The Corporation for National and Community Service: Overview of Programs and FY2007 Funding
Order Code RL33815
The Corporation for National and
Community Service: Overview of Programs
and FY2007 Funding
Updated April 13, 2007
Ann Lordeman
Specialist in Social Legislation
Domestic Social Policy Division
Abigail B. Rudman
Information Research Specialist
Knowledge Services Group
The Corporation for National and Community Service:
Overview of Programs and FY2007 Funding
Summary
The Corporation for National and Community Service (CNCS) is an
independent federal agency that administers the programs authorized by two statutes:
the National and Community Service Act (NCSA, P.L. 101-610) of 1990, as
amended, and the Domestic Volunteer Service Act (DVSA, P.L. 93-113) of 1973, as
amended. This report first provides an overview of each NCSA and DVSA program
and then compares CNCS funding from the FY2006 Appropriation (P.L.109-149),
the FY2007 budget request, and the FY2007 Appropriation (P.L.110-5).
The NCSA is designed to meet unmet human, educational, environmental, and
public safety needs, and to renew an ethic of civic responsibility by encouraging
citizens to participate in national service programs. The NCSA authorizes four
community service programs: Learn and Serve America, AmeriCorps State and
National Grants, the National Civilian Community Corps (NCCC), and the Points of
Light Foundation. The NCSA also authorizes the National Service Trust, which
funds educational awards for community service participants. Additionally,
America’s Promise, sometimes referred to as a partnership grant, is funded under the
general authority of the NCSA.
A central purpose of the DVSA, which authorizes the Volunteers in Service to
America (VISTA) program and the National Senior Volunteer Corps, is to foster and
expand voluntary service in communities while helping the vulnerable, the
disadvantaged, the elderly, and the poor. The National Senior Volunteer Corps
includes three main programs: the Foster Grandparents Program, the Senior
Companion Program, and the Retired and Senior Volunteer Program (RSVP).
Appropriations for the DVSA and the NCSA programs are made annually
through the Departments of Labor, Health and Human Services, and Education, and
Related Agencies Appropriations Act (Labor-HHS-ED). In FY2006 (P.L. 109-149),
$899.960 million was appropriated for all of CNCS. The President’s FY2007 budget
requested $851.462 million for CNCS. In the 109th Congress, a series of continuing
resolutions (CRs) were enacted in the fall of 2006 to fund appropriations for FY2007.
In the 110th Congress, H.J.Res. 20 was introduced to continue FY2007 appropriations
through the end of the fiscal year, and was enacted on February 15, 2007, as P.L.
110-5. For FY2007, CNCS is funded at $884.124 million.
This report will be updated as warranted to reflect legislative developments.
Contents
Most Recent Developments . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Introduction . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 1
Program-by-Program Overview and FY2007 Funding . . . . . . . . . . . . . . . . . . . . . 2
NCSA Programs and Funding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
Learn and Serve America (Title I-B) . . . . . . . . . . . . . . . . . . . . . . . . . . . 2
AmeriCorps State and National Grants (Title I-C) . . . . . . . . . . . . . . . . 2
National Service Trust (Title I-D) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 3
National Civilian Community Corps (NCCC) (Title I-E) . . . . . . . . . . . 3
Points of Light Foundation (Title III) . . . . . . . . . . . . . . . . . . . . . . . . . . 4
America’s Promise . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
DVSA Programs and Funding . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
VISTA (Title I-A) . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 4
National Senior Volunteer Corps (Title II) . . . . . . . . . . . . . . . . . . . . . . 5
Retired and Senior Volunteer Program (RSVP) (Title II-A) . . . . . 5
Foster Grandparent Program (FGP) (Title II-B) . . . . . . . . . . . . . . 5
Senior Companion Program (SCP) (Title II-C) . . . . . . . . . . . . . . . 5
List of Tables
Table 1. Educational Awards by Service Term . . . . . . . . . . . . . . . . . . . . . . . . . . 3
Table 2. Corporation for National and Community Service Funding,
FY2007 . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . 6
The Corporation for National and
Community Service: Overview of Programs
and FY2007 Funding
Most Recent Developments
In the 109th Congress, the appropriations process for the Departments of Labor,
Health and Human Services, and Education, and Related Agencies (Labor-HHS-ED)
for FY2007 was not completed. Congress passed a series of continuing resolutions
(CRs) in the fall of 2006 to fund appropriations for FY2007. In the 110th Congress,
H.J.Res. 20, the Revised Continuing Appropriations Resolution, 2007, was
introduced on January 21, 2007, to continue FY2007 appropriations through
September 30, 2007. It was signed into law by President George W. Bush on
February 15, 2007, as P.L. 110-5. The law funds the Corporation for National and
Community Service (CNCS) at $884.124 million for FY2007.
