DHS Budget Request Analysis: FY2023

June 2, 2022 R47123

DHS Budget Request Analysis: FY2023
June 2, 2022
On March 28, 2022, the Joseph R. Biden, Jr. Administration released its budget request for
FY2023, including $97.29 billion for the Department of Homeland Security (DHS).
William L. Painter
Specialist in Homeland
DHS is the third largest agency in the federal government in terms of personnel. The annual
Security and
appropriations bill that funds it—providing more than $81 billion in FY2022—is the seventh
Appropriations
largest of the 12 annual funding measures developed by the appropriations committees, and is the

only appropriations bill that funds a single agency in its entirety and nothing else.

The FY2023 budget request was the second detailed budget proposed by the Biden
Administration. It was released 13 days after the enactment of the FY2022 consolidated appropriations measure, too soon for
the Appendix or accompanying justification documents to include direct comparisons to FY2022 enacted funding and
guidance. Although budget requests have been made prior to the conclusion of the prior year appropriations process for DHS
twice, this is the first time that the request has been made less than two weeks after such enactment. Such a quick turnaround
precludes the use of prior year enacted funding levels in budget formulation and justification, which may contribute to a lack
of clarity in the public presentation of budget priorities for the coming fiscal year.
This report provides an overview of the FY2023 annual budget request for the Department of Homeland Security. It provides
a component-level overview of the appropriations requested for FY2023, and puts the requested appropriations in context
with the FY2022 requested and enacted appropriations levels, to the extent possible, while noting some of the factors behind
the larger changes from those baselines.
The FY2023 budget request includes a larger gross discretionary request for every component compared to the FY2022
request. Some of the major drivers of change in the FY2023 request include
 a $19.74 billion request for the Disaster Relief Fund (DRF), up $941 million from the FY2022 enacted
level, including a $2 billion reserve for initial response operations for new significant events, and a $1
billion set-aside for pre-disaster mitigation grants;
 a $1.52 billion increase in the gross discretionary budget request for the Transportation Security
Administration, driven by major changes to TSA’s personnel system—costing almost $1 billion—and
offset by a legislative proposal to provide TSA the full resources of the Aviation Passenger Security Fee;
 no proposed rescissions, compared to $2.03 billion sought in FY2022;
 an increase of $527 million above the enacted gross discretionary funding level for Departmental
Management, largely due to an increase of $461 million (27.8%) for the Federal Protective Service;
 an increase of $504 million (55.2%) above the enacted level for the Operations and Support appropriation
for U.S. Citizenship and Immigration Services to fund efforts to clear application backlogs; and
 a 4.6% pay increase for both civilian and military DHS personnel.
CRS reports on FY2023 appropriations for DHS to update the analysis presented in this report are in preparation.
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DHS Budget Request Analysis: FY2023

Introduction
The Department of Homeland Security (DHS) is the third largest agency in the federal
government in terms of staffing, with roughly 252,000 civilian and military personnel. The annual
appropriations bill that funds it—providing more than $81 billion in FY2022—is the seventh
largest of the 12 annual funding measures developed by the appropriations committees, and is the
only appropriations bill that funds a single agency in its entirety and nothing else.
This report provides an overview of the Biden Administration’s FY2023 annual budget request
for the Department of Homeland Security. It provides a component-level overview of the
appropriations sought in the FY2023 budget request, and puts the requested appropriations in
context with the FY2022 requested and enacted level of appropriations, while noting some of the
factors behind the larger changes from those baselines.
Data Sources and Caveats
The analysis in this report is based on Office of Management and Budget (OMB) data as
presented in the FY2023 Budget-in-Brief for DHS, as well as supporting information from the
DHS congressional budget justifications for FY2023, except where noted.1 Most other CRS
appropriations reports rely on Congressional Budget Office (CBO) data, which was not available
at a similar level of granularity at the time of publication.2 Numbers expressed in billions are
rounded to the nearest hundredth ($10 million), while numbers expressed in millions are rounded
to the nearest million.
Despite some of the comparisons presented here, the FY2023 budget request may not be directly
responsive to the FY2022 enacted annual appropriations. The Consolidated Appropriations Act,
2022, was signed into law on March 15, 2022. The FY2023 budget proposal was released less
than two weeks later. As the creation of the budget request is a months-long process, it may not
have been feasible to effect any significant changes in the request over such a short time frame.
None of the FY2022 requested or enacted levels in this report used for comparisons include
supplemental appropriations, including those requested and/or provided in the wake of the
COVID-19 pandemic, as the intent is to analyze the FY2023 annual appropriations request in
comparison to the preceding request and annual appropriations.
Structure of the DHS Budget
FY2023 Context
The FY2023 budget request was the second detailed budget proposed by the Joseph R. Biden Jr.
Administration. The first, released ten months before, was the longest-delayed release of an
annual budget request for DHS since the establishment of the department in 2003. While the
FY2023 request came closer to the statutory deadline for the submission of the budget to

1 These documents are available at https://www.dhs.gov/dhs-budget.
2 As the executive branch and legislative branch follow different scorekeeping procedures and at times structure
resources differently over the course of discussion, CRS generally avoids making comparisons between executive
branch and legislative branch documentation of appropriations. In this case, due to time constraints, CRS (for purposes
of this report) determined that it is unavoidable.
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DHS Budget Request Analysis: FY2023

Congress,3 the seven-week delay was the longest in a non-inauguration year since the passage of
the Budget Act of 1974.
The budget for DHS includes a variety of discretionary and mandatory budget authority. Aside
from standard discretionary spending, some of the discretionary spending in the bill is offset by
collections of fees, reducing the net effect on the general fund of the Treasury. Additionally, a
large portion of the funding the Federal Emergency Management Agency (FEMA) receives for
the Disaster Relief Fund (DRF) has received special budgetary exemptions from subcommittee
allocations and statutory spending limits.4 DHS also draws resources from fee revenues and other
collections included in the mandatory budget, which are not usually referenced in annual
appropriations legislation. However, some mandatory spending items still require an
appropriation because there is no dedicated source of funding to meet the government’s
obligations established in law—e.g., U.S. Coast Guard (USCG) retirement accounts.5 Figure 1
shows a breakdown of these different categories from the FY2023 budget request.
Figure 1. FY2023 Budget Request Structure
(dollars of budget authority)

Source: Developed by CRS, based on the “DHS Resource Table,” DHS Budget in Brief, FY2023, pp. 88-107.
Notes: “Budget Authority from Discretionary Appropriations” reflects the offsetting effect of the fees and the
disaster relief designation shown in the two bars below it. The Administration’s accounting for appropriated
mandatory budget authority includes the Aviation Security Capital Fund and several U.S. Coast Guard items:
Retired Pay, Boat Safety, Maritime Oil Spil Program, and General Gift Fund.
Congress and the Administration may differ on how funding for the department is structured.
Administrations of both parties have suggested paying for certain activities with fee increases that
would require legislative approval. If fees are not increased, additional discretionary
appropriations would be required to fund the planned activities.6

3 The President is required to submit his budget request to Congress by the first Monday in February, based on the
Budget and Accounting Act of 1921; in practice, the release is often delayed. The last budget released on the deadline
was the FY2016 request on February 2, 2015.
4 Both the special designation for disaster relief funding and the statutory spending limits the designation adjusted,
established by the Budget Control Act (P.L. 112-25), expired at the end of FY2021. Congress chose to extend that
flexibility for FY2022, and could continue to do so.
5 For a further discussion of these terms and concepts, see CRS Report R46240, Introduction to the Federal Budget
Process, by James V. Saturno.
6 This is the case in FY2023, with the Administration proposing a change in the disposition of revenues from the
Aviation Security Passenger Fee.
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Because the FY2023 budget request was released less than two weeks after FY2022 annual
appropriations were finalized, the budget documents do not make direct analytical comparisons
that would allow for a complete comparison of each of the above elements. However, several
comparisons can be made in the first three categories of discretionary funding:
 With its proposed $83.34 billion in gross budget authority from discretionary
appropriations, the Administration is seeking $5.62 billion (7.2%) more in
discretionary appropriations than it did for FY2022, and $2.21 billion (2.7%)
more than was enacted in annual appropriations for FY2022.
 The Administration also proposes a $2.45 billion (55.4%) increase in offsetting
collections from the FY2022 enacted level. These increases include $1.64 billion
for the Transportation Security Administration from the aviation security
passenger fee ($1.52 billion of which would require legislation),7 and an
anticipated $460 million in additional offsetting fee collections for the Federal
Protective Service.
 The FY2023 request also includes an increase of $941 million (5.0%) above the
FY2022 requested and enacted level of disaster relief-designated discretionary
appropriations.
 Once the offsetting collections and disaster relief are taken into account, the
Administration is proposing $4.26 billion (8.1%) more in adjusted net
discretionary appropriations than were requested in FY2022, and $770 million
(1.3%) less than was enacted in FY2022 annual appropriations.
Appropriations Analysis
Comparing the FY2023 Request to Prior-Year Levels
Table 1 presents the requested gross discretionary budget authority for FY2023 for each DHS
component, as well as the funding level requested and enacted in the FY2022 annual
appropriations act, as well as in measures with supplemental appropriations.
 While this table compares data developed with the CBO scoring methodology
with data developed with the OMB scoring methodology, historically, the scoring
differences between the two in tallying gross discretionary spending have been
small.8
 Six analytical columns on the right side of the table provide comparisons of the
FY2023 requested funding levels with the FY2022 requested, enacted annual,
and total enacted9 levels, and indicate both dollar and percentage change.
 Components are listed in order of their total FY2023 requested gross
discretionary budget authority, from highest to lowest.

