Budget-In-Brief, p. 9.
28 Ibid. Together, Office of the Secretary and Executive Management (OSEM) and Departmental Management
Directorate (DM) are sometimes referred to as Departmental Management and Operations (DMO).
29 Budget-In-Brief, p. 13.
30 Budget-In-Brief, p. 16.
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Table 5. Budgetary Resources for Headquarters Components, FY2020 and FY2021
(budget authority in thousands of dollars)

FY2020
FY2021
House
Senate
Committee-
Appropriations
Enacted
Component/
Reported
Committee
P.L. 116-260,
Appropriation
Enacted
Request
H.R. 7669
Majority Draft
Division F
Office of the Secretary and Executive Management

Operations and Support
168,808
150,359
151,868
162,319
180,819
Federal Assistance
10,000
0
0
10,000
25,000
Transfer to FEMA (Title III)
10,000
0
0
10,000
25,000
Total Discretionary Appropriations
178,808
150,359
151,868
172,319
205,819
Total Discretionary Funding
168,808
150,359
151,868
162,319
180,819
Total Budgetary Resources
168,808
150,359
151,868
162,319
180,819
Management Directorate

Operations and Support
1,182,142
1,402,196
1,401,757
1,396,244
1,398,162
Procurement, Construction, and Improvements
381,298
359,450
359,450
60,095
214,795
Federal Protective Service
1,559,930
1,588,748
1,588,748
1,588,748
1,588,748
Total Annual Discretionary Appropriations
3,123,370
3,350,394
3,349,955
3,045,087
3,201,705
Offsetting Col ections (Federal Protective Service)
1,559,930
1,588,748
1,588,748
1,588,748
1,588,748
Total Net Discretionary Appropriations
1,563,440
1,761,646
1,761,207
1,456,339
1,612,957
FY2020 Supplemental Appropriations

Operations and Support (emergency)
178,300
0
0
0
0
Total Net Discretionary Funding
1,741,740
1,761,646
1,761,207
1,456,339
1,612,957
Total Budgetary Resources
1,741,740
1,761,646
1,761,207
1,456,339
1,612,957
CRS-25

FY2020
FY2021
House
Senate
Committee-
Appropriations
Enacted
Component/
Reported
Committee
P.L. 116-260,
Appropriation
Enacted
Request
H.R. 7669
Majority Draft
Division F
Intelligence, Analysis and Operations Coordination

Operations and Support
284,141
312,638
311,263
300,232
298,500
Total Discretionary Appropriations
284,141
312,638
311,263
300,232
298,500
Total Discretionary Funding
284,141
312,638
311,263
300,232
298,500
Total Budgetary Resources
284,141
312,638
311,263
300,232
298,500
Office of the Inspector General

Operations and Support
190,186
177,779
190,186
192,000
190,186
Total Discretionary Appropriations
190,186
177,779
190,186
192,000
190,186
FY2020 Supplemental Appropriations

Operations and Support (by transfer)(emergency)
3,000
0
0
0
0
Total Discretionary Funding (all sources)
193,186
177,779
190,186
192,000
190,186
Total Budgetary Resources
193,186
177,779
190,186
192,000
190,186
Total Net Discretionary Appropriations: Title I
2,216,575
2,402,422
2,414,524
2,120,890
2,307,462
Total Net Discretionary Funding (all sources)
2,387,875
2,402,422
2,414,524
2,110,890
2,282,462
Projected Total Gross Budgetary Resources: Title I Components
2,387,875
2,402,422
2,414,524
2,110,890
2,282,462
Source: CRS analysis of P.L. 116-93, Division D and its explanatory statement as included in H.Comm.Prt. 38-678; P.L. 116-136; H.R. 7669; H.Rept. 116-458; the Senate
Appropriations Committee majority-produced draft appropriations bil and explanatory statement released on November 11, 2020; and P.L. 116-260 and its explanatory
statement as included in H.Comm.Prt. 43-479.

