Comparing DHS Component Funding, FY2025: In Brief

June 28, 2024 R48115

Comparing DHS Component Funding,
FY2025: In Brief
June 28, 2024
Congressional Research Service
https://crsreports.congress.gov
R48115

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Comparing DHS Component Funding, FY2025: In Brief

Introduction
The Department of Homeland Security Appropriations Act includes all annual appropriations for
the Department of Homeland Security (DHS), providing resources to every departmental
component. Its accompanying conference report or explanatory statement provides guidance for
the department, including how DHS should distribute those appropriations among various
programs, projects, and activities, and what additional resources Congress anticipates being
available in terms of offsetting receipts and fee revenues that fund specific programs. Together,
these documents form a snapshot of a significant portion of the DHS budget.
This report reviews that snapshot at the DHS component level, comparing:
• The budget authority outlined in the FY2024 annual appropriations measure and
its explanatory statement;1
• Annual appropriations requested by the Biden Administration for FY2025;2 and
• Funding levels included in the House-passed H.R. 8752 and H.Rept. 118-553.
The report makes note of advance and supplemental appropriations provided through various
measures for FY2024 and FY2025, and 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.
For other in-depth analyses of the FY2025 DHS appropriations request and the House
Appropriations Committee (HAC) response, see:
• For the budget request: CRS Report R48074, DHS Budget Request Analysis:
FY2025, by William L. Painter; and
• For an overview of the current year’s appropriations: CRS Report R47688,
Department of Homeland Security Appropriations: FY2024 State of Play, by
William L. Painter.
For background on DHS structure and function, see CRS Report R47446, The Department of
Homeland Security: A Primer, by William L. Painter.

1 P.L. 118-47, Div. C. The text of the act and the explanatory statement can be found in H.Comm. Print 55-008.
2 As amended by the Administration on May 22, 2024. See Letter from Joseph R. Biden, Jr., President of the United
States, to The Honorable Mike Johnson, Speaker of the House of Representatives, May 22, 2024,
https://www.whitehouse.gov/wp-content/uploads/2024/05/FY-2025-Budget-Amendment-Package.pdf.
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FY2025 DHS Appropriations Overview
Annual Appropriations
Table 1. DHS Annual Appropriations, FY2024-FY2025
(billions of dollars of budget authority)
House Subcommittee;
Full Committee
FY2025 Budget
Markups; Floor

