Combating Terrorism: 2001 Congressional Debate on Emergency Supplemental Allocations

Combating Terrorism: 2001 Congressional Debate on Emergency Supplemental Allocations

Order Code RL31187
CRS Report for Congress
Received through the CRS Web
Combating Terrorism: 2001 Congressional Debate
on Emergency Supplemental Allocations
Updated September 27, 2002
(name redacted) and (name redacted)
Foreign Affairs, Defense, and Trade Division
Congressional Research Service ˜ The Library of Congress

Combating Terrorism: 2001 Congressional Debate on
Emergency Supplemental Allocations
Summary
Within days of the September 11 terrorist attacks on the World Trade Center
and the Pentagon, Congress approved a $40 billion emergency supplemental
appropriations (P.L. 107-38/H.R. 2888) to aid victims of the terrorist attacks, to
bolster security at airports and other sites, to pursue the investigation and prosecution
of those responsible, and to support national security. The appropriation measure
partitioned the $40 billion into three clusters. The first $10 billion was available
immediately for allocation by the President. The second $10 billion was available
15 days after the President notified Congress about how he would distribute the
funds. The final $20 billion would be allocated within an enacted FY2002
appropriation bill.
Through notifications beginning on September 21, the Administration fully
allocated the first $20 billion over the following five months. Between February and
August 2002, the White House has made some adjustments to these earlier
distributions, primarily to provide additional funds for the Transportation Security
Administration. Congress allocated the final $20 billion as a separate title in the
FY2002 Defense Department Appropriation (P.L. 107-117; H.R. 3338), cleared for
the White House on December 20.
Of the $40 billion total, the White House proposed $21.1 billion for the Defense
Department (53%); $18.9 billion for non-defense agencies (47.3%). Among non-
defense programs, recovery activities, including debris removal, efforts to repair
damaged equipment and infrastructure, and relocation of dislocated offices and
workers, would receive the largest share – roughly $6.2 billion, or 15% of the total.
Victim relief represented an 8.3% share, or $3.3 billion, and physical security – for
both infrastructure and aviation – totaled about $4.1 billion or 10%. Resources to
combat bioterrorism totaled $1.6 billion, or about 4.4% of the total.
There was broad bipartisan support for the enactment of significant additional
resources for recovery and response to the September 11 terrorism attacks.
Nevertheless, sharp differences emerged as to whether the original $40 billion
package was sufficient, whether the allocations matched the most critical priorities,
especially regarding homeland security needs, and whether New York and other
jurisdictions directly affected by the attacks were receiving adequate funds. Many
assumed that New York would receive about half, or $20 billion of the total
emergency supplemental. President Bush said he would veto any spending measure
enacted in 2001 that went beyond the $40 billion approved in P.L. 107-38.
On January 10, 2002, the President signed into law P.L. 107-117 (H.R. 3338),
the Defense Appropriations bill that includes the “second” $20 billion in emergency
supplemental spending for homeland security, increased defense needs, and other
efforts to combat terrorism. As enacted, P.L. 107-117 differs significantly from the
plan President Bush proposed. The legislation roughly doubles the request for
bioterrorism, law enforcement, and infrastructure security activities, while reducing
by more than half the $7.3 billion proposed for defense.

Contents
Most Recent Developments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Composition of the Supplemental Funds to Combat Terrorism . . . . . . . . . . . . . . 3
Division and Distribution of the Total $40 billion Package . . . . . . . . . . . . . 3
Allocation by Federal Agency . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Policy Priorities of Emergency Supplemental Allocations . . . . . . . . . . 5
The President’s $20 Billion Allocation Request and Congressional
Debate . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 9
Congressional Debate and Modifications to the President’s Proposal . 9
Appendix A - Defense Funding Request . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 22
Appendix B – Non-Defense Emergency Supplemental Transfers
Organized by Appropriations Bill and Account . . . . . . . . . . . . . . . . . . . . . . 26
List of Figures
Figure 1. Composition of $40 Billion Supplemental
Requested . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Figure 2. Composition of $40 Billion Supplemental
Enacted . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
Figure 3. Allocation of $40 Billion by Major Purposes:
Administration Plan . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
Figure 4. Allocation of $40 Billion by Major Purposes:
Actual . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 8
Figure 5. President’s Request for the Second $20 Billion Allocation . . . . . . . . 10
Figure 6. Enacted Allocation of Second $20 Billion . . . . . . . . . . . . . . . . . . . . . . 11
List of Tables
Table 1. Allocations of Funds to Combat Terrorism by Agency . . . . . . . . . . . . . 3
Table 2. Combating Terrorism Supplemental Transfers: Policy Priorities . . . . . . 6
Table 3. Congressional Action on DOD’s Share of $20 Billion Supplemental . . 20
Table A1. DOD Allocations under $40 Billion Emergency Terrorism
Response Supplemental . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 24
Appendix – Summary of All Appropriations Bills . . . . . . . . . . . . . . . . . . . . . . . 27
Agriculture and Related Agencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 28
Commerce, Justice, and State, the Judiciary, and Related Agencies . . . . . . . . . . 30
Defense and Military Construction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 36
District of Columbia . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 37
Energy and Water Development . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 39
Foreign Operations . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 41
Interior and Related Agencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 44

Labor, Health and Human Services, and Education . . . . . . . . . . . . . . . . . . . . . . 46
Legislative Branch . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 50
Transportation and Related Agencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 52
Treasury, Postal Service, Executive Office of the President, and General Govt . 56
Veterans Affairs, Housing and Urban Development, and Independent
Agencies . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 61

Combating Terrorism: 2001 Congressional
Debate on Emergency Supplemental
Allocations
Most Recent Developments
On January 10, 2002, President Bush signed into law P.L. 107-117 (H.R. 3338),
the Defense Appropriations bill that includes $20 billion in emergency supplemental
spending for homeland security, increased defense needs, and other efforts to combat
terrorism. The $20 billion package had been enacted earlier in mid-September as
part of a $40 billion emergency spending measure (P.L. 107-38) to support recovery
efforts following the attacks and to launch the war against terrorism. President Bush
controlled the allocation of first $20 billion portion while Congress was required to
distribute the second $20 billion in a subsequent appropriation bill.
As enacted, P.L. 107-117 differs significantly from the plan President Bush
proposed in mid-October for allocating the second $20 billion portion. The
legislation roughly doubles the request for bioterrorism, law enforcement, and
infrastructure security activities, while reducing by more than half the $7.3 billion
proposed for defense. Earlier, the House and Senate each had rejected efforts to
provide additional sums beyond the $20 billion total. Proposals would have added
between $6 billion and $15 billion, largely for homeland security and relief for New
York and other jurisdictions most directly affected by the attacks. The final
compromise – to increase homeland security and New York aid and decrease defense
resources – partially accommodated the position of those who sought more spending
for the domestic programs, but without exceeding $20 billion. President Bush had
threatened to veto legislation that went beyond $20 billion, arguing that sufficient
money was available for the time being, and that he would consider additional needs
in 2002. The Administration has proposed $37.7 billion for homeland security
activities in FY2003.
Introduction
Within days of the September 11 terrorist attacks on the World Trade Center
and the Pentagon, Congress approved a $40 billion emergency supplemental
appropriation (P.L. 107-38/H.R. 2888) to aid victims of the terrorist attacks, to
bolster security at airports and other sites, to pursue the investigation and prosecution
of those responsible, and to support national security. The appropriation measure,
which was designated as emergency spending so that it would not be subject to
limitations set in concurrent budget resolutions, partitioned the $40 billion into three
clusters:

CRS-2
! $10 billion was immediately available to the President, following
consultation with House and Senate Appropriations Committee
leaders.
! $10 billion was available following the submission by the Office of
Management and Budget (OMB) of a specific plan regarding how
the funds will be allocated. Congress had 15 days to review and
consult with Administration officials over the spending plan before
resources became available.
! $20 billion would be available for obligation only when amounts
were specifically allocated in FY2002 appropriations measures
passed by Congress.
Of the $40 billion total, not less than $20 billion “shall be allocated for disaster
recovery activities and assistance related to the terrorist acts in New York,
Pennsylvania, and Virginia on September 11, 2001.”1 The President would submit
detailed requests to Congress if further funding is required. The Director of OMB
was to provide quarterly reports to the appropriations committees on the use of funds,
beginning on January 2, 2002.
Beginning on September 21, OMB sent Congress a series of notifications of
intended and requested allocations of the $40 billion emergency supplemental,
including a notice on October 16 containing details of the $20 billion proposal that
would need to be enacted by Congress in an FY2002 appropriation bill. Congress
debated the request as a separate section to the FY2002 Defense Appropriation bill,
the final spending measure taken up by Congress in 2001.
As costs of recovery and response efforts rose, however, policy differences
emerged over the amount, timing, and priorities of the supplemental spending. The
White House, concerned over potential rising budget deficits for FY2002, argued that
the $40 billion emergency total was sufficient for the moment, but that the President
would entertain more spending in 2002 if needs exist. Many lawmakers, including
senior Appropriations Committee members, however, called for immediate resources
well above the $40 billion figure, with an emphasis on funds for New York City in
order to meet the $20 billion allocation directive in P.L. 107-38. President Bush said
that he would veto legislation passed in 2001 that would spend more than the $40
billion already enacted.
This report discusses the overall composition of the Administration’s plan to
allocate the $40 billion supplemental. It provides the status of the planned and
proposed allocations by category, agency, general purpose, and appropriation
account. It further tracks congressional debate, highlighting alternative initiatives
under consideration and assessing major changes directed by Congress. An appendix
attached at the end of the report includes 12 tables that describe the purposes and
spending amounts in each appropriation chapter and congressional decisions for
allocating the second $20 billion portion.
1 P.L. 107-38.

CRS-3
Composition of the Supplemental Funds to Combat
Terrorism
Division and Distribution of the Total $40 billion Package
For the total $40 billion supplemental, the White House proposed that over half
– $21.1 billion, or 52.8% – would be allocated for the DOD, while $18.9 billion, or
47.3% would be distributed among non-defense agencies. As illustrated in Figures
1 and 2 below, Congress, through enactment of H.R. 3338, altered the President’s
recommended plan. The majority – $22.7 billion, or 56.6% – is now available for
non-defense activities, while $17.3 billion, or 43.3%, supports defense programs.
Allocation by Federal Agency. Other than the Department of Defense, the
other major agency recipients, out of the $40 billion total, are the Federal Emergency
Management Agency ($5.6 billion), which provides disaster assistance relief, Health
and Human Services ($2.9 billion), Housing and Urban Affairs ($2.7 billion), Justice
($2.1 billion), and Transportation ($3 billion).2
Table 1. Allocations of Funds to Combat Terrorism by Agency
(in billions of dollars and percentage of total)
Department/
Executed
Fifteen-day Admin.
P.L.
Total
As % of
Agency Totals
transfers
wait
request 107-117 Supplement
$40 Bil.
Total Supplemental
$10.0
$10.0
$20.0
$20.0
$40.0
100.0%
Defense subtotal
5.9
7.9
7.3
3.5
17.3
43.3%
Non-defense subtotal
4.1
2.1
12.7
16.5
22.7
56.6%
FEMA
1.0
0.0
5.5
4.6
5.6
14.0%
HHS
0.1
0.0
1.6
2.8
2.9
7.3%
HUD
0.0
0.7
0.0
2.0
2.7
6.8%
Justice
0.0
0.0
1.1
2.1
2.1
5.3%
Transportation
1.2
0.5
0.7
1.3
3.0
7.5%
State
0.3
0.5
0.0
0.0
0.8
2.0%
USAID
0.6
0.1
0.0
0.1
0.8
2.0%
Treasury
0.1
0.0
0.3
0.6
0.7
1.8%
U.S. Postal Service
0.0
0.2
0.0
0.5
0.7
1.8%
Labor
0.0
0.0
2.0
0.2
0.2
0.5%
Other non-defense
0.8
0.1
1.5
2.3
3.2
8.0%
Sources: OMB, House and Senate Appropriations Committees, CRS calculations.
2 During early to mid-2002, the White House reallocated some funds from earlier
distributions. The largest involved the transfer of $1.03 billion previously allocated to
FEMA to the Transportation Security Administration. Such transfers were regarded as
“bridge loans” for TSA. The intent was to restore FEMA funding out of the then-pending
FY2002 Supplemental Appropriation.

