Comparing DHS Component Funding Proposals, FY2022: In Brief

November 24, 2021 – March 18, 2022 R46978

Comparing DHS Component Funding
Proposals, FY2022: In Brief
Updated March 18, 2022
Congressional Research Service
https://crsreports.congress.gov
R46978

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Comparing DHS Component Funding Proposals, FY2022: In Brief

he Department of Homeland Security Appropriations Act includes all annual
appropriations for the Department of Homeland Security (DHS), providing resources to
T every departmental component. Its accompanying conference report or explanatory
statement provides guidance for the department in terms of how DHS should account for
reprogramming and transferring a range of non-appropriated funds as well. Together, they form a
snapshot of a significant amount of the DHS budget. This report reviews that snapshot at the DHS
component level, comparing:
 the budget authority outlined in the FY2021 annual appropriations measure;
 annual appropriations requested by the Joseph R. Biden Administration for
FY2022;
 funding levels recommended by the House Appropriations Committee in H.R.
4431 and H.Rept. 117-87;
 funding levels proposed by the Senate Appropriations Committee in the
committee draft released on October 18, 2021, and its accompanying explanatory
statement;1 and
 annual appropriations enacted in P.L. 117-103, the Consolidated Appropriations
Act, 2022, Division F of which is the Department of Homeland Security
Appropriations Act, 2022.
The report makes note of supplemental appropriations provided through various measures for
FY2021 and FY2022, but identifies such funding distinctly, to allow for clear comparison on the
annual appropriations packages. The report makes special note of “net discretionary
appropriations” for DHS—a perspective on the net impact the legislation that funds DHS has on
congressionally-tracked budget totals.2
The FY2022 DHS Appropriations Process
Annual Appropriations
On May 28, 2021, the Joseph R. Biden Administration released its annual budget request for
FY2022, including a $90.80 billion budget request for the Department of Homeland Security. By
CBO’s initial estimation, the request included $53.99 billion in adjusted net discretionary
appropriations and $18.80 billion in disaster relief-designated funds.3 This was $1.11 billion more
than was enacted for DHS in FY2021, although those FY2021 annual appropriations also
included $840 million in emergency funding to cover U.S. Customs and Border Protection (CBP)
fee shortfalls not included in the total.
 On June 30, 2021, the House Committee on Appropriations marked up H.R.
4431, its version of the Department of Homeland Security Appropriations Act,

1 Although the Senate Appropriations Department of Homeland Security Subcommittee chairman introduced an
identical bill a week later, as the bill did not proceed through the markup process and therefore has no associated report
or detail table, the analysis in this report continues to refer to the draft and its explanatory statement.
2 When dealing with bill totals, the report refers to “adjusted annual net discretionary appropriations,” which take into
account the offsetting impact of rescissions or cancellations of budget authority provided in prior years. Neither of the
discretionary appropriations totals include emergency or disaster relief-designated funding.
3 This total evolved over the course of the process, owing in part to the changes in unobligated balances available for
rescission. Analyses in the report refer to the CBO’s estimates as outlined in the detail table at the end of H.Rept. 117-
87.
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2022. H.Rept. 117-87 was filed on July 15, 2022. Committee-reported H.R. 4431
included $52.80 billion in adjusted net discretionary budget authority. This was
$183 million below the level requested by the Administration and $928 million
above the FY2021 enacted level.
H.R. 4431 was not brought to the House floor before the end of FY2021—one of two annual
appropriations measure for FY2022 to be reported by the committee that did not get floor
consideration. As no annual appropriations for FY2022 had been signed into law before the end
of FY2021, a continuing resolution was enacted (P.L. 117-143), temporarily extending funding
for the federal government. Table 1 summarizes the continuing appropriations provided for DHS
in FY2022. For further information on the FY2022 continuing resolutions, see CRS Report
R46953, Overview of Continuing Appropriations for FY2022 (P.L. 117-43).