7 The Administration projects $124 million in revenues under the current authorization, and proposes a change in the
authorization of the fee to eliminate a statutory contribution from the fee to deficit reduction, making $1.52 billion
more of the fee available to offset TSA’s aviation security costs. (Department of Homeland Security, Transportation
Security Administration, September 11th Aviation Passenger Security Fee Fiscal Year 2023 Congressional
Justification, p. TSA-APSF-8.)
8 OMB has yet to release its comparative analysis on the Consolidated Appropriations Act, 2022.
9 This third comparison includes supplemental appropriations.
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DHS Budget Request Analysis: FY2023

 An indented and italicized line beneath the Federal Emergency Management
Agency entry shows the portion of the component’s funding covered by the
special budgetary designation for disaster relief.
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Table 1. Component-Level Analysis of DHS Budget Request (FY2022-FY2023)
(thousands of dollars of gross discretionary budget authority)
vs. FY2022
Annual +
Supplemental +
vs. FY2022
vs. FY2022
Emergency
Component
FY2023 Request
Request
% Change
Annual Enacted
% Change
Enacted
% Change
FEMA
25,064,041
793,861
3.3%
774,662
3.2%
-1,275,338
-4.8%
Disaster Relief
19,740,000
941,000
5.0%
941,000
5.0%
941,000
5.0%
CBP
15,461,020
637,431
4.3%
-1,032,049
-6.3%
-1,462,049
-8.6%
USCG
11,539,242
627,319
5.7%
44,969
0.4%
-389,031
-3.3%
TSA
10,007,352
1,542,541
18.2%
1,519,891
17.9%
1,519,891
17.9%
ICE
8,099,890
108,404
1.4%
-397,994
-4.7%
-397,994
-4.7%
DM
4,439,257
735,504
19.9%
526,548
13.5%
477,048
12.0%
USSS
2,703,509
131,592
5.1%
91,621
3.5%
91,621
3.5%
CISA
2,510,692
377,062
17.7%
-82,964
-3.2%
-137,964
-5.2%
USCIS
913,622
444,118
94.6%
504,118
123.1%
311,118
51.6%
S&T
901,291
78,388
9.5%
14,888
1.7%
-142,612
-13.7%
CWMD
428,972
1,511
0.4%
-23,039
-5.1%
-23,039
-5.1%
FLETC
396,547
40,911
11.5%
40,911
11.5%
40,911
11.5%
IA&O
341,159
20,539
6.4%
42,988
14.4%
42,988
14.4%
OSEM
316,180
66,433
26.6%
45,127
16.6%
-102,329
-24.5%
OIG
214,879
9,520
4.6%
9,520
4.6%
9,520
4.6%
Source: CRS analysis of the FY2023 DHS Budget in Brief and the Consolidated Appropriations Act, 2022, explanatory statement posted in Part III of the March 9, 2022,
Congressional Record.
Notes: Numbers preceded by a “-” are negative. Indented lines are part of the line shown above. FEMA = Federal Emergency Management Agency; CBP = U.S. Customs
and Border Protection; USCG = U.S. Coast Guard; TSA = Transportation Security Administration; ICE = U.S. Immigration and Customs Enforcement; DM =
Departmental Management Directorate; USSS = U.S. Secret Service; CISA = Cybersecurity and Infrastructure Security Agency; USCIS = U.S. Citizenship and Immigration
CRS-5

Services; S&T = Science and Technology Directorate; CWMD = Countering Weapons of Mass Destruction Office; FLETC = Federal Law Enforcement Training Centers;
IA&O = Intelligence, Analysis, and Operations; OSEM = Office of the Secretary and Executive Management; OIG = Office of Inspector General.

CRS-6

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Table 1 illuminates several shifts within the FY2023 DHS discretionary budget request that are
not immediately apparent in top-line analysis:
 The primary drivers for the increase in the Administration’s total discretionary
request were increases for the FEMA associated with growth in major disaster
costs paid from the Disaster Relief Fund, and the Transportation Security
Administration’s gross discretionary total.
 In addition to FEMA, total discretionary budget requests for two other
components increased more than $200 million above the FY2022 enacted level—
Departmental Management ($527 million, or 13.5%, driven by increases for the
Federal Protective Service) and U.S. Citizenship and Immigration Services ($504
million, or 123.1%, driven by increases in appropriations to speed processing of
applications).
 Every component has a larger gross discretionary appropriations request than in
FY2022, while four components’ requests are lower than their FY2022 enacted
annual gross discretionary budget authority:
o U.S. Customs and Border Protection (CBP)—$1.03 billion (6.3%) less;
o U.S. Immigration and Customs Enforcement (ICE)—$398 million (4.7%)
less;
o Cybersecurity and Infrastructure Security Agency (CISA)—$83 million
(3.2%) less; and
o Countering Weapons of Mass Destruction Office (CWMD)—$23 million
(5.1%) less.
It is notable that the annual enacted baseline for CBP and ICE is higher as they both
received additional appropriations in the general provisions of the FY2022 annual
appropriations measure:
o CBP received an additional $650 million to make up for fee shortfalls and
$994 million for border management requirements;
o ICE received $240 million in additional funding for non-detention border
management requirements.
Common DHS Appropriation Types
In FY2017, at congressional direction, DHS implemented a Common Appropriations Structure
(CAS), reorganizing most DHS discretionary appropriations into four uniform categories:
1. Operations and Support (O&S), which generally covers operating salaries and
expenses;
2. Procurement, Construction, and Improvements (PC&I), which funds
planning, development, engineering, purchase, and deployment of assets to
support component missions;
3. Research and Development (R&D), which provides resources needed to
identify, explore, and demonstrate new technologies and capabilities to support
component missions; and
4. Federal Assistance (FA), which supports grant funding managed by DHS
components.
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Some DHS appropriations do not fit the CAS categories. For instance, FEMA’s Disaster Relief
Fund is a unique discretionary appropriation that has been preserved separately, in part, due to the
history of the high level of public and congressional interest in that particular structure.10
Of the $83.34 billion in gross discretionary budget authority requested for DHS in FY2023,
$80.18 billion (96.2%) falls into the four CAS categories and the DRF.11
The CAS structure allows for a quick survey of the level of departmental investment in these
broad categories of spending through the appropriations process.12 Table 2 shows the values of
the four CAS categories and the DRF in detail, and expresses that value as a share of
appropriations in those five categories.13 The following columns compare that value to the
FY2022 requested and annual enacted amounts for each category.
Table 2. FY2023 DHS Annual Appropriations Request by CAS Category
(in thousands of dollars of discretionary budget authority)
Change
Change
Change
Change
FY2023
Share of
from
from
from
from
Annual
Categorized
FY2022
FY2022
FY2022
FY2022
Category
Request
Appropriations
Request
Request (%)
Enacted
Enacted (%)
Operations and
52,274,263
65.2%
+4,499,662
+9.4%
+1,585,793
+3.1%
Support
Procurement,
3,872,040
4.8%
-50,751
-1.3%
-592,590
-13.3%
Construction, and
Improvements
Research and
590,197
0.7%
-28,215
-4.6%
-74,215
-11.2%
Development
Federal Assistance
3,704,672
4.6%
+234,254
+6.8%
-269,475
-6.8%
Disaster Relief
19,740,000
24.6%
+441,000b
+2.3%
+941,000
+5.0%
Funda
Sources: CRS analysis of P.L. 117-103 and the FY2023 DHS Budget-in-Brief.
Notes:
a. The Disaster Relief Fund is currently divided into two parts: one that covers the costs of declared major
disasters under the Stafford Act (which have special budgetary treatment discussed above), and another that
covers other Stafford Act costs (which is treated as regular discretionary appropriations). Due to the
availability of unobligated balances, there was no FY2023 request for the latter category.