CRS-4
Figure 1. Composition of $40 Billion Supplemental
Requested
($s - billions & % of total)
Non-defense $18.9
47.3%
52.8%
Defense $21.1
Figure 2. Composition of $40 Billion Supplemental
Enacted
($s - billions & % of total)
Non-defnse $22.7
56.8%
43.3%
Defense $17.3

CRS-5
Policy Priorities of Emergency Supplemental Allocations. There has
been broad bipartisan support for the enactment of significant additional resources
for recovery and response to the September 11 terrorism attacks. Nevertheless, sharp
differences emerged as to whether the original $40 billion package was sufficient,
whether the allocations matched the most critical priorities, especially regarding
homeland security needs, and whether New York and other jurisdictions directly
affected by the attacks were receiving adequate funds. Many assumed that New York
would receive about half, or $20 billion of the total emergency supplemental.
Table 2 and Figures 3 and 4 below provide estimates of how the
Administration’s planned and proposed allocations of the $40 billion were distributed
across ten general categories, and how these amounts compared to Congressional
changes.3 Under the President’s plan, Defense activities (outlined in more detail
below) would have accounted for over half of the $40 billion supplemental, while
recovery activities, would have received roughly $6.2 billion, or 15.5% of the total.
With the enactment of H.R. 3338, total amounts for both of these categories fell in
order to make room within the $40 billion for increases elsewhere. Defense funds
dropped to $17.3 billion, or 43.4% of the total, while recovery resources declined to
$6 billion, or a 15.1% share of the total.
Although all other activities represent far smaller shares of the supplemental
package, funding for several rose sharply as a result of congressional decisions in
H.R. 3338. For combating bioterrorism, the White House had proposed $1.8 billion,
while final amounts total $3 billion, or 7.6% of the total. Aviation and infrastructure
security would have received $4.1 billion under the President’s proposal, but with
enactment of H.R. 3338, these activities received $5.7 billion, or 14.3% of the $40
billion package. Direct aid to victims of the attacks had totaled $3.3 billion under the
President’s plan, growing slightly to $3.5 billion, or 8.8% of the total under the final
allocation. Resources for investigation and law enforcement activities would have
received a $1.5 billion allocation, an amount that grew, following enactment of H.R.
3338, to $2.6 billion, or 6.5% of the total. (Details of congressional debate on H.R.
3338 are discussed below.)

Despite Congress’ cut of $3.5 billion in the $7.3 billion DOD request for the
emergency supplemental, the President’s general priorities for defense spending to
combat terrorism remained largely intact. In both the President’s request and in the
enacted bill, about 29% of the $17.3 billion allocated for Defense in the Emergency
Terrorism Response supplemental is for funding of the Afghan war, and another 29%
is for intelligence and surveillance activities. The remaining funds are distributed
3 These figures are based on CRS analysis and should be regarded as illustrative rather than
a precise calculation of exact allocations. Some OMB notifications have combined funding
for multiple purposes, making it impossible to disaggregate specifically among the ten
categories used here. Moreover, differences exist over how to characterize the purposes and
categories of emergency funds. The presentation made here offers one possible analytical
scheme. In addition, figures have been adjusted to reflect ten additional notifications made
between February and August 2002 regarding the reallocation of funds that had previously
been made available for other purposes. The largest amounts involved the transfer of funds
from FEMA to the Transportation Security Administration. The Administration planned to
restore FEMA funding following enactment of the FY2002 Supplemental appropriation.

CRS-6
among self-defense weapons for ships and upgraded security at bases (8.6%),
improved command and control (8%), precision-guided munitions (10.4%), repair
and upgrade of the Pentagon, and initial crisis response (8.4% and 3.9%
respectively). For more detail, see Table A1 in the Appendix.
Table 2. Combating Terrorism Supplemental Transfers: Policy
Priorities
($s – millions)
15-
House
Senate
Executed
Admin
Day/Wait
Passed
Passed
P.L.
Total
Purpose
Transfers
Request
Transfers
H.R.
H.R.
107-117
$40B
(1st $10B)
($20B)
(2nd $10B)
3338
3338
Bioterrorism
$0
$175 $1,587
$2,160
$3,046
$2,843
$3,018
Defense
$5,900
$7,915 $7,349
$7,348
$2,000
$3,500
$17,315
Humanitarian
$824
$412
$0
$0
$0
$50
$1,286
and other
foreign aid
Investigation
$188
$119 $1,179
$1,158
$2,367
$2,270
$2,577
and law
enforcement
Preparedness
$4
$11
$655
$539
$450
$438
$452
Public
$12
$44
$0
$19
$0
$19
$75
diplomacy
Recovery
$960
$60
$5,166
$4,578
$6,503
$5,023
$6,043
from attacks
Security-
$592
$131
$1,390
$1,422
$2,676
$2,843
$3,566
infrastructure
Security-
$1,211
$409
$415
$490
$508
$540
$2,160
aviation
Victim relief
$312
$725
$2,260
$2,285
$2,473
$2,479
$3,516
TOTAL
$10,000
$10,000 $20,000 $20,000 $20,000 $20,000
$40,000
Source: CRS estimates. Columns may not add due to rounding.
Congress was able to accommodate the $3.5 billion cut to defense by providing
funding within the regular defense bill, by deferring less urgent requests, and by
inserting a provision that permits DOD to transfer up to $1.65 billion, or 1.5% of the
FY2002 appropriations, for RDT&E and procurement to fund the Afghan war or
DOD’s homeland defense activities, should that prove necessary.4 Congress also
4 In the regular DOD appropriations bill, Congress provided $478 million to improve
(continued...)

CRS-7
restored the funding requested to repair and upgrade the Pentagon by transferring
$300 million of the funds remaining in the emergency supplemental that were to be
distributed by the President.5 Finally, in floor debate, several members of Congress
noted that the President was expected to submit another supplemental with additional
funding for defense when Congress reconvenes in January 2002.
Spending Category Definitions
Defense – Increased situational awareness (including classified), enhanced force
protection, improved command and control, increased worldwide posture (costs of
Afghan conflict), offensive counterterrorism, initial crisis response, Pentagon repair,
National Guard airport security, and other military construction.
Bioterrorism – countering potential biological, disease, and chemical threats to civilian
populations.
Humanitarian and other Foreign Aid – food and refugee relief for the Afghan people,
plus economic and security support for Pakistan and other “front-line” coalition partners
in Central Asia.
Investigation and Law Enforcement – Departments of Justice, Treasury, State and
other agency investigative and legal work following the September 11 attacks.
Preparedness – training, technical assistance and other activities aimed at strengthening
the capacity to respond to future terrorist events.
Public Diplomacy – enhanced U.S. broadcasts and media outreach capabilities to the
people in Central and Southwest Asia.
Recovery – debris removal, efforts to repair damaged equipment and infrastructure, and
relocation of dislocated offices and workers (excluding Pentagon repairs).
Security of Infrastructure/Personnel – strengthened security at critical U.S. facilities
worldwide (excluding DOD facilities) and evacuation of overseas personnel.
Security of Aviation Facilities – enhanced security at U.S. airports and on-board aircraft
(excluding DOD funding to station National Guard personnel at airports).
Victim Relief – assistance to individuals, families, and businesses directly affected by
the September 11 attacks.
4 (...continued)
protection of DOD’s weapons and facilities, thus restoring roughly half of the President’s
request (see Title IX of H.R. 3338). In the allocation of the emergency supplemental in H.R.
3338, Congress inserted a provision that permits DOD to transfer up to 1.5% of RDT&E and
procurement funds to Operation Enduring Freedom (Afghan war), and Operation Noble
Anvil (combat air patrol activities on both coasts for homeland defense), thus providing
another mechanism to ensure that adequate funding would be available.
5 Congress transferred $300 million of the funds that were to be allocated by the president
from the first $20 billion to upgrade the Pentagon, thus matching the total requested by DOD
(see H.Rept. 107-350, p. 424, and section 305(b) of H.R. 3338).

CRS-8
Figure 3. Allocation of $40 Billion by Major Purposes:
Administration Plan
Defense
Preparedness
53.0%
1.7%
Security
10.4%
3.1%
Foreign aid
15.5%
4.4%
8.3%
3.7%
Recovery
Bioterrorism
Victim Relief
Investigation
Figure 4. Allocation of $40 Billion by Major Purposes:
Actual
Preparedness
Defense
Security
1.1%
43.4%
14.3%
3.2%
Foreign aid
7.6%
15.1%
6.5%
8.8%
Recovery
Bioterrorism
Investigation
Victim Relief

CRS-9
The President’s $20 Billion Allocation Request and
Congressional Debate
The allocation process established in P.L. 107-38 for the Emergency
Supplemental spending measure guaranteed Congress a central role in deciding how
half of $40 billion anti-terrorism money would be spent. On October 16, OMB
submitted its plan for the second $20 billion portion of the supplemental that
Congress must subsequently enact.
Under the President’s plan for use of that $20 billion (Figure 5 below and
Table 2 above), the two largest shares of the supplemental request would go to DOD
(over one-third) and to recovery activities (over one-quarter), for a total of $12.5
billion.
Assistance to victims of the terrorist attacks represented about 11%, or $2.3
billion. Infrastructure and aviation security would receive 9%, or about $1.8 billion,
while funding to combat bioterrorism and investigative activities represented slightly
smaller shares of 8% or $1.4 billion, and 6% or $1.2 billion, respectively. There was
no humanitarian and other foreign assistance proposed in the second $20 billion
request.
Congressional Debate and Modifications to the President’s
Proposal. Following days of extensive negotiations among Members and with the
White House, the House Appropriations Committee voted on November 14 to
approve $20 billion in supplemental spending related to the terrorist attacks of
September 11. The money was attached as a separate section to the FY2002 Defense
Department Appropriation (H.R. 3338; H.Rept. 107-298).
Prior to the House Committee markup, a number of Members began to question
whether $20 billion was sufficient to meet all of the pressing needs related to the
terrorist attacks. Some argued that the President’s proposal lacked enough funding
for such things as law enforcement, bioterrorism preparedness, border protection, and
other homeland security priorities. Others, especially Members from New York,
contended that the President’s plan fell far short of the $20 billion that they
anticipated would be allocated out of the $40 billion total to meet the specific needs
of New York City, Virginia, and rural Pennsylvania where the attacks had the most
direct impact. They estimated that only about $9.7 billion was slated for New York.
Still others believed that additional defense resources were required beyond the $7.3
billion recommended by the Administration in the $20 billion plan. This issue
became especially controversial when President Bush, on November 6, said he would
veto the appropriation measure if it exceeded the $20 billion he had proposed.

CRS-10
Figure 5. President’s Request for the Second $20 Billion
Allocation
Defense
36.8%
Security
8.9%
Bioterrorism
7.0%
5.9%
11.3%
25.9%
Investigation
4.2%
Victim Relief
Recovery
Preparedness
House Committee Markup. Before voting to approve H.R. 3338, the House
Appropriations Committee considered, but rejected three amendments that would
have pushed emergency terrorism spending beyond the $20 billion:
! An amendment by Representative Obey (rejected 31-34) would
have added $6.5 billion. Major increases above the Committee
recommendations centered on initiatives to prepare against
bioterrorism (+ $1.1 billion); to better secure CDC, NIH, FDA and
other facilities where biological agents are kept (+$850 million); to
enhance mail security (+$500 million); to hire more air marshals,
secure aircraft cockpit doors and take other airline security measures
(+$450 million); to augment FBI and other law enforcement
capabilities (+$900 million); to combat nuclear proliferation and to
improve security of U.S. nuclear weapons (+$950 million); and to
enhance security for ports, trains, buses, colleges, and government
buildings (+$675 million). The amendment further proposed $832
million for Military Construction (+$730 million), including $482
million to construct a second lab at Ft. Derrick, Maryland, to
increase capacity to handle dangerous pathogens like smallpox.
! An amendment by Representative Murtha (rejected by voice vote)
proposed an additional $6.5 billion for the Department of Defense,
almost doubling the $7.3 billion proposed by the Administration.
The bulk of the proposed increases were from Defense Department
proposals that were rejected by the Office of Management and
Budget. The chief increases in the amendment were: a more than

CRS-11
doubling of the amount for intelligence programs (from $1.8 billion
to $3.8 billion) and precision guided munitions and other equipment
(from $624 million to $1.5 billion); $602 million in upgrades to
aircraft, and $800 million to accelerate renovation of the Pentagon.
! An amendment by Representative Walsh (rejected 31-33) would
have added $9.7 billion. Additional funds focused on economic
relief and recovery for individuals and businesses in New York –
unemployment assistance (+$880 million); HUD’s Community
Development Fund (+$900 million); and FEMA disaster relief
activities in New York, Northern Virginia, and Pennsylvania (+$6.56
billion).
Following defeat of the Walsh amendment, proponents of additional funding for New
York continued to negotiate with Committee leaders and the White House for more
funds. On November 19 Representative Walsh reached an agreement with the
Administration that would result in the transfer of about $2.1 billion to meet
immediate needs in New York.6 By some estimates, this would bring the total for
New York out of the entire $40 billion supplemental to approximately $11. 5 billion.
The transfers for New York would be drawn from other programs.
Figure 6. Enacted Allocation of Second $20 Billion
Defense
Preparedness
17.5%
Security
2.2%
Bioterrorism
16.9%
14.2%
0.3%

Foreign aid
11.4%
25.1%
12.4%
Investigation
Recovery
Victim Relief
6 About $1.5 billion of the funds for New York represented new resources for individuals
and businesses directly affected by the terrorist attacks while another $555 million was re-
directed from FEMA debris removal and reconstruction activities in New York City to HUD
economic development programs to aid residents and businesses in the region.