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Table 1. Continuing Resolution Summary for DHS, FY2022
Bill
House
Senate
Presidential
Rate for
Expiration
Number
Passage
Passage
Approval
Operations
Date
DHS-Specific Provisions
H.R. 5305
254-175
65-35
P.L. 117-43
“as provided ...
12/3/21
Division A is the CR:
9/30/21
9/30/21
9/30/21
for fiscal year

The rate for operations was based on the FY2021 annual appropriation,
2021”
not including a one-time transfer.

Certain policy provisions in Div. O of the FY2021 consolidated
appropriations act were also extended.

Section 133 provided flexibility in allocations for the Disaster Relief Fund.

Section 134 extended the National Flood Insurance Program for the term
of the CR.
Division B is a disaster supplemental:

$50 mil ion for FEMA Emergency Management Performance Grants.

Cancelled all outstanding Community Disaster Loans.
Division C is a supplemental related to Afghanistan:

$193 mil ion for U.S. Citizenship and Immigration Services.

$344 mil ion in changes to mandatory programs related to Afghan refugee
resettlement were charged to the subcommittee.
H.R. 6119
221-212
69-28
P.L. 117-70
unchanged
2/18/22
Division A is the extension of the CR via a date change.
12/2/21
12/2/21
12/3/21
Division B is a further supplemental related to Afghanistan:

Provided $147.5 mil ion for the DHS Office of the Secretary and
Executive Management for DHS component expense related to
Operation Allies Welcome.
H.R. 6119
272-162
65-27
P.L. 117-86
unchanged
3/11/22
Division A is the extension of the CR via a date change.
2/8/22
2/17/22
2/18/22

H.J.Res. 75
vv
vv
P.L. 117-95
unchanged
3/15/22
Extends the CR via a date change.
3/9/22
3/10/22
3/11/22
Source: LIS and the explanatory statement accompanying P.L. 117-103, Div. F.
Notes: vv = voice vote. All funding specified is designated as an emergency requirement. There were no lapses in annual appropriations for FY2022.

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Comparing DHS Component Funding Proposals, FY2022: In Brief

On October 18, 2021, Senate Appropriations Committee chairman Senator Patrick Leahy released
drafts of nine appropriations measures that had yet to be marked up by the committee, along with
draft explanatory statements for each.4 Vice Chairman5 Senator Richard Shelby criticized the
move as partisan and unilateral, and indicated he would not support the bills, and that an
agreement on overall spending levels was needed to produce bills he would support.6 A week
later, S. 3058, an identical bill, was introduced by Senate Appropriations Committee
Subcommittee on the Department of Homeland Security Chairman Senator Christopher Murphy.
The Senate Appropriations majority draft bill for DHS for FY2022 included $52.92 billion in
adjusted net discretionary budget authority. This was $70 million below the level requested by the
Administration, and $1.04 billion above the enacted annual level for FY2021.
On March 9, 2022, the House took up a consolidated appropriations measure as an amendment to
H.R. 2471 (an unrelated bill). After dividing the question, the House passed the portion with
Division F, the Department of Homeland Security Appropriations Act, 2022 by a vote of 361-69.7
The Senate agreed to the House amendment the next day by a vote of 68-31,8 and President Biden
signed the measure into law on March 15, 2022, as P.L. 117-103. Division F included $57.50
billion in adjusted net discretionary budget authority. This was $5.03 billion above the level
requested by the Administration, and $5.62 billion above the enacted level for FY2021.
Supplemental Appropriations
On a separate track, on August 1, 2021, S.Amdt. 2137 was introduced in the Senate. This measure
was a substitute for H.R. 3684, a House-passed infrastructure measure. The amendment, which
was adopted by a vote of 68-28 on August 8, had been developed as a compromise infrastructure
package that could pass the Senate. The amended bill passed the Senate by a vote of 68-30 on
August 10, 2021, passed the House 228-206 on November 5, and was signed into law as P.L. 117-
58 on November 15. Division J of the P.L. 117-58 included a range of supplemental
appropriations, including a total of $7.96 billion for DHS, $3.08 billion of which would be
available in FY2022.9
Aside from the two sets of supplemental appropriations provided in parallel with continuing
resolutions noted above, additional supplemental funding for DHS is still pending before
Congress. H.R. 5376—a reconciliation package that passed the House 220-213 on November 19,
2021—includes
 $400 million for the Cybersecurity and Infrastructure Security Agency (CISA)
for several cybersecurity programs (Sec. 50001);
 $100 million for FEMA for cybersecurity grants (Sec. 50002);