10 Additional information on the DHS Common Appropriations Structure (CAS) and other DHS appropriations, can be
found in “The DHS Common Appropriations Structure” section of CRS Report R45268, Department of Homeland
Security Appropriations: FY2019.
11 Two-thirds of the gross discretionary budget authority not included in the CAS structure or DRF for FY2023 is the
Federal Protective Service (FPS), whose appropriations are fully offset by fees. The $460 million increase in the
request for FPS above the requested and enacted levels for FY2022 is a notable contributor to the overall increase in the
FY2023 DHS discretionary budget request.
12 While all DHS components have an Operations and Support (O&S) appropriation, not all components receive
appropriations of each type. 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 a handful of components have Federal Assistance (FA) appropriations.
13 As the “other” category is a mixture of diverse elements without a common theme, and the size of its elements are
either fixed or set by outside factors, it is excluded from this analysis.
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b. In FY2022 the Administration requested $500 mil ion in discretionary appropriations for the DRF
specifically for climate-related mitigation activities, which was not included in the FY2022 enacted measure.
A visual representation of this data follows in Figure 2. On the left are the four appropriations
categories of the CAS, plus the DRF and a catch-all “other” category for discretionary spending
not included in these activity types.14 A black bar represents (to scale) the FY2023 funding levels
requested for DHS for each category. Colored lines flow to the DHS components listed on the
right showing the amount of funding requested in each category to each component.

14 Included in the “other” category are certain appropriations fully offset by fee collections (i.e., the Federal Protective
Service; U.S. Customs and Border Protection’s preclearance activities and customs inspection activities paid for by
certain user fees (known as “Colombia FTA” or “COBRA Customs Fees”); and the Federal Emergency Management
Agency’s activities funded through the National Flood Insurance Fund and the Radiological Emergency Preparedness
Program) and permanent indefinite discretionary spending (i.e., U.S. Customs and Border Protection small airport user
fee and U.S. Coast Guard contributions for health care costs of its Medicare-eligible personnel).
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DHS Budget Request Analysis: FY2023

Figure 2. FY2023 DHS Annual Discretionary Appropriations Request by Category

Source: CRS interpretation of the FY2023 DHS Budget-in-Brief. Elements do not sum to total due to rounding.
Note: FEMA = Federal Emergency Management Agency; CBP = U.S. Customs and Border Protection; USCG =
U.S. Coast Guard; TSA = Transportation Security Administration; ICE = U.S. Immigration and Customs
Enforcement; MD = Departmental Management Directorate; USSS = U.S. Secret Service; CISA = Cybersecurity
and Infrastructure Security Agency; USCIS = U.S. Citizenship and Immigration Services; ST = Science and
Technology Directorate; CWMD = Countering Weapons of Mass Destruction Office; FLETC = Federal Law
Enforcement Training Centers; IAO = Intelligence, Analysis, and Operations; OSEM = Office of the Secretary and
Executive Management; OIG = Office of Inspector General. (Acronyms for the Science and Technology
Directorate and Intelligence, Analysis, and Operations differ from the rest of the report as the tool that
produced this graphic cannot use ampersands in its labels.)
The Operations and Support (O&S) category is the largest of the five categories discussed, and
includes the largest change from either baseline used for comparison. The largest single change in
the O&S budget is for the Transportation Security Administration (TSA), where the FY2023
request is almost $1.45 billion (17.9%) above the FY2022 request level and just over $1.45
billion (17.9%) above the FY2022 enacted level. The second largest value change in the FY2023
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O&S request for DHS is U.S. Customs and Border Protection. In the case of CBP’s O&S
appropriation, the FY2023 request is $1.03 billion (7.7%) above the FY2022 request level—the
second largest increase by value. It is also $940 million (6.1%) below the FY2022 enacted
level—the second largest change in value and the largest decrease from the enacted level, due to
the additional $1.64 billion provided for CBP in Title V of the FY2022 annual appropriations.
This breakdown also highlights the significant amount of DHS resources that flow through the
DRF. Roughly a quarter of DHS’s annual budget provides for the costs of major disasters, and
most of those costs were incurred during past catastrophic disasters and the COVID-19 pandemic.
Staffing
The O&S appropriation for each component pays for most DHS staffing.15 Table 3 and Table 4
analyze changes to DHS staffing, as illuminated by the budget request’s information on positions
and full-time equivalents (FTEs)16 for each component. Appropriations legislation does not
explicitly set these levels, so the information is drawn from the DHS budget justifications.
In Table 3, the first data column indicates the number of positions requested for each component
in the FY2023 budget request. The next two columns show the difference between the FY2023
request and the FY2021 enacted level—expressed numerically, then as a percentage. The
following columns show the same comparison with the number of positions provided for in the
FY2022 request.17 Table 4 shows same analysis for FTEs.
Table 3. FY2023 DHS Positions Analysis
Positions by
Component
Change from
Change from
in the FY2023
FY2021
FY2022
Component
Request
Enacted
%
Request
%
CBP
65,621
2,012
3.16%
1,321
2.05%
TSA
60,652
1,051
1.76%
2,221
3.80%
USCG
52,817
1,632
3.19%
967
1.86%
USCIS
24,265
5,926
32.31%
1,721
7.63%
ICE
22,380
881
4.10%
715
3.30%
USSS
8,305
409
5.18%
200
2.47%
FEMA
6,019
628
11.65%
428
7.66%
DM
4,159
197
4.97%
101
2.49%
CISA
3,256
345
11.85%
286
9.63%
FLETC
1,115
6
0.54%
7
0.63%
IA&O
1,053
156
17.39%
151
16.74%
OSEM
1,003
241
31.63%
148
17.31%

15 Two significant exceptions within DHS are U.S. Citizenship and Immigration Services (USCIS), which uses fee
collections to pay for most of its personnel, and the Federal Protective Service—now part of the Management
Directorate—which is funded wholly through offsetting collections for services provided.
16 The term “full-time equivalents” or “FTEs” is a measure of work equal to 2,080 hours per year. This is distinct from
positions, which is a measure of the number of employees on board or to be hired.
17 This information is presented in the FY2023 Budget in Brief and congressional justifications, rather than in the
FY2022 appropriations measure or explanatory statement.
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Positions by
Component
Change from
Change from
in the FY2023
FY2021
FY2022
Component
Request
Enacted
%
Request
%
OIG
809
36
4.66%
0
0.00%
S&T
565
58
11.44%
35
6.60%
CWMD
269
-18
-6.27%
-40
-12.94%
Total
252,288
13,560
5.68%
8,261
3.39%
Positions
Source: CRS analysis of the “Comparison of Budget Authority and Request” table in the DHS Fiscal Year 2023
Congressional Justifications: Congressional Overview, p. DHS-7.
Notes: Numbers preceded by a “-” are negative. FEMA = Federal Emergency Management Agency; CBP = U.S.
Customs and Border Protection; USCG = U.S. Coast Guard; TSA = Transportation Security Administration; ICE
= U.S. Immigration and Customs Enforcement; DM = Management Directorate; USSS = U.S. Secret Service;
CISA = Cybersecurity and Infrastructure Security Agency; USCIS = U.S. Citizenship and Immigration Services;
S&T = Science and Technology Directorate; CWMD = Countering Weapons of Mass Destruction Office; FLETC
= Federal Law Enforcement Training Centers; IA&O = Intelligence, Analysis, and Operations; OSEM = Office of
the Secretary and Executive Management; OIG = Office of Inspector General.
Table 4. FY2023 DHS Full-Time Equivalents (FTE) Analysis
FTE by
Component
Change from
Change from
in the FY2023
FY2021
FY2022
Component
Request
Enacted
%
Request
%
CBP
61,049
3,389
5.88%
2,574
4.22%
TSA
57,438
882
1.56%
2,269
3.95%
USCG
51,431
1,567
3.14%
1,054
2.05%
USCIS
21,903
3,227
17.28%
1,458
6.66%
ICE
21,710
623
2.95%
453
2.09%
USSS
8,163
367
4.71%
202
2.47%
FEMA
14,789
2,505
20.39%
1,407
9.51%
MD
3,886
148
3.96%
99
2.55%
CISA
2,758
393
16.62%
294
10.66%
FLETC
1,085
3
0.28%
4
0.37%
IA&O
949
96
11.25%
77
8.11%
OSEM
909
205
29.12%
146
16.06%
OIG
778
36
4.85%
18
2.31%
S&T
540
41
8.22%
29
5.37%
CWMD
252
-15
-5.62%
-27
-10.71%
Total FTE
247,640
13,467
5.75%
10,057
4.06%
Source: CRS analysis of the “Comparison of Budget Authority and Request” table in the DHS Fiscal Year 2023
Congressional Justifications: Congressional Overview, p. DHS-7.
Notes: Numbers preceded by a “-” are negative. FEMA = Federal Emergency Management Agency; CBP = U.S.
Customs and Border Protection; USCG = U.S. Coast Guard; TSA = Transportation Security Administration; ICE
= U.S. Immigration and Customs Enforcement; DM = Departmental Management Directorate; USSS = U.S.
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DHS Budget Request Analysis: FY2023