CRS-12
House Consideration of Non-defense Programs. H.R. 3338, as passed
by the House on November 28, supported many of the funding priorities
recommended by the President – most notably those for defense and those for
investigation and law enforcement programs largely managed by the Justice
Department. (Table 2, above.)H.R. 3338, however, recommended significant
increases in a few non-defense areas:
! Additional resources for New York – The House adopted an
amendment that represented the agreement reached on November 19
between Representative Walsh and the White House shifting $2.1
billion in the Committee-reported bill to meet the most urgent needs
of New York. (Since some of the shifted funds would have already
been allocated for needs in New York City, the net effect of the
Walsh amendment was to increase New York regional funding by
about $1.5 billion.) The cornerstone of the amendment was the
addition of $1.825 billion in HUD Community Development Block
Grants aid New York businesses recover from the terrorist attacks.
The amendment further added $175 million for worker
compensation processing and claims programs in New York state.
To accommodate these increases, the amendment eliminated $1.5
billion in Department of Labor National Emergency Grants to States
to aid dislocated workers nationally and cut FEMA debris removal
and reconstruction programs by $555 million.7
! Bioterrorism spending would rise by nearly $600 million – to $2.16
billion – including a new $100 million initiative to support state and
local government preparedness planning. The House reduced
amounts for the National Pharmaceutical Stockpile by $50 million
based on savings negotiated for the costs of antibiotics to treat
individuals exposed to anthrax and other bacterial infections.
! Counterterrorism aid to state and local governments under the
Justice Department’s Justice Assistance Program would receive
$400 million. The Administration had not requested these funds.
! Aviation security would grow by $75 million in total above the
Administration’s request, including several new initiatives: $233
million for more Sky Marshals; $28.5 million for FAA security
demonstration projects; and $30 million for FAA hiring of “security
experts.” These additions were offset by a reduction from $300
7 The House rejected (201-220) an amendment by Representative George Miller that would
have restricted the use of the $1.825 billion in Community Development Block Grants to
extending unemployment benefits and health insurance for unemployed workers. Some
lawmakers were concerned that the transfer of funds from the Labor Department’s program
for dislocated workers to HUD’s community block grant program for New York would
adversely affect unemployed individuals throughout the United States. The Miller
amendment would have effectively reoriented the use of the $1.825 billion in Community
Development Block Grants to the purposes originally proposed for the Labor Department’s
grants for dislocated workers.

CRS-13
million to $50 million for aircraft cockpit door security. The House
Appropriations Committee believed that most funding for cockpit
security would not be needed until permanent door designs had been
developed, something that might not occur for 18 months.
! In addition to other aviation security measures, passenger and
baggage screening activities would receive a $1.25 billion
appropriation, funds which would be fully offset by fees collected
from passengers and airlines that were authorized in P.L. 107-71, the
Aviation Security Act. H.R. 3338, as reported, provided $1 billion
for these purposes, an amount that was increased by $250 million
through a floor amendment by Representative Inslee.
The House-passed bill also proposed reductions to the President’s non-defense
request, including:
! Dislocated workers assistance ($2 billion) was eliminated. (See
“Additional resources New York” above and footnote 7.) Prior to
the shift of these funds to economic development needs in New
York, the House Appropriation Committee had cut the request back
to $1.5 billion, noting that the President had pledged an extra $1
billion for National Emergency Grants to assist such workers in
FY2003, and that the House-passed Economic Stimulus bill (H.R.
3090) included $12.2 billion in additional funding to aid
unemployed persons with health benefit costs and states with costs
related to unemployment benefits.
! FEMA grants of $550 million to states and localities for first
responder training and equipment were not included in H.R.
3338, as passed by the House. The House Committee said that a
grant program for first responders already existed in the Department
of Justice and that it was not necessary to establish a new program
in FEMA.
! FEMA disaster relief aid was cut from $4.9 billion to $4.345
billion in order to increase funding for economic recovery in New
York.
Also during House floor consideration, two amendments by Representative Obey and
Representative Lowey, identical to proposals rejected in Committee markup for
additional funding for homeland security and New York, were offered but ruled out
of order.
More details on the actions taken by Congress in H.R. 3338 of non-defense
funding are shown in the tables attached to this report in the appendix.
House Consideration of the Defense Request. Although the House
provided the same amount as requested by the Administration for the Department of
Defense – $7.3 billion – H.R. 3338 shifted over $600 million in funding from the
allocation proposed by the Administration to reflect House priorities.

CRS-14
Indicating its policy priorities, the House Appropriations Committee added
funds in the following areas:
! $79 million for precision guided munitions;
! $145 million for equipment for special operations forces;
! $105 million for chemical-biological protection projects;
! $40 million for the Former Soviet Union Threat Reduction
programs;
! $163 million for spares and depot maintenance and medical
supplies;
! $80 million for military construction projects; and
! $25 million for initial crisis response.
The House Committee argued that these additions could be funded within the
Administration’s total by reducing funding in other parts of the Administration’s
request for DOD, either in the $1.67 billion already included in the regular FY2002
DOD bill, or in other allocations from the emergency supplemental.8
Senate Committee Markup of the $20 billion Terrorism Emergency
Supplemental. Like the House, the Senate Appropriations Committee considered
the $20 billion request as part of the Defense Appropriation bill. At markup on
December 4, the Committee reported legislation, adding $15 billion proposed by
Senator Byrd, Chairman of the Appropriations Committee. Half of the increased
spending targeted homeland security activities while the other half provided $7.5
billion in FEMA disaster relief grants for New York, Virginia, and Pennsylvania.
The Committee-reported bill approved the full amount ($7.3 billion) requested for
the Defense Department, and closely mirrored major elements of the non-defense
portion of the House-passed bill.
In addition to the $7.5 billion FEMA funding, intended mostly to help New
York, H.R. 3338, as reported by the Senate panel included significantly higher
amounts in several areas above those recommended by the President and what passed
the House earlier. Resources for bioterrorism were set at $3.8 billion, more than
twice as much as proposed by the Administration and 75% more than approved by
the House. Border security, especially along the northern boundary with Canada,
received nearly $600 million more than requested or passed in the House. The
Senate Committee recommendation further included $500 million more that
requested or House-passed levels for securing nuclear power plants and federal
facilities, including counter-proliferation measures to prevent theft of Russian nuclear
weapons and keep Russian nuclear specialists employed in appropriate jobs. H.R.
3338, as reported in the Senate, also added a new initiative of $875 million to assist
the Postal Service respond to anthrax and other terrorist attacks.
Senate Consideration of the Non-Defense Request. As the Senate
debate began on H.R. 3338, a number of Senators objected to the extra $15 billion
8 Additional funds are available to DOD to combat terrorism in the funds provided in earlier
allocations as executed transfers or in 15-day wait transfers (see Appendix). See also
discussion of Title IX in H.Rept. 107-298.

CRS-15
funding for homeland security and New York. In a procedural motion, the Senate
voted to remove the emergency designation for the additional $15 billion. By doing
so, the homeland security and New York funds were added to other non-emergency
funding in the bill. This pushed the total amount appropriated over the allowable
allocation for H.R. 3338 and made the entire Senate Committee recommendation
subject to a point of order.
Subsequently, the Senate adopted a compromise amendment offered by Senators
Byrd, Stevens, and Inouye that reduced the emergency anti-terrorism spending to $20
billion but retained many of the program spending priorities identified in the
Committee recommendation, although at lower amounts. As adopted by the Senate,
H.R. 3338 included sharp differences with levels proposed by the President and
approved by the House. Among the most significant disparities were the resource
shares recommended for defense, recovery efforts in New York and elsewhere, and
security of facilities and the border. The House measure, like the President’s request,
allocated 37% to defense while the Senate bill provided 10% of the $20 billion
appropriation. Debris removal, construction, and other recovery activities received
23% under the House version of the supplemental total, while the Senate proposed
a 32% share. Security of infrastructure, nuclear facilities, airports, and U.S. borders
accounted for roughly 10% of the House-passed bill, while the Senate allocated
nearly 16%. Other specific recommendations made by the Senate that differ from the
President and the House include:
! Bioterrorism – $3 billion, nearly twice the amount recommended
by the White House and 41% more than approved in the House.
! New York recovery – $5.82 billion in FEMA disaster relief aid
compared with $4.9 billion requested and $4.35 billion passed by the
House. Senate and House bills included $2 billion and $1.825
billion, respectively, for HUD Community Development Block
Grants. The White House had not proposed additional funds.
! Border security – $842 million for the Immigration and
Naturalization Service and for Customs to enhance security,
especially along the norther border. The House approved $811
million and the President had proposed $507 million.
! Aviation security – Senate and House bills provided roughly the
same amount for aviation security – about $500 million – but the
Senate measure allocated half to upgrade aircraft cockpit security
while the House bill emphasized resources for Sky Marshals and
security equipment for baggage and passenger screening. The
President had proposed $415 million for airline security, mostly to
upgrade cockpit doors.
! Investigation and law enforcement – $2.4 billion, about double
what was requested and passed by the House. The Senate measure
added over $100 million for FBI investigative activities and included
$220 million for Justice Department law enforcement aid to New
Jersey, northern Virginia, and Maryland. Both House and Senate

CRS-16
bills included $400 million in counterterrorism assistance to state
and local governments that was not requested by the White House.
In order to provide these additional resources without exceeding the $20 billion total,
the Senate bill reduced DOD funding from $7.3 billion to $2 billion (see below).
Senate Consideration of the Defense Request. Under the Byrd,
Stevens, Inouye amendment that was adopted on the Senate floor, the Department of
Defense would have received $2 billion of the $20 billion included in the Senate bill,
a reduction of $5.3 billion from the funding included in the House bill and from the
Administration’s request. Of that $2 billion, $475 million was designated as military
construction funding to be used for reconstruction and renovation of the Pentagon.
The bill did not specify where the remaining $1.53 billion would be spent among the
categories developed by the Administration to describe DOD spending; those
categories range from funding for the Afghan conflict to increased funding of
intelligence and surveillance activities (see Table 3 below).
Under the President’s proposed allocations, the Defense Department would have
received a total of $21.1 billion, the largest share of both the total funding available
under the supplemental (53%) and of the $20 billion supplemental request considered
by Congress (37%). Under the Senate bill, however, DOD’s share of the $40 billion
was to total $15.7 billion or 39% of total supplemental funding, smaller than
proposed by the House or the Administration. Of that $15.7 billion, $13.7 billion
was already available to Defense from the first $20 billion allocated by the President;
the remaining $2 billion was in the Senate bill.9
Secretary of Defense Rumsfeld called on Congress to give DOD the entire $7.3
billion requested by the President in order to “maintain the president’s priorities for
fighting this war [in Afghanistan],” and to ensure that DOD would not need to curtail
training and operations.10 In floor debate, Senator Stevens suggested that the
Department of Defense had already received a large increase of over $42 billion
compared to the previous year, and that, under the emergency supplemental, the
President could submit requests for additional supplementals for any further
requirements to combat terrorism. Senator Stevens also mentioned that the
Department of Defense had authority under the Food and Forage Act (Section 3732
or Title 41 U.S.C. Section 11) to obligate monies in advance of appropriations for
emergency expenses.11 DOD also had already been allotted $3.6 billion for expenses
associated with the conflict in Afghanistan from the first $20 billion distributed by
the President (see Table 3 below).
9 Of that $13.7 billion, $5.6 billion was available immediately and $8.1 billion became
available on November 25, 2001 at the latest, 15 days after the President submitted the
proposed allocation to Congress.
10 National Journal’s Congress Daily, “House Democrats Demand More Funding for
Homeland,” December 11, 2001.
11 For Senator Steven’s statement, see Congressional Record, December 6, 2001, p. S12515.
The Department of Defense invoked its authority to use the Food and Forage Act on
September 16, 2001 but no obligations have been incurred by the services. DOD can also
transfer funds using reprogramming authority.

CRS-17
Table 3 shows the allocation of funds using the categories developed by the
Administration for the defense requests, ranging from support for the conflict in
Afghanistan to repair and renovation of the Pentagon, and compares the amounts
provided by the House, Senate, and the enacted bill with the Administration’s
request. Unlike submissions by other agencies and normal budget proposals, the
funding for DOD was appropriated to a central fund, the Defense Emergency
Response Fund, rather than to individual appropriation accounts in order to give
DOD additional flexibility and to ensure separate tracking of these emergency
funds.12 If necessary, DOD could, for example, transfer additional funds from one
category to “Worldwide Military Posture,” the category that provides monies for the
conflict in Afghanistan or for additional training (see Table 3 below).13
Conference Committee Consideration and Enactment of the $20
Billion Emergency Supplemental. On December 20, 2001, Congress cleared
for the White House H.R. 3338, including $20 billion in emergency supplemental
spending for homeland security, increased defense needs, and other efforts to combat
terrorism. The President signed the legislation on January 10, 2002 (P.L. 107-117).
The enacted package, however, differs significantly from what had been proposed in
mid-October for allocating the second $20 billion. The legislation roughly doubles
the request for bioterrorism, law enforcement, and infrastructure security activities,
while reducing by more than half the $7.3 billion proposed for defense. The final
compromise – to increase homeland security and New York aid and decrease defense
resources – partially accommodates the position of those who sought more spending
for domestic programs, but without exceeding $20 billion. (See Table 2 and Figure
6, above.)
Conference Agreement for Non-Defense Funds. P.L. 107-117 follows
much of the framework proposed by the Senate: transfer of defense resources to fund
homeland security and recovery needs. Major non-defense elements of the
conference agreement include:
! Bioterrorism – $2.84 billion, nearly double the Administration’s
$1.59 billion request. The conference agreement includes $593
million for the National Pharmaceutical Stockpile and $512 million
for smallpox vaccine, both as requested, but adds $865 million for
the Center for Disease Control (CDC) to help state and local
jurisdictions upgrade their capacity. The National Institute of
Allergy and Infectious Diseases also receives $155 million for
bioterrorism research and the construction of biosafety labs,
activities that were not requested by the White House.
! Recovery for New York and other affected areas – $8.2 billion,
slightly higher than the amount proposed by the President, but
12 In the enacted version of the bill, funds in the Defense Emergency Response Fund can be
transferred to the services for expenses incurred by other appropriations for the purposes of
the Emergency Terrorism Response supplemental, including emergency costs incurred
between September 11 and September 30, 2001, under the Food and Forage Act.
13 DOD would need to get approval from OMB for such transfers.