CRS-26

Department of Homeland Security Appropriations: FY2021

General Provisions
As noted earlier, the fifth title of the annual DHS appropriations act contains general provisions
(GPs), the impact of which may reach across the government, apply to the entire department,
affect multiple components, or focus on a single activity. Most general provisions remain
functionally unchanged from year to year, providing guidance to DHS or structure to DHS
appropriations with little more than updates to effective dates or amounts.
The FY2020 DHS appropriations act included 40 such general provisions, including one
provision providing additional appropriations and four providing rescissions. The FY2021 DHS
appropriations act has a total of 42 general provisions, two with additional appropriations and two
with rescissions. Five general provisions were substantively modified from their prior-year form,
and four new ones were included. These FY2021 provisions are listed below:
Modified Provisions
 Section 507—This modified provision raises the threshold for DHS reporting to
the appropriations committees on contract awards, other transaction agreements,
or task or delivery orders from $1 million to $4 million.
 Section 530—This modified provision provides $12.7 million for law
enforcement support for the U.S. Secret Service, down from $41 million in
FY2020.
 Section 534—This modified provision broadens a previous prohibition on the
destruction of documents, recordings, or records pertaining to a potential sexual
assault or abuse perpetrated against someone in DHS custody to include those
pertaining to deaths in custody and allegations against detainees.
 Section 539—This modified provision rescinds certain prior-year appropriations.
 Section 540—This modified provision rescinds certain prior-year Operations and
Support appropriations made for several components that were extended by
Section 505 of the FY2020 DHS appropriations act.
New Provisions
 Section 537—This new provision requires DHS to report on departmental
priorities not funded in the coming budget request that are classified as defense
spending.31
 Section 538—This new provision transfers previously appropriated funds for a
department-wide electronic health records system.
 Section 541—This new provision provides $840 million in emergency funding
for CBP to make up for lost fee revenues.
 Section 542—This new provision requires notification of starting and ending
protection for former or retired federal government officials.

31 The $2.55 billion in defense budget authority in the FY2021 DHS Appropriations Act was 3.65% of the discretionary
budget authority. Defense budget authority for the Cybersecurity and Infrastructure Security Agency made up 76.11%
of that fraction.
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Two provisions, one rescinding prior-year Disaster Relief Fund appropriations, and another
rescinding emergency appropriations to essentially enable them to be reappropriated elsewhere in
the bill were dropped.
For Further Information
For additional perspectives on FY2021 DHS appropriations, see the following:
 CRS Report R46305, DHS Budget Request Analysis: FY2021
 CRS Report R46630, Comparing DHS Component Funding, FY2021: In Brief
 CRS In Focus IF10720, Calculation and Use of the Disaster Relief Allowable
Adjustment
Congressional clients also may wish to consult CRS’s experts directly. Table 6 lists CRS analysts
and specialists who have expertise in policy areas linked to DHS appropriations.
Table 6. DHS Policy Experts on DHS Components and Activities
Component/Issue Area
Name
Background Report
DHS Annual and Supplemental
Wil iam Painter

Appropriations, Overall
Departmental Management

Personnel Issues
Barbara L. Schwemle
CRS Insight IN11035, Department of
Homeland Security Human Resources
Management: Homeland Security Issues in
the 116th Congress
Federal Protective Service
Shawn Reese
CRS Report R43570, Federal Building and
Facility Security: Frequently Asked Questions
Analysis and Operations
Lisa Sacco

Office of the Inspector General
Ben Wilhelm
CRS Report R43814, Federal Inspectors
General: History, Characteristics, and Recent
Congressional Actions
U.S. Customs and Border

Protection
CBP Policy and Operations
Audrey Singer
CRS Report R42138, Border Security:
Immigration Enforcement Between Ports of
Entry
DHS Border Barrier Funding
Wil iam Painter
CRS Insight IN11193, Funding U.S.-Mexico
Border Barrier Construction: Current Issues
U.S. Immigration and Customs
Hol y Straut-Eppsteiner
CRS Report R44627, Interior Immigration
Enforcement
Enforcement: Criminal Alien Programs
Transportation Security
Bart Elias
CRS Report R45082, Security of Air Cargo
Administration
Shipments, Operations, and Facilities; and
CRS Report R45500, Transportation
Security: Issues for the 116th Congress
U.S. Coast Guard

Personnel and Administration
Alan Ott

Health Care
Bryce Mendez

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Department of Homeland Security Appropriations: FY2021