Secret Service; CISA = Cybersecurity and Infrastructure Security Agency; USCIS = U.S. Citizenship and
Immigration Services; S&T = Science and Technology Directorate; CWMD = Countering Weapons of Mass
Destruction Office; FLETC = Federal Law Enforcement Training Centers; IA&O = Intelligence, Analysis, and
Operations; OSEM = Office of the Secretary and Executive Management; OIG = Office of Inspector General.
Overview of Selected Component-Level Changes
The following summaries of the budget requests for the selected DHS components are drawn
from a survey of the DHS FY2023 Budget in Brief and the budget justifications for each
component. Each summary begins with a graphic outlining the annual appropriations requested
and enacted for the components in FY2022 and requested in FY2023, followed by observations
on the contributing factors. The appropriations request amounts include all funding that would be
provided through a positive action in the annual appropriations measure. These amounts do not
include emergency funding, permanent indefinite discretionary spending, or most mandatory
spending, such as programs paid for directly by collected fees that have appropriations in
permanent law.
Each component’s Operations and Support appropriation includes discretionary funding for pay.
A 4.6% civilian and military pay increase has been proposed by the Administration for 2023.
Descriptions of each such appropriation note the impact of these pay increases—as well as the
annualization of the 2022 pay increase—to distinguish between such pay increases and other
operational funding shifts.
Law Enforcement Operational Components (Title II)
U.S. Customs and Border Protection
Figure 3. CBP Requested and Enacted Annual Appropriations by Type,
FY2022-FY2023

Source: CRS analysis of the FY2023 DHS Budget in Brief and the explanatory statement accompanying the
Consolidated Appropriations Act, 2022.
Notes: “Other” appropriations include Colombia Free Trade Act col ections appropriated to CBP and
permanent indefinite discretionary spending for CBP services at facilities that pay user fees. As the projections
for these amounts frequently differ between OMB and congressional sources, the analysis focuses on the
Operations and Support and Procurement, Construction, and Improvements appropriations.
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DHS Budget Request Analysis: FY2023

The Administration’s $15.46 billion FY2023 annual appropriations request for CBP was $1.03
billion (6.3%) below the FY2022 enacted level, and $637 million (4.3%) above the level of
appropriations originally requested for FY2022. The request included:
 $940 million less than enacted in FY2022 for Operations and Support (O&S). As
noted above, the enacted number for FY2022 was higher than usual due to
additional annual CBP appropriations in Title V to make up fee revenue shortfalls
($650 million) and for border management requirements ($994 million). When
those amounts are set aside, the CBP O&S appropriations request was $703
million higher than the FY2022 enacted level. The request included:
o $385 million to cover increased pay costs;18
o a $95 million increase above the FY2022 requested level for 300 new Border
Patrol Agents and their basic training;19
o a $23 million increase for 300 Border Patrol Processing Coordinators, who
would take over non-law enforcement duties currently performed by Border
Patrol Agents;20
o $110 million in funding for contracted medical services for those in CBP
custody;
o $70 million and 300 personnel to expand efforts to combat forced labor,
including adding 151 Import Specialists and 50 CBP Officers; and
o $29 million to establish an Office of the Chief Medical Officer within CBP.21
 $132 million (23.0%) less than was enacted in FY2022 for Procurement,
Construction, and Improvements. The primary driver of this change from the
FY2022 enacted level is a $194 million reduction in funding for Border Security
Assets and Infrastructure. The impact of this reduction is unclear, given the
funding previously provided for Land Port-of-Entry construction, as well as
almost $330 million in increases above the request in the FY2022 DHS
Appropriations Act. Most of the $80 million requested is for the Border
Enforcement Coordination Network (a modernization of the existing Border
Patrol Enforcement System IT network—$60 million) and initial operating
capacity for a common operating picture system on the U.S.-Mexico border ($20
million).22 The FY2023 request also included:
o a $58 million increase from the FY2022 enacted level for Integrated
Operations Airframes and Sensors, mostly for the KA350-CER Multi-Role
Enforcement Aircraft;23 and
o a net $52 million increase from the FY2022 enacted level for Construction
and Facilities Improvements, mostly for Border Patrol Facilities ($60

18 U.S. Department of Homeland Security, U.S. Customs and Border Protection, Fiscal Year 2023 Congressional
Justification, March 28, 2022, p. CBP-OS-8. Available at https://www.dhs.gov/publication/congressional-budget-
justification-fiscal-year-fy-2023. Future references to this document are by page number.
19 FY2023 Budget in Brief, p. 31.
20 FY2023 Budget in Brief, p. 32.
21 pp. CBP-O&S-49, 50.
22 p. CBP-PC&I-43.
23 p. CBP-PC&I-76.
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DHS Budget Request Analysis: FY2023

million) and facilities for Office of Professional Responsibility staff ($35
million).24
Immigration and Customs Enforcement (ICE)
Figure 4. ICE Requested and Enacted Annual Appropriations by Type,
FY2022-FY2023

Source: CRS analysis of the FY2023 DHS Budget in Brief and the explanatory statement accompanying the
Consolidated Appropriations Act, 2022.
The Administration’s $8.01 billion FY2023 annual appropriations request for ICE was $398
million (4.7%) below the FY2022 enacted level, and $108 million (1.4%) above the level of
appropriations originally requested for FY2022. The FY2023 request included:
 $444 million (5.3%) less than enacted for Operations and Support (O&S)—
although the enacted number for FY2022 was higher than usual due to additional
annual ICE appropriations in Title V for non-detention border management
requirements ($240 million). When that is set aside, the ICE Operations and
Support appropriations request was $204 million (2.5%) lower than the FY2022
enacted level.
o $167 million of the requested Operations and Support appropriations was for
pay increases.25
o The primary driver of the reduction in the O&S appropriation was a
reduction of $542 million in detention bed funding, representing a reduction
in support costs for 5,000 individuals in the average population of adult
detainees (reducing that average to 25,000).26
o The FY2023 request included a total of 693 new ICE positions, including:
 a total of 400 new positions to augment the Office of the Principal Legal
Advisor and the Victim Assistance Program;
 75 new positions to support efforts to address staffing shortfalls;
 50 new positions for an ICE health services corps; and

24 pp. CBP-PC&I-93, 104.
25 U.S. Department of Homeland Security, Immigration and Customs Enforcement, Fiscal Year 2023 Congressional
Justification, March 28, 2022, p. ICE-O&S-9. Available at https://www.dhs.gov/publication/congressional-budget-
justification-fiscal-year-fy-2023. Future references to this document are by page number.
26 FY2023 Budget in Brief, p. 40.
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DHS Budget Request Analysis: FY2023

 45 new positions to help management of cases on the non-detained
docket.27
 $46 million (89.1%) more than enacted for Procurement, Construction, and
Improvements.
o The increase was largely driven by a $57 million increase in Construction
and Facilities Improvements from the FY2022 enacted level, almost entirely
to fund construction and major repairs and renovations to ICE facilities,
including an administration building and new medical building in El Paso,
TX ($25 million and $15 million, respectively).28
o It also included $11 million for facilities expansion for the Office of the
Principal Legal Advisor to support 69 new courtrooms for immigration
cases.29
Transportation Security Administration (TSA)
Figure 5. TSA Requested and Enacted Annual Appropriations by Type,
FY2022-FY2023

Source: CRS analysis of the FY2023 DHS Budget in Brief and the explanatory statement accompanying the
Consolidated Appropriations Act, 2022.
Notes: Due to differences in calculations of offsetting fees between OMB and congressional sources, this figure
presents gross discretionary appropriations.
The Administration’s $10.01 billion FY2023 gross annual appropriations request for TSA was
$1.52 billion (17.9%) above the FY2022 enacted level, and $1.54 billion (18.2%) above the level
of annual appropriations originally requested for FY2022. The Administration includes a
legislative proposal within their request that would dedicate the Passenger Security Fee collection
to TSA. Currently, a portion of the fee goes to deficit reduction. The Administration indicates
such a proposal would provide an additional $1.48 billion to offset TSA’s operating costs in
FY2023.30 The request also included:
 $1.45 billion (17.9%) more than was enacted in gross Operations and Support
(O&S) appropriations in FY2022, largely due to $871 million for changes in
TSA’s personnel system.