CRS-18
programmed in a way that more directly targets New York. H.R.
3338, as enacted, includes $2 billion in Community Development
Block Grants (funds that were not requested) to aid in New York
City economic recovery. FEMA receives $4.36 billion for various
reconstruction, repair, and clean-up activities, somewhat less than
the $4.9 billion requested. Funding (not requested) for reimbursing
hospitals affected by the attacks totals $140 million. The conference
agreement follows House- and Senate-passed bills by deleting the $2
billion request for Department of Labor National Emergency Grants
to States to assist dislocated workers and substituting $32 million
specifically for worker support organizations in New York City.
The House Appropriations Committee estimates that amounts
provided in P.L. 107-117 for recovery efforts in New York and other
jurisdictions, when combined with previously allocated funds, will
bring the total to $11.2 billion out of the entire $40 billion
supplemental.
! Border security – $759 million, mostly for the Coast Guard and the
Immigration and Naturalization Service to upgrade border and port
security. The President had requested about $600 million. The
conference agreement includes $99.6 million for the INS, as
proposed by the Senate, for construction needs, especially along the
northern border.
! Aviation security – $540 million, one-third higher than the $405
million requested. The conference agreement accommodates
differing priorities of House- and Senate-passed bills by including
$108.5 million for the accelerated purchase of airport security
equipment (House priority) and $100 million to upgrade aircraft
cockpit doors (Senate priority). P.L. 107-117, however, does not
include $1.25 billion as proposed by the House, for passenger and
baggage screening that would have been paid for by user fees
collected from passengers and airlines.
! Counterterrorism aid – $2.1 billion, 75% more than the $1.2
billion request. The conference agreement includes $745 million for
the FBI, more than requested and passed by either the House or
Senate, and $400 million for counterterrorism aid to state and local
governments, as proposed in both bills but not in the request.
! Postal Service assistance – $500 million to repair Postal Service
facilities destroyed in the attacks, protect workers handling the mail,
and establish a system to sanitize and screen the mail. The President
had not requested additional Postal Service funds beyond the $175
million allocated from the first $20 billion portion of the
supplemental.
! Securing nuclear materials – $226 million, including $135 million
to secure nuclear materials at sites in Russia and other former Soviet

CRS-19
states, and for nonproliferation programs aimed at retaining Russian
nuclear scientists.
Conference Agreement for Defense Funds. To accommodate higher
funding for non-defense needs, P.L. 107-117 cuts the amount requested by the
President for Defense from $7.3 billion to $3.5 billion. Although particular
categories of defense spending to combat terrorism are reduced, the Administration’s
overall programmatic priorities for DOD remain intact. Congress was also able to
provide funding from other sources to offset the cuts (see discussion above and
Table 3 below). The Administration has also signaled that it plans to request
additional emergency funding for Defense later this winter.14 The major changes to
the request are:
! halving the funding for “increased situational awareness”
(intelligence and surveillance activities) from $1.74 billion to $850
million;
! eliminating $881 million in funding for “enhanced force protection”
(self-protection systems for weapons and protection to DOD
facilities), offset in part by an increase of $478 million provided in
the regular FY2002 DOD appropriations for similar activities;
! eliminating $219 million in funding for improved command and
control;
! halving the funding for “increased worldwide posture” (funding for
the Afghan war and DOD’s homeland defense activities) from $2.9
billion to $1.45 billion, although up to $1.64 billion can be
transferred to those activities from regular FY2002 appropriations
for RDT&E and procurement should it prove necessary (see
discussion above);
! decreasing funding for “offensive counter-terrorism” (munitions)
from $545 million to $372 million;
! decreasing funding for “initial crisis response” from $106 million to
$39 million;
! reducing funding for repair and upgrade of the Pentagon from $925
million to $640 million, offset by a transfer of $300 million
remaining in the emergency supplemental but not yet allocated by
the President; and
! an increase of $104 million for military construction projects.
14 James Dao, “Pentagon Seeking a large increase in its next budget, “ New York Times,
January 7, 2002.

CRS-20
To track the expenditure of these funds, Congress requires DOD to provide
quarterly reports to the defense committees showing the appropriation accounts
where funds have been transferred, obligations of those funds, and a forecast of
expenditures. Because DOD’s funding is being provided in these unique and fairly
general categories, the reports are to be more detailed, showing spending by project,
and by categories for military personnel and operation and maintenance spending that
have been used to report previous contingency operations. The reports are also to
identify offsetting savings due to cancellation of peacetime training or other
activities. The first report is due February 25, 2002, 45 days after enactment, and
quarterly thereafter.15
Table 3. Congressional Action on DOD’s Share of $20 Billion
Supplemental
As of December 20, 2001
In millions of dollars
As percent of total
Category
Admin.
House
Senate
P.L.
Admin.
P.L.
Requesta Actiona Actiona 107-117 Request 107-117
Increased Situational
1,735
1,735
NSc
850
23.6%
24.3%
Awareness
Enhanced Force Protection
881
743
NSc
0
12.0%
0.0%
Improved Command and
219
162
NSc
0
3.0%
0.0%
Control
Increased Worldwide
2,938
2,801
NSc
1,495
40.0%
42.7%
Posture
Offensive Counter-
545
769
NSc
372
7.4%
10.6%
terrorism
Initial Crisis Response
106
108
NSc
39
1.4%
1.1%
Pentagon Repair and
925
925
475
640
12.6%
18.3%
Upgradeb
Airport Security
0
0
NSc
0
0.0%
0.0%
Otherd
0
0
NSc
0
0.0%
0.0%
Other military
0
105
0
104
0.0%
3.0%
constructione
Transfersf
0
[30]
0
[130]
NA
NA
Potential transfersg
0
0
0 [1,648]
NA
NA
DOD Total
7,349
7,348
2,000
3,500
100.0% 100.0%
NS = Not specified.
Notes:
a. P.L. 107-38, theFY2001Emergency Terrorism Response supplemental (ETR) provides that a total
of $10 billion is available immediately (‘cash’), another $10 billion is available 15 days after
15 See H.Rept. 107-350, p. 425; the conference report references the House bill for reporting
requirements, see H.Rept. 107-298, p. 295, and Section 3012 of the House version of H.R.
3338.

CRS-21
the request is submitted to Congress, and $20 billion is available to agencies after being enacted
in a subsequent appropriations act.
b. H.R. 3338 transfers $300 million in ‘cash’ resources remaining in the emergency supplemental
(P.L. 107-38) for reconstruction, and hardening of command centers in the Pentagon; these
funds were to be distributed by the President.
c. Except for the Pentagon, the Senate-passed version of H.R. 3338 does not specify how individual
categories would be affected.
d. The category ‘other’ includes potential increases in fuel costs.
e. Funding added by Congress for military construction.
f. The House and conference version of H.R. 3338 transfers $30 million of DOD funds to the Former
Soviet Union Threat Reduction appropriation in the Department of State, and the conference
version also provides up to $100 million for military and logistical support to Pakistan and
Jordan for their support in the Afghan war.
g. Section 306 of the conference version provides that up to 1.5% of the total in FY2002 funding for
RDT&E and procurement can be transferred to support the Afghan war (Operation Enduring
Freedom) or DOD’s homeland defense activities (Operation Noble Anvil).
Sources:
P.L. 107-38, 2001 Emergency Response to Combat Terrorism supplemental; OMB submissions on
allocations for supplemental, dated September 21, 28, October 5, 16, 22, November 5, 9, 30, see
[http://w3.access.gpo.gov/usbudget/FY2002/amndsup.html]; see also materials provided to
Appropriations committees; House of Representatives, H.Rept. 107-299, Report of Committee on
Appropriations to accompany H.R. 3338, DOD Appropriations Bill, 2001, and supplemental
appropriations; U.S. Senate, S.Rept. 107-109, Report of Committee on Appropriations to accompany
H.R. 3338, and Department of Defense Appropriation Bill, 2002, and supplemental appropriations,
and H.Rept. 107-350, Conference report to accompany H.R. 3338, Department of Defense
Appropriation Bill, and supplemental appropriations.

CRS-22
Appendix A - Defense Funding Request
Developed specifically for the anti-terrorism supplemental, the categories in
Table A1 classify the funding requested for the Department of Defense in the
Emergency Supplemental to Combat Terrorism according to broad purposes that are
described below rather than by appropriation account, the normal structure for
supplemental requests. Funds are to be deposited into the Defense Emergency
Response Fund, but DOD may then transfer those funds into specific appropriation
accounts. Below is a description of the types of activities funded in these categories
and the rationale for the Administration’s allocation of funds.
In the Administration’s request, the largest single request was $6.5 billion to
support ongoing operations in Afghanistan – classified as “Increased worldwide
posture.” That funding covered the cost of higher operating tempo for forces that are
deployed, the cost of airlifting supplies and setting up operations, and additional pay
for activating reservists and for active-duty forces (e.g. hazardous duty pay).
According to DOD, that $6.5 billion request represented a rough estimate of the
additional funding that might be necessary to conduct operations in Afghanistan for
six months, or until mid-March, 2002. Since these funds are not specifically tagged
for Afghanistan, the Administration can also use them for other operations, such as
the deployment of U.S. troops to the Philippines. The request was designed to ensure
that funding for operations in Afghanistan was covered until about mid-March, after
the convening of the next session of Congress. With rapid and unpredictable changes
in the situation in Afghanistan, any estimate of costs is uncertain.
The second largest category of funding – $6 billion for “Increased situational
awareness” – covered classified programs, including upgrades to reconnaissance
platforms (aircraft, unmanned vehicles, communications stations) and improvements
to intelligence collection and processing intelligence.
An additional $2.4 billion was requested by DOD to purchase a variety of self-
defense weapons and sensors for ships, aircraft and other forces, upgrades to and
more physical security systems at bases, and increases in the number of active-duty
military personnel doing security duty at bases.
Another $2 billion was requested to purchase additional precision-guided
missiles and other munitions (Tomahawks, JDAMS, ALCMs, laser-guided bombs)
that are being heavily used in the bombing attacks in Afghanistan. These expensive
missiles are the ‘weapon of choice’ in conflicts where the military is particularly
concerned about accurate targeting.16
Improvements to command and communication systems both within the military
and connecting DOD to local, state, and federal governments would cost another $1.6
billion. Repair, renovation, and removal of debris at the Pentagon, as well as leasing
16 The funding level in the supplemental was set to buy the maximum number of missiles
that could be produced by defense contractors in FY2002 rather than a specific estimate of
the number that would be used in the conflict.

CRS-23
of temporary space, was anticipated to cost another $1.5 billion. The initial response
to the bombing of the World Trade Center, as well as new missions for the armed
forces – conducting combat air patrols off the east and west coast, and stationing
National Guard personnel at airports – was estimated to cost $1.1 billion.
The Administration’s proposed additional funding for DOD appears to include
a mixture of one-time or temporary expenses (such as the cost of the conflict in
Afghanistan and repair of the Pentagon), accelerations in current programs now given
higher priority, and recurring costs reflecting longer-term changes in standards (e.g.
security at DOD facilities) or new missions (combat air patrol). In its review of the
new FY2003 budget request, Congress may want to assess the extent to which
funding needs to be increased for programs or activities that are designed to combat
terrorism and protect DOD facilities and personnel, and the extent to which DOD’s
missions and force structure need to be re-oriented to reflect the new emphasis on
combating terrorism.