Introduction
The Corporation for National and Community Service (CNCS) was established
by the National and Community Service Trust Act of 1993 (P.L. 103-82). Operating
as an independent federal agency, the CNCS oversees all national and community
service programs authorized in two statutes: the National Community Service Act
(NCSA) of 1990,1 as amended, and the Domestic Volunteer Service Act (DVSA) of
1973,2 as amended.
Although authorized funding for CNCS programs expired at the end of FY1996,
funding continues through annual appropriations. DVSA programs have been
continually funded under the Labor, Health and Human Services, and Education, and
Related Agencies (L-HHS-ED) Appropriations Act. Since FY2006, funding for
NCSA programs is also annually appropriated in L-HHS-ED.3
This report first provides a summary of each NCSA and DVSA program. Next,
it compares funding under Labor-HHS-ED in:
! the FY2006 Appropriation Act (P.L. 109-149),
1 National and Community Service Act (NCSA) of 1990, P.L. 101-610.
2 Domestic Volunteer Service Act (DVSA) of 1973, P.L. 93-113.
3 Prior to FY2006, funding for NCSA programs was under the Veterans Affairs and Housing
and Urban Development (VA-HUD) Appropriations Act.
CRS-2
! the President’s FY2007 Budget of the U.S. Government (request),
and
! the FY2007 Continuing Appropriations Resolution (P.L. 110-5).
Program-by-Program Overview and FY2007 Funding
NCSA Programs and Funding
On November 16, 1990, the National Community Service Act (NCSA) of 1990
was signed into law to address unmet human, educational, environmental, and public
safety needs. One main purpose of NCSA is to renew an ethic of civil responsibility
and community spirit in the U.S. by encouraging citizens to participate in national
service programs. NCSA, as amended in 1993, includes Learn and Serve America,
AmeriCorps State and National Grants, the National Service Trust, National Civilian
Community Corps (NCCC), and the Points of Light Foundation. Table 2 contains
funding information for NCSA programs.
Learn and Serve America (Title I-B). Program Focus: Since 1990, Learn
and Serve America (LSA) has authorized three community service programs
benefitting students and communities. These programs provide for “service-
learning” (i.e., student mentoring and tutoring) or collaborative efforts between
schools and local communities addressing local community issues in areas such as
education, public safety, human services, and the environment. The three programs
are (1) school-based programs for students, (2) community-based programs for
school-age young people, and (3) higher-education programs for community service.
Eligibility: elementary, secondary, and post-secondary students. Benefits: the Learn
and Service America programs offer no stipends, educational awards, or other direct
benefits. Administrative Entity: LSA programs are administered, depending on the
program, by (1) CNCS, (2) an independent state education agency, (3) a state
commission on national service, or (4) a public or private nonprofit organization.
AmeriCorps State and National Grants (Title I-C). Program Focus:
Programs under AmeriCorps State and National Grants identify and address critical
community needs, including tutoring and mentoring disadvantaged youth, managing
or operating after-school programs, helping communities respond to disasters,
improving health services, building affordable housing, and cleaning parks and
streams. Created in 1993, AmeriCorps was developed as a network of local, state,
and national service programs for individuals aged 17 and older. Grants include
formula and competitive grants to states, national competitive grants to nonprofit
organizations, grants to national and local organizations for the Education Award
Program (EAP),4 and grants to U.S. territories and Indian tribes. Eligibility:
individuals aged 17 and older. Amount of Volunteer Service: full-time or part-time
for a nine- to 12-month period. Benefits: AmeriCorps members receive a living
allowance and, in some cases, student-loan forbearance (i.e., loan postponement),
4 Education Award Programs (EAP) members receive educational awards and loan
forbearance, if applicable, but do not receive other federally funded benefits such as a living
allowance.
CRS-3
health coverage, and child care for those who qualify. AmeriCorps members can
receive an educational award5 of up to $4,725 per year of full-time service, the
amount is reduced based on service term or part-time hours (see Table 1).
Administrative Entity: Each state Governor appoints members of a service
commission to manage, monitor, and administer annual grant competitions for the
individual state. CNCS reviews the State Commission formula package and makes
the awards. CNCS selects all other grantees and makes the awards.
Table 1. Educational Awards by Service Term
Member service term
Number of hours
Educational award
Full time
at least 1,700
$4,725.00
Half time
at least 900
$2,362.50
Reduced half time
at least 675
$1,800.00
Quarter time
at least 450
$1,250.00
Minimum time
at least 300
$1,000.00
Source: CNCS, FY2007 Congressional Budget Justification.