27 pp. ICE-O&S-9, 10.
28 pp. ICE-PC&I-40, 41.
29 p. ICE-PC&I-36.
30 Department of Homeland Security, Transportation Security Administration, Fiscal Year 2023 Congressional
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DHS Budget Request Analysis: FY2023

o O&S cost increases within the gross appropriation included $237 million for
paying increased pay costs.31
o The Administration also requested $121 million in costs associated with
transitioning to a collective bargaining environment and the associated
reforms.32
 $41 million (25.8%) less than the FY2022 enacted level for Procurement,
Construction, and Improvements;33
o This was $15 million (11.3%) less in discretionary appropriations than was
requested for FY2022.
o This proposed reduction was driven by a $16 million reduction in the
checked baggage screening program, which reimburses airports for baggage
system upgrades.34
 $2 million (5.6%) less than requested and enacted in FY2022 for Research and
Development appropriations;
o This change was due to a $2 million reduction in funding for the Innovation
Task Force, which conducts demonstration, testing, and system development
for screening functions.35
U.S. Coast Guard (USCG)
Figure 6. USCG Requested and Enacted Annual Appropriations by Type,
FY2022-FY2023

Source: CRS analysis of the FY2023 DHS Budget in Brief and the explanatory statement accompanying the
Consolidated Appropriations Act, 2022.
Notes: “Other” appropriations for the USCG include $253 mil ion in permanent indefinite discretionary
spending for Medicare-eligible military retiree health care, $4 mil ion in offset resources from the USCG Housing
Fund, and a $50 mil ion appropriation for the USCG museum in the FY2022 Act.

Justification, March 28, 2022, p. TSA-APSF-3. Available at https://www.dhs.gov/publication/congressional-budget-
justification-fiscal-year-fy-2023. Future references to this document are by page number.
31 p. TSA-O&S-8.
32 FY2023 Budget in Brief, pp. 45, 46.
33 In additional to discretionary appropriations, $250 million would continue to be provided in mandatory
appropriations from the Aviation Security Capital Fund as it has since FY2004.
34 pp. TSA-PC&I-30, 31.
35 p. TSA-R&D-15.
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DHS Budget Request Analysis: FY2023

The Administration’s $11.93 billion FY2023 annual discretionary appropriations request for the
USCG was $45 million (0.4%) above the FY2022 enacted level, and $627 million (5.7%) above
the level of appropriations originally requested for FY2022. The request included:
 $458 million (5.0%) more than was enacted in FY2022 for Operations and
Support. The FY2023 request was also $559 million higher than the
Administration-requested level for FY2022.
o This includes $219 million for military and civilian pay increases, as well as
increases to ensure parity in allowances with the Department of Defense.36
o Of the $329 million in net program increases:
 $99 million was for follow-on costs for new assets;
 $53 million was for workforce enhancements;
 $48 million was for operations and strategy development to address
issues in Oceania; and
 $37 million was for cyber infrastructure and defense operations.37
 $375 million (18.5%) less than was enacted in FY2022 for Procurement,
Construction, and Improvements. The Administration requested $16 million more
than it did for FY2022.
o Among USCG Vessel programs, which were $111 million above the FY2022
enacted level, the programs with the largest year-to-year shifts in investment
were:
 National Security Cutter—$60 million (-$39 million from the enacted
level, and +$18 million from the FY2022 request);
 Offshore Patrol Cutter—$650 million (+$53 million from the FY2022
requested and enacted levels);
 Fast Response Cutter—$16 million (-$134 million from the enacted
level, and -$4 million from the FY2022 request); and
 Polar Security Cutter—$167 million (+$87 million from the enacted
level, and -$3 million from the FY2022 request).38
o Among Aircraft programs, which were $266 million below the FY2022
enacted level, the programs with the largest reductions were:
 HC-130J—no request (-$148 million from the enacted level, and -$20
million from the FY2022 request); and
 MH-60T—$111 million (-$90 million from the enacted level, and +8
million from the FY2022 request).39
o Among USCG Other Acquisition Programs, which were $45 million (37%)
below the FY2022 enacted level, the largest reductions were:

36 Department of Homeland Security, U.S. Coast Guard, Fiscal Year 2023 Congressional Justification, March 28,
2022, p. USCG-O&S-8. Available at https://www.dhs.gov/publication/congressional-budget-justification-fiscal-year-
fy-2023. Future references to this document are by page number.
37 pp. USCG-O&S-10, 11.
38 p. USCG-PC&I-12.
39 p. USCG-PC&I-55.
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DHS Budget Request Analysis: FY2023

 Cyber and Enterprise Mission Platform—$25 million (-$22 million from
the enacted level and +$3 million from the FY2022 request);
 CG-Logistics Information Management System—$15 million (-$11
million from the FY2022 requested and enacted levels); and
 C4ISR—$14 million (-$8 million from the enacted level and -$4 million
from the FY2022 request).40
o The USCG Shore Facilities and Aids to Navigation activity would receive
$179 million (-$175 million from the enacted level and -$100 million from
the FY2022 request).41
 The Administration requested level funding in FY2023 for Research and
Development compared to the FY2022 requested and enacted levels.42
U.S. Secret Service (USSS)
Figure 7. USSS Requested and Enacted Annual Appropriations by Type,
FY2022-FY2023

Source: CRS analysis of the FY2023 DHS Budget in Brief and the explanatory statement accompanying the
Consolidated Appropriations Act, 2022.
The Administration’s $2.70 billion FY2023 annual discretionary appropriations request for the
USSS was $92 million (3.5%) above the FY2022 enacted level, and $132 million (5.1%) above
the level of appropriations originally requested for FY2022. The request included:
 $79 million (3.1%) more than was enacted in FY2022 for Operations and
Support. The FY2023 request was also $119 million (4.7%) higher than the
Administration-requested level for FY2022.
o This included $69 million for increased pay costs for FY2023.
o Increases for the 2024 Presidential campaign ($34 million) and staffing
growth under the Human Capital Strategic Plan ($42 million) were partially
offset by reduced funding from FY2022 requested levels for the FY2021

40 p. USCG-PC&I-80.
41 p. USCG-PC&I-100.
42 p. USCG-R&D-6.
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DHS Budget Request Analysis: FY2023

Post-Presidential Transition activity (-$20 million) and for protective
countermeasures capabilities (-$13 million).43
 $11 million (20.1%) more than was requested or enacted in FY2022 for
Procurement, Construction, and Improvements, driven by an $11 million increase
in protection infrastructure.44 Increases in funding for next-generation fully
armored vehicles and physical protective structures for the White House were
partially offset by reductions in funding for other armored vehicles and an
enhanced White House camera system.45
 $2 million (74.2%) more than was requested or enacted in FY2022 for Research
and Development. The proposed increase was for protective systems and
weapons testing.46
Incident Response and Recovery Operational Components (Title
III)
Cybersecurity and Infrastructure Security Agency (CISA)
Figure 8. CISA Requested and Enacted Annual Appropriations by Type,
FY2022-FY2023

Source: CRS analysis of the FY2023 DHS Budget in Brief and the explanatory statement accompanying the
Consolidated Appropriations Act, 2022.
Notes: “Other” appropriations shown for the FY2022 request are for the Cybersecurity Response and
Recovery Fund, which was funded at the requested level of $20 mil ion not only for FY2022, but advance
appropriations of $20 mil ion each year from FY2023-FY2026 in P.L. 117-58, Division J. Those appropriations, as
they are supplemental, do not appear in this analysis.

43 Department of Homeland Security, U.S. Secret Service, Fiscal Year 2023 Congressional Justification, March 28,
2022, p. USSS-O&S-8. Available at https://www.dhs.gov/publication/congressional-budget-justification-fiscal-year-fy-
2023. Future references to this document are by page number.
44 p. USSS-PC&I-8.
45 p. USSS-PC&I-15.
46 p. USSS-R&D-8.
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DHS Budget Request Analysis: FY2023

The Administration’s $2.51 billion FY2023 annual appropriations request for CISA was $83
million (3.2%) below the FY2022 enacted level, and $377 million (17.7%) above the level of
appropriations originally requested for FY2022. The request included:
 $31 million (1.6%) less than was enacted in FY2022 for Operations and Support.
However, the request was $377 million (17.7%) higher than the Administration
requested for FY2022.
o $21 million was added for the costs of pay increases;47
o Both Mission Support (+$64 million) and Cybersecurity (+$13 million)
functions were requested above the FY2022 enacted level—however,
reductions in the other programs, projects, and activities, led by Risk
Management Operations ($44 million) and Regional Operations ($15
million) resulted in a slight net reduction from the enacted level overall.48
 $46 million (7.7%) less than was enacted in FY2022 for Procurement,
Construction, and Improvements, largely driven by a $57 million decrease from
the enacted level for emergency communications.49 The Administration requested
the same level ($61 million) that it did in FY2022.
 $7 million (62.3%) less than was enacted in FY2022 for Research and
Development—slightly more than half of the proposed $4 million funding would
go to the Technology Development and Deployment Program, which develops
projects that strengthen the security and resilience of federal infrastructure, and,
when applicable, other critical infrastructure.50 The Administration requested the
same level that it did in FY2022.