FY2024 Enacted
Requesta
Consideration
Dates of Actions
3/23/2024
3/11/2024
6/4/2024 (vv);
6/12/2024 (33-26);
6/27/24
Total Budgetb
n/a
$107.74
n/a
Gross Discretionary
$90.43
$87.96
$94.41
Appropriations
Offsetting Col ections
$7.32
$7.64
$6.12
Disaster Relief-designated
$20.26
$22.39
$22.74
Appropriations
Rescissions
$1.01
$0.20
$0.75
Net Discretionary
$61.84
$58.00
$64.78
Budget Authority
Emergency-designated
—
$2.79 (emergency), $4.7
—
Annual or Contingent
(contingent emergency)c
Appropriations
Sources: CRS analysis of the FY2025 DHS budget request, H.Comm. Print 55-008, H.R. 8752, and H.Rept. 118-
553.
Notes: Table includes funding levels from the most recent actions reflected in the headers. “—” equals a zero
value; “n/a” indicates the value does not exist or is not available.
a. With the exception of the Total Budget figure in this table, analyses in the report refer to the Congressional
Budget Office’s (CBO’s) estimates of the President’s budget request as outlined in the detail table at the end
of H.Rept. 118-553.
b. This information is drawn from DHS budget documentation. All other amounts in the table are drawn from
congressional documents, which do not reflect a total budget projection.
c. The Administration’s request included $2.79 bil ion in emergency-designated funding distributed across eight
DHS components, as well as up to $4.7 bil ion in contingent emergency-designated supplemental
appropriations for DHS activities at the U.S.-Mexico border.
DHS Budgetary Resources: Beyond the Score
Discussion regarding annual appropriations often centers on one of two numbers:
1. the total level of appropriations or “gross budget authority” provided in the bill;
or
2. how the bill “scores” against budget limitations—the net discretionary budget
authority, shown in bold in Table 1.
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The gross budget authority amount includes all the budget authority in the bill: discretionary
appropriations, including those designated as disaster relief or emergency requirements,
regardless of offsets from collections or rescissions;3 changes in mandatory programs directed by
the bill; and appropriated mandatory spending. This is a representation of the total budget
authority that the bill would provide the department in the fiscal year if enacted.
The “score” is a total of the net discretionary budget authority provided in the bill. The
Congressional Budget Office generally determines that net value, taking into account the
offsetting effects on that gross total of certain collections or rescissions, appropriations to fund
mandatory programs (in the case of DHS, U.S. Coast Guard Retired Pay is an appropriation made
to fulfill an existing legal obligation, so it is not “scored” as discretionary spending), and disaster
relief or emergency designations of certain amounts.
The remaining level represents the “adjusted net discretionary budget authority” provided in the
bill. It does not include programs with appropriations in permanent law. Many of those are listed
as “fee-funded” programs, as their resources are often from fees collected in special funds for a
specifically authorized purpose.
A significant portion of the total resources available to DHS is “controlled” through DHS
appropriations bills and reports.4 Special tables at the end of appropriations conference reports
and explanatory statements include a higher level of detail on the funding provided to the
department, usually at various program, project, and activity (PPA) levels. These tables—known
as detail tables—serve as a level of control for interpreting statutory authorities in the bill that
regulate the ability to transfer funding between appropriations or to reprogram money within an
appropriation.
As the detail tables represent the most complete picture of the DHS appropriations measure and
its effect on the DHS budget, Table 2 uses their data to provide a breakdown of the resources
available to DHS, distributed by component, and further broken down by funding type. This
provides a more complete description of each component’s overall resource level than a review of
the net discretionary appropriations alone.
Each component’s funding level is broken down in Table 2 across three columns, representing the
different phases of the appropriations process: current year (FY2024) enacted,5 requested annual
appropriations for the current cycle (FY2025), and the House-passed bill. The components are
ordered from largest to smallest by FY2024 enacted annual net discretionary budget authority.
Two caveats:
1. Some DHS mandatory spending is not included in the detail tables. This includes
spending on flood insurance claims, as well as trust funds for the Coast Guard
and the Secret Service.6

3 A rescission is a cancellation of previously appropriated budget authority.
4 For FY2023 the $82.69 billion in gross resources reflected in the detail table accompanying the annual appropriations
measure represented 81.2% of the resources made available to DHS for FY2023, not including supplemental
appropriations.
5 This includes annual appropriations from P.L. 118-47, Division C, and supplemental appropriations from the
Continuing Appropriations Act, 2024 (P.L. 118-15, Division A), and the Israel Security Supplemental Appropriations
Act, 2024 (P.L. 118-50, Division A).
6 Information about mandatory spending that is not reflected in the detail tables can be found in the Administration’s
budget request. The FY2025 DHS budget request can be found on the Office of Management and Budget website, or
linked directly at http://www.whitehouse.gov/wp-content/uploads/2024/05/dhs_fy2025.pdf.
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2. The detail tables do not reflect reimbursements between components for services
provided, such as payments from partner agencies to the Federal Law
Enforcement Training Centers for the cost of training programs.7
Note: The Administration’s proposed $4.7 billion in emergency-designated contingent
appropriations is shown in Table 2 under the Office of the Secretary and Executive Management
(OSEM). Although the Office of the Secretary would receive those funds if certain thresholds of
border activity were reached in a timely fashion, they would be distributed to U.S. Customs and
Border Protection, U.S. Immigration and Customs Enforcement, and the Federal Emergency
Management Agency to support their activities. Given the uncertainty of whether specific
distributions of those funds would be made, and at what level, their potential practical impact
cannot be reflected in either Table 2 or the ensuing figure.
Table 2. DHS Budget Authority and Proposals, by Component, FY2024-FY2025
(budget authority, controlled through appropriations committee reports, in thousands of dollars)