National Service Trust (Title I-D). The National Service Trust, a special
account in the U.S. Treasury, provides a maximum of two educational awards per
volunteer participant in AmeriCorps Grants, the National Civilian Community Corps
(NCCC), and VISTA. The trust fund also provides funding for scholarships to high
school students rewarded for outstanding community service. Additionally, the
National Service Trust provides interest payments on qualified student loans to
recipients of AmeriCorps Grants and participants in NCCC or VISTA who have
obtained forbearance (loan postponement).
National Civilian Community Corps (NCCC) (Title I-E). Program Focus:
NCCC is a residential program that focuses on short-term projects such as building
homes for low-income families and helping to provide disaster relief. Eligibility:
individuals aged 18 to 24. Amount of volunteer service: participants can serve up to
two years full-time. Full-time service is defined as 10 months each year. Benefits:
NCCC participants may receive a living allowance, room and board, and an
educational award of $4,725 per year of service. Administrative Entity: CNCS
oversees administrative support.
Program Update: the FY2007 Presidential budget proposed the elimination of
the AmeriCorps National Civilian Community Corps (NCCC).6 According to the
5 AmeriCorps Educational Awards are funded under the National Service Trust. These
awards are intended to help pay qualified student loans, or finance college, graduate school,
or eligible vocational training.
6 U.S. Office of Management and Budget, Program Assessment: AmeriCorps National
(continued...)
CRS-4
Office of Management and Budget’s (OMB) Program Assessment Rating Tool
(PART) assessment, AmeriCorps NCCC was rated ineffective due to significant
flaws in the program’s design, performance, and cost effectiveness. The FY2007
budget request included $4.950 million to close out operations of the program.
Points of Light Foundation (Title III).
The Points of Light Foundation is
a nonprofit charitable organization that functions as an independent and autonomous
entity. The foundation promotes community service through a partnership with the
Volunteer Center National Network. The purposes of the Points of Light Foundation
are to (1) encourage all Americans to help solve critical social problems by
volunteering, (2) identify successful and promising community service projects and
disseminate information about them, and (3) discover new leaders and develop
individuals and institutions that serve as examples of commitment to others.
America’s Promise. America’s Promise is a national foundation based on
recommendations of the President’s Summit for America’s Future, held in
Philadelphia in 1997.7 The conference concluded that every young person, in order
to succeed, needs Five Promises: (1) caring adults in their lives, (2) safe places with
structured activities in non-school hours, (3) a healthy start and future, (4) marketable
skills, and (5) opportunities to participate in community service. To achieve its
goals, the foundation works with corporations, nonprofit organizations, faith-based
organizations, educational institutions, and government agencies.
DVSA Programs and Funding
In 1973, Congress passed the Domestic Volunteer Service Act (DVSA). The
purpose of DVSA is to foster and expand voluntary citizen service throughout the
nation. DVSA programs are designed to help the poor, the disadvantaged, the
vulnerable and the elderly. Administered by the CNCS, the DVSA programs include
the Volunteers in Service to America (VISTA) and the National Senior Volunteer
Corps. The National Senior Volunteer Corps consists of the Retired and Senior
Volunteer Program (RSVP), the Foster Grandparent Program, and the Senior
Companion Program. Table 2 contains funding information for DVSA programs.
VISTA (Title I-A). Program Focus: the Volunteers in Service to America
(VISTA) program encourages Americans to participate in community service in an
effort to eliminate poverty. Eligibility: individuals aged 18 and older. Amount of
volunteer service: VISTA members serve full-time for up to three years. Benefits:
VISTA members may receive a living allowance, student-loan forbearance (i.e.,
postponement), health coverage, relocation costs, training, and child care assistance.
VISTA participants receive an educational award of up to $4,725 per year of full-
time service or a $1,200 “lump sum” cash stipend from the National Service Trust.
The maximum number of educational awards per participant is two; the maximum
6 (...continued)
Civilian Community Corps, available at [http://www.whitehouse.gov/omb/expectmore/
summary/10004457.2005.html].
7 America’s Promise is funded under the general authority of the National and Community
Service Act of 1990.
CRS-5
number of lump-sum payments per participant is three. Administrative Entity: the
CNCS office in each state.
National Senior Volunteer Corps (Title II). The National Senior
Volunteer Corps consists of three programs, summarized below: the Retired Senior
Volunteer Program (RSVP), Foster Grandparent Program (FGP), and the Senior
Companion Program (SCP).