47 Department of Homeland Security, Cybersecurity and Infrastructure Security Agency, Fiscal Year 2023
Congressional Justification, March 28, 2022, p. CISA-O&S-9. Available at https://www.dhs.gov/publication/
congressional-budget-justification-fiscal-year-fy-2023. Future references to this document are by page number.
48 p. CISA-O&S-5.
49 p. CISA-PC&I-4.
50 p. CISA-R&D-19.
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DHS Budget Request Analysis: FY2023

Federal Emergency Management Agency (FEMA)
Figure 9. FEMA Requested and Enacted Annual Appropriations by Type,
FY2022-FY2023

Source: CRS analysis of the FY2023 DHS Budget in Brief and the explanatory statement accompanying the
Consolidated Appropriations Act, 2022.
Notes: “Other” appropriations for FEMA include $34 mil ion in offset funding for the Radiological Emergency
Preparedness Program and roughly $215 mil ion for National Flood Insurance Program funding offset from
National Flood Insurance Fund col ections.
The Administration’s $25.06 billion FY2023 annual discretionary appropriations request for
FEMA was $775 million (3.2%) above the FY2022 enacted level, and $794 million (3.3%) above
the level of annual appropriations originally requested for FY2022. The primary driver of this
increase was a $941 million increase from the FY2022 enacted level for the costs of major
disasters in the Disaster Relief Fund. If this is set aside, the request was a $166 million (3.1%)
decrease from the FY2022 enacted level and a $147 million (2.7%) decrease from the FY2022
request. The request included:
 $132 million (10.6%) more than was enacted in FY2022 for Operations and
Support. The FY2023 request was also $146 million higher than the
Administration-requested level for FY2022.
o $21 million was added for the costs of pay increases;51
o $13 million was due to the transfer of DHS continuity of government
operations into FEMA from IA&O.52
o Increases from the FY2022 request included $11 million to recompete the
leases for the Region III and Region IX regional offices53 and $10 million for
the Integrated Public Alert and Warning system.54

51 Department of Homeland Security, Federal Emergency Management Agency, Fiscal Year 2023 Congressional
Justification, March 28, 2022, p. FEMA-O&S-8. Available at https://www.dhs.gov/publication/congressional-budget-
justification-fiscal-year-fy-2023. Future references to this document are by page number.
52 pp. FEMA-O&S-11, 12.
53 p. FEMA-O&S-50.
54 pp. FEMA-O&S-37, 38.
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DHS Budget Request Analysis: FY2023

 $20 million (9.4%) less than was enacted in FY2022 for Procurement,
Construction, and Improvements. The Administration requested $2 million
(1.1%) more than it did for FY2022.
o Reductions were largely driven by a reduction in the requested funds for
FEMA headquarters (-$55 million), Integrated Public Alert Warning System
(IPAWS) acquisition (-$6 million), and the National Continuity Program
Strategic Partner Program (-$6 million).
o These were balanced by increases from the FY2022 request for enterprise
data and analytics modernization (+$28 million), improvements to Mt.
Weather facilities (+$19 million), and information technology acquisition
programs (+$14 million).55
 $256 million (6.8%) less than was enacted in FY2022 for Federal Assistance.
The Administration requested $228 million (6.9%) more than it did for FY2022.
o The Administration proposed increases above their FY2022 requested level
for a variety of preparedness grant programs, including the State Homeland
Security Grant Program (+$21.5 million), the Urban Area Security Initiative
(+$21.5 million), and the Flood Hazard Mapping and Risk Analysis Program
(+$75 million).
o However, in the case of SHSGP and UASI, the requests were each $29
million lower than the FY2022 enacted level, in part due to an increase of
$25 million above the FY2022 enacted level for each program’s share of the
Nonprofit Security Grant Program. This was balanced by a $77 million
reduction in cybersecurity grant funding split between the two programs,
made possible (in the Administration’s view) by cyber grant funding in the
Infrastructure Investment and Jobs Act (P.L. 117-58).56
o In addition, the Administration proposed eliminating $12 million in funding
for the High Risk Dam Safety program, noting dam safety received
significant resources in P.L. 117-58 as well.57
 As noted above, $941 million more than was enacted in annual appropriations for
the DRF for FY2022, and $441 million more than requested for FY2022.
o The DRF request constituted 78.8% of the FY2023 gross discretionary
budget request for FEMA, and 23.7% of the entire FY2023 gross
discretionary budget request for DHS.
o The entire amount requested was for the portion of the DRF that pays costs
associated with major disasters, including
 $8.73 billion for costs associated with the COVID-19 pandemic
response;
 $3.56 billion for costs associated with hurricanes Harvey, Irma, and
Maria;
 $1.71 billion for the costs of past catastrophic disasters (those that cost
the DRF more than $500 million); and

55 p. FEMA-PC&I-8.
56 p. FEMA-FA-20.
57 p. FEMA-FA-20.
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DHS Budget Request Analysis: FY2023

 $2.54 billion for the projected costs of noncatastrophic major disasters
(those that will cost the DRF less than $500 million).58
o It also included a $2 billion reserve for initial response operations for new
“significant events,” and a $1 billion set aside for pre-disaster mitigation
through the Building Resilient Infrastructure and Communities (BRIC) grant
program.59
o The portion of the DRF that pays the costs of Stafford Act programs not
directly associated with specific major disaster declarations is known as the
“DRF base.” For the second fiscal year in a row, those costs (projected at
$725 million for FY2023) would be paid for from unobligated balances of
appropriations provided to the base early in the COVID-19 pandemic.60
Support Components (Title IV)
U.S. Citizenship and Immigration Services (USCIS)
Figure 10. USCIS Requested and Enacted Annual Appropriations by Type,
FY2022-FY2023

Source: CRS analysis of the FY2023 DHS Budget in Brief and the explanatory statement accompanying the
Consolidated Appropriations Act, 2022.
The Administration’s $914 million FY2023 annual discretionary appropriations request for
USCIS was $504 million (123.1%) above the FY2022 enacted level, and $444 million (94.6%)
above the level of annual appropriations originally requested for FY2022. The request included:
 $904 million for USCIS Operations and Support, $514 million (132.0%) more
than was enacted in FY2022 annual appropriations. The FY2023 request was also
$444 million (96.7%) higher than the Administration requested for FY2022.
o $11 million was added for the costs of pay increases;

58 Federal Emergency Management Agency, Disaster Relief Fund: Fiscal Year 2023 Funding Requirements, April 6,
2022, p. 6.
59 The BRIC program is funded by a statutorily-mandated set aside from the DRF equal to 6% of the “estimated
aggregate amount” of certain Stafford Act major disaster grants associated with each major disaster declaration. For
more details on the BRIC program, see CRS Report R46989, FEMA Hazard Mitigation: A First Step Toward Climate
Adaptation, by Diane P. Horn.
60 Federal Emergency Management Agency, Disaster Relief Fund: Fiscal Year 2023 Funding Requirements, April 6,
2022, p. 9.
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DHS Budget Request Analysis: FY2023

o $375 million was added above the FY2022 request level for asylum
adjudications, and $52 million for refugee processing.61
 $10 million for the USCIS Federal Assistance in FY2023, which goes to
Citizenship and Integration Grants. This represented $10 million less than
enacted in FY2022 annual appropriations, but no change from the FY2022
requested level.