Component/Issue Area
Name
Background Report
Shipbuilding
Ronald O’Rourke
CRS Report R42567, Coast Guard Cutter
Procurement: Background and Issues for
Congress
Maritime Transportation
John Frittelli
CRS Report R44566, The Coast Guard’s
Role in Safeguarding Maritime
Transportation: Selected Issues
U.S. Secret Service
Shawn Reese
CRS Report RL34603, The U.S. Secret
Service: History and Missions
Cybersecurity and Infrastructure Security Agency
Cybersecurity
Chris Jaikaran
CRS In Focus IF10683, DHS’s
Cybersecurity Mission—An Overview
Infrastructure Protection
Brian Humphreys;
CRS Report R45809, Critical
Frank Gottron
Infrastructure: Emerging Trends and Policy
Considerations for Congress
Federal Emergency Management Agency
Disaster Response and Recovery
Elizabeth Webster
CRS Report R41981, Congressional Primer
on Responding to and Recovering from
Major Disasters and Emergencies
Disaster Relief Fund
Wil iam L. Painter
CRS Report R45484, The Disaster Relief
Fund: Overview and Issues
Mitigation Programs
Diane P. Horn
CRS Insight IN11187, Federal Emergency
Management Agency (FEMA) Hazard
Mitigation Assistance
Stafford Act Individual Assistance
Elizabeth Webster
CRS In Focus IF11298, A Brief Overview of
Program
FEMA’s Individual Assistance Program
Stafford Act Public Assistance
Erica A. Lee
CRS In Focus IF11529, A Brief Overview of
Program
FEMA’s Public Assistance Program
Preparedness Grants
Shawn Reese
CRS Report R44669, Department of
Homeland Security Preparedness Grants: A
Summary and Issues
Firefighter Assistance Grants
Brian E. Humphreys
CRS Report RL32341, Assistance to
Firefighters Program: Distribution of Fire
Grant Funding; and CRS Report RL33375,
Staffing for Adequate Fire and Emergency
Response: The SAFER Grant Program
Disaster Declarations
Bruce R. Lindsay
CRS Report R42702, Stafford Act
Declarations 1953-2016: Trends, Analyses,
and Implications for Congress
Mitigation Programs and National
Diane P. Horn
CRS Report R44593, Introduction to the
Flood Insurance Program
National Flood Insurance Program (NFIP)
U.S. Citizenship and
Wil iam A. Kandel
CRS Report R44038, U.S. Citizenship and
Immigration Services
Immigration Services (USCIS) Functions and
Funding
Science and Technology
Daniel Morgan
CRS Insight IN11021, Homeland Security
Research and Development: Homeland
Security Issues in the 116th Congress
Countering Weapons of Mass
Frank Gottron
CRS Report R45491, Science and
Destruction Office
Technology Issues in the 116th Congress

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Department of Homeland Security Appropriations: FY2021

Appendix. Terminology
Budget Authority, Obligations, and Outlays
Federal government spending involves a multistep process that begins with the enactment of
budget authority by Congress. Federal agencies then obligate funds from enacted budget authority
to pay for their activities. Finally, payments are made to liquidate those obligations; the actual
payment amounts are reflected in the budget as outlays.
Budget authority is established through appropriations acts or direct spending legislation, and
determines the amounts that are available for federal agencies to spend. The Antideficiency Act32
prohibits federal agencies from obligating more funds than the budget authority enacted by
Congress. Budget authority also may be indefinite in amount, as when Congress enacts
appropriations providing “such sums as may be necessary” to complete a project or purpose.
Budget authority may be available on a one-year, multiyear, or no-year basis. One-year budget
authority is available for obligation only during a specific fiscal year; any unobligated funds at
the end of that year are no longer available for spending. Multiyear budget authority specifies a
range of time during which funds may be obligated for spending, and no-year budget authority
(such as the Disaster Relief Fund) is available for obligation for an indefinite period of time.
Obligations are incurred when federal agencies employ personnel, enter into contracts, receive
services, and engage in similar transactions in a given fiscal year—which create a legal
requirement for the government to pay. Outlays are the funds that are actually spent during the
fiscal year.33 Because multiyear and no-year budget authorities may be obligated over a number
of years, outlays do not always match the budget authority enacted in a given year. Additionally,
budget authority may be obligated in one fiscal year but spent in a future fiscal year, especially
with certain contracts.
In sum, budget authority allows federal agencies to incur obligations and authorizes payments, or
outlays, to be made from the Treasury. Discretionary funded agencies and programs, and
appropriated entitlement programs, are funded each year in appropriations acts.
Discretionary and Mandatory Spending
Gross budget authority, or the total funds available for spending by a federal agency, may be
composed of discretionary and mandatory spending. Discretionary spending is not mandated by
existing law and is thus appropriated yearly by Congress through appropriations acts. The Budget
Enforcement Act of 199034 defines discretionary appropriations as budget authority provided in
annual appropriations acts and the outlays derived from that authority, but it excludes
appropriations for entitlements. Mandatory spending, also known as direct spending, consists of
budget authority and resulting outlays provided in laws other than appropriations acts and is
typically not appropriated each year. Some mandatory entitlement programs, however, must be