FY2024
FY2025
Enacted
(annual and
FY2025
House-Passed
Component / Funding Type
supplemental)
Request
H.R. 8752
CBP
22,668,460
19,758,869
21,519,804
Net Discretionary Funding
19,619,040
15,438,000
18,270,585
Offsetting Col ections
385,000
496,000
496,000
Fee-funded Programs
2,664,420
2,753,219
2,753,219
Emergency Annual Appropriations
—
1,071,650
—
USCG
12,904,441
13,534,387
14,207,865
Net Discretionary Funding
11,753,197
11,407,345
12,993,025
Offsetting Col ections
4,000
4,000
4,000
Mandatory Appropriationsa
1,147,244
1,210,840
1,210,840
Emergency Annual Appropriations
—
912,202
—
ICE
9,936,672
9,695,379
10,902,401
Net Discretionary Funding
9,557,062
8,625,221
10,522,791
Fee-funded Programs
379,610
379,610
379,610
Emergency Annual Appropriations
—
690,548
—
TSA
10,826,287
11,711,367
11,748,643
Net Discretionary Funding
6,800,287
6,536,367
8,173,643
Offsetting Col ections
3,770,000
4,919,000
3,319,000
Fee-funded Programs
256,000
256,000
256,000
FEMA
43,315,520
27,872,155
28,487,866
Net Discretionary Funding
5,080,537
5,175,370
5,473,081
Offsetting Col ections
273,983
273,785
273,785

7 Information on these projected resource flows can be found in the DHS annual budget justifications submitted to
Congress. The FY2025 DHS budget justification can be found at https://www.dhs.gov/publication/congressional-
budget-justification-fiscal-year-fy-2025.
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Comparing DHS Component Funding, FY2025: In Brief

FY2024
FY2025
Enacted
(annual and
FY2025
House-Passed
Component / Funding Type
supplemental)
Request
H.R. 8752
Disaster Relief Designated
20,261,000
22,392,000
22,741,000
Emergency Annual Appropriations
—
31,000
—
Supplemental Appropriations
17,700,000
—
—
USSS
3,087,797
2,938,381
3,160,110
Net Discretionary Funding
3,087,797
2,920,381
3,160,110
Emergency Annual Appropriations
—
18,000
—
CISA
2,893,008
3,009,047
2,930,857
Net Discretionary Funding
2,873,008
3,009,047
2,930,857
Supplemental Appropriations
20,000
—
—
MD
4,187,024
4,008,085
3,670,262
Net Discretionary Funding
1,982,637
1,915,917
1,641,459
Offsetting Col ections
2,204,387
2,028,803
2,028,803
Emergency Annual Appropriations
—
63,365
—
S&T
741,634
836,108
717,591
Net Discretionary Funding
741,634
836,108
717,591
CWMD
409,441
418,022
361,313
Net Discretionary Funding
409,441
416,022
361,313
Emergency Annual Appropriations
—
2,000
—
OSEM
404,695
358,466
239,708
Net Discretionary Funding
404,695
358,466
239,708
FLETC
377,200
363,389
366,752
Net Discretionary Funding
377,200
363,389
366,752
IASA
345,410
348,302
345,360
Net Discretionary Funding
345,410
348,302
345,360
USCIS
6,267,418
6,960,435
6,807,636
Net Discretionary Funding
281,140
265,230
112,431
Fee-funded Programs
5,986,278
6,695,205
6,695,205
OIG
220,127
233,206
225,294
Net Discretionary Funding
220,127
233,206
225,294
TOTAL DISCRETIONARY
108,151,582
90,750,724
94,396,588
BUDGET AUTHORITY PLUS
DISASTER RELIEF AND
EMERGENCY FUNDING, DHS
Sources: CRS analysis of P.L. 118-47 and its accompanying explanatory statement, H.R. 8752, and H.Rept. 118-
553.
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
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Customs Enforcement; TSA = Transportation Security Administration; FEMA = Federal Emergency Management
Agency; CISA = Cybersecurity and Infrastructure Security Agency; USSS = U.S. Secret Service; MD =
Management Directorate; S&T = Science and Technology Directorate; CWMD = Office of Countering Weapons
of Mass Destruction; FLETC = Federal Law Enforcement Training Centers; OSEM = Office of the Secretary and
Executive Management; IASA = Intelligence, Analysis, and Situational Awareness; OIG = Office of the Inspector
General; USCIS = U.S. Citizenship and Immigration Services.
a. This mandatory appropriation is for Coast Guard Retired Pay, and is reflected in the bil , but not its
discretionary totals.
Figure 1 uses the data in Table 2 to provide a visual representation 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),
• U.S. Coast Guard (USCG),
• Immigration and Customs Enforcement (ICE),
• Transportation Security Administration (TSA),
• Federal Emergency Management Agency (FEMA),
• U.S. Secret Service (USSS), and
• Cybersecurity and Infrastructure Security Agency (CISA).
In Figure 1, these seven components are listed along the bottom axis, showing the same three
stages for each as in Table 2.
The base (medium blue) segment of each bar represents net discretionary budget authority. Atop
those bars are additional bars that represent other funding types:
• offsetting collections (orange),
• programs paid for directly by fees (gray),
• mandatory appropriations (yellow),
• funding covered by disaster relief (light blue),8 and
• supplemental appropriations, including advance appropriations (green).9
Atop the column describing the Administration’s request, black segments indicate emergency-
designated funding for the respective components.
Among the changes Figure 1 illuminates are
• the relative magnitude of disaster spending (which encompasses the mandatory,
disaster relief-designated, and supplemental funding for FEMA) compared with
other DHS funding priorities—readers may wish to note that despite the volume
of disaster relief designated appropriations and $15.5 billion in supplemental
appropriations for the Disaster Relief Fund in FY2024, a nearly $7 billion
shortfall is expected for FY2024, and a further $5 billion shortfall in FY2025,
absent further supplemental appropriations;