Why the Shift?
The FY2023 budget request continued a shift in the balance of resources from the historical pattern of USCIS
funding. From FY2016-FY2021, USCIS received roughly 97% of its budget from mandatory spending, which was
also in line with the general trend of prior years. Most discretionary appropriations were provided specifically for
the E-Verify program. However, immigration policies of the Trump Administration and the response to the
COVID-19 pandemic resulted in significant reductions in USCIS fee col ections, and discussions of potential staff
furloughs as a result.
The Biden Administration’s FY2022 budget request proposed $345 mil ion in Operations and Support
appropriations to support application processing, anticipating 91% of the USCIS budget coming from mandatory
spending of fee revenues. That percentage appears likely lower in FY2022 as a total of $468 mil ion in annual and
supplemental appropriations were provided for application processing, $123 mil ion more than originally
requested.
The FY2023 request continued that trend, with the share funded through mandatory spending falling to less than
80%, due to a combination of depressed fee revenues and increased appropriations to compensate for them and
address processing backlogs.
Federal Law Enforcement Training Centers (FLETC)
Figure 11. FLETC Requested and Enacted Annual Appropriations by Type,
FY2022-FY2023

Source: CRS analysis of the FY2023 DHS Budget in Brief and the explanatory statement accompanying the
Consolidated Appropriations Act, 2022.
The Administration’s $397 million FY2023 annual discretionary appropriations request for
FLETC was $41 million (11.5%) above the FY2022 enacted level, and $41 million (11.5%)
above the level of appropriations originally requested for FY2022. FLETC also anticipated

61 Department of Homeland Security, U.S. Citizenship and Immigration Services, Fiscal Year 2023 Congressional
Justification, March 28, 2022, p. CIS-O&S-6. Available at https://www.dhs.gov/publication/congressional-budget-
justification-fiscal-year-fy-2023.
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DHS Budget Request Analysis: FY2023

receiving $232 million in reimbursements for training and facilities use from those it serves.62
The request included:
 $33 million (10.2%) more than requested or enacted in FY2022 for Operations
and Support.
o $11 million was added for the costs of pay increases;63
o The requested increase was also driven by additional funding above the
FY2022 request for cybersecurity enhancements ($15 million), and basic
training requirements for 575 additional students ($5 million).64
 $8 million (24.4%) more than requested or enacted in FY2022 for Procurement,
Construction, and Improvements. The $41 million request includes resources for
several projects:
o $20 million for a strength and conditioning complex at Glynco, GA;
o $11 million for repair and replacement of stormwater infrastructure at the
Cheltenham, MD, facility;
o $7 million for a new recycling center at Glynco, GA; and
o $3 million for repairing and replacing existing diesel generators with natural
gas generators at Glynco, GA.65
Science and Technology Directorate (S&T)
Figure 12. S&T Requested and Enacted Annual Appropriations by Type,
FY2022-FY2023

Source: CRS analysis of the FY2023 DHS Budget in Brief and the explanatory statement accompanying the
Consolidated Appropriations Act, 2022.
The Administration’s $901 million FY2023 annual discretionary appropriations request for S&T
was $15 million (1.7%) above the FY2022 enacted level, and $78 million (9.5%) above the level
of appropriations originally requested for FY2022. The request included:

62 Department of Homeland Security, Federal Law Enforcement Training Centers, Fiscal Year 2023 Congressional
Justification, March 28, 2022, p. FLETC-6. Available at https://www.dhs.gov/publication/congressional-budget-
justification-fiscal-year-fy-2023. Future references to this document are by page number.
63 p. FLETC-O&S-6.
64 pp. FLETC-O&S-11, 14-16.
65 p. FLETC-PCI-8.
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DHS Budget Request Analysis: FY2023

 $23 million (6.8%) more than was enacted in FY2022 for Operations and
Support. The FY2023 request was also $43 million (13.7%) higher than the
Administration requested for FY2022.
o $4 million was added for the costs of pay increases.66
o Requested program increases for the Acquisition and Operations Analysis
activity above the FY2022 level bring that activity’s requested funding level
within $1 million of the FY2022 annual appropriation, while the FY2023
request for mission support programs is $18 million above the FY2022
requested and enacted levels.67
 $77 million (595.7%) more than was enacted in FY2022 for Procurement,
Construction, and Improvements, largely driven by $36 million in increases
above the FY2022 request for critical repair and replacement requirements, and
$40 million for the design and construction of the Detection Sciences Testing and
Applied Research Facility in Atlantic City, NJ.68 The Administration requested
$81 million more than it did for FY2022.
 The Administration requested $84 million (15.5%) less than was enacted in
FY2022 for Research and Development, largely driven by reductions from the
FY2022 request level in border security research ($28 million, or 25.2%) and
chemical, biological and explosive defense ($11 million, or 31.8%).69 The
Administration requested $45 million (8.9%) less than it did in FY2022.
Countering Weapons of Mass Destruction Office (CWMD)
Figure 13. CWMD Requested and Enacted Annual Appropriations by Type,
FY2022-FY2023

Source: CRS analysis of the FY2023 DHS Budget in Brief and the explanatory statement accompanying the
Consolidated Appropriations Act, 2022.

66 Department of Homeland Security, Science and Technology Directorate, Fiscal Year 2023 Congressional
Justification, March 28, 2022, p. S&T-O&S-7. Available at https://www.dhs.gov/publication/congressional-budget-
justification-fiscal-year-fy-2023. Future references to this document are by page number.
67 p. S&T-O&S-3
68 p. S&T-PC&I-8.
69 p. S&T-R&D-8.
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DHS Budget Request Analysis: FY2023

The Administration’s $429 million discretionary appropriations request for the USCG was $23
million (5.1%) below the FY2022 enacted level, and $2 million (0.4%) above the level of
appropriations originally requested for FY2022. The request included:
 $25 million (14.0%) less than was enacted in FY2022 for Operations and
Support. The FY2023 request was also $5 million (3.3%) less than the
Administration requested for FY2022.
o $3 million was added for the costs of pay increases.70
o The primary driver for the proposed reduction was the transfer of Chief
Medical Officer personnel from CWMD to the new Office of Health Security
and Resilience in the Office of the Secretary, which would result in a $22
million reduction.71
 $21 million (27.8%) less than was enacted in FY2022 for Procurement,
Construction, and Improvements, largely driven by a $12 million (33%)
reduction in funding from the FY2022 request for radiation portal monitors, and
a $7 million reduction in funding for radioactive material detection on freight
rail. The Administration requested $16 million (22.8%) less than it did for
FY2022.
 $17 million (25.6%) more than was requested or enacted in annual appropriations
for FY2022 for Research and Development, largely driven by a $15 million
increase above the FY2022 request for detection capability deployment.72
 $6 million (4.7%) more than was requested or enacted in annual appropriations
for FY2022 for Federal Assistance, largely driven by a $5 million increase above
the FY2022 request for the Securing the Cities Program.73

70 Department of Homeland Security, Countering Weapons of Mass Destruction, Fiscal Year 2023 Congressional
Justification, March 28, 2022, p. CWMD-O&S-6. Available at https://www.dhs.gov/publication/congressional-budget-
justification-fiscal-year-fy-2023. Future references to this document are by page number.
71 p. CWMD-O&S-8.
72 p. CWMD-R&D-3.
73 p. CWMD-FA-3.
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DHS Budget Request Analysis: FY2023

Headquarters Components (Title I)
Office of the Secretary and Executive Management (OSEM)
Figure 14. OSEM Requested and Enacted Annual Appropriations by Type,
FY2022-FY2023

Source: CRS analysis of the FY2023 DHS Budget in Brief and the explanatory statement accompanying the
Consolidated Appropriations Act, 2022.
Notes: The FY2022 appropriations measures and FY2022 Budget-in-Brief structured the Administration’s request
differently. This analysis uses the structure of the appropriations measures, as did the FY2023 Budget-in-Brief.
The Administration’s $316 million appropriations request for Operations and Support under the
OSEM was $45 million (16.6%) above the FY2022 enacted level, and $66 million (26.6%) above
the level of appropriations originally requested for FY2022. The request included:
 An additional $8 million for pay and staffing costs;74
 A $29 million transfer into OSEM of the Office of Health Security and Resilience
from the Office of Countering Weapons of Mass Destruction and the Office of
the Chief Human Capital Officer (under Departmental Management);75
 $20 million for the Family Reunification Task Force, chaired by the Secretary, which has
a mission of identifying and reuniting families separated by border policies, and
developing recommendations to prevent recurrence of such incidents (unless needed for
the well-being of the child under law);76 and
 $4 million for Countering Unmanned Aerial Systems activities, under the Office of
Strategy, Policy, and Plans.77
The Administration’s $25 million request for Federal Assistance under the OSEM was $10
million (28.6%) below the FY2022 enacted level, and equal to the level of appropriations
originally requested for FY2022—although the original request was made in FEMA’s Federal

74 U.S. Department of Homeland Security, Office of the Secretary and Executive Management, Fiscal Year 2022
Congressional Justification, March 28, 2022, p. OSEM-O&S-6. Available at https://www.dhs.gov/publication/
congressional-budget-justification-fiscal-year-fy-2023. Future references to this document are by page number.
75 U.S. Department of Homeland Security, FY2023 Budget in Brief, March 28, 2022, p. 16, https://www.dhs.gov/
publication/fy-2023-budget-brief.
76 FY2023 Budget in Brief, pp. 16-17.
77 p. OSEM-11.
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DHS Budget Request Analysis: FY2023

Assistance appropriation. The request included the same distribution of funds between the
programs:
 $20 million for targeted violence and terrorism prevention grants; and
 $5 million for an Alternatives to Detention Case Management pilot program—
this initiative received $15 million in annual FY2022 appropriations.
Departmental Management Directorate (DM)
Figure 15. DM Requested and Enacted Annual Appropriations by Type,
FY2022-FY2023