Retired and Senior Volunteer Program (RSVP) (Title II-A). Program
Focus: volunteers in the Retired and Senior Volunteer Program (RSVP) may play
community service roles in education, health and nutrition services, community and
economic development, and other areas of human need. Eligibility: individuals aged
55 and older. Amount of volunteer service: participants can contribute up to 40
hours each week. Benefits: the RSVP offers no direct benefits (e.g., stipends or
educational awards). Administrative Entity: the CNCS office in each state.
Foster Grandparent Program (FGP) (Title II-B). Program Focus: the
Foster Grandparent Program (FGP) supports children with exceptional needs by
providing aid and services. FGP members mentor children and teenagers, teach
model parenting skills, and help care for premature infants and children with
disabilities. Eligibility: individuals must be 60 or older and meet income eligibility
requirements. Amount of volunteer service: volunteer schedules, which range from
15 to 40 hours each week, average 20 hours a week. Benefits: if qualified, members
may receive a stipend of $2.65 an hour. Members may also receive accident,
liability, and automobile insurance coverage during assignments. Administrative
Entity: the CNCS office in each state.
Senior Companion Program (SCP) (Title II-C). Program Focus: the
Senior Companion Program (SCP) gives older adults the opportunity to assist frail,
homebound individuals, most of whom are elderly. SCP volunteers help with such
tasks as finding transportation to medical appointments, paying bills, and buying
groceries. Eligibility: individuals must be 60 or older and meet income eligibility
requirements. Amount of volunteer service: volunteer schedules, which range from
15 to 40 hours each week, average 20 hours a week. Benefits: participants receive
a stipend of $2.65 an hour. Administrative Entity: the CNCS office in each state.
CRS-6
Table 2. Corporation for
National and Community Service Funding, FY2007
(in thousands of dollars)
FY2006
FY2007
FY2007
Programs
Appropriation
Request
Appropriation
National and Community Service Act (NCSA) Programs
Learn and Serve America
$37,125
$34,155
$37,125
AmeriCorps State and National Grants
$264,825
$258,959
$264,825
National Service Trust
$138,600
$124,720
$117,720
National Civilian Community Corps (NCCC)
$26,730
$4,950
$26,730
Innovation, Demonstration, and Assistance Activities
$16,281
$9,029
$31,131a
Evaluation
$3,960
$3,960
$3,960
State Commission Administrative Grants
$12,516
$12,516
$12,516
Points of Light Foundation
$9,900
$9,900
$0.00a
America’s Promise
$4,950
$4,950
$0.00a
NCSA Programs subtotal
$514,887
$463,139
$494,007
Domestic Volunteer Service Act (DVSA) Programs
VISTA
$95,464
$95,466
$95,464
VISTA Revolving Fundb
$0.00
$0.00
$3,500b
National Senior Volunteer Corps
$217,586
$217,592
$217,586
— Foster Grandparents Program (non-add)
$110,937
$110,943
$110,937
— Senior Companion Program (non-add)
$46,964
$46,964
$46,964
— Retired Senior Program (non-add)
$59,685
$59,685
$59,685
DVSA Programs subtotal
$313,050
$313,058
$316,550
Inspector Generalc
$5,940
$4,950
$4,940
Salaries and Expensesc
$66,083
$70,315
$68,628
CNCS grand total
$899,960d
$851,462
$884,124
Sources: Funding for the FY2006 and FY2007 appropriations and the presidential budget request for
FY2007 are compiled from the Departments of Labor, Health and Human Services, and Education,
and Related Agencies Appropriations Act, 2006 (P.L. 109-149), the Revised Continuing
Appropriations Resolution, 2007 (P.L. 110-5), the FY2007 Congressional Budget Justification, and
from information supplied by the Corporation for National and Community Service.
a. Funding for the innovation, demonstration, and assistance activities estimate presumably includes
funding for the Points of Light Foundation and for America’s Promise. The FY2006
appropriation for the Points of Light Foundation and for America’s Promise totaled $14.85
million, which is the exact amount of the Innovation, Demonstration, and Assistance Activities
FY2007 increase over FY2006.
b. This funding will create and provide initial capitalization for a revolving fund, which advances
funds to VISTA grantees who assume a portion of the costs of supporting VISTA members.
Funds are advanced so that a VISTA member can receive one check from the Corporation —
rather than one from the Corporation and one from the grantee — for a “subsistence” allowance,
and so that grantees can reimburse the Corporation throughout the year.
c. Funding for the Office of the Inspector General and salaries and expenses for all of CNCS are
included in the CNCS grand total.
d. Excludes the $10 million emergency supplemental appropriation contained in P.L.109-234 for
necessary expenses related to the 2005 Gulf Coast hurricanes.