32 31 U.S.C. §§1341, 1342, 1344, 1511-1517.
33 Appropriations, outlays, and account balances for various appropriations accounts can be viewed in the end-of-year
reports published by the U.S. Treasury titled Combined Statement of Receipts, Outlays, and Balances of the United
States Government. The DHS portion of the report can be accessed at https://www.fiscal.treasury.gov/reports-
statements/combined-statement/current.html.
34 P.L. 101-508, Title XIII.
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appropriated each year and are included in appropriations acts. Within DHS, U.S. Coast Guard
retirement pay is an example of appropriated mandatory spending.
Offsetting Collections35
Offsetting funds are collected by the federal government, either from government accounts or the
public, as part of a business-type transaction such as collection of a fee. These funds are not
considered federal revenue. Instead, they are counted as negative outlays. DHS net discretionary
budget authority, or the total funds appropriated by Congress each year, is composed of
discretionary spending minus any fee or fund collections that offset discretionary spending.
Some collections offset a portion of an agency’s discretionary budget authority. Other collections
offset an agency’s mandatory spending. These mandatory spending elements are typically
entitlement programs under which individuals, businesses, or units of government that meet the
requirements or qualifications established by law are entitled to receive certain payments if they
establish eligibility. The DHS budget features two mandatory entitlement programs: the U.S.
Secret Service and the U.S. Coast Guard retired pay accounts (pensions). Some entitlements are
funded by permanent appropriations, and others are funded by annual appropriations. U.S. Secret
Service retirement pay is a permanent appropriation and, as such, is not annually appropriated. In
contrast, U.S. Coast Guard retirement pay is annually appropriated. In addition to these
entitlements, the DHS budget contains offsetting Trust and Public Enterprise Funds. These funds
are not appropriated by Congress. They are available for obligation and included in the
President’s budget to calculate the gross budget authority.
302(a) and 302(b) Allocations
In general practice, the maximum budget authority for annual appropriations (including DHS) is
determined through a two-stage congressional budget process. In the first stage, Congress sets
overall spending totals in the annual concurrent resolution on the budget. Subsequently, these
totals are allocated among the congressional committees, usually through the statement of
managers for the conference report on the budget resolution. These amounts are known as the
302(a) allocations. They include discretionary totals available to the Committees on
Appropriations for enactment in annual appropriations bills through the subcommittees
responsible for the development of the bills.
In the second stage of the process, the appropriations committees allocate the 302(a) discretionary
funds among their subcommittees for each of the appropriations bills. These amounts are known
as the 302(b) allocations. These allocations must add up to no more than the 302(a) discretionary
allocation and form the basis for enforcing budget discipline, since any bill reported with a total
above the ceiling is subject to a point of order. The 302(b) allocations may be adjusted during the
year by the respective appropriations committee issuing a report delineating the revised
suballocations as the various appropriations bills progress toward final enactment.
Table A-1 shows comparable figures for the 302(b) allocation for FY2020, based on the adjusted
net discretionary budget authority included in Division D of P.L. 116-93, President Trump’s
request for FY2021, the House subcommittee allocations for the Homeland Security
appropriations bill for FY2021, and Division F of P.L. 116-260. No Senate 302(b) allocations
were approved by the Senate Appropriations committee for FY2021.