4 The draft bills and explanatory statements can be found on the Senate Appropriations Committee website at
https://www.appropriations.senate.gov/news/majority/chairman-leahy-releases-remaining-nine-senate-appropriations-
bills.
5 This is the title for the leader of the minority party on the Senate Appropriations Committee.
6 U.S. Senate Committee on Appropriations, “Shelby: Democrats’ Partisan Bills Threaten FY22 Appropriations
Process,” press release, October 18, 2021, https://www.appropriations.senate.gov/news/shelby-democrats-partisan-
bills-threaten-fy22-appropriations-process.
7 Roll No. 65, available at https://clerk.house.gov/Votes/202265.
8 Record Vote No. 78, available at https://www.senate.gov/legislative/LIS/roll_call_votes/vote1172/
vote_117_2_00078.htm.
9 The remaining amounts (considered “advance appropriations”) are not reflected in this report, as they are not
available for use in FY2022. As they become available in later fiscal years, they will appear in future analyses.
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 $100 million for FEMA for the Nonprofit Security Grant Program (Sec. 50003);
 $900 million for the DHS Management Directorate for environmental and
sustainability programs (Sec. 50004);
 $100 million for FEMA for the Assistance to Firefighters Grant Program, and its
administrative expenses (Sec. 90005);
 $150 million for FEMA grants to support updating building codes (Sec. 110008);
 $650 million the Coast Guard for climate resilient facilities (Sec. 110011);
 $350 million for a new Great Lakes icebreaker (Sec. 110012); and
 $20.5 billion in debt cancellation for the National Flood Insurance Program
(NFIP), and $600 million for an NFIP affordability program. (Sec. 40104).
It remains to be seen if this bill will become law in its present form; this potential funding is not
included in the analyses below.
DHS Budgetary Resources: Beyond the Score
Discussion regarding annual appropriations often centers on the appropriations provided in the
bill or how the bill scores against budget limitations. However, this “score” does not represent the
total budget authority provided to DHS, or controlled through appropriations bills and reports.
 The use of offsetting collections reduces the “score” of the bill and provides
significant resources to some components of DHS, such as the Transportation
Security Administration.
 Discretionary scores of bills do not include mandatory spending, resources
derived directly from fee collections without annual congressional action, or
emergency- or disaster relief-designated appropriations.
Congress controls the reprogramming of many of these resources through detail tables provided
at the end of appropriations committee reports, conference reports, and statements of managers.
Figure 1 uses the data drawn from these detail tables to provide a more comprehensive picture of
the resources available to seven DHS operational components—the seven largest components of
DHS in terms of net discretionary budget authority:
 U.S. Customs and Border Protection (CBP),
 the U.S. Coast Guard (USCG),
 Immigration and Customs Enforcement (ICE),
 the Transportation Security Administration (TSA),
 Federal Emergency Management Agency (FEMA),
 U.S. Secret Service (USSS), and
 the Cybersecurity and Infrastructure Security Agency (CISA).
In Figure 1 these seven components are listed along the bottom axis. Each component’s funding
level as a section of the figure has five bars, representing the different phases of the
appropriations process: prior-year (i.e., FY2021) enacted, current year (i.e., FY2022) requested
annual appropriations, the ensuing responses of the House and Senate appropriations committees,
and the annual appropriations provided in the enacted consolidated appropriations measure.
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The base segment of each bar represents net discretionary budget authority. On top of these bases
are several other segment types, representing offsetting collections, programs paid for directly by
fees, mandatory appropriations,10 funding covered by disaster relief and emergency designations
in annual appropriations, and supplemental appropriations.11
Figure 1 allows for a visual comparison of changes in individual component funding and
provides a more complete description of each component’s overall resource level than a review of
the net discretionary appropriations alone. Among the changes it illuminates are:
 The relative magnitude of disaster spending (which encompasses the mandatory,
disaster relief designated, and most of the supplemental funding for FEMA)
compared with other DHS funding priorities—FEMA’s FY2021 total requires a
scaled inset to fully display it;
 The reduced fee-funding of CBP programs being made up for by additional
appropriations;
 The breadth of supplemental appropriations provided across the department in
FY2021 and FY2022;
 The relative similarities of component level funding allocations between the
House-reported and Senate majority-drafted bills (slightly more for CBP and
USCG in the House-reported bill, slightly more for FEMA and CISA in the
Senate majority-drafted bill);
 The continued growth of CISA, although it remains one of the smaller
operational components within DHS.
Table 2, which follows immediately thereafter, provides a complete breakdown of the total
budget authority provided for FY2022 outlined in appropriations committee tables for all DHS
components, arranged by FY2021 enacted annual net discretionary budget authority.
Some DHS components have access to funding beyond the budget authority controlled for
reprogramming through the aforementioned detail tables in appropriations committee reports.
Although some of the mandatory spending for DHS, including many fee-funded programs, is
reflected in the tables, much of DHS’s mandatory spending is not, and is therefore not reflected in
Figure 1 or Table 2. This includes spending on flood insurance claims, as well as trust funds for
the Coast Guard and the Secret Service. Information on this type of mandatory spending can be
found in the Administration’s budget request.12
Likewise, the detail tables and the figures and tables based upon them in this report do not reflect
reimbursements between components for services provided, such as payments from partner
agencies to the Federal Law Enforcement Training Center for the cost of training programs.
Information on these resources can be found in the DHS annual budget justifications submitted to
Congress.13