8 For more details about adjustments to discretionary spending limits under the Budget Control Act, see CRS Report
R45778, Exceptions to the Budget Control Act’s Discretionary Spending Limits, by Megan S. Lynch.
9 The Congressional Budget Office scores the $16 billion in supplemental appropriations for the Disaster Relief Fund in
P.L. 118-15 as being FY2024 appropriations. Supplemental appropriations in this case also include funding from P.L.
118-50, the National Security Supplemental Appropriations Act, Division A, and advance appropriations provided in
P.L. 117-58, the Infrastructure Investment and Jobs Act, Division J.
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Comparing DHS Component Funding, FY2025: In Brief

• the Administration’s proposal to use emergency designated funding (noted as
black segments atop the request column) to cover some of the core budget of
several components (absent that designation, the Administration’s request would
score $2.79 billion higher);
• the relative importance of fee revenues and offsetting collections across
operational components, from no role at USSS and CISA, to a modest
contribution to ICE, to significant portions of the CBP and TSA budgets; and
• the Administration’s proposal to provide additional offsetting fee revenue to
support TSA—a one-time increase was provided for FY2024—and how
appropriations measures must include additional discretionary funding to
maintain the proposed budget in the absence of authorization to provide those
additional revenues.

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Figure 1. Budget Authority for DHS Operational Components

Sources: See Table 2.
Notes: Data do not reflect the impact of rescissions or advance appropriations not available in a given fiscal year. Some values are not visible due to scale.

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DHS Appropriations: Comparing Scores
It is often useful to present comparative analysis to put proposed annual funding levels for DHS
components in context. Table 3 shows proposed net discretionary annual FY2025 appropriations
for DHS distributed by departmental component in comparison with two common baselines
described below.
The table presents an analysis of component-level net discretionary annual appropriations—
appropriations provided from the Treasury that are not offset by other incoming resources or
given special exemption.10 Comparisons are drawn between two common baselines that are also
shown in Table 1—the FY2025 requested annual funding level and the FY2024 enacted funding
level. The first column of figures shows the FY2025 annual net discretionary amount for each
component in the House-passed bill. Changes from that level are reflected in thousands of dollars,
and then as a percentage. As in Table 2, the components are ordered from largest to smallest by
FY2024 enacted annual net discretionary budget authority.
Supplemental and advance appropriations are not reflected in Table 3. The purpose of this 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.
A Note on Methodology
This methodology excludes the $2.79 bil ion in emergency-designated funding from the Administration’s request,
and does not include the $4.7 bil ion in contingent emergency appropriations sought by the Administration as well.
Given those exclusions and the Administration’s outstanding supplemental requests for border security, some
observers may question the validity of this type of comparison.
There are many ways to compare funding proposals, and while this particular comparison may not ful y il uminate
the needs expressed by the Administration over the past year, it does represent the needs the Administration
expressed in the budget request that merited the use of budget authority constrained by statutory limits. Likewise,
it presents the House Appropriation Committee’s proposal and FY2024 act constrained by those same limits.
This comparison—and this report—allows the reader to identify areas that may be of interest for further analysis,
short of a complete understanding of the potential impact of the budget proposal or the legislative response to it.
Table 3. House-Passed DHS Annual Appropriations, FY2025, Compared
(net discretionary budget authority, in thousands of dollars)