35 Prepared with assistance from Bill Heniff Jr., Analyst on Congress and the Legislative Process.
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Department of Homeland Security Appropriations: FY2021

Table A-1. FY2020 and FY2021 302(b) Discretionary Allocations for DHS
(budget authority in billions of dollars)
FY2020
Annual
FY2021
FY2021
FY2021
Appropriation
Request
FY2021 House
Senate
Enacted
Comparable
Comparable
Allocation
Allocation
Comparable
$50.466
49.716
49.736
n/a
51,875
Sources: CRS analysis of H.Comm.Prt. 38-678 (for FY2020), H.Rept. 116-458 (for the request) and H.Rept.
116-454, Revised Suballocation of Budget Allocations for Fiscal Year 2021 (for information on the request), and the
explanatory statement as printed in Book II of the December 17, 2019, Congressional Record, pp. H11024-
H11060.
Notes: These allocations and comparables do not include funding designated as an emergency requirement,
designated as being for overseas contingency operations, or designated as being for the costs of major disasters
under the Stafford Act (i.e., “disaster relief”).
The Budget Control Act, Discretionary Spending Caps, and Adjustments
The Budget Control Act established enforceable discretionary limits, or caps, for defense and
nondefense spending for each fiscal year from FY2012 through FY2021. Subsequent legislation,
including the Bipartisan Budget Acts of 2013, 2015, 2018, and 2019,36 amended those caps. Most
of the budget for DHS is considered nondefense spending.37
In addition, the Budget Control Act allows for adjustments that would raise the statutory caps to
cover funding for overseas contingency operations/Global War on Terror, emergency spending,
and, to a limited extent, disaster relief and appropriations for continuing disability reviews and
control of health care fraud and abuse.
Three of the four justifications outlined in the Budget Control Act for adjusting the caps on
discretionary budget authority have played a role in DHS’s appropriations process. Two of
these—emergency spending and overseas contingency operations/Global War on Terror—are not
limited.
The third justification—disaster relief—is limited. Under the Budget Control Act, the allowable
adjustment for disaster relief was determined by the Office of Management and Budget (OMB),
using the following formula until FY2019:
Limit on disaster relief cap adjustment for the fiscal year = Rolling average of the disaster
relief spending over the last ten fiscal years (throwing out the high and low years) + the
unused amount of the potential adjustment for disaster relief from the previous fiscal year.
The Bipartisan Budget Act of 2018 amended the above formula, increasing the allowable size of
the adjustment by adding 5% of the amount of emergency-designated funding for major disasters
under the Stafford Act, calculated by OMB at the time as $6.296 billion.38 The act also extended
the availability of unused adjustment capacity indefinitely, rather than having it only carry over
for one year.

36 See P.L. 113-67, P.L. 114-74, P.L. 115-123, and P.L. 116-37.
37 Most of the defense spending in the DHS budget is in the budget for the National Protection and Programs
Directorate. Other defense spending is also included in the budgets for the U.S. Coast Guard and Federal Emergency
Management Agency.
38 Letter from Mick Mulvaney, Director, OMB, to the Honorable Patrick Leahy, Vice Chairman, Committee on
Appropriations, U.S. Senate, April 23, 2018.
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Department of Homeland Security Appropriations: FY2021

In January 2021, OMB released a final sequestration preview report for FY2021 that provided an
estimate of the allowable adjustment for FY2021 of $17.385 billion39—the third-largest allowable
adjustment for disaster relief in the history of the mechanism.40 That estimate is the sum of:
 the 10-year average, dropping the high and low years ($8.691 billion);
 5% of the emergency-designated Stafford Act spending since 2012 ($8.694
billion); and
 carryover from the previous year (none).41

Author Information

William L. Painter

Specialist in Homeland Security and Appropriations

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

39 Executive Office of the President of the United States, OMB Final Sequestration Report to the President and
Congress for Fiscal Year 2021, Washington, DC, January 19, 2021, p. 8, https://www.whitehouse.gov/wp-content/
uploads/2021/01/sequestration_final_January_2021_speaker.pdf.
40 Only the allowable adjustment for FY2015 and FY2020 were higher, at $18.430 billion and $17.503 billion,
respectively.
41 Ibid.
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