10 Usually the mandatory spending reflected here is composed of two elements: Coast Guard retired pay, which is
considered mandatory spending but requires congressional action nonetheless; and $250 million from the Aviation
Security Capital Fund. However, FY2021 also includes mandatory funding from P.L. 117-2, the American Rescue Plan
Act, which included resources for FEMA and CISA.
11 For more details about adjustments to discretionary spending limits under the BCA, see CRS Report R45778,
Exceptions to the Budget Control Act’s Discretionary Spending Limits, by Megan S. Lynch.
12 The FY2022 DHS budget request can be found on the Office of Management and Budget website, or linked directly
at https://www.whitehouse.gov/wp-content/uploads/2021/05/dhs_fy22.pdf.
13 The FY2022 DHS budget justification can be found at https://www.dhs.gov/publication/congressional-budget-
justification-fy-2022.
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Figure 1. DHS Budget Authority by Selected Component, FY2021-FY2022

Source: See Table 2.
Notes: Data do not reflect the impact of rescissions or advance appropriations not available in a given fiscal year. CBP = U.S. Customs and Border Protection; USCG =
U.S. Coast Guard; ICE = U.S. Immigration and Customs Enforcement; TSA = Transportation Security Administration; FEMA = Federal Emergency Management Agency;
USSS = U.S. Secret Service; CISA = Cybersecurity and Infrastructure Security Agency.
CRS-7

Table 2. DHS Budget Authority by Component, FY2021-FY2022
(thousands of dollars of budget authority controlled for reprogramming through appropriations committee reports)
FY2021
FY2022
Enacted
SAC
Enacted
(Annual and
FY2022
HAC-
Majority
(Annual and
Component / Funding Aspect
Supplemental)
Request
reported
Draft
Supplemental)
CBP
18,526,402
16,424,623
16,573,623
16,344,967
18,094,103
Net Discretionary Funding
15,038,557
14,617,589
14,766,589
14,537,933
16,287,069
Offsetting Col ections
238,939
206,000
206,000
206,000
206,000
Fee-funded Programs
2,408,906
1,601,034
1,601,034
1,601,034
1,601,034
Emergency Annual Appropriations
840,000
-
-
-
-
Supplemental Appropriations
-
-
-
-
430,000
USCG
12,848,954
12,875,442
13,176,742
13,043,192
13,891,792
Net Discretionary Funding
10,975,250
10,907,923
11,209,223
11,075,673
11,490,273
Offsetting Col ections
4,000
4,000
4,000
4,000
4,000
Mandatory Appropriations
1,869,704
1,963,519
1,963,519
1,963,519
1,963,519
Supplemental Appropriations
-
-
-
-
434,000
ICE
8,350,139
8,371,096
8,251,585
8,313,329
8,877,494
Net Discretionary Funding
7,973,529
7,991,486
7,871,975
7,933,719
8,497,884
Fee-funded Programs
376,610
379,610
379,610
379,610
379,610
TSA
8,567,195
8,720,811
8,720,811
8,720,811
8,743,461
Net Discretionary Funding
5,017,731
6,154,811
6,154,811
6,154,811
6,177,461
Offsetting Col ections
3,293,964
2,310,000
2,310,000
2,310,000
2,310,000
Fee-funded Programs
5,500
6,000
6,000
6,000
6,000
Mandatory Appropriations
250,000
250,000
250,000
250,000
250,000
CRS-8