CRS-24
Table A1. DOD Allocations under $40 Billion Emergency Terrorism Response Supplemental
In millions of dollars
As percent of total
15-
Admin.
day
Admin.
Enacted
Admin
Category
Casha
$20B
Enacted
Description of category
wait
request
total
total
Total
fundsa
a
Increased Situational
1,925
2,347
1,735
6,007
5,122
28.4%
29.6%
Upgrades to reconnaissance aircraft, unmanned aerial
Awareness
vehicles, sensors, and classified programs.
Enhanced Force
775
734
881
2,390
1,509
11.3%
8.7%
Self-defense weapons for ships, aircraft, and other forces;
Protection
physical security system upgrades, personnel alerting
systems, and more security personnel.
Improved Cmd and
666
737
219
1,622
1,403
7.7%
8.1%
For connecting to local, state, and federal governments,
Control
and for military communication systems.
Increased Worldwide
890
2,492
2,938
6,320
4,877
29.9%
28.2%
Funds increased operating tempo and higher personnel
Posture
costs associated with Afghan war or related conflicts.
Offensive Counter-
252
1,207
545
2,004
1,831
9.5%
10.6%
Additional buys of precision-guided missiles and other
terrorism
munitions
Initial Crisis
523
76
106
705
648
3.3%
3.7%
Costs of deploying ships and combat air patrols off coasts,
Response
DOD support to FEMA, and to NYC.
Pentagon Repair and
739
91
925
1,755
1,470
8.3%
8.5%
Debris removal, engineering studies, repairs, and
upgradeb
renovation.
Airport security
30
231
0
261
261
1.2%
1.5%
Funds National Guard providing airport security
Otherc
100
0
0
100
100
0.5%
0.6%
Potential cost of higher fuel prices.
Other mil. con.
0
0
0
0
104
0.0%
0.6%
Military construction funding added by Congress.
Transfersd
0
0
0
0
[130]
NA
NA
See note below.
Potential transferse
0
0
0
0
[1,648]
NA
NA
DOD can transfer up to 1.5% of total funding for RDT&E
and procurement for Afghan war and homeland defense.
DOD Totalf
5,900
7,915
7,349
21,164
17,315
100.0%
100.0%
Not applicable

CRS-25
Notes:
a. P.L. 107-38, making emergency supplemental appropriations for FY2001 in response to the September 11, 2001 tragedy, provides that a total of $10 billion is available immediately,
another $10 billion is available 15 days after the request is submitted to Congress, and $20 billion is available to agencies after being enacted in a subsequent appropriations act.
b. H.R. 3338 allocates $300 million that was available for additional ‘cash’ transfers by the President to reconstruction and hardening of command centers in the Pentagon.
c. The category ‘other’ includes potential increases in fuel costs.
d. The conference version of H.R. 3338 transfers $30 million of DOD funds to the Former Soviet Union Threat Reduction appropriation in the Department of State, and provides that
up to $100 million can be provided to Pakistan and Jordan for their military and logistic support in the Afghan war.
e. Section 306 of H.R. 3338 provides that up to 1.5% of the total amount appropriated in FY 2002 for RDT&E and procurement can be transferred to support the Afghan war (Operation
Enduring Freedom) or DOD’s homeland defense activities (Operation Noble Anvil).
f. The total for the Administration includes the $300 million in ‘cash’ resources transferred by Congress for reconstruction of the Pentagon in H.R. 3338.
Sources:
P.L. 107-38, 2001 Emergency Response to Combat Terrorism Supplemental; OMB submissions on allocations for supplemental, dated September 21, 28, October 5, 16, 22, November
5, 9, 30, see [http://w3.access.gpo.gov/usbudget/FY2002/amndsup.html]; see also materials provided to Appropriations committees; House of Representatives, H.Rept. 107-299, Report
of Committee on Appropriations to accompany H.R. 3338, DOD Appropriations Bill, 2001, and supplemental appropriations; U.S. Senate, S.Rept. 107-109, Report of Committee on
Appropriations to accompany H.R. 3338, and Department of Defense Appropriation Bill, 2002, and supplemental appropriations, and H.Rept. 107-350, Conference report to accompany
H.R. 3338, Department of Defense Appropriation Bill, and supplemental appropriations. See also, Tony Capaccio, “Emergency Defense Funds going to improve military intelligence,”
[http://www.bloomberg.com], September 27, 2001; Frank Wolfe, “Zakheim: supplemental includes RC-135 Upgrades, Global Hawk Acceleration, Defense Daily, September 25, 2001;
and “Zakheim: New Defense Spending in 2001 will lead to increases in 2002 and 2003,” Aerospace Daily, September 25, 2001, and CRS calculations.

CRS-26
Appendix B – Non-Defense Emergency
Supplemental Transfers Organized by
Appropriations Bill and Account
The following 13 tables provide details of the $40 billion emergency
supplemental allocation, organized according to appropriation bills and accounts.
For the $20 billion which Congress will enact in an FY2002 appropriation measure,
amounts as approved in the House and Senate are included.

CRS-27
Appendix – Summary of All Appropriations Bills
($s – millions)
Executed
15-Day/Wait
Admin
Senate
Appropriations Bill
Transfers
Transfers
Request
House
Enacted
Passed
(1st $10B)
(2nd $10B)
($20B)
Agriculture and Related Agencies
$73.2
$22.0
$147.3
$156.1
$574.0
$535.0
Commerce, Justice, State
$230.2
$232.4
$1,342.6
$1,761.9
$2,424.4
$2,423.3
Defense and Military Construction
$5,899.3
$7,915.3
$7,349.0
$7,348.4
$2,000.0
$3,500.0
District of Columbia
$6.0
$0.0
$25.0
$25.6
$200.0
$200.0
Energy and Water Development
$5.0
$0.0
$287.0
$287.0
$574.0
$574.0
Foreign Operations
$861.5
$471.9
*
$0.0
$0.0
$50.0
Interior
$3.1
$0.0
$84.2
$88.2 $88.2
$88.2
Labor, Health/Human Services, Education
$155.2
$0.0
$3,529.7
$2,240.4
$2,964.8
$2,894.1
Legislative Branch
$377.0
$0.0
$256.1
$256.1
$256.1
$256.1
Transportation
$1,228.2
$483.5
$734.3
$734.4
$1,268.2
$1,296.5
Treasury, Postal Service, Executive Office
of the President, and General Government
$191.1
$175.0
$572.6
$572.0
$1,283.3
$1,283.3
Veterans Affairs, Housing and Urban
Development, and Independent Agencies
$970.2
$700.0
$5,672.4
$6,530.4
$8,366.9
$6,899.8
TOTAL
$10,000.0
$10,000.0
$20,000.0
$20,000.0
$20,000.0
$20,000.0
* Administration requested $50 million by transfer from the Department of State for USAID mission construction. House and Senate bills do not include this transfer, but the House
bill provides $30 million transfer from the Department of State for the Biological Weapons Redirect and S&T Centers Program.
Columns may not add due to rounding.

CRS-28
Agriculture and Related Agencies
($s – millions)
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Dept. of Agriculture
Office of the Secretary
Enhanced security of USDA facilities and
expedited background investigations and
– –
$17.2
$7.5
$80.9
$80.9
security clearances
Improve response to bioterrorist attack by
– –
$5.0
–
–
–
state, local, federal, and private entities
Agricultural Research Service,
Security upgrades and research on
– –
–
$5.6
$70.0
$40.0
S&E
bioterrorism
Agricultural Research Service,
Improvements in locations with a mission
–
–
$0.0
$0.0
$73.0
$73.0
Buildings and Facilities
related to exotic and other animal
diseases
Cooperative State Research, Ed,
Research related to bioterrorism and
–
–
$0.0
$0.0
$50.0
$0.0
and Extension Services, R&Ed
homeland security
Animal and Plant Health
Agriculture Inspection Quarantine user
Inspection Service, S&E
fee and inspection programs, and pest
–
–
$0.0
$8.2
$95.0
$105.0
detection activities
Animal and Plant Health
Construct research facility for
Inspection Service, Building and
biohazardous material and relocate
–
–
$14.1
$14.1
$14.1
$14.1
Facilities
animal disease facility in Ames, Iowa

CRS-29
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Food and Safety Inspection
Improve response to food supply threats
Service
and other bioterrorism protection
– –
$8.9
$9.8
$15.0
$15.0
activities, including implementation of
the Food Safety Bioterrorism Protection
Program
Food and Nutrition Service, WIC
Supplemental to higher caseloads than
– –
$0.0
$0.0
$39.0
$39.0
expected for FY2002
PL 480 food aid grants
Purchase and deliver food to Afghans
$73.0
$22.0
–
–
–
–
Dept of Health and Human Services
Public Health and Social Services
Expedite FDA vaccine/biologic approval
–
–
$34.6a
$34.6
$127.0
$40.8
Emergency Fund
b
Increased safety of imported foods
–
–
$61.0a
$61.0
$97.1
b
Increased security at FDA buildings
–
–
$0.0
$8.8
$13.2
Commodity Futures Trading
Reestablishing NY office and relocating
$0.2
–
$6.5
$6.5
$10.0
$16.9
Commission
staff
TOTAL Agriculture and Related Agencies
$73.2
$22.0
$147.3
$156.1
$574.0
$535.0
a. Requested as part of the Labor/HHS/Education chapter.
b. Funded within $127 million total above.
Sources: OMB and House and Senate Appropriations Committees.

CRS-30
Commerce, Justice, and State, the Judiciary, and Related Agencies
($s – millions)
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Commerce Department
Dept Management, S&E
Building security upgrades
–
–
$7.3
$8.6
$0.9
$4.8
Economic Development Admin.,
Increased security at facilities
–
–
$0.3
$0.0
$0.3
$0.0
S&E
Economic Development Admin.,
Support economic and development
$2.0
– –
–
–
–
Econ Development Asst Programs
activities in Northern Virginia
International Trade
Relocation of staff from WTC offices
$0.1
–
–
–
–
–
Administration
Security enhancements in U.S. and
– –
$1.5
$0.8
$1.5
$1.0
overseas posts
Export Administration
Funds for attaches in UAE and China
– –
$1.8
$1.8
$1.8
$1.8
to monitor shipments of dual-use items
National Oceanic and
Security at satellite control facilities
–
–
$2.0
$0.0
$2.0
$2.0
Atmospheric Administration
Oversight of commercial remote
–
– $0.8
$0.8
$0.8
$0.8
sensing licenses
U.S. Patent and Trademark Office,
Security at office facilities
–
–
$3.4
$0.0
$3.4
$1.5
S&E
National Institute of Standards and
Security police at facilities in MD and
–
– $0.4
$0.0
$0.4
$0.0
Technology
CO
Video surveillance and building access
–
– $1.2
$0.0
$1.2
$1.2
controls at facilities in MD and CO
Cybersecurity initiative
–
–
$0.0
$0.0
$10.0
$5.0

CRS-31
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Natl Telecommunications and Info
Grants to public broadcasters to restore
–
– $8.3
$8.3
$8.3
$8.3
Admin
facilities destroyed in WTC attack
Subtotal Commerce Department
$2.1
–
$27.0
$20.3
$30.6
$26.4
Justice Department
General Administration,
Additional adjudication expense for
–
– $3.5
$3.5
$3.5
$3.5
Admin Review and Appeals
Office of Immigration Review
General Administration,
Feasibility report and implementation
Patriot Act Activities
of enhanced FBI and other
– –
$0.0
$0.0
$25.0
$5.0
identification systems
U.S. Marshals, S&E
Increased airport and courthouse
$3.9 – –
–
–
–
security
Witness protection safe sites and other
–
– $11.1
$11.1
$26.1
$10.2
security measures
U.S. Marshals, Construction
U.S. Marshals construction
–
–
$0.0
$0.0
$35.0
$9.1
General Legal Activities, S&E
Criminal Division costs for intl legal
–
– $4.8
$4.8
$2.4
$4.8
activities
Cybersecurity initiative
–
–
$0.0
$0.0
$15.0
$0.0
Establish the Special Master’s office to
coordinate WTC and Pentagon victims
$7.3
– –
–
–
–
compensation
Additional costs of the Special
–
– $7.7
$7.7
$3.9
$7.7
Master’s Office victim compensation
activities
U.S. Attorneys, S&E
Establish anti-terrorism task forces in
–
– $67.1
$68.5
$7.1
$45.0
selected judicial districts

CRS-32
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
a
Investigation and prosecution costs,
–
– $7.5
$7.5
$7.5
and renovation of NYC offices
Victims’ assistance
–
–
$0.0
$0.0
$14.3
$2.0
b
Crisis response equipment for NYC
–
–
$0.0
$0.0
$1.9
Courtroom technology
–
–
$0.0
$0.0
$20.0
$0.0
Legal Activities Office Automation
–
–
$0.0
$0.0
$25.7
$0.0
Systems
FBI, S&E
Investigation of terrorist attacks
$36.9
–
–
–
–
–
Upgrade info technology infrastructure
–
$39.7
–
–
–
–
Investigation of terrorist attacks,
–
– $538.5
$538.5
$654.5
$745.0
including cybersecurity initiative
Immigration and Naturalization
INS operations responding to terrorist
Service, S&E
attacks and address INS screening
–
– $399.4
$243.7
$360.1
$360.1
deficiencies
c
Northern border inspection operations
–
–
$165.9
$79.7
$79.7
More Southwest border patrol agents
–
–
–
–
$10.0
$10.0
Immigration and Naturalization
Construction, repair, one-time build
–
–
$0.0
$0.0
$99.6
$99.6
Service, Construction
out, with emphasis on northern border
Office of Justice Programs, State
Grant to Utah Olympic Public Safety
–
– $4.4
$17.1
$17.0
$17.1
and Local Law Enforcement
Command for security at 2002 games
Assistance
Law enforcement assistance grants to
– –
$0.0
$0.0
$219.9
$229.0
Northern VA, New Jersey, and MD
Office of Justice Programs, State
Byrne Discretionary Grant Program for
–
–
$0.0
$0.0
$9.0
$5.0
and Local Law Enforcement Asst
cybersecurity initiative