Source: CRS analysis of the FY2023 DHS Budget in Brief and the explanatory statement accompanying the
Consolidated Appropriations Act, 2022.
Notes: $180 mil ion in reappropriations to DM in Title V of the FY2022 appropriations act are included in
Procurement, Construction, and Improvements; patterned fil reflects the request for the Federal Protective
Service, which is paid for by offsetting fee col ections.
The Administration’s $4.44 billion FY2023 gross annual appropriations request for the
Management Directorate was $527 million (13.5%) above the FY2022 enacted level, and $736
million (19.9%) above the level of appropriations originally requested for FY2022. The primary
driver of this change was a $461 million increase for the Federal Protective Service, part of an
overall budget of $2.1 billion which would be offset by fee collections, as in prior years.
The request also included:
 $116 million (7.1%) more than was enacted in FY2022 for the Operations and
Support (O&S) appropriation, $23 million of which was for increased operational
costs for the Homeland Advanced Recognition Technology program—DHS’s
new biometric identity management system.78 Other changes to the Management
Directorate O&S appropriations from the FY2022 requested level included:
o a $16 million increase to cover increased pay costs;79
o a net $31 million increase for the Chief Security Officer, including a $13
million increase for insider threat infrastructure, a $10 million increase for

78 U.S. Department of Homeland Security, Management Directorate, Fiscal Year 2022 Congressional Justification,
March 28, 2022, p. MGMT-O&S-38. Available at https://www.dhs.gov/publication/congressional-budget-justification-
fiscal-year-fy-2023. Future references to this document are by page number.
79 p. MGMT-O&S-16.
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DHS Budget Request Analysis: FY2023

Trusted Workforce 2.0 program, and a $6 million increase for protection and
threat mitigation for the Secretary and Deputy Secretary;
o $76 million to support purchase of electric vehicles as a part of fleet
modernization at DHS—this is the same level as in the FY2022 request80 (the
FY2022 act included $32 million for this program);81
o $10 million for a new morale improvement initiative;82
o $8 million to address cybersecurity capability gaps;83 and
o $42 million in transfers of the Cyber Reserve from OCIO to the components
($35 million), and workforce health and safety elements from the Chief
Human Capital Officer to OSEM ($7 million).84
 $99 million (14.8%) less than was enacted in FY2022 for the Procurement,
Construction, and Improvement appropriation, for a total request of $572 million.
The request included:
o $200 million for investments in consolidating DHS headquarters facilities
within the National Capital Region. This included:
 $56 million for new facilities on the St. Elizabeths West Campus: $12
million for the remaining requirements for the Intelligence and Analysis
headquarters (Building 2) and $44 million for tenant buildout of ICE
headquarters and CBP’s presence in Building 3;85
 $119 million for consolidation of remaining headquarters and support
offices86 at the GSA Federal Building (7th and D St. SW);87
 $25 million to continue to reconfigure the Ronald Reagan Building to
accommodate the elements of CBP headquarters not moving to St.
Elizabeths West Campus;88 and
 $3 million for improvements at the Mount Weather Emergency
Operations Center.89
o $140 million for a Joint Processing Center on the Southwest border90—two
such facilities already received funding in both Title I and Title V of the
FY2022 DHS Appropriations Act;91

80 p. MGMT-O&S-87.
81 Congressional Record, vol. 168, part 42 (March 9, 2022), Book III, p. H2397.
82 pp. MGMT-O&S-24, 25.
83 p. MGMT-O&S-32.
84 p. MGMT-O&S-23.
85 p. MGMT-PC&I-14. The request assumed full funding of the FY2022 construction request for St. Elizabeths, which
was provided.
86 Department Management, the Science and Technology Directorate, Office of Biometric Identity Management, and
Federal Protective Service headquarters elements.
87 p. MGMT-PC&I-21.
88 p. MGMT-PC&I-23.
89 p. MGMT-PC&I-24.
90 FY2023 Budget in Brief, p. 15.
91 The FY2022 annual enacted level in the figure and in the analysis does not include $49.5 million in emergency
funding reappropriated for joint processing center construction.
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DHS Budget Request Analysis: FY2023

o $50 million to support department resilience and sustainability associated
with climate change;92 and
o $114 million for financial systems modernization.93
Intelligence, Analysis and Operations (IA&O)
Figure 16. IA&O Requested and Enacted Annual Appropriations by Type,
FY2022-FY2023

Source: CRS analysis of the FY2023 DHS Budget in Brief and the explanatory statement accompanying the
Consolidated Appropriations Act, 2022.
The Administration’s $341 million FY2023 annual discretionary appropriations request for IA&O
was $43 million (14.4%) above the FY2022 enacted level, and $21 million (6.4%) above the
FY2022 requested level for annual appropriations. Most of the details of the IA&O budget are
classified.
 The request included a $6 million increase to cover increased pay costs.
 In addition, several program transfers were noted in the request, resulting in a net
reduction of $21 million in the IA&O O&S appropriation:
o Continuity program elements were transferred to FEMA;
o Cybersecurity and insider threat program elements were transferred to
Departmental Management; and
o the Secretary’s briefing staff and a Terrorist Screening Deputy were
transferred to the Office of the Secretary.94

92 p. MGMT-PC&I-28.
93 FY2023 Budget in Brief, p. 15.
94 U.S. Department of Homeland Security, Intelligence, Analysis, and Operations, Fiscal Year 2023 Congressional
Justification, March 28, 2022, p. A&O-O&S-6. Available at https://www.dhs.gov/publication/congressional-budget-
justification-fiscal-year-fy-2023. Future references to this document are by page number.
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DHS Budget Request Analysis: FY2023

Office of Inspector General (OIG)
Figure 17. OIG Requested and Enacted Annual Appropriations by Type,
FY2022-FY2023

Source: CRS analysis of the FY2023 DHS Budget in Brief and the explanatory statement accompanying the
Consolidated Appropriations Act, 2022.
The Administration’s $215 million FY2023 annual discretionary appropriations request for the
OIG was $10 million above the requested and enacted levels of FY2022 annual appropriations
(4.6%). The request included:
 $6 million in additional funding to cover increased pay costs.
 $4 million to annualize audit and investigation enhancements, and forensics and
data analytics upgrades.
 The budget justification notes that the OIG submitted a funding request of $222
million, noting that the Administration’s request supports the cost of living
adjustments for the OIG, but not $9 million in program growth, which included:
o $2.5 million for information technology audits;
o $1 million for pandemic-related investigations;
o $1.3 million for border and immigration investigations;
o $2.9 million to support IT modernization within their core IT systems; and
o $1.2 million for relocation and/or reconfiguration of three field offices.95
o The justification does not make note of additional funds available from the
recent infrastructure act (P.L. 117-58, Div. J), which makes available to the
OIG 0.25% of appropriations provided to DHS each year by that act (funding
additional oversight for FY2022-FY2026).96

95 U.S. Department of Homeland Security, Office of Inspector General, Fiscal Year 2023 Congressional Justification,
March 28, 2022, p. OIG-O&S-4. Available at https://www.dhs.gov/publication/congressional-budget-justification-
fiscal-year-fy-2023.
96 P.L. 117-58, Div. J, Section 501.
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DHS Budget Request Analysis: FY2023

Appendix. Glossary of Abbreviations
CAS
Common Appropriations Structure
CBO
Congressional Budget Office
CBP
U.S. Customs and Border Protection
CISA
Cybersecurity and Infrastructure Security Agency
CWMD
Countering Weapons of Mass Destruction Office
DHS
U.S. Department of Homeland Security
DM
Departmental Management Directorate
DRF
Disaster Relief Fund
FA
Federal Assistance
FEMA
Federal Emergency Management Agency
FLETC
Federal Law Enforcement Training Centers
FPS
Federal Protective Service
FTE
Ful -time Equivalents
FY
Fiscal Year
IA&O
Intelligence Analysis and Operations Support
ICE
U.S. Immigration and Customs Enforcement
OBIM
Office of Biometric Identity Management
OIG
Office of Inspector General
OMB
Office of Management and Budget
OSEM
Office of the Secretary and Executive Management
O&S
Operations and Support
PC&I
Procurement, Construction, and Improvements
R&D
Research and Development
S&T
Science and Technology Directorate
TSA
Transportation Security Administration
USCG
U.S. Coast Guard
USCIS
U.S. Citizenship and Immigration Services
USSS
U.S. Secret Service

Author Information

William L. Painter

Specialist in Homeland Security and Appropriations

Congressional Research Service

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DHS Budget Request Analysis: FY2023

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