FY2021
FY2022
Enacted
SAC
Enacted
(Annual and
FY2022
HAC-
Majority
(Annual and
Component / Funding Aspect
Supplemental)
Request
reported
Draft
Supplemental)
FLETC
340,348
355,636
355,636
355,636
355,636
Net Discretionary Funding
340,348
355,636
355,636
355,636
355,636
A&O
298,500
320,620
320,620
320,620
298,171
Net Discretionary Funding
298,500
320,620
320,620
320,620
298,171
OSEM
205,819
249,747
268,153
241,555
271,053
Net Discretionary Funding
205,819
249,747
268,153
241,555
271,053
Supplemental Appropriations
—
—
—
—
147,456
OIG
190,186
205,359
205,359
205,359
205,359
Net Discretionary Funding
190,186
205,359
205,359
205,359
205,359
USCIS
5,059,663
4,760,784
4,773,784
5,209,014
5,231,641
Net Discretionary Funding
127,790
469,504
482,504
487,504
409,504
Fee-funded Programs
4,931,873
4,291,280
4,291,280
4,721,510
4,822,137
Supplemental Appropriations
—
—
—
—
193,000
TOTAL NET DISCRETIONARY BUDGET AUTHORITY PLUS
DISASTER RELIEF AND EMERGENCY FUNDING, DHS
77,300,401
77,722,519
78,224,093
78,118,686
84,774,912
Sources: CRS analysis of P.L. 116-260, Divisions F and M and its explanatory statement; P.L. 117-103, Division F, and its explanatory statement; H.R. 4431 and H.Rept.
117-87; the Senate Appropriations Committee majority-produced draft appropriations bil and explanatory statement released on October 18, 2021.
Notes: Data do not reflect the impact of rescissions or advance appropriations not available in a given fiscal year. HAC = House Appropriations Committee; SAC =
Senate Appropriations Committee; CBP = U.S. Customs and Border Protection; USCG = U.S. Coast Guard; ICE = U.S. Immigration and Customs Enforcement; TSA =
Transportation Security Administration; FEMA = Federal Emergency Management Agency; USSS = U.S. Secret Service; CISA = Cybersecurity and Infrastructure Security
Agency; MD = Management Directorate; S&T = Science and Technology Directorate; CWMD = Office of Countering Weapons of Mass Destruction; FLETC = Federal
Law Enforcement Training Center; A&O = Analysis and Operations; OSEM = Office of the Secretary and Executive Management; OIG = Office of the Inspector General;
USCIS = U.S. Citizenship and Immigration Services.
a. Division J of P.L. 117-58 includes a general provision (Section 501) that directs a transfer of 0.25% of the supplemental appropriations provided to DHS in the bil
each fiscal year to the DHS OIG.