CRS-33
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Office of Justice Programs,
Counterterrorism aid to state and local
– –
$0.0
$400.0
$400.0
$400.0
Justice Assistance
governments
Office of Justice Programs,
Counseling for terrorist attack victims,
–
– $68.1
$68.1
$68.1
$68.1
Crimes Victims Fund
families, and crisis responders
Subtotal Justice Department
$48.1
$39.7
$1,112.1
$1,528.9
$2,103.4
$2,110.3
State Department
Diplomatic and Consular
Potential evacuation at high-threat
$0.4
– –
–
–
–
Programs
posts
Hiring new Diplomatic Security agents
–
$30.0
–
–
–
–
Media outreach to Muslim audiences
–
$15.0
–
–
–
–
Emergency medical supplies
–
$4.0
–
–
–
–
Counterterrorism Foreign Emergency
– $1.0
–
–
–
–
Support Team Equipment
Intl component in next Top Officials
training in biological terrorism
– $3.0
–
–
–
–
simulation
Counterterrorism Coordinator staff
–
$2.2
–
–
–
–
Security enhancements at facilities
–
$34.7
–
–
–
–
Diplomatic security and mail safety
–
$10.0
–
–
–
–
Medical service enhancements
–
$3.7
–
–
–
–
Embassy Security/Construction
Security at U.S. embassies
–
$24.9d
– – –
–
Emergency egress projects
–
$18.0
–
–
–
–
Capital Investment Fund
Improved communications
$7.5
$7.5
–
–
–
–

CRS-34
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Emergencies in
Rewards for terrorist information and
Diplomatic/Consular Service
potential evacuation at high-threat
$41.0
– –
–
–

–
posts
DOD reimbursement for transportation
–
$10.0
–
–
–
–
International Broadcasting
Increase VOA and RFE/RL broadcasts
–
$12.3
$0.0
$9.2
$0.0
$9.2
Operations
Broadcasting by the Afghan govt.
$1.6
–
–
–
–
–
International Broadcasting
Establish AM transmitting facilities in
–
$16.4
$0.0
$10.0
$0.0
$10.0
Capital Improvements
Middle East and additional FM
capability
Broadcasting by the Afghan govt.
$8.6
–
–
–
–
–
Subtotal State Department
$59.1
$192.7
$0.0
$19.2
$0.0
$19.2
Judicial Branch
Supreme Court, Care of Buildings
Protective window film
$1.3
–
–
–
–
–
and Grounds
Security of the Supreme Court
–
–
$10.0
$10.0
$30.0
$30.0
Court of Appeals, District Courts,
Court security
$19.7
–
–
–
–
–
and Other
Court security officers
–
–
$17.5
$17.5
$53.5
$53.5
Reimburse US Marshals for staff
–
–
$4.0
$4.0
$4.0
$4.0
coordinating security at courts
Emergency communications back-up
–
–
$0.0
$0.0
$5.0
$5.0
Administrative Offices of the U.S.
Enhance security at Thurgood Marshall
–
–
$0.0
$0.0
$2.9
$2.9
Courts, S&E
Federal Judiciary Building
Small Business Administration

CRS-35
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Disaster Loans Program
Low interest disaster loans ($400
$100.0
– –
–
–
–
million) for victims in affected areas
Low interest loans ($600 million) for
–
– $150.0
$140.0
$150.0
$150.0
affected firms in NY, VA, and Penn.
Equal Employment Opportunity
Reconstruct destroyed office and files
–
–
$1.3
$1.3
$1.3
$1.3
Commission, S&E
Securities and Exchange
Replace NY office
–
–
$20.7
$20.7
$20.7
$20.7
Commission, S&E
Dept of Transportation,
Port security
–
–
$0.0
$0.0
$11.0
$0.0
Maritime Admin, Ops and
Training
Maritime Guaranteed Loan
Port security, infrastructure upgrades,
–
–
$0.0
$0.0
$12.0
$0.0
Program Account
and equipment
TOTAL, Commerce/Justice/State
$230.3
$232.4
$1,342.6
$1,761.9
$2,424.4
$2,423.3
a. Included in the $68.5 million line above.
b. Included in the $14.3 million line above.
c. Included in the $399.4 million line above.
d. On August 13, 2002, the President reallocated $10 million from State Department embassy security in order to provide funds for FAA security costs at air traffic control facilities.
Previously, the President had allocated $34.9 million for embassy security.
e. Reallocated on June 4, 2002, from an earlier allocation for DOD initial crisis response.
Sources: OMB and House and Senate Appropriations Committees.

CRS-36
Defense and Military Construction
($s – millions)
Executed
15 Day/Wait
Admin
House
Senate
Programs
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Increased situational awareness
Upgrades to intelligence assets and
$1,931.5
$2,347.0
$1,735.0
$1,735.0
NS
$850.0
classified programs
Self-defense weapons for ships and aircraft,
Enhanced force protection
and physical security systems for facilities
$775.0
$734.0
$881.0
$848.4
NS
$0.0
Improved command and control
Improving military communication systems
$659.0
$737.0
$219.0
$162.0
NS
$0.0
Increased worldwide posture
Costs of the conflict in Afghanistan
$890.0
$2,492.0
$2,938.0
$2,801.0
NS
$1,495.0
Offensive counterterrorism
Purchasing precision-guided munitions
$252.0
$1,207.0
$545.0
$769.0
NS
$372.0
Initial crisis response
NYC aid and combat air patrols off coasts
$522.8a
$76.0
$106.0
$108.0
NS
$39.1
Pentagon repair and upgrade
Debris removal, repair, and renovation
$739.0b
$91.0
$925.0
$925.0c
$475.0c
$475.0
Airport security
Stationing National Guard at
airports
$30.0
$231.0
–
– – –
Other
Higher fuel costs and Pentagon relocation
$100.0d
–
– – –
$269.4
TOTAL Defense and Military Construction
$5,899.3
$7,915.0
$7,349.0
$7,348.4
$2,000.0
$3,500.0
NS = Not Specified
a. On May 31, 2002, the President reallocated $10.2 million of this amount for International Broadcasting in Afghanistan. The original allocation for initial crisis response was $533
million.
b. H.R. 3338, as enacted, allocates $300 million from the remaining unallocated $10 billion provided in P.L. 107-38 for reconstruction and hardening of Pentagon command centers.
c. Includes funding appropriated in the Military Construction chapter in the House and Senate bills.
d. Higher fuel costs.
e. Pentagon relocation and other projects, including funds provided under the Military Construction chapter of H.R. 3338.
Sources:
OMB and House and Senate Appropriation Committees.

CRS-37
District of Columbia
($s – millions)
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Federal support for Economic
Short-term response activities, including
Development and Management
police, fire, and public works overtime

$6.0
–
– – – –
Reform in the District
costs
a
a
a
Federal Payment to DC for
Develop and implement emergency
–
– $25.0
Emergency Response and
response plan
Planning
Protective clothing/breathing apparatus
–
–
–
$12.1
$7.1
$7.1
Hazardous materials equipment
–
–
–
$1.0
$1.0
$1.0
Chemical and biological weapons
– – –
$10.4
$10.4
$10.4
preparedness
Pharmaceuticals for responders
–
–
–
$2.1
$2.1
$2.1
Response and communications capability
–
–
–
$0.0
$15.0
$15.0
Search, rescue, and other emergency
– – –
$0.0
$8.9
$8.9
equipment and support
Equipment, supplies, vehicles for Chief
– – –
$0.0
$1.8
$1.8
Medical Officer
Hospital containment facilities for the
– – –
$0.0
$8.0
$8.0
Health Department

CRS-38
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
First response land-line and wireless
– – –
$0.0
$44.0
$45.5
interoperability project
Emergency traffic management
–
–
–
$0.0
$20.7
$20.7
Emergency training and planning
–
–
–
$0.0
$11.4
$9.9
Increased facility security
–
–
–
$0.0
$25.5
$25.5
Federal Payment to Washington
Region-wide security requirements
–
–
$0.0
$0.0
$39.1
$39.1
Metro Area Transit Authority
Federal Payment to Washington
Regional emergency preparedness
–
–
$0.0
$0.0
$5.0
$5.0
Council of Governments
TOTAL District of Columbia
$6.0
$0.0
$25.0
$25.6
$200.0
$200.0
a. Funding included in lines below.
Sources: OMB and House and Senate Appropriations Committees.

CRS-39
Energy and Water Development
($s – millions)
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Energy Department
Natl Nuclear Security
Enhance security at DOE national labs
$5.0
–
–
–
–
–
Administration, Weapons Activities
On-site security and plant reconfiguration
–
–
$91.0
$73.0
$116.0
$76.0
at defense-related national labs
Transportation safeguards to prevent
–
–
$15.0
$15.0
$15.0
$25.0
sabotage of stockpile material in transit
Accelerated deployment of cybersecurity
– –
$0.0
$0.0
$0.0
$30.0
measures at nuclear weapons sites
a
Defense Nuclear Nonproliferation
Prototype Biological Aerosol Sentry and
– –
$0.0
$18.0
$0.0
Information System
Safeguarding and acquisition of Russian/
former Soviet fissile nuclear material, and
–
–
$0.0
$0.0
$226.0
$226.0
to help transition and retention of Russian
nuclear scientists
Environmental and Other Defense
Protective force personnel at the
Activities, Defense Environmental
Plutonium Finishing Plant and the radio-
–
–
$3.3
$3.3
$3.3
$3.3
Restoration and Waste Management
active tanks at Hanford, WA

CRS-40
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Protective force personnel at the
–
–
$4.9
$4.9
$4.9
$4.9
Savannah River site
Environmental and Other Defense
Increased security and accelerated
Activities,
deployment of the civilian Biological
–
–
$3.5
$3.5
$3.5
$3.5
Other Defense Activities
Aerosol Sentry and Info System
Nuclear Regulatory Commission
Prevent/mitigate attacks on commercial
nuclear reactors and security for the
–
–
$0.0
$0.0
$36.0
$36.0
trans-port of commercial nuclear
materials
Bureau of Reclamation,
Security at dams, power plants and other
–
–
$30.3
$30.3
$30.3
$30.3
Water and Related Resources
critical facilities
Corps of Engineers,
Security at 300 Corps facilities, including
–
–
$139.0
$139.0
$139.0
$139.0
O&M, General
overtime and personnel costs
TOTAL Energy and Water Development
$5.0
$0.0
$287.0
$287.0
$574.0
$574.0
a. Included in $226 million amount below.
Sources: OMB and House and Senate Appropriations Committees.

CRS-41
Foreign Operations
($s – millions)
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Export-Import Bank
Relocate NYC office
$0.1
–
–
–
–
–
USAID Operating Expenses
Evacuation plans and
$0.7a
–
–
– – –
communications
Security enhancements overseas
$13.0
$2.0
–
– – –
Construction of buildings in Uganda
– –
$50
by
$0.0
$0.0
$0.0
and Kenya, by transfer from State
transfer
Dept
Establish a USAID mission in
$1.7a
– –
–
–
–
Afghanistan
USAID Disaster Assistance
Humanitarian aid in Afghanistan
$76.0
$20.0
–
–
–
–
Reconstruction and humanitarian
– –
$0.0
$0.0
$0.0
$50.0
activities in Afghanistan
Economic Support Fund
Economic support for Pakistan
$500.0
$100.0
–
–
–
–
Intl Narcotics and Law
Improved Pakistani border security
–
$73.0
–
–
–
–
Enforcement
Independent States, Former Soviet
Economic and law enforcement aid
$40.5
–
–
–
– –
Union
for Uzbekistan
Central Asia regional conflict
$6.0
– –
–
–
–
prevention aid

CRS-42
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Foreign Military Financing
Military aid for Turkey and
$45.0
– –
–
–
–
Uzbekistan
Non-Proliferation, Anti-Terrorism,
Training/equipment for counter-
$45.5
– –
–
–
–
Demining and Related programs
terrorism aid to foreign govts
Training/equipment for border
$42.4
– –
–
–
–
security forces in Central Asia
Terrorist Interdiction Program
$4.0
–
–
–
–
–
Intl counterterrorism engagement
$3.0
–
–
–
–
–
Demining in Afghanistan
$3.0
–
–
–
–
–
Bomb disposal & explosive
$28.0 – –
–
–
–
equipment for Israel
Biological Weapons Redirect and
– – –
$30
by
$0.0
$0.0
S&T Centers Program
transfer
Peacekeeping Operations
Compensate Pakistan for costs in
– $220.0
–
–
–
–
aiding U.S. military forces
Peace Corps
Evacuation of volunteers
$2.6
$3.9
–
–
–
–
Intl Affairs Technical Assistance
Foreign government training to
–
$3.0
–
–
– –
combat terrorist financing
Migration and Refugee Assistance
Aid to potential new refugees in
$50.0
$50.0 –
–
–
–
Pakistan and neighboring countries
TOTAL Foreign Operations
$861.5
$471.9
$50 by
$30 by
$0.0
$50.0
transfer
transfer

CRS-43
a. Reflects a reallocation on April 12, 2002, in order to provide $1.7 million for USAID to open a mission in Afghanistan. Previously, the President had allocated $2.4 million for
USAID evacuations and communications.
Sources: OMB and House and Senate Appropriations Committees.