House-Passed
v. FY2025 Annual Request
v. FY2024 Annual Enacted
Component
H.R. 8752
$
%
$
%
CBP
18,270,585
2,832,585
18.3%
-1,348,455
-6.9%
USCG
12,993,025
1,585,680
13.9%
1,239,828
10.5%
ICE
10,522,791
1,897,570
22.0%
965,729
10.1%
TSA
8,173,643
1,637,276
25.0%
1,373,356
20.2%
FEMA
5,473,081
297,711
5.8%
392,544
7.7%
CISA
2,930,857
-78,190
-2.6%
57,849
2.0%
USSS
3,160,110
239,729
8.2%
72,313
2.3%

10 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, FY2025: In Brief

House-Passed
v. FY2025 Annual Request
v. FY2024 Annual Enacted
Component
H.R. 8752
$
%
$
%
MD
1,641,459
-274,458
-14.3%
-341,178
-17.2%
S&T
717,591
-118,517
-14.2%
-24,043
-3.2%
CWMD
361,313
-54,709
-13.2%
-48,128
-11.8%
OSEM
239,708
-118,758
-33.1%
-164,987
-40.8%
FLETC
366,752
3,363
0.9%
-10,448
-2.8%
IASA
345,360
-2,942
-0.8%
-50
0.0%
USCIS
112,431
-152,799
-57.6%
-168,709
-60.0%
OIG
225,294
-7,912
-3.4%
5,167
2.3%
TOTAL
65,534,000
7,685,629
13.3%
2,000,788
3.1%
Source: CRS analysis of H.Rept. 118-553.
Notes: 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; OSEM = Office of the
Secretary and Executive Management; FLETC = Federal Law Enforcement Training Centers; IASA = Intelligence,
Analysis, and Situational Awareness; USCIS = U.S. Citizenship and Immigration Services; OIG = Office of the
Inspector General.
Emergency-Designated Funding in Annual
Appropriations Measures
It is atypical for annual appropriations measures to include emergency-designated appropriations.
Three recent proposals indicate a willingness to consider such proposals, at least in the current
constrained budget environment.
1. The Biden Administration’s FY2024 budget proposal—with the inclusion of a
$4.7 billion emergency-designated contingency appropriation—could be said to
have opened the door for atypical approaches. If the Administration’s proposal
had been enacted, ongoing activities that had been funded in the FY2023 DHS
annual appropriations act could have been funded as emergency requirements in
FY2024 if migrant activity at the U.S.-Mexico border reached certain
thresholds.11 Although the proposal was not successful, an identical proposal
returned in the Administration’s FY2025 request.
2. After the Administration’s initial proposal, Senate Appropriations Committee-
reported S. 2625 included $4.3 billion in emergency-designated funding
distributed across nine of DHS’s 15 components.
3. In addition to the contingency fund that returned to the budget request for
FY2025, the Administration proposed $2.79 billion in emergency-designated

11 For more details, see “Southwest Border Contingency Fund,” in CRS Report R47496, DHS Budget Request Analysis:
FY2024, by William L. Painter.
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annual appropriations in its FY2025 budget request (outlined in Table 2), noting
in its congressional justification that “This ‘shifted base’ funding concept was
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Comparing DHS Component Funding, FY2025: In Brief

4. included in 2023 appropriations and was also part of an agreement associated
with the Fiscal Responsibility Act (FRA).”12
The House Appropriations Committee has not included such emergency-designated funding in
either its FY2024 and FY2025 measures.

Author Information

William L. Painter

Specialist in Homeland Security and Appropriations

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

12 U.S. Department of Homeland Security, U.S. Immigration and Customs Enforcement, Fiscal Year 2025
Congressional Justification, March 11, 2024, p. ICE-20. All DHS congressional justifications are available at
https://www.dhs.gov/publication/congressional-budget-justification-fiscal-year-fy-2025.
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