CRS-10

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DHS Appropriations: Comparing Scores
It is often useful to present comparative analysis to put enacted annual funding levels for given
DHS components in context. Table 3 shows net discretionary annual FY2022 appropriations for
DHS distributed by departmental component in comparison to two common baselines.
The table presents an analysis of a component’s net discretionary annual appropriations—
appropriations provided from the Treasury that are not offset by other incoming resources or
given special exemption.14 Comparison is drawn between two common baselines that are shown
in Table 1—the FY2021 enacted funding level and the FY2022 requested funding level. The first
column of figures shows the FY2022 enacted annual net discretionary amount for each
component. Changes from that level are reflected in thousands of dollars, and then as a
percentage. The components are ordered from largest to smallest by FY2022 enacted funding
level.
FY2021 and FY2022 supplemental appropriations are not reflected in Table 3. The purpose of the
table is to provide comparative perspectives on annual appropriations levels, as well as to
improve understanding of comparative annual appropriations levels across the department, rather
than to survey total resources provided by Congress, which can be seen in Figure 1 and Table 2.
Table 3. Enacted DHS Annual Net Discretionary Appropriations, FY2022, Compared
(net discretionary budget authority, in thousands of dollars)
Compared to FY2021
Compared to FY2022

FY2022 Annual Enacted
(P.L. 116-260, Div. F)
Annual Request
Component (P.L. 117-103, Div. F)
$
%
$
%
CBP
16,287,069a
1,669,480
11.4%
1,248,512
8.3%
USCG
11,490,273
582,350
5.3%
515,023
4.7%
ICE
8,497,884b
506,398
6.3%
524,355
6.6%
TSA
6,177,461
22,650
0.4%
1,159,730
23.1%
FEMA
5,242,043c
19,199
0.4%
699,184
15.4%
USSS
2,611,888
39,971
1.6%
173,887
7.1%
CISA
2,593,656
460,026
21.6%
568,680
28.1%
MD
2,259,325d
208,956
10.2%
646,368
40.1%
S&T
886,403
63,500
7.7%
120,845
15.8%
CWMD
452,011
24,550
5.7%
49,734
12.4%
FLETC
355,636
—
0.0%
15,288
4.5%
A&O
298,171
(22,449)
(7.0%)
(329)
(0.1%)
OSEM
271,053
21,306
8.5%
65,234
31.7%
OIG
205,359
—
0.0%
15,173
8.0%
USCIS
409,504
(60,000)
(12.8%)
281,714
220.5%

14 The two most common types of exemption in the DHS appropriations context are the emergency designation and the
disaster relief designation. These designations exempt such funding from being counted against discretionary budget
limits.
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Comparing DHS Component Funding Proposals, FY2022: In Brief

Sources: CRS analysis of P.L. 116-260, Division F and the explanatory statement accompanying it; H.R. 4431 and
H.Rept. 117-87.
Notes: Negative numbers are shown in (parentheses).—= a zero value. Data do not reflect the impact of
transfers, rescissions, emergency- or disaster relief-designated funding, or advance appropriations not available in
the given fiscal year. CBP = U.S. Customs and Border Protection; USCG = U.S. Coast Guard; ICE = U.S.
Immigration and Customs Enforcement; TSA = Transportation Security Administration; FEMA = Federal
Emergency Management Agency; USSS = U.S. Secret Service; CISA = Cybersecurity and Infrastructure Security
Agency; MD = Management Directorate; S&T = Science and Technology Directorate; CWMD = Office of
Countering Weapons of Mass Destruction; FLETC = Federal Law Enforcement Training Center; A&O = Analysis
and Operations; OSEM = Office of the Secretary and Executive Management; OIG = Office of the Inspector
General; USCIS = U.S. Citizenship and Immigration Services.
a. Includes $650 mil ion in Title V to make up for fee shortfalls. $840 mil ion in emergency funding for the
same purpose is not included in the FY2021 enacted total. Also includes $993 mil ion in Title V for CBP
border management requirements.
b. Includes $239 mil ion in Title V for non-detention border management requirements.
c. Includes $3 mil ion in Title V for grants to pay certain law enforcement costs related to presidential
protection. $12.7 mil ion for the same purpose is included in the FY2021 enacted total. Also includes $150
mil ion for FEMA Emergency Food and Shelter grants for those encountered by DHS.
d. Includes $130.5 mil ion in Title V for joint processing centers to serve the U.S. / Mexico border.

Author Information

William L. Painter

Specialist in Homeland Security and Appropriations

Disclaimer
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