CRS-44
Interior and Related Agencies
($s – millions)
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Department of the Interior
Dept Offices, Working Capital Fund
Security at DC headquarters
–
–
$2.2
$2.2
$2.2
$2.2
National Park Service, Operation of
Emergency response in NYC and DC
$1.7
–
–
–
–
–
the National Park System
Security at selected national
–
–
$6.1
$6.1
$6.1
$6.1
monuments
a
Reimburse NPS for employee
– –
$4.0
$4.0
$4.0
relocation for security
National Park Service, US Park Police
Emergency response in NYC and DC
$1.4
–
–
– – –
Preparedness in NYC and DC
–
–
$25.3
$25.3
$25.3
$25.3
Natl Park Serv-Construct/Maintenance
Recovery of Federal Hall
–
–
$16.5
$16.5
$16.5
$16.5
Security at Statue of Liberty and others
–
–
$5.1
$5.1
$5.1
$5.1
National Capital Planning
Staff to review security planning and
–
–
$0.8
$0.8
$0.8
$0.8
Commission, S&E
design changes for Federal buildings
Smithsonian Institution
Salaries and Expenses
Security at Smithsonian facilities
–
–
$21.7
$21.7
$21.7
$21.7

CRS-45
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Cleanup at NYC’s Heye Center
–
–
$0.1
$0.1
$0.1
$0.1
museum
National Gallery of Art
Security at the Gallery
–
–
$2.1
$2.1
$2.1
$2.1
Kennedy Center, O&M
Security at the Kennedy Center
–
–
$4.3
$4.3
$4.3
$4.3
TOTAL Interior
$3.1
$0.0
$84.2
$88.2
$88.2
$88.2
a. Requested within the GSA budget in the Department of the Treasury Chapter.
Sources: OMB and House and Senate Appropriations Committees.

CRS-46
Labor, Health and Human Services, and Education
($s – millions)
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
U.S. Dept. of Education
Office of Elementary and Secondary
Crisis recovery services in New York
– –
$10.0
$10.0
$10.0
$10.0
Ed - School Improvement Programs
and other jurisdictions (Project SERV)
U.S. Dept. of Health and Human Services
Public Health and Social Services
Health related needs-NYC/DC metro
$126.2 –
– – – –
Emergency Fund
area
Supplies for Natl Pharmaceutical Stock-
pile to treat for anthrax and other
–
–
$643.6
$593.6
$593.0
$593.0
infections
Purchase of smallpox vaccine
–
–
$509.0
$509.0
$512.0
$512.0
CDC upgrades for state and local
–
–
–
–
$1,000.0
$865.0
capacity
a
State and local preparedness planning
–
–
$0.0
$100.0
a
Epi-X web-based disease notification
and surveillance system; Health Alert
Network; improve response surge
–
–
$55.0
$90.0
a
a
capacity; and HHS Biological Detection
and Assessment Teams
State and local capacity building,
including the augmentation of state lab
capacity regarding critical biological
–
–
$25.0
$233.0
a
a
agents; train state health depts. on
bioterrorism
Other CDC capacity upgrades, including
research
–
–
–
–
$165.0
$100.0

CRS-47
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
b
National system to track biological
–
–
$0.0
$0.0
$10.0
pathogens
Expand CDC’s capacity to enhance state
b
and local health lab protocols, and CDC
–
–
$20.0
$20.0
–
capacity to process state lab samples
b
Train epidemic disaster response teams
–
–
$20.0
$20.0
–
b
Rapid toxic screening
–
–
$10.0
$10.0
–
CDC environmental hazard control
– –
–
–
–
$7.5
activities
Aid hospitals prepare and respond to
mass immunization and treatment
–
–
$50.0
$170.0
$100.0
$135.0
incidents
Help large cities develop the Metro-
politan Medical Response Systems
–
–
$50.0
$50.0
–
–
Emergency HHS communications
–
–
$13.0
$28.0
– $55.8
capabilities for coordination and other
Fully develop Natl Disaster Medical
c
System readiness and operationalize all
–
–
$20.0
$32.0
–
Disaster Medical Response Teams
HHS/CDC lab security
–
–
$38.8
$30.0
$25.0
$71.0
Replenish NY and VA public health
–
–
$20.0
$20.0
– –
grants
Evaluate masks/respirators used in NYC
–
–
$15.0
$15.0
–
–
Expanded social services to NY and NJ
–
–
$10.0
$10.0
–
–
Psychological trauma response and
treating disorders of youth witnessing or
– –
$0.0
$10.0
–
$10.0
experiencing a traumatic event

CRS-48
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Natl Institute of Allergy and Infectious
–
–
$0.0
$0.0
$99.0
$85.0
Diseases - bioterrorism research
NIH research on next-generation
– –
$0.0
$50.0
–
–
vaccines
Natl Institute of Allergy and Infectious
–
–
$0.0
$0.0
$71.0
$70.0
Diseases - construct biosafety labs
Reimburse organizations for healthcare
– –

$0.0
$0.0
$140.0
$140.0
related costs resulting from attacks
Center for Disease Control,
Safety screening for emergency services
Disease Control Research and Training
personnel and rescue/recovery personnel
–
–
$0.0
$12.0
$12.0
$12.0
U.S. Dept. of Labor
Departmental Management, S&E
Security and destroyed office recovery
–
–
$5.9
$5.9
$5.9
$5.9
Training and Employment Services
Temporary jobs to aid NYC restoration
$25.0
–
–
–
–
Natl Emergency Grants to States to aid
–
– $2,000.0
32.5d
$32.5d
$32.5d
dislocated workers
State Unemployment Insurance and
Unemployment insurance
$3.5
–
–
–
–
–
Employment Service Operations
Process New York unemployment
–
– $4.1
$4.1
$4.1
$4.1
insurance claims
State Unemployment Security Office,
Workers compensation for individuals
–
–
$0.0
$175.0
$175.0
$175.0
Workers Compensation Programs
in New York
Occupational Safety and Health
OSHA monitoring at disaster sites
$0.5
–
–
–
–
–
Admin.
Reconstitution of OSHA’s NYC office
–
– $1.0
$1.0
$1.0
$1.0
and continued on-site monitoring
Pension and Welfare Benefits Admin,
Recovery from destruction of NY office
–
–
$1.6
$1.6
$1.6
$1.6
S&E

CRS-49
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
National Labor Relations Board,
Upgrade NLRB security
–
–
$0.2
$0.2
$0.2
$0.2
S&E
Social Security Administration,
Replace destroyed equipment and
–
– $7.5
$7.5
$7.5
$7.5
Limitation on Administration Expenses
security at SSA facilities
TOTAL Labor, Health and Human Services, and Education
$155.2
$0.0
$3,529.7
$2,240.4
$2,964.8
$2,894.1
a. Funding included in the line for CDC upgrades for state and local capacity, above.
b. Funding included in the line for other CDC capacity upgrades, including research, above.
c. Funding included in the $55.8 million line, above.
d. Earmarked for the Consortium of Worker Education, established by the New York City Central Labor Council and the New York City Partnership, for an Emergency Employment
Clearing House.
Sources: OMB and House and Senate Appropriations Committee.

CRS-50
Legislative Branch
($s – millions)
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
U.S. Capitol Police
Increased security and overtime pay
$80.8
–
–
–
–
–
Senate
Increased security; preparing for future
$24.1
– –
–
–
–
House of Representatives
Increased security; preparing for future
$23.9
–
–
–
–
–
Office of Attending Physician
Reduce risk and potential damage of
$1.5
– –
–
–
–
life caused by future terrorist events
Architect of the Capitol
Increased security; preparing for future;
$244.2
– –
–
–
–
construction of Capitol Visitors Center
Library of Congress
Increased security; preparing for future
$2.5
–
–
–
–
–
Leg Branch Emergency Response
Security of the Capitol Hill complex,
a
a
a
Fund
GPO, and GAO
–
–
$256.1
Senate security needs
–
–
–
$34.5
$34.5
$34.5
House security needs
–
–
–
$40.7
$40.7
$41.7
Capitol Police Board
–
–
–
$179.9
$180.9
$31.0
U.S. Capitol Historical Society
–
–
–
$1.0
$0.0
$1.0
Capitol Guide Service and Special
–
–
–
–
–
$0.4
Services
Architect of the Capitol
–
–
–
–
–
$106.3

CRS-51
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Library of Congress
–
–
–
–
–
$29.6
Government Printing Office
–
–
–
–
–
$4.0
General Accounting Office
–
–
–
–
–
$7.6
TOTAL Legislative Branch
$377.0
$0.0
$256.1
$256.1
$256.1
$256.1
a. Included in funds listed below.
Sources: OMB and House and Senate Appropriations Committee.

CRS-52
Transportation and Related Agencies
($s – millions)
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Office of the Secretary, S&E
Consulting support and analysis
–
– $1.5
$0.5
$1.5
$0.0
capacity
Office of the Secretary, Payments to
To maintain commercial air service
–
–
$0.0
$0.0
$57.0
$50.0
Air Carriers
to all eligible communities
Office of the Secretary, Transportation
Start-up costs for new Transportation
– –
$0.0
$15.0
$0.0
$94.8
Security Administration
Security Administration
Office of the Secretary, Aircraft
Passenger and baggage screening
–
–
$0.0
$1,250.0
$0.0
$0.0
Passenger and Baggage Screening
Activities
Offsetting Collections
User fees from passengers and
– –
$0.0
($1,250)
$0.0
$0.0
airlines
Coast Guard operating expenses
NY Harbor patrols and reservists
$18.0
– – – – –
recall
Coast Guard reservist pay and
–
–
$116.0
$110.0
$285.4
$209.2
benefits
Increase pace of operations for port
a
a
and homeland security; port
–
–
$85.0
$31.3
vulnerability assessments and other
port security needs
a
a
Coast Guard chemical/biological
–
–
$2.0
$3.6
strike teams

CRS-53
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Federal Aviation Administration Ops
Increased airport security/Sky
$123.0
$36.0b
$0.0
$233.0
– $65.0
Marshals
c
Upgrades to aircraft cockpit security
–
–
$300.0
$251.0
$100.0
Security demonstration projects
–
–
$0.0
$28.5
$0.0
$15.0
Security “experts” hirings
–
–
$0.0
$30.0
$0.0
$20.0
Compensate DC airport authority and
concessionaires for closure of
$15.0
$25.0
– – – –
Reagan National Airport
Security costs at air traffic control
$32.0d
$10.0d
– – – –
facilities
FAA, Grants-In-Aid for Airports
Compensate airports for costs of
–
–
–
–
$200.0
$175.0
their heightened security posture
b
FAA Aviation Insurance Revolving
War risk insurance for air carriers
–
–
–
– –
Fund
FAA, Facilities and Equipment
Accelerated purchase of security
equipment for baggage and
–
$87.5
$108.5
$175.0
$0.0
$108.5
passenger screening
FAA, Research, Engineering and
Testing of emerging technologies
–
–
$0.0
$0.0
$50.0
$50.0
Development
that enhance aviation security
Transportation Security Administration
Civil aviation security activities
$1,030.0
$325.0’e
–
–
–
–
Federal Highway Administration,
Traffic control/detours in NYC and
g
Misc.
repair of non Federal-aid destroyed
–
– $10.0
$0.0
$10.0
highways

CRS-54
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Expansion of interstate ferry service
–
–
$0.0
$0.0
$100.0
$100.0
for New York and New Jersey
Federal Highway Admin, Federal-Aid
Repair of Federal-aid destroyed
–
– $75.0
$75.0
$75.0
$75.0
Highways, Emergency Relief
highways
Federal Railroad Admin, Safety and
Security of rail infrastructure/other
–
– $6.0
$6.0
$6.0
$6.0
Ops
needs
Federal Railroad Admin, Capital
Enhance security of Amtrak rail
– –
$0.0
$0.0
$100.0
$100.0
Grants to Natl Railroad Passenger Corp
tunnels un the East and Hudson
Rivers
Federal Transit Admin, Formula
Replace destroyed buses and transit
–
–
$4.8
$4.8
$4.8
$4.8
Grants
kiosks
Security technical aid for transit
–
–
$5.2
$5.2
$5.2
$5.2
agencies
Detecting chemical/biological agents
–
–
$4.0
$4.0
$4.0
$4.0
in transit stations
Emergency response drills with
–
–
$4.5
$4.5
$4.5
$4.5
transit agencies and local first
response agencies
Security training for transit operators
–
–
$5.0
$5.0
$5.0
$5.0
Federal Transit Admin, Capital
Assistance to transit agencies most
–
–
$0.0
$0.0
$100.0
$100.0
Investment Grants
impacted by the terrorist attacks
Increased security for DC metro
$10.0
– – – – –
public transportation system
Research and Special Programs Admin
DOT Crisis Management Center
–
–
$6.0
$2.5
$6.0
$2.5

CRS-55
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Office of IG, S&E
Assist OIG meeting new respon-
sibilities, including border security
– –
$0.0
$0.0
$2.0
$1.3
audits
Natl Transportation Safety Board, S&E
Recovery of flight recorders and aid
$0.2
– – – – –
to victims’ families
Staff costs for family assistance
support, recovery of flight recorders
–
– $0.8
$0.5
$0.8
$0.7
and wreckage, and security upgrades
TOTAL Transportation
$1,228.2
$483.5
$734.3
$734.4
$1,268.2
$1,296.5
a. Included in funding for Coast Guard reservists, above.
b. Reflects a reallocation on April 12, 2002, of an earlier distribution in order to provide $325 million for the Transportation Security Administration. Previously, the President had
allocated $311 million for increased airport security and Sky Marshals, and $50 million for Aviation Insurance Trust Fund. This was intended as a temporary reallocation, pending
enactment of the FY2002 Supplemental appropriation.
c. $50 million for cockpit door and transponder modifications in FAA Facilities and Equipment account below.
d. On August 13, 2002, the President reallocated $42 million from the State Department, GSA, and the Secret Service in order to provide these additional funds for security at air traffic
control facilities.
e. Reflects two reallocation of funds for TSA that had been previously allocation to FEMA. A May 21, 2002 reallocation moved $760 million from FEMA to TSA, while a July 1,
2002 reallocation moved $270 million from FEMA to TSA. The Administration regarded these as “bridge loans” for TSA, and adjusted a pending FY2002 supplemental by
reducing amounts requested for TSA and increasing amounts proposed for FEMA.
f. Provided by the April 12, 2002 reallocation of funds previously allocated to the FAA (see footnote b).
g. $10 million provided for this purpose under funding for FEMA in the VA/HUD chapter below.
Sources: OMB and House and Senate Appropriations Committee.

CRS-56
Treasury, Postal Service, Executive Office of the President, and General Govt
($s – millions)
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Department of the Treasury
Departmental Offices, S&E
Needs of staff located in/near WTC
$6.1
–
–
–
–
–
Air Transportation Stabilization
$9.4
– $9.4
$0.0
$0.0
$0.0
Board
Dept Offices, Financial Crimes
Foreign Terrorist Assets Tracking
$0.1
–
– – – –
Enforcement
Center
Dept Offices, IG for Tax Administration
Replace NYC offices and equipment
–
–
$2.0
$2.0
$2.0
$2.0
Dept Offices, Financial Crimes
Hire staff for Network and expand
– –
$1.7
$1.7
$1.7
$1.7
Enforcement Network, S&E
facility
Federal Law Enforcement Training
Training for law enforcement
–
– $13.8
$23.2
$22.8
$23.0
Center
community
Facility improvements at MD
– –
$0.0
$8.5
$0.0
$8.5
training center
Financial Management Service
Foreign Terrorist Assets Tracking
$0.1
–
– – – –
Center
Conduct vulnerability assessments
and security tests, and develop
–
– $0.6
$0.0
$0.6
$0.0
contingency plans
Bureau of Alcohol, Tobacco, and
Needs of staff located in/near WTC
$1.5
–
–
– – –
Firearms S&E

CRS-57
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
ATF agent expenses, replace
–
– $31.4
$31.4
$31.4
$31.4
destroyed equipment, and ATF
canine program
U.S. Customs Service, S&E
Needs of staff located in/near WTC
$21.0
–
– – – –
and air support for counterterrorism
Airport, seaport, and land border
security; replacement for destroyed
–
– $107.5
$301.8
$292.6
$392.6
equipment
Natl Guard troops for security at
$2.3
–
– – – –
U.S.- Canadian border
U.S. Customs Service,
Air support for counterterrorism
$2.9
–
–
–
–
–
O&M/Procurement
Natl Guard troops for security at
$11.8
–
– – – –
U.S.- Canadian border
Increased air security
–
–
$6.7
$6.7
$6.7
$6.7
IRS, Processing, Asst, and Management
Securing NYC facilities, overtime
$1.9
–
– – – –
and other admin costs
Replacement for destroyed offices;
security at other IRS facilities;
–
– $16.7
$0.0
$16.7
$13.0
taxpayer help
IRS, Tax Law Enforcement
Security/investigative expenses,
$2.2
–
– – – –
replacement of destroyed equipment

CRS-58
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Replacement of destroyed equipment
and investigative work to combat
–
– $4.5
$4.5
$4.5
$4.5
terrorism
IRS, Information Systems
Replacement of destroyed data
infrastructure, install new network
$0.5
–
– – – –
systems
Replace destroyed equipment and
–
– $16.0
$0.0
$16.0
$16.0
secure taxpayer data base
Secret Service, S&E
Agent overtime and new hiring;
replacement of destroyed equipment;
$26.7a
– $104.8
$104.8
$104.8
$104.8
training for investigations and
preparedness
US Postal Service
US Postal Service Fund
Irradiation equipment to sanitize
– $100.0b
– – – –
mail
Personnel protection equipment,
testing kits, site clean-up and
– $75.0b
– – – –
medicine, and public education
material
Establish a system for sanitizing and
screening mail, protect postal
–
–
$0.0
$0.0
$600.0
$500.0
workers, and repair NYC facilities

CRS-59
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Executive Office of President
Office of Administration, S&E
Relocate staff; protective window
$7.2
–
– – – –
film
Establish office of Homeland
$25.5
–
– – – –
Security
Additional requirements and support/
services to President and Vice
–
– $50.0
$0.0
$50.0
$50.0
President
National Security Council (NSC) S&E
Establish NSC Directorate to Combat
$4.8
–
– – – –
Terrorism
Unanticipated needs
Other urgent security-related
$51.0
–
– – – –
activities
Federal Drug Control Programs
High Intensity Drug Trafficking Areas
Equipment replacement for NY
$2.3
–
–
– – –
HIDTA
General Services Administration
Real Property Activities; Fed. Buildings
Increased security coverage and
$8.6
–
–
– – –
Fund
other costs
Security nationwide at Federal
–
–
$200.5
$87.4c
$126.5
$126.5
buildings
Security upgrades at the Eisenhower
$5.2d
–
– – – –
Executive Office Building

CRS-60
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
National Archives and Record Administration
Operating Expenses
Security at NARA facilities
–
–
$4.8
$0.0
$4.8
$1.6
Repairs and Reconstruction
Building security upgrades at NARA
–
–
$2.2
$0.0
$2.2
$1.0
sites
TOTAL Treasury, Postal Service,
$191.1
$175.0
$572.6
$572.0
$1,283.3
$1,283.3
Executive Office of the President, and
General Govt
a. On August 13, 2002, the President reallocated $10 million from the Secret Service in order to provide funds for FAA security costs at air traffic control facilities. Previously, the
President had allocated $36.7 million for Secret Service overtime pay and new hiring costs.
b. On May 15, 2002, the President requested the elimination of the distinct funding categories of the $175 million for the U.S. Postal Service in order to provide greater flexibility.
c. Limited to needs in New York City.
d. On August 13, 2002, the President reallocated $20 million from GSA in order to provide funds for FAA security costs at air traffic control facilities. Previously, the President had
allocated $27.2 million for GSA security upgrades at the Eisenhower Executive Office Building.
Sources: OMB and House and Senate Appropriations Committee.

CRS-61
Veterans Affairs, Housing and Urban Development, and Independent Agencies
($s – millions)
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Federal Emergency Management Agency
Disaster Relief
Debris removal
$620.0a
– $2,150.0
$4,345.0
$5,824.0
$4,356.9
b
b
b
Building reconstruction
–
–
$1,000.0
b
b
b
Transit/subway repair
–
–
$1,750.0
Response and rescue
$300.0
–
–
–
–
–
Disaster aid to individuals
$50.0
–
–
–
–
–
Emergency Management Planning and Asst
Grants to states and localities for first
–
– $580.0
$35.0
$290.0
$220.0
responder training and equipment
Salaries and Expenses
Administration of grants by the Office of
–
– $20.0
$30.0
$20.0
$25.0
National Preparedness
Dept of Veterans Affairs
Natl Cemetery Administration
Internment costs of veterans killed in
$0.2
– –
–
–
–
terrorist attacks
General Operations Expenses
Security evaluation at all VA facilities
–
–
$0.0
$2.0
$0.0
$2.0
C
Construction, Major Projects
Security evaluation of VA facilities
–
–
$2.0
$0.0
$2.0
Dept of Housing and Urban Development
Management and Administration - IG
Replacing HUD/IG offices in WTC
–
–
$1.0
$1.0
$1.0
$1.0

CRS-62
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
Community Planning and Development,
Assist NYC economic recovery with
– $700.0
$0.0
$1,825.0
$2,000.0
$2,000.0
Community Development Block Grants
grants affected businesses
Environmental Protection Agency
Science and Technology
Security at EPA labs
–
–
$6.0
$10.0
$6.0
$90.3
d
e
Drinking water vulnerability assessments
–
–
$34.0
$34.0
e
Reimburse EPA for anthrax deconta-
– –
$0.0
$0.0
$1.5
mination activities and projected needs
Environmental Programs and Management
Relocation of NY office and replacement
–
– $0.7
$0.7
$0.7
$39.0
of destroyed equipment
f
Support for drinking water assessments
–
–
$0.5
$109.7
$0.5
f
Security at EPA non-lab sites
–
–
$24.0
$30.0
$24.0
f
Reimburse EPA for anthrax deconta-
– –
$0.0
$0.0
$7.0
mination activities and projected needs
f
EPA responsibilities in criminal
–
–
$0.0
$0.0
$6.0
investigations related to bioterrorism
State and Tribal Assistance Grants
State grants to work with EPA on threats
to drinking water supply systems
–
–
$5.0
$5.0
$5.0
$5.0
Hazardous Substance Superfund
Establish a West Coast response team
–
–
$5.5
$5.5
$5.5
$41.3
g
Relocation of NY office and replacement
–
–
$0.3
$0.3
$0.3
of destroyed equipment

CRS-63
Executed
15 Day/Wait
Admin
House
Senate
Appropriation Account
Purpose
Transfers
Transfers
Request
Enacted
Passed
Passed
(1st $10B)
(2nd $10B)
($20B)
g
Reimburse EPA for anthrax deconta-
– –
$0.0
$0.0
$12.5
mination activities and projected needs
g
EPA responsibilities responding to
–
–
– –
$23.0
terrorism
NIH, National Institute of Environmental
Train workers to do Superfund cleanup
–
–
$0.0
$10.5
$10.5
$10.5
Health Sciences
NASA
Human Space Flight
Security at field centers and headquarters
–
–
$64.5
$81.0
$64.5
$76.0
Science, Aeronautics and Technology
Security at field centers and headquarters
–
–
$28.6
$36.5
$28.6
$32.5
Inspector General
Security and counterintelligence
–
–
$0.0
$3.0
$0.0
$0.0
National Science Foundation
Research and Related Activities
Security at NSF R&D facilities
–
–
$0.3
$0.3
$0.3
$0.3
TOTAL VA, HUD, and Independent Agencies
$970.2
$700.0
$5,672.4
$6,530.5
$8,366.9
$6,899.8
a. Includes two reallocation of funds moving money from FEMA to the Transportation Security Administration (TSA). On May 21, 2002, the Administration reallocated $760 million
from FEMA to TSA; on July 1, 2002, the Administration reallocated $270 million from FEMA to TSA. Originally, the President had allocated $1.65 billion for FEMA. These
reallocations were transfer were intended as a temporary actions to provide “bridge loans” for TSA. Both notices also included an amendment to the pending FY2002
Supplemental appropriation that would increase the proposal for FEMA and reduce the request for TSA by the amounts of the reallocations.
b. Included in Debris Removal line, above.
c. Funded in line directly above.
d. Funded within Environmental Programs and Management, below.
e. Funded within Security at EPA labs, above.
f. Funded within $39 million line, above.
g. Funded within $41.3 million line, above.
Sources: OMB, House and Senate Appropriations Committee, and FEMA.

EveryCRSReport.com
The Congressional Research Service (CRS) is a federal legislative branch agency, housed inside the
Library of Congress, charged with providing the United States Congress non-partisan advice on
issues that may come before Congress.
EveryCRSReport.com republishes CRS reports that are available to al Congressional staff. The
reports are not classified, and Members of Congress routinely make individual reports available to
the public.
Prior to our republication, we redacted names, phone numbers and email addresses of analysts
who produced the reports. We also added this page to the report. We have not intentional y made
any other changes to any report published on EveryCRSReport.com.
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 permission of the copyright holder if you wish to copy or
otherwise use copyrighted material.
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' institutional role.
EveryCRSReport.com is not a government website and is not affiliated with CRS. We do not claim
copyright on any CRS report